EN    EN EN 
 
EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 2.7.2008 
COM(2008) 412 final 
  
COMMUNICATION FROM THE CO MMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
Renewed social agenda: 
Opportunities, access and solidarity in 21st century Europe 
{SEC(2008) 2156} 
{SEC(2008) 2157} {SEC(2008) 2178} {SEC(2008) 2184} 
 
EN    EN TABLE OF CONTENTS 
1. Introduction................................................................................................................ .. 3 
2. Europe's Social Dimension – Ti me to renew and reinvigorate.................................... 4 
3. The Renewed Social Agenda for opportuni ties, access and solidarity: the Goals....... 6 
4. The renewed social agenda for opportunities,  access and solidarity: the priorities..... 7 
4.1. Children and Youth – tomorrow's Europe ................................................................... 7 4.2. Investing in People, More and Better Jobs, New Skills............................................... 8 
4.3. Mobility.................................................................................................................. ...... 9 
4.4. Longer and healthier lives.......................................................................................... 11 4.5. Combating poverty and social exclusion ................................................................... 12 
4.6. Fighting discrimination .............................................................................................. 13 4.7. Opportunities, Access and Solidarity on the Global Scene........................................ 14 5. The renewed social agenda for opportunities,  access and solidarity: the instruments15 
5.1. EU legislation............................................................................................................ . 15 
5.2. Social Dialogue .......................................................................................................... 1 6 
5.3. Open Method of Coordination ................................................................................... 16 5.4. EU funding................................................................................................................ . 17 
5.5. Partnership, Dialogue and Communication ............................................................... 18 
5.6. Ensuring that all EU policies promot e opportunities, access and solidarity.............. 18 
6. Conclusion.................................................................................................................. 19 
 
EN 3   EN 1. I NTRODUCTION  
Technological advances, globalisation and an  ageing population are changing European 
societies. In recent years the pace of change  has accelerated. Europeans are living longer, 
healthier lives in new family configurations and working patterns. Values and relationships 
between generations are changing. Europeans face unprecedented opport unities, more choice 
and improved living conditions. The European Un ion, notably through th e Lisbon Strategy for 
growth and jobs, greater market integrat ion and macroeconomic stability, has been 
instrumental in creating those opportunities , by stimulating employment and mobility.  
At the same time stark realities remain: too many people are inactive or unemployed and too 
many young people leave school early, and as a re sult, there are still too many people living in 
poverty (especially ch ildren and older people) and in soci al isolation. And, new issues have 
emerged – an ageing and better off population br ings with it increased old age dependency 
and diseases of affluence (obesity, stress). On t op of this far reaching set of societal changes, 
2008 is witnessing a global economic slowdown, with increased competition for scarce resources, including food and energy and conti nuing turbulence in th e financial markets. 
Whilst the EU economy should hold up well in the face of these external shocks, due to sound 
fundamentals, such recent developments includ ing dramatic increases in food and oil prices 
generate concern. The poor ar e disproportionately affected  by these developments. In 
addition, while opinion polls show that Europeans are generally satisfied with their quality of 
life, they are worried about the future and fear that their children will be less well off in years 
to come. 
Social policies need to keep pace  with these changing realities - they need to be flexible and 
responsive to change. All levels of govern ance need to rise to this challenge. 
Actions in the social field are primarily the respon sibility of the Member States and have to be 
taken closest to the citizen at national a nd sub-national level. The EU's powers and 
responsibilities in the social field are limited. However, the EU, with its blend of shared 
values, common rules and solidarity mechanisms, is uniquely placed to work in partnership with the Member States and stakeholders a nd foster cooperation to manage socio-economic 
change, particularly the change driven by gl obalisation and technology. It has successfully 
responded to emerging social challenges over th e past fifty years by stimulating growth and 
jobs in a sound macroeconomic policy fram ework, promoting gender equality, fighting 
discrimination, fostering social partnershi p, improving working conditions, and ensuring 
social cohesion by tackling regional inequalities a nd assisting adjustment to economic change.  
The challenge now is to build on  that strong base by pursuing a renewed social agenda . The 
fundamental goals are set in the Treaty. The mean s to achieve them need to be renewed. The 
focus needs to be on empowering and enabling  individuals to realise their potential while at 
the same time helping those who are unable to do so.  
This agenda cannot be confined to traditional social domains; it must be cross cutting  and 
multidimensional, covering a wide range of area s from labour market policies to education, 
health, immigration and intercu ltural dialogue. The reality is th at economic and social actions 
at EU and national level are mutually reinfo rcing and complementary. That is why this 
renewed social agenda is fully coherent with  and reinforces the Lisbon Strategy for Growth 
and Jobs. 
 
