NoC19/22 OfficialJournaloftheEuropeanCommunities 25.1.93
OpinionontheConsumerandtheInternalMarket
(93/C19/09)
On26November1992theEconomicandSocialCommitteedecided,inaccordancewith
Article24ofitsRulesofProcedure,todrawupanopiniononTheConsumerandthe
InternalMarket.
TheCommitteeinstructeditsSectionforProtectionoftheEnvironment ,PublicHealthand
ConsumerAffairstoprepareitsworkonthematter.
Attherequestoftheabovementioned SectiontheCommitteedecided,atitsPlenarySession
on1and2July1992,toissuetheInformationReportintheformofanOpinion,in
accordancewiththethirdparagraphofArticle20oftheRulesofProcedure,withaviewto
complementing itsOwn-initiative Opiniononconsumerprotectionandcompletionofthe
internalmarket.
TheSectionforProtectionoftheEnvironment ,PublicHealthandConsumerAffairsadopted
itsOpinionon4November1992.TheRapporteurwasMrAtaideFerreiraandtheCo­
RapporteurswereMrdeKnegtandMrProumens.
Atits301stPlenarySession(meetingof24November1992)theEconomicandSocial
CommitteeadoptedthefollowingOpinionbyamajorityvote,with3abstentions .
1.Introductoryremarks
1.1.On26September1991,theCommitteeadopted
anOwn-initiative Opiniononconsumerprotectionand
thecompletionoftheinternalmarket(1).Inviewofthe
constraintsimposedbytheprocedureforadoptingits
Opinions,theCommitteeoptedtogivepriorityinits
Opiniontothepoliticalaspectsofpromotingconsumer
interestsintherun-uptothesinglemarket.Thecontent
ofthecommonpolicieswhichhaveabearingoncon­
sumersarenotlookedatindetail.consumerpolicy,therebyplacingECconsumerpolicy
onthesamefootingastheothercommonpolicies,in
particularthesingle-market policy.Article129aalso
stipulatesthatwhenitadoptsthesespecificmeasures
theCouncilistofollowthejointdecision-making pro­
cedureinvolvingtheEuropeanParliamentandtocon­
sulttheEconomicandSocialCommittee .Article129a
readsasfollows:
'1.TheCommunityshallcontributetothe
attainmentofahighlevelofconsumerprotection
through:
a)measuresadoptedpursuanttoArticle100ain
thecontextofthecompletionoftheinternal
market;
b)specificactionwhichsupportsandsupplements
thepolicypursuedbytheMemberStatesto
protectthehealth,safetyandeconomicinterests
ofconsumersandtoprovideadequateinfor­
mationtoconsumers .
2.TheCouncil,actinginaccordancewiththe
procedurereferredtoinArticle189bandaftercon­
sultingtheEconomicandSocialCommittee,shall
adoptthespecificactionreferredtoinparagraph
lb).
3.Actionadoptedpursuanttoparagraph2shall
notpreventanyMemberStatefrommaintaining
orintroducingmorestringentprotectivemeasures.
SuchmeasuresmustbecompatiblewiththisTreaty.
TheCommission shallbenotifiedofthem.'
1.4.TheCommitteepointsoutthattheCommunity
mustgivepriority,whencarryingoutthemeasures
providedforunderArticle129a,toestablishingthe
conditionswhichwillenableconsumersmosteffectively
tofulfiltheirroleasthearbiterofthemarket.1.2.InitsOpinionof26September1991theCom­
mitteeurgedtheMemberStatestogiveexplicitrecog­
nition,whenadoptingtheTreatyonpoliticalunion,to
therightoftheECinstitutionstotakeactioninthe
fieldofconsumerpolicy.TheCommitteealsoemphasi­
zedtheneedforsystematicconsultationoftheEcon­
omicandSocialCommittee (ESC)onconsumerpolicy
inviewofthefactthattheESCbyvirtueofitsmember­
shipandthewayinwhichitoperates,constitutesan
idealvenuefordialoguebetweenrepresentatives of
industryandconsumers .
1.3.TheCommitteewelcomesthereflectioninthe
MaastrichtTreaty,signedon17February1992,of
theconcernsexpressedinitsOwn-initiative Opinion.
Article3oftheTreatylistsanumberofmeasuresto
becarriedoutbytheCommunitywithaviewtoachiev­
ingtheaimswhichithassetitselfandindent(s)ofthis
Articlespecifies'acontributiontothestrengtheningof
consumerprotection'.Thiscontributionisdefinedin
thenewArticle129aoftheEECTreatywhichauthoriz­
estheCommunitytotakespecificactioninthefieldof
HOJNoC339,31.12.1991,p.16.

25.1.93 OfficialJournaloftheEuropeanCommunities NoC19/23
oftheTreatyonpoliticalunion.Forthisreasonthe
Committeehascommissioned anin-depthstudyon
consumersandtheinternalmarket(StudyonConsumer
Protectionandtheinternalmarket—Evaluationand
Prospects—publicationplannedforthebeginningof
1993.TheStudywillbeavailableinFrench,English,
GermanandSpanish).
2.3.Onamoregenerallevel,therecommendations
whichtheCommitteemadeinitsown-initiative Opin­
iontotheotherECinstitutionsandtheMemberStates
havelostnoneoftheirpertinenceandtheyshouldbe
readinconjunctionwiththeobservationssetoutinthe
presentAdditionalOpinion.
