COMMISSION OF THE EUROPEAN COMMUNITIES 
C0MC89) 363 final 
Brussels, 8 August 1989 
COMMUNICATION FROM THE COMMISSION 
on family policies 
OQKEENTS 
iwnaxcnoH p. 3 
I. EBCGRAFHIC, SOCDOUDGICAL AHD HXHCMTC (IITI'KXT p. 4 
1. EBGGRAfHIC BM3SGB0QHD p. 4 
A. Trend in principal demographic indicators p. 4 
B. Changes in family structure p. 6 
2. SOCIAL AHD FT1"*™? OLKIMCT p. 8 
A. Women and employment p. 8 
6. Sooio-eoonomlo changes p. 9 
3. ancajcrsKH p. 10 
II. KHJUmmJUM OP IBB BCEB OP THE FAMILY AHD 
ARSONS IN ns FAVOUR m PUBLIC ALTIHKITIKS p. 11 
1. AT IH1SEHAXI30NAL LEVEL p. 11 
2. AT RATIONAL I£VEL p. 12 
3. AT (TMMnHTTY LEVEL p. 13 
III. CXXELBSttX p. 14 
AHNEXE I : LIST OP SENIOR OFFICIALS PAKnCrPATDC IH PREPARATORY WQRC 
ANHEXBH : SIATISTIGAL TABLES 
AHHEKB III : HT/WIORf OP MEASDRES TAKHJ IH SUPPORT OP THE FAMELT 
(Working document prepared by Oomnission servioes) 
AHNEXB IV : THE SHAKDC OP WggTKBTBTT.TITES JM THE MBiBBR STATES 
-a-
nfmuuuTiui 
1. Varied approaches to the question of family exist in the Member 
States. Conception of the role of the public authorities with regard to the 
family also differs. However, by the slanting of diverse measures adopted 
in a certain number of areas such as social security, taxation, family law, 
etc. in all Member States, the public authorities are directing their 
attention to families* living conditions. Family policy conditions the sum 
total of these interventions. 
2. In its oommunioation "Problems of social security - areas of common 
interest" of 24 July 1986, the Commission analysed the implications of 
demographio trends in the Community, and proposed the organization of 
"concertation at the level of senior national officials responsible for the 
policies (family policy measures), as is already the case in the field of 
social protection".- At the meeting on 27 May 1987, the Council of 
Ministers for Social Affairs welcomed this communication, which responded 
to the European Parliament recommendations (resolution of 9 June 1983 on 
family policy in the Community) and to those of the Economic and Social 
Committee (report on the demographio situation and report on the social 
aspects of the internal market) all adopted almost unanimously. On 
22 February 1988, the Council on General Affairs adopted the following 
conclusions: "At the European Council in Copenhagen, the French delegation 
mentioned the disturbing demographio situation in Europe and emphasized 
that Europe could not retain its political, eoonomlo and cultural position 
in the world without a renewal of its demographio dynamism. The Ministers 
responsible far Family Affairs will meet to exchange information on their 
national experiences and will submit a report in 1989 on their 
3. The aim of this communication is to submit to the Ministers for Family 
Affairs a draft report drawn up in conjunction with the senior national 
officials responsible for family affairs, in preparation for which the 
Commission organized a seminar an the implications of Community family 
policies (Frankfurt, 18-19 April 1989). 
One following were stressed during the preparatory work: 
the disturbing demographio situation in Europe; 
the impact of social and économie changes an the family; 
the effects of Community sectoral policies an the family; 
the fundamental role of the family as the basic unit of society; 
the cultural and sooio-eoonomio role of the family, based on the 
transmission of values and inter-generational solidarity. 
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5. From this work, four main areas of common interest emerged: 
ways of reconciling work and family life and sharing family 
responsibilities; 
measures adopted to assist certain categories of families; 
consideration of the most deprived familles; 
impact of Community policies an the family, in particular the 
protection of children during childhood. 
6. On this basis, the draft report in question, after describing the demographic, social and economic context of the family, and reviewing its impact on various family groups, concludes with an outline of a feasible approach to these questions. 
7. Annex m, a working document prepared by Commission services, 
nmn+Ai-na a description of national measures adopted In favour of the 
family, mainly relating to the above areas of common interest and based on 
information supplied by the Member States. 
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I. TiarCTAwnq yyTfirrynriAT. Awn Hrymrmr wyrpjriiim 
1. DaCGRAPHIC BACUSOUND 
A. Main demographic indicators 
8. Since the end of the 1960s we have been witnessing a reversal of 
demographic trends. The high birthrate, which had been characteristic of 
all European oountrles since the industrial revolution, daolInert at an 
Increasing rate from 1965 onwards. Since 1980, no EEC country, with the 
exception of Ireland, has achieved full population replacement. Deaths 
outnumber births with a consequent standstill In population levels, and 
even a reduction within a few décades unless entries (births and 
immigrations) compensate for the losses. 
9. This rapid fall in the birthrate since 1965 Is remarkable not only 
because it occurred simultaneously in all the countries of Western and 
Eastern Europe, but because all strata of society have been affected, 
regardless of religion, social status and education and despite the 
économie growth rate of each of these oountrles, the proportion of women on 
the labour market or unemployment rates. 
10. This decline in the birthrate is not an isolated phenomenon, but 
occurred in parallel with other factors, such as the decline in the number 
of marriages, an Increase in the period of time between marriage and the 
birth of the first child, and a rise in the number of divorces. 
11. In all the oountrles of the Community, marriage, often preceded by a 
period of cohabitation of varying length, is being entered into later in 
life and less frequently, so that between the beginning of the 1970s and 
the beginning of the 1980s the total number of marriages declined by 20%. 
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In other words, if the behaviour observed in recent years in various age 
groups were to be true of a whole generation throughout its life, marriage 
would lose its general and more or less universal character and be entered 
into by only half or slightly more of the population. However, it is 
likely that the present Indices exaggerate the trend.1 
12. Alongside the decrease in the number of marriages, there is an 
-tivwfrtfs» in the number of unions "by agreement" or "de facto" marriages 
which would account for the Increase in the number of children born out of 
wedlock. While no Member State remains untouched by this trend, the 
relative scale of the phennmenon differs greatly from one Member State to 
another. With close to 40% of births being Illegitimate, Denmark occupies 
an entirely exceptional position'; the united Kingdom and France are in a 
ffinrfiM» situation (roughly 20% in 1985), followed by the Federal Republic 
of Germany, Ireland, the Netherlands and Luxembourg, where the rate varies 
from 8% to 9%. m Greece, less than 2% of recorded births occur outside 
marriage (see Annex II, Table 4). 
13. Since the mid-1960s and, above all, since 1970, there has been a very 
rapid rise in the divorce rate; the number of divorces tripled between 
1964 and 1982. Divorce is not only becoming more frequent, but is 
occurring earlier in the marriage. The increase in the Intensity of the 
phenomenon and the shortening of the duration of marriages ending in 
divorce combine to produce a véritable explosion of the divorce rate 
Indicators (see Annex II, Table 3). In the light of the Initial data 
available, the final proportion of divorced couples among those who married 
In 1975 will probably be over 1 out of 5 In France, over 1 out of 4 In 
England and Wales and dose to 1 out of 3 In Denmark.2 
14. Significant changes have also taken place in regard to the mortality 
rate. Whereas, at the end of the last century, the average life span in 
Europe was between 40 and 50 years, with an infant mortality rate of 
10 to 20% ..., today, life expectancy Is well over 70 years, ooming close 
to or sometimes eaooofling 80 years In the case of women; the Infant 
mortality rate is under 1%.3 This Increase In life expectancy, oomblned 
with the fall in the birthrate, are at the origin of the ageing of the 
population (In other words the proportional increase of elderly persons In 
a given population) typical of Europe today. 
1 Burnel, Eoonomlo and Social Committee Report of 19 June 1985 on the 
demographic situation In the Community (ESC 602/84 SOC 80, p.9). 
2 Burnel, op. cit., p.10. 
3 G. Calot, "La fécondité en Europe: evolutions pw=y^gg et 
perspectives d'avenir", in Symposium on Population Change and 
European Society, IDE, Florence, 1988. 
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15. The longer life expectancy of women (an average of 6 to 7 years) and a 
substantial drop in the mortality rate of the extremely elderly has 
accentuated the Imbalances in the group of the elderly. The category of 
75 years and more is becoming numerically and proportionately larger, and 
women are in the majority In this group (over two-thirds in 1985). 
16. The combination of these various factors: a fall in the birthrate, 
Increased life expectancy ocmnlned with a fall-off in the flow of 
immigrants since 1973, has had repercussions on all society's structures, 
especially the age structure of the population. Europe is ageing, and 
although this process is slow at the moment, the first signs can be seen in 
the distribution by age group of the population. This Increase in 
longevity Implies that in the long term the active population will be 
older, expenditure on health and pensions will be higher, and there will be 
an additional burden on families who have to provide for their older 
members. The fall in the marriage rate and the increase in the divorce 
rate have altered the family structure and increased the diversity of 
family models, phenomena which need to be confronted. 
