No C 116/40 Official  Journal  of the European  Communities 30. 9.74 
as the draft  Directives  on doctors  are concerned,  a 
plenary  session  of the Standing  Committee  of Doctors 
was held  on 17 and  18 May  1974,  as a result  of 
which  a recommendation  for the establishment  of an 
advisory  committee  for medical  education  and  train-
ing is being  sent  to the Commission. 2.6. On the sixth  guideline 
The Committee  endorses  the  need  to extend  the 
benefit  of the  provisions  of the  Directives  on the 
mutual  recognition  of professional  qualifications  to 
all salaried  workers  in the relevant  profession. 
Done  at Brussels,  27 June  1974. 
The Chairman 
of the Economic  and  Social  Committee 
Alfons  LAPP  AS 
Opinion  on the 'Development  of the social  situation  in the Community  in 1973' 
The text  referred  to the Committee  has not been  published  in the Official  Journal  of the 
European  Communities. 
A. LEGAL  BASIS  FOR  THE  OPINION 
On 9 April  1974,  the Commission  of the European  Communities  referred  the above-
mentioned  document  to the Economic  and Social  Committee. 
B. OPINION  OF  THE  ECONOMIC  AND  SOCIAL  COMMITTEE 
The Economic  and  Social  Committee  prepared  its Opinion  on the above  matter  at its 
121st  plenary  session,  held  in Brussels  on 26 and 27 June  1974. 
The full text of the Opinion  is as follows: 
THE  ECONOMIC  AND  SOCIAL  COMMITTEE: 
Having  regard  to the request  from  the Commission, 
dated  9 April  1974,  for an opinion  on the 'Develop-
ment  of the  social  situation  in the Community  in 
1973'; 
Having  regard  to Article  198  of the  Treaty 
establishing  the European  Economic  Community; 
Having  regard  to the Decision  taken  by its Bureau  on 
29 January  1974,  entrusting  the Section  for Social 
Questions  with  the preparation  of an opinion; 
Having  regard  to the  oral  report  given  by the 
rapporteur,  Mr De Bruyn; Having  regard  to the discussions  at its 88th  meeting, 
on 13 June  1974; 
Having  regard  to the discussions  held  on 26 and  27 
June  1974  at its 121st  plenary  session,  sitting  of 
27 June  1974; 
Whereas  the development  of the social  situation  in 
the Community  in 1973  was  marked  by — often 
significant  — changes  in both  the economic  and  the 
social  field; 
Whereas  the Community  bodies  still do not appear  to 
be equipped  with  the  most  appropriate  legal  or 
political  machinery  for  drawing  up  a genuine 
Community  social  policy; 
30.9.74 Official  Journal  of the  European  Communities No C 116/41 
Whereas  there  is an urgent  need  to draw  up specific 
social  policy  measures  and  to put  them  into  effect  in 
each  Member  States, 
HAS  ADOPTED  THE  FOLLOWING  OPINION 
unanimously,  less  seven  abstentions: 
1. GENERAL  COMMENTS 
1.1. Western  economies,  and  in particular  the 
economies  of the  Member  States,  entered  a phase  of 
slower  growth  in 1973.  Even  before  the  recent 
developments,  all  the  signs  pointed  to a further 
marked  loss  of momentum  in 1974. 
1.2. However,  considerable  economic  and  social 
changes  are now  taking  place  in a number  of areas. 
1.3. A  lower  growth  rate,  coupled  with  a 
disconcerting  rate  of inflation,  have  set off a process 
of adjustment  which  will  without  doubt  have  a major 
impact  on industrial  structures  and  consumer  habits. 
1.4. This  adjustment  has  already  brought  about 
serious  threats  to  employment  and  is creating 
problems  which  in certain  regions  of the Community 
may  become  particularly  acute  and  be very  different 
from  those  which  have  been  features  of regional 
imbalance  in the labour  market  to date. 
1.5. Sophisticated  and  'growth'  industries,  such  as 
aviation,  electronics  and  petrochemicals  seem  likely 
to be harder  hit than  more  traditional  industries. 
1.6. The  present  fear  of mounting  unemployment 
is explained  by the  marked  contraction  of firms' 
investment,  which,  as is well  known,  is affected  by 
the psychological  climate  engendered  by the economic 
outlook,  as well  as an increase  in some  cases  in 
investment  in rationalization  measures. 