3.Generalcomments
3.1.Oneparticularpointneedstobemadeatthe
outset:theECinstitutionshaveintroducedawhole
batteryofmeasurestoprotectconsumers'interestsand
thereisalargearrayoflegislationinthisfield.What
isnoticeable,however,istheconsiderableimbalance
betweenthelargenumberofmeasuresintroducedto
protectthehealthandsafetyofconsumers,thesmaller
numberofmeasuresdesignedtoprotecttheirfinancial
interestsandthealmostcompleteabsenceofmeasures
toprovidethemwithgreaterlegalprotection .
3.2.Ithasbecomeapparentthatinordertoassess
theroleplayedbyEClawinpromotingtheinterests
ofconsumersitisnotenoughsimplytomakeaformal
studyofEClaws.Inordertoproducethisassessment
itisofvitalimportancetomakeasurveyoftheextent
towhichEClawhasbeentransposedintonationallaw
and?aboveall,intonationalpractice.Asinglelegal
concept,suchas'default'isinterpretedindifferent
waysbynationalcourts.Anapproachgearedmoreto
whathappensinpractice—whichistheonlyproper
wayofjudgingtheimpactoflawsonthetargetgroups
—hasnotyetbeenadoptedbytheECinstitutions,at
leastnotsystematically .Asaresulttheinformation
availabletoeconomicoperatorsisseriouslyflawed
andfalseassessmentsaremadeoftheleveloflegal
harmonization .TheCommitteenotesthatnoaccurate,
up-to-date,realisticsurveyhasbeencarriedoutinto
theextenttowhichECprovisionshavebeentransposed
intonationallawandbroughtintoeffect;theCom­
mitteethereforedeplorestheshortcomings intheinfor­
mationavailabletothoseworkinginpoliticsandbusi­
ness.Thefailuretoadoptasufficientlypragmatic
approachisillustratedbytheCommission's9thannual
reporttotheEuropeanParliamentonCommission
monitoringoftheapplicationofCommunity
law—1991(2).
3.3.Afurtherpointwhichshouldbenotedisthat
inseveralsectorsinvolvingtheeconomicorlegalinter­
estsofconsumers (financialservices,legalremedies)the
ECinstitutionshavequitefrequentlyoptedfornon­
mandatoryinstruments,suchasresolutionsorrec­
ommendations addressedeithertotheMemberStatesAmarketeconomycanonlyfunctioneffectivelyifsuch
conditionsexist.Inthiscontextconsumerpolicyisto
beregardedasanaccompaniment toeconomicpolicy
sinceitprovidesmechanismstocorrectthepossible
inadequacies ,imbalancesandshortcomingsofthemar­
ket.Thesemechanismsareasfollows:
—theprovisionofconsumerinformationinorderto
enablethemarkettooperateeffectively;
—acompetitionpolicywhichtakesaccountofthe
interestsofconsumers,particularlyinthecontext
ofanti-dumping policyandtheestablishment of
advertisingstandards,andisdesignedtoimprove
theoperationofthemarket;
—fromageneralpointofview,theincorporationof
consumerpolicyintoalltheothercommonpolicies
whichhaveabearing—directorindirect—onthe
interestsofconsumers,inparticular:agricultural
policyandthepolicieswithregardtofinancial
services,tourism,publicservices,telecommuni­
cations,pharmaceutical productsandfoodprod­
ucts;
—legalprotectionfortheconsumer,and,inparticular,
accesstothecourtsinordertoenabletheconsumer
toensurethathisrightsarerespected;
—theestablishmentofthenecessaryconditionsfora
dialogue;thisisonlythelogicalconsequenceofthe
recognitionoftheconsumerasamarketpartner.If
theseconditionsaretobeestablished,however,
certainefficiencycriteriahavetobemet.These
criteriaweredefinedbytheCommitteeinitsOwn­
initiativeOpiniononthematterissuedin1984(1).
2.AimsofthepresentAdditionalOpinion
2.1.InitsOwn-initiative OpiniontheCommittee
lookedatanumberofissueslinkedtothepromotion
ofconsumers'interests,suchas:representation ofcon­
sumers,theneedtoimprovethelegalbasisprovided
bytheTreatyandawholeseriesofissuesdirectly
relatingtothecompletionoftheinternalmarket.Fol­
lowingonfromthisOwn-initiative Opinion—which
dealtwiththebroadissuesinvolvedinrelations
betweentheinternalmarketandconsumerpolicy—
andgiventhenewsituationcreatedbythesignatureof
theTreatyofMaastricht,theCommitteeintendsto
considermorespecificallythequestionofthecontent
ofanECconsumerpolicyinthepresentAdditional
Opinion.
2.2.ThepreliminaryworkontheOwn-initiative
Opinionhighlightedthelackofcomprehensive studies
onthepromotionofconsumerinterestsbytheEC.This
gapismainlyattributabletotherigidnatureoftheEC
policieswhichhaveabearingonconsumerinterests
andprotection.Suchacomprehensive studywouldbe
veryusefulwhenworkcommencesondefiningthe
futureguidelinesforECconsumerpolicy,particularly
inviewoftherecentdevelopmentslinkedtothesigning
(J)OJNoC206,6.8.1984. (2)OJNoC250,28.9.1992.

NoC19/24 OfficialJournaloftheEuropeanCommunities 25.1.93
ortothoseworkinginthesectorconcerned.Experience
hasshownhowextremelydifficultitistoimplement
theprinciplessetoutintheseinstruments .Codesof
conductorgoodpracticeandvoluntaryagreements,
advocatedanddrawnupbythoseemployedinthe
sectorsconcerned,shouldbeintroducedwheneverpro­
gressisbeingsoughtinfieldswherelawsorregulations
arenotreadilyapplicable,eventhoughsuchcodesor
agreementsarenotheldtobebindingbythecourts
whichsometimesmakereferencetothem.Consultation
ofconsumerassociationsbeforesuchcodesoragree­
mentsaredrawnupisdesirableandevennecessary.mightbeabusedandmightjeopardizeanyECinitiative
whosespecificaimistopromoteconsumers'interests.
