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COM (84) 255 
 
 
 
Vol. 1984/0 120 
  
 
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concernant l'ouverture au public des archives historiques de la Communauté économique 
européenne et de la Communauté européenne de l'énergie atomique (JO L 43 du 15.2.1983, 
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In accordance with Council Regulation (EEC, Euratom) No 354/83 of 1 February 1983 
concerning the openi ng to the public of the historical archives of the European Econom ic 
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file have been declassified in conformity with Article 5 of the aforementioned regulation.  
In Übereinstimmung mit der Verordnung (EWG, Euratom) Nr. 354/83 des Rates vom  1. 
Februar 198 3 über die Freigabe der historischen Archive der Europäischen  
Wirtschaftsgemeinschaft und der Europäischen Atomgem einschaft (ABI. L 43 vom  15.2.1983,  
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der genannten Verordnung freigegeben.  
COMMISSION OF THE EUROPEAN COMMUNITIES
COM(84) 255 final 
Brussels, 18 May 1984
2nd REPORT BY THE COMMISSION TO THE COUNCIL 
ON THE PROGRESS OF THE 2nd JOINT PROGRAMME FOR 
EXCHANGE OF YOUNG WORKERS
COM(84) 255 final

2ND REPORT BY THE COMMISSION TO THE COUNCIL  
ON THE PROGRESS OF THE 2ND JOINT PROGRAMME FOR  
EXCHANGE OF YOUNG WORKERS
CONTENTS
PART I INTRODUCTION Paragraph
PART II THE PRACTICAL ASPECTS
Outline of the Programme Paragraphs
No. of Participants "
The Promoting Organisations "
The National Coordinators "
Short-term and long-term Exchanges"  
Language Training "
Geographical Distribution "
Sectoral Distribution "
Information on the Community "
Community contributions "
(Appendices)
PART III ANALYSIS of FINANCIAL and ADMIN. STRUCTURE
Introductory Note ” ”
Administrative Structure of  
Programme "
Funding of the Programme "
The European Social Fund "
The Changing Economic Climate "
Other Exchange Initiatives "1
2 - 4
5
6
7
8 
9
10
11
12
13
14
15 - 20 
21 * 25 
26
27 - 31 
32 - 36

PART IV SOCIAL SECURITY PROTECTION
The Council Decision (Arts. 5 and 7) Paragraph
Studies on the Application
of Social Security Regulations "
The Administrative Commission on
Social Security for Migrant Workers "
Workers within the meaning of
Regulation 1408/71 "
Workers not within the meaning of  
Regulation. 1408/71 "
Summary and Conclusions "37
38 - 41
42
43 - 45 
46
47 - 49
PART V THE CHALLENGES AHEADII50 - 54

PART I

-  1 -
PART I
INTRODUCTION
1. This document is the 2nd and final Progress Report on the  
2nd Joint Programme for Exchange of Young Workers being submitted  
by the Commission to the Council in accordance with Article 11  
of the Decision establishing the Programme (1).
The 1st Progress Report (2) outlined the development of the  
Programme from its inception in July 1979 to the end of 1981  
white this present Report brings the position up to date and pro­
vides a factual and statistical analysis of the Programme with  
particular reference to a number of practical issues currently  
affecting it .
Indeed, the more far-reaching of these issues had already  
begun to take effect in the early stages of the Programme with  
the result that they formed an important integral part of the  
1st Report. This present Report returns to these issues  
and reexamines them in the light of the totality of experience  
to-date while at the same time posing a number of possible options  
as to how the Commission could give effect to changes necessary  
for the future development of the Programme.
The Report concludes with a brief look at the challenges 
which lie ahead in the field of exchanges.
(1) (79/642/EEC - O.J. N° L 185 of 21.7.79)
(2) C0MC82) 376 FINAL (adopted by the Council on 10th December 1982)

PART II

- - 
PART II
THE PRACTICAL ASPECTS  
Outline of the Programme
2. The decentralised administration of the Programme, referred to  
at length in the 1st Report, was maintained with the Commission,
at the centre, entrusting the practical organisation of exchanges  
to independent bodies (Promoting Organisations) while, at the same  
time, consulting the appropriate Government Representatives (National  
Coordinators) on all matters of importance concerning the application  
of the Council Decision.
The relationship between the Commission and the Promoting  
Organisations continued to be governed by the "convention” system (1)  
which, in effect, was a charter outlining the nature, quality and  
implementation of exchanges deemed acceptable by the Commission.
For its part, the Commission's role continued as one in which  
it set the level of funding, approved exchange proposals submitted  
to it and devised the operating guidelines in accordance with the  
provisions of the Council Decision.
3. In concise terms, therefore, this represented the basic adminis­
trative structure under which the Programme operated throughout the  
past 5 years. The practical results achieved under that structure are  
outlined below, following brief reference to Article 2 of the Decision,  
under which the eligibility criteria for participation are laid down,  
and to the level of funding allocated to the Programme.
4. To summarise the provisions of Article 2, therefore, the Programme  
is targetted on young people who are nationals of a Member State,
aged between 18 and 28 years, who have received either basic vocational  
training and/or practical work experience and have entered working life  
before the age of 20. As such, it is intended to offer exchange
./.
(1) Ref. Art. 3 par. 2 of the Council Decision of 16/7/79

-  3 -
opportunities to as broad a category of young persons as possible  
while, at the same time, respecting the necessity for an appropriate  
level of practical work experience.
Given this objective, the results outlined hereunder could be  
considered as relatively modest. However, when viewed in the  
context of the budget allocations which have been made available  
to the Programme over the past 5 years (see Part II, appendix 1),  
it is the Commission's view that they represent,not only a  
considerable achievement, but the framework in which to develop  
a more ambitious programme for the remainder of the 1980's.

- 4 -
Number of Participants
5. Commencing in mid 1979, the Programme maintained a consistently  
steady growth in the numbers participating and, from a modest  
beginning of 256 in that year, rose to 1205 in 1983 (see Part II,  
appendix 2). This figure is expected to rise to approximately  
1300 in 1984 which will, in effect, set the "starting point" for  
the next phase in the Programme's evolution.
Viewed in the overall context of the past 5 years, the Programme  
was responsible for the implementation of just under 4000 exchanges  
(see Part II, appendix 4). This represents an important breakthrough  
since the termination of the 1st Programme (1) and confirms the  
potential for further development offered by the structures  
established under Article 3 of the Decision.
The Commission's task will now. be to develop those structures still  
further in an effort to increase more rapidly the level of  
participation in the Programme over the forthcoming years.
The Promoting Organisations
6.  Being entrusted with the responsibility of organising and  
implementing the exchanges, the Promoting Organisations represented  
the most important element in the structural framework established  
by the Commission under the provisions of Article 3.
Confronted at an early stage with the effects of the economic  
recession, their task was not an easy one. Nevertheless, despite  
the difficult climate in which they had to operate, they were  
directly instrumental in achieving the level of exchanges referred  
to under Paragraph 5 above. Indeed, were it not for the limited  
budgetary allocations made available to the Programme (see Part II,  
appendix 1), it was clear that this level could have been  
significantly improved upon without any diminution in the quality  
of the exchanges.
Having established effective exchange organisations in 8 of the 
Member States, the Commission was concerned to ensure that the network  
was extended to include the countries with which an established base  
did not as yet exist.
(1) 1st Programme ran from 1964 to 1979- during which some 1500  
exchanges were realised, mainly in the Agricultural Sector.