EN 4   EN The renewed social agenda set out in this Communica tion is built around opportunities, 
access and solidarity . Generating opportunities requires a c ontinued effort to creating more 
and better jobs and increasing welfare. It means dismantling barriers, facilitating mobility, 
fighting discrimination, fostering gender equa lity, supporting families and tackling new forms 
of social exclusion. To exploit opportunities, individuals need access – to education, health 
care, social services of gene ral interest. They should be ab le to actively participate and 
integrate in the societies in which they live. Those individuals and regions that cannot cope 
and are left behind by the rapid pace of change  need support. Therefore, the renewed social 
agenda is also one of solidarity  – stepping up efforts to fight poverty and social  exclusion and 
explore new ways to help individuals adjust to globalisation and tec hnological change. To do 
so, the EU has to innovate in the way it sets po licy frameworks, in its legislation, in bringing 
people together in the exchange of best practice and in catalysing new approaches.  
This renewed social agenda takes into account the results of the broad public consultation1 
that was launched by the Commission in 2007 to  take stock of Europe’s changing “social 
reality”. It sets out a series of concrete meas ures in the priority areas identified in the 
European Commission’s recent Communication Opportunities, access and solidarity: towards 
a new social vision for 21st century Europe2. 
2. E UROPE 'S SOCIAL DIMENSION – TIME TO RENEW AND REINVIGORATE  
Shared social values are intrinsic to feeli ngs of European ident ity, having underpinned the 
foundations of the European project from th e beginning. EU policies have a strong social 
dimension and positive social impact: the Lisbon strategy has contribute d to the creation of 
more and better jobs. EMU and the euro have en sured price stability, fa cilitating job creation 
and stable growth. Cohesion policies have helped less developed EU regions and 
disadvantaged groups. The Single Market has created opportunities, taking account of and 
responding to the social impact of market openi ng. EU employment and social policies have 
improved employment conditions, including health and safety  at work, promoted equal 
opportunities and social incl usion and fought discrimina tion, racism and xenophobia.  
Successive waves of enlargement to embr ace new Member States have been hugely 
successful in consolidating democracy and fundam ental rights and in boosting the prosperity 
of the whole EU. The European story has been a successful process of “social convergence” 
as the economies of acceding Member States have strengthened, even if this process is still underway. In this process, European norms and EU rules and guidelines have played a part. 
This record of convergence is a te stament to the strength of Eur ope’s shared social values and 
the EU's ability to support their development. In short, enlargement has been successful in 
spreading equal oppor tunities across the continent. 
The fundamental social objectiv es of Europe have not cha nged: a strong commitment to 
harmonious, cohesive and inclusiv e societies respecting fundamental  rights in healthy social 
market economies. This is clearly spelt out in the objectives of the Union and the Charter of 
Fundamental Rights of the European Union.  
But new developments call for an urgent review of means, not ends. Globalisation  is the 
principal shaping force of our times.  
                                                
 
1 http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/index_en.htm 
2 COM(2007) 726, 20.11.2007. 
 
EN 5   EN It makes for a crucial difference to both the ratio nale and the focus of Europe’s social agenda. 
In the last generation, the social dimension ma de a huge stride forward as Europe’s Single 
Market widened and deepened. In the 1980s the Social Agenda was conceived as a means of 
securing assent to the industria l restructuring that the “1992” agenda involved. The focus was 
on employment protection and the need to secure  consensus between the social partners in 
order to facilitate industrial change. Today a much  wider social agenda is needed that allows 
Europe to take full advantage of the opportuni ties brought about by gl obalisation, to help 
citizens adapt to changing realities and to sh ow solidarity with t hose who are affected 
negatively. 
Combined with globalisation, rapid technological change  has wide ranging impacts on 
society and profound implicat ions for social policies3. It increases the demand for skills, 
widening the gap between the sk illed and unskilled. The averag e unemployment rate for low-
skilled workers is around 10%, co mpared to 7% for those with  upper secondary education and 
4% for those with tertiary educ ation. The overriding social issu e for the longer term is to how 
best to equip individuals with the right skills to give them a better chance in the modern 
economy as workers, entrepreneurs and consumers. This is more than an issue of industrial training in the conventional sense. It is about what types of skills and competences are needed 
for a new type of economy and how  citizens can be equipped to succeed. That is why the EU 
is investing heavily in skills development, s upporting the development of more efficient and 
sustainable labour markets and social system s, combining flexibi lity and security, and 
promoting mobility in education and conti nuous training and in knowledge and innovation.  
Demographic change is driving societal change a nd needs innovative policy responses . 
Increased life expectancy is one of Europe's  greatest achievements. But, combined with 
declining fertility, the ageing of Europe's popul ation requires major changes to the way we 
live, work and prepare for retirement. The popul ation in the age group 15-64 is projected to 
contract by 48 million by 2050, and the dependen cy ratio will double over the same period
4. 
Public social expenditure has to adapt flexibly  to take account of Europe's ageing population, 
changing work patterns. Enhancing the efficien cy and effectiveness of welfare systems, 
notably via improved incentives, better administ ration and evaluation, and the prioritisation of 
spending programmes has become crucial to ensure  the long-term financial sustainability of 
European social models. The EU is working in  partnership with Member States to address 
common challenges, supporting thei r efforts to ensure equity and financial sustainability, 
while carrying through necessary health and pension system reform. The Council has recently 
invited the Commission and the EU's Economic Policy Committee to refine the analysis of 
social expenditure and the reforms necessary to  ensure equity, efficiency and effectiveness5 
(see accompanying document). 
Immigration  is making a significant c ontribution to employment, gr owth and prosperity in 
the European Union. Demand for migrants, particul arly those with specifi c skills, is likely to 
increase over the coming years due to demogra phic change and labour market shortages in 
certain sectors and regions. Me mber States have also rec ognised the importance of joint 
action at the EU level to address challenges linked to  immigration and  integration .  
                                                 
3 See also accompanying Commission staff working document "A renewed social agenda for Europe: 
Citizens Wellbeing in the Information Society" 
4 The ratio of those over 65 to the working population (15-64) will increase from 1 to 4 currently to 1 to 2 
in 2050. 
5 ECFIN Council Conclusions of 14 May 2008, available at:  
http://www.consilium.europa.eu/ueDocs/cms_Data/docs/pressdata/en/ecofin/100325.pdf 
 