1.7. In  1973  the  Council  adopted,  on a proposal 
from  the  Commission,  a resolution  pledging  its 
support  to a social  action  programme  to be carried 
out over  the next  three  years. 
1.8. The  Community  is at present  going  through 
a crisis,  one  of the  main  features  of which  is an 
accelerating  rate  of inflation  caused  by big rises  in the cost of raw  materials,  energy  supply  problems  and 
increased  prices  of energy.  The  crisis  is pro-
ducing  major  repercussions  in the  social  sphere, 
and these  the  Council  and  the  Commission  have 
examined,  without,  however,  being  able  to take  rapid 
decisions  capable  of exerting  a tangible  influence  on 
events. 
1.9. The  Commission  has  already  submitted  seven 
proposals  on priority  measures  to the  Council,  on 
which  the  latter  is to take  decisions  in the  coming 
months,  and  other  proposals  are  in the  process  of 
being  drawn  up or have  already  been  sent  to the 
Council.  It now  seems  necessary,  however,  that  the 
order  of these  priorities,  which  was  set over  a year 
ago, should  be reviewed  in the  light  of the  latest 
economic  and  social  developments. 
1.10.  The  Economic  and  Social  Committee 
welcomes  the  Commission's  social  report  in its new 
form  and  appreciates  its conciseness  and  clarity, 
especially  where  the  analysis  and  assessment  of the 
situation  in the Community  are concerned. 
1.11.  The  Committee  proposes  examining  in 
particular  the  following  aspects  of this  situation 
which  it believes  are of special  importance: 
— employment,  and  more  precisely  the employment 
of women,  the  self-employed,  migrant  workers, 
the handicapped,  temporary  work; 
— social  services,  especially  from  the point  of view 
of the  need  to  accelerate  the  process  of 
harmonization  and  adaptation  to needs  and 
housing  problems; 
— the  European  Social  Fund  today. 
2. SPECIFIC  COMMENTS 
A. Problems  of employment 
2.1. The  problems  of employment  are  among 
those  giving  most  cause  for  concern  in  the 
Community  today.  It is not  only  that  they  have 
become  particularly  acute,  because  of the  present 
economic  situation  (especially  the  energy  supply 
difficulties  and  the increasing  rate  of inflation  caused 
by the  rises  in raw  material  prices),  but  they  also 
have  fundamental  structural  aspects  which  must  be 
looked  at from  the  point  of view  of regional 
problems.  Article  2 of the  Treaty  of Rome  sets  the 
No C 116/42 Official  Journal  of the European  Communities 30.9.74 
Community  the  objective  of  'continuous  and 
balanced  expansion',  but  the  fact  is that  this 
expansion  has  so far been  continuous  but  not  free 
from  imbalances,  and  for many  categories  of workers 
employment  presents  features  which  today  are 
increasingly  felt  to be inequitable  and  inconsistent 
with the very  objectives  of the EEC. and/or  to their  families.  It would  be a first  step  in 
this direction  if the Member  States  were  to expand 
the public  facilities  for  the  children  of working 
mothers.  The  Committee  would  underline  the wishes 
voiced  in its Opinion  on the  'Development  of the 
social  situation  in the Community  in 1972'. 
2.2. The  Committee  has  recently  delivered  an 
Opinion  on the employment  situation  (Doc.  ESC  571/ 
74). The  Committee  will  not  go over  the  general 
considerations  of the  employment  situation  again 
here,  but will  give  special  attention  to the sectors  of 
society  mentioned  above  — working  women,  the 
self-employed,  migrant  workers  and  the handicapped. 
The Committee  points  out that  on several  occasions 
already  it has drawn  the attention  of the Community 
authorities  to the importance  of the problems  facing 
young  and  old workers. 
Women's  employment 2.7. Besides  the public  investment  called  for above, 
a second  improvement  would  be to make  flexible 
arrangements,  either  in social  legislation  or under 
collective  agreements,  for  part-time  work,  flexible 
working  hours,  etc.  Such  arrangements  would  clearly 
make  it easier  for women  to reconcile  their  various 
legitimate  aspirations  and  would  ultimately  lead  to 
an improvement  in their  employment  situation,  in 
both  their  own  and  their  employers'  interests.  There 
is no reason  at all why  such  arrangements,  which  are 
already  in force  in some  Member  States,  should  not 
be generally  applied  without  delay.  In addition,  ways 
should  be sought  to make  it easier  for  women  to 
return  to suitable  work  in later  life  after  a period 
spent  at home. 