................ ~5 - __ __________ __________________: ---
Ac
cordingly, a convention was concluded in June 1983 with  
the Danish Youth Council (DUF) while preliminary discussions  
were successfully completed with a potential Promoter for the  
establishment of an effective exchange base in Greece.
Earlier, towards the end of 1982, the exchange activities of  
a peripheral-based Promoter, the Conférence Régions Périphériques  
Maritime in Scotland, were successfully transferred to AnCO, the  
Industrial Training Authority in Ireland, in view of the former's  
inability, for internal structural reasons, to renew its convention  
with the Commission.
By the end of 1983, therefore, the Commission had concluded  
conventions with some 13 Promoters, with a further 2, the C.E.A.S.M. 
and the C.H.C.E.E., "sub-conventioned" under existing Promoters.
This position is referred to in more detail under Part III in the  
context of an analysis of the present administrative structure of  
the Programme (a complete list of the Promoters is attached in  
Part II, appendix 7, while a general outline of their characteristics  
and activities is given in Part II, appendix 8).
The National Coordinators
7. Turning to the crucial role of the National Coordinators, the  
Commission was concerned to ensure that their participation was  
optimised in the run-up period leading to the introduction of a  
new Programme.
Accordingly, joint meetings were held with the Promoters  
in 1982 and 1983 in a concerted effort to derive the maximum benefit  
from their valuable experience in this field. While the actual  
implementation of exchanges was the responsibility of the Promoters  
themselves, the National Coordinators were asked to consider the  
direction in which the Programme should develop paying particular  
attention to any measures that could be taken to obtain sources of  
funding outside the existing Community contribution.
In subsequently formulating its proposals for the future develop­
ment of the Programme, the Commission is of the view that the  
opinions expressed by the National coordinators were of considerable  
importance not least in emphasising the difficulties for the Member  
States of undertaking a major exchange initiative in the present  
social and economic climate.

-  6 -
However, given the fact that Article 50 of the Treaty places  
the responsibility for such an initiative with the Member  
States themselves, it is clear that the future role of the National  
Coordinators will become increasingly important in the efforts  
needed to bring about a greater participation in the Programme  
at Government level.
Indeed, within the provisions of Article 9 of the Council  
Decision, the Commission is already examining ways in which it  
can strengthen the existing machinery through which the represent­
atives of the Governments of the Member States are consulted on  
all matters of importance concerning both the application of the  
Decision and the future lines on which the Programme should be  
developed (for a full list of the present National Coordinators,  
please refer to Part II, appendix 9).
Short-term and Long-term Exchanges  
8.  As specified under Articles A and 6 of the Council Decision, the  
exchanges which took place were divided into short-term and long­
term programmes, each having its own particular objectives within  
the overall guidelines set out in Article 1 of the Decision.
Short-term programmes, of 3 weeks to 3 months duration, took the  
form of very intensive well-structured visits in which many aspects  
of living and working in the host country were covered in a very  
limited period of time. On the other hand, long-term programmes,  
of 4 to 16 months duration, included a lengthy period of work  
experience abroad preceded by an intensive language training course,  
normally of 2 months duration. Although in differing ways, both  
types of exchange represented an important complement to the young  
person's qualifications and personal development and it was  
the Commission's view, therefore, that undue emphasis should not  
be given to either.
Nevertheless, by the end of 1982, it was noted that long-term  
exchanges were absorbing approximately 72% of the available budget  
in view of their significantly higher cost per participant.
It was clear therefore that some measures
were necessary to reverse this trend given the importance of cost
effectiveness in a programme with such limited resources.
Accordingly, steps were taken to restore the equilibrium between the  
two types of exchanges and, as indicated in Part II, appendix 1,
this had already begun to take effect by the end of 1983 with the  
percentage distribution for long-term exchanges being reduced to 60 %.

- 7 -
It was at this stage also that the Commission began to Look at ways 
in which a"medium term" exchange might be developed which would 
attempt to achieve a balance between the objectives of long and 
short-term programmes and, while the position is still under consider­
ation, it is possible that future policy concerning programme content 
will incorporate guidelines for the implementation of such exchanges.
Given that a system of Training Leave within the Member 
States is still at a very early stage of development, with the 
consequent reluctance of employers to release their employees for 
long periods abroad, the Commission is of the view that there is 
now a necessity to tailor an increasing number of exchanges to 
meet specific sectoral needs. This is in fact already happening
some sectors where a growing number of employers are willing 
to release their employees to participate in exchange programmes 
which offer an opportunity of acquiring practical experience abroad 
consistent with the needs of the sector.
The Commission will, of course, continue to promote the types 
of exchange carried out over the past 5 years and it is felt 
unnecessary therefore, given the type of structure envisaged in 
the foreseeable future, to seek a modification of Articles 4 or 6 
of the present Decision. Increasing emphasis will, however, be 
given to programme content and design as part of a strategy of 
developing exchanges to adapt more easily to the changes likely to 
present themselves over the remainder of the 1980's (for further 
comparative statistics between long and short term exchanges, please 
refer to Part II, appendix 3).
Language Training
9. Forming as it does an introduction to the Long-term exchanges, 
the Commission is of the view that the Language Training period 
represented an essential element in the trainee's programme 
preparation in that it afforded him the opportunity of acquiring 
the necessary language skills in addition to providing him with 
an introduction to life in the host country. Indeed, from a recent 
assessment of the effectiveness of language training over the past 
5 years, the results have shown that most trainees had reached a 
level of language proficiency which allowed them to integrate 
positively at an early stage in their work placements. This, in

-  8 -
effect, is evidence of the professional language teaching methods 
which have been employed by the Promoters, either directly or 
through external experts.
The assessment also revealed, however, a growing need to give 
added impetus to the promotion of new technology language, fast 
effective training methods, lesser-used Community languages and, 
above all, to facilitate language training, where appropriate, 
in exchanges of short duration.
There would appear, therefore, to be a growing case in favour of 
amending the existing provisions of Article 8 of the Decision in 
order to afford the Commission the necessary flexibility to 
develop a coherent language training policy over the next 5 years.
Geographical Distribution
10. A certain imbalance in the geographical distribution of 
trainees was evident throughout the duration of the Programme which 
manifested itself in an over-concentration of Member State 
participation at the centre of the Community.
The Commission, therefore, took a number of corrective measures 
to redress this imbalance, the results of which had begun to take 
effect in the latter stages of the Programme (see Part II, 
appendix 4).
Nevertheless, it was clear that a number of factors, e.g., 
more developed exchange structures, the desire to acquire knowledge 
of a widely-used Community language, ease of access etc., contributed 
to the continuation of this trend. The Commission is, accordingly, 
examining what options are available to it to further strengthen 
the participation of the peripheral regions and this will form an 
important element in any restructuring measures being considered.
Notwithstanding these imbalances, there was a marked consistency 
on the part of all the Member States in maintaining an 
equilibrium between those participants who were received on 
exchange programmes and those who were sent abroad. This,in effect,

- 9 -
served to highlight the true "spirit" of the Programme, which was 
that exchanges be undertaken on a reciprocal basis where 
feasible (see Part II, appendix 5).
Sectoral Distribution
11. On the sectoral distribution of exchanges carried out over
the past 5 years, there was a tendency to over-concentrate activity 
in the Primary Sector during the initial stages, which was, however, 
consistently reduced over the latter stages of the Programme. On 
the other hand, there was a particularly low involvement of exchanges 
in the Secondary sector, a trend which was likewise reversed with 
the positive response in 1983 by a number of Promoters to an earlier 
Commission initiative. In the Tertiary sector, a consistently 
high level of exchanges was maintained throughout the duration of 
the Programme.
While the present sectoral distribution (see Part II, 
appendix 6) represents a balanced approach to the problem of 
ensuring that there is no over-concentration of exchanges in any 
particular sector, it is probable that this will have to be 
modified somewhat in the light of the prevailing economic and 
social climate. This will entail not only a reexamination of 
the areas of activity in which the Programme should be operating 
but will also be accompanied by a clear strategy outlining the 
Commission's objectives in relation to exchanges of an "innovative" 
rather than of a "traditional" nature.
Information on the Community
12. As the promotion of information on the Community's objectives 
and how it functions forms an important integral element in the 
Programme, the Commission was concerned to ensure that adequate 
attention was given to this particular aspect of the exchanges 
which took place. Accordingly, Promoters were furnished with 
detailed information, including audio-visual data, on a wide range 
of issues affecting the Community in an effort to strengthen the 
input given to participants. In addition, they were encouraged to 
utilise the facilities of the EEC Information Offices, engage the 
services of a European expert for appropriate talks on the 
Community and indeed use whatever means were at their disposal

