No C 270/2 Official  Journal  of the  European  Communities 26.11.75 
II 
(Preparatory  Acts) 
ECONOMIC  AND  SOCIAL  COMMITTEE 
Opinion  on the European  Union 
The Opinion  of the Committee  does  not relate  to any  particular  text. 
A. LEGAL  BASIS  FOR  THE  OPINION 
At its 128th  plenary  session  held  on 26 and  27 February  1975  the Committee,  acting  on 
a proposal  from  its Bureau,  decided  to deliver  an Opinion  on the  abovementioned 
subject  on its own  initiative. 
B. OPINION  OF THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  drew  up its Opinion  at its 132nd  plenary  session, 
held in Brussels  on 16 and  17 July  1975. 
The Opinion  is published  below: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE, 
Having  regard  to the fourth  paragraph  of Article  20 
of the Committee's  Rules  of Procedure; 
Having  regard  to the decision  which  the Committee, 
acting  on a proposal  from  its Bureau,  took  at its 
128th  plenary  session  held  on 26 and  27 February 
1975,  to deliver  an Opinion  on this  matter  on its own 
initiative  and  to set up, in accordance  with  Article  17 
of the  Rules  of Procedure,  a subcommittee  to 
produce  a draft  version  of that  Opinion; 
Having  regard  to the  oral  report  made  by the 
Rapporteur,  Mr de Bruyn; 
Having  regard  to the discussions  at its meeting  on 16 
July 1975  (132nd  plenary  session  of 16 and  17 July 
1975); 
Whereas  on three  occasions,  viz. at their  meetings  in 
Paris  (19  to 21 October  1972),  in Copenhagen  (14 
and 15 December  1973),  and  again  in Paris  (9 and  10 December  1974),  the  Heads  of  State  or  of 
Government  of the  Member  States  of the  European 
Communities  have  affirmed  'their  common  will  that 
Europe  should  speak  with  one  voice  in important 
world  affairs',  and  decided  'to transform  before  the 
end of the present  decade  and  with  the fullest  respect 
for the Treaties  already  signed,  the whole  complex  of 
the relations  of the Member  States  into  a European 
Union'; 
Whereas  at their  last  meeting  they  decided  that  'the 
time  has  come  for  the  Nine  to agree  as soon  as 
possible  on an overall  concept  of European  Union', 
and requested  the Community  Institutions  'to bring 
the submission  of their  reports  forward  to before  the 
end of June  1975'; 
Whereas  they  agreed  'to invite  Mr  Tindemans,  the 
Prime  Minister  of the Kingdom  of Belgium,  to submit 
a comprehensive  report  to the Heads  of Government 
before  the end  of 1975  on the  basis  of the  reports 
received  from  the institutions  and  the  consultations 
26.11.  75 Official  Journal  of the  European  Communities No C 270/3 
which  he is to have  with  the  Governments  and  a 
wide  range  of public  opinion  within  the Community'; 
Whereas  on 28 March  1974,  the Economic  and  Social 
Committee  using  its right  of initiative,  adopted  its 
Opinion  on the Place  and  Role  of the Economic  and 
Social  Committee  in the  Institutional  Machinery-  of 
the Communities,  in the  context  of a possible 
Evolution  thereof  (1),  and  on  17  July  1974,  the 
Committee  adopted  its Opinion  on the  situation  of 
the Community  (2).  These  two  Opinions  were  an 
initial  contribution  to the  Community-level  studies 
on the shape  of European  Union, 
HAS  ADOPTED  THE  FOLLOWING  OPINION 
by 68 votes  to 4, with  18 abstentions: 
1. The  objectives  to be achieved  by European  Union 
1.1. It  is  a basic  sense  of  purpose  (the 
establishment  of a lasting  peace  between  European 
States,  preservation  of democratic  freedoms,  Europe's 
international  mission,  economic  recovery)  that  is at 
the root  of the  process  of European  integration. 
These  basic  aims  are as valid  as ever.  At all events, 
the European  States  have  no  alternative  but  to 
continue  their  progress  towards  unity. 
1.2. Any  slackening  in pace,  any  failure  to make 
progress  towards  the achievement  of a united  Europe 
would  inevitably  jeopardize  achievement  to-date. 
Without  internal  European  cohesion  there  can  be no 
lasting  solidarity  with  the world  at large. 
1.3. European  Union  must  make  it possible  for the 
Member  States  to consolidate  their  links.  This  is a 
prerequisite,  if Europe  is to be economically  and 
politically  independent  vis-a-vis  the  rest  of the 
world. 
1.4. Although  Europe  is a centre  of attraction  in 
the world,  it can  only  hope  to play  a decisive  role  in 
the international  arena  if it asserts  its own  identity  to 
a greater  extent. 
1.5. European  Union  must  make  full  use  of the 
provisions  of the Treaty.  It must  be something  more, 
however,  and  above  all something  better. 
1.6. European  Union  will  not fulfil  its mission  if it 
is confined  to the economic  sphere.  It must  therefore seek to become  a model  of change  towards  a type  of 
society  more  consonant  with  the  lofty  ideals  of the 
peoples  of Europe,  who  want  peace,  freedom  and 
security  and  who  aspire  to the abolition  of frontiers, 
the achievement  of  a more  natural  human 
environment  and  way  of life,  enhanced  human 
dignity,  and  greater  fairness  through  the reduction  of 
inequalities. 