TheCommitteerecognizesthatcorrectinterpretation
ofthesubsidiarityprinciplewillimprovethefunc­
tioningoftheCommunity ;however,unilateral
interpretationofthisprinciplemightholdupanyCom­
munityinitiativenotdictatedbytherequirementsof
theSingleMarket.Althoughthegeneralprinciplesof
theTreatyconsiderablyrestrictMemberStates'free­
domofaction,suchaunilateralapplicationwould
makeitimpossibletomakeanyprogresstowardsan
ECconsumerpolicy.AstheCommitteepointedoutin
itsOwn-initiative Opinion,thissituationislikelyto
leadtoa'regulatorygap'.TheCommitteewelcomes
thefactthattheEuropeanParliamenthasstartedto
lookintothisissue,definingboththecontentandlimits
ofthesubsidiarityprincipleindetail.3.4.Fromamoregeneralpointofview,andgiven
theprocessofliberalizationwhichisunderway,regu­
lationisincreasinglytheresponsibilityoftheeconomic
agentsconcerned.Initsown-initiative Opinionthe
Committeedrewattentiontotheneedforadialogue
betweenindustryandconsumers (1).However,attempts
toestablishinstitutionalized formsofdialoguebetween
industryandconsumershavealltoofrequentlyended
infailure.Thereisaneedtocarryoutanin-depth
studyintothereasonsforthefailureofthecurrent
formsofdialogue,soastomakeitpossibletoestablish
theconditionsrequiredforrealisticandeffectivedia­
logueinrespectofalllevelsofregulatoryactivity.
3.5.TheCommitteewelcomesthefactthat,thanks
totheperseveranceoftheEuropeanParliament,the
1992appropriation forconsumerprotectionpolicyis
twicetheamountinitiallyaskedforbytheCommission .
TheCommitteehopesthattheCommissionwillsubmit
adetailedreportontheallocationoffundstoalert
consumerstotheirrights.ThestudyofECconsumer
lawrevealedthatregulatorymeasuresarerarely
accompanied byauxiliaryinstrumentsforinforming
consumersofthechangesmadetotheirrightsand
obligations .Thereisnopointinformulatingprotective
legislationifthebeneficiariesofsuchlegislationare
unabletotakeadvantageofitbecauseofafailureto
informthem[SeealsothesurveyintheEuro-barometer
datedSeptember1991whichindicatedthedegreeof
consumerdistrustoftheinternalmarket(52%)].The
publicauthoritiesshouldprovideconsumerassoci­
ationswiththemeanstofulfiltheroleofproviding
information ,intheabsenceofappropriatelegalinstru­
mentsforthispurpose.4.FindingsofthesurveyofECmeasureshavingan
impactonconsumerprotection
4.1.Thestudyofthelegislationinthevariousfields
whichhasabearingonconsumerpolicydemonstrated
thattheEChasintroducedanumberofmeasureswhich
havehelpedimprovethepositionoftheconsumerin
hisdealingswiththeworldofbusiness.Thesemeasures
includetheDirectivesonproductliability,misleading
advertising,toysafetyandpackagetoursandthepro­
posalforaDirectiveontheprotectionofthepurchaser
incontractsfortimeshareproperties.Thestudydid,
however,alsohighlighttheinadequatenatureofa
numberoftheapproachesbeingpursuedbytheECin
ordereffectivelytopromotetheinterestsofconsumers .
Thisshortcomingmaybeexplained,interalia,bythe
factthatconsumerprotectionisoftenneitherthesole
northemainobjectiveofthemeasuresbeingtaken.
Thisproblemillustratesthedifficultyinreconcilingthe
completionoftheinternalmarket,ontheonehand,
andconsumerprotection,ontheotherhand.Thispoint
wasmadeintheown-initiative Opinion.Themain
shortcomingsareidentifiedintheparagraphssetout
below.
4.2.Inthefieldofproductregulation,thenew
approachtotechnicalharmonization hasledtothe
establishment ,withaviewtoprotectingthesafety
ofconsumers,ofanEC-mark'passport'system.The
certificationprocessdoes,however,needtobesubject
tosafetyandqualityinspectionscarriedoutbyofficial
orapprovedbodies.
4.3.Furthermore ,thedefinitionsofessentialrequire­
mentssetoutinthe'newapproach'Directivesarenot
alwaysprecise.Thismayleadtotheestablishmentof
greyareas—aphenomenonwhichcouldbedangerous
fromthepointofviewofconsumersafety.Itis
acknowledged thatthesettingofstandardsplaysan
extremelyimportantroleintheprocessofestablishing
safetyrequirements ;inviewofthis,qualifiedconsumer
representatives shouldbemuchmoreinvolvedinthe
standardization process.Initsown-initiative Opinion3.6.ThefacilitiesprovidedbyArticle129aofthe
newTreatymustbeexploitedtothefull.Inthiscontext
theprincipleofsubsidiaritysetoutinthenewArticle3b
oftheTreaty,althoughprovidingapointofreference
guaranteeingthattheCommunitywillactmore
efficientlyandbecloserintouchwiththegeneralpublic,
(i)OJNoC339 ,31.12.1991.

25.1.93 OfficialJournaloftheEuropeanCommunities NoC19/25
greaterscopeforcompetitionaftertheexpiryofpatents
(measuretopromotegenericdrugs,givingchemiststhe
righttoissuesubstituteproducts,etc.).