-  10  -
to give the Programme a European flavour. For its own part, 
the Commission made available the necessary facilities, together 
with appropriate personnel, for groups of young workers who 
assembled in Brussels from time to time.
While significant progress has been made in improving programme 
content, the Commission is currently looking at ways in which a 
more formal approach to this matter could be devised which would 
clearly identify the Programme in the context of a present-day 
Europe searching for a renewed spirit of unity.
Community Contributions
13. Since the introduction of the 1st Report, covering the 
period 1979 to 1981, the Community contributions under the 
provisions of Article 8 of the Decision have been revised upwards, 
details of which are given in Part II, appendix 3.
Concerning the supplementary funding referred to therein, 
this represented a measure which the Commission introduced in 
1982 (for implementation in 1983) as a mechanism for promoting 
the development of more innovative exchanges, the implementation 
of which was likely to necessitate additional expenditure on the 
part of the Promoters.
These types of exchanges are referred to later in Part III 
of the Report.

PART II 
(Appendi ces)

-  11 -
PART II, APPENDIX 1.
Evolution of Budget Allocations 1979 to 1983
Year ECUS
1979 (6 months) 650.000
1980 1.300.000
1981 1.558.000
1982 1.700.000
1983 2.000.000Annual percentage increases
Comparative Base 
19,8 X 
9,1 %
17,6 X
(Since 1981, available budget allocations have been utilised in full.
The 1984 budget allocation is 2.250.000 ECU.)
Utilisation of Budget Allocations, No, of Trainees and cost per Trainee - 
overall position (1979 to 1983) with division between long- and short-term 
Exchanges:  “  '  — — “
Overall Position:
1979 1980 1981 1982 1983
Number of Trainees 256 484 9851 .047 1.205
Utilisation of Budget (ECU) 348.232 804.199 1.558.000 1.800.000 2.000.000
Cost per Trainee (ECU) 1.360 1.662 1.581 1 .719 1.660
Exchanges of long duration:
1979 1980 1981 1982 1983
Number of Trainees 105 289 505 498 448
Utilisation of Budget (ECU) 248.257 650.884 1.191.995 1.288.434 1.205.510
Cost per Trainee (ECU) 2.364 2.252 2.360 2.587 2.690
Exchanges of short duration:
Number of Trainees1979 1980 1981 1982 1983
151 195 480 549.  757
Utilisation of Budget (ECU) 99.975153.315 366.005 511.566 794.490
Cost per Trainee (ECU)662 786 763 9321.050

-  12  -
PART II, APPENDIX 2.
Participation of Trainees, 1979 to: 1983
Year
1979 (6 months)
1980
1981
1982
1983No. of Trainees 
256 
484 
985 
1.047 
1.205
The participation of female trainees over the period 1979 to 1983 
is estimated at 40 %.
Evolution of Trainee Participation, 1979 to 1983

- 13 -
PART II, APPENDIX 3.
Total Number of Trainee Weeks and  
average cost per trainee per week, 1979 to 1983
No. of Trainee Weeks 1979 1980 1981 1982 1983
- overall 3.329 9.210 17.298 19.504 19.787
- short-term exchanges 9371.109 2.342 2.686 3.782
- long-term exchanges 2.392 8.101 14.956 16.818 16.005
Average cost per trainee  
per week (ECUs)
- overall 105 87 91 92 101
- short-term exchanges 107 138 159 190 210
- long-term exchanges 104 80 80 77 75
Present Level of Community Funding  
under Article 8 of the Council Decision
Since the introduction of the 1st Report covering the period 1979 to 1981,  
the Community contribution has been revised as follows: -
Short-term Exchanges
- a flat-rate contribution per trainee per week of 160 ECU (this is increased to  
190 ECU for innovative exchanges)
- 75 '/ . of return travel costs  
Long-term Exchanges
- a flat-rate contribution per trainee per week of 110 ECU during the period  
of language training
- a flat-rate contribution per trainee per week of 90 ECU (this is increased to  
110 ECU for innovative exchanges).
- 75 % of return travel costs

Noof Trainees by Country of- 14 -
Origin and Host Country, 1979 to 1983PART II, APPENDIX 4.
Count ryCountry of Origin Hosting Country
7980818283Total X 7980818283Total X
B 17 715 2 150 1102,77 41 73116231182,96
D 2083159148148 55814,03 558018214912959514,98
DK 3 2 1 6651652065,18 53735587521C5,28
F 6016023425326797424,48 41125199>23625986021,62
GR——24 1 143 781,96 ——5 137431,08
IRL 336264136157 45211,37 1647691171483979,98
I 3882126129126 50112,60 2 165 121123156486 12,22
L— —3 25 100,25 ———459 0,22
N 101357117 112 3097,77 6955939711342710,74
UK 7556237179232 77919,59 .8 68'25024626083220,92
Total 2564849851.0471.205 3.977 100 2564849851.0471.2053.977 100

Overall Comparative Percentage Distribution of Trainees by Country of Origin 
and Hosting Country (1979 - 1983)
% .
25
2 4.
23
-22
2 1
2 0
19
19
1 7.
1 6.
15
14
1 3.
12.
11
10
9
8
7
6
5.
4.
3.
2
1
0B D K
14,98
14,03
2,772,96G R IR L I
24,48
5,185,2821,62
1,9612,6012,22
J H s · .11,37
9,98■ 9
BBHnBBBB o<25PART II, APPENDIX 5.
N L U K
20,92
19,59
10,74
participation of trainees by country of origin 
participation of trainees by hosting country

-  16  - PART II, APPENDIX 6.
Sectoral Distribution by Trainee Weeks 1979 - 1983
YearPrimary
SectorSecondary
SectorTertiary
SectorTota Is
1979 1.504 (45%) 643 (3530 1.132 ( 20%) 3.329 (100%)
1980 3.032 (3350 977 (1130 5.201 (56%) 9.210 (100%)
1981 6.678 (3930 2.495 (1430 8.125 (47%) 17.298 (100%)
1982 4.850 (2530 4.318 (223010.336 (53%) 19.504 (100%)
1983
Totals4.247 (2130 
20.311 (29%)6.657 (34%) 
1 5.090 (22308.883 (45%) 
33.727 (49%)19.787 (100%) 
69.128 (100%)
Overall Percentage Sectoral Distribution of Trainee Weeks, 1979 - 1983

