4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/39
Opiniononthe'FirstReportontheApplicationoftheCommunityCharteroftheFundamen­
talSocialRightsofWorkers'
(92/C287/12)
On26May1992theEconomicandSocialCommittee,actingunderthefourthparagraphof
Article20ofitsRulesofProcedure,decidedtodrawupanOwn-initiative Opiniononthe
'FirstReportontheApplicationoftheCommunityCharteroftheFundamentalSocialRights
ofWorkers'.
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon18June1992.The
RapporteurwasMrsEngelen-Kefer .
Atits298thPlenarySession(meetingof2July1992)theEconomicandSocialCommittee
adoptedthefollowingOpinionby88votesto65,with1abstention.
1.GeneralComments
'AthirdofacenturyofEuropeandstillnosocialpolicy
worthyofthename.'
[FrancoisStaedelin,SocialEurope1/90)(*).]socialwell-beingthroughouttheCommunity,andthat
adurableEC-widesocialmarketmodelmustrestequ­
allyuponfreeenterpriseandeconomicgrowth,and
basicsocialrights,socialconsensusandcohesion.Thus,
inthecontextofthecompletionoftheSingleMarket,
theEuropeanCouncilsofHanover,RhodesandMadrid
heldthatequalimportanceshouldbeattachedtosocial
andeconomicaspectsandthatbothshouldbe
developedinabalancedmanner.
1.4.Itiswiththisperceptionofbalanceandparity
betweeneconomicandsocialprogressthatboththe
CommitteeandtheEuropeanParliamenthaveworked
positivelywiththeCommissioninpromotingthe
implementation oftheSocialCharterandtheSocial
ActionProgramme(3).TheCommitteehoweveris
extremelyconcernedattheCouncil'sslownessinadopt­
ingproposalsstemmingfromtheSocialCharterand
SocialActionProgramme.Thediscrepancybetweenthe
goalsoftheCharteranditspracticalapplicationis
unmistakable .Morethantwoyearsaftertheendorse­
mentoftheCharter,andinstarkcontrasttothe218
Councildecisionsalreadyadoptedoutofthe282
measuresproposedforimplementingthe'WhitePaper'
ontheInternalMarket,theCouncilhasadoptedonly
sevenDirectivesoutofthelegalmeasuresannounced
intheSocialActionProgramme .Thesearetherecent
Directivesoncollectiveredundancies ,ontemporary
andmobileworksitesandonhealthandsafetysigns
atwork,theamendingDirectiveontherisksrelatedto
exposuretoasbestosatwork,theDirectivesonhealth
andsafetyprotectiononboardvesselsandforatypical
workers,andtheDirectiveonproofofemployment,
mostofwhichwerebasedonArticle118aandtherefore
subjecttoqualifiedmajorityvotinginCouncil.
Althoughtimeisshort,theCouncilisbeingextremely
dilatoryindiscussingothercrucialproposals.This,
despitethefactthattheEuropeanCouncil,meetingin
LuxembourginJune1991,requestedinparticularthat
'thediscussionsbegunintheSocialAffairsCouncil
ontheCommission'sActionProgrammeshouldbe
intensified'.1.1.TheEconomicandSocialCommittee (herein­
afterreferredtoastheCommittee)haslongcampaigned
foraCommunityofbasicsocialrightswhich,respecting
theroleofthesocialpartners,socialandeconomic
interestsandMemberStates,would'enshrinefunda­
mentalsocialguaranteesintheCommunitylegalsys­
tem,withitsdistinctivesupranationalfeatures'(2).It
wouldalsostressthat'EuropeanUnion'rightsofthis
sortshouldbeaccompaniedbycorresponding duties
andobligations .
1.2.TheCommitteecanwelcometheFirstReport
oftheCommissionontheapplicationoftheSocial
Charterandtheaccompanying SocialActionPro­
gramme,inthatitprovidesacomprehensive overview
ofwhathasbeenattemptedandwhathasbeenachieved
throughouttheCommunityandwhathasnotprogres­
sedthroughtheCouncil.
1.3.Inparticular,theCommissioncanbecompli­
mentedonfulfillingitsmandateontimeinthedrawing­
upandofficialpresentationofjustaboutallthepro­
posalsenvisaged.Thishastriggeredmuchdebateon
thesenseofpurpose,therespectfornationalandEC
competencesandthebalanceofviewoftheprogramme
asawhole.Itisnowclearlyrecognizedandaccepted
thattheSingleMarketisnotagoalinitself,buta
meansforbetterassuringbotheconomicprogressand
(')ChairmanoftheWorkers'Group(1990)andRapporteurfor
the-ESCOpiniononBasicCommunitySocialRights.
(2)SeeOpiniononBasicCommunitySocialRights,OJNoC
126,23.5.1989,pointIII,1.()AlistofkeyESCOpinionsontheapplicationoftheSocial
CharterisgivenintheAppendixtothisOpinion.

NoC287/40 OfficialJournaloftheEuropeanCommunities4.11.92
1.5.The11HeadsofStateorGovernmentintend
theSocialChartertoserveasapoliticalsignalto
Europeanworkersandcitizens,leadingthewayto
specific,guaranteedbasicsocialstandardsintheCom­
munity.However,verylittlehasactuallybeendone
towardsachievingthisgoal.Forinstance,inspiteof
theexistenceoftheSocialCharter,theCouncilhasstill
notapprovedtheCommission'ssecondattemptinnine
yearstohaveanEC-widelegalframeworkforcertain
areasofemploymentlegislationrelatingtoworking
conditions—inrelationtocompetition .