2.3. Nowadays  everyone  agrees  on the  necessity 
for a radical  improvement  in the position  of women 
in society,  and  particularly  in that  of women  at work. 
Since  this  complex  question  lies  at the very  heart  of 
the structure  of contemporary  society,  an objective 
study  covering  all its aspects  is called  for. 2.8. In  order  that  women  can  attain  equivalent 
levels  of  education  giving  them  the  same 
opportunities  as men  when  they  come  on the labour 
market,  an all-out  effort  will  have  to be made  to 
improve  general  education,  vocational  training  and 
vocational  guidance  for girls. 
2.4. In  the Social  Action  Programme  it submitted 
to the Council,  the European  Commission  proposed 
action  on women's  employment  problems  (Action  II 
4), recommending,  quite  rightly,  that  'immediate 
priority  could  be given  to the problem  of providing 
facilities  to enable  women  to reconcile  family 
responsibilities  with  job aspirations'. 
2.5. In  view  of the  traditional  ideas  of the 
respective  roles  of men  and  women,  job prospects  for 
women  are at present  less  favourable  than  those  for 
men.  This  affects  the arrangement  of working  hours, 
the number  of days  absent  and  the amount  of time 
that can  be set aside  for basic  and  further  training 
and promotion. 
2.6. Women  must  be able  to choose,  in accordance 
with their  own  particular  wishes  and  aspirations, 
how much  they  want  to devote  themselves  to a job 2.9. The  achievement  of these  goals  would  not, 
however,  mean  that  women  workers  were  no longer 
subject  to the normal  interruptions  to their  work  due 
to their  biological  function  and  family 
responsibilities. 
This  consideration  cannot  be ignored,  but  neither 
should  it be a cause  of discrimination  in the 
recruitment  of workers.  One  might  ask whether  ways 
should  not  be  sought  to  discourage  such 
discrimination. 
2.10.  The  above  remarks  must  in no way  make  us 
overlook  or underrate  women's  work  in the home. 
Here  too  the Commission  should  think  about  ways 
of arriving  at a just  assessment  of woman's  service  to 
the family  and of avoiding  discrimination. 
30.9.74 Official  Journal  of the European  Communities No C 116/43 
These  are some  of the important  aspects  of problems 
which  the  working  groups  to be set up by the 
Commission  will  have  to bear  in mind  if their 
approach  is to be a balanced  one. 
Self-employed  persons 
2.11.  The  social  situations  of  the  various 
socio-professional  groups  do not develop  on parallel 
lines.  Social  policy  in the Community  in 1973  was  in 
fact more  concerned  with  wage-earners  than  with  the 
self-employed. — establishment  of mutual  aid  services  to ensure 
continued  operation  of their  businesses  during 
sickness  and  to give  the self-employed  person  the 
chance  of a holiday; 
— allocation  of aid by the Community  for retraining 
self-employed  persons  to  take  up  new 
self-employed  occupations. 
Finally,  in attempting  to improve  the  living  and 
working  conditions  of the self-employed,  particular 
importance  must  be attached  to their  vocational 
training. 
2.12.  Though  the Commission  and the Council  are 
quite  right  to concern  themselves  with  the living  and 
Working  conditions  of wage-earners,  neither  of them 
has yet devoted  sufficient  attention  to the situation  of 
the self-employed,  who  after  all  make  up  a 
substantial  part  of the workforce  in the Community. 
The Committee  has already  drawn  the attention  of 
the Community  bodies  to the  social  problems  of 
self-employed  workers,  in particular  in its Opinion 
on the 'Development  of the  social  situation  in the 
Community  in 1972'. 
2.13.  In  particular,  the Committee  has  examined 
the situation  in the agricultural  sector.  The  position 
of the self-employed  here,  living  and working  as they 
do in areas  that  are  underprivileged  and  without 
essential  infrastructures,  is sometimes  dramatic. 
2.14.  An  active  employment  policy  for  the 
self-employed  must  be able  to ensure  that  the fullest 
possible  information  is available  about  the  labour 
market  in both  its  quantitative  and  qualitative 
aspects.  To this  end,  regional  employment  offices 
should  extend  the  scope  of their  activities  to deal 
with the  employment  problems  of self-employed 
workers. 
