EUROPEAN SOCIAL POLICY - A WAY FORWARD FOR THE UNION - A WHITE PAPER
Date: 1994-07-27
Institutions: European Commission
Subjects: EU employment policy, European Social Fund, European social policy, application of EU law, gender equality, labour market, labour standard, public health, social partners, social security

COM'dlSSION  OF  THE  EUROPEAN  COI\MUNITIES 

COMC94)  333 

f  lnal 

Brussels,  27.07.1994 

EUROPEAN  SOCIAL  POLICY -

A  WAY  FORWARD  FOR THE  UNION 

A  WHITE  PAPER 

CONTENTS 

PREFACE 

INTRODUCTION:  PRESERVING  AND  DEVELOPING  THE  EUROPEAN  SOCIAL  MODEL 

Joss - THE  TOP  PRIORITY 

INVESTING  IN  A  WORLD  CLASS  LABOUR  FORCE 

ENCOURAGING  HIGH  LABOUR  STANDARDS  AS  PART  OF  A  COMPETITIVE  EUROPE 

BUILDING  A  EUROPEAN  LABOUR  MARKET 

EQUALITY  OF  OPPORTUNITY  BETWEEN  WOMEN  AND  MEN 

SOCIAL  POLICY  AND  SOCIAL  PROTECTION  - AN  ACTIVE  SOCIETY  FOR  ALL 

II 

Ill 

IV 

V 

VI 

VII 

ACTION  IN  THE  FIELD  OF  PUBLIC  HEAL TH 

VIII 

IX 

X 

TRADE UNIONS,  EMPLOYERS'  ORGANISATIONS  AND VOLUNTARY  ORGANISATIONS 
AS  PARTNERS  IN  THE  PROCESS  OF  CHANGE 

INTERNATIONAL  COOPERATION  - THE  ROLE  OF  EUROPEAN  SOCIAL  POLICY 

TOWARDS  A  MORE  EFFECTIVE  APPLICATION  OF  EUROPEAN  LAW 

NEXT  STEPS 

2) 

PREFACE 

common  with 

In 
industrialised  world,  Europe 
through  a  period  of profound  change. 

rest  of 

the 

is 

the 
living  _ 

The  globalisation  of trade  and  production, 
.the  huge- impact  of  new  technologies  on 
work,  society and individuals, the ageing of 
the population and the persistent high level 
of unemployment  are  all  combining  to  put 
unprecedented  strains  on  the  economic 
and  social fabric of all the Member States. 

These  were  the  challenges  addressed  in 
the  Green  Paper on  Social  Policy. 

for 

Europe  needs  a  blueprint 
the 
management of change.  The  \/\/hite  Paper 
on  Growth, 
Competitiveness  and 
Employment set out the important elements 
oLhow  to  combine  the  macro-economic 
policies  needed for sustained  growth  with 
increased competitiveness and the search 
for  more 
job  creation  with  a  high 
employment intensity of that growth. 

Many  of the  challenges  are  for  individual 
Member States to face,  but the  Union  can 
and  must play  its  role. 

Jobs. must  continue  to  come  top~ of the 
agenda, and the proposals on employment 
and  training  in  this  \/\/hite  Paper  are  an 
integral part of the process initiated  by the 
\/\/hite  Paper  on  Growth,  Competitiveness 
and  Employment. 

But social policy goes beyond employment. 
It affects people when they are at work but 
· also  when  they  are  not  - their  family  life, 
It  is  clear 
their  health  and  their  old  age. 
that 
the  profound  changes  currently 
affecting  our  societies  means  that  the 
complex  interaction  of  policies  that  make 
up social policy will need to develop i~ ___ QeW 
ways  in  the future. 

in 

face  of 

the  achievements  of 

This \/\/hite  Paper sets out ·a  framework for 
Union  action 
these 
the 
challenges.  It aims to consolidate and build 
the  past ..  -
on 
particularly as concerns  labour law,  health 
and  safety, 
free  movement  and  equal 
treatment between  men and women.  And 
it aims to create· a new dynamic by putting 
forward  new proposals  in  these  and  other 
areas,  such  as  social  protection,  equal 
opportunities for all  and  public health. 

Social  policy  at European  level  has  a vital 
part to  play in  underpinning the process of 
change.  The  Union  cannot  do  everything 
and  certainly  should  not  seek  to  supplant 
the responsibilities at national, regional and 
local  level. 

In  doing  so,  it  also  seeks  to  stimulate  a 
new  cooperative  partnership  between 
Member States,  social  partners,  voluntary 
and  civic organisations,  European citizens 
and  international  bodies  in  the  process  of 
change. 

This \/\/hite Paper seeks to set out the main 
lines  of  action  at  Union  level  for  the 
coming  years. 

It is based around the principle that Europe 
needs  a  broadly  based,  innovative  and 
forward 
is 
looking  social  policy 
successfully to meet the challenges ahead. 

if 

it 

The objective in the coming period must be 
to  preserve  and  develop  the  European 
social model as we move towards the 21st 
century, to give to the people of Europe the 
unique blend of economic well-being, social 
cohesiveness and high overall quality of life 
which was achieved in the post-war period. 

INTRODUCTION  - PRESERVING  AND  DEVELOPING  THE  EUROPEAN  SOCIAL  MODEL 

A  - SHARED  VALUES 

The  Commission's  Green  Paper  on 
1. 
European  social  policy 1  started  by asking 
the question: "what sort of a society do the 
·Europeans want?" The debate which the 
Green  Paper stimulated  has  involved  the 
Union 
institutions,  Member  States, 
employers,  trade  unions  and  a  whole 
range  of  other  civic  institutions,  not  to 
mention some individuals who volunteered 
their views.  This VVhite  Paper is the result 
of  that  consultative  procedure.  VVhile  it 
cannot  pretend  to  give  satisfaction  to  all 
points  of view,  it  is  an  attempt to  answer 
that  question  by responding  to  the  social 
goals  that  the  European  Union  has  been 
given by its Members, of which Article  2 of 
the  Treaty  on  European  Union  is  the 
clearest expression: 

throughout" 

to  promote 
the 
Community  a  harmonious  and 
balanced development  of economic 
activities,  sustainable  and  non 
inflationary  growth  respecting  the 
environment,  a  high  degree  of 
convergence  of  economic 
performance, 
level  of 
employment and of social protection, 
the  raising  of the  standard  of living 
and quality of life,  and economic and 
social cohesion and solidarity among 
Member States. 

a  high 

2. 
A society that could provide all these 
benefits  to  everyone  would  be  a  worthy 
one.  Europe  has  not yet  been  able  to  do 
that,  but  it  can  fairly  be  claimed  that 
nowhere  else  in  the  world  has  so  much 
progress been made towards such goals. 
It is also fair to claim  that the  human face 
of the  Union  is  more deeply embedded  in 
the  life  of the  Union  than  credit  is  given 
for. 

3. 

The contributions to the Green Paper 

2 

form 

confirm  that there are a number of shared 
values  which 
the  basis  of  the 
European  social  model.  These  include 
democracy  and  individual  rights, 
free 
collective bargaining, the market economy, 
equality  of  opportunity  for  all  and  social 
welfare  and  solidarity.  These  values  -
which  were 
the 
Community  Charter  of  the  Fundamental 
Social  Rights  of  Workers  - are  held 
together  by  the  conviction  that  economic 
and social progress must go hand in hand. 
Competitiveness  and  solidarity have  both 
to  be  taken  into  account  in  building  a 
successful  Europe for the future. 

encapsulated 

by 

All  Member  States  have  reaffirmed 
4. 
their commitment to  the  social  dimension 
as an indispensable element of building an 
ever  closer  Union, 
just  as  a  well 
developed social system is both necessary 
and  desirable  in  each  individual  Member 
State.  European  social  policy  must serve 
the  interests of the  Union as  a whole  and 
of all its people,  both those in employment 
and 
is 
those  who  are  not.  There 
widespread  agreement that  these  shared 
values have to be preserved,  even if quite 
radical changes are required in the way in 
which  they are  applied  in  practice. 

This 

the  growth 

they  can  deliver. 

is  essential  because 

5. 
the 
efficiency  of  our  societies  as  a  whole 
conditions  how  competitive  they  may  be 
If 
and 
economic  growth  is  to  increase  human 
well-being,  it  must  also  take  into  account 
concerns. 
social  and  environmental 
Equally, 
the  pursuit  of  high  social 
standards  should  not  be  seen  only  as  a 
cost  but  also  as  a  key  element  in  the 
these 
competitive 
essential  reasons  that  the  Union's  social 
to 
policy  cannot  be  second  string 
the 
economic  development  or 
functioning  of the  internal market.  Growth 
in  the  numbers  of  the  poor  and  of  the 

formula. 

for 

to 

is 

It 

unemployed,  the  possible  emergence  of 
an  .underclass,  increasing  pressures  on 
social  services  (eg, ··unemployment  and 
health services) and increasing criminality 
all  drain  the  resources  available.  The 
financing  of  social  security  now  poses 
major challenges for all Member States. In 
the Union, increased confidence can come 
··only 
reconciliation  between 
their 
economic  growth  policies  and 
translation into higher social development 
with  upgraded  living  standards  for  all. 
Knowing  that this  may give  the  Union  its 
competitive edge will also equip the Union 
to  have  a  stronger  external  influence  on 
the world  stage. 

from  a 

6. 
This  White  Paper  seeks  to  set  out 
the  Commission's  approach  to  the  next 
phase of social policy development (1995-
9)  during the final  years  of this  century.  It 
provides  the  opportunity,  requested  by 
several  Member  States, 
for  the  other 
Union institutions, the Member States and 
all  other  interested  parties  to  discuss  the 
proposals  in  the.  second  half  of  1994, 
before the incoming Commission issues its 
definitive  work  programme  in  this  field  in 
the  course  of 1995. 

The  technique  of  using  a  Green 
7. 
Paper to  provide  a structured  opportunity 
for  consultation  on  policy  options  prior to 
the  elaboration  of  proposals  represents 
the 
one  of  many  examples 
Commission's determination to ensure that 
the  added-value  of  its  actions  is  widely 
appreciated  and  its  initiatives  transparent 
to  the  public. 

of 

8. 
The  Commission  is  encouraged  by 
the  fact  that  there  was  a  wide  ranging 
debate within  Member States and beyond 
on 
the  Green  Paper.  The  European 
Parliament  and  the  Economic  and  Social 
Committee  examined the  text  and  issued 
their opinions  on  it,  and  in  all,  more  than 
500 reactions  have  been  received  from  a 
wide variety of sources. At the invitation of 
the Commission, the European Foundation 

3 

for the Improvement of Living and Working 
Conditions has prepared a synthesis of the 
different  submissions.  This  synthesis  -
together with the responses received from 
the·  Member ..  States  and 
the  Union 
is  published  as  an 
Institutions 
accompanying volume to this White Paper. 