1.5.1.TheCommitteereiteratesitsviewthattechni­
cally'theinstrumentsandproceduresspecifiedinthe
Treatyaretheonestobedeployedto(a)ensurethat
basicsocialrightsareprotectedundertheMember
States'legalsystemsand(b)facilitateimplementation
ofthosesocialmeasureswhichareasinequanonfor
theinternalmarkettooperatesmoothly'^).Ofthe47
initiativesannouncedintheCommissionactionpro­
gramme,however,fewerthanhalfareaimedatthe
definitionofminimumbindingECstandards.The
CommitteeregretsthattheCommissiondoesnotintend
toactonindividualrecommendations oftheSocial
Charter,suchastherightofeveryindividualtohave
'accesstopublicplacementservicesfreeofcharge'
—anareainwhichtheSingleMarketcouldcreate
difficultiesforcertainMemberStates(2).
1.5.2.TheCommitteealsoreiteratesitscallforthe
Communitytoensurethat'thescopeofthesebasic
principlesandrightsisinterpretedwithduerespectfor
thestandardsalreadyrecognizedinotherinternational
sociallegalinstruments'.Itregretstheobviouslack
ofimportanceattachedtothisprincipletodate.The
MemberStateshavenotyetratifiedanumberofthe
internationalconventionsmentionedintheCommittee
Opinionof22February1989andsomeofthemare
consideringwithdrawalfromagreementsthathavebeen
ratified(3).TheCommissionshouldkeeptheEuropean
ParliamentandtheCommitteeregularlyinformed
abouttheratificationandimplementation ofILOstan­
dardsandlegalproblemsbetweentheEuropeanCom­
munityandtheILO.AsintegrationgrowsintheCom­
munity,theinstitutionalpeculiaritiesoftheCommunity
andtheILOmayleadtodemarcationproblems.Since
theECcouldbecomeamemberoftheILOonlyafter
alongprocessofintegration,theCommitteebelieves
thatstepsmustbetakeninthemeantimetoensure
thatthenationalsocialpartners'importanceinILO
decision-making isnotimpaired.Thesocialpartners
shouldthereforebeconsultedatEClevelinthose
caseswheretheEuropeanCommissionalreadysubmits
OpinionstotheILO.TheCommitteemightconsider
drawingupaseparateOwn-initiativeOpinionatalater
stageontherelationbetweenILOConventionsandEC
socialpolicyinstruments .1.6.ThefailureoftheCouncilofMinisterstoadopt
manyoftheimportantsocialpolicyproposalspresented
isnotduetoanymajorityoppositiontoprogress.
Quitethereverse:most,infactnearlyall,Member
Governmentsacceptthatthe'1992'processmustbe
matchedbyanEC-wideplatformofbasicsocialrights
assetoutintheActionProgramme .FailureinCouncil
isduetothe'liberumveto'whichanysingleMember
Statecanstillexerciseorthreatenwithregardtomost
ofthekeyproposals.ItistruethatArticles100aand
118a(allowingforqualifiedmajorityvoting)havebeen
deployedasalegalbasebytheCommission (withthe
approvaloftheCommitteeandParliament)foramore
significantnumberofdraftDirectivesthanperhaps
initiallyforeseen;butthereisstillsomehesitancyto
usetheseArticlesonaregularbasis,andafailureof
willinCounciltoapplythemwithconfidencewhen
anyMemberStatecancontesttheiruse.
1.6.1.Inshort,theunanimityprincipleisstillwell
intact,withtheresultantrateofprogressonsocial
policybeingbyandlargedeterminedbytheslowest
memberoftheEuropeanconvoy,whilsteconomicand
monetaryuniongoesfullspeedahead.
1.6.2.Onlyafewmonthsnowremainuntilthe
scheduledcompletionoftheSingleMarketattheend
of1992.TheCommitteesincerelyhopesthatthe
Councilwillnowgreatlyacceleratetheadoptionofthe
proposalsenvisagedintheSocialActionProgramme .
Thedelaywhichhasoccurredmustnotbeallowedto
increase,particularlyastheeffectiveapplicationof
Directivesintonationallawand/orpracticeand
enforcementalsotakestime.TheCommitteeregrets
thefailuretoadheretothetimetableproposedinits
OpinionofFebruary1989,whereitstated:'Theinstru­
mentguaranteeingprotectionofbasicsocialrightswill
havetobeadoptedbytheendof1989andthesocial
measureswhicharecrucialtosmoothoperationofthe
SingleMarketwillhavetoobserveafixedtimetable
gearedtothedeadlinessetforcompletionoftheCom­
munity-widemarket'(4).TheCommitteedeploresthe
factthatdespitethecallsmadeintheSocialCharter
andtheESCOpiniononbasicsocialrights,theEC­
widerightstofreedomofassociationandcollective
bargaininghavestillnotbeenguaranteed,eventhough
theseareinlinewithcorresponding ILOcommitments
andarerecognizedasbasicrightsintheconstitutions
and/orlegislationofnearlyallMemberStates.These
basicrightswerenottakenintoaccountintheTreaty
amendments ,either.
1.7.Theslowrateofsocialpolicydecision-making
inCouncilpromptedtheCommissiontoproposea
revisionofthesocialchapteroftheTreatysothat
qualifiedmajorityvotingwouldapplytoimportant
fieldscoveredbytheSocialCharter(5).TheCommittee
likewisecalledupontheintergovernmental conference
(!)ESCOpiniononBasicCommunitySocialRights,Brussels,
22.2.1989,op.cit.p.11.
(2)SocialCharter,point6.
(3)Ibid,p.5(4)Opcit,p.11.