- 17 -
PART II, APPENDIX 7.
Deuxième programme commun d'échanges de jeunes travailleurs  
Second joint programme for the exchange of young workers
ORGANISMES CONVENTIONNES - ACCREDITED ORGANISATIONS
AnCo - The Industrial  
Training Authority
Carl Duisherg  
Gesellschaft e.V.
Central Bureau for  
Educational Visits and  
Exchanges  
C.B.E.V.E.Person to contact
Mr. P. O'Toole  
Ms B. Nolan
Mrs. Angelika Vieten
Mr. A. Clark—Morgan  
Ms. Carol BevisFOBox 456  
Baggot Court  
27-33 Upper Baggot Str.  
IUBLIN 4 - Ireland
30-32 Hohenstaufenring  
5OOO KÖLN 1, Deutschland
Seymour Mews House  
Seymour Mews  
LONDON W1H 9PE 
UKTel.
01/685777
Telex :
24338 El
221/2098225
Telex:
ÒH/B 81 762
ce degl
I/486.5I.OI
Telex:21368  
"  CBEVEX
Conférence Permanente M. Thanassoulias 
des Chambres de Commerce Mme Pariat  
et d'industrie de la CEESquare Ambiorix 30  
1040 BRUXELLES  
BelgiqueO2/735.IO.92
O 2 / 7 3 5 . I 4 . 9 3
D.U.F.
Dansk kingdoms Fællesrâd 
The Danish Youth CouncilMr. Peter Larsen 
Ms Eva BertramScherfigsvej 5 
2100 KØBENHAVN 0 
DENMARK(455-1-
29.3888
Telex
16836 duf dk
Ente Nazionale ACLI  
Istruzione professio­
nale 
ENAIPMr. M. Dosio  
Ms M. CenaCorso Palestro 5  
10122 TORINO 
Italie11/51.54.61
EUR0C00P
European Community  
of Consumer CooperativesMr. Schöne, Secré­
taire général17a, rue Archimède  
Bqîte 2 
IO4O BRUXELLES  
BelgiqueO2/23O.I4.II
O2/23O.15.68
European Federation for  
Intercultural Learning  
EïTLMr.  Philip den Ouden 
Ms VangansbekeJustitiestraat 35  
2000 ANTWERPEN03/237.13.02

- 18 -PART II. APPENDIX 7 - ctd
Groupement des Caisses M. U. Lanzke 92-94 Square E. Plasky O 2/736.8O.47
d'Epargne de la CEE Ms Anne de Neck Boîte 1
1040 BRUXELLES  
Belgique
Inter-Echanges M. C. Vitre  
Ms S. Sterzenbach
Stichting Uitwisseling  
en Studiereizen voor  
het Platteland  
(Stichting Bergen)M. H. Hijink  
M. EllingRue de Valence 9 bis  
75005 PARIS  
FranceI/337.42.69
Telex: 202322
Duinweg 5 
Postbus 97  
BERGEN N. H.  
Nederland2208/6144
Telex;
57612 SUSP HL
Zentralstelle für Ar­
beitsvermittlungM. Rönnefahrt 
Μ. Geishardt
Ms Gottes leben42-46 Feuerbachstraße  
6000 FRANKFURT 1  
Deutschland6II/7IIII
Telex: 
04II 632

PART II, APPENDIX 8- 19 - ------- ----------H
Ge
neral Information pertaining to Promoting Organisations 
conventioneel under Article 3 of the Council Decision
NAME OF 
ORGANISATIONDANISH YOUTH COUNCIL  
- D.U.F. -CARL DUISBERG  
GESELLSCHAFTEUROCOOP INTER-ECHANGES
HEAD OFFICE Copenhagen Cologne Brussels Paris
YEAR OF ESTABLISHMENT 1941 1949 1957 1960
NATURE OF ORGANISATION  
(according to national  
legislation)Youth Council Public Association Unincorporated
Societynon-profit making  
Organisation
SOURCES OF FUNDING public and private public and private public and private public and private
GENERAL ACTIVITIES  
OTHER THAN Y.W.E.Promoting interests  
of Member Organ­
isationsTraining programmes  
for specialised personnel  
and for exchangesPromoting consumers'  
interests- exchange of young people
- seminars
- language training
- sightseeing trips
YEAR OF COMMENCEMENT OF  
ACTIVITIES IN Y.W.E.P.1983 1980 1980 1966
SECTORS OF ACTIVITY  
IN Y.W.E.P.- fish processing
- energy resources
- electronics  
industry- trade
- artisan
- hotel
- nursing- wholesale and  
retail trade
- food processing- agriculture
- public services
- various sectors
OTHER POSSIBLE SECTORS  
OF ACTIVITY  
IN Y.W.E.P.

- 19 a - PART II, APPENDIX 8 - cont'd.
!
STICHTING
UITWISSELINGGROUPEMENT DES  
CAISSES D'EPARGNEC.B.E.V.E. ANCO ENAIP
Bergen (NL) Brussels London Dub l i n Turin
1949 1963 1948 1967 1961
Foundation International
AssociationNon-departmental  
Government BodyPublic Authority non-profit making  
Organisation
public and private public and private public public and private public
Promoting training  
for young people  
from rural areasPromoting interests  
of Savings Banks and  
savers at Community  
levelteacher and  
youth exchangesvocational training  
in c o m m e r c e  a n d  industryTraining of young  
people aged 14-25;  
training and réadapt­
ation of adults
1981 1980 1980 1981 1979
- agriculture
- retail trade
- electro-technical  
sectorbanking - industry
- commerce- manufacture
- services
- industry
- social sectordifferent  
sectors
- fishing
- other sectors- agriculture
- fishingnot limited

- 19 b - PART II, APPENDIX 8 - cont'd
E.F.I.L.CONFERENCE PERMANENTE 
CHAMBRES DE COMMERCE 
ET INDUSTRIE DE LA CEEZENTRALSTELLE 
FÜR ARBEITS­
VERMITTLUNG
Antwerp Brussels Frankfurt/M.
1971 1958 1956
International
OrganisationInternational
Organisation•  Public 
Authority
public and private private public and private
- students' and young 
workers' exchanges
- programmes for educators 
of migrant workersCommissioning of 
studies; working 
groups in different 
sectorsRegistration of offers 
and enquiries for jobs 
abroad; language and 
vocational training
1979 1981 1972
- manufacture
- food processing industry
- construction and heavy 
industries- industry
- services- industry
- commerce
- artisan
- services
all industrial sectors

-  20  -
PART II, APPENDIX 9.
2ème PROGRAMME D'ECHANGE DE JEUNES TRAVAIT-T.CTIRS  
SECOND JOINT EXCHANGE OP YOUNG WORKERS PROGRAMME
Liste des Coordinateurs nationaux  
List of National Coordinators
BELGIQUE
BELGIUMDENYS, Jacques
Ministère de 1 1 ünploi et du Travail  
Direction de la Politique de l'Bnploi  
51-53 rue Belliard  
IO4O BruxellesTel. 02/230.90.10
DANEMARK
DENMARKHERMANN, Beate (Mrs)  
Arbe j dsdirekt orat et  
Adelgade 13 
DK-I 305 K/benhavn Tel. OI/ 87.27.77
FRANCE AUBIN, Claire CM.Lle) 
Délégation à l'Emploi 
55 Avenue Bosquet  
F-75007 ParisTel. 567.55.44  
ext.  5920
ALLEMAGNE
GERMANYRIESS, Walter  
Bundesanstalt für Arbeit  
Regensburger Str. IO 4 
D-85OO Nürnberg Tel. O 6II/7.II.II
GRÈCE
GREECE
IRLANDE
IRELANDVIOS, Stelios 
Junior Ministry of Youth 
25, Panepistimiou-Street 
Athens
FITZPATRICK, Brian  
Ministry of Labour  
Mespil Road  
Dublin 4Tel. 323.09.31  
ext. 436
Tel. 76.58.61