4.7.Onthesubjectofconsumers'trans-frontierpur­
chasesofmotorvehicles,theCommitteebelievesthat
thisfreedomisstillalltoofrequentlyimpeded,either
bytheMemberStatesorbyprivateenterprises,thereby
preventingconsumersfromtakingadvantageofthe
considerablepricedifferentialsexistinginthissector.
IntheCommittee'sviewtheECInstitutionsdonot
systematicallytakeactionagainstinfringementsofthe
TreatybytheMemberStatesorbyprivateenterprises .
4.8.Inthefieldofroadsafety,theCommitteenotes
thatthereisconsiderablescopeforimprovingthesafety
ofroad-users;despitetheachievementofsomeprogress,
therateofprogresshasbeenveryslowforreasons
relating,interalia,tothetechnicalharmonization of
vehicles.TheCouncilisalsoveryslowinadopting
Commissionproposals—alreadyendorsedbythe
ESC—toimprovethebehaviourofroadusers(levelof
alcoholintheblood,thewearingofhelmetsbymotor
cyclists,thewearingofsafetybelts,etc.)owingtothe
lackofaspecificlegalbasisinrespectofroadsafety.
Thedebatesonthetechnicalharmonization ofvehicles
haveprovedtobeextremelylaborious.Theauthorities
intheMemberStates,workingtogetherwithbodiesset
uptoprotectroad-users,shouldlaunchcampaignsto
encourageroad-userstoobservemeasuressuchasthe
wearingofsafetybelts,thewearingofhelmetsbymotor
cyclistsandabstentionfromalcoholwhendriving,prior
totheentryintoforceoftherequisitelaws.
4.9.AsregardstheECRegulationsgoverningprod­
uctliabilityandliabilityinrespectofservices,the
Committeedrawsattentiontothefactthattherevision
clauseinDirective85/374/EECexpiresin1995.There
isaneedtocarryoutadetailedassessmentofthe
impactoftheDirectiveoncompensation awardedto
victims,particularlyinviewoftheoptionsopento
MemberStatesundertheDirective.Asregardsthedraft
Directiveontheliabilityofpersonsprovidingservices,
theCommitteepointsoutthat,whilstitisinfavourof
affordingbetterprotectiontothevictimsofdefective
services,itrejectstheapproachadoptedbytheCom­
mission(5).theCommitteecalledforconsumerstobegivenan
enhancedlevelofparticipationinthestandardsprocess
byallowingtheirrepresentatives toparticipateeffec­
tivelyintheprocessofdefiningprecisesafetystandards
forconsumergoods.
4.4.Despitethelargenumberofregulatorypro­
visionsonfood,nodetailedcommonprovisionshave
yetbeenintroducedcoveringtheofficialinspectionof
food.Itisonlybyintroducingcommonrulesinrespect
oftheofficialinspectionoffoodthatrealguaranteescan
beprovidedtoconsumersasregardstheobservation
oftheCommunitystandardswhichreplacenational
standards.Thisobservationconfirmsthejustification
oftheCommittee'srequestthatcommonrulesbeintro­
ducedwithregardtothequalificationsofinspection
personnel,qualitystandardstobemetbyinspection
laboratoriesandtheexchangeofexperiencebetween
nationalauthorities(*).
4.5.TheCommitteenotesthelackofuniformity
intheapproachpursuedbythevariousCommission
departmentsanditcallsupontheCommissionto
streamlinetheworkofitsdepartmentsandtotake
accountoftheneedforgreaterinvolvementonthe
partofitsconsumerpolicydepartment .Additivesand
contaminants (pesticides,extractionsolvents)are
coveredbyavarietyofregulationsanddraftregu­
lations,whichhighlightstheconflictingclaimsofcon­
sumerprotectionpolicy,theinternalmarketpolicy
andtheCommonAgriculturalPolicy(CAP).Thesame
problemariseswithregardtocertaininformationgiven
toconsumers [protectionofproprietarynames(2),
nutritionalclaims(3),etc.].
4.6.Inthefieldofmedicinalproducts,theCom­
mitteewelcomestheestablishmentofaEuropeanAgen­
cyfortheassessmentofmedicinalproducts;thisagency
mustplayanincreasinglyimportantrole.Furthermore ,
theCommitteedrawsattentiontotheeconomicpolicy
beingpursuedinrespectofmedicinalproducts;this
policyfailstotakeadequateaccountoftheinterestsof
consumers,particularlywithregardtoparallelimports
andgenericsubstitutes .TheCommitteecallsuponthe
Commissiontosubmitproposalsforpromotingparallel
importsandgenericdrugs,inaccordancewiththe
decisionsoftheCourtofJusticeoftheEuropeanCom­
munities^).Suchmeasuresarenecessaryfollowingthe
introduction intheECofanadditionalprotection
certificatewhichenablespharmaceutical companiesto
extendthedurationofthepatentand,consequently ,
themonopolygrantedtotheminrespectofaspecific
pharmaceutical product.Thisadditionalprotection
enablesEuropeancompaniestofinancetheirresearch
outoftheirownfunds.Thereisthereforeaneedfor
correctivemechanisms ,includingmeasuresinvolvinga
systemofreimbursement ,inordertooffsettheecon­
omicconsequencesofsuchmonopoliesbyproviding4.10.TheCommission hasletitbeknownthatthe
buildingsectorandthemedicalsectoraretobe
excludedfromthefieldofapplicationoftheDirective.