B. Changes In the family structure 
17. In the course of time, the terms "family" and "household" have come to 
mean different things, depending on the country and region: this 
phenomenon persists today and is tending to become ever more oomplex as a 
result of current demographic trends. It should above all be noted that, 
whereas formerly a household was an economic unit, today it is rather a 
unit of oonsumption. until the mid- century and still in certain regions 
of the south of Europe and rural areas, the family was a production unit 
where each member has an économie function. At the present time, following 
the expansion of paid employment, economic activity is carried an outside 
the family and the family and the place of production are becoming 
disassociated from each other. Secondly, changes in the birth, mortality, 
marriage and divorce rates have had significant repercussions an the 
number, size, formation and composition of households. The household 
consisting of a married couple with one or more children is still the 
prevailing model, but it is not the only one. Other types of household 
have emerged and their numbers are far from negligible: reconstituted 
families (in other words composed of a new partner and 
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children of a former spouse, or Including children from a former marriage 
of each partner), single-parent families, or unions "by agreement". There 
is a wide range. The average size of households has diminished in the last 
two decades and there has been a rapid increase In the number of households 
consisting of one person and single-parent families, to the detriment of 
large families. 
18. In Denmark, the united Kingdom and the Federal Republic of Germany, 
one household in ten with a child under the age of ten is a one-parent 
family, the head of the household being, In most oases, a woman. Whereas 
In the past, widowhood was often the reason for setting up this type of 
family, today they are more generally the result of the higher divorce 
rate.* 
19. The proportion of one-person households is on the increase throughout 
the EEC countries, with some difference between the north and the south. 
In the 1980s they accounted for about 30% of all private households in 
Denmark and the Federal Republic of Germany, as opposed to about 12% in 
Spain, Portugal and Greece (see Annex 2, Table 5). Young people and 
elderly persons, Inolurilng a large proportion of women, account for the 
majority of this category of households. On the other hand, the proportion 
of households of five people or more has fallen below 20% since 1980 in 
most countries, the lowest figure being 7.4% in Denmark and the highest 
being 32.5*2 in Ireland. 
20. It is still difficult to obtain statistics on reconstituted families; 
it Is however estimated that in the united Kingdom 7% of children live in 
this type of family3. 
21. It Is therefore safe to conclude that there Is a wider variety of 
households, with on the whole an Increase in the number of small households 
(an average of less than three people; see Annex 2, Table 6). Of these, 
the reference persons are usually adults of 45 to 55 years who In many 
oases are women: single, divorced with children, or widows. This would 
seem to Imply that households where two or more generations coexist are 
becoming rarer, but it also reflects significant changes In Individual life 
cycle . 
1 EEC, Lone Parent Families in the European Community, Family Policy 
Studies Centre, January 1969 (V/543/89). 
2 Council or Europe, Changes in Household Structures In Europe, Report 
of the Select Committee of Experts on Household Structures, Professor 
W. Linke, Strasbourg, May 1968, pp. 19 and 21. 
3 Council of Europe, Recent Changes in Family Structures, Brussels, 
19- 21 May 1987 (DOC. MMF(87)3). 
- d-
Thus a otkUd barn today is, in tte majority of oases, born in wedlock, but 
a child might also be barn out of wedlock: to parents «ho cohabit. A child 
might find himself In a single-parent family after the divorce or 
separation of his parents, then 1A a reoonvtituted family if one or other 
of then r—TTIM or finds another partner, la could constitute a 
one-person hnuwtrrtrt bafts» te ootefctts or marries himself. In futurs, 
this will mean that inttvfctosOs may livs is * series of différent family 
22. lastly. *dl* a large part of tte pnpttJstlm still spends most of its life in * so-catted •*—*••*+—*• (* 
of alter fteily soâmXs raAsas 1ns omssfcfcon of tte child's plsoe 
9 vBS SOSS^HLOSi OS SSBSDVUK 
t. mxamsm 
»£lÊ*m "m* •»>*, +m**m*~~*4<** ********* *S# art<wrfn *M «nwt^ llfllSll •llll S ^ 
Europe is tte I •!••••• in women's employment. Although an increase In life 
expectancy is one of tte ffcotors accounting for the ageing of the 
population, tte decline in the birthrate is generally linked to women's 
emancipation, their access to tte labour market, availability of 
ccmtraoeption, and the phenomenon of the consumer society. In the last 
thirty years there has been a rapid Increase in the female working 
population (see Annex m, Table 7), and more recently, according to 
Meulders and Plasman, married women have accounted for the greater part of 
this increase, both in countries where growth Is rapid and in those where 
it is slow.1 Whereas, previously, activity rates were higher among young 
women (under 25 years) and those aged 40 years and over, at present there 
is a pertain tendency for the rates for the different ages to even out. 
21. At the same time, the long-term unemployment of women, their departure 
from the labour market as a result of disoouragement, and the continuation 
or ^introduction of segregation at work, are phiwinRnft which still too 
frequently accompany the Increase in women's employment. Secondly, in the 
oontext of the economic crisis, Insecure employment for women has become 
more widespread. 
Women's employment is affected by the growth of part-time work, temporary 
work, homeworklng, training periods, eto. For example, in the Netherlands 
the creation of part-time work for women has entirely absorbed the ^r^rrr^*^* 
in employment (see Annex U, Graph 1). 
D. Meulders and D. Plasman, Women at Work, Seminar to evaluate 
Community policy on equal opportunities. Future prospects in the *) 
light of 1992, p.5. 
- 9 -
25. Lastly, the continuing difference in pay for men and women workers, 
largely due to the concentration of women In certain occupations and 
certain économie sectors and the négative impact taxation can have on 
women's employment,1 are factors which should also be taken Into account 
when considering the subject of women's employment. Depending on whether a 
person is married or single, a given Income is subject to different rates 
of taxation. Similarly, there Is a difference between the rate of taxation 
of a couple where both spouses are engaged in an occupational activity and 
one where only one spouse works. These differences can have repercussions 
on certain behaviour: dLsoouragement to marry when single people pay less 
tax than married people, disincentive to offer work to married women.* 
26. In connection with women's employment, attention should be drawn to 
the link between eoonomlo and social circumstances. The Increase In 
women's employment is beneficial for the eoonomlo system, for it tends to 
lower the age structure of the working population. In a shrinking pool of 
workers women represent a potential source of labour. At the individual 
level, women's work is often a necessity for couples, or a guarantee of 
security for women in case of divorce or separation, or if they remain 
single. This change in their situation raises the problem of a double 
day's work for women and consequently the question of sharing family 
responsibilities, and it accentuates the difficulties of reconciling work 
and family life. 
B. Social and eoonomlo change 
27. The development of women's employment, briefly described above, is 
only one element In the economic process which has marked the last two 
decades. Profound demographic changes, as well as economic changes, have 
taken place. The difficult eoonomlo context of the last two decades has 
foroed firms to adapt, particularly to maintain their competitive edge. 
Adaptation has taken the form of an Increasing use of technology, more 
flexible structures or decentralization (subcontracting, homeworklng), and 
Increased flexibility as regards organization of production (reorganization 
of working time, greater mobility, flexible pay structures) and has led to 
a change in working conditions. These changes have also led to 
diversification of the forms and status of work, reorganization of working 
time, use of new technologies and consequently the need to acquire new 
skills, and employment relationships have become more individual. 
1 D. Moulders, op. cit., p.33. Au 
2 D. Meulders, idem, pp.33-34. 
-10-
28. The status of some workers has become sore insecure and that of others 
more marginal: long-term unemployment and early retirement have 
accompanied the changes In the forma of production. In future, a certain 
discontinuity Is likely to te an increasingly cir—I:II characteristic of both 
working life and family lift; there will be some discontinuity. Periods 
of full-tint work will te followed by periods of part-time work, training, 
unemployment or career breaks for family reasons. These are the new 
features of 
29. The trends that have teas undsrllnsl «*n be frt+frftr reversal or 
strengthened by the realisation of tte internal market, which will be 
characterised principally by freedom of mnmmmi» of goods, capital, 
services and persons. Tte dynamic *f*i*» of these four freedoms will bring 
about further eoonomlo leatlunfuiliig, changed working conditions, new 
demands for mobility and training not to Tfrtf« environmental 
reperoussions ... all these factors Indirectly affect family life. Families 
themselves will benefit from tte Improvement In living standards and from 
the decrease in unemployment resulting from these economic Impulses but the 
Initial foreseeable difficulties justifying appropriate accompanying policy 
measures for the most vulnerable sectors of the population. 
30. It would therefore seem advisable to examine the effects of different 
forms of work organization and the status of workers on their family and 
social life, in particular on the balance between work and family life. 
The problem of sharing family and oooupational responsibilities and the 
care of children, particularly in ocmnection with the integration or 
reintegration of people who have left the labour market, will also become 
more acute. 
C. A key oomponent of family policies : childoare facilities 
31. The need for appropriate childoare facilities, in particular for those 
whose parents work is fundamental Is clearly shown by the report completed 
for the Commission by the Childoare Network. "This report deals with the 
most important matter at the social and eoonomlo and demographio level, 
that is to say the relationship between the childoare, equality between men 
and women, and the Inequality for employment"1. 
As a matter of fact, the Increase in the female employment rate and the 
contribution of the women to the eoonomlo life, account taken especially of 
the demographic trends, make the problem particularly acute. 
Policies directed towards a more systematic development of childoare 
facilities have been carried out In certain countries (It is especially the 
case for Sweden), which are experiencing at the same time an Increase in 
birthrate and a particularly high female employment rate2. 
1 P. MOSS, Who cares for Europe's children? 
2 S. GOSTAVSSCN, Cohort Size and Female Labour Supply, In Symposium on 
Population Change and European Society, I.U.E., Florence, 7-10 M 
December 1988, p. 23. 