EN 6   EN The Commission has recently pr oposed a comprehensive Co mmon Immigration Policy for 
Europe6 for coordinated action and with a view to promoting prosperity, solidarity and 
security. To realise its potential, immigration has to be accompanied from the start by efforts 
to facilitate successful integration, including by host country language learning. This poses 
also a mix of other complex challenges and require s efforts in different sectors such as health, 
housing and education.  
Climate change  and new energy use patterns will crea te new opportunities as well as social 
impacts. The EU, at the forefront  of international efforts to tackle climate change, is also 
analysing its social-economic consequences an d developing policies to support adaptation. 
The transition to a sustainable low-carbon economy is of vital importance for the well-being 
of future generations. The EU can help harn ess new opportunities for economic development 
and the creation of "green jobs", while acting in solidarity with vulnerable groups and in 
consultation with social partners. In this context,  attention will need to be paid to the risk of 
"energy poverty".  
3. T HE RENEWED SOCIAL AGENDA FOR OPPORTUNITIES , ACCESS AND SOLIDARITY : 
THE GOALS  
The Renewed Social Agenda is based on thr ee interrelated goals of equal importance: 
• Creating Opportunities : Creating opportunities means gene rating more and better jobs and 
facilitating mobility. In societ ies where each individual is regarded as being of equal 
worth, no barriers of any kind should hold peop le back. This means ensuring the chances 
for all to develop their own potentials whil e respecting Europe’s diversity and tackling 
both overt and indirect discriminatio n and fighting racism and xenophobia. 
• Providing Access : Given the very different starting points in life, opportunity cannot be 
ensured without improving access for the most  disadvantaged. All citizens must have 
access to good quality education, social protection, h ealth care and services that can help to 
overcome inequalities in starting points and to en able all to enjoy longer, healthier lives. 
Europe's youth must be equipped to take a dvantage of opportunities. All Europeans should 
have access to education and skills devel opment throughout life (f or example, second 
chance schools or life-long learning) so as to be able to adjust to change and start afresh at 
different points in their life. 
• Demonstrating Solidarity : Europeans share a commitment to social solidarity: between 
generations, regions, the better off and the less well off and wealthier and less wealthy 
Member States. Solidarity is part of how European society works and how Europe engages 
with the rest of the world. Real equali ty of opportunity depends on both access and 
solidarity. Solidarity means action to help t hose who are disadvantaged – who cannot reap 
the benefits of an open, rapidl y changing society. It means fostering social inclusion and 
integration, participation and dialogue and co mbating poverty. It means giving support to 
those who are exposed to temporary, transitional problems of globalisation and technological change. 
                                                
 
6 COM(2008) 359, 17.6.2008. 
 
EN 7   EN Actions to move towards these goals are primarily  the responsibility of the Member States at 
national, regional and local levels. The scope for action is wide and calls for priority setting. 
Hence, the agenda that follows focuses on ke y areas – youth, human capital, longer healthier 
lives, mobility, social inclusion, anti-discri mination and equal opportunities as well as 
participation and civic dialogue - where EU act ion demonstrates clear added value and full 
respect for the principles of subsidiarity a nd proportionality. Actions in each of these areas 
contribute to the three goals of opportunities, access and solidarity. They reflect the need for 
the EU to innovate and evolve - in the way it sets policy fram eworks, in its legislation, in 
bringing people together in the exchange of best practice and in catalysing new approaches. 
4. T HE RENEWED SOCIAL AGENDA FOR OPPORTUNITIES , ACCESS AND SOLIDARITY : 
THE PRIORITIES  
4.1. Children and Youth – tomorrow's Europe 
Europe's future depends on its youth. Yet, life chances of many young people are blighted - 
they lack the opportunities and the access to e ducation and training to realise their full 
potential. 19 million children and young people are at risk of poverty and six million drop out 
of secondary education each year . Action is required to break the vicious cycle of childhood 
deprivation, unhealthy lifestyles, academic under-achievement and social exclusion of 
children. The problems of high youth unemploymen t, too many early school-leavers, and the 
relative job insecurity and wage inequality f aced by younger people have to be tackled. So too 
do the concerns of youth that despite working l onger, they may be worse off in old age than 
previous generations. All children need to receive an education that equips and gives them a 
fair chance in today's world. They need to be encouraged to reach different and higher levels 
of qualification and skills th an their parents achieved.  
The EU can help to develop new forms of in tergenerational solidarity and to address the 
specific problems facing young people today, in cluding access to education and training, the 
labour market, housing and finance. The Eur opean Youth Pact agre ed by the European 
Council in March 2005 provides a common fram ework for action by the EU and Member 
States. The Commission will continue a range of activities focused on children and youth: 
mainstreaming children’s rights  in EU actions, stepping up effo rts to promote and protect the 
rights of the child7, actions on youth and health and promoting the safer use of the Internet8 
and enhanced action on road safety .  
Further action: 
The renewed social agenda includes: 
- a Communication on School Education in support of efforts by Member States to improve 
the quality of their education systems  and achieve targets regard ing early school leavers, 
literacy, participation in secondary educa tion and preparing young people for lifelong 
learning. This follows a public consultation on "Schools for the 21st Century". Maximising the 
efficiency and equity of primary education and training is an essen tial part of ensuring 
opportunities for young people. 
                                                 