-  21  - PART II, APPENDIX 9 - ctd.
ITALIE ANTONUCCI, Giancarlo (Dr.)
ITALT Ministero del Lavoro e
della Previdenza sociale  
Direzione generale del  
Collocamento della Manodopera  
Div. IV
Via Pastrengo 22
I- Roma Tel. 4683
LUXEMBOURG BICHELER, Claude
Administration de l'Qnploi  
34 Avenue de la Porte Neuve  
L— Luxembourg Tel. 267.93
PAYS-BAS VAN BAAL, J. (Mr)
NETHERLANDS Directoraat-Generaal voer
Arbeidsvoorzeining  
Ministerie van Sociale Zaken  
Volmerlaan 1  
RL - RijswijkTel. 70/99.31.77
ROYAUME-UNI  
UNITED KINGDOMMALE, A.H. (Mr)
Central Bureau for Educational  
Visits and Exchanges  
Seymour Mews House  
Seymour Mews  
GB- LONDON W1H 9PETel. OI /4 8 6 51 01

PART III

-  22 -
PART III
ANALYSIS of FINANCIAL and  
ADMINISTRATIVE STRUCTURE
Introductory Note
14. While part II of the Report gave a descriptive analysis of the  
practical aspects of the Programme over the past 5 years, the purpose  
of this section is to examine some of the more important issues  
currently affecting it and to look at a number of possible options  
available to the Commission concerning its future development.
Administrative Structure of the Programme
15. Given the fact that all exchanges under the 2nd Joint Programme  
were undertaken through the aegis of the Promoting Organisations  
(or, in a small number of cases, through "sub-conventioned" organ-
isations)/the Convention was seen as an important "management  
tool" from the Commission's viewpoint in that it allowed it to exercise  
a measure of control over a small number of organisations obliged to  
satisfy the strict criteria laid down in it. Moreover,
such a small number of organisations <in principle, one in each Member  
State) facilitated the Commission in developing a series of'bperating  
guidelines" designed to give effect to the provisions of the Council  
De c i s i  on.
16. it was within this structural framework therefore that the  
Commission, through a series of such guidelines issued in 1982,  
gave new impetus to the necessity for promoters to move away to some  
extent from the "traditional" types of exchanges and take new initiatives  
towards the development of more "innovative" exchanges be they in  
sectors hitherto unrepresented, in areas most affected by the develop­
ment of the so-called new information technologies or in new concepts
of work methodology.

!
- 23 -
17. White the growth in the Level of exchanges has been steady since 
the 1982 initiative, the Commission has been somewhat concerned 
with the response of the Promoters, many of whom found it difficult to 
adapt their activities to the changes required. Viewed in conjunction 
with an impending communication from the Commission,which will outline 
a number of new measures in the field of youth exchanges in general, 
it became increasingly evident that the Commission required a 
greater degree of "flexibility" in the administration of the Young 
Workers Exchange Programme, not only to develop it in line with this 
initiative, but to promote a greater degree of innovation on the part 
of the Promoters supported by a wider involvement of the Commission 
itself in the initiation of new exchange outlets.
18. The formulation of a strategic Community policy on vocational 
training, including the new information technologies, during the 
1980's make it essential that the Commission has the necessary 
flexibility to develop a Youth Exchange Policy which would form an 
integral part of these developments. The Young Workers Exchange 
Programme, given appropriate structural and administrative changes, 
must play an important role in this process over the next 5 years.
19. Taking the Programme in an administrative context, the Commission
views the position as follows: firstly, the wealth of experience in
the field of exchanges which the Promoters now enjoy should continue 
to be utilised with a view to strengthening and improving the existing 
network of exchanges over the next 5 years; secondly, given that
wealth of experience, there would now appear to be little need to continue 
the usage of the "convention" system provided under Art. 3. para. 2 since 
the purpose for which it was originally established, i.e. to safeguard the 
quality of exchanges undertaken, is no longer at issue given the experience 
to date; thirdly, in the light of the difficulties likely to be 
faced by the Commission in meeting specific needs in the field of 
exchanges over the next 5 years, there would now appear to be strong 
grounds in favour of a modification of the existing structure, whereby 
the Commission would have the flexibility to "intervene", as 
appropriate, in circumstances where a realisable potential 
existed for the fostering of exchanges which were

- 24 - PART'III
complementary to the existing network organised through the Promoters.
In such interventions, many types of· situations are envisaged by the 
Commission ranging from special exchanges of particular value to the 
development of "external" exchange coordinating agencies operating 
in various sectors of activity. Any .such intervention could not, 
of course,be easily geared to the present "convention" arrangement 
nor indeed would it be feasible to continuously seek the "opinion of 
the M e m b e r  states" as presently required under Article 3. paragraph 1 of 
the Decision. Accordingly, it would be incumbent on the Commission to 
satisfy itself as to the merits of·each intervention proposed options
20. The administrative climate,therefore, under which the Programme 
might be developed over the next 5 years is one in which the structures 
already established would continue to be strengthened with the 
Commission at the same time having the flexibility to intervene as outlined 
in paragraph 19 above. In neither case would recourse to the 
"convention" principle be necessary, each individual project being 
governed by the comprehensive contr.actye@f ■^..modification thereof,
in use since the inception of the Programme. it allowed it to exercise
control over a small number of organisations obliged to
~îsfv the strict crii *i'ci; down in i t. Moreover,
.umber of organisations (in principle, one in each Member Funding of the Programme--- Commission1  in developing a series.of operating
21. 
Notwithstanding the fact that the Limited budgetary facilities
available in the initial period of the programme were not fully utilised 
(see part II, appendix 1), there were signs at the beginning of 1981 
that this situation was changing somewhat as a result of the ever- 
increasing organisational efficiency of the Promoters involved. Indeed, 
by the latter stages of 1981, it was manifestly obvious that the ,0 SOfflfc 
Commission would have no option but to forego funding on a number of important 
projects in view of the Lack of available funding. This proved in fact 
to be a turning point in the evolution of the Programme which since qeyg[op- 
then has been beset by an acute shortage of funding. The point is W0^|-s 
illustrated in the estimates for 1984 which show the total cost of 
the projects proposed by the Promoters as reaching 3 times the level 
of funding available to the Commission.

- 25 -
22. This situation prompted the Commission to give renewed consider­
ation to exploring all possible sources, governmental, regional and  
local, which might offer complementary funding to the already over­
stretched Community allocations. Accordingly, at the joint meetings  
of Promoters and Government representatives responsible for the Pro­
gramme (National Coordinators) in 1982 and 1983, the Commission  
raised these issues in an attempt to elicit a positive response from  
all concerned.
23. Given the fact that a significant breakthrough in the funding  
arrangements under which the Programme operates will not likely take  
place until Member State Governments themselves intervene financially,  
the developments to-date could be viewed as somewhat less than  
encouraging. The National Coordinators, in acting as the focal point  
within the relevant Ministries, expressed the view that Member State  
Governments were reluctant to take a major funding initiative at this  
point in time given the prevailing social and economic climate.  
Nevertheless, some successes have already been recorded at Government  
level (Ref. Denmark and Ireland) and, while limited in nature, may  
later act as a "springboard" to more concerted action at Government  
level.
At the regional and local level the breakthroughs have been more  
pronounced with a number of Promoters now actively pursuing sources  
of funding with a view to complementing their allocations from the  
Communi ty.
Progress, albeit slow, was also made on the employer front which  
in the final analysis will provide the key to the ultimate success of  
the programme. This point is further developed below.
24. Viewing the overall funding situation as it exists at present,  
it seems clear that the Community budget will continue to provide  
an important funding source for the Programme in the foreseeable future.