2.15.  The  social  situation  of people  living  in 
agricultural  and  rural  areas  requires  urgent  attention 
if massive  depopulation  of such  areas  is to be 
avoided.  In most  agricultural  and  rural  areas  the 
development  of sanitation,  cultural  facilities  and 
roads  is proving  essential. 
2.16.  The  following  measures  are  necessary,  in 
particular  for self-employed  workers: 
— improvement  of the system  of social  security  for 
self-employed  persons  and  moves  towards 
granting  them  social  benefits  equivalent  to those 
for other  socio-professional  groups; Migrant  workers 
2.17.  As  long  as the Community  has  a declining 
birth  rate  and  there  is a real  contraction  in its labour 
force,  the  recruitment  of migrant  workers,  an 
increasing  number  of whom  come  from  third 
countries,  will probably  continue  to be a fact of life. 
Because  of the  generally  low  level  of training 
qualifications  among  these  workers,  the problem  of 
working  and  living  conditions  is likely  to become 
more  and more  acute. 
2.18.  Improvements  must  be made  firstly  to the 
living  and  working  conditions  of migrant  workers 
doing  the most  unpleasant  jobs  — which  also  happen 
to be jobs  which  fewer  and  fewer  workers  from  the 
Community  are willing  to do. 
2.19.  Chapter  III of the Committee's  Opinion  of 
26 June  1973,  already  referred  to above,  was  devoted 
to the situation  of migrant  workers,  and  numerous 
recommendations  were  made  regarding  their  living 
and working  conditions,  the preparation  and  briefing 
of migrant  workers  in their  countries  of origin, 
reception,  information  and  assistance  for  migrant 
workers  and  their  families  in host  countries, 
reintegration  in  their  countries  of  origin, 
accommodation,  the  education  of their  children, 
social  security,  industrial  accidents,  etc. 
2.20.  The  European  Commission  should  include 
the measures  advocated  in that  Opinion  in the 
'Action  programme  for migrant  workers'  which  it is 
in the course  of preparing  and  which  it intends  to 
submit  to the  Council  of Ministers  before  31 
December  1974. 
2.21.  The  draft  programme,  which  includes  an 
analysis  of the situation  and  shows  a determination 
to act,  has  a sound  approach  to the  problem.  A 
coordination  of policies  on migration  would  be 
No C 116/44 Official  Journal  of the European  Communities 30.9.74 
particularly  welcome.  But in view  of the urgency  of 
the problems,  a start  should  be  made  on 
implementing  the Commission's  proposals  very  soon. 
The Committee  therefore  urges  that  the submission 
of the  relevant  reports  and  the  consultations 
announced  by the Commission  be speeded  up and 
that the proposals  duly  submitted  by the Commission 
be favourably  decided  on by the Council. 
Handicapped  workers 
2.22.  The  situation  in  the  employment  of 
handicapped  persons  also  calls  for  urgent  and 
effective  action.  On 28 March  1974  the Committee 
delivered  an Opinion  on: 
— the Community  action  programme  on  the 
employment  of handicapped  persons  in an 
open-market  economy; 
— the proposal  for  a Decision  by the  Council 
concerning  action  by the European  Social  Fund  to 
assist  the social  and  occupational  integration  of 
handicapped  persons; 
in this  connection  the  Committee  welcomes  the 
Council  Decision  of 10 June  1974. 
2.23.  The  need  for these  measures,  is universally 
accepted,  primarily  for  obvious  humanitarian  and 
social  reasons.  An additional  factor  is the growing 
need  of Western  economies  for skilled  labour. 
2.24.  These  factors  should  make  for  an 
improvement  in  the  employment  situation  of 
handicapped  persons.  But the problem  still  has to be 
properly  diagnosed  and to this end account  should  be 
taken  of the following  considerations: 
— the prevention  of industrial  accidents  is clearly 
crucial  for the aim  of reducing  the number  of 
handicapped  persons.  The  Committee  is to deliver 
a specific  opinion  on this matter; 
— the training  and  rehabilitation  of handicapped 
persons  is the duty  of society  as a whole.  On the 
other  hand,  it is for  undertakings  to provide 
suitable  jobs,  and  legislators  must  create 
conditions  which  encourage  employers  to employ 
handicapped  persons  to the best  advantage  of the 
handicapped  persons  themselves,  the undertakings 
concerned  and the economy  in general; 
— such  reintegration  into  the working  world  must 
take maximum  account  of the characteristics  and 
capacities  of handicapped  persons.  In other 
words,  handicapped  people  must  be  guided towards  occupations  in which  their  handicap  is of 
little  or no consequence; 
— if it is to have  a firm  basis,  vocational  training  for 
the handicapped  must  be directly  geared  to the 
actual  and  foreseeable  requirements  of industry. 