1.7. For  all the  above  reasons,  European  Union 
must  go beyond  straightforward  coordination  under 
a system  of intergovernmental  links  within  a free 
trade  area,  even  if that  free  trade  area  is of an 
improved  type.  European  Union  must  possess  efficient 
institutions  with  clearly  defined  duties  and 
relationships. 
1.8. European  Union,  which  leaves  the process  of 
complete  political  integration  to the  future,  must 
forthwith  provide  itself  with  a democratic  European 
authority,  in order  to be capable  of implementing 
Community  policies  swiftly  and  fully.  The 
institutions  must  be organized  in a way  which  will 
allow  them  to play  an active  role,  within  their 
respective  terms  of reference,  in the  Community 
decision-making  process. 
1.9. Although  European  Union  will  not  be 
achieved  fully  in the seventies,  there  can  and  must  be 
no barrier  to earlier  achievement  of certain  objectives. 
It is possible  to take  large  strides  forward  on the 
basis  of the wording  of the present  Treaties,  and  it is 
necessary  to take  such  strides  in order  to refurnish 
the Community's  credibility,  which  has  been 
undermined  by the  excessive  number  of setbacks, 
mistakes  and  delays.  Possibilities  here  include 
majority  decisions  within  the  Council  of Ministers 
and use of Articles  235  and  236  of the EEC  Treaty. 
1.10.  Against  the background  of a clear  definition 
of the  respective  powers  of the  national  and 
European  authorities,  Community  powers  should  be 
established  in all matters  where  Community  action  is 
seen to be more  suitable  for solving  problems  than 
isolated  national  measures. 
1.11.  Public  support  will  be contingent  on the 
existence  of a genuine  political  will  to phase  in 
European  Union,  and  will  be forthcoming  only  if the 
public  knows  about  Community  action  and 
understands  it. The  latter  prerequisite  entails  concrete 
measures  at the  various  appropriate  levels,  together 
with  objective,  continuing,  provision  of information 
and education. 
(!) OJ  No C 115,  28. 9. 1974. 
(2) OJ  No C 125,  16. 10. 1974. 1.12.  A  'charter  setting  out  the  objectives  of 
European  Union'  should  be drawn  up,  adopted  by 
the European  Parliament  and  then  submitted  to the 
No C 270/4 Official  Journal  of the European  Communities 26.11.75 
Member  States  for a decision  to accede.  This  charter 
should  be  based  on  respect  for  the  rules  of 
democracy  and  political,  philosophical  and  cultural 
pluralism.  It should  set out  the  rights  of European 
citizens  and  enumerate  the  economic  and  social 
targets  which  it proposes  to achieve. 
1.13.  European  Union  must  in this  way  play  its 
part in uniting  the  peoples  and  governments  of the 
Member  States  by gradually  linking  their  destinies  in 
common  achievements;  thanks  to  Community 
institutions  which  are  open  to a new  world,  are 
integrated  in that  world  and  work  in it for  peace, 
freedom  and  economic  and  social  progress. 2.6. Leaving  aside  the  general  improvement  in 
living  standards  and  its  social  repercussions, 
Community  social  measures,  which  have  been 
designed  essentially  to back  up economic  decisions  or 
to mitigate  certain  harmful  consequences  of the 
latter,  have  not had  all the anticipated  effects,  despite 
the recently  launched  Social  Action  Programme  (*) 
which  is still  only  an outline  framework. 
The concrete  achievements  which  the  Community 
can be credited  with  are  the  rules  relating  to free 
movement  of workers,  the  protection  of migrants, 
implementation  of the principle  of equal  pay  for men 
and women  (Article  119),  and  assistance  from  the 
European  Social  Fund. 
2. Present  situation  in the Community 
2.1. Over  a long  period  of continuous  economic 
growth  stimulated  by the  organization  of a large 
common  market,  Europe  of the  Six  and  later  the 
Nine  has  enjoyed  relative  prosperity,  a high  level  of 
employment,  a considerable  rise  in living  standards,  a 
remarkable  expansion  of production,  trade  and 
consumption. 
2.2. However,  and  in the  last  18  months  in 
particular,  economic  and  monetary  difficulties  have 
emerged  and  been  exacerbated  by the increased  cost 
of oil.  These  differences  have  sparked  off  serious 
inflation  and  an upsurge  in unemployment. 2.7. Serious  economic  and  social  disparities  still 
exist,  however,  in the Community.  It was  only  after 
long  vacillation  that  agreement  was  finally  reached 
on the setting-up  of a Regional  Development  Fund  (2) 
but a scale  for  the  apportionment  of aid  was 
introduced  straight  off  without  the  slightest  prior 
consultation  with  the interested  parties. 
2.8. Mention  can  also  be made  of the  harmful 
delays  in achieving  economic  and  monetary  union  (3), 
the lack  of solidarity  on energy  policy,  common 
transport  policy  (4), industrial  policy,  etc. 
2.9. In  short,  the Community's  successes  have  been 
made  possible  by a high  rate  of growth  which  the 
national  political  authorities  have  not  really  tried  to 
control  at European  level. 
2.3. Although  not  all  these  problems  can  be 
attributed  to the Member  States  or the  Community 
itself,  the  fact  remains  that  the  structural  and 
functional  weaknesses  of the Community  have  made 
it particularly  vulnerable  to the  effects  of both 
national  and  international  imbalances. 