- 26 -
However, given the increasing success of Promoters in securing alter­
native sources of funding,allied to the need to develop a more broadly-  
based system of exchanges, there would appear to be a growing argument  
in favour of more flexibility in the Commission's funding arrangements  
which would allow it the facility to tailor its interventions more  
appropriately to the circumstances of the Programme, however they may  
evolve.
25. A number of options are presently under review which would give  
the Commission a greater degree of flexibility in its funding inter­
ventions.
Among the more important is a revision of the present Article 8  
provisions for the funding of travel costs which would take account of  
the growing ease of access to Member States at the centre of the Community  
while, at the same time, acknowledging the special difficulties which  
this poses for the peripheral regions. In effect, the Commission is look­
ing at ways in which the granting of the Community contribution towards  
the travel cost of the return journey between two Member States could  
be directly related to the distance involved.
For the interventions referred to under paragraph 19 above, the  
payment of appropriate "subventions", outside the existing flat-rate  
weekly contribution provided under Article 8, is another important option  
presently under consideration.
The European Social Fund
26. Being the most important financial instrument of the Community in  
the field of vocational training, the recent review of the European Social  
Fund (1) is of particular relevance to the future development of the  
Young Workers Exchange Programme as a result of an increasing level of
its appropriations (2) being directed specifically towards young people.
In giving new priority to the employment difficulties presently  
affecting young people, the Fund reflects the growing concern which has  
been expressed at all levels throughout the Community about their particular  
disadvantage at a time of recession and high unemployment.
Indeed, such has been the effects of the recession, that it has  
already made a significant impact on the Young Worker Exchange Programme
(1) Council Decision 83/516/EEC of 17th October 1983 (O.J. N0 L 289 of 22nd October 1983).
(2) The proportion of the Fund's annual budget allocated to young people may not be less  
than 75 % in any one year.

- 27 -
itself to the extent that changes in the Decision (Ref. paragraph 31  
below) may be required to facilitate the inclusion of those young  
persons who are unable to secure employment or who have suffered the  
loss of their job.
Accordingly, the Commission considers the review of the European  
Social Fund as being of considerable importance in the framework of  
the exchange of young workers in view of the fact that, without these  
priorities now being given to young people, it is likely that the  
difficulties presently affecting the Programme would worsen consider­
ably over the coming years.
Charged with bettering the employment prospects for young people,  
it is anticipated that, in due course, the revised Fund will have the  
effect, by improving labour market conditions, of facilitating the  
Young Workers Exchange Programme in the realisation of its objective  
of providing exchange opportunities for young persons already in  
positions of employment.
Nevertheless, while the interaction between the Fund and the  
Young Workers Exchange Programme is of considerable importance, it  
is clear that the objectives for which they were established are  
entirely separate. In principle, the task of the Fund is to facilitate  
the promotion of employment through the provision of financial aid  
for programmes of vocational training while it is the objective of  
the Young Worker Exchange Programme to intervene at a stage subsequent  
to the completion of any such training by offering young persons with  
practical work experience the opportunity of developing their quali­
fications through participation in a programme carried out in a Member  
State other than the one in which they reside.
The Commission will continue, therefore, to emphasise the special  
nature of the objectives set out in the Council Decision establishing  
the 2nd Joint Programme, the realisation of which will, however, be  
influenced considerably by the impact of the provisions in the revised  
Fund concerning greater financial assistance for the promotion of  
employment opportunities among young people.

- 28 -
The Changing Economic Climate
27. As already stated above, the Programme is directed at young
people who are nationals of a Member State, aged between 18 and 28 years,  
who have received either basic vocational training and/or practical  
work experience and have entered working life before the age of 20.
28. In preparing its proposals for the 2nd Joint Programme, the  
Commission was particularly concerned to offer exchange facilities  
to those young workers for whom such an opportunity was unlikely to  
arise in the normal course of their employment.
Accordingly, a policy was adopted from the outset the principal  
aim of which was to ensure the fulfillment of this objective.
However, given the worsening effects of the economic recession,  
particularly in relation to young people, it became increasingly  
difficult to justify a policy which was directed solely at those  
already in employment at a time when unemployment was becoming rampant  
among the young workers of the Community and, in addition, was creating  
a situation in which many young people leaving the education system  
or vocational training were unable to secure employment.
29. It was clear, therefore, that some shift of emphasis was needed  
in Commission policy as it related to the changing situation on the  
labour market.
However, in view of the fact that the existing provisions of  
Article 2 of the Decision did not extend to young people who had  
either become unemployed or were seeking employment for the first  
time on the labour market, the Commission was not in a position to  
take remedial action through a formal revision of its policy.

- 29 -
30. Confronted with this dilemma, which manifested itself midway  
through the Programme, the Commission had Little option but to  
uphold the provisions of the existing Decision pending a review  
of the criteria for participation laid down in Articles 1 and 2.
31. Given the likelihood that the effects of the recession will  
continue to be felt by young people for some time to come, the  
Commission is of the view that the Programme can no longer be directed  
specifically at those in an employment situation but must be extended  
to include the categories of persons referred to in paragraph 29 above.
To this end, the Commission would propose that a specific provision  
be included under Articles 1 and 2 of the Decision whereby young persons  
making themselves available for employment would be deemed eligible for  
inclusion in the Programme.
Furthermore, to provide the necessary measures for the inclusion  
of first-time job seekers, it is also proposed to delete the provision  
in Article 2 concerning entry into "working life before the age of 20".

- 30 -
Other Exchange Initiatives
32. The organisation at Community level of exchange activities,  
as distinct from the promotion of the freedom of movement of  
workers, is referred to in the Treaty but is restricted to the  
Article establishing the Exchange of Young Workers Programme.  
Accordingly, given the relatively modest development of this  
Programme over the past 20 years together with the fact that it  
is confined to a specific category of young people, there has  
been growing pressure for some form of compLementary action at  
Community level in the field of Youth Exchange in general. The  
Commission had already begun, therefore,to examine ways in which such  
action might be taken and, while not the subject of this report,
is referred to hereunder in the context of how it might relate  
to the Young Workers Programme.
33. At the same time, the European Parliament was taking a  
growing interest in the possibilities of exchanging young people  
at all levels within the community which eventually resulted in  
the passing of a number of important resolutions in the exchange  
field the most notable of which was the Booklet Resolution of  
7th June 1983 (1).
34. While this represented a far-reaching call for action in the  
field of exchanges in general, it was nonetheless significant  
that reference was made, within the Resolution itself (2), to the  
Young Workers Exchange Programme. Indeed, it was quite specific  
as to the direction the Programme should take in the future stat­
ing that it be "considerably improved, extended and consolidated  
as an independent sector".
35. With similar views being expressed by the Promoters themselves,  
the National Coordinators, the European Trade Union and Employer
CD O.J. N° C 184 of 11.7.83  
(2) paragraph 1.(b)

- 31 -
Representatives and most recently by the Youth Forum (1), the  
Commission's intention to develop the Young Workers Exchange  
Programme in the forseeable future as a separate action programme  
from the general youth exchange initiatives currently under  
consideration will be fully endorsed.
Indeed, there is little doubt that the basis giving rise to these  
views is rooted in the experience of the past 5 years which has  
clearly illustrated the need for a welt-structured network in which  
to foster the development of exchanges at a Community level.
Given the faet that the nucleus of such a structure has, to a  
large extent, already been established under the 2nd Joint Programme,  
the Commission will now take whatever steps are necessary to ensure  
that the new initiatives contained in its communication on "youth  
exchanges in general" will have the effeet of complementing rather  
than hindering or confusing the Programme's future development. In  
effeet, the Commission will be examining ways in which the Programme,  
while maintaining its autonomy, can play a positive part, not only  
in the development of a Youth Exchange Policy, but in the implement-  
ation of the initiatives contained in the communication.
Cost effeetiveness will also, of course, be a key factor and the  
Commission will ensure, therefore, that there is no duplication of  
resources given the current limitations on overall Community allocations  
in this field.
36. With such a process of development over the next 5 years, there  
is every reason to believe that an overall structure could there-  
after be developed which would afford the Community the opportunity  
of launching a major initiative in this field. For the Young Workers  
Exchange Programme therefore, the remainder of the 1980's will prove  
an even greater challenge than the difficulties which have been over-  
come in the past.
(1) The Future EC Exchange Programme of Young Workers
(28th October 1983).