7 See http://ec.europa.eu/justice_home/fsj/children/fsj_children_intro_en.htm 
8 COM(2008) 106, 27.2.2008. 
 
EN 8   EN - a Green Paper on "Migration a nd Mobility: challenges for th e EU's educational systems". 
Later in 2008/2009 the Commission will: 
- issue a Communication on developing the Open Method of Coordination on youth , with a 
particular focus on young people with fewer opportunities. 
– develop a more comprehensiv e approach to  child poverty , based on quantitative targets (see 
section 5.2), inspired by the European stra tegy on inclusion and social protection.  
4.2. Investing in People, More and Better Jobs, New Skills 
The new social agenda is an integral part of the Lisbon St rategy and the EU Sustainable 
Development Strategy. One of the biggest contributions the EU can make to well being is to 
foster growth and jobs since a healthy economy is the foundation for prosperity and the best 
escape route from poverty is a job. The Lisbon Strategy and EMU are contributing to create 
more jobs, through price stab ility, decreased unemployment  and improved productivity. The 
2008 Spring Economic Forecast anticipates the creation of 3 million new jobs in 2008 and 
2009 on top of the 7½ million already created  in 2006 and 2007. Small and medium-sized 
enterprises have a key role in generating new and better jobs, as clea rly recognised in the 
recently adopted "Small Business Act" for Europe9. 
A key role for the EU in the face of globalisa tion and rapid technological change is to help 
Member States to modernise labour markets and to anticipate change and restructuring. It 
agreed on common flexicurity principles and pathways based on flexible and secure 
contractual arrangements , life-long learning, active labour mark et policies and modern social 
security systems to ease labour market transi tions and make work pay. The Commission is 
working with the Member States and social part ners to implement flexicurity at national level 
within their Lisbon reform programmes. On the legislative side, it is important that the 
European Parliament and the Council come to a rapid and positive conclusion on the 
proposals for directives on working ti me and on temporary agency work.  
Social dialogue at European level is essen tial to facilitating change. The Directive on the 
European Work's Councils provides a platform  for dialogue between employers and workers 
and could be further improved. Partnerships betw een social partners and public authorities in 
anticipating and managing change are being developed.  
The Structural Funds offer financial support to Member States, regions, municipalities, 
businesses and citizens in anticipating and adap ting to changing circumstances. The European 
Globalisation Adjustment Fund (E GF), set up in 2007, provide s support for the rapid re-
integration into the labour market of worker s who are made redundant as a consequence of 
changes in trade patterns created by globalisation. The EGF has had a positive impact in a number of Member States but there is room to further exploit its potential. 
Immigration is already playing an important ro le in filling labour ma rket gaps and skills 
shortages. Demand for migrants, pa rticularly those with specific skills, is likely to increase 
with demographic change. The Commi ssion's recent Communication on a Common 
Immigration Policy for Europe10 sets out a number of initiativ es designed to ensure that 
                                                 
9 COM(2008) 394, 25.6.2008. 
10 COM(2008) 359, 17.6.2008. 
 
EN 9   EN economic migration is well managed in partners hip with the Member States on the basis of 
commonly agreed principles . Integration is one of  those key principles. 
Education and investing in human capital forma tion in general is critical to ensure labour 
participation and social inclusion and to e nhance the competitiveness of the EU. In this 
rapidly changing world, people need access to o pportunities at different points in their lives. 
This means a commitment to lifelong learning and ongoing renewal of skills attuned to present and future labour market needs. The Commission will bring forward initiatives on skills and on supporting the Member States in m odernising their educatio n systems within the 
limits of the Treaty. New skills - entrepreneurial, for the low-carbon economy, information and communication technologies - as well as those fostering digital, media and financial 
literacy are all part of a modern skills set.  
Necessary reforms will be carri ed forward in the framework of the Lisbon strategy, which 
includes the European Employment Strategy, and the Open Method of Coordination in 
education and training. Actions will also be ta ken to promote entrepreneurship education, ICT 
"e-skills"
11 and financial education in the EU. 
Further action: 
As part of this package, the Commission is coming forward with: 
- a Directive to improve the func tioning of European Works Councils  to ensure effective 
social dialogue on restructuri ng operations. The renewed social agenda is also accompanied 
by staff working documents, one encouraging and supporting Social Partne rs to step up their 
efforts to anticipate and manage structural change  and another highlighting the importance of 
company-based trans-national agreements ; 
- a Report on the European Glob alisation Fund that reviews its first year of operation, 
indicates how procedures can be simplified and streamlined and suggests a number of ideas as 
to how the EGF could be improved. 
Later in 2008/2009, the Commission will propose: 
- a "New skills for new jobs initiative", prov iding a first assessment of labour market and 
skills needs up to 2020 and a mapping of existi ng anticipation instruments at national and 
European level, and proposing a more effective approach to ensure anticipation and matching 
between labour demand and supply through s ynergies between employment, training and 
education policies; 
- an updated strategic framework to apply the open method of coordination for European co-
operation in education and training; 
- a Communication on multilingualism  in the EU. 
4.3. Mobility 
The free movement of people is a rich source of opportunities for citizens, helping to boost 
economic growth and competitiveness. Europe ans are increasingly mobile. The EU has a 
                                                 
11 COM(2007) 496, 7.9.2007. 
 
EN 10   EN robust legal framework in place  providing for the free moveme nt of workers. Moreover, it 
provides practical support to facilitate mobility  and to remove potential obstacles, including 
support for the free movement of workers thr ough the EU's Job Mobility Action Plan.  
The EU also supports student and youth mobilit y through a variety of transnational European 
programmes, such as the Erasmus programme. Th is enhances their langu age and intercultural 
skills, their employability and makes them more open to future job and geographical mobility.  
The directive on posting of  workers has been instrumental in promoting free movement of 
services and at the same time protecting workers and working conditions. However, the 
posting of workers from one Member State to an other also raises a num ber of questions about 
the application of existing European and nati onal legislation and prac tices on posted workers. 
The Commission recently adopted a recommendation12 on enhancing administrative 
cooperation in order to combat und eclared work and ensure an a ppropriate level of confidence 
between Member States. 
Some questions have also been widely disc ussed recently in the wake of rulings by the 
European Court of Justice (in the Laval, Viking and Rüffert cases). The Commission will support the Member States in making effective use of the opportunities offered by the existing 
directive on the posting of work ers. At the same time, on the basis of a thorough analysis of 
the rulings and other precedents, it  will discuss all these questions  with the social partners and 
the Member States and address issues of concer n, including in a specially convened Forum in 
the autumn of 2008. The Commission is committed to ensuring that there is no contradiction 
between the fundamental freedoms of the Treaty and the protection of fundamental rights and 
will thoroughly assess, discuss and respond to issues of concern, including through providing 
interpretative guidelines if needed.  
In this context the Commission strongly welcomes the common position agreed by the 
Council of ministers on 9 June 2008 that, as con cerns temporary agency workers, establishes 
the principle of equal treatment as of day one , unless social partners decide otherwise. 
Further action: 
As part of this package, the Commission  
- invites social partners and Member States to discuss the issues raised by the recent Court 
rulings and organise a Forum  to promote debate and exchange of good practice among 
stakeholders on how to respect social right s against the background of increasing labour 
mobility . The Commission will support Member States  and discuss with them and the social 
partners how to address issues of concern; 
- continues to develop a “fifth freedom” by  removing barriers to the free movement of 
knowledge, promoting the mobility of  specific groups like researchers13, young 
entrepreneurs14, young people15 and volunteers16. It will also seek to ensure a complete and 
                                                 