IntheCommittee'sviewtheseexclusionsareacceptable
onlyonconditionthattheCommissionatthesame
timepreparesspecificDirectivesinrespectofthesetwo
sectorsinordertoensurethatvictimsofdefective
servicesinthesesectorsarenotleftwithoutprotection .
InthiscontexttheGeneralDirectiveshouldstipulate
that,pendingtheadoptionofspecificDirectives,the HOJNoC347,22.12.1987.
(2)OJNoL208,28.7.1992.
(3)OJNoC122,14.5.1992..
(4)SeeCaseNo215/87,Schumacher,Judgementof7March
1989,andCaseNo347/89,Eurim-Pharma Judgementof16
April1991. (5)OJNoC269,14.10.1991.

NoC19/26 OfficialJournaloftheEuropeanCommunities 25.1.93
provisionsoftheGeneralDirectivewouldbeapplicable.
Theprinciplesunderlyingtheprovisionofcompen­
sationtovictimsinthesectorsexcludedfromtheGen­
eralDirectivemustalsonotdiffersignificantlyfrom
thecompensation principlessetoutintheGeneral
Directive.TheECmustintroduceanoverallpolicyon
safetyand,asacorollary,anoverallpolicyonliability,
coveringbothproductsandservices.
4.11.Turningtotheprotectionoftheeconomic
interestsofconsumers,anumberofinadequate
approachesshouldbehighlighted .
4.11.1.Inthefieldofadvertising,onlymisleading
advertising—andnotunfairadvertising (racialand
sexualdiscrimination ,etc.)—issubjecttoregulation.
Theruleshaveprovedtobeineffectiveasameansof
combattingmisleadingcross-frontieradvertising,one
ofthereasonsforthisbeingthatconsumerassociations
donothaveaclearlyrecognizedrighttotakeaction
undertheexistingrules,letaloneinMemberStates
otherthanthatinwhichtheyarebased.Itisalsonot
possibleundertheexistingrulestoavyardcompensation
toconsumerswhohaveenteredintocontractsbasedon
misleadingadvertising .Arecentproposaltoauthorize
comparativeadvertisinghasbeenpresentedasan
instrumentforinformingtheconsumer.Eventhough
someconsumerinformationmayindeedbeimproved
bythistypeofadvertising,thefactdoes,however,
remainthatthemainaimofalladvertisingistopro­
mote,eitherdirectlyorindirectly,salesofproductsor
services.
4.11.2.Inthefieldoftelevisedadvertising,theCom­
mitteenotesthatresponsibilityforsupervisingadvertis­
ingrestswiththestateoforiginoftheadvertising,
whereastheconsumerexpectstobeprotectedbythe
stateinwhichheisexposedtotheadvertising .
4.11.2.1.Onamorefundamentalissue,theCom­
mitteenotesthattheCommunityhassofarfailedto
adoptanoverallapproachtoregulatingcommercial
practices.Theadoptionofameasurespecificallyin
respectofcertainsalesmethodsinvolvestheriskswhich
areattendantuponaverticalapproach,e.g.limited
scope.ECruleslayingdowngeneralprovisionsappli­
cabletoallcommercialpracticeswouldconstitutea
bettermeanstoregulatingthesepractices.
4.11.3.Turningtothesubjectofconsumercontracts,
theCommitteenotestheCouncil'scommonposition
andpointsoutthat,althoughthecommonposition
doestakeaccountofanumberofthepointsputforward
bytheCommittee,itdoeshaveaverymuchnarrower
scopethantheProposalforaDirectivereferredto
theCommittee .ItisamatterofregretthattheEC
consultationprocessappliestotextswhichatalater
stageareradicallyamendedwhentheyarediscussedat
intergovernmental level,andasaconsequence ,bear
littleresemblancetothebasictextsoriginallydrawnupbytheinstitutionwhichinitiatedthedraftdocument.
TheCommitteealsorecognizestheneedtoregulate
variousdistancesellingpractices(tele-shopping ,video­
text,mail-ordersales,telephonesellingandtheuseof
automaticcallingmachines)andwelcomesthefactthat
theCommissionhasjustreferredtoitanOpinionon
theProposalforaDirectiveoncontractsnegotiatedat
adistance(distanceselling)(2).AnECproposalinthis
fieldisnecessarygiventhepotentiallyinternational
natureofdistancecommunications techniques .
4.11.3.1.Inthisfield,too,anoverallapproachto
contractlawwouldbeamoreeffectivewayofmeeting
consumerprotectionrequirementsintheSingleMarket
(rulesinrespectoftheformofthecontract,thelawin
respectofproof,implementation ofthecontracts,time
limitation,etc.).Particularattentionshouldbepaidto
theestablishment ofanECsystem—whichwouldbe
effectivethroughouttheCommunity—toprovidecon­
sumerswithguaranteesinrespectofhiddendefects.
Furthermore ,giventhefactthatthereareseveral
nationalandECinstrumentsunderwhichguarantee
fundsareestablishedtoassistconsumers,thereisa
needtoensurethattherulesgoverningtheoperation
andmanagementofthesefundsdo,inpractice,meet
theneedsoftheconsumersforwhomthefundshave
beensetup.