2.4. In  its Opinion  of 17 July  1974,  the Economic 
and Social  Committee  took  stock  of the  results 
obtained  under  the  Treaties  but  also  stressed  the 
setbacks  encountered  and  sought  to identify  their 
underlying  causes. 2.10.  Having  failed  to make  sufficient  progress  in 
its organization  and  development,  the Community  is 
not yet able  to speak  with  one  voice.  The  effects  of 
the rise  in oil prices  have  increased  the risks  that  the 
construction  of Europe  will  be thrown  out of gear  at 
a time  when  world  events  in fact  call  for  greater 
cohesion. 
2.11.  European  Union  must  therefore  equip  itself 
with  effective  institutions  capable  of taking  swift 
action  and  serving  clearly  defined  concrete  objectives. 
2.5 The  common  agricultural  policy  has been,  and 
still is, the most  highly  developed  and  most  integrated 
form  of Community  action.  However,  owing  to the 
lack of convergence,  inter  alia  in economic  and 
monetary  policy,  the CAP  has now  reached  its limits. 
This  situation  is fueling  the resurgence  of tendencies 
towards  national  protectionism. (!) OJ No C 37, 1. 4. 1974. 
(2) OJ No C 8, 31. 1. 1974. 
(3) OJ No C 37, 1. 4. 1974  and OJ No C 115,  28. 9. 1974. 
(4) OJ No C 126,  17. 11. 1974. 
26. 11.75 Official  Journal  of the European  Communities No C 270/5 
3. The  Institutions  of European  Union 
3.1. In  its  Opinion  of 28  March  1974,  the 
Economic  and  Social  Committee  has  already 
commented  on the criticisms  that  could  be made  of 
the way  in which  the  Community  institutions  at 
present  function. 
3.2. To  give  practical  expression  to the goals  it has 
set itself  and  those  it decides  to adopt  for the future, 
and to implement  the  policies  essential  for  its 
achievement,  European  Union  must  be  assigned 
certain  responsibilities  and  possess  the  relevant 
powers. 
3.3. Such  powers  and  responsibilities  presuppose 
institutions  which  have  legitimacy  — which  are  in 
other  words  democratic  — and  effectiveness.  Without 
wishing  to embark  upon  a full  description  of what 
these  institutions  must  be like,  the  Economic  and 
Social  Committee  would  like  to set out  the  basic 
conditions  it feels  they  must  fulfil. 
3.4. First  of all the  Committee  would  emphasize 
that the  way  the  institutions  already  established 
under  the Treaty  of Rome  are used  still  leaves  very 
much  to be  desired.  The  Council  of Ministers 
overburdened  with  minor  matters,  and  reluctant  to 
use the majority  voting  rule,  even  in cases  where  the 
States'  vital  interests  are not  involved,  still  only  very 
imperfectly  succeeds  in  performing  the  tasks 
incumbent  upon  it. Experience  may  lead  us to believe 
that this  has  come  basically  from  a warping  of the 
Treaty:  the Community  Council  as provided  for  by 
the Treaty,  has,  in fact,  been  replaced  by sectoral 
meetings  of Member  States'  Ministers. 
3.5. This  therefore  weakens  the initiatory  power  of 
the Commission  and  considerably  reduces  the 
effectiveness  of its administrative  apparatus. 
3.6. Even  when  decisions  are  arrived  at by the 
Community,  the  Member  States  themselves  often 
show  resistance  and  tardiness  in implementing  them. 
3.7. It  is not  only  possible,  but  also  essential  to 
remedy  this  state  of affairs.  The  goal  of a future 
European  Union  must  not  be used  as an alibi  to 
avoid  the  need  to act  in this  field.  For  it is the 
standing  of the  European  institutions  in the eyes  of 
the economic  and  social  operators  and,  through 
them,  the public  at large  which  is at stake.  To allow 
this standing  to decline  would  jeopardize  the  very 
future  process  of European  constructions. 
3.8. But  though  it retains  its full  value,  and  must 
be helped  to  realize  its  full  effectiveness,  the 
institutional  system  set up by the Treaty  of Rome  has 
also in some  respects  encountered  its limitations.  It is 
now evident  that  the new  phase  in the building  of the Community  requires  further  progress  to be made  in 
the political,  and  hence  the institutional,  sphere.  It is 
this need  for fundamental  progress,  now  clearly  felt 
by all  observers  of  the  development  of  the 
Community,  which  underlies  the  idea  of European 
Union. 
3.9. Achievement  of European  Union  will  of 
necessity  be gradual,  spread  out  over  a period  of 
time,  but it must  be driven  by its own  momentum.  It 
will be a major  step  between  the  present  state  of 
affairs  and the establishment  of a fully-fledged  federal 
state. 
3.9.1.  The  Community  will  have  to be assigned 
responsibilities,  particularly  in fields  where  isolated 
action  by Member  States  no longer  matches  the 
requirements  of the  situation;  the  Community's 
powers  and  those  of the  Member  States  will, 
however,  continue  to exist  side  by side  with  one 
another  during  this  transitional  period. 
3.10.  European  Union  will  have  to respect  national 
peculiarities  and  distinctiveness.  Instead  of a unitary 
society,  it must  aim  at achieving  a pluralist  society, 
and not  systematically  seek  maximum  standardiza-
tion. 
3.11.  Finally,  it must  give  the economic  and  social 
groupings  a real  say  in the preparation  and  making 
of decisions  affecting  them,  as was  indeed  requested 
by the Heads  of State  or Government  meeting  in Paris 
in October  1972. 
3.12.  The  allocation  of  responsibilities  and 
functions  between  the  various  institutions  of the 
Union  must,  in the view  of the Economic  and  Social 
Committee,  be made  as clear  as possible. 