12 Commission Recommendation of 3 April 2008 on enhanced administrative cooperation in the context 
of the posting of workers in the framework of the provision of services. 
13 COM(2008)317, 23.5.2008 Better careers and more m obility: a European partnership for researchers 
14 Pilot Project 2008-2010. 
15 Green Paper planned for June 2009. 
16 Proposal for a Council Recomme ndation in accompanying document. 
 
EN 11   EN rigorous implementation of th e EC Directive on mutual recognition of professional 
qualifications17. 
4.4. Longer and healthier lives 
Europe's ageing society demands a variety of policy responses - from supporting research into 
how information technology can improve the health and wellbei ng lives of older people, to 
assessing what health care and pension reforms are needed to meet the needs of an ageing 
population while ensuring the sustai nability of public financing.  
The EU should facilitate access for all to quali ty health care. Enhanc ing patients' rights to 
cross-border health care are an important aspect of this. There is a need for clarity on patients' 
rights and for a framework to ensure that Member  States retain the capac ity to decide on their 
national health systems, mindful of the need for sustainable f unding. There is also a need to 
foster patients' and professionals ' mobility by facilitating the cro ss-border interoperability of 
electronic health records while protecting privacy. 
The EU is supporting efforts by Memb er States to ensure the financ ial sustainability of social 
protection systems including health , to ensure adequate pensions  in the future, and preserve 
the quality and accessib ility of services. Under the Open Method of Coordination in these 
areas financial sustainability and social adeq uacy have been common joint objectives since 
2006. The Commission and the Member States are also analysing the ec onomic and budgetary 
impacts of ageing and of pension and healthcare reforms. 
Poverty, unemployment, low levels of education, ge netic risks and disabili ty are all associated 
with poorer health. The European health strategy18 adopted in October 2007 highlights shared 
values of universality, access to  good quality health care, equity and solidarity. It foresees 
action to address the challenges linked to  Europe’s ageing population and growing 
inequalities in health. The European Health Po rtal provides citizens and stakeholders with 
access to information on key health issues. 
The strategy for health and safety at work adopted by the Commission in 200719 helps people 
remain in the labour market l onger by improving protection agai nst risks in th e workplace. 
The strategy aims to achieve a 25% reduction in workplace accidents by 2012.  
Further action: 
The Commission will: 
- propose a Directive on the ap plication of patients' rights in cross-border health care . This 
will establish a Community framework for cross-border healthcare on the basis of the case-
law of the European Court of Justice. It will help to: provide legal cl arity regarding patients' 
rights; ensure high-quality, safe and efficient cross-border care ; and provide a framework for 
European cooperation in full respect of the pr inciples of the national systems and ensuring 
their sustainability;  
                                                 
17 Directive 2005/36/EC of the European Parliament and of the Council on the recognition of professional 
qualifications. 
18 COM(2007) 630, 23.10.2007. 
19 COM(2007) 62, 21.2.2007. 
 
EN 12   EN - come forward with a Recommendation on the cross-border interoperability of electronic 
health records , which will facilitate patients’  and professionals’ mobility; 
- present a Communication focu sed on actions to meet the needs of an ageing population in 
autumn 2008. Within the framework of the “E uropean Action Plan for Ageing well in the 
information society” a new EU-funded progr amme on assisted living will raise over €600 
million for research into the use of Information and Communication Technologies  to improve 
the lives of older people at home, in th e workplace and society more generally; 
- publish an updated report on the impact of ag eing on public expenditure in the spring of 
2009, followed by a Communication on the long-te rm sustainability of public finances  in the 
autumn 2009; 
- issue a Communication on health inequalities  during 2009, building on work under the 
Social Inclusion and Social Protection OMC; 
- propose a Communication and draft Council Recommendation on patient safety and the 
quality of health services , including the prevention and cont rol of healthcare-associated 
infections and a Communica tion on Telemedicine and Innovative Information and 
Communication Technology Tools for Chronic Disease Management.  
- issue a Green Paper on the EU health workforce , a vital part of delivering high quality health 
services, which will consider  the challenges posed by agei ng, mobility and technological 
change and how they can be addressed. 
4.5. Combating poverty and social exclusion 
Some 78 million Europeans, or 16% of EU popula tion, are at risk of poverty. Poverty strikes 
in particular the unemployed, the disabled and the elderly; women are disproportionately at 
risk. Even employment is not a guarantee against pove rty: in-work poverty is on the increase 
with some 8% of employed people at risk of poverty. There are barriers and financial 
disincentives preventing or discouraging certain groups from gaining full access to 
employment, training, education,  housing and health-care. Th e EU is helping coordinate 
efforts to promote active inclusion, including labour market integrati on, making work pay and 
life-long learning, particularly for those who are furthest from the labour market, as part of the 
fight against poverty. The Commi ssion is also working to ensure that single market and 
competition rules facilitate th e development of good quality, acces sible and sustainable social 
services, including those supplied by social economy enterprises (e .g. cooperatives, mutual 
undertakings). 
Further action: 
The Commission is presenting the first biennial report on Social Services of General Interest 
as part of the package and will in 2008/2009: 
- propose a Recommendation on active inclusion  covering questions of income support, links 
with the labour market and better access to quality services. The planned 2010 Year of 
inclusion and the fight against poverty will provide the o pportunity for a renewed political 
commitment on the part of the EU and its Memb er States to those fundamental goals of the 
EC Treaty; 
 