(5)Commission'sinitialcontributiontotheintergovernmental
conferenceonPoliticalUnion,SEC{91)500final,30.3.1991.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/41
decisionstobetakenunderthenewqualifiedmajority
procedureisnotboggeddownbycomplications asto
whetherornotanysingleMemberStatecanhavethe
implicitrightto'optout'ofEurope-widecommitments
onacase-by-casebasis(beit,forexampleontheques­
tionofaweeklyrestperiod,ontheestablishmentofa
EuropeanWorksCouncil,oronEC-widerightsfor
atypicalworkers).ThisiswhytheCommitteehas
repeatedlystressedthatabasiclegalframeworkatEC
level,fullyacknowledging nationalprerogativesand
theroleofthesocialpartners,canprovidearesponsible
andflexiblemeansforguaranteeingaplatformofEC­
widebasicsocialrightsintegraltothe'1992'process.
Itwouldstronglyurgeallthoseconcernedtoratifythe
MaastrichtTreatyandtorenewtheireffortsinorder
toapplytheSocialProtocolAgreementand theSocial
Charterthroughoutthe12-Member'EuropeanUnion'.torevisetheTreatyinordertoenableECSocialPolicy
andtheuseofArticles100aand118atobeappliedin
abroadersenseandona'firmerandclearerfooting
thanhitherto'(1).
1.8.Theactualresultsoftheintergovernmental con­
ferenceinthiscontextcanbeseenasintrinsicallylinked
totheapplicationoftheSocialCharter,andarethere­
foreofkeyimportancetothisOpinion.
1.8.1.TheSocialAgreementresultingfromtheMaa­
strichtSummit,whichaimsto'implementthe1989
SocialCharter'andisthereforeofrelevancetothe
scopeoftheOpinion,isastepintherightdirection,
insofarastheheadsofgovernmentofthe12Member
States'authorize'the11MemberStates'signatoriesto
continuealongthepathlaiddowninthe1989Social
Charterandtoapplymanyofthekeypoliciesofthe
Charteronthebasisofqualifiedmajorityvoting,
notablyfordirectivesconcerning :
—improvement ,inparticular,oftheworkingenviron­
menttoprotectworkers'healthandsafety;
—workingconditions;
—theinformationandconsultationofworkers;
—equalitybetweenmenandwomenwithregardto
labourmarketopportunitiesandtreatmentatwork;
—theintegrationofpersonsexcludedfromthelabour
market(2).
1.8.2.Atthesametime,whilstthesenewprovisions
mightrepresentamajorbreakthroughfor11Member
States,theCommitteefindsithardtoacceptthat,ina
'Union'of12,the'Europeancitizens'ofoneparticular
MemberStateshouldbetreatedinadiscriminatory
manner.TheSocialCharterandtheSocialProtocol
Agreementshouldapplytoallcitizensconcerned
throughoutthe'Union'asawhole.
1.9.Inthemeantime,theCommissionhasindicated
thatitwillemployitsprerogativesundertheSocial
ProtocolAgreement,onceratifiedandapplicable,to
putproposalstoan11-MemberCouncil,ifnecessary,
inordertopromoteorunblocktheSocialActionPro­
gramme.Itisimperative,especiallyinthecontextofa
SingleMarket,thatthelegalstatusofsocialpolicy1.10.A12-MemberAgreementontheSocialCharter
andtheSocialChapternecessaryintheTreatyforits
properapplicationisallthemoreurgentasthedeepen­
ingandwideningprocessesoftheCommunityasa
wholegatherpace.
1.10.1.TheSingleMarketandEconomicandMon­
etaryUnionarenowfirmlytakingshape.Moves
towardsPoliticalUnionhavebeenregistered.Cross­
bordercompanymergers,newEuropean-scale under­
takings,thetrans-national convergenceofeconomic
managementareallrapidlytakingplace.Clearly,itwill
becomeincreasinglydifficultforanysingleMember
Statetoclaimunilateralself-determination intheface
ofsuchdevelopments .Likewise,itwillbeincreasingly
hardforanysingleMemberStatecrediblyto'optout'
oftheaccompanyingjointsocialpolicydecisionsarising
asregards,forexample,cross-bordersubcontracting
andpostingofworkers,trans-nationalformsofworker
participation ,multi-nationalcollectiveredundancypro­
cedures,theimpactofeventualEurope-widecollective
agreements.The'pre-Maastricht'ECsocialpolicy
frameworkwasincreasinglyunabletocopeefficiently
withthisagenda.The'post-Maastricht 'SocialChapter
couldbetterfacethechallenge,butnotifanyindividual
MemberGovernmentcanconsideritself'immune'to
thejointresponsibilities involved.TheCommittee
wouldhopethatbyJanuary1993noindividualMember
Government willwishtodoso.
1.10.2.TheinevitableandacceleratingpaceofEC
enlargementalsorequiresafirm12-MemberAgreement
ontheSocialChapteroftheTreaty.Foritwillbecome
increasinglyunsettling—nottosayuntenable—forthe
CommunitytoexpectnewMemberstotakeonboard
the'acquiscommunautaire ',ifitsverycontentisin
doubtasregardssocialpoliciesdecidedunderan11­
Memberandnota12-Memberprocedure.Alackof
clarityonthispointwouldopenawholePandora's
boxofpoliticalmischiefandacrimony.Thismustbe
avoidedbyputtingSocialEuropeonthesameclear
footingasEconomicUnion.
1.10.3.Itisofcourserecognizedthat'Maastricht',
whilstvital,isnottheonlyroutetosocialprogress,(*)ESCOpiniononSocialDevelopments intheCommunityin
1989,OJNoC225,10.9.1990,point5.3.
(2)TreatyonEuropeanUnion,CONF-UP-UEM 2002/92'Agree­
mentonSocialPolicy'concludedbytheMemberStatesof
theEuropeanCommunitywiththeexceptionoftheUnited
KingdomofGreatBritainandNorthernIreland,Article2.1,
p.70.