- 11 -
32. The provision of childoare facilities within the Community Is 
variable. Emphasis has been placed on the role of the State, of local 
authorities or, in many oases, of the family themselves. In additionally, 
companies have sometimes tackled this problem. But in every oase supply 
does not match demand, and familles, often of the more disadvantaged kind, 
have to resort to other solutions, the quality of which is unproven and 
uneven. 
33. It should be emphasized that while the provision of care for children 
of less than three years of age Is a priority, the need to tackle the 
problem of gaps and 111- adopted schedules In structures of cere for 
children aged from three to ten years, constitutes a complementary 
approach. 
34. It should be emphasized that even if care of children of less than 
three years of age Is a priority, unadequate schedules are also a problem 
and the inadequacy and timetable structures of cere facilities for children 
aged from three to ten years, also prove a problem that has to be tackled. 
35. Finally, the cost of childoare facilities is often raised at national 
and local level as well. This question should be examined In all its 
aspects. In particular, the cost of fining quantitative and qualitative 
gaps in the childoare facilities should be analysed from an economic as 
well as social and family points of view. 
36. Briefly, the matching of childoare facilities to the needs is 
essential. This implies a development of structures at the disposal of the 
families at both quantitative and qualitative levels, Including the taking 
into consideration of staff status, broadening to include children aged up 
to 10 years and an objective analysis of économie and social costs and 
advantages. 
AZ 
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3. (UKUJS1CH 
37. The changes occurring in society today are of two kinds, on the one 
hand we find new social and economic circumstances, brought about mainly by 
changes in labour market structures, and on the other démographie changes 
and their impact on the social fabric, especially with respect to family 
structures. These changes therefore place the family In the forefront in 
that it is the area most sensitive to economic and social repercussions. 
According to the Council of Europe report, while the family is the place 
for the creation of new generations and for Initial education, it is also 
part of the économie sector, for it raises future producers and is a unit 
of oonsumption. It also depends on social protection because it receives 
benefits, it affects women's employment since the woman Is generally the 
member of the oouple who brings up the children and cares for the elderly 
and also pursues an occupation. The family Is linked to the environment 
and to éducation. As children are becoming more rare, the demographlo 
future of Europe rests with the family1. In conclusion, the family 
assumes essential role and place in the cohesion and the future of society. 
Therefore it should be protected and specific measures adopted in 
recognition of the services it renders society. 
TO date, how has the role of the family been perceived? How has the family 
been defined? What measures have been adopted in its favour? 
II. KBJULiNlTJIJH OP THE BOLE OP THE FAnUff AND ACEXGff IN US FAVOUR BT THE 
HJBUC AUTHORITIES 
1. AT nnHMATICHAL LEVEL 
38. The paramount role of. the family is stressed In all major treaties, 
such as the Universal Declaration of Human Rights, no Convention No 102, 
and the European Social Charter, adopted by the Council of Europe in 1961. 
In the UN Declaration the family Is defined as "the natural and fundamental 
group unit of society ... entitled to protection by society and by the 
State". The no Convention, however, does not assign priority to the 
family, but does refer to it explicitly in the context of social protection 
and family benefits. The European Social Charter stipulates that "the 
family as a fundamental unit of society has the right to appropriate 
social, legal and eoonomio protection to ensure its full development". The 
Contracting Parties to the Charter undertook to promote that protection "by 
such means as social and family benefits, fiscal arrangements, provision of 
family housing, benefits for the newly married, and other appropriate 
1 Council of Europe, Report on social security in a changing society, 
Professor GTILEAN, Strasbourg, April 1988 (Doc. MSS-4-HF(88;, ^3> 
pp. 27-28). 
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39. Finally, the European Code of Social Security, which also lays down 
minimum standards of protection, allowing the Contracting Parties to opt 
for different "branches" of protection, Includes the "family benefit" 
branch. Ten countries have ratified this option. 
2. AT NATTJOKAL LEVEL 
40. Although the role of the family is broadly recognized in the Member 
States, recognition takes different forms in each of them. Family rights 
are enshrined In eight national constitutions. Four of the twelve 
countries (France, Luxembourg, Portugal and the Federal Republic of 
Germany) have a Minister for the Family, as do the three Belgian 
communities and some of the German Lander. In a number of countries, 
responsibility for the family rests with both central authorities and local 
or regional authorities. 
41. As at Community level, oonoern for the family is expressed in various 
other contexts: economio, financial, social and cultural. 
42. The national attitudes In the various Member States to the very 
principle of a family policy can be grouped Into three approaches, ranging 
from no official family policy at all to an explicit family policy as a 
keystone of society. 
43. Quite apart from these approaches and the reasons for these attitudes 
(solidarity and redistribution, demographic objectives), all the Member 
States clearly undertake various measures in their concern for families' 
living conditions: social benefits, taxation, family law, protection of 
children, protection of mothers and infants, reception facilities and 
family services, education for parenthood, the family environment (housing, 
transport, leisure, holidays, eto.)1. However, whatever the fundamental 
approach adopted, there can be no doubt that, despite the wealth of these 
different policies, they are relatively slow in adapting to the pace of 
change In family structures and of the ocnsequent needs resulting from the 
overwhelming changes In its external environment. 
See Annex: Inventory of measures taken In support of the family. /W 
14 -
44. At least In most countries, family support policies - as far as the 
benefits provided for families are concerned - have tended to mitigate 
these effects, in the sense that family policy has not been undermined; 
benefits granted to families have In fact been Improved, with an Increase 
in the numbers of practitioners involved, particularly in the cities. 
3. AT OOsMDNTK LEVEL 
45. The principals and basic rights including these relating to the role, and protection of the family, as recognised at both national and international level, oanstitute a community heritage as confirmed In the joint declaration (Parliament, Council, Commission) of 5 April 1977, the Preamble to the Single Act and the Déclaration of Fundamental Rights and Liberties of the European Parliament on 12 April 19891. 
46. Free movement of persons, equal opportunities for men and women, equal 
treatment within the area of social security, social and professional 
Insertion of the handicapped have also a family dimension. It is equally 
Important in other reas such as education and training, agricultural and 
the development of SME's, consumer spending and the media. 
47. In addition to these, the need for a more global Community approach has been repeatedly stressed. In its resolution adopted in 1983 on Mrs Cassanmaghago Cerretti's report on family policy2, Parliament considered it essential to Identify and take account of those aspects of Community eoonomlo, social and cultural policy which relate to the family. It called on the Commission to draw up an action programme in conjunction with the European organizations representing the family to promote the launching of family policies in the Member States and, if appropriate, to harmonize policies at Community level, m its Communication of 24 July 196&5, the Commission responded by highlighting the need to gather the necessary Information, draw up an inventory on the measures and provisions in effect, organize concertation at senior national level, and undertake a programme of studies on long—term population trends and their consequences. The Social Affairs Council held In late May 1987 took note thereof. 
1 Art. 7: "The family Is protected economically and socially. 
2 OJBC n* C 184 of 17.11.83. /j< 
3 Problems of social security- - themes of common interest. 
- 15 -
48. The Economic and Social Committee has also looked Into t~o itu&tlon 
of the family in several reports, Including one on danographio trends 
(Burnel report) which stresses that European citizens should be made aware 
of the need for a family policy1. In a recent report on the social 
aspects of the common market, Mr Beretta also emphasized the importance of 
the family and called for "support measures to help safeguard family unity 
and family values, which can be beneficial to society as a whole"2. 
49. Lastly, the network of experts known as the European Observatory on 
Family Policies, which the Commission set up early in 1989, should prove a 
useful tool in examining the development of the family situation and family 
policies In the Member States. 
TIT CXXCUJSXOS 
50. The last décades have been marked by profound demographic and socio­
economic changes, from which no Community country is Immune, even if the 
changes take place with certain time delays and at different rythme. 
51. In short, the demographic trend is characterised by a lower fertility 
rate, an Increase in life expectancy resulting In an ageing population, 
which will decline in the medium-term. This change in age structure of the 
population will be accompanied by a change in family structure, a result of 
the H«*VH™* in marriage and of the increase in numbers of divorce. The 
restructuring of the labour market, changes In working conditions and 
jivvrftftgA in female labour participation are the principal factors In this 
new economic landscape. 
52. In view of the impact of these économie and demographic changes in the 
family, it is important to pose the question as to the nature of the 
prospects and the objectives to pursue. The legitimacy of Community 
Interest is based sot on ideology but on acknowledgement and methods of a 
Community action at family level; the appropriateness of such Community 
interest Is based less on Ideological grounds but more on such objective 
facts as the economic role of the family, the Importance of family as the 
touchstone for solidarity between generations, the irreversible desire for 
equality between men and women and the wish of women to have complete 
access to working life". Community action will have to be pragmatic in 
order to respect the special features of different national policies 
already created and the varying sooio-eoonomlo contexts in which such 
policies play a role. 
1 DOC (ESC) 602/84 Soo 80. 
2 ESC Report concerning social aspects of the internal market, 17/9/87. AL 
DOC ESC 225/87 SOO. 184. IP 
- 16 -
53. Account taken of the above, the following activities could be 
envisaged in so far as they are not already undertaken: 
1. Continuation of actions seeking to inform and to increase 
awareness, particularly through the production of regular 
information on demography and measures concerning families (for 
example, household structure, female activity rates, trend in 
birthrates, eto. ...) using to that effect the network of experts 
already set up by the Commission as well as thematic studies. 
2. Taking into account the family dimension In the establishment of 
appropriate Community policies, for example: In the freedom of 
movement of persons and equality between men and women. 