Such  training  must  aim  to  inculcate  in 
handicapped  people  a personal  willingness  to 
accept  continuous  adaptation; 
— vocational  training  of the  handicapped  worker 
should  preferably  aim  — whenever  possible,  and 
bearing  in mind  the  point  made  in the  third 
indent  above  — to re-establish  him  in his former 
occupation  (if any); 
— the need  to find  ways  of encouraging  firms  to 
adapt  their  jobs  (workplaces  and  working 
conditions)  to the various  needs  of handicapped 
workers  (for  example,  by making  slight  changes 
to production  processes,  altering  the  way  in 
which  machines  are  operated,  provision  of 
transport  facilities  for handicapped  persons). 
Temporary  work 
2.25.  In  addition  to the groups  of workers  which 
have  been  briefly  dealt  with  in the foregoing  there  is 
another  type  of employment  which  attracts  special 
attention  viz.  temporary  work.  Employment  of this 
type is steadily  expanding.  Although  it has positive 
aspects,  it can give  rise to irregularities  which  require 
legislative  action  at Community  level. 
2.26.  Temporary  work  satisfies  a social  and 
economic  need.  Because  of its special  features,  it 
meets  the requirements  of large  numbers  of workers 
who are  unwilling  to accept  the  constraints  of a 
contract  of indefinite  duration.  It also  satisfies  an 
economic  need  by making  replacement  staff  available 
at a time  when  undertakings  are being  affected  by the 
shortening  of  working  hours  and  mounting 
absenteeism,  and it will  continue  to fill this gap until 
arrangements  for  making  working  hours  more 
flexible,  as referred  to above,  become  general. 
2.27.  However,  since  temporary  work  is inherently 
short-term,  it may  not always  afford  the temporary 
worker  an adequate  protection  equivalent  to that 
enjoyed  by other  workers.  There  would  seem  to be a 
need,  then,  to provide  such  protection. 
2.28.  With  this  problem  in mind,  the  European 
Commission  earlier  drew  up a draft  Directive  on 
social  protection  for  temporary  workers  in 
connection  with  the free  movement  of labour  within 
30. 9. 74 Official  Journal  of the European  Communities No C 116/45 
the Community.  Work  on this  draft  is now  in 
abeyance. 
2.29.  The  Committee  urges  that  the  issue  of 
temporary  employlnent  be taken  up again  in the near 
future,  this  time  on  an  overall  basis  with 
consideration  being  given  to all its aspects. 
2.30.  The  Coftirftittee  will  deliver  an opinion  on 
this important  type  of employment  when  the 
proposals  are before  it. / 
B. Social  security  benefits 
2.31.  An  analysis  of the position  in the Member 
States  of the Community  reveals  that: 
— social  security  risks  are covered  in different  ways 
as regards  both  the field  of application  and  the 
size of the benefits  and the way  in which  they  are 
financed; 
— the organization  of social  protection  systems  is 
based  on arrangements  which  differ  from  country 
to country; 
— some  of the measures  taken  by Member  States  are 
specific  to the current  inflationary  situation; 
— reforms  are being  prepared  or carried  out in some 
of the Member  States. 
The Report  on  the  Development  of the  Social 
Situation  shows  the similarity  of the problems  which 
are being  encountered  and  dealt  with  in the Member 
States,'  but reveals  at the same  time  the lack  of an 
overall  approach  to policy  on social  protection.  The 
Social  Action  Programme  adopted  by the Council  is a 
first step  in the search  for such  an approach. 
Hence  it is reasonable  to ask whether  there  has been 
any consultation  and  concertation  in the European 
institutions  with  respect  to the reforms  planned  in 
some  of the Member  States  and whether  it would  not 
be a step  forward  if in the  future  common 
top-priority  objectives,  as regards  harmonization, 
were  identified  by those  responsible  for social  policy. 
The Committee  studied  this  problem  in 1971.  Two 
points  of view  Emerged:  some  members  were  in 
favour  of retaining  separate  policies  but open  to the idea of aligning  the overall  framework  for covering 
social  security  risks;  other  members  noted  the 
similarity  of situations  existing  in the  Community 
and advocated  the step-by-step  alignment  of social 
protection  systems. 