NoC287/42 OfficialJournaloftheEuropeanCommunities 4.11.92
1.11.3.TheCommissionshouldfollowupsomeof
thegeneralcommitmentsregisteredintheintroduction
totheSocialCharterwithafirmproposalforaTreaty
provisiontobandiscrimination ongroundsofsex,
colour,race,opinionsandbeliefs.
1.12.SincewiththeadventofEconomicandMonet­
aryUnionitwillnolongerbepossibletoadjust
exchangeratestocushionMemberStates'externaltra­
deimbalances,theimportanceofotheradjustment
mechanismswillgrow.Surprisingly,EuropeanMonet­
aryUnion'spositiveandnegativerepercussionsonlab­
ourmarket,wagespolicyandsocialpolicyintheEC
havenotyetbeendiscussedandanalyzed.Theeffect
whichatwo-speedmonetarysystemwillhaveoninte­
grationisanotherquestiontobeasked.TheCommittee
mightthereforeconsider(a)drawing-upanOwn­
initiativeOpinion,(b)callingforin-depthCommission
studiesonEMU'simpactonsocialandlabour-market
policiesand(c)consultingthesocialpartnersandecon­
omicandsocialinterestsinindividualMemberState
sectorsinordertoobtainavariedandfullpictureof
thepositionsandrequirementsofeachsectorofthe
economy.basicrightsandbetterindustrialrelationsthroughout
theEC.Muchprogressisbeingachievedwithinthe
MemberStatesandmightbebetterhighlightedand
supported,forinstancethroughECexamplesofgood
practice.
1.11.Afinalandvitalaspectoftheapplicationofthe
SocialCharter,onlytoucheduponintheCommission
Report,isthatofmonitoringandfollow-up.
1.11.1.Foritbecomesgraduallyclearinexamining
Part2oftheReportthatsomeofthemostenthusiastic
supportersofSocialPolicyDirectivesaresometimes
thosewhoaretheleastefficientinputtingtheminto
practice,whilstironicallytheMemberStatewhichis
consideredtobetheleastenthusiastichas,nonetheless,
possiblyoneofthebestrecordsintermsofactual
implementation [COM(92)136final.].TheCommittee
wouldurgetheCommissiontoconsiderbothadditional
supportandthepossibleuseofsanctions(underArticle
170oftheTreaty)inordertoensureproperimplemen­
tationintheMemberStatesofbindingdecisionscollec­
tivelyarrivedat.Morethoughtmustalsobegivento
therightsofworkersandcitizenstohaverecourseto
justiceatnationalaswellasatEuropeanlevelwhen
Directivesarenotbeingrespected.Thepossibilityofa
specializedSectionorChamberoftheCourtofJustice
dealingwithEuropeanlabourlawandcomposedof
appropriatelyqualifiedJudgesaidedbytheinvolvement
ofthesocialpartnersmightalsobeconsideredinthe
contextofimplementingtheSocialCharter.
1.11.2.ItisalsoworthrecallingthattheCommittee
hasarguedforasubstantialwideningoftheECbasic
socialrights,inordertoincludebroadersocietal
rights(!).1.13.Atthesametime,inthelightofArticles3and
4oftheMaastrichtSocialProtocolAgreement,renewed
attentionisneededasregardstheCommunitylevel
'socialdialogue'inhelpingtoimplement,maximiseand
gobeyondthescopeoftheSocialCharter.Giventhe
prerogatives (pendingratification)ofmanagementand
labourtointerveneandhelpshapeECdecision-making
undertheSocialProtocolAgreement,itisimportant
tofacilitatewiderrepresentation ofsocio-professional
groups,forexampletheself-employed cooperatives ,
etc.Progressinthisfieldshouldcomplementtheappro­
priateECinstitutionalproceduresforpromotingand
applyingtheSocialCharter.Inaccordancewiththe
provisionslaiddownintheSocialProtocolAgreement,
itisalsoimportanttoenhancetheroleofthesocial
partnersinrespectofECsocialmeasuresthroughthe
establishmentof'sectoraldialogue'inwhichrepresen­
tativesofmanagementandlabourinspecificsectors
areabletomaketheirowndistinctivecontribution .
1.14.TheCommitteewouldalsorecallthecooper­
ationbetweenthecharitableorganizationsandfoun­
dationsasinstitutionsresponsibleforsocialwelfare
establishments andservicesmadeintheannexofthe
TreatyofMaastricht .(1)A.GenerallyApplicableStandards
—rightofallsectionsofsocietytosocialsecuritycover;
—rightofallsectionsofsocietytosocialwelfare,safetyand
healthprotection;
—righttoeducation;
—righttoprotectionofprivacyandtheintegrityofthe
personalsphere,inparticularinconnectionwiththeuse
ofcomputerizedsystemsanddatabanks;
—righttoprotectionofpersonalpropertyanddefinitionof
therestrictionsplacedthereonbysociety;
—righttoequalityofopportunityandtreatment,andelimin­
ationofanyformofdiscrimination ;
—rightsofthechild,motherandfamilytolegalandecon­
omicprotection;
—rightsoftheelderly;
—rightofworkers,producersandconsumerstoformassoci­
ationsfreelyforthepurposeofsettingupundertakings
suchascooperativesandmutualsocietiesfoundedonthe
solidarityprinciple;
—rightofconsumerstohealthprotection;fullandobjective
informationandfreechoiceofgoodsandservices;
—righttoprotectionoftheenvironment;
—rightofpreservationoftheculturalheritage.'