3. Regular concertation at Community level, principally within the 
framework of Articles 117 and 118 of the EEC Treaty: 
3.1 which would centre on the four following principal themes of 
nngmrÊf) interest: 
- the impact of other Community policies on the family, 
notably on child protection; 
- reconciliation between professional life, family life and 
the sharing of family responsibilities; 
- measures taken In favour of certain categories of family, 
notably single parent and large families; 
- attention to most deprived families; 
3.2 attaching particular iaçortanoe to: 
- the intensification of current work relating to the 
"Chlldoare Network" ; 
- questions raised by job flexibility and notably by the 
development of atypical working timetables and job status, 
also by the provision of adequate basic Infrastructures 
(working hours of puhllo and private services, transport); 
A* 
- 17 -
3.3 taking account of activities taking place within the Council 
of Europe and other International organisations, more 
particularly concerning: 
- the International Year of the Family; 
- the International Convention on the rights of the child; 
3.4 drawing support principally from: 
- the establishment of a consultative structure for family 
organisations at Community level. 
Ai 
T.TST OP SHOOR OFFICIAIS PARTICIPATING IN PREPARATORf 1GHC 
- Madame UAN LOOM, Direction de coordination de la politique 
d'égalité des chances, Ministère des Affaires sociales. 
- Madame TY80UT, Service des relations internationales, Ministère du 
Bien- être, de la Santé et de la Culture. 
- Mr. UHITE, Chief of the International Relation Division, Department 
of Health and Social Security. 
- Mr. O'NEILL, Principal Officer, Department of Social Uelfare. 
Madame THIEBAUT, Oirectora, Centro Estatal de familia y 
convivencia, Direccion general de accion social, Ministerio de 
Trabajo y Seguridad social. 
- De Heer Direkteur generaal HERTECAN, Administrate gezin en 
Maatschappelijk welzijn, Ministerie van de ulaamse Gemeenschap. 
- Monsieur UANLIM, Direction générale des Affaires sociales du 
Ministère de la Communauté française. 
- Mr. UORRE, Kontorchef, International Kontor Social Ministeriet. 
- Madame LECLERCQ. Division des Relations internationales. Ministère 
des Affaires sociales et de l'Emploi. 
- Monsieur LAROQUE, Sous- directeur de la famille, Direction générale 
de la Sécurité et de l'Emploi. 
- Monsieur NEYENS, Conseiller de direction, Ministère de la Famille, 
Logement social et de la Sécurité sociale. 
- Madame RAUASIO, Dirigent», Division UI, "Tutela délia Famiglia", 
Direzione générale Ramporti di Lavoro, ninistero del Lavoro e délia 
Providenza sociale. 
- Madame PINTO, Sub directora general da Familia, Ministère de 
l'Emploi et de la Sécurité sociale. 
-• Dr. GREIB, Ministerialrat, Bundesministerium fur Junged, Faailie, 
Frauen und gesundheit. 
- Madame ALMEIDA, Direction générale de la Famille, Ministère de 
l'Emploi et de la Sécurité sociale. 
m 
-1 _ 
ANNEXE II : Table 1 
Total Fertility Rates, EEC 12, 1960- 1986, 
COUNTRY 
Belgium 
Denmark 
Fed.Rep.Germany 
Greece 
Spain 
France 
Irland 
Italy 
Luxembourg 
Netherlands 
Portugal 1960 
2.6 
2.5 
2.4 
2.3 
2.9 
2.7 
3.8 
2.4 
2.3 
3.1 
3.0 1970 
2.2 
1.9 
2.0 
2.3 
2.8 
2.5 
3.9 
2.4 
2.0 
2.6 
2.7 1980 
1.7 
1.5 
1.4 
2.2 
2.2 
1.9 
3.2 
1.7 
1.5 
1.6 
2.2 1986 
1.5 
1.5 
1.3 
1.6 
1.5 
1.8 
2.4 
1 .4 
1 .4 
1.5 
1.6 
United Kingdom 2.7 2.4 1.9- 1.8 
SOURCE : EURQSTAT, Demographic Statistic». 1988-
(a) Cfr. UAN DE KAA, "The second Demographic Transition 
Revisited .'Theories and Expectations", in Symposium on 
Population Change and European Society, 7- 10 décembre 
1988, IUE, Firenze, p. 30. 
iP 
-2 -
ANNEXE II : Table 2. 
Total Marriage Rates. EEC 12. 1960- 1986. 
COUNTRY 
Belgiume 
Denmark 
Fed.Rep.Germany 
Greece 
Spain 
France 
Irland 
Italy 
Luxembourg 
Netherlands 
Portugal 
United Kingdom 1960 
7.2 
7.8 
9.4 
7.0 
7.7 
7.0 
5.5 
7.7 
7.1 
7.8 
7.8 
7.5 1970 
7.6 
7.4 
7.3 
7.7 
7.3 
7.8 
7.0 
7.4 
6.3 
9.5 
9.0 
8.5 1980 
6.7 
5.2 
5.9 
6.5 
5.9 
6.2 
6.4 
5.7 
5.9 
6.4 
7.4 
7.4 1986 
5.8 
6.0 
6.1 
5.8 
5.2 
4.8 
5.2 
5.2 
5.1 
6.0 
6.8 
6.9 
SOURCE : EUROSTAT. op. cit.. 1988. 
- 3 
ANNEXE II : Table 3. 
Total Divorce Rates. EEC 12, 1965- 1985. 
(divorces per 100 marriages) 
COUNTRY 1965 1970 1980 1985 
Belgium 8.3 8.7 21.8 32.0 
Denmark 15.7 26.2 51.4 49.1 
Fed.Rep.Germany 11.9 17.2 26.6 35.1 
Greece 4.3 5.2 10.7 11.9 
Spain - - - 9.5 
France 10.1 9.9 24.3 39.9 
Irland -
Italy - - 3.7 5.3 
Luxembourg 6.7 10.1 27.1 33.9 
Netherlands 5.7 8.3 28.5 41.1 
Portugal 0.9 0.6 8.1. 13.1 
England 9.6 13.4 38.2 44.6 
and Wales 
SOURCE : EUROSTAT. Statistiques démographiques 1989 
n 
_ 4 _ 
ANNEXE II : Tableau 4. 
Illegimate Birth Rate , EEC 12, 1965- 1985. 
(Illegimate Births as a Percent of Total Births) 
COUNTRY 
Belgium 
Denmark 
Fed.Rep.Germany 
Greece 
Spain 
France 
Irland 
Italy 
Luxembourg 
Netherlands 
Portugal 
United Kingdom 1965 
2.4 
9.5 
4.7 
1.1 
1.7 
5.9 
2.2 
2.0 
3.7 
1.8 
7.8(a) 
7.3(a) 1970 
2.8 
11.0 
5.5 
1.1 
1.3 
6.8 
2.7 
2.2 
4.0 
2.1 
7.3 
8.0 1980 
4.1 
33.2 
7.6 
1.5 
3.9 
11 .4 
5.0 
4.3 
6.0 
4.1 
9.2 
11.5 1985 
_ 
43.0 
9.4 
1.8 
-
19.6 
8.5 
5.3 
8.7 
8.3 
12.3 
18.9 
SOURCE : UAN DE KAA, op. cit., p.33. 
(a) cfr EUROSTAT, Statistiques démographiques 1989, 
*3 
ANNEXE II : Table 5. 
Proportion of one person households and proportion o;: 
i households consisting of 5 or more persons Ë~C 12, 195C- 1 
I 
COUNTRY Proportion of one Proportion of hou^feiiOxCis 
person households of 5 persons or n;o; e 
(,t) (*) 
Around Around 
195C 1960 1970 1980 1950 1960 1970 1<-oii 
Belgium 15.8 16.8 18.8 23.2 14.9 16.0 16.1 11 
Denmark - 19.8 20.8 29.0 - 14.8 12.7 '< 
Fed.Rep.Germany 19.4 20.6 25.1 31.3 16.1 14.2 12.9 
Greece 8.7 10.1 11.3 14.6 39.1 31.6 22.1 
Spain - - 7.5 10.2 - -33.5 26. 
France 19.1 19.6 20.3 24.6 19.1 20.". 19.1 11. 
Irland - 12.6 14.2 17.1 - 35.3 o5.2 J2. 
Italy 9.5 10.7 12.9 17.8 33.3 2V.G 21.6 1*. 
Luxembourg - 11.5 15.7 20.7 - 18./ 17.1 12. 
Netherlands - 11.9 17.1 22.1 - 26.7 20.4 11. 
Portugal 7.6 10.8 10.0 12.9 35.8 29.1 27.3 2u. 
United Kingdom 10.7 13.4 18.1 21.7 18.2 16.1 14.5 11. 16, 
SOURCE : COUNCIL OF EUROPE. Changes in Household Structures 
in Europe. Report of the select cornai-tee of experla 
on household structures, by Prof. *. Lir^L, 
Strasbourg, février 1989, CPSO (89; 2, p. 19. 
JV 
. 6 
ANNEXE II : Table 6. 
Average composition of households, EEC 12, 1950- 1980. 