PART IV

- 32 -
PART IV
SOCIAL SECURITY PROTECTION  
The Council Decision - Articles 5 and 7
37. The provisions concerning the freedom of movement of workers (1)
had an important bearing on the development of the Young Workers Exchange  
Programme^ which was established pursuant to Article 50 of the Treaty.
Thus, the Council Decision establishing the 2nd Joint Programme  
specified under Article 5 that :
"young workers participating in training periods of long  
duration shall benefit, within the framework of existing  
legislation, from a system as favourable as that introduced  
under the Treaty to bring about freedom of movement for  
workers who are nationals of Member States".
Also within the framework of existing legislation, and by way of  
complementing the provisions of Article 5, Member States reached  
agreement under Article 7 to the effect that they would -
"lend their support to the implementation of exchanges, par­
ticularly as regards Social Protection".
In concise terms, therefore, this represented the basis on
which, given the nature of the commitments entered into by
the Member States concerned, it was envisaged that existing "barriers"
confronting young workers participating in exchanges would be reduced
as far as was practicable.
Studies on the application of Social Security Regulations
38. Given the importance of these provisions, the Commission considered
it essential, from the outset, to monitor all developments pertinent to  
their application, with particular attention being paid to social security  
protection,as it was in this sphere that problems were considered  
most likely to arise.
(1) Articles 48, 49 and 51 of the Treaty.

- 33 -
39. Such problems were in fact revealed during the initial phase of the Pro­
gramme, but the Commission was somewhat unclear as to their precise  
nature and indeed to what extent they were creating barriers to the  
effective implementation of exchanges.
Accordingly, two Studies (1) were commissioned in 1980 and 1981 with the  
objective of summarising existing Member State Social Security Legis­
lative provisions and, at the same time, recommending what further action,  
if any, was required to provide the necessary level of Social Security  
Protection to Young Workers participating in the Programme.
While some of the issues raised in the reports served to highlight the  
complexity of the problem, they had also the effect of focusing attention  
on the question of whether the provisions of Articles 5 and 7 of the  
Council Decision were specific enough in the requirements laid down on  
each Member State in the area of social security protection. The follow­
ing are some examples of the variations ip social security protection  
applicable to young workers parti ciapting in the Programme: -
- participants in insurable employment or in receipt of unemploy­
ment benefit immediately prior to an exchange, who took up  
insurable employment during the period of the exchange, were  
adequately covered for social security protection during their  
work period abroad as well as on return to their country of resi­
dence. In effect, these workers were in a position to benefit  
from the provisions of Regulation (EEC) N° 1408/71 of the  
Council, further reference to which is made below;
- participants who were not insured immediately prior to an  
exchange and who took up insurable employment abroad were  
likely to face a short period of inadequate social security  
cover before coming into benefit;
(1) "2nd Joint Programme for Exchange of Young Workers - application of  
Social Security Regulations" (Germany, Belgium, France, Italy and  
United Kingdom), Author L. Froidmont;
"2nd Joint Programme for Exchange of Young Workers - application of  
Social Security Regulations" (Denmark, Greece, Ireland, Luxembourg,  
Netherlands), Author M. Meyer.

- 34 -
- for participants who took part in exchanges not involving
a period of insurable employment, the duration of the exchange,  
together with their status in their country of residence, were  
factors which determined whether any social security problems  
arose,e.g.,for participants who were not insured immediately  
prior to an exchange, it was sometimes necessary to take out  
a form of personal insurance cover; on the other hand, for  
participants who were insured before commencing a short-term  
exchange, problems of social security protection were unlikely  
to arise etc.;
- for participants not in a position to take up immediate insurable  
employment on return from an exchange, difficulties were some­
times encountered vis-à-vis entitlement to unemployment benefit.  
Indeed, this represented the most frequent type of problem  
which arose and, as is referred to below, was a source of  
concern to some participants before embarking on an exchange  
programme.
40. Given the diversity of participant status within their countries of residence,  
together with the fact that the nature and content of the exchanges under­
taken were widely varied, it was not unexpected that difficulties would  
present themselves in the field of social security protection. When taken
in conjunction with the different legislative provisions within the Member  
States themselves, the complexity of the problem became all the more evident  
and it was therefore suggested in the reports that reference to the Community  
provisions on social security should be made as a means of determining  
whether some of the existing difficulties in the field of social security·  
protection could be resolved.
41. While it was pointed out by the authors that the incidence of problems  
concerning social security protection was not of significant proportions, the  
Commission was, nevertheless, concerned to develop a structure which would  
provide effective guarantees of social security protection for all persons  
participating in exchanges under Article 50 of the Treaty.
The Administrative Commission on Social Security for Migrant Workers
42. Being entrusted with the task of monitoring administrative questions and  
points of interpretation arising from the provisions of Regulation (EEC)
N ° 1408/71, the Administrative Commission on Social Security for Migrant

- 35 -
Workers CD represents a body of experts closely associated with the implement­
ation of Article 51 of the Treaty concerning social security provisions  
relating to the freedom of movement for workers within the Member States.
Following a series of preparatory discussions, the Commission submitted  
to the Adminsitrative Commission a:  detailed analysis of the position  
as it had evolved to date and sought its advice on the general lines on  
which it might proceed in this matter.
During its 188th to 190th meetings held in 1983, the Administrative  
Commission discussed the position in depth with a view to establishing  
a possible framework within which an adequate level of social security  
protection would be afforded to all persons participating in the  
Programme.
Concluding its deliberations on the subject in October 1983, it made the  
following observations -
- both from the submissions of the Commission and from the  
discussions held within the Administrative Commission, it  
emerged clearly that young persons participating in the  
Programme could be divided, from a social security viewpoint,  
into 2 distinct groups :
(a) those who are workers within the meaning of Regulation  
1408/71, and
(b) those who are not workers within the meaning of Regu­
lation 1408/71.
Workers within the meaning of Regulation 1408/71
43. For participants who are workers within the meaning of Regulation 1408/71,  
the text of Article 5 of the Council Decision establishing the Programme was  
clearly of importance. To ensure, therefore, that the provisions of
this Article covered social security protection, it was recommended by  
the Administrative Commission that its text be amended to include reference
(1) Established under the provisions of Article 80 of Regulation (EEC) N° 1408/71 and  
made up of Government representativesfrom each of the Member States  
assisted, where necessary, by expert advisers. A representative from  
the Commission attends the meetings of the Administrative Commission in  
an advisory capacity.

- 36 -
to Articles 48, 49 and 51 of the Treaty with no distinction being drawn  
between Long- and short-term exchanges. The revised text adopted was  
as follows :
"Young workers participating in training programmes organised  
under this Decision shall benefit, within the framework of  
existing legislation, from a system as favourable as that  
introduced under Articles 48, 49 and 51 of the Treaty to bring  
about freedom of movement for workers who are nationals of  
Member States".
44. It was important to look at the Programme in the context of Regulation  
1408/71 and the Administrative Commission emphasised the fact, therefore,  
that it specifically applied to participants who are workers in relation
to the risks against which they are insured. The Regulation merely coordi­
nated the differing national social security systems within the Member  
States in the sense that it linked these systems together with the objective  
of protecting workers moving within the Community.
It did not attempt to amend the content of existing systems of national  
social security legislation from which it followed that, if the legis­
lation of a Member State did not cover certain categories of workers, or  
if it only covered them against certain risks, this could not be amended  
or remedied through the Regulation.
45. The Administrative Commission went on to explain that Articles 13 to 17  
of Regulation 1408/71 outlined the legislation governing the migrant  
worker in matters of social security which, as a general rule, was the  
legislation of the country of employment. Special provisions in the  
Regulation governed the case of workers whose particular nature of  
employment rendered the strict application of this general rule impossible  
while a number of exceptions were provided for in Article 14. Most importantly,  
however, Article 17 provided that -
"two or more Member States, the competent authorities of those  
States or the bodies designated by those authorities may, by  
common agreement, provide for exceptions to the provisions of  
Articles 13 to 16 in the interests of certain categories of  
employed or self employed persons, or of certain such persons".