3.13.  The  meetings  between  the Heads  of State  or 
of Government,  which  have  become  a regular 
practice  and  are  now  known  as the  'European 
Council',  must  have  as their  main  purpose  to provide 
impetus  and  to reaffirm  the partners'  political  will, 
more  particularly  so  in  the  initial  stage  of 
achievement  of European  Union. 
3.14.  The  Community  institutions  must  be 
distinguished  according  to the functions  of each  one 
of them. 
3.15.  The  legislative  function  will  have  to be 
progressively  assigned,  in all the  matters  coming 
within  Community  jurisdiction,  to  a European 
Parliament  elected  by universal  suffrage.  This  eoal 
could  be achieved  quite  quickly,  since  an elected 
Assembly  is provided  for in the Treaty  of Rome  and 
a draft  electoral  procedure  has  already  been 
submitted  to the  Council  of Ministers  by  the 
European  Parliament  itself.  The  Parliament  would 
have  to adopt  the budget,  pass  Community  laws,  and 
No C 270/6 Official  Journal  of the European  Communities 26.11.75 
would  be  assigned  functions  of supervising  the 
application  of  such  laws.  It should  also  be 
empowered  to take  action  on its own  initiative  in 
certain  areas. 
3.16.  The  executive  function  should  be regarded 
from  two  angles.  During  the transition  period  before 
achievement  of a fully  fledged  European  Union,  the 
main  decision-making  powers  should  be vested  in the 
Council,  while  the implementing  powers  should  fall 
within  the purview  of the Commission. 
3.17.  A  Council  of Ministers  should  comprise  one 
or two  permanent  Ministers  from  Member  States. 
These  Ministers  should  be  members  of  their 
respective  governments,  which  would  delegate 
powers  to them.  To give  their  deliberations  in the 
Council  the  requisite  effectiveness,  they  could  be 
accompanied  by specialist  Ministers  depending  on the 
agenda. 
3.17.1.  The  Council  should  take  part  in the 
debates  of the  Parliament  on  draft  Community 
legislation  and  with  the  help  of the  Commission 
should  ensure  that  such  legislation  is implemented  in 
the Member  States. 
3.18.  The  Commission,  as  the concrete  expression 
of the  Community,  must  posses  wide  initiatory  and 
executive  powers.  For  that  reason,  the Economic  and 
Social  Committee  considers  that  the  Commission 
should  lay  before  the  European  Parliament  a 
programme  setting  out  the objectives  it proposed  to 
attain  during  its term  of office  and  the  means  it 
intended  to use  to attain  them.  In the final  stage  of 
European  Union,  the  members  of the  Commission 
should  be appointed  by the European  Parliament  on 
the above  basis. 
3.18.1.  In  consultation  with  the  Council  of 
Ministers,  the Commission  would  be responsible  for 
drawing  up  draft  Community  legislation  for 
submission  to the Parliament,  and  for defending  such 
draft  legislation  before  Parliament. 
3.19.'  The  Economic  and  Social  Council,  the 
institution  bringing  together  representatives  of the 
various  economic  and  social  interests,  would  have  to 
be able  to perform  more  fully  its consultative  and 
advisory  function  so that  the  political  institutions 
could  take  account  of the views  and  experience  of the 
economic  and  social  groupings  in the decisions  they 
had to take.  The  members  of the  Economic  and 
Social  Council  would  still  be nominated  by  the 
national  governments  and  their  appointments 
confirmed  by the Council  of Ministers. 
3.19.1.  The  Economic  and  Social  Council  should 
be obligatorily  consulted  on proposed  decisions  on 
economic  and  social  questions,  in such  a way  that  its 
Opinions  can be heard  in time  by the Commision,  the Council  and  the Parliament.  This  would  give  all the 
representatives  of economic  and  social  interests  a 
greater  say in Community  decisions. 
3.19.2.  The  Economic  and  Social  Council  should 
be empowered  to decide  its own  Rules  of Procedure. 
Also,  it could  act as a forum  for the representatives 
of all  the  economic  and  social  groupings  in the 
Community  to increase  the  contact  both  among 
themselves  and  with  their  counterparts  in the 
associated  countries. 
3.20.  The  Court  of Justice,  which  would  continue 
to be  responsible  for  ensuring  observance  of 
Community  law  in the interpretation  and  application 
of the  Treaties,  Community  legislation  and  the 
implementing  provisions  thereof. 
3.21.  The  Court  of Auditors,  which  would  fulfil 
the same  function  as similar  institutions  in the 
Member  States  and  would  report  to the  European 
Assembly. 
3.22.  Even  though,  in  the  long  run,  the 
institutional  system  described  above  might  require 
modifications  of the  Treaties,  the  Economic  and 
Social  Committee  would  emphasize  that  the Treaties 
already  contain  considerable  scope  for achieving  such 
a system. 
4. Priority  policies  to be pursued  in the European 
Union 
4.1. However  important  and  decisive  the political 
will of the  Heads  of State  and  of Government  and 
the effectiveness  of the  Community  institutions  may 
be, European  Union  must  be our economic  and  social 
bodv  and  must  dovetail  with  the  drawing  up and 
implementation  of policies  which  will  enable  it to 
contend  with  such  issues. 
4.2. Clearly,  it is by its impact  on people's  daily 
lives  that  European  Union  will  obtain  popular 
approval  and  support.  In this  connection  and  in view 
of the  importance  of consumer  issues  for  public 
opinion,  the  Preliminary  Consumer  Protection 
Programme,  adopted  by the  Council  on 14 April 
1975,  should  be made  to yield  practical  results  as 
quickly  as possible. 