EN 13   EN - reshape and significantly exte nd the food aid programme for Eu rope's most deprived people . 
The programme has provided food to over 13 million people in 2006 and has become even 
more important in a cont ext of rising food prices; 
- undertake initiatives to improve digital li teracy, enhance broadband deployment in 
underserved areas20 and to give better access and accessibil ity of persons with disabilities to 
the information society21 with a view to tackling the digita l divide. Action is also planned to 
promote financial inclusion – so that no one in the EU is denied access to a basic bank 
account. 
4.6. Fighting discrimination  
Pursuing opportunity means syst ematically attacking discrimi nation and fighting racism and 
xenophobia. In addition to the l ong standing legislative protecti on on the basis of gender, the 
EU has legislation banning discrimination on grounds  of religion or belief, disability, age and 
sexual orientation in employment and discriminati on on grounds of racial  or ethnic origin in 
employment, education, social pr otection and access to goods and services. To complete this 
legal framework, a key element of this renewe d social agenda is a proposed directive to 
combat discrimination based on religion or belief, disability, age or sexual orientation and to 
put into effect the principle of equal trea tment, outside the field of employment.  
The EU is actively engaged in fighting raci sm and xenophobia and encourages the Council to 
formally adopt the Framework Decision on Racism and Xenophobia on which political 
agreement was reached in April 2007.  
Over the last half century, the EU has promoted  gender equality (one of  its core values) by 
developing a comprehensive legislative framew ork. It has invested in increasing women's 
participation in the labour market through the Eu ropean Social Fund. The employment rate of 
women rose from 54.3% to 57.2% between 2001 and 2006, and the objec tive of 60% by 2010 
is within reach. But inequalities persist, as reflected in gender pay differentials. Women also remain underrepresented in economic a nd political decision making processes
22.  
Further action: 
As part of this package, the Commission is: 
- proposing a Directive to combat discrimination based on religion or belief, disability, age or 
sexual orientation and to put into effect the prin ciple of equal treatment,  outside the field of 
employment. It will also continue non legi slative action to promote equality in close 
cooperation with Member States, ci vil society and social partners23; 
- reporting on the EU instruments and policies in favour of Europe’s Roma  community (see 
accompanying Report). 
It will: 
                                                 
20 COM(2006) 129, 20.3.2006. 
21 COM(2007) 694, 8.11.2007. 
22 Women and men in decision-making 2007, European Commission 2008. 
23 See accompanying communication on ""Non-discri mination and equal opportunities: A renewed 
commitment". 
 
EN 14   EN - strengthen the integration of a gender perspective ('mainstreaming')  in its policies and 
activities, including those c overed by this Renewed Social  Agenda, inline with the 
commitments in the EU Roadmap on Equality  between Women and Men (2006-2010) and in 
the European Pact for Gender Equality; 
- report in 2008 on the implementation of the Ro admap and, in 2010, present an evaluation 
and follow-up strategy ; 
- consider presenting legisla tive proposals in September 2008 with a view to improving the 
reconciliation of privat e and professional life  by improving parental leave arrangements, 
introducing news forms of leave (paternity, adoption and filial leave), and strengthening 
protection for pregnant women.  
- continue to tackle  the gender pay gap , in line with its Communication adopted in July 
200724, in particular by exploring ways of impr oving the legislative framework and the way it 
is being implemented, making full use of th e European strategy for growth and jobs, 
encouraging employers to commit themselves to equal pay and supporting the exchange of 
good practice at Community level; 
- issue a report on the “Barcelona” targets concerning the availability of child-care  facilities in 
September 2008; 
- focus the Open Method of C oordination on reducing the at-risk-of-pover ty rate for women , 
particularly older women; 
- take action on the gender gap in entrepreneurship  (currently only 31% of entrepreneurs in 
Europe are women).  
4.7. Opportunities, Access and Solid arity on the Global Scene 
The EU cooperates with national and internatio nal partners to promote high social standards 
protecting workers, consumers and the environm ent. Coordinated EU action helps shape the 
international agenda and harness the positive be nefits of globalisation and managing change. 
The Commission will pay increasing  attention to the projection of its social policies externally 
and the social impacts of its internal policies globally. 
The Commission will continue its cooperation with the candi date and poten tial candidate 
countries  in the social and related fields25. It will contribute to the international efforts aimed 
at promoting the social dimension of globalis ation. It will also continue pursuing policy 
dialogue on employment and social affairs in  bilateral and regional fora, including with 
partner countries of the European Neighbour hood Policy and with em erging economies. The 
Commission will ensure that its external relations, trade and development policies  in the 
broadest sense help promote opportunities, access and solidarity beyond EU borders.  
It will incorporate decent work and social c oncerns in agreements be tween the EU and third 
countries , and strengthen the social dimensi on of trade and trade-related policies  (including 
through the Generalised System of Preference s and Free Trade Agreement negotiations). 
                                                 
24 COM(2007) 424, 18.7.2007. 
25 See eg. Commission Communication "Western Balkans: Enhancing the European perspective", 
COM(2008) 127, 5.3.2008. 
 