4.11.4.TheEChasintroducedalargenumberof
measuresgoverningfinancialservices.TheECmeasures
specificallydesignedtoprotecttheconsumerare,how­
ever,notmandatoryanditisapparentthattheyare
notbeingrespected.Exampleswhichmaybementioned
inthiscontextaretheRecommendation of17Novemb­
er1988onrelationsbetweenbodiesissuingpayment
cardsandtheholdersofsuchcardsandtheRecommen­
dationof14February1990oncross-frontierfinancial
transfers.InthiscontexttheCommitteehasnotedthe
publicationbytheCommissionofacharterforusers
ofcross-frontier paymentsystems.TheCommittee
deploresthefactthat,aftermanyyearsconsidering
theissue,theCommissionhasbeenunabletomake
substantialprogresswithregardtothedefinitionof
consumersrightsinthisfieldandhas,byoptingfora
charter,availeditselfofaninstrumentwhichdoesnot
havetheslightestlegalvalueinthecontextoftheEEC
Treaty.Suchastepistantamounttomerelycalling
uponthebankingsectortoendeavourtocomplywith
therequirementsofaninternalmarketfromwhichit
isthefirsttobenefitinotherrespects.IntheCom­
mittee'sviewitisessential,iftheECinstitutionsareto
retaintheircredibility,fortheCommunitytocarryout
asystematicreviewofthenon-mandatory instruments
whichhavebeenintroducedand,wherenecessary,to
replacethembymandatoryinstruments .Furthermore ,
withaviewtothesatisfactorycompletionofthe
internalmarket,itisessentialthatcross-frontierpay­
mentsystemsdonotpenalizeusers.Itisparticularly
necessarythatthefinancialinstitutionstreatpayments
inECUonthesamebasisaspaymentsinnational
currencies .
(!)Unfairpracticesinthefieldofcomparativeadvertisingare,
toacertainextent,subjecttoregulation—seetheproposal
foraDirectiveinOJNoC180,11.7.1991. (2)OJNoC156,23.6.1992.

25.1.93 OfficialJournaloftheEuropeanCommunities NoC19/27
inaccordancewithcompetitionrules)informsthepub­
licofcertaincasesonlyverylate,whichmakesit
difficulttoassembleacompletedossierwithinthe
requireddeadline.
4.11.6.1.ECexternaltradepolicy,andinparticular
theCAPandtheanti-dumping policy,failtotake
adequateaccountoftheinterestsoftheconsumer,
despitethefactthatitistheconsumerwhohastopay
theincreasedpricesandtaxationattendantuponthese
policies.TheCommitteedeplorestheinconsistency in
theactionsoftheECinstitutionswhich,ontheone
hand,advocatetheliberalization oftradewithinthe
EC,whilstatthesametimeprotectingECindustry
againstforeigncompetition .Suchanattitudefailsto
takeadequateaccountofthegrowinginternationaliza­
tionofworldtradeandalsoshowsalackofconfidence
incompetitionasatoolforpromotingthecompeti­
tivenessofbusinesses.ECexternalpolicymust,more­
over,beimplementedinaspiritinkeepingwithGATT
agreements .Ithasneverbeenproventhatprotectionism
isabettermeansofdevelopingandpromotingEC
industrythanthestimulusprovidedbyforeigncompe­
tition.TheCommitteeurgestheCommissiontogive
morespecificrecognitiontotheinterestsofthecon­
sumerwhenassessingtheinterestsoftheCommunity
inordertoensurethatitsdecisionsarefairertothe
tax-payerandtheconsumer.
4.11.6.2.Furthermore ,theCAPhashithertoencour­
agedintensivefarmingmethodswhicharemuchless
respectfuloftheenvironmentthanaremoretraditional
methods.Protectionoftheenvironment is,however,
oneoftheaimssetoutinArticle2oftheEECTreaty
asamendedatMaastricht .Inviewofthefactthatthe
initialgoalsoftheCAPhavebeenachieved(theECis
self-sufficient infood),thepolicymustnowtake
accountofchangingexpectationsonthepartofthe
consumerandreflectthedemandforhigherquality
productstoprotectthehealthoftheconsumerand
preventcertainillnesses.
4.11.7.Environmental policy,foritspart,takes
accountinmanyrespectsoftheexpectationsofcon­
sumers.Anumberofdecisionsintheenvironmental
field,suchasthetaxonC02emissionsandmeasures
inrespectofpackagingwaste,mayhaveanimportant
effectonconsumers.TheCommitteecallsuponthe
Commission andtheotherECinstitutionstoinvolve
consumers 5representatives —andinparticulartheCom­
mission'sownConsumerPolicyDepartment—intheir
workinthefieldofenvironmental protectioninorder
toenabletheinterestsoftheconsumertobeidentified
andtakenintoaccountwhenmeasuresandinstruments
arebeingformulated .
4.11.7.1.TheCommitteeendorsed(*)theCom­
munityprogrammeofpolicyandactioninrelationto
theenvironmentandsustainabledevelopment ,inwhich4.11.4.1.AlthoughtheCommunityhaspaidsome
attentiontoconsumercredit,itdoesnotintendto
interveneonmortgages .Andyetimportantconsumer
protectionissuesareinvolvedhere,particularlyasmort­
gagerepaymentsrepresentamajorpartofhousehold
budgets.Itisthereforeessentialtohavecommoncon­
sumerprotectionruleswhichenableconsumerstotake
outmortgageswithforeignlenderssafely.Morefunda­
mentally,whilstexcessivelevelsofconsumerindebted­
nesshavebeenidentifiedandmadethesubjectoflegis­
lationinsomeMemberStates,therehavenotasyet
beenanyCommunitylegislativeinitiativesinthisarea,
althoughthereisaCommunitydimensiontothe
problem.
4.11.4.2.Whatneedstobedonetherefore,inthe
contextofasocialeconomy,istointroduceasystem
forprotectingtheleastwell-offconsumers .Inthesame
generalcontextthefactthatanumberofpeopleare
notcoveredbythebankingsystem—whichisafurther
exampleofsocialmarginalization —makesitnecessary
tocarryoutaradicalappraisaloftheconceptofthe
'basicservice'whichfinancialinstitutionsshouldbe
obligedtoprovidetothepublicasawhole.Thereis
alsoanECdimensiontothisissueinviewofthefact
thatthediversityofnationallawsinthisfieldmaylead
todistortionsincompetitionwhichareincompatible
withtheSingleMarket.