4.3. Independently  of the work  in progress  and  the 
studies  embarked  upon,  European  Union  will  have,  in 
the short  term,  to master  the  basic  problems  in the 
current  crisis  (the  fight  against  inflation  and 
unemployment),  and,  in the medium  term,  to bring 
about  the adaptation  of the national  economies  to the 
new situation  and  seek  a  return  to 
balance-of-payments  equilibrium. 
4.4. . To  attain  these  objectives,  European  Union 
must  have  a short-  and  medium-term  economic  and 
26.11.75 Official  Journal  of the  European  Communities No C 270/7 
social  programme.  The  objectives  should  be decided 
after  intensive  consultation  with  all the economic  and 
social  interest  groups  in the  Community.  Regular 
talks  should  be held  between  the  Economic  and 
Social  Council,  the Commission  and  the  Council  of 
Ministers  on the  economic  policy  to be pursued  in 
the Community. 
4.5. The  Economic  and  Social  Committee  proposes 
that a coherent  core  of the  economic  and  social 
policy  to  be  pursued  in  the  Community  be 
implemented;  in its view,  the elements  of economic 
and social  policy  are so closely  interwoven  that  any 
failure  to coordinate  the  two  is bound  to lead  to 
renewed  serious  imbalances  and  fresh  dislocation  of 
the Community. 
4.6. Without  under-estimating  the  importance  of 
the policies  to be pursued  or introduced  in other 
sectors,  this  minimum  programme  must  centre  on the 
following  measures,  with  responsibility  for  it 
progressively  being  given  to the  Community,  in 
i accordance  with  the  procedures  of the  European 
Union: 
4.7. Speeding  up the  achievement  of Economic  arid 
Monetary  Union  one  of the  essential  steps  for 
completion  of the common  market,  involving: 
4.7.1.  On  the  one  hand,  necessary  convergence 
between  national  economic  policies  and  adequate 
means  of forcing  Member  States  to adhere  to jointly 
agreed  policies. 
4.7.2.  On  the  other,  with  a common  currency  as 
the ultimate  aim,  the return  to stable  parities  between 
European  currencies  ('the  snake'),  which  is essential  if 
the Member  States  wish  to be less  vulnerable  to 
international  monetary  fluctuations. 
4.7.3.  The  establishment  of appropriate  financial 
machinery  which  presupposes  bodies  with 
autonomous  powers  and  Community  authority 
(Community  loans,  pooling  of reserves,  strengthened 
Monetary  Cooperation  Fund,  European  Export  Bank, 
etc.). 
4.7.4.  Close  coordination  of  economic  and 
monetary  policies. 
4.7.5.  Coordination  of  economic  policy  at 
European  level  is all the  more  necessary  because 
economic  policy  has  to fulfil  two  requirements: 
firstly,  it must  modify  its development  strategy  in the 
light  of people's  demands  for  greater  quality,  and 
secondly  it must  make  its contribution  to the optimal 
use of the world  resources,  with  a view  to a smooth 
development  of the economies. 4.7.6.  Such  an aim  connot  be achieved  unless 
growth  is sufficiently  orderly.  This  implies  a certain 
selectivity  in  public  investment  and  selective 
encouragement  of private  investment  (cf.  Opinion  of 
the Economic  and  Social  Committee  of 29 May  1975 
on the Restructuring  of the Economies). 
4.8. The  implementation  of  a  Community 
employment  policy  which  must  be financed  by a 
Community  budget 
4.8.1.  The  first  task  is to vigorously  tackle 
employment  problems  (*) in order  to ensure  that  the 
right  to work  can  be exercised. 
4.8.2.  As  part  of a move  to give  the representatives 
of the various  economic  and  social  interest  groups  a 
greater  say in Community  decisions  on economic  and 
social  policy,  European  Union  should  set itself  the 
following  objectives: 
4.8.3.  The  elimination  of all the various  difficulties 
which  currently  hamper  the  equating  of degrees, 
diplomas  and  other  certificates. 
4.8.4.  The  development  of  a European  policy  on 
immigration  from  third  countries,  particularly  the 
associated  States  in Europe  and  Africa. 
4.8.5.  The  setting  up of a European  Employment 
Office,  which  would  extend  beyond  the  frequently 
illusory  coordination  of national  employment  services 
and which  would  be  responsible  for  providing 
information  on the  labour  market  for matching  job 
supply  and  demand  and  for  issuing  forecasts  and 
guidelines. 
4.8.6.  European  Union  should  aim  at harmonizing 
working  conditions,  an  essential  corollary  of 
employment  and  training  policy.  Only  a European 
will can  generate  a major  effort  in this  area,  as the 
cost involved  could  jeopardize  the free  operation  of 
competition. 
4.8.7.  This  set of measures  cannot  be implemented 
on the sole  initiative  of the European  legislature  but 
is primarily  a matter  for  the  economic  and  social 
interest  groups.  Hence  the need  for these  groups  to 
be able  to confer  freely  and  autonomously,  inter  alia 
at sectoral  level  (2) and  within  a framework  of 
European  solidarity. 
4.8.8.  In  view  of the likely  increase  in leisure  time, 
which  in turn  implies  creation  of the necessary  public 
facilities,  socio-collective  infrastructures  should 
undergo  a long  period  of accelerated  expansion. 
(^ OJ No C 109,  19. 9. 1974. 