COUNTRY AUERAGE COMPOSITION OF h'OJSEriO^DS 
IN ABOUT 
1950 1960 1970 '. VbO 
Belgium 2.97 3.01 2.9i> 2.v.-
Denmark 3.10 2.90 2. fi k.^'c 
Fed.Rep.Germany 2.99 2.88 2. ^ .-..M-
Greece 4.11 j.7ti 3.J> 3.12 
Spain - - 3.8' ^..03 
France 3.C7 3.* G 3.G6 2.70 
Irland 3.96 3.93 J.66 
Ital* 3.97 3.63 3.35 J.01 
Luxe-bc^rg - 3.21 3.07 2.79 
Netherlands - 3.58 3.20 ' Z.Ï6 
Portugal 4.C8 3.72 3.67 3.35 
United Kingdom 3.41 3.21 2.91. 2.72 
SOURCE : COUNCIL OF EUROPE, op. cit., p.2C 
I'esnplo', Se.rirsairfl d"evaluation cic iu puxiti^v.;.-
corcsLnaut_ire en .natiere d'atjalite ~i:. c\i.ices. 
Perspective futures e.i liaise- a.u-c 'W2, p. 4. 
Table 8: Taxable unit and method of taxation in force in the Member States 
of the European Community 
Country Taxable 
unit Method 
of 
Taxât ion Special arrangements 
Belgium 
1989 household aggregation For households with two employment incomes/ including replacement incomes, 
separate assessment is applied at the appropriate rates. 
A spouse's quotient is applied to families with a single income: 30% of the 
working spouse's employment income (pension etc.) up to BF 270 000 is 
apportioned to the non-working spouse and each of the net incomes is then 
taxed at the appropriate rate. Where more advantageous than separate 
assessment, the system is applied to households with two incomes. The spouse' 
quotient is granted to all households which have only one income/ irrespective 
of level/ but only on that portion of the earnings not exceeding BF 900 000. i 
Germany 
1988 household apportionment The spouses may choose between apportionment and separate 
assessment. Apportionment is always more advantageous. 
Denmark 
1988 
Spain 
1988 
France 
1988 individual 
household separate 
assessment 
aggregation 
household No special arrangements. Straight aggregati on. 
family 
quotient Where there are no children/ "spouse's quotient" is the term 
used/ which is the same system as apportionment. 
Table 8 (continued) 
Country Taxable 
unit Method 
of 
Taxation Special arrangements 
United Kingdom 
1988 household aggregation Husband and wife may request separate assessment of the wife's 
earned income. 
Grand Duchy of 
Luxembourg 
1989 household family quotient Apportionment is applied to married couples without children, 
Greece 
1987 individual separate 
assessment i 
Ireland 
1988 household apportionment Spouses may choose between separate assessment and aggregation. Where they 
opt for aggregation/ the tax bands are doubled; the effects on progressivity 
are identical to those of apportionment which is always more advantageous 
than separate assessment. 
Italy 
1989 
Netherlands 
1988 
Portugal 
1988 individual separate 
assessment Income legally deemed to arise from joint sources and the 
incomes of minors are split equally between the two spouses. 
individual 
household separate 
assessment 
aggregation The employment income of the wife is assessed separately. Her 
remaining income is aggregated with her husband's. 
No special arrangements. Straight aggregation. 
!* 
100 -i Graph No 1 
o Creation of female part-time work as X of total creation 
of female employment in the services (1975-85) 
Netherlands Belgium France Germany 
Source: EUROSTAT figures/ 
in MEULDERS, D., op. cit., p.16 United 
Kingdom Denmark Ireland Italy 
20-i Graph No 2 
% CHANGE IN TAXATION IN THE EVENT OF MARRIAGE 
(total income ECU 18 600) 
Q one income household 
03 Two income household 
B FRG D S F UK I 
SOURfE : MEULDERS/ D., op. cit., p. 41 IT NL 
Graph No. 3 
X CHANGE IN TAXATION IN THE EVENT OF MARRIAGE 
(total income ECU 37 200) 
0 One income household 
0 Two income household 
ro 
SOURCE : MEULDERS/ D., op. cit., p. 42 
U> 
Graph No. 4 
DIFFERENCE IN TAX PAID BY MARRIED AND SINGLE WOMEN 
(X OF TAX PAID BY A SINGLE WOMAN) 
100 i «o 
0-f 
•loo H 
•200 H 
•300 A o 
•400 O» Q Total income ECU 18 600 
rrj Total income ECU 37 200 
o o m 
en y ' '• i W 
o 
o o o IP3 o o o o CO o 
I 
FRG UK IR IT NL 
SOURCE : MEULDERS/ D., op. cit., p.44 
Lu 
ANNEXE II : Table 9 
This table contains relatively comparable ciala on do facto hoir_.elioi<ib in tne various countries. 
COUN'iNY n.jio of I Actual n<je groups .Tcdoiiii ant Number 
(i.jia ousohoU!;, mo i represented civil sutus of children 
i>. C r 1. !'»"?• a: .;.!..?.(1 • .10 .is \JC.J;:.> (I) ..i-parviLrc divorced 1 or 2 in 10% of cases 
C.W. 
3- 1?K3 V. !.•?.(.'• i U:--KV Sit ij(-irs •., inqie WVl have one or more 
chi tdren 
on. 
I'R. <:»;«(', U)?. ? Households in 
10 iiiuier .'!> uear:> 
.; j't 10 in towns 
TT. 1W, 'i !>?. ?0 .iO and ..e|Mf.)-.;'d 'i()% nave one cnild 
.SO- •'••) ijoars di'.'or-crd />0?, have two 
I . ",<):?1 ?JJ .SO and separated-
over 60 years divorced and 
. in-jlr 
N. 1981 5.6% Under .50 ...in<jlo have child or children 
find •..'"> 6» 
P 
U.K 19JO HA ••'•?.(/!) 
(1) Women aged ?0 ».S. (?1 Oi «..:?. depending o-i dcNniUoii '..'I t«. in.'.', iinr i.i'.^.s (.SJ toomen ayeo 1H lo IS. 
SOU'lOF : corner, I'odeles fanili.i!:- el loqisiaUon ..ociale-.., I)ecni:.ji e lv:-.(, p. ?'<\. 
ANNEXE II : Table 10 -15 -
FIGURE 3.9 
Lone porent households os Z of households with children 0-9: 1.985. 
VN Households with cnircTO-4 
O 
en o 
V) 
o 
JZ 
0) V) 
D 
o 
JC 
"c 
o 
Q. 
o> c o 10H 
5H C£ 
NL B L UK 
Country iRl DK CR Households with child 5-9 
LPS doto or. wnr.Uobl# 
f°' 0>C. Doni.h figUPes 
suggest I5X of household 
With childr.n or. Ion* 
porent households. 
FIGURE 3.10 
Children born outside morrioge os Z of births: 1965.1975.mid-1980s 
??*oo-I 
o 
E 
v 3oo ^ 
"in 
o 
52 200 H 
JO 
"5 
^ IOCH 
w 
^fJf^StS F$ 
NL • -B UK 3 1965 
S 1975 
p>] mid-1980s 
Country 
SOURCE: MOSS, P., Childcare and Equality of Opportunity, April 1988, 
Commission of the European Communities, V/746/88- EN. 
34 
AMHEXi: 31: Table 11 
This table contains relatively comparable data on the one parent families in the various countries 
COUNTRY 
B. 
P. 
U.K. Date of 
data 
1981 
D. 
G. 1985 
GR. 
SP. 
FR. (1) 198? 
IR. 
JT. 1981 
I. 1981 
II. 1983 Number of one parent families Predominant civil 
II * of iota! status 
house 'olds 
1.760.000 * of Number of Children 
women 
250.000 1./* 1) widow/widower 80* 2/3 have 1 child 
2) separated or divorced 1/4 have 2 
13* have 3 more 
1J widow/widower 
1984 887 040 
1.230.000 
9.946 
150.000 
940.000 (,. .•;* 
<;. !>v. 
?.v* 
1 37. •uidow/u . cower 
widow, uidower 
1 )s< parateii or divorced 
2)uido*' widower 85* 
so* 
80* 
89* 2/3 have 1 child 
1/4 have 2;30*, 
or more 
55* have 1 child 
60* have 1 child 
25* have 2 i 
1.6 on average 
(1) De facto- excluding couples co-habiting. 
SOURCr : COIACP, Modèles familiaux el legislations sociale-..», Décembre 198/, p. 28 bis. 
^ A 
- 17 -
TABLE 1 2. 
Maternity and Parental Leave 
Maternity Leave: 
Post-natal 
period (weeks) Payment Parental Leave: 
Period If can be taken 
(months) part-time Payment 
8 (+4 for 100% of 
premature/multiple earnings 
births) 10 If employer 
agrees 
10 (+8 for 3rd* 
child: +2 for 
multiple births 90% of 
earnings Flat-rate for 
all until 
child 6 mnths 
(6000M/mnth: 
1987): then 
income-related, 
so higher 
income families 
get less 
24 Yes None unless 3 
or more 
children, when 
flat-rate 
(2400FF/mnth: 
4/87) 
I 
N 
6 
L 
UK 12 
6 
8-14 (6 weeks can 
be taken before or 
after birth). 
8 (+4 for 
premature/multiple 
births) 
29 
[NB Not technicalb 
leave.] 80% of 
earnings 1 
100% of 
earnings 
100% for 1-4 
weeks; then 
60%+20% for 
women with 
low earnings. 
100% of 
earnings 
6 weeks at 
' 90% of 
earnings, 12 
weeks flat-
rate. 
Part paid in 
pre-natal 
leave period 6 (to mother 30% of earnings 
but can 
transfer to 
father) 
None, but Government has proposed scheme 
which expected to begin in 1988 or 1989. 
None - but has scheme for 'career 
interruption for family and personal 
reasons'. 
None - but Government has proposed a 
scheme. 