(ESCOpiniononBasicCommunitySocialRights,OJNo
C126,23.5.1989,op.cit.,pointIIIA.)2.SpecificComments
2.1.TheCommitteedoesnotproposetogivea
detailedcommentaryonPart2oftheCommission

NoC287/43 4.11.92 OfficialJournaloftheEuropeanCommunities
Report,point1.11.1.(above)sufficingperhapsatthis
stage.Afewadditional,thoughbynomeansexhaustive,
observationsonPart1oftheReportmightbepresented
asfollows:
2.1.1.LabourMarket
2.1.1.1.TheCommitteehasalreadywelcomedthe
nowregularannualreporton'EmploymentinEurope'.
ItwouldagainstresstheneedfortheCommissionto
drawupandproposeadynamicandcomprehensive
ECcooperativegrowthandemploymentstrategy,
ratherthanlimititselftoan,albeituseful,staticreport
onemploymenttrendsplusanupdateontheprolifer­
ationofindividualECemployment/labourmarket
schemeswhoseaggregateimpactiseithernotquantified
orwouldseemrelativelysmall.TheCommitteewould
reiterateitscallfortherightofeveryindividualtohave
accesstopublicplacementservicesfreeofcharge,which
takesILOConventions 88and96intoconsideration .
2.1.2.Employment andRemuneration
2.1.2.1.GiventhedifficultiesinCouncilasregards
thekeyproposalson'particularformsofemployment'
(atypicalwork),theCommitteewouldremindtheCom­
missionofitsmajorityviewontheuseofArticles100a
and118aastheappropriatelegalbases.
2.1.3.Improvement ofLivingandWork­
ingConditions
2.1.3.1.AlltheDirectivesproposedhavebeen
endorsedbymajorityOpinionsoftheCommittee.It
wouldreiterateitscallforworkers'righttoprotection
intheeventofindividualdismissalandtheimprove­
ment,viatheSocialCharter,ofthelabourlawpro­
visionsapplicabletobankruptcies .
2.1.4.FreedomofMovement
2.1.4.1.Again,alltheproposalslistedhavebeen
supportedbytheCommittee.
2.1.5.SocialProtection
2.1.5.1.TheCommitteewouldremindtheCom­
missionthat,bothasregards'sufficientresources'and
'convergenceofsocialprotection',morebindingEC
instrumentswererecommended ,togetherwithan
adequatelegalbasis.
2.1.6.Information ,Consultation and
Participation
2.1.6.1.TheCommitteenotesthattheMaastricht
SocialProtocolAgreementwouldpositivelyclassthe
informationandconsultation ofworkersasoneof
thematterssuitableforqualifiedmajorityvoting.The
Committeeneverthelessemphasizesthatprovisionson
theparticipationofworkerswhichhavealreadybeen
proposed(workerparticipationbeingexplicitlypro­videdforundertheSocialCharter)shouldbeadopted
assoonaspossible.
2.1.6.2.Inthisrespect,particularattentionshould
bepaidto'sectoral'socialdialoguetoensurethatlegal
provisionsreflectthediversityofeconomicproduction
andthatworkerparticipationschemesareflexibleand
inkeepingwithindustrialrelationsinthedifferent
MemberStates.
2.1.7.EqualTreatment forMenand
Women
2.1.7.1.TheSocialChartercallsforthedevelopment
ofmeasures'enablingmenandwomentoreconcile
theiroccupationalandfamilyobligations',butlittlehas
beendonesofartoputthisintopractice.Itmightbe
usefultorecallthatthestill-awaitedDirectiveonthe
protectionofpregnantwomenattheworkplacewas
soundlysupportedbytheCommittee,withnodis­
sentingvoice.TheproposedDirectiveonparentalleave
(pre-datingtheSocialCharterprogramme )mightalso
begivensomerenewedattention,notablyasregardsits
legalbasis.Stepsmustbetakentoensurethatworkers
withfamilyobligationsarenotdisadvantaged .
2.1.8.VocationalTraining
2.1.8.1.Therightofeveryworker,accordingtothe
SocialCharter,tohaveaccesstovocationaltraining
hasbeenrepeatedlysupportedbytheCommitteeand
iteagerlyawaitstheECinstrumenttobeproposedin
ordertoguaranteethisright.Similarly,thevocational
trainingleavecalledforbytheCommitteeandthe
SocialCharterstillhastoberegulated.TheCommittee
wouldalsodrawattentiontothevariousjointopinions
ofthe'EuropeanSocialDialogue'oneductionand
training,transitionfromschooltoworkinglife,access
totrainingandonqualifications .
2.1.9.HealthandSafetyProtectionof
Workers
2.1.9.1.Committeesupportinthisfieldhasbeen
consistentandmostlyconsensual.
2.1.10.ChildrenandAdolescents
2.1.10.1.TheCommitteeattachesgreatimportance
totheprotectionofchildrenandyoungpeople.The
DraftDirectiveontheprotectionofyoungpeopleat
workiscurrentlyunderexamination .
2.1.11.TheElderly
2.1.11.1.TheCommitteehasendorsedtheAction
ProgrammeandtheEuropeanYearthatisplannedfor
1993.SustainedCommunity-wide actioninthisfieldis
necessaryinviewoftheworryingdemographictrends
innearlyalltheMemberStates.

NoC287/44 OfficialJournaloftheEuropeanCommunities 4.11.92
2.1.12.DisabledPeople
2.1.12.1.TheCommitteehasconsistentlyendorsed
andcalledformoreECmeasuresinthisfield.2.1.13.TheCommitteeregretsthefactthatcontrary
totheannouncement intheActionProgrammethe
Commissionapparentlydoesnotintendtopresenta
legalinstrumentontheintroductionofalabourclause
intopubliccontracts.
DoneatBrussels,2July1992.