(2) OJ No C 115,  28. 9. 1974. 
No C 270/8 Official  Journal  of the European  Communities 26. 11.75 
4.8.9.  Finally,  it is necessary  to remove  all 
technical  and  legal  barriers  which  prevent  the right  of 
establishment  from  being  fully  exercized  in 
accordance  with  the  principles  laid  down  in the 
Treaty  of Rome. 
4.9. Introduction  of a European  regional  policy  (x) 
to curb  the  excessive  expansion  of large  urban 
agglomerations,  reduce  social  and  cultural 
inequalities,  create  jobs  locally,  provide  an income 
for local  labour,  re-distribute  economic  activity  more 
smoothly  throughout  the  Community,  further  the 
development  of regional  natural  resources  and 
safeguard  the natural  environment  and beauty  spots. 
4.9.1.  In  furtherance  of these  objectives,  the 
regions  should  be helped  to improve  their  industrial 
base and  their  infrastructures.  It is essential  to 
coordinate  financial  assistance  from  the  various 
European  Funds  (EIB,  EAGGF,  ESF,  RDF)  in order 
to ensure  that  credits  are not scattered  over  too large 
a number  of projects  and so have  no real  effect. 
4.9.2.  The  selection  of the regions  and  areas  to be 
supported  and  the  types  of measures  to be taken 
should  be placed  before  the Community  authorities. 
European  regional  entities  could  be defined  in the 
light of economic  and  social  criteria  and  irrespective 
of borders. 
4.9.3.  Since  the  region  constitutes  an important 
link in relations  between  the Community  bodies  and 
the public  at large,  local  authorities,  citizens,  trade 
associations  and  workers'  and  employers' 
organizations,  which  give  life  to the  structures, 
should  be  involved  in  the  formulation  and 
implementation  of the development  programmes. 
4.10.  Definition  of a European  energy  policy 
4.10.1.  Would  it not be possible  to do something 
on the lines  of the Coal  and  Steel  Community  — the 
first of the European  Communities.  If Europe  is not 
to be excessively  dependent  on its present  suppliers  it 
must  take  steps  to attain  the highest  possible  degree 
of self-sufficiency  in energy. 
4.10.2.  It  must  therefore  step  up its investments  in 
those  sectors  which  will  enable  it to rapidly  cut back 
its dependence  on imported  oil as far as possible.  In 
particular,  prime  importance  must  be attached  to 
energy  conservation,  which  offers  opportunities  for 
making  considerable  savings  at relatively  low  costs. 
The Community's  own  resources  must  also  be 
developed,  be  they  traditional  energy  sources (hydrocarbons),  new  non-depletable  sources  (solar, 
geothermal  energy)  or  new  forms  of energy 
(hydrogen). 
4.10.3.  Subject  to the  express  proviso  that  the 
environment  is protected  and  that  human  safety  is 
ensured  by strict  rules,  the use  of nuclear  energy 
should  undergo  considerable  expansion. 
4.10.4.  Joint  investments  at European  level  can go 
a long  way  towards  helping  Member  States  of the 
Community  to bear  the costs  which  they  must  pay to 
ensure  their  maximum  independence  in the  energy 
field.  European  Union  should  encourage  the 
formation  of public  cooperations  and  semi-public 
companies  based  on European  law  in the field  of 
energy  research  and exploitation. 
4.10.5.  For  many  years  to come,  however,  these 
measures  will  not make  the Community  self-sufficient 
in energy. 
4.10.6.  A  united  Europe  must  engage  in 
constructive  negotiations,  as a genuine  negotiating 
partner,  with  the  oil-producing  countries.  If 
necessary,  these  negotiations  must  take  place 
concurrently  with  negotiations  on raw  materials 
generally.  This  must  be one  of the aims  of European 
Union. 
4.11.  Apart  from  the  minimum  programme 
mapped  out above,  the Committee  would  also  stress 
the common  agricultural  policy  and industrial  policy. 
4.12.  Pursuit  of the common  agricultural  policy 
4.12.1.  The  balance  sheet  drawn  up  by  the 
Economic  and  Social  Committee  in its Study  of 28 
November  1974  shows  that,  although  the agricultural 
policy  has  progressed  much  further  than  any  other 
common  policy,  it is losing  momentum  because  it is 
not backed  up  by  appropriate  policies  in the 
monetary,  regional,  social,  commercial  and  tax 
spheres. 
4.12.2.  The  construction  of a European  Union 
must  make  it possible  to correct  this  imbalance;  it 
must  also  provide  an opportunity  for defining  the 
situation  of agriculture  in modern  society,  for 
improving  the  involvement  of  the  farming 
community  in economic  and  social  progress  and  for 
giving  the  common  agricultural  policy  its  ^ull 
Community  and  international  dimension,  while 
preserving  its fundamental  principles,  i.e.,  market 
unity,  Community  preference  and financial  solidarity. 
H OJ No C 8, 31. 1. 1974. 4.13.  An  industrial  policy  which  furthers  the 
restructuring  of industrial  activity  including  that  of 
26.11.  75 Official  Journal  of the European  Communities No C 270/9 
small  and  medium-sized  firms,  with  due  regard  to 
forecasts  concerning  technological  development,  the 
trend  in world  trade  and the need  to create  jobs. 
4.13.1.  European  Union  must  utilize  the 
instruments  at its disposal  (see  previous  chapter  on 
Economic  and  Monetary  Union)  to  stimulate 
investment  in the key sectors. 