Social  security 
2.32.  Several  Member  States  of the  Community 
have  undertaken  major  reforms  of their  social 
security  systems.  Other  countries  have  laid  down  the 
general  guidelines  for the social  security  policy  they 
intend  to pursue  in the future. 
Though  the  schemes  still  differ  from  country  to 
country,  the  report  is able  to point  to the 
development  of a number  of common  trends 
towards: 
— the extension  of social  security  to sections  of the 
population  which  were  hitherto  less  well  covered 
(old people,  the  handicapped,  self-employed 
persons,  workers  from  non-member  countries, 
university  students); 
— a rise  in the  level  of protection  through 
adaptation  of the  amounts  of benefits  and  the 
search  for  ways  of ensuring  that  the  level  of 
benefits  keeps  pace  with  that  of wages.  These 
measures  meet  the points  raised  by the Committee 
in its Opinion  on the Preliminary  Guidelines  for 
the Definition  of  a  Community  Social 
Programme.  It is a pity,  however,  that  the 
maintenance  of the purchasing  power  of benefits 
is not guaranteed  in all Member  States; 
— the achievement  of an  equivalent  level  of 
protection  for  all  sectors  of  society.  At 
Community  level  the problems  of the equivalence 
of protection  between  occupational  categories 
arises  specifically  in  connection  with  the 
coordination  of the various  national  systems.  In 
its Opinion  on the Social  Situation  in 1972  the-
Committee  expressed  its broad  support  for the 
trend  which  was  emerging,  though  it pointed  out 
the special  problems  posed  by the financing  of 
this equivalent  protection; 
— the search  for more  effective  solidarity  among  the 
various  groups  in society.  Some  Member  States 
are asking  themselves  how  social  security  should 
be financed,  how  certain  income  can  be 
redistributed  and what  the limits  of social  security 
are. In 1971  the Committee  delivered  an Opinion 
which  went  into  certain  of these  problems;  the 
recommendations  made  should  be put into  effect 
No C 116/46 Official  Journal  of the European  Communities 30. 9. 74 
by the  Commission  and  the  Council  within  the 
framework  of cooperation  with  the  representa-
tives  of economic  and  social  activity. 
As regards  supranational  measures  for  the 
achievement  of solidarity;  the Committee  will  be able 
to make  a more  detailed  assessment  of  the 
Commission  proposals  when  it examines  the relevant 
proposals  in the social  programme. 
Family  affairs 
2.33.  Family  policy,  which  hitherto  concentrated 
on offsetting  the  cost  of family  responsibilities, 
though  it has  done  so to an insufficient  degree,  is 
progressively  being  expanded  to take  in the following 
areas: 
— the  development  of public  social  facilities; 
— home  help; 
— the  involvement  of parents  in the  education  of 
their  children  and  provision  of  a better 
educational  and  emotional  environment  for  the 
development  of children; 
— family  planning  education. 
Some  Member  States  have  pursued  more  advanced 
policies  in one  or  other  of these  areas,  but 
everywhere  the amount  of financial  resources  which 
should  be given  over  to such  policies  presents  a 
problem. 
The best  solutions  should  be sought  to the problem 
of how,  given  adjustments  to working  hours,  parents 
can be helped  to participate  in the education  of their 
children.  The  search  for solutions  should  go further 
than just  child-minding  at certain  times  of the day. 
More  and  more  emphasis  must  be placed  on family 
policy  in the  Community.  There  are  population 
policy  reasons  connected  with  the development  of the 
labour  force  and  related  problems  of economic 
growth  that  argue  in favour.  However,  the decisive 
reasons  for taking  greater  account  of family  policy  lie 
in the  Community's  declared  aim  of improving  the 
living  conditions  of everybody  in Europe.  Would  it 
not therefore  be wise  to embark  upon  a far-reaching 
coordination  of all  aspects  of family  policy  at 
Community  level? Social  Services 
2.34.  Certain  Member  States  have  begun  to 
decentralize  social  welfare  and  to  allow  local 
representatives  a say  in determining  the  human 
environment  of the population  at large:  The  positive 
results  of this  development,  to which  the  report 
draws  attention,  are such  that  serious  consideration 
should  be given  to extending  it .throughout  the 
Community  and  relevant  . stilus,  should  be 
undertaken  for  this  purpose.  Thesje  studies  should 
deal,  in particular,  with  the need  to' use the services 
of group  leaders  and  supervisors  in the social  service 
sphere  whose  initial  and  permanent  training  is 
specific  and at a high  level. 