TheChairman
oftheEconomicandSocialCommittee
MichaelGEUENICH
APPENDIX I
KeyESCOpinionsendorsingbasicCommunitysocialrightsandproposedDirectivestoimplementtheSocial
Charter
—Own-initiative OpiniononSocialAspectsoftheInternalMarket
OJNoC356,31.12.1987
(adoptedby97votesto44,with13abstentions)
—OpiniononBasicCommunitySocialRights
OJNoC126,26.5.1989
(adoptedby135votesto22,with8abstentions )
—Opinionon:
theProposalforaCouncilDirectiveontheapproximation ofthelawsoftheMemberStatesrelatingto
certainemploymentrelationshipswithregardtoworkingconditions,
theProposalforaCouncilDirectiveontheapproximation ofthelawsoftheMemberStatesrelatingto
certainemploymentrelationshipswithregardtodistortionsofcompetition,and
theProposalforaCouncilDirectivesupplementingtheintroductionofmeasurestoencourageimprovements
inthesafetyandhealthatworkoftemporaryworkers
OJNoC332,31.12.1990
(adoptedby72votesto59,with9abstentions)
—OpinionontheProposalforaCouncilDirectiveconcerningtheprotectionatworkofpregnantwomen
orwomenwhohaverecentlygivenbirth
OJNoC41,18.2.1991
(adoptedbyamajorityvote,with5abstentions )
—OpinionontheProposalforaCouncilDirectiveconcerningcertainaspectsoftheorganizationofworking
time
OJNoC60,8.3.1991
(adoptedby91votesto42,with20abstentions)
—OpinionontheProposalforaCouncilDirectiveontheestablishmentofaEuropeanWorksCouncilin
Community-scale undertakingsorgroupsofundertakingsforthepurposesofinformingandconsulting
employees
OJNoC120,6.5.1991
(adoptedby93votesto63,with2abstentions )

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/45
—OpinionontheProposalforaCouncilDirectiveonaformofproofofanemploymentrelationship
OJNoC159,17.6.1991
(adoptedbyamajorityvote,with5abstentions )
—OpinionontheProposalforaCouncilDirectiveconcerningthepostingofworkersintheframeworkof
theprovisionofservices
CES1512/91,18.12.1991
(adoptedbyamajorityvoteinfavourand2votesagainst)
—OpinionontheProposalforaCouncilDirectiveamendingDirective75/129/EEContheapproximation
ofthelawsoftheMemberStatesrelatingtocollectiveredundancies
CES91/22,30.12.1992
(adoptedby91votesto27,with12abstentions)
—OpinionontheProposalforaCouncilDirectiveonminimumrequirementstoimprovethemobilityand
thesafetransporttoworkofworkerswithreducedmobility
OJNoC191,22.7.1991
(adoptedunanimously )
—OpinionontheMinimumhealthandsafetyrequirementsforimprovedmedicaltreatmentonboardvessels
OJNoC332,31.12.1990
(adoptedunanimously )
—OpinionontheProposalforaCouncilDirectiveamendingDirective83/477/EEContheprotectionof
workersfromtherisksrelatedtoexposuretoasbestosatwork
OJNoC332,31.12.1990
(adoptedunanimously )
—OpinionontheProposalforaCouncilDirectiveontheimplementationoftheminimumsafetyandhealth
requirementsattemporaryormobileworksites(EighthindividualDirectivewithinthemeaningofArticle
16ofDirective89/391/EEC)
OJNoC120,6.5.1991
(adoptedbyamajorityvote,with10abstentions)
—OpinionontheProposalforaCouncilDirectiveconcerningtheminimumrequirementsfortheprovision
ofsafetyand/orhealthsignsatwork
OJNoC159,17.6.1991
(adoptedunanimously )
—OpinionontheProposalforaCouncilDirectiveconcerningMinimumRequirementsforImprovingthe
SafetyandHealthProtectionofWorkersintheExtractiveIndustries
OJNoC191,22.7/1991
(adoptedbyamajorityvote,with14abstentions).

NoC287/46 OfficialJournaloftheEuropeanCommunities 4.11.92
APPENDIX 11
totheOpinionoftheEconomicandSocialCommittee
Thefollowingmembers,presentorrepresented,votedfortheOpinion:
Mr/Mrs/Miss:ABEJÓNRESA,ATTLEY,BARBAGLI,BLESER,BOISSERÉE,BORDES-PAGES ,BRIESCH,
BURNEL,CAL,CARROLL,CASSINA,CEBALLOHERRERO,CHEVALIER ,CHRISTIE,COLOMBO ,
DECAILLON ,vonderDECKEN,d'ELIA,vanDIJK,DRAIJER,DRILLEAUD ,DUNKEL,ELSTNER,
ENGELEN-KEFER ,ETTY,EULEN,FLUM,FORGASICABRERA,FRANDI,FREEMAN,GIATRAS,
GÓMEZMARTÍNEZ,GOTTERO,GREDAL,GROBEN,GUYAU,HAGEN,HILKENS,JANSSEN,JENK­
INS,KANELLOPOULOS ,deKNEGT,LACAMARTIN,LANDABURU DESILVA,LAPPAS,LARSEN,
LAUR,LIVERANI,LYONS,MADDOCKS ,MANTOVANI ,MARGALEF MASIA,MASUCCI,MAYAYO
BELLO,MERCIER,MOLINAVALLEJO,MORRIS,MOURGUES ,MUÑIZGUARDADO ,NIELSENB.,
NIELSENP.,NIERHAUS,OVIDEETIENNE,PASQUALI,PAVLOPOULOS ,PE,PELLARINI,POMPEN,
PRICOLO,QUEVEDOROJO,ROSEINGRAVE ,SABORGES,SAITIS,SANTILLÁNCABEZA,SANTOS,
SCHMIDT,SCHMITZ,vonSCHWERIN ,SEQUEIRA,SILVA,SMITH,TIXIER,VANDERMEEREN ,
VELASCOMANCEBO ,VERBOVEN ,WAGENMANS ,WALDACK ,ZUFIAURNARVAIZA .