4.13.2.  Defining  a European  Company  statute  and 
establishing  genuine  European  company  law is one of 
the ways  of realizing  a Community  industrial  policy. 
5. European  Union  in the world 
5.1. Relations  with  the rest of the world  are bound 
to benefit  if European  Union  shows,  by virtue  of its 
internal  cohesion,  that  it can further  the development 
of a society  which  gives  more  scope  to man's 
aspirations,  that  is to say  a more  equitable  society 
providing  a better  quality  of life.  This  new  dimension 
in its relations  will  then  allow  the Community  to 
develop  the  very  outward-looking  policy  which  it 
has already  set in motion  in recent  years. 
5.2. The  Lome  Convention  and  the search  for a 
Mediterranean  policy  are  significant  gestures  here 
and could  set the pattern  for new  relations  between 
countries  which  are at different  stages  of economic 
development.  In addition,  the representatives  of the 
Community  are  establishing  contacts  with  an 
increasing  number  of non-member  countries,  with  a 
view  to setting-up  new  cooperation  links. 
5.3. It  is very  important  that  the  Community 
should  be able  to continue  its activities  here,  thus 
furthering  the search  for better  eauilibrium  in the 
world.  But  this  will  not  be possible  unless  two 
conditions  are satisfied: 
5.3.1.  — firstly,  the  Community  must  have  an 
internal  cohesion  commensurate  with  its 
legitimate  external  objectives.  At  the 
present  juncture,  it is fair to ask whether  an 
imbalance  is not emerging  due  to the fact 
that the  Commission  is substantially 
increasing  its international  contacts  while 
the verv  structures  of the Community  are 
weakening, 
5.3.2.  — without  effective,  legitimate  institutions, 
the Community  will  lack  genuine 
credibility  in the eyes  of the outside  world and be unable  to generate  the  internal 
solidarity  needed  to cope  with  the radical 
effects  on its economic  and social  life of the 
emergent  changes  in  international 
economic  relations, 
5.3.3.  — the Community  must  also  be properly 
equipped  to pursue  a vigorous  external 
policy, 
5.3.4.  — the first  requirement  here  is regular 
concertation  between  the  Member  States 
on their  foreign  policies,  so that  the 
Community  can speak  with  one voice, 
5.3.5.  — secondly,  the  Community  itself  must 
possess  instruments  if it is to be able  to act." 
At the  moment,  only  the  common  trade 
policy  falls  within  the  purview  of the 
Community,  and so far this policy  has been 
applied  somewhat  narrowly, 
5.3.6.  — the Community  must  henceforth  be in a 
position  to take  action  in the  field  of 
industrial  cooperation,  which  will  be the 
true essence  of future  relations  with 
numerous  countries,  inter  alia  the energy 
producers  and  the  suppliers  of  raw 
materials. 
5.3.7.  Experience  has shown  that  when  it speaks  as 
an entity  the  Community  can  exercise  a crucial 
influence  in this field,  which  is of vital  importance  for 
the future. 
5.4. The  relationship  between  the European  Union 
and the other  leading  industrial  powers  — such  as 
the United  States,  Japan  and  Canada  — must  be one 
of partnership  between  equal  and  loyal  partners  in 
which  confrontation  does  not  detract  in any  way 
from  friendship. 
5.5. If  European  Union  succeeds  in ensuring  true 
cohesion  between  its members,  it can also  serve  as a 
balancing  force  through  its trade  with  East  European 
countries.  In addition  it must  graduallv  establish 
relations  with  other  regions  of the world  such  as Asia 
and Latin  America,  which  merelv  ask  that  Europe 
should  be a loval  partner  and  should  not  harbour 
any thoughts  of hegemony. 
5.6. Generally  speaking,  from  now  onwards 
consultations  should  be held  prior  to all maior 
international  encounters,  so that  the united  voice  of 
Europe  can make  itself  heard. 
5.7. Membership  of the European  Union  is open  to 
all other  democratic  and  nluralist  European  States, 
who anolv  for membershio.  and  who  support  the 
principles  and objectives  of the Union. 
No C 270/10 Official  Journal  of the  European  Communities 26. 11.75 
5.8. If,  in this  way,  the  Community  acquires  its expression,  it may  then  make  a continuing  and 
own  style,  its  own  identity,  to use  the  hallowed  concrete  contribution  to world  peace. 
Done  at Brussels,  16 July  1975. 
The Chairman 
of the Economic  and  Social  Committee 
Henri  CANONGE 
ANNEX 
to the Opinion  of the Economic  and  Social  Committee 
The following  amendments  were  rejected  during  the discussion: 
Item  3.16 
Amend  point  3.16  to read: 
'The  legislative  functions  would  be exercised,  at least  in an initial  phase,  jointly  by the 
Commission  and  the  Council  of Ministers.' 
Reason 
The amendment  clarifies  the allocation  of responsibilities  between  the  institutions  and  at the 
same  time  brings  out more  clearly  the objective  of democratizing  the structure. 
Voting: 
For: 29, against:  42, abstentions:  4. 
Item  3.17.2 
Substitute  the following  for paragraph  3.17.2: 
'Until  the  Parliament  begins  to function  fully  as a legislature,  those  Council  decisions, 
which  are of a legislative  nature,  should  be taken  in public.' 
Reason 
Clarification  of some  points  and  the removal  of some  contradictions  in the text. 
Voting: 
For: 25, against:  38, abstentions:  22. 