None 
% 
1R 
OK 
€ 
P 
ES Maternity Leave: 
Post-natal 
period (weeks) 
4-10 (6 weeks can 
be taken before or 
after birth)(+4 If 
•other requests) 
14 
7 
81-13 
(30 days can be 
taken before or 
after birth) 
Total of 14 for 
leave before and 
after birth, to be 
taken as mother 
decides - 18 -
TABLE Ucont'd 
Maternity and Parental Leave 
Payment 
70% of 
earnings: 
'additional' 
4 weeks 
unpaid 
90% of 
earnings 
100% of 
earnings 
100% of 
earnings 
75% of 
earnings Parental Leave: 
Period If can be taken Payment 
(months) part-time 
None 
• 
2* 90% of 
earnings 
6 (3 months none 
per parent: 
6 for . lone 
parent) 
Upto 24 [Separate part- No 
months time entitlement] 
None - though employees may take 3 years 
break from employment, with preferential 
treatment when apply for re-instatement 
SOURCE : MOSS, P., ChiIdcare and Equality of Opportunity, April 1988, 
Commission of the Europen Communities, V/746/88- EM., pp. 72- 7Î. 
n 
AHHEXB III 
IHVBHTORY OF MEASURES TAKBM 
II SUPPORT OF THK FAMILY 
(Working document prepared by the Commission services) 
H 
- a-
mjHnwv 
IHVERDGRT GF MBASORES TABS IM SOPPCRT OF THE FAMTLT 
I. OQMPBSSAHGV FCR FIHAMCTAL mu>WJS 
1. FAMILY BEHEFUS p. 4 
2. SOCIAL ASSISEAHC8 p. 5 
3. TAXATKH p. 6 
H. FAMILY EHVUCHMHaT 
1. HCDSDG p. 7 
2. TRANSPORT p. 7 
3. S3HDY GRAVIS p. 8 
4. IBB MEDIA p. 8 
3. AOCTTWrrS IM THE BOMB p. 8 
HI. MBASQEŒS TAKBI BY THE MEMBER SEATES IM 
pgrATTOJ JO OGMMQM lKHflflftg 
1. BAIAHCTJG 1TJK AHD IMMTLr LOT. 
SBAROC OF IMSrtWKIHIl.TiTBB 
HIHIM TBE FAMILY. p. 8 
A. Maternity and ohildoare measures p. 9 
(ajMeasures directly relating to the health of 
•other and child p. 9 
QOSoaLal support measures with regard 
to maternity p. 9 
39 
- 3 -
B. FACILITIES FOR GBU2SQÎ OF PRE-SCBOOL AMD 
SCHXtL AGE CSUISW p. 10 
C. FAIRER DIVISION OF FAMILY RESFGMSIBnJTIES p. 11 
D. MEASURES OCNCERNING WQRETNGr HOURS p. 11 
2. SUPPORT FOR SPBCOTC CROUPS p. n 
3. SUPPORT FOR THE MOST EBHŒVBD FAMILIES p. 13 
**> 
- 4 -
mvHnrjRf OF MEASURES TAKEN or SUPPORT OF TBB FAMILY 
QQ the basis of replies to a questionnaire sent to Member States, the 
Commission has drawn up a brief inventory of measures taken in support of 
families. After mentioning the provisions on financial compensations for 
the cost of having children and those affecting the external environment of 
the family, the report will examine measures directly related to the four 
topics of common interest in greater detail. 
I. OQMFEHSATirjH FOR FINANCIAL rWff* 
1. FAMILY BQŒFITS 
All countries share the overall goal of stepping up and improving the 
balance of family allowances in order to offset more effectively the cost 
of child rearing and improving the family's living standard. 
All Community countries, then, pay family allowances to their nationals. 
The amount and the criteria for its award vary from one country to another, 
but in most oases allowances are increased in the case of large families or 
low-income families; they may also be increased where the head of 
household is unemployed or disabled, or where the child is an orphan or is 
handicapped. The age limit for the granting of family allowances varies 
from 16 to 25 according to the country (for more detailed information on 
the conditions for granting such benefits, see the comparative tables drawn 
up by the Commission). 
TO supplement family allowances, Luxembourg and Germany have, like France, 
introduced an education allowance. This is paid to parents when one Is 
solely occupied with bringing up a child under the age of two. This 
measure came into effect in January 1989 in Luxembourg; it has been 
applied since 1986 In the Federal Republic of Germany, m France only 
families with at least three children are affected. 
Other branches of social security also help to provide proper protection 
for the family. 
<H 
- 5 -
In the Netherlands, Luxembourg, France, as In Germany, législation covers 
the question of failure to pay maintenance. In 1964, French Parliament 
adopted a basic law entrusting to the bodies disbursing family allowances 
the recovery of unpaid maintenance. In future, the orphan's allowance, now 
renamed the family support allowance, will be granted as an advance on the 
maintenance that will be recovered by the family allowances fund. In the 
Federal Republio of Germany, where maintenance is not paid, by the father, 
the State may take his place temporarily and pay a pension (currently 
EM 228). 
In France, the Netherlands and Luxembourg, a whole set of provisions are 
aimed at putting parents who remain at home on a proper footing In terms of 
old age, sickness and maternity cover. In France, one example of this is 
the 10% increase In the pension for any person who has had at least three 
children, In Luxembourg the period spent bringing up a child may be 
regarded as the equivalent of twelve months' actual insurance cover. A 
period of six years for one child, eight years for two children and ten 
years for three children may be taken Into account for the purpose of 
completing the qualifying period for pension insurance. 
2. SOCIAL ASSISTANCE 
The social services responsible for protecting children and young people 
are many and various In the Member States. Tlisting them would be a 
tiiDe-cansuming process. It is better simply to bear In mind that the alms 
of these services can be briefly summed up as follows: to provide care and 
temporary assistance for young children; to provide advice and assistance 
for young people, couples and familles; and lastly to assist familles In 
which some of the members are In difficulty (disabled, elderly, drug 
addicts, eto.) to alleviate their burdens. 
Tô meet the first objective, day nurseries, nursery schools and primary 
schools are adequate. 
Children may also receive medical aid through day nurseries and educational 
establishments (Portugal, Italy, Luxembourg, Denmark, France). 
Portugal goes still further, taking an Interest In the nutrition of young 
people. Tree mllx is distributed In primary schools, and canteens have 
been set up in some schools to ensure that all children are adequately fed. 
m Ireland, meals subsidized at a rate of 80% by the various local 
authorities are provided In schools. 
«+2. 
-6 -
The second objective Is primarily achieved through family counsellors. In 
France, Belgium, Italy, the Netherlands, Denmark and Luxembourg, a muiftw 
of centres provide psychological guidance for pupils In post-primary 
education, particularly to prevent children from falling behind. Other 
centres provide couples with psychological and social assistance to help 
them fulfil their parental role responsibly or to see them through periods 
of crisis (France, Italy, Belgium). 
Finally, it Is usually the local authorities which keep a check on 
children's living ortndltlrmfl (abuse, family conflicts and so on), and which 
try to prevent delinquency (Spain, Portugal, Italy, Ireland, France, 
Belgium, the United Kingdom and the Netherlands). 
Borne helps are generally provided for the elderly and for families of the 
disabled. When a mother cannot cope with family and household tasks 
herself, she may also be given a home help temporarily (France, United 
Kingdom, Italy, Ireland, Belgium, Luxembourg). 
3. TAXATION 
In all Community countries, families can obtain tax reductions depending on 
their size and income. These exemptions are generally higher where there 
is a third child, where the family Includes a disabled or elderly person. 
They also apply In the case of the purchase of a dwelling (Spain, France, 
Luxembourg). 
Just as In the area of social assistance, there are many tax measures 
affecting the family directly or Indirectly. The comparative Table 8 and 
graphs 2, 3 and 4 (see Annex; show the Impact of the various methods of 
taxation, and in particular the undesirable effects that they can cause. 
W3 
- 7 -
H. FAMILY ENV3BQNMERT 
Several countries (France, Greece, Portugal, Luxembourg, Belgium and the 
Federal Republic of Germany) are oonoerned about the environment In which 
families live and the need to Improve council housing or community 
amen1tl.es (green areas and playgrounds). Cooperation between national and 
local authorities is absolutely essential for this. One example, in 
France, is "family oantraotsM, which take Into account the wishes of 
families when changes are made to their local environment, for instance 
when activity or community centres are set up. 
1. HOUSING AID 
There are several types of housing aid specifically aimed at large or 
low-income families. 
First, there are allowances enabling families In difficulty to pay their 
rent (Greece, Portugal, Netherlands, France and Italy), m Luxembourg, 
certain commiines take rent Into account in assessing the amount of 
financial assistance families should receive. 
Many countries pursue a low-cost housing construction policy (Greece, 
Belgium, Spain, France, Italy, Luxembourg and Ireland). The criteria for 
access to such housing relate mainly to the composition of the household 
and its income. 
Some countries grant loans or low Interest rates to various categories of 
people seeking to acquire or renovate a dwelling (Greece, Portugal, France, 
Italy and Luxembourg). In the United Kingdom and In Ireland, local 
authorities are required to provide accommodation for the homeless. 
2. TRANSPORT 
A reduction ranging from 20% to 80% Is applicable on railway networks, 
urban transport and sometimes airlines (Spain) depending on the number of 
children and income of the family (Spain, Netherlands, France, Italy and 
Luxembourg, Belgium) and on the basis of age (Portugal). In France and 
Greece family tourism Is assisted, m Ireland school transport Is free. 