Thefollowingmembers,presentorrepresented,votedagainsttheOpinion:
Mr/Mrs/Miss:ANDRADE,ARENA,ASPINALL,BAGLIANO,BARROW,BEALE,BELL,BELTRAMI ,
BENTOGONCALVES ,BERNABEI,BREDIMASAVOPOULOU ,CAVALEIRO BRANDAO,CEYRAC,
CONNELLAN ,vanDAM,DELOROZOY ,DONCK,DOUVIS,FRERICHS,GAFFRON,GAFOFERNAN­
DEZ,GARDNER,GHIGONIS,GIACOMELLI ,GIESECKE,GREEN,GUILLAUME ,JASCHICK,KAARIS,
KAFKA,KAZAZIS,LITTLE,LÖW,LUSTENHOUWER ,McGARRY,MERCÈJUSTE,MEYER-HORN ,
MOBBS,MORELAND ,MULLERE.,NOORDWAL ,PANEROFLOREZ,PARDON,PEARSON,PELLETI­
ERCh.,PELLETIERR.,PERRIN-PELLETIER ,PETERSEN,PETROPOULOS ,PROUMENS ,ROBINSON ,
RODRIGUEZ DEAZERODELHOYO,RODRIGUEZ GARClA-CARO ,ROMOLI,SAUWENS,SCHADE­
POULSEN,SCHNIEDERS ,SLIPMAN,SOLARI,STECHERNAVARRA,STOKKERS ,TESOROOLIVER,
TUKKER,WHITWORTH ,WICK.
Thefollowingmember,presentorrepresented,abstained:
MrMARVIER
APPENDIX 111
totheOpinionoftheEconomicandSocialCommittee
Thefollowingamendments,whichreceivedatleastaquarterofthevotescast,weredefeatedduringthe
discussion :
Points1.3—1.10.3
Deletepoints1.3to1.10.3inclusiveandreplacewiththefollowing:
'1.3.TheCommitteewelcomestheadoptionbytheCouncilofcertainmeasuresintheSocialAction
ProgrammeandnotesthatothersareprogressingintheCouncil.
1.4.However,theCommitteeregretsthatfasterprogresshasnotbeenmadeonsomemeasures.Partofthe
blamemustliewiththeCommissionwhichhasnotproducedproposalswhichhavemetwiththesupportof
allinterestedparties(suchasemployers),andwhichhavenotbeenproperlycostedand,mostimportantof
all(as,forexample,inthecaseofthePart-TimeWorkproposal),donotdemonstratethattheyareconsistent
withjobcreation.
1.5.TheCommitteeregretsthattheMaastrichtSummitwasunabletogettheagreementofall142Member
StatesonSocialPolicy.TheCommitteebelievesthattheMemberStatesandtheCommissionneedtogive
particularemphasistoasocialpolicywhichisconsistentwitheconomicgrowthandjobcreation,takingfull
accountofsubsidiarity,andnotonethatappearsover-centralised andbureaucratic .UnlessalltheMember
StatesandalltheinterestgroupsareconvincedthattheCommunityisfollowingthisparticularemphasis,
progressonsocialpolicywillbeinadequateandthe'Agreement'willnotbeadoptedbyallMemberStates.'
Reason
Theoriginaltextisnotintheinterestsofprogressonthesocialfront.
Resultofthevote
For:51,Against:82,Abstentions :4.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/47
Point1.11.1
Deletethelastsentence:('Thepossibility...implementingtheSocialCharter.').
Reason
RecentcaselawoftheEuropeanCourtofJusticemakesitpossibleinprincipleforindividualstoappeal
againstaMemberStateforfailingtocomplywithobligationsarisingfromaCommunityDirective.
TheproposalforsettingupaspecializedchamberattheCourtofJusticeisbothunnecessaryandundesirable
asitwouldincreasethedistancebetweencitizenandcourts.Theuseof'layjudges'asrepresentatives ofthe
socialpartnersinthefieldoflabourlawmustberejectedintheinterestsofjudicialindependence .
Resultofthevote
For:58,Against:76,Abstentions :7.
APPENDIX IV
totheOpinionoftheEconomicandSocialCommittee
MINORITY STATEMENT
AfterthevotebynameonthewholeoftheOpinion,theEmployerscategory,whichvotedagainstthe
Opinion,issuedthefollowingstatement:
1.TheGroupofEmployersdissentsfromtheCommittee'smajorityOpinionontheFirstReportonthe
ApplicationoftheCommunityCharteroftheFundamentalSocialRightsofWorkers.
2.ItbelievestheOpinion,initsGeneralComments,isfundamentally flawedonfourcounts:
—ItoverstatesthelackofprogressatCommunitylevelandvirtuallyignoresPartIIoftheCommission's
Report;
—ItseekstoattributetheblamefortheperceivedlackofprogresstothefailureoftheCouncilofMinisters
toreachagreementanddoesnotaddressthesubstanceoftheCommission'sproposalswhichhavefailed
toachieveacceptance;
—ItignorestheincreasingrethinkingofthePrincipleofSubsidiaritycontainedintheMaastrichtTreaty
andtheconclusionsoftheLisbonSummit;
—ItsfrequentreferencestopreviousOpinionsoftheCommitteeignoretherecurrentlackofunanimityon
themorecontroversial issues.
3.TheOpiniondoesnotreflecttheprogressalreadymadeatCommunitylevel,particularlyinareas
concerningFreedomofMovementandHealthandSafety,asevidencedbytheCommission'sReportand
developmentssubsequenttoit.PartIIoftheReportalsoshowsthatsignificantactionhasalreadybeentaken
withinindividualMemberStatestoimplementtheprinciplescontainedintheSocialCharter.
4.ThemorecontroversialoftheCommission'sproposalswhichhavefailedtosecureagreementinthe
CouncilofMinistershavesoughttoimposeacrosstheCommunitydetailedrequirementswhichwould
necessitatetheunscramblingofexistingnationallegislationandindustrialagreementswhichalreadyeffectively
meettheprinciplesunderlyingtheSocialCharter.TheCommittee'sOpinionshouldsuggestthatthe
Commissionplacetheseconsiderationsattheforefrontoftheirthinkingindevelopingfutureproposalsand
givefullweighttotheviewsofallinterestedpartieswhichemergefromtheconsultativeprocess.

NoC287/48 OfficialJournaloftheEuropeanCommunities 4.11.92
5.TheGroupofEmployersnotesthattheHeadsofGovernmentdeclaredatLisbonthatcertainCommunity
rulesshouldbere-examinedinordertoadaptthemtothePrincipleofSubsidiarityandbelievesthatthis
actionshouldequallyinvolvethoseproposalsundertheSocialActionProgrammewhicharecurrentlyunder
discussion .
Mr/Mrs/Miss:ANDRADE ,ARENA,BAGLIANO ,BEALE,BELL,BELTRAMI ,BENTOGON^ALVES ,
BERNABEI,BREDIMA-SAVOPOULOU ,CAVALEIROBRANDAO,CEYRAC,CONNELLAN ,vanDAM,
DELOROZOY ,DONCK,DOUVIS,FRERICHS,GAFFRON,GAFOFERNANDEZ ,GARDNER,GHI­
GONIS,GIACOMELLI ,GIESECKE,GREEN,KAARIS,KAFKA,KAZAZIS,LITTLE,LÖW,McGARRY,
MERCÈJUSTE,MEYER-HORN ,MOBBS,NOORDWAL ,PANEROFLOREZ,PARDON,PEARSON,
PELLETIERR.,PERRIN-PELLETIER ,PETERSEN,PETROPOULOS ,PROUMENS ,ROBINSON ,RODRI­
GUEZDEAZERODELHOYO,RODRIGUEZ GARClA-CARO ,ROMOLI,SAUWENS,SCHADE-POULS­
EN,SCHNIEDERS ,SOLARI,STECHERNAVARRA,TESOROOLIVER,TUKKER,WHITWORTH ,
WICK.
Opinionon'SocialDevelopments intheCommunityin1991'
(92/C287/13)
On27May1992theEconomicandSocialCommittee,actingunderthefourthparagraphof
Article20ofitsRulesofProcedure,decidedtodrawupanOpinionon:'SocialDevelopments
intheCommunityin1991'.
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon18June1992.The
RapporteurwasMrLow.
Atits298thPlenarySession(meetingof2July1992)theEconomicandSocialCommittee
adoptedthefollowingOpinionwithnovotesagainstandfiveabstentions .
States.Buta'two-speedsocialarea'islargelyundesir­
able.Itshouldnotbepossiblefordifferentbasicsocial
rightsorsocialprotectionlevelstobecreatedinthe
MemberStates.Suchasituationcouldseriouslyhinder
freedomofmovementforworkersandleadtodistor­
tionsofcompetitionintheCommunity .
1.3.TheCommitteewillexpressitsviewsonthis
topicinaseparateOpinion.However,itasksrightnow
thatthelegalandpoliticalincorporationoftheTreaty
ofMaastrichtandtheProtocolofMaastrichtbeclari­
fiedandtruststhattheTreatywillberatifiedasquickly
aspossiblebytheParliamentsandfullyappliedinall
MemberStates.1.Introduction
1.1.TheannualOpinionfromtheCommitteeon
socialdevelopmentswillthisyearplaceitsmainempha­
sisonlabourmarketandemploymentdevelopment ,
bearinginmindtheconclusionsoftheCommission's
annualreporton'EmploymentinEurope1991'.The
annualreporton'TheImplementation oftheSocial
Charter'asmentionedinparagraph29ofthe'Com­
munityCharterofFundamentalRightsofWorkers'
willbedealtwithseparatelyinanotherOpinion.
1.2.TheCommitteeconsidersthattheresultsofthe
EuropeansummitinMaastrichthave,onthewhole,
beenbasicallypositive.Itseesinthemprogresstowards
acommonEuropeansocialarea.Thenewareasand
procedureslaiddownintheprotocolonsocialpolicy
inparticularmeanthecreationofasocialCommunity,
alongsidetheEuropeanEconomicCommunity .The
Committeeregretshoweverthattheagreementon
socialpolicyannexedtotheprotocolwassignedby
only11outof12MemberStates.Itwouldthereforebe
desirableforthetwelfthMemberStatetoendorsethese
newagreementsassoonaspossible.Thereisafear
thattheremaybeasocialpolicysplitintheCommunity,
withtheresultthattherewouldbeoneEuropeansocial
policyfor11MemberStatesandanotherfor12Member1.4.MostECsocialpolicyin1991wasrelatedto
theSocialCharterandtheSocialActionProgramme .
By1November1991theCommissionhadpresented46
ofthe47initiativesannouncedintheactionpro­
gramme,ofwhich34wereproposalsbytheCom­
missiontotheCouncil.Asof30June1992,13ofthese
proposalshadbeenfinallyadoptedbytheCouncil:
fouroftheminthefieldofhealthandsafetyatthe
workplaceandtwoonotherworkingconditions.