Item  3.18 
Substitute  the following  for paragraph  3.18: 
'The  Commission,  as the  concrete  expression  of the  Community  must  possess  wide 
initiatory  and  executive  powers.  The  Commission,  whose  members  are  appointed  by the 
Council  after  consultation  with  the  President-elect,  must  ask  the  Parliament  to confirm 
the appointment  of its members  and  must,  when  its term  of office  begins,  lay before  the 
Parliament  a programme  setting  out  the  objectives  which  it proposes  to attain  and  the 
means  it intends  to employ  to achieve  them.' 
26. 11. 75 Official  Journal  of the  European  Communities No C 270/11 
Reason 
Clarification  of some  points  and  removal  of some  contradictions  in the text: 
Voting: 
For: 22, against:  44, abstentions:  6. 
Item  3.18 
Amend  paragraph  3.18  to read: 
'The  Commission,  as the concrete  expression  of the Community,  must  be allowed  extensive 
initiative  and  must  possess  executive  powers.  On a proposal  from  the Council,  the Com-
mission  will  therefore,  over  a transitional  period,  be elected  by the  European  Parliament 
on submission  of the programme  which  it intends  to implement  during  its term  of office. 
The aim  must  be for the Commission  to be appointed  directly  by Parliament.' 
Reason 
European  Union  will  only  be achieved  if its democratic  institutions  are systematically  extended. 
Strengthening  the  European  Parliament  is particularly  important  in this  respect.  This  is why 
one of its most  important  democratic  rights  — in addition  to control  over  its own  budget  — 
is the right  to appoint  the Commission. 
Voting: 
For: 34, against:  42, abstentions:  6. 1 
Item  3.19 
Amend  paragraph  3.19  as follows: 
'3.19.  A  European  Economic  and  Social  Council,  whose  status  of a consultative  body 
would  be changed  into  that  of an assembly  in which  the  economic  and  social  groupings 
organized  at European  level  were  represented,  and  which  would  thereby  enjoy  the status 
of a European  institution. 
3.19.1.  In  the final  phase,  nominations  for membership  of the  European  Economic  and 
Social  Council  would  be made  by the representative  European  organizations  and  submitted 
to the  European  Council  of Ministers  for  approval.  There  would  have  to be an equal 
number  of seats  for employers'  and  workers'  representatives,  and  due  account  would  have 
to be taken  of the need  for a fair  geographical  distribution. 
3.19.2.  The  Economic  and  Social  Council  would  have  to be able  to perform  more  fully 
its consultative  and  advisory  function  (the  delivery  of Opinions  requested  and  own 
initiative  Opinions)  so that  the  political  institutions,  when  making  decisions,  could  take 
account  of the views  and  experience  of the economic  and  social  groupings.' 
Voting: 
For: 29, against:  51, abstentions:  2. 
Items  3.19.1  and  3.19.2 
Renumber  the present  3.19.1  and  3.19.2  as 3.19.3  and  3.19.4  respectively. 
Insert  a new  paragraph  after  paragraph  3.19.2: 
'Good  relations  must  be maintained  with  national  and  regional  Economic  and  Social 
Oouncils,  and  the  requisite  sectoral  Committees  must  be  incorporated  within  the 
organization  of the Economic  and  Social  Council.' 
Reason 
The main  purpose  of these  amendments  is to show  that  the  proposed  Community  Economic 
and Social  Council  must  permit  the widest  possible  representation  of European  economic  and 
social  groupings.  Equal  numbers  of employers'  and  workers'  representatives  does  not,  in this 
concept,  imply  bi-partite  composition  of the proposed  Economic  and  Social  Council. 
No C 270/12 Official  Journal  of the  European  Communities 26.11.  75 
Voting: 
For: 27, against:  43, abstentions:  11. 
Item  4.12.2 
Insert  the following  after  paragraph  4.12.2: 
'4.12.3.  Agriculture  can  only  thrive  if agricultural  producers  have  adequate  incomes. 
The large-farm  policy  has  proved  essential  for the profitability  of certain  crops  produced 
on a large  scale,  but it must  leave  room  for farms  which  may  be smaller  but are doubtless 
more  specialized. 
4.12.4.  Steps  should  therefore  be taken  to promote  the  development  of cooperatives 
and the restructuring  of certain  excessively  fragmented  holdings.' 
Voting: 
For: 34, against:  43, abstentions:  8. 
Item  4.13.2 
After  4.13.2  add  a new  paragraph  4.14  as follows: 
'Social  policy  embraces  all  aspects  of the  life  of the  people  of Europe.  Applied 
continuously  and  progressively,  it is the ultimate  end  of economic  policy  in all its forms, 
and must  be pursued  using  all organized  economic  and  social  forces  and  with  the support 
of all the Community  institutions.' 
Reason 
The absence  of any  explicit  reference  to social  policy  in this  chapter  of the Opinion  would  be 
a grave  omission  which  might  prejudice  one  of the  most  important  and  constant  concerns 
of the Economic  and  Social  Committee. 
Voting: 
For: 26, against:  26, abstentions:  24. 
Opinion  on the  Simplification  Programme 
The text  referred  to the  Committee  has  not  been  published  in the  Official  Journal  of 
the European  Communities. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 21  March  1975,  the  Council  referred  the  abovementioned  programme  to the 
Economic  and  Social  Committee  under  Article  198  of the  Treaty  establishing  the 
European  Economic  Community. 
B. OPINION  OF  THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  drew  up its Opinion  at its 132nd  plenary  session, 
held  in Brussels  on 16 and  17 July  1975. 
The Opinion  is published  below: