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COM (78)492
Vol.1978/0182

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COMMISSION OFTHEEUROPEAN COMMUNITIES
COM(78)492 final
Brüssels,10November1978
DEVELOPMENT COOPERATION
AND
THEOBSERVANCE OFCERTAININTERNATIONALSTANDARDS GOVERNING
WORKING/CONDITIONS
(Commission Communication totheCouncil)*
U- ■<>•»■?! "\V
/s'\
COM(78)492FINAL

Inits Memorandum (COM(78)47 final of16February 1978 )ontherenewal
ofthe Lome Convention ,the Commission indicated ,in'Chapter II.C.3.
"Considerations relating to'working conditions "why and howitis
contemplating the establishment ofa"link between the advantages offered
bythe Community (particularly inthe commercial field )andthe
observance ofcertain basic international standards governing working
conditions ",this link toapply toallthe developing countries ,
including the ACP States .
The policy guidelines proposed inthis Communication reflect this
concern andthe proposed implementing arrangements are dovetailed
asfar aspossible with the procedures that exist orarealready
envisaged inter alia inthe context ofthe renewal ofthe
Lome Convention .

-2-
I. OBJECTIVES
The objectives ofthe Community *sdevelopment cooperation policy must beto
promote social progress inthe developing countries asmuch aseconomic
growth .Itistherefore important forthe Community toensure that these
two objectives are pursued simultaneously inthe implementation and
application ofits development cooperation policy ,especially aseconomic
progress ofthe people concerned istied tosocial conditions .
Given the difficult economic and social circumstances inwhich the countries
ofthe Community find themselves ,itismore important than ever ,andatthe
same time more difficult ,toconvince public opinion inthe Community that a
cooperation policy isjustified . Inthefield oftrade cooperation in
particular ,the protectionist pressures that are threatening tohamper the
industrialization ofthe developing countries must beresisted .
The establishment ofalink between the advantages offered bythe Community
and the observance ofminimum labour standards accomodates these points of
concern ;
–ithelps toguarantee equality ofopportunity among the developing countries
inthe matter ofaccess tothe Community market byensuring that those that
apply the international labour conventions are not penalized ;
–itisdesigned topromote the social objectives ofdevelopment .
II.The choice ofstandards
Thefirst task ofthe Commission wastherefore tochoose from among the vast
body ofstandards covered bythe 151 ILO conventions ,the minimum labour
standards considered asbeing the most fundamental andtogroup them together
inatext that could serve asabasis for Community action . The basic texts ,
which forms Annex I,isaself-contained whole with precise definitions ,which
though derived directly from the ILO instruments ,reproduces only their
essential features and takes account ofthe state oflegislation and the
defacto situation inalarge number ofdeveloping countries .Ittakes four
labour standards that are considered fundamental ,these being proceeded bya
statement ofgeneral principles (see Annex IIforthelegal References to
thecorresponding conventions ).
Where the conventions provided forflexibility clauses inthe case ofthe
developing countries ,allowance has been made forthis .
Article 1(General Principles )isageneral statement ofintent concerning
the implementation ofthe text asawhole .

Article 2(Equality ofOpportunity andTreatment inemployment and.of
profession )will apply ineach State "tothat State'snationals and .isdesigned ,
toprevent any de .jure ordefacto discrimination between the various
categories ofthenational population "byreference tothecriteria listed (*).
Article 3(Working Hours )relates toafundamental standard ,which is
however accompanied byaflexibility clause ,establishing alimit onthe
duration ofthe working week .Itcorresponds tothe de .jure ordefacto
situation inmost countries ,even where ,forvarious reasons ,they have not
ratified thecorresponding ILOConvention ,which dates back to1919 .
Article 4(Employment ofChildren andAdolescents )follows theprovisions of
theconvention inquestion which were established specifically forthe
developing countries (**). Italso corresponds moreover tothelegislation
adopted byalarge number ofdeveloping countries pursuant toConvention Mo5
onthe minimum age inindustry .
Article 4(b)is designed tolook after thehealth andsafety ofchildren and
adolescents and takes over standards established bythree successive ILO
conventions .
Itwould have been possible toadopt asabasis the relevant ILO conventions
themselves . However ,since the number ofratifications ofthese conventions
bythe ILO Member States varies considerably according totheir content and
date ,itbecame apparent that itwould bevery difficult toevolve a
satisfactory uniform system tomonitor the actual application ofthe
standards and the overall context ofthe relevant conventions .
The formula adopted makes itpossible todraw upaCommunity basic text which
refers directly tothe ILOinternational conventions governing certain
minimum working conditions (***).
(*)Theexpression "national origin ",asused inArticle 2ofAnnex I,
refers tothose that have acquired the .status ofnational by
naturalization . ■ ■ ^.
{**) Artisanal firms arenotcovered bytheconvention inquestion ;it
expressly excludes agricultural ,family orsmall firms whose production
isintended forthelocal market and which donotregularly employ
paid workers .
(***) See Annex II.

-4-
Thestandards adopted inthebasic text canbeconsidered torepresent a
minimum .Certain business andlabour circles intheCommunity would like
theCommunity togofurther inthis direotion byconsidering other basic
standards covering working conditions ,notably those relating tothe
fixing ofaminimum wage ,trade-union freedom ,negotiating rights and
questions ofhealth andsafety atwork .
TheCommission oonsiders that itshould bepossible toexamine this
possibility atalater date intheli^it oftheexperience gained in
implementing thepresent arrangements ,account also being taken ofother
developments stemming from theCommunity 'sinitiative .
Itisreasonable tothink that bygiving priority totheobservance of
standards which directly affect people (age ,non-discrimination ,working
hours )theCommunity 'saction will have significant political scope and
will thus accelerate atrend that isalready apparent .Thereference
tothe ILOconventions and thecooperation requested oftheInternational
Labour Office will also help towards this end .Itistime that none of
theconventions towhich the standards adopted refer hasyetbeen ratified
byallILOmember states ,buttheir ratification isnotadecisive factor :
after adoption bytheannual conferences oftheILO ,their purpose isto
provide animpetus foreconomic andsocial development inall countries
andthey constitute thebasis for theadoption ofstandards andthe
provision oftechnical assistance bytheILO ,which have produced remarkable
results both intheindustrialized countries andinthedeveloping countries ,
even thepoorest (1).
Furthermore ,theDirector-General andtheDepartment ofStandards ofthe
International Labour Office have noted with interest the Commission 's
stated intention inthis field andhave supplied allthenecessary information
oninternational labour standards andtheprocedures relating thereto .
(1)See"International work standards ",ILO ,1978 *

in .P.OIJg OFTig ;INTERNATIONAL LABOUR 0FFIC3
Theapplication ofthearrangements forimplementing -theprinciples contained
inthis communication requires the cooperation oftheInternational Labour
Office .Since this text derives directly from thecorpus ofILOconventions
andother international instruments whose application ismonitored bytheILO ,
theCommunity intends torequest that organization touse (1)itsown
monitoring procedures andmachinery fortheapplication ofconventions ,
irrespective ofwhether certain countries have orhave notratified theILO
conventions intheir entirety (seeAnnex III ,page 1,last paragraph ).
Although theInternational Labour Office *scontrol over theapplication ofthe
international conventions does notextend toreal sanctions ,itnevertheless
exerts considerable moral pressure ontheStates concerned .Itmaybenoted
inthis connection that there arebetween seventy-five and ahundred cases
each year where theILO'smonitoring organs areable toexpress their satisfaction
with measures taken bygovernments tointroduce thenecessary changes intheir
national legislation orpractice asaresult ofprevious observations bythe
monitoring organs ,inquestion regarding theextent towhich thelegislation or
practice ofthecountry concerned wasinaccordance with theprovisions ofa
ratified convention .
Furthermore ,aresolution adopted bytheILOConference in1977 urgently asks
Member States tobear inmind theneed toadjust aidpolicy ,sofaraspossible ,
vis-a-vie States inrespect ofwhich itisestablished ,following examination
bytherelevant ILOorgans ,that they axeregularly violating basic human
rights andsocial andtrade union rights .Theconcrete effects ofcontrolling
theapplication ofstandards adopted bytheCommunity would nottherefore
involve anewdeparture fortheGoverning Body oftheInternational Labour
Office (2).
(1)Subject totheprior agreement oftheGoverning Body oftheILO.There
aretwoprecedents inthis field %theagreement expressed bytheGoverning
Body oftheInternational Labour Office forcontrolling theapplication
ofthe "International pact inrespect ofeconomic ,social andcultural
rights "asasked forbytheUN(ECOSOC )andthe"European social security
code "asked forbythe Council ofEurope . .
(2)This organization hasforsome years been concerned with thedefinition of
equitable labour standards inthecontext ofinternational trade :the
International Labour Office devoted adetailed study tothis subject between
1971 and1973-following anintervention from President Senghor –andthe
Director-General hasalready dealt with itinhisreport atthe58th session
oftheILOConference (1973 ;*

-6-
IV»Scope of "fchearrangements
TheCommunity 'sdevelopment cooperation policy isnotaimed solely at
theeconomio development ofthecountries receiving aidbut also at
their social progress .Accordingly ,thepreamble oftheLome Convention
expressly links thetwoterms (l).
Itistherefore only right that theCommunity should want toattach to
thecommercial ,financial andtechnical assistance that itgives certain
conditions designed topromote thesocial ends ofdevelopment .
–Atthelevel offinanoial andtechnical cooperation theprinciple will be
applied intheexecution oftheprojects andprogrammes financed bythe
Community institutions .
–Application ofthis principle totrade cooperation will have theeffect
ofestablishing alink between thetrade perferences granted autonomously
bytheCommunity tocertain developing countries ,together with the
preferential trade arrangements written into theassociation agreements ,
andthebeneficiary countries' observance oftheminimum labour
standards (setoutinthebasic text which forms Annex i).
(l)"Resolved tointensify their efforts together fortheeconomic
development andsocial progress oftheACPStates ".

* The Community will have tocomply withtwo preoccupations when applying
theprinciple : ; .
(a)th^t ofmaintaining afair "balance between the aims pursued «ndthe '
repercussions for thecountries concerned# With theactive ,
collaboration oftheInternational Labour Office ,theparticular ,
circumstanced ofthe least developed countries will have tobetaken
,•into account and could sometimes result indelaying the effective ■
\ application oftheconventions which they have -ratified (1);
' '' ^
(b)that ofavoiding the impression that theproposed arrangements are
inspired byprotectionism .This isonereason why the Commission
proposes that itspreferential advantages inthe framework ofits
cooperation and development policy should bedependent upon compliance
with the minimum standards adopted ,although this would not apply to
access to'the Community market ofproducts coming from developing
countries .Itmust bemade absolutely dear that incarrying out
the Commission 'sproposal ,the Community 'saimwill betohelp
countries benefiting from its cooperation tobase their economic
growth onconditions which are compatible with social progress .
The Commission 'sproposal isfar from being part ofaprotectionist
trend .Itwill infact strengthen the support ofCommunity business
and labour for anopen development cooperation policy byreserving
preferences forthe many countries who aretrying tobase their
economic growth onconditions which are compatible with social
progress .Nor should exceptions bemade forthe few .cases where
under-development isused tojustify inhuman working conditions .
\1)Among thecountries which the ILOConference Committee placed onits .
"Special list "in1977 because ofserious failures intheir obligations,' '
thefollowing poor countries have since complied with therules andare "
nolonger onthelist in1978 :Upper V olta ,Mauritania ,Central .
.African -Empire .,;This shows that thestandards areuseful andeffective .' Γ .
i'-> • ■1 1 -O
1% .Λ"";· ·:-,ν . :::-V .·