<* 
- 8 -
3. STUDY GRANTS 
In Portugal, Spain, Luxembourg, the Netherlands, Belgium, United Kingdom 
and France, secondary school pupils and university students may receive 
study grants. Their award depends on school results and the family Income 
level. 
4. THB MSSTA 
France and Luxembourg are concerned about the way In which families are 
portrayed by the media. In France, since 1981, the public authorities and 
family associations have examined the Issue of the family Image In the 
media. They deplore the fact that television's Image of the family Is 
unrealistically narrow. Family and consumer associations In Luxembourg, 
nevertheless, use the media to put across their Information. 
6. Accxrms ur THB HOME 
Portugal, France and Iiixembourg point to the number of accidents that occur 
In the home and their potential seriousness and give advice on preventing 
such accidents. 
HI. MEASQRES TAXHff BY TBB maman STATES IM WB/ATÎTJH TO OHMfTf ^nainp 
1. BALANCING WORL AND FAMILY LEFB. SHAKING OF RESPONSIBILITIES WITHIN 
IBB FAMILY 
The Member States are becoming Increasingly aware of the Importance of 
women In the workforce and the ensuing conflicts between family and working 
life. Most women would like to see the organization of working time 
improved, particularly so that pregnancy and maternity no longer become an 
<tf 
- 9 -
occasion for their marginalIzation and de-skilling. This objective could 
be attained by: 
improved maternity and childcare measures, Including In particular 
special authorization for absence from work and leave for parents with 
young children; 
facilities for pre-sohool and school-age children; 
- a fairer division of family ™*»pn«flriH<mri*ff; 
measures concerning working hours (reduction, flexitime, part-time 
work). 
A. Maternity and childcare measures 
(a) Measures directly related to the health of mother and child. 
In the majority of Community countries, antenatal care consists of medical 
consultations and home visits. The latter often continue for several 
months after the baby is born. Later on it Is the school and the school 
doctor or the social services (Denmark, Luxembourg and Ireland) which take 
over and provide medical check-ups for all children. 
Special recommendations on breastfeeding have been drawn up. As a result, 
breastfeeding mothers In Greece, Luxembourg, Belgium, Portugal and Germany 
can take one or two hours off each day with no change In their monthly 
wage. In addition, they are not allowed to do any dangerous work. In 
Denmark, some groups have been given the right to 10 to 18 days' special 
leave per year when a child Is ill. 
(b) Social support measures with regard to maternity. 
The main social measure with regard to maternity is maternity leave, which 
Is generally accompanied by cash benefits (see Annex II, Table 12). 
% 
- 10 -
Maternity leave Is given throughout the Community, at least to pihllo 
sector staff. 
Parental leave, which exists In several Member States, is also an Important 
factor In balancing work and family life (see Annex H, Table 12). It Is 
given Indiscriminately to either parent and lasts anything from three 
months to three years. Parental leave Is paid only In France, Italy, 
Germany and Denmark. In the United Kingdom leave Is granted in certain 
sectors, depending chiefly on agreements between employers and employees. 
C. Facilities for pre-eohool and school-age children 
As regards ohildoare facilities, a variety of systems exists in all the 
Member States. However, whether they take the form of creches run on a 
collective, family or parental basis, nursery schools or child-^ninders, 
there are not enough places to meet the growing demand.1 
Some countries, like France, Italy and Denmark, stress the Increasing role 
that the local authorities will have to play In providing day-care centres 
for children aged up to 6. An example of this is the "childhood contract" 
proposed to the French municipal authorities whereby the financial support 
given to the ocinmine Is increased provided the oanrcme increases ohildoare 
facilities, however Innovatory they may be. 
In Ireland, creches and nursery schools are privately financed 
Institutions, not In receipt of pibllo funding. 
Italy Is concerned with family Involvement In the management of schools. 
It wishes to facilitate the Integration of disabled children in ordinary 
schools to promote their learning and social skills. It Intends to extend 
the statutory period of schooling with a view to Improving the level of 
pupils' education, but also to resolve the problem of ohild-minding when 
parents work. 
Moss, P., Phillips, A., «ho oares far Europe's children? BBC, ui 
V/1219/1/88, June 1968. M 
- 11 -
C. A fairer division of family responsibilities 
Since the 1970s, in most European countries, the notion of the father as 
head of the family, along with his wife and children as complementary 
manners of the family unit, has given way to the idea of joint parental 
authority or responsibility. All too often, however, fathers have 
disengaged themselves from the family, not only In terms of financial 
responsibilities but in other areas too. 
D. Measures <vtnnornirg working hours 
The Federal Republic of Germany emphasizes the fact that women must have 
access to more skined part-time work and that a break In working life must 
be possible with the assurance of a return to work subsequently and 
Including the possibility of promotion after such a break. The need to 
promote continuing training for women Is likewise stressed. It Is 
emphasized that employers could play a positive role with respect to these 
goals. 
Attempts are being made In Italy to reduce working time, and the working 
day Is becoming more flexible. Some collective agreements and public 
sector staff regulations provide for special leave and leave of absence of 
varying length for family reasons. 
In Luxembourg, a draft law has been put forward on Increased protection for 
workers, particularly for temporary staff and employees on fixed-term 
contracts. 
Workers in Portugal with children under the age of 12 are entitled to work 
part-time. 
2. SUPPORT FOR SPECIFIC GROUPS 
Two types of family have been the focus of special attention by the public 
authorities: single-parent families and families with a handicapped child. 
m Italy, the United Kingdom, Greece, Denmark, France and the Federal 
Republic of Germany, various measures have been adopted to assist 
single-parent families. Generally, such families receive additional 
allowances, m the Federal Republic of Germany, allowances are generally 
more substantial for low-Income families, such allowances and parental 
leave being particularly generous for single parents. 
m 
- 12 -
In addition, these families can obtain tax relief of up to EM 480 per 
child. Germany emphasizes the Importance of child-minding facilities for 
the children of single-parent families, but regrets that they are not 
sufficiently widespread and In many oases do not take sufficient account of 
the parents' working hours. In oases where the father falls to pay 
maintenance, the State can act as a temporary substitute ... (EM 228 at 
present). 
In Portugal, few measures to assist single-parent families have been taken. 
Some private or religious Institutions, however, financed in+wn» AH* by the 
Government, may for a limited period assist unmarried mothers In 
difficulties. 
In Ireland, single parent families are recognised through assistance for 
unmarried mothers based on a means-test. In October 1969 a special 
fnrmnna Is to be brought In for deserted husbands with dependent children 
based on the same assistance paid to widows and deserted wives with 
dependent ^" * *"^e*^ • 
Help for families with a handicapped child is one of the priorities In 
Belgium. Stress is placed on prevention, care of the child In the home, 
and Independent living mainly through services providing early assistance 
and family help, day-care centres and support services. 
In Italy, the United Kingdom, Greece, Portugal, Luxembourg and the 
Netherlands, help for families of disabled people mainly takes the form of 
additional allowances. In Denmark the need for more aid for young dlsablei 
people is emphasized, m Luxembourg, the Government declaration does not 
specifically refer to the category of single-parent families. However, 
single parents may benefit from a guaranteed minimum Income, with no 
exclusion on grounds of age. Hence, a large number of OH recipients fall 
within this category. Families which Inolnde a dlsablei or sick person may 
obtain a tax reduction in respect of exceptional expenditure. They are 
also entitled to certain housing grants where special alterations have to 
be made. In Ireland, support for families Including disabled persons is 
generally provided by nongovernmental organizations which, for the most 
part, receive funds from the Department of Bealth. 
m Belgium, Italy, the United Kingdom and the Netherlands, the need for 
action on behalf of families supporting elderly people is stressed. 
Belgium seeks to encourage keeping them at home. In Italy, the measures 
mainly oonœin social security. 
V 
- 13 -
This is no longer restricted to wage-earners, but has been extended to the 
category of self-employed workers. A welfare pension for persons aged 
over 65 without an Income has been introduced. In the Netherlands, efforts 
are made to promote the Independence, émancipation and equality of elderly 
people In society. 
In Belgium and Greece, Interest is being shown In the migrant and prison 
population. In the former, projects for social integration and 
reintegration of these two categories are being supported. In the case of 
the immigrant population, various approaches have been adopted with 
particular emphasis on reception services, supervised homework facilities, 
workshops and courses in the mother tongue. In Greece, family allowances 
are being paid to returning migrants. With regard to the Immigration 
problem, Luxembourg Is seeking to Implement a determined Integration 
policy, while respecting cultural Identities. 
In Belgium, social aid Is provided for persons In prison, which Is 
continued when they are released. In Greece, a family allowance is paid to 
mothers whose spouses are in prison. 
3. SUPPORT FOR THE MOST DEPRIVED FAMILIES 
While, overall, all political measures taken by governments attempt to 
assist the most deprived families, some Member States have given a more 
speciflo character to their endeavours on behalf of this category. In 
Portugal, such action is generally In the hands of regional centres or 
nongovernmental Institutions which are subsidized by the State. They 
facilitate the setting-up of social facilities, provide grants In cash or 
in kind depending on needs, and provide some help. However, it is felt 
that the aid provided is far from satisfactory. 
The concerns of Belgium and France are somewhat similar to those of 
Portugal. The former is concentrating in particular on the occupational 
and social Integration or reintegration of the most deprived groups. Here, 
too, operations are in the hands of both the private and public sector and 
aim at going beyond the traditional framework of assistance. For some 
years the main target groups have been elderly persons of 65 and over and 
the unemployed. Belgium is likewise stressing access to subsidized housing 
for persons In difficulties. France, on 18 December 1986, Introduced a 
measure relating to soolal/oooupational integration minimum Income. A 
minimum income has existed in the Netherlands since 1965 and, in Belgium, 
the "minimex" was introduced in 1974. 