A more  integrated  approach  to social  welfare  is 
favouring  the development  of a preventive  policy  and 
integrating  social  services  be|ter  jnt^  the  actual 
environment  of the people  they  must  reach. 
Close  integration  of housing  and  social  services 
policies  would  probably  help  to achieve  a better 
organization  of communal  life. 
The emphasis  the  report  places  on the  preventive 
aspect  ought  to be heeded  and  lead  in the  medical 
field  to the  introduction  of  measures  by  the 
Community  and  the  Member  States  to develop  the 
practice  of compulsory  medical  examinations  and  of 
keeping  a medical  file on each  individual. 
Housing  ,  , i 
. i•' . .'i, 
2.35.  No  one  would  dispute  the  desirability  of 
modernizing  the  building  industry  so as to reduce 
construction  costs.  It is regrettable,  ^owever,  that  no 
Community  policy  as yet tackles  tfy<?  question  of land 
policy  (the  control  of land  speculation,  reservation  of 
land for building  low-cost  housing,  etc,). 
r-j f  ' ' 
• 'u J 
2.36.  Town  and  country  planning  problems  will 
probably  assume  greater  impo^t^^je  oi> account  both 
of the  urban  renewal  policies  bejjig  pursued  by the 
Member  States  and  the cost  of nejW,  building. 
2.37.  The  well-known  problem  of  the 
concentration  of economic  development  in large  cities 
and their  suburbs  will  make  it necessary  to carry  out 
an increasingly  searching  examination  of  the 
organization  of life  in the cities  (roads,  green  areas, 
public  facilities,  zoning). 
30. 9. 74 Official  Journal  of the European  Communities No C 116/47 
2.38.  The  decentralization  experiments  being 
carried  out  by some  Member  States  in specific  areas 
of social  policy  should  be  encouraged  if the 
population  is to be more  closely  involved  in, and 
stimulated  to  reflect  more  about,  its  human 
environment. 
C. European  Social  Fund 
2f39.  In  1973,  the first  complete  operating  year  of 
the reformed  European  Social  Fund,  the Community 
bodies  drew  up  a Social  Action  Programme  in 
pursuance  of the suggestions  made  by the Conference 
of Heads  of State  and  Government  which  took 
place  in October  1972;  the  Conference  had  inter 
alia stressed  the importance  of the role  of the Social 
Fund  in formulating  concrete  measures  on which  the 
action  programme  would  have  to be based. 
2.40.  One  of the  basic  objectives  of the  Social 
Action  Programme  is full  and  better  employment  in 
the Community.  In its proposals  of 24 October  1973 
the Commission  started  from  the  fundamental  fact 
that social  policy  on its own  cannot  achieve  the goals 
set by the Paris  Summit  Conference;  implementation 
of the  programme,  the  Commission  stressed, 
presupposes  a firm  political  commitment  and  a 
strengthening  of the  legal  instruments  and  greater 
financial  resources  — especially  with  respect  to the 
new Social  Fund. 
2.41.  In  the  1969  Opinion  on the  reform  of the 
European  Social  Fund  the  Committee  has  already 
stressed  the  need  to integrate  the Fund's  tasks  with 
Community  structural  policies.  However,  the 
Council's  Resolution  of 21 January  1974  on the 
Social  Action  Programme  gives  no  concrete 
indication  as to the role  of the  Social  Fund,  and  in 
the documents  annexed  to the Resolution  the Council 
simply  states  that  this  must  not  prejudge  the 
execution  of measures  arising  out  of Regulations 
already  in force. 2.43.  The  teething  troubles  experienced  in the 
operation  of the  new  Social  Fund  are  difficulties 
inherent  in the initial  application  of any  new  scheme, 
especially  when,  as in the  current  case,  active, 
management  is required  which  takes  account  of 
constantly  changing  needs.  It has been  found  that  the 
resources  at the  disposal  of the  Fund  either  do not 
match  actual  requirements,  or  that  they  are 
insufficient,  which  is the  case  with  the  obligations 
under  Article  5. 
2.44.  The  insufficiency  of the  Fund  for  the 
application  of Article  5 has forced  the Commission  to 
choose  priorities.  The  Committee  is not  unaware  of 
the conditions  under  which  the Commission  has  had 
to administer  available  resources,  and  considers  it 
methodologically  sound  to lay  down  a flexible 
codification  of guidelines  for the choice  of priorities. 