-8-
This principle will have "tobeimplemented ,bythe Community^.vis -a-visall
countries inreceipt ofits aid asfollows :
–onacontractual basis under thepreferential cooperation agreements ;
–ontheinitiative ofthe Community ,inthe application ofits generalized
preferences scheme .This could bedone onthe occasion ofthe review
scheduled for 19^0,after information inthe appropriate international
forums (UUCTAD ,GATT ,OECD),ontheselection ofstandards which the
Community consider fundamental and onthe method ofapplication .
Inany event ,these measures cannot beimplemented bythe Community inthe
framework ofthe generalized preferences scheme -asthe Commission has
indicated initsfirst communication onthe renewal ofthe Lom^-Convention -
until the Community takes decisions ofprinciple regarding all the countries
concerned .
V . Implementing procedures and arrangements
(a)_In_trade __
The principles and scope ofthe arrangements for implementing the minimum
standards set .out inthe basic text will bethe same forall developing
countries but the procedures will differ according tothe context in
which the Community hastoact–unilateral (GSP)orcontractual (Lome
Convention orMediterranean agreements ).
i.The Commission ,acting onits owninitiative orattherequest ofa
Member State ,onbeing informed ofaninfringement ofthe standards
adopted will ask the International Labour Office –without prejudice to
the use ofthe Commission ^own on-the-spot information resources -to
verify this information (see Annex III onthe ILOfsprocedures and
practice ).
ii.Where appropriate ,the Commission ,with the approval ofthe Council ,will
initiate consultations with the developing country orcountries concerned
tofind asolution acceptable tothe parties concerned .
iii.Failing such asolution ,persistent non-compliance with the minimum
standards and anyinjury suffered bythe Community Member States will
oblige the Community totake thenecessary measures .

-9-
Inthecase ofcountries with which the Community has oonoluded preferential
cooperation agreements ,these measures will betaken pursuant tothesafeguard
clauses written into the agreements ,the said clauses possibly being adapted
forthis purpose .Where the injury isdueessentially tonon-compliance with
the minimum standards adopted ,itisunderstood atCommunity level that these
measures cannot gobeyond the temporary withdrawal ofthe exemption from
customs duties and charges having equivalent effect accorded bythe cooperation
agreements under theheading oftrade cooperation .Where appropriate ,such
withdrawal could beconfined tothe products ofone ormore sectors of
production ifitwere apparent that the non-compliance with the minimum
standards involved only certain products orsectors .
Naturally ,atthe outset the Community will clarify precisely forthe countries
concerned what range ofstandards itconsiders asfundamental ,theviolation
ofwhich ,byvirtue ofdamages sustained ,may lead tothe invocation of
safeguard clauses .
Inthe context ofthe GSP,the Community will take identical measures onan
autonomous basis .
(b)Inthe^fieJLd^of jj^hnica ^andfinancial assistance
The Community institutions (Commission andEIB)will seetoitthat dueaccount
istaken ofsocial aspects (l),ynotably ofcompliance with theminimum labour
standards ,intheexecution ofprojects and programmes .
(1)Article 53(1)ofthe Lome Convention :
"1.The Community shall appraise projects and programmes inclose
collaboration with the ACP States and any other beneficiaries .The
technical ,social ,economio ,trade ,financial ,organizational and
management aspects ofsuch projects orprogrammes shall bereviewed
systematically ."

-10-
VI•Cooperation procedure between the EEC and the ILO
After establishing the basic text setting out the minimum standards
which itconsiders to "befundamental ,the Community would have to
seek with the help ofthe International Labour Office ways of
checking that the standards laid down inthe basic text are
effectively applied . However ,itshould bespecified that while
itisfor the International Labour Office tojudge whether the
standards adopted inthebasic text are being applied ,responsibility
forthe application ofthe arrangements lies with the Community ,
acting onaproposal from ,the Commission . The Commission must
continue todetermine the importance ofthe complaints and
infringements notified toitbefore requesting the International
Labour Office tocarry out acheck . Even ifnorn-observance ofthe
minimum labour standards were confirmed bythe International Labour
Office ,the Community would still bethe judge ofwhether itwas
appropriate toputthe arrangements into operation .
*****
The Commission requests the Council toapprove these guidelines .At
the appropriate time ,itwill put forward proposals fortheir
technical implementation ,both inthe context ofthe renewal ofthe
Lom£ Convention andinthe other areas ofapplication ofthe Community 's
development cooperation policy .
*****