- 14 -
In 1988, the United Kingdom altered the structure of social assistance in 
order to increase amounts payable to families with children. At the ^ame 
time a new allowance (family credit) was introduced in favour of low irra»*» 
workers with dependent children. 
Greece has adopted a housing policy which aims mainly to meet the needs of 
families faced with serious social and eoonomio problems. 
Iraembourg has set itself the task of combating poverty. To this end, it 
introduced in 1986 a guaranteed monthly wage, together with certain 
supporting welfare measures concerning, for example, retraining, community 
work schemes, occupational Integration, etc. The aim of all these measures 
is to obviate handicaps which produce insecure social situations. 
91 
ANNEXE IV 
THE SHARING OF RESPONSIBILITIES IH THE MBffiER STATES 
BELGIUM 
The Communities' responsibilities are defined by the Constitution and the 
special laws of 8 August 1980; they include "family policy, namely all 
forms of aid and assistance to families and children". The State remains 
responsible for taxation and social security. 
Within the Communities the Minister with responsibility for Social Affairs 
administers family questions. 
The Minister for Social Affairs and Health bears administrative 
responsibility for assistance to the individual citizen, family policy, 
social policy, policy in respect of disabled and elderly people, health 
policy, health care policy and health éducation. 
The Administration de l'Aide à la Famille (family aid administration) is 
administratively responsible for services In support of families and 
elderly people, aid centres, eto. 
The Conseil Supérieur de la Famille (Higher Family Council) is responsible 
for delivering an opinion on all legislation oanoerning the family, on its 
own Initiative or at the Minister's request. 
DENMARK 
Family welfare does not fall within the sphere of responsibility of any 
Individual Ministry. 
The law on assistance contains provisions relevant both to the Individual 
citizen and to the family. Family-related legislation does, however, fall 
within the compétence of a number of Ministries. 
Interministerial cooperation (Ministry for Social Affairs, labour, 
Bduoation, Culture, eto.) has been set In train In order to better serve 
family Interests. 
52 
FEDERAL REPUBLIC OF GERMANY 
Family policy is a central element of federal government policy. Hie 
Federal Chancellor stressed its key Importance once again in his government 
statement on 18 March 1987. Family policy measures taken by the Federal 
Government are reflected In national legislation and in that of the lander, 
and in government statements made by the Federal Chancellor and the prime 
ministers of the lander. 
Family policy, measures and programmes can be Implemented by the German 
federal authorities only where the competent national or Land governments 
take the relevant décisions and the competent federal or Land parliaments 
make the necessary funds available. 
SPAIN 
The administrative body concerned with family affairs is the CEFAC 
(Government Centre for Family Affairs and Cohabitation). Administratively, 
this centre is answerable to the cUjeatorate-general for social action of 
the Ministry of Social Affairs. Its task is to provide assistance for the 
autonomous communities and Tv?n-gqW|«««iwi«MYfc*i H'ffiirvl ya-tj rma ojoncerned with 
guidance and family benefits. 
The CEFAC provides technical and financial support for projects, studies, 
etc., In particular on the situation of single-parent families and sexual 
Information. 
The CEFAC organizes training oouroco for officials of the non-governmental 
organizations and supports the groups of social workers concerned with 
family affairs. 
The CEFAC Is backing a plan aimed at homogenizing family benefits, home 
help and access to housing. 
By a decree of 28 «lune 1968, Mrs Hélène norlhao was appointed State 
Secretary in the Ministry of Solidarity, Health and Social Protection, with 
family affairs as her special responsibility. 
The following departments of this ministry have been placed at her 
disposal; 
the directorate for social security; 
the directorate for social action; 
- the directorate for the pnwilatf1f?n and migrations; 
the directorate-general far health; 
At the same time, several public establishments are active In this field: 
*3 
Caisse Nationale d'Allocations familiales (GKAF) (National Family 
Benefits Fund); 
Institut d'Etudes démographiques (INHD) (Institute for Population 
Study); 
Institute de l'enfance et de la Famille (Institute for Childhood and 
the Family). 
The advisory bodies: 
the Haut Conseil de la Population et de la Famille (High Council for 
Population and the Family), an advisory body chaired by the President 
of the Republio, is responsible for providing the President and the 
Government with Information on population problems and their medium 
and long-term consequences and on all matters concerning the family. 
It prepares opinions and looks Into all economic, social and cultural 
Issues likely to have a demographic Impact, particularly in the areas 
of the birthrate, ageing, population and migration; 
the Conseil économique et social (Boonomio and Social Committee) 
delivers opinions, IntfiT ftïjfn on draft laws. Its opinion was 
requested on implementation of a comprehensive family policy. 
GREECE 
In view of the large number of organizations involved, coordination is in 
the hands of a oommittee set up under the auspices of the Ministry for 
Boonomio Affairs and by a Committee of Experts under the Ministry of 
Labour. 
IRELAND 
The Department for Social Affairs Is responsible for social security, 
•iivVhvUT^g family allowances. 
Maternity matters and worker protection are within the compétence of the 
Minister of Labour. The Health Minister 1B responsible for the handicapped 
and the Environment Minister coordinates national and local activities 
relating to housing and town planning. 
Since 1982 a Minister has been responsible for women's affairs. 
54 
ITALY 
There are no ministers for the family or social affairs. 
The Minister for Labour and Social Security is responsible for family 
matters. 
The Minister for labour is responsible for family allowances and pensions, 
while the Minister for Health deals with social services, and the regions 
with assistance for young people and the elderly. Housing falls to the 
Minister for Public Works, and family law to the Minister for Justice. 
The Minister for the Family, Subsidized Bousing and Social Solidarity is 
responsible for family policy, but not exclusively responsible since by 
definition family policy affects all social sectors. Measures are 
coordinated, however, by the Council of Ministers and the Minister for the 
Family may Intervene even where his department Is not directly responsible 
for the proposed measures. There are also many advisory bodies In which 
representatives from the Ministry for the Family participate when draft 
measures are being prepared. 
Since 1984 his main tasks have been as follows: 
the family, Conseil supérieur de la famine (Higher Council for the 
Family), Caisse d'allocation familiales (Family Benefits Fund), Fonds 
des allocations de naissance (Birth Grants Fund); 
Service d'Intégration Social de l'enfance (Service for the Social 
Integration of the child); 
services for the elderly; 
social measures for migrant workers; 
— subsidized housing; 
social solidarity; 
service de la promotion familiale (Service for promotion of the 
family). 
Responsibility for tax réductions falls to the Minister for Finance. 
Finally, local authorities take action in the area of social assistance for 
the disadvantaged and also In respect of housing, the elderly, young people 
and children, eto. 
9> 
NETHERLANDS 
There has been no government statement or policy programme on family 
policy. However, certain principles have been adopted In relation to 
certain categories (young people, the elderly) and are embodied in 
multiannual programmes or In draft laws. 
The following bodies operate In the field of family policy: 
the Dutch Families Council (Mederlandse Gezinsraad) ; 
the Platform of Organizations for Single Persons (Platform van 
Qrganisaties voor Alleenstaanden). 
These organizations are concerned with information and documentation, 
defending the Interests of and carrying out research for conventional 
famines and other types of common living. They are subsidized by the 
Ministry for Welfare, Health and Culture. Within the Ministry, various 
directorates and divisions deal with the preparation of policies and their 
implementation In a number of subseotors: Directorate for Policy on the 
Elderly, Directorate for Policy on Young People, and Task Force on Policy 
on Bnandpation and the Family within the Directorate for Social 
Development. This task force is working on a mémorandum on family policy 
In close coopération with the Dutch Families Council. The document fifon"!* 
be ready by the end of the year. 
Several advisory committees also operate In the Netherlands: 
Council on Policy concerning the Elderly; 
Council for Policy on Young People. 
They deliver their opinions to the government on request or on their own 
Initiative. 
PORTUGAL 
The Member of the Cabinet responsible for family affairs is the Minister 
for Bnployment and Social Security who has entrusted this function to the 
State Secretary for Bnployment and Social Security. 
The administrative unit which drafts and implements government policy 
measures is the Directorate-General for Family Affairs. 
Sfc 
The interministériel family committee, which Includes representatives of 
numerous sectors (emigration, employment, vocational training, eto.) 
coordinates everything to do with family affairs. This committee was not 
In operation last year. It has been reorganized, task forces having been 
set up to deal with specific fields. 
In future, the Family Affairs Council will act as a link between the family 
fiffcrvHétions and the administration. 
Ho ministry is formally responsible far family policy at national level. 
The Secretary of State for Social Services Is responsible for family 
allowances and social services, while housing falls to the Secretary of 
State for the Environment. The Secretary of State for Employment Is 
responsible far maternity and parental leave. Consumer affairs come under 
the Secretary of State responsible for employment and Industry. 
In Scotland, Wales and Northern Ireland, the relevant Secretary of State 
deals with certain questions which affect the family. 
An lntermlnisterial group has been set up to look at women's issues 
generally - and thus to a large extent family interest. 
5? 

ISSN 0254-1475 
COM(89) 363 final 
DOCUMENTS 
EN 05 
Catalogue number : CB-CO-89-336-EN-C 
ISBN 92-77-52299-2 
Office for Official Publications of the European Communities 
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