2.45.  The  Committee  considers  that  it would  be 
useful  to disclose  these  guidelines  and  the successive 
revisions,  to the  circles  concerned,  so that  such  a 
disclosure  could  be followed  by prior  checks  to be 
made  by the Fund's  staff  and  the  promoters  of the 
various  actions. 
The Committee  feels,  however,  that  there  is a danger 
that this  method  may  fail  to come  to grips  with  the 
problem  of striking  a general  balance  between  the 
financial  resources  available  and  the actual  needs. 
2.46.  Though  it realizes  that  it is difficult  to 
provide  full  financial  cover  for  the  operations 
encouraged  under  the  Fund's  regulations,  the 
Committee  considers  that  every  attempt  should  be 
made  to achieve  this  goal,  so as to avoid  the Fund's 
resources  being  dissipated  by subsidizing  a number  of 
applications  based  on a situation  that  has little  to do 
with  such  an objective.  This  would  give  rise  to 
conditions  in the operation  of the Fund  which  would 
encourage  attitudes  to creep  in based  on  the 
undesirable  principle  of 'getting  out  what  you  put 
in'. 
2.42.  The  Committee  would  like  an early  end  to 
the impression  that  the  political  will  of  the 
government  delegations  with  regard  to the action  of 
the new  Social  Fund  is less  intense  than  that  shown 
by member  governments  at the  Paris  Summit;  the 
Council  will  have  an opportunity  to dispel  these 
doubts  when  it deals  with  the  report  on  the 
operations  of the  Fund  which  the  Commission  has 
promised  to submit  to it before  1 July  1974. 2.47.  The  Committee  considers  that  the  present 
situation  is largely  attributable  to factors  outside  the 
Fund  itself;  by its nature  the Fund  is essentially  an 
instrument  and  is  inevitably  affected  by  the 
inadequacies  and  delays  in Community  policies  and 
action;  it is particularly  dependent  on the  regional 
policy,  since  the execution  and  organic  development 
of regional  policy  is a basic  condition  for the Fund's 
effective  operation. 
No C 116/48 Official  Journal  of the European  Communities 30.9.74 
2.48.  The  Committee  also  notes  that  in integrating 
the Fund's  activities  in the  framework  of clearly 
defined  policies  it is necessary  to intensify  efforts 
aimed  at providing  full  information  on employment, 
as regards  both  the situation  existing  at any  given 
moment  and  forecasts  of future  trends.  The  Section 
for Social  Questions  and  the Committee  made  this 
point  in 1969  in the Opinion  on the reform  of the 
Social  Fund. 
2.49.  The  Committee  considers  that  the Standing 
Committee  on  Employment  is an  important 
instrument  for the achievement  of this  basic  aim;  this 
Done  at Brussels,  27 June  1974. body  has been  inactive  for too long  and  the Council 
should  consider  convening  it as a matter  of urgency. 
2.50.  As  regards  Fund  assistance  for  migrant 
workers,  the Committee  considers  that  the integrated 
programmes  referred  to in the relevant  Commission 
proposal  provide  a suitable  opportunity  to develop 
cooperation  between  States  at Community  level;  in 
this connection  the  Committee  requests  the 
Commission  to  take  all  necessary  action  for 
promoting  and  assisting  the  organization  and 
execution  of these  programmes. 
The Chairman 
of the Economic  and  Social  Committee 
Alfons  LAPPAS 
ANNEX 
to the Opinion  of the Economic  and  Social  Committee 
The following  proposal  for  an amendment  introduced  in accordance  with  the  Rules  of 
Procedure,  was  rejected  by the Committee  during  its discussions. 
Point  2.16,  4th paragraph: 
To the second  indent,  after  'new  self-employed  occupations',  add:  'or occupations  as wage-
or salary-earners'. 
Reasons 
In certain  cases  self-employed  persons  wish  to take  up occupations  as wage-  or salary-earners 
because  establishment  in a new  self-employed  occupation  often  requires  a capital  input  which 
cannot  be provided  by the person  concerned. 
Self-employed  persons  who  transfer  to an occupation  as a wage-  or salary-earner  are often  very 
able workers. 
Result  of the vote: 
For: 7. 
Against:  60. 
Abstentions:  8.