EN 15   EN Development and external policies and assistance  will also be used  to support the 
development of social protection systems, the modernisation of labour markets and contribute 
to international efforts addressi ng the social dimension of globa lisation and of climate change. 
Further action: 
The Commission reaffirms its co mmitment to promote the internationally-agreed agenda for 
decent work, including through the cooperation w ith the International Labour Organisation 
(ILO) and other partners, and the mobilisation of all relevant EU policies  (see accompanying 
report highlighting the progress made since 2006). The Commission also calls upon all 
Member States to set an example by ratif ying and implementing the ILO Conventions  
classified by ILO as up to date . 
The Commission will continue to prom ote Corporate Social Responsibility  in cooperation 
with all relevant stakeholders. 
5. T HE RENEWED SOCIAL AGENDA FOR OPPORTUNITIES , ACCESS AND SOLIDARITY : 
THE INSTRUMENTS  
The Social Reality Stocktaking has confirmed that  citizens and stakeholders expect the EU to 
bring added value to social development, while remaining mindful of subsidiarity, 
proportionality and diversity. It will continue to do so through the instruments in the EC 
Treaty (legislation, social di alogue, the Open Method of  Coordination, EU funding, 
involvement of Civil Society) and by exploitin g the scope for synergies between them in a 
comprehensive approach and a "smarter mi x" of policy tools. The coordination and 
surveillance of economic and budgeta ry policies also play an impor tant role in this respect. 
5.1. EU legislation 
The EU has put in place a r obust legislative framework for the well-being of Europeans by 
establishing and strengthening thei r rights as citizens, consumers and workers in many areas, 
including mobility, health and safety, social  security, working conditions, information and 
consultation, gender equality, and non-discrimination. 
In some cases, new EU legislation can offer solutions if there is broad agreement on its 
relevance and convincing evidence about its added value. Existing legislation will need to be 
updated and streamlined in the light of emerging issues (e.g. in the fi eld of discrimination, 
health and safety), new forms of work organisation (e.g. European Works Councils, 
reconciliation of work a nd family life) and jurisprudence from the European Court of Justice 
(e.g. working time, social secur ity, cross border health care).  
Existing legislation must be effectively applied and enforced. Problems of improper 
implementation are often due to a lack of  knowledge or insuffici ent coordination and 
cooperation between national authorities. The Co mmission will work with Member States, the 
social partners and other play ers to remedy these problems in  line with its Communication on 
"A Europe of results – Applying Community Law"26, and its support for citizens and 
businesses in the context of the Single Market Review. 
                                                 
26 COM(2007) 502, 5.9.2007. 
 
EN 16   EN 5.2. Social Dialogue 
The European Social Dialogue, one of the corner stones of the European social model, has an 
essential role in EU policy making. The right of Social Partners, enshrined in the EC Treaty, 
to be consulted prior to any employment or social affairs initiative from the Commission, to 
negotiate themselves on issues submitted by the Commission or to conclude autonomous agreements on their own initiative, has had ma ny positive results, e.g. their agreements on 
parental leave, on violence and stress at wo rk, on telework and on the ILO Convention on 
seafarers. A staff working document on telewo rk and a proposal on the Social Partners' 
agreement on the ILO Maritime Convention are part of this package. 
The Commission calls upon the Social Partners to  make full use of the possibilities offered by 
the European Social Dialogue. With their knowl edge and experience they are best placed to 
identify changing social realities and have a spec ific role to pl ay helping to provide responses. 
The EU will continue to facilita te the Social Dialogue, including at sector/industry level, and 
the implementation of European framework ag reements by the national social partners. 
5.3. Open Method of Coordination 
Open methods of coordination (OMCs) are ke y to the EU Social Agenda, having helped 
Member States to develop a sh ared vision of social challenge s, fostered a willingness to 
cooperate and learn from each other's practic es, created a new dynamism in furthering and 
implementing reforms, and promoted more knowledge-based policy making, geared towards 
openness, transparency and participation. 
The first European Employment Strategy, launched in 1997, has contribute d to the creation of 
more and better jobs and hence well-being in ve ry concrete terms. The OMC in Education and 
Training, launched in 2002, has provided valuable support to Member States in developing 
their policies and lifelon g learning strategies. The results of  the Open Method of Coordination 
on Social Protection and Social Inclusion (h enceforth the "Social OMC") in areas beyond 
direct Community competence (e.g. pensions, fam ily and disability benefits, health care and 
long-term care) show that this  process is an esse ntial complement to EU legislation. It 
illustrates how voluntary cooperation among Memb er States supported by the EU can give 
practical effect to the principle of subsidiari ty in their joint efforts to combat poverty and 
exclusion, and to secure modern, sustai nable and equitable welfare systems. 
Quantified targets and indicators have prove d indispensable in boosting and monitoring 
progress at EU and national level. The pr eparation of a post-2010 Lisbon Strategy will 
provide the opportunity to review progress to wards objectives and examine if even more 
ambitious targets should be set (such as higher employment rate s for young people, older 
workers and women). Consideration should also be given to introducing or updating targets in 
other OMC areas (e.g. percentage of GDP in human capital investment; reducing poverty, in 
particular child poverty; improving educational attainment, setting targets for reform of 
pensions, health and long term care systems) so as to reflect a renewed commitment to delivering results under the Renewed Social Agenda . Statistical data will be needed in this 
context and will be developed in cooperation with Eurostat and the European Statistical 
System.  
Further Action: 
The Commission: 
 