4.11.5.Turningtothequestionofinsurance,the
thirdgenerationofDirectivesisdesignedtointroduce
freedomofmovementwithregardtolifeandnon-life
insuranceservices.TheseDirectiveswillnot,however,
produceasystemsufficientlyharmonizedtoenable
thoseinsurancecompanieswhichavailthemselvesof
thefreedomtoprovideservices,toenterintocontracts
withconsumersinothercountriesandtoenablethe
consumertotakeoutsuchcontractswithfullconfi­
dence.TheDirectiveswillleadrathertotheestablish­
mentofarigidandcomplexsystemfordetermining
thelawapplicabletoinsurancecontractsandthissys­
temwillnotprovideanylegalsecurityfortheparties
involved.Recentsurveyshaveshownthatcompanies
arehesitatingtoenterintocontractsunderthefreedom
toprovideservicesbecauseoftheirlackofknowledge
oftheprovisionsofthelawswhichwouldapplyand
becauseoftheattendantrisks.Forthisreasonthe
CommitteecallsupontheCommissiontoputforward
proposalswithaviewtointroducingharmonized ,mini­
malrulesapplicabletoinsurancecontracts(rulesgov­
erningtheconclusionofcontracts,certainriskscovered,
procedureswithregardtoclaimsnotices,thepro­
ductionofproof,reasonsforlossofentitlementto
compensation ,etc.)inordertoenableinsurancecom­
paniesandtheirclientstoenterintocross-frontier
contractsdrawnuponthebasisofcomparablecon­
ditions.
4.11.6.Competitionpolicyischaracterized bythe
limitedabilityofconsumerrepresentatives tointervene,
giventhefinancialconstraintsonconsumerorganiza­
tionsandthelargenumberoffileslodged(ornotas
thecasemaybe)withtheCommission .Theproblem
iscompoundedbythefactthattheCommission (acting(')OJNoC287,4.11.1992.

NoC19/28 OfficialJournaloftheEuropeanCommunities 25.1.93
munity,intheircapacityasconsumers,withimproved
accesstocourtsthroughouttheCommunity'.anattemptismadetolinkenvironmental andconsumer
policies—amattertowhichgreaterthoughtmustbe
given.
4.11.8.TheCommunityenergypolicycurrently
beingdrawnupmusttakeaccountofthespecificfea­
turesofdomesticconsumerdemand,andinparticular
ofitscaptivenature(nomobility,noelasticityof
demand).Pricetransparency measuresmustbe
extendedtodomesticusesandpricingpolicymustnot
penalisedomesticconsumerswholacktheeconomic
muscleofindustrialusers.Particularattentionmustbe
paidtothesupplyneedsofdisadvantaged consumers,
particularlyfamilieswithsmallchildrenandtheelderly.
Moreover,theenergyconservationinitiativestakenby
theCommunitymustbereinforcedandgofurtherthan
printingconsumerinformationonlabels.Theyshould
taketheformoftaxortariffincentives .
4.11.9.Specificaccountshouldalsobetakenofthe
needsofdomesticconsumersinthecontextofCom­
munitytelecommunications policy.TheCommittee
notesthat,whilsttheCommunityisheadingtowards
greatercompetitioninthissector,theequipmentand
serviceswhichinterestthedomesticconsumermostmay
continuetobeprovidedbymonopolies .Theconceptof
publicserviceurgentlyneedstobedelineated,particu­
larlywithregardtotelephoneservices.Community
qualitycriteriafortelephoneandpostalservicesare
essentialtoenabledomesticconsumerstobenefitfrom
technologicalinnovation .(Thispointisillustratedby
thefactthatwhilstlocalcallscostlessthanECU0,10
intheNetherlands ,ItalyandSpain,theycancostup
toECU0,82intheUK.Likewiseaninternational call
fromBerlintoDublinmaycostaslittleasECU2,12
whereasthesamecallcarriedoutintheoppositedirec­
tionwouldcostECU3,11.)5.Finalcomments
5.1.TheOwn-initiative Opinion,complemented by
thisAdditionalOpinion,presentstheCommunityInsti­
tutionswiththeCommittee'sviewsontheshapewhich
thesocialpartnersfeelthattheCommunity'sfuture
consumerpolicyshouldtake.TheCommitteeregrets
thegapsintheCommunity-institution informationon
theprocessoftransposingCommunitylawinto
nationallaw.
5.2.TheCommission'slegislativeprogrammefor
1992doesnottakeadequateaccountoftheissues
highlightedbytheCommitteeinitsOwn-initiative
Opinion.Theprogrammefailstoaddressthedistrust
andfearvoicedbyconsumerswithregardtothecom­
pletionoftheinternalmarket.Theprogrammeisgeared
solelytothecompletionofthesinglemarket,rather
thandemonstrating abalancedapproachwithaview
tomakingtheestablishmentofthesinglemarketmore
acceptabletoconsumersandmorecredibleintheir
eyes.
5.3.Inthelightoftheachievements andshort­
comingsidentifiedbytheCommittee,1992willbethe
timefortheCommunityInstitutionsnotonlytofinalize
theprogrammeforcompletionoftheinternalmarket
butalsotoidentifythefirstmalfunctions ofthe
measuresadopted.Theywillalsohavetodrawupthe
policiesarisingfromEuropeanUnionleadingtogreater
integrationintheeconomic,socialandpoliticalfields.
Allthesepoliciesrequirethataccountbetakenfroma
Communityperspective,oftheissuesraisedbythe
protectionofconsumerinterests,whichgoesbeyond
thefreemovementofgoodsandcomesundertheSocial
EuropeandtheCitizens'Europe.TheCommitteenotes
thatconsumerpolicyhasnotyetbeenincorporatedto
anadequatedegreeintheotherECpolicies,despitethe
planstothateffectwhichhavebeenannouncedbythe
Commission .TheCommitteeunderlinestheneedto
findappropriatesolutionswherebytheinterestsofcon­
sumersaremoreeffectivelytakenintoaccountin
decisionswhichconcernthem.
5.4.ConsumersenjoyrightsascitizensoftheCom­
munity;betterconsideration willthereforehavetobe
giventoproblemsrelatingtoaccesstojusticeifcon­
sumersaretohavethemeanstoensurethattheserights
arerespected.InthiscontexttheCommitteewelcomes
theappointmentofamediatorattheEuropeanParlia­
mentfollowingratificationoftheMaastrichtTreaty;
theCommitteeawaitswithinteresttheresultsofthe
EuropeanParliament'sdeliberations .
5.5.TheCommitteeurgestheCommissiontocon­
siderintroducingmorefar-reachingmeasures,basedon
theproposalsputforwardbytheCommitteeinits
earlierOwn-initiative Opinionandthepresent
AdditionalOpinion,oncethenewTreatyonEuropean
Unionhasbeenratified.Theaimofthesenew4.12.Questionsarisinginconnectionwiththepro­
tectionofthelegalrightsofconsumershavebeen
commentedonbrieflyintheOwn-initiative Opinion(1).
TheCommunity'sinterventionswithregardtolegal
remedieshavebeentimidoutofconcernforMember
States'sovereigntyinorganizingtheirjudicialsystems.
Itishoweverpossible,withoutcompromising thissov­
ereignty,toensurethatthelegalinterestsofconsumers
arebetterprotected.TheCommitteefeelsthatthereis
aneedforsimplified,rapidandinexpensiveprocedures,
applicableeitherinoroutofcourt,todealwith'small
claims'—thecategoryintowhichthemajorityofcon­
sumerdisputesfall.Asfarascross-borderdisputesare
concerned,thereisagreatneedforspecifictraining
andinformationforpersonsprovidinglegalassistance
toconsumersinvolvedinlegaldisputes;disputesinvolv­
ingmanufacturers ,suppliers,etc.basedinotherMem­
berStatesareoccurringwithincreasingfrequency.The
Committeewouldthereforedrawattentiontothefact
that,initsOpinionontheCitizens'Europe(2),itunder­
linedtheneedto'providethecitizensoftheCom­
(!)OJNoC339,31.12.1991.
(2)OJNoC313,30.11.1992,p.34.

25.1.93 OfficialJournaloftheEuropeanCommunities NoC19/29
measuresshouldbetogiveanewimpetustoECcon­
sumerpolicyin1993.InthiscontexttheCouncilResol­
utionof13July1992onthefutureprioritiesforthedevelopmentofconsumerprotectionpolicyis
aninterestingstepontheroadtowardsanECsystem
providingahighlevelofconsumerprotectioninthe
singlemarket.TheCommitteeregretsthefactthat
theCouncilfailedtomakeanyreferencetoitsOwn­
initiativeOpinion. (i)OJNoC186,23.7.1992.
DoneatBrussels,24November1992.
TheChairman
oftheEconomicandSocialCommittee
SusanneTIEMANN
Opinionon:
—theproposalforaCouncilDecisionconcerningtheestablishmentofacombinedtransport
networkintheCommunity,
—theproposalforaCouncilDirectiveamendingDirective75/130/EEContheestablishment
ofcommonrulesforcertaintypesofcombinedcarriageofgoodsbetweenMemberStates,
and
—theproposalforaCouncilRegulation (EEC)amendingRegulation (EEC)No1107/70
onthegrantingofaidsfortransportbyrail,roadandinlandwaterway(!)
(93/C19/10)
On5October1992theCouncil,inaccordancewithArticles75and84(2)oftheTreaty
establishingtheEuropeanCommunities ,decidedtoconsulttheEconomicandSocialCom­
mitteeontheabovementioned proposals.
TheSectionforTransportandCommunications ,whichwasresponsibleforpreparingthe
Committee'sworkonthesubject,adopteditsOpinionon18November1992.TheRapporteur
wasMrTukker.
Atits301stPlenarySession(meetingof24November1992),theEconomicandSocial
CommitteeunanimouslyadoptedthefollowingOpinion.
—adraftCouncilDirectiveamendingDirective75/
130/EEC;
—adraftCouncilRegulationamendingRegulation
(EEC)No1100/89onfinancialaid.1.Introduction
1.1.TheEconomicandSocialCommitteewelcomes
theCommission'sinitiativeaimedatimprovingand
extendingcombinedtransport.
1.2.TheCommissiondocument [COM(92)230]
comprisesinteralia:
—aCommunication fromtheCommission tothe
Council;
—aproposalforaCouncildecisionconcerningthe
establishmentofacombinedtransportnetworkin
theEC;1.3.ThisOpinionwillconcentrateonthefirstdocu­
mentwhichisbyfarthemostinterestingandimportant.
2.General
2.1.TheCommissionpointsoutthatthefollowing
factorsmakeitnecessarytoimprovecombinedtrans­ (!)OJNoC282,30.10.1992,p.8,10,12.