MINIMUM LABOUR STANDARDS
GENERAL PRINCIPLES
■' •
States will take action using thefS&l 'resources' &v£ilable tothem–both -
bytheir ownefforts andviainternational assistance andcooperation ,particu­
larly economic andtechnical -tosecure theimplementation oftheprinciples
established inthis text byallappropriate means ,including inparticular the
adoption oflegislative measures .
•. • •. . *
FOTt-DISCRU -HMTION 33TTHE'MATTER OFEMPLCTMEKT MDOCCDPATIOTT ' .
States will take measures designed to -promote ontheir territory equality "oropportunity
andtreatment inthd~matter ..of'employment andoccupation sothat alldiscrimination
based onrace,colour ,sex,felipion ,national origin orsocial origin iseliminated .
WORKIN *HOURS HTÏFIirjsrRr
States will take measures toensure that alimit issettothenumber ofhours'
worked ;this should notexceed 48hours perweek,except inthecaseofthe
necessary derogations ,afull list ofwhich should beestablished .
. i
EMPLOYMENT OfCHILDREN ANDADOLESCENTS
a)States will take measures :tosecure theeffective abolition of -child labour *
ι _ ·
andtoestablish ^years as -theaininrtp agefortaking up^employment or ;™ '
work . *•r"'
These measures donotaffect artisanal undertakings ;'nb*dothey -aff«ct
agricultural ffamily orsmall*-scale undertakings producing forthelocals
market which do .not -employ paid ;.workers onaregular basis .
b>Inaddition totheminimum agefortaking upemployment ingeneral ,legislation
must fixtheagebelow which children andadolescents must notbeemployed or
engaged indangerous orinsalubrious workorbeemployed orwork atnight .

ANNEX II
MINIMUM LABOUR STANDARDS :LEGAL REFERENCES
AIL -thearticles making upthe basic text have their Legal source either inthe
ILO Conventions that have entered into force -i.e. after the minimum number of
ratifications bythe Member States has been reached -orinthe United Nations
International Covenant onEconomic ,Social andCultural Rights (1976 )(the In­
ternational Labour Office wasinstructed byECOSOC tohelp monitor the implementa­
tion ofthe Covenant ),orlastly inthe ILOTripartite Declaration ofPrinciples
concerning Multinational Enterprises -andSocial Policy (1977),which was *unani­
mously adopted bythe Governing Body ofthe International Labour Office .
»
More specifically ,thearticles making upthe basic text (Annex I:MINIMUM LABOUR
STANDARDS ),refer '' '' ' ' •
-forArticle 1 :tothe Covenant ,Article 21)
-forArtide 2 :to'Convention NoIII,Artide 1a),and
tothe Declaration onMultinational Enterprises ,etc..
para .21
-forArtide 3 :toConvention NoI,and
tothe Covenant ,Article 7d)
-forArticle 4a :.toConvention No5,and
toConvention No138,Artide 2para .4(*)
-for Article 4b :toConvention No79
toConvention No90,Artide 3I)and
. toConvention No138,Artide 3I).
(*)Article 2,para .4ofConvention No138contains thespecial provisions of
the Convention relating todeveloping countries .

AUNEX IIT
ILO PROCEDURES AND PRACTICE CONCERNING THE MONITORING AND APPLICATION OF
INTERNATIONAL LABOUR CONVENTIONS AND RECOMMENDATIONS
Since alink istobeestablished between Community aid anddevelopment coopera­
tion andcompliance with certain minimum labour standards derived from ILO conven­
tions andsince itisproposed tocall onthecooperation ofthe ILOtomonitor
theeffective application ofthose standards ,itisimportant toknow theproce­
dures andpractice followed bythe ILOinthis field ,inwhich ithasconsiderable
resources and long and valuable experience .
*
a)Provisions inthe ILO Constitution
Articles 19,22,23,24>26and 35ofthe ILOConstitution indicate precisely
0
how aninternational labour convention adopted bythe Conference istobesub­
mitted forratification bythenational parliaments andalso states precisely
theobligations ofthe Member States ,namely :
.Each Member State undertakes toprovide theInternational Labour Office with
anannual report onthe measures adopted byittoimplement the conventions
towhich ithas acceded . .
These reports are drawn upinthe form indicated bythe Governing Body and
must contain thedetails requested bythat Body .
.Even ifthe convention has not been ratified bythe competent national
authority ,the Member State must still submit reagrds atappropriate
intervals -asdecided bythe ILO Governing Body -onits legislation
andpractice concerning thequestion covered bythe convention ,speci­
fying theextent towhich ithas implemented orwill implement the pro­
visions ofthe convention andsetting outthedifficulties preventing or
delaying itsapplication .

ÏIÏ-2 ,-
.AMember State ,oremployers *orworkers' representative organization ,
maybring acomplaint orlodge agrotest against another Member State
which ,intheir view,isnotapplying inasatisfactory way aconvention
which ithasratified .(Inthe case offormal complaints ,theState
.bringing thecomplaint must also have ratified theconv.-ntion inquestion ).
Resources available tothe ILO
-ACommittee ofExperts ontheApplication ofConventions and Recommendations -
made upofindependent experts -has awhole arsenal ofr^eans enabling itto
obtain precise information onthelegislative situation ^ndinparticular on
thepractices inthevarious Member States ,whether ornot they have ratified
thecontentions in^question .
-This Committee ofExperts receives the annual reports dr^wn upbytheStates
and supplemented by :
.thereports ofthelabour inspection services ,stating thenumber ofins­
pection visits ,theinfringements against national legislation andthe pe­
nalties imposed ;
.thestatistical yearbooks published inthe countries ;
.the observations ofemployers' orworkers "organizations i
.the collections oflegal oradministrative decisions ;
.the reports ondirect contacts ;
.thereports ofmissions undertaken inthefield oftechnical cooperation ,
and
.all other official publications .
.Atthepresent time detailed reports drawn upbyreference toanumber
ofcriteria must besupplied every year,every twoyes.'Sorevery four
years depending ontheconvention andtheimportance o*thequestion
covered . .

III-3 .-
Thereport established bythe Committee ofExperts issubmitted tothe
Annual Tripartite Conference ;aworking committee -also tripartite -
questions therepresentatives ofthe Member States -Ministers bfLabour
ortheir delegates -onthesituations brought tolight bythereport
and ontheir intentions with regard tothem .
Intheevent ofserious repeated failure onthepart ofaMember State
tocarry outitsobligations under oneormore conventions ,theCommittee
oftheConference mayplace that State ona"special list ";despite its
purely moral force ,the Member States fear thelist and dotheir utmost
tokeep offit.
Bywayofexample ,the Committee ofthe 197 Conference placed thefollo­
wing countries onthe special list ;
Afghanistan ,Benin ,Costa Rica,United Àrab £mirates ,Guatemala ,Guinea ,Jordan
Laos,Malawi ,Malta ,Nepal ,Tanzania ,Chad.v
.1
Inaddition tothe resources referred toabove ,the ILOcan also call on
supplementary means ofinvestigation todeal with special situations •:
.enquiries -questioning governments ,employers' orworkers' organizations
onaspecific problem ;
.anon-the-spot Committee ofenquiry (e.g. Portugal ,Angola and Mozambi­
que in1961 and Chile in1974 );
.examination ofcomplaints bytheTripartite Committee onFreedom of
Association ,andtheInvestigation andConciliation Committee ,concer -
.ning the infringement oftrade union rights -these complaints can be
examined whether ornot the Government hasratified the corresponding
conventions (Japan ,Greece ,Lesotho ,Chile );
.establishment ofstudy groups tostudy particular situations indetail ;
.thedirect contact procedure ,which isused forthejoint examination
(International Labour Office-Government )ofobstacles totfjeratifica­
tion orapplication ofanygiven convention (Portugal ,Singapore ,
Malaysia ,the Andean Pe~.t countries ,Jordan ,Urugay ,Bolivia ,the Dominican
Republic ,Liberia )

iïkâsz
Conc lusion
Ascan beseen,the ILO hasestablished aprocedure and machinery enabl
ittomonitor continuously theextent towhich theinternational labour
conventions adopted bythe Conference have beenr&tified bythe national
Parliaments and towhat extent they are actually being applied .
* * 4c *