EN 17   EN - proposes to strengthen and utilise the full poten tial of the Social OMC by applying some of 
the procedures and working methods used under the Lisbon strategy, with a view to 
improving the political commitment and visib ility (i.a. by setting quantitative targets), 
strengthening the links with other policies, enha ncing analytical tools and evidence base, and 
stimulating monitoring, mutual learning an d peer review by Member States. (See 
accompanying document); 
- will consider proposing a Recommendation on active inclusion  (see 4.5). 
The Social Reality Stocktaking pointed to a growing consensus that GDP as a measure of 
economic performance is not sufficient to gui de policy responses to complex contemporary 
challenges. The Commission will support the development of well being objectives "beyond GDP". 
5.4. EU funding 
Cohesion Policy and the Structural Funds make  a vital contribution to the promotion of 
opportunities, access and solidarity by strength ening both competitiveness and social 
cohesion. Under the current programming peri od 2007-13, Cohesion policy and the European 
Social Fund in particular will spend some  EUR 14 billion to strengthen the ability of 
companies and workers to anticipate and manage  change; some EUR 26 billion to increase the 
quality of education and training; some 30 billio n to increase employment including efforts to 
combat discrimination, EUR 5 billion for investme nt in health and EUR 1.2 billion to increase 
migrant's participation in employment and thei r social inclusion. Furthermore, the European 
Fund for the Integration of third-country na tionals (2007-2013) supports the integration of 
new migrants in Member States. The Commissi on is working with the Member States to 
ensure the most effective use of these investment s, to support in partic ular policy priorities 
under the Lisbon Strategy. As explained above  (see 4.2) the Eur opean Globalisation 
Adjustment Fund (EGF), supports workers who are made redundant by globalisation. 
The European Agricultural Guar antee Fund (EAGF) and the European Agricultural Fund for 
Rural Development (EAFRD) also contribute to the EU's social agenda by ensuring an 
affordable supply of good quality food, improving the competitiveness of the agricultural, 
forestry and food-processing sectors and the qu ality of employment within them, enhancing 
the quality of life in rural areas and improving employment opportunities in rural areas as a 
whole. 
The 2007-2013 Programme on employment and social solidarity (PROGRESS)
27 helps to 
apply EU law, creating a shar ed understanding of the EU obj ectives and priorities, and 
strengthening partnerships with  key EU and national stakehol ders. The Lifelong Learning and 
Youth in Action Programmes support the develo pment of quality education and training and 
the social integration of young pe ople respectively, in lin e with the political objectives of the 
open methods of coordination. Gr eater involvement of the scie ntific community and stronger 
links with other ongoing research activit ies supported by the Research Framework 
Programme 2007-2013 will also contribute to developing knowledge – and evidence-based 
policies.  
                                                 
27 http://ec.europa.eu/employment_social/progress/index_en.html 
 
EN 18   EN 5.5. Partnership, Dialogue and Communication 
Opportunities, access and solidarity for all can only be achieved in partnership between the 
European Institutions, Member States, Regional a nd Local Authorities, Social Partners, Civil 
Society and other stakeholders, includ ing external partne rs as relevant. 
Civil Society organisations act as a vital bridge between the European Union, Member States 
and citizens. The Commission will continue to support NGOs' capacity to act at the EU level 
and take an active part in devel oping and implementing EU policies. 
Enterprises, in close cooperation with other st akeholders, can also activ ely contribute to the 
goals of the renewed social agenda, for example in areas such as social inclusion and skills development. 
Citizens, businesses and other st akeholders should be better informed about the opportunities 
offered by the European Union, building on ex isting services like th e EURES jobs portal, 
SOLVIT, the Internal Market Information Syst em, the Enterprise Europe Network, Europe 
Direct, Your Europe etc. A Single Market As sistance Service is under preparation which will 
enhance the information offer and its accessibility
28. 
The Commission will continue to promote civic pa rticipation, not least in the context of the 
2008 European Year of Intercu ltural Dialogue. The results of the Year must have a 
sustainable impact and be taken up in a ll relevant EU policies and programmes. 
The Commission will con tinue to seek the views of citizens and stakeholders as it puts the 
Renewed Social Agenda into effect. 
5.6. Ensuring that all EU policies promot e opportunities, access and solidarity 
The development of evidence-based monitoring tools will become an important means of 
ensuring that all EU policies reflect objectiv es linked to the promotion of opportunities, 
access and solidarity. The current Treaty requires all of the European Community's activities 
to "aim to eliminate inequalities and to promote equality between men and women"29. It is 
generally recognised that  the EU should take account of so cial policy goals and the need to 
combat all discriminations in the definition and implementation of all other policies. The 
Commission will continue to submit all major new initiatives to rigorous analysis of social impacts as part of its impact assessment wor k. The Impact Assessment Board will continue to 
make sure that the potential social and empl oyment impacts are fully taken into account 
before proposals are made. In the evaluation  of existing policies the Commission will 
strengthen the attention paid to social impacts. 
The EU already nurtures a strong social reflex when developing internal market legislation 
and measures. For instance EU  rules on public procurement leave ample opportunities for 
authorities to take into account social cons iderations when selecting the best offer
30. New 
initiatives such as monitoring of the retail distribution market, including the price and quality of basic goods could generate positive implications in the social field. 
                                                
 
28 SEC(2005) 985, 20.7.2005. 
29 Article 3, EC Treaty. 
30 The Handbook on socially responsible public procurement, which the Commission will issue in 2009 
will provide detailed guidance and practical illustrations in this context. 
 
EN 19   EN 6. C ONCLUSION  
New social realities require new responses. Change is rapid – a nd policies need to keep pace, 
responding innovatively and flexibly to the challenges of globalisation, technological 
advances and demographic developments.  
This renewed social agenda is such a respon se – it shows how the go als of opportunities, 
access and solidarity will be translated into c oncrete actions. It is an integrated policy 
response, complementing the Lisbon Strategy and demonstrating a commitment to delivering 
results for citizens. It shows that European values  remain at the core of  EU policies and are an 
integral part of the EU response to globalis ation. It reflects th is Commission's strong 
commitment to the social dimension, already set out in its strategic objectives in 2005, and is 
an essential contribution to wi der efforts to make the Union economically str ong, socially 
responsible and secure. This ag enda, including its ac tions and instruments will be reviewed 
together with the Lisbon st rategy for the post 2010 period. 
The Commission calls upon the Council and the European Parliament to renew their 
commitment to the social dimension of the Eu ropean Union, by endorsing this renewed social 
agenda and to agree on the legisla tive proposals that are accompanying it.