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The issue posed by the Administrative Commission in the context of  
Article 17, therefore, was to determine whether it was in the interest  
of these worker-trainees to become subject to the legislation of the  
host State or to remain subject to the legislation of the State of  
residence. Given the limited period of time spent abroad during exchanges,  
it was generally agreed that the latter represented the more favourable  
option.
It was in fact possible, under the provisions of Article 17 of  
Regulation 1408/71, to conclude a mu Iti latera l agreement which would  
guarantee general and uniform application of a provision whereby the  
legislation of the country of residence would remain applicable through­
out the duration of the exchange. Indeed, the Administrative Commission  
pointed out that the. inclusion of such a provision in the Regulation  
would ensure that the worker— trainee, provided he is insured against the  
risk of unemployment in his country of resiaence, would receive on his  
return from an exchange benefits in accordance with the legislative  
provisions of that country.
Workers not within the meaning of Regulation 1408/71
46. For participants who are not workers within the meaning of Regulation  
1408/71, the Administrative Commission pointed out that the objectives  
of coordination, which constitute also the limits of coordination, do  
not permit the extension of this Regulation to cover persons who are not  
insured. However, they emphasised the necessity to examine the possibility  
as to whether national measures could be taken which would have the effect  
of "neutralising" the period of training spent on an exchange and of  
removing some of the difficulties concerned with the conditions for  
registration with the Employment Services imposed by a number of Member  
States.

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Summary ana Conclusions
47. Viewing the overall developments to date in the context of the objectives  
of the Programme, the Commission is of the view that the recommendation  
of the Administrative Commission concerning the modification of Article 5  
of the Council Decision is of considerable importance in that it clearly  
associates the Programme with the Treaty provisions relating to the free­
dom of movement for workers, in particular the Article 51 provisions con­
cerning social security protection.
For participants who are workers within the meaning of Regulation 1408/71,  
the conclusion of a multilateral agreement under Article 17 would have  
the effect of ensuring that the legislation of the country of residence  
would continue to be applicable throughout the duration of the exchange  
and would considerably reduce the administrative complications involved.  
However, given the limited number of participants at present affected, it  
is unlikely that such an agreement would be concluded on a multilateral  
basis for some time to come.
For participants who are not workers within the meaning of Regulation  
1408/71, the Commission is concerned to ensure that they are afforded an  
adequate level of social security protection. Accordingly, a number  
of options are presently under consideration including the possible  
inclusion of a further provision under Article 5 of the Council Decision  
to the effect that such participants would be assimilated,for social  
security purposes, with persons undergoing vocational training courses  
in their country of residence. While this may necessitate legislative  
changes at national level, it is clear that special measures are required  
to protect this particular category of young worker and it is the  
Commission's view therefore that a provision of this nature, or a modifi­
cation thereof, should be considered for inclusion under Article 5 of  
the Decision.

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48. Referring to the overall provisions of the Council Decision, it is  
important to emphasise that the responsibility for the provision of an  
adequate level of social security protection does not rest with the
young worker in view of the fact that the conditions laid down in Article 2  
are the sole criteria applied to determine eligibility for participants.
For its part, the Commission is concerned to ensure that aLL social  
security problems affecting young persons participating in the Programme  
are resolved as far as is practicable and, while the incidence of such  
problems is not yet of significance, it is probable that further measures  
wilt become necessary if the programme is to expand to a level consistent  
;  with the objectives of Article 50 of the Treaty.
49. White it may be appropriate at a later stage to consider the introduction  
of a separate Regulation concerning social security protection, the  
Commission considers that, in the context of the present position, the  
modifications to Article 5 suggested above would represent an important  
advance in this area.
The development of a system of Training Leave, reference to which is  
made in Part V, is also clearly of importance in the context of social  
security protection and indeed serves to highlight the complicated  
structural difficulties which must eventually be resolved if the Programme  
is to operate in the framework of the complete freedom of movement of  
workers throughout the Member States.

PART V

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PART V
THE CHALLENGES AHEAD
50. In welcoming the United Nations' declaration of 1985 as International  
Youth Year, the Commission fully shares the commitment contained therein  
to the three objectives of participation, development and peace. Viewed
in the context of the very limited exchange opportunities which exist  
today, however, there is now a clear obligation on the Member States  
themselves to participate more actively in the development and implement­
ation of an exchange policy which would go some way further towards  
achieving those aims.
It is neither desirable nor feasible for the Commission to continue  
bearing much of the responsibility for Youth Exchange within the Community  
and 1985 should be seen,therefore,as the year in which Member States began  
to play a more positive role in this field.
51. However, given the experience of the Young Workers Exchange Programme  
over the past 20 years, but more particularly throughout the life of this  
Programme, it has been clearly illustrated that the implementation
of exchanges on a wider scale necessitates the development of a more  
structured administrative network at European level backed up by greater  
financial support from the Member States.
The organisation of exchanges, whether bilateral or multilateral,  
involves a great deal of planning and coordination which is not helped  
by the continued existence of "administrative barriers" some of which  
have already been referred to in the previous chapter on social security  
protection.
52. Nevertheless, while these barriers must be broken down if the  
Community is to create a situation in which exchanges can take place  
more freely, there still remains the more basic problem of establishing
a Training Leave Structure within the Member States themselves. At present,  
and this has been borne out in a recent study commissioned under the  
Programme (1), this structure is still at a very early stage of development.
(1) "Training leave in the European Community - study on the possibilities  
of extending training leave to Young Workers participating in the  
Young Workers Exchange Programme under Art. 50 of the Treaty."

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Consequently, it has proved exceptionally difficult to encourage employers  
to participate in the Programme given the fact that they are not generally  
obliged to release their young workers on training leave within their  
country of origin.
Ideally, exchanges should form an important integral element in a  
training leave structure, thereby complementing a young worker's release  
from his employer with an experience of working conditions in another  
Member State.
Under the terms of its communication on vocational training policies  
for the 1980's, the Commission proposes to further review, in cooperation  
with the Social Partners, the present position as it relates to training  
leave provisions and it is hoped,therefore,that this will focus greater  
attention on the special difficulties presently being experienced in the  
exchange field.
53. There are many challenges ahead therefore, in realising a situation in  
which wide-scale exchanges could take place within the Community. For
the Young Workers Exchange Programme, the efforts of the past 5 years have  
been particularly fruitful, not only because of the very high level of  
commitment given to it, but also because of its real achievements.
From the Commission's viewpoint, despite the difficulties which lie  
ahead, there are strong grounds for optimism and it is felt that a renewal  
of the present Council Decision, incorporating a number of the proposals  
outlined in this report, would afford it the opportunity of taking the  
development of the Programme a stage further over the remainder of the  
1980’s in line with other initiatives likely to be undertaken in this field.
54. Given that the provisions of Article 12 of the present Council  
Decision stipulate that the Council, acting on a proposal from the 
Commission, shall review this Decision not later than 30 June 1984, the  
Commission is presently finalising its proposals for the future develop­
ment of the Programme over the period 1984 to 1989.