9. 
The  Commission's  White  Paper  on 
Growth,  Competitiveness  and 
Employment2 and the European Council's 
conclusions  about  it  (December  1993, 
Brussels)  marked  a  turning  point  in  the 
development of concerted Union action to 
tackle European employment problems as 
part  of  a  broader  economic  strategy. 
It 
raised a number of fundamental questions 
which 
··future 
development of social  policy,  notably that 
competitiveness  is  crucial  for  wealth  and 
job  creation  and 
labour  market 
policies in particular need to be reoriented. 
The principles set out in  the  White  Paper 
the 
need 
formulation  of future  Union  social  policy, 
as  do 
the  Union's  macro-economic 
guidelines. 

to  be  borne 

in  mind 

central 

that 

are 

the-

to 

in 

10.  The  White  Paper  and  the  Green 
Paper have therefore provided a valuable 
complementary focus  in  the debate about 
the  need  to  create  more jobs  and  at  the 
same  time  preserve  the  basis  of  social 
protection  which  the  people  of  Europe 
have  come  to  prize.  The  two  documents 
have  been  considered  together  in  the 
drafting  of  this  V\lhite  Paper,  in  the  light 
the 
moreover  of 
European Councils adopted in  Brussels in 
December  1993  and  Corfu  in  June  1994, 
and this White Paper seeks to facilitate the 
implementation  of the  action  plan  agreed 
at  the  Brussels  European  Council,  in  the 
context  of the  future  development  of the 
Union's  social  policy. 

the  conclusions  of 

11.  The  issuing  of  this  White  Paper  6 
months 
forthcoming 
enlargement  of the  Union  in  1995  is  also 
designed to facilitate the  entry of the  new 

prior 

the 

to 

members into the Union on  the  basis of a 
clear  overall  vision  of  the  future.  As  the 
Green  Paper  made  clear,  the  Union  has 
already  developed  a  substantial  "acquis" 
of measures in  the  social field,  stimulated 
in particular by the adoption in 1989 of the 
Community  Charter  of  the  Fundamental 
Social  Rights  of  Workers  and 
the 
·Commission's  subsequent  social  action 
programme.  This paper is  intended to  set 
out  how to  build  a  dynamic  link  between 
the  existing  "acquis"  and  the  agenda  for 
the future. 

8  - GUIDING  PRINCIPLES  AND  OBJECTIVES 
FOR  THE  FUTURE  ROLE  OF  THE  UNION 

12.  Social progress can be achieved only 
through a cooperative partnership between 
the  European  Union,  the  Member States, 
the social partners and European citizens. 
The  key  to  this  must  be  a  positive  and 
active  conception  of  subsidiarity.  This 
means  that  the  Union  shall  take  action 
only  if,  and  in  so  far  as,  the  objectives 
cannot be sufficiently achieved by or within 
the  Member  States  themselves  and  can, 
therefore, by reason of the scale or effects 
of the proposed action, be better achieved 
by the Union. Activities should be selected 
on the basis of prior appraisal and should 
yield a Union added value while achieving 
maximum  cost  efficiency. 

13.  Achieving  a  Europe  of opportunities 
for all requires change.  V\lhile employment 
growth  in  the  European  Union  has  been 
weak as compared with the United States 
and Japan,  levels of social solidarity have 
been higher.  But such solidarity has been 
mainly  passive. 
to 
It 
maintaining the incomes of large groups in 
- by  providing  cash  benefits 
society 
through 
income, 
the 
shouldered  to  a  large  extent  by  an  ever 
- without 
declining  active  population 
preparing 
them 
sufficiently 
to  economic 
activity. 

them  or  encouraging 
to  contribute 

redistribution  of 

is  devoted 

14.  The resources transfer now has to be 
gradually supplemented and substituted by 
a  better  distribution  of opportunities.  The 
two  objectives  are  closely  linked,  but  the 
accent  has  to  be  shifted  to  the  second  if 
the  human  and  social  costs  of  the 
structural changes are to be reduced,  and 
a  shift  from  a  passive  to  a  more  active 
approach achieved.  The accent has to be 
shifted from  the objective of assistance to 
the  objective of employment generation. 

15.  The  principles  and  objectives  which 
should  inspire  the  action  of the  Union  in 
achieving  this  are: 

Social  and  economic 
employment is the key 

integration: 

and 

poverty 

16.  Unacceptably  high 
levels  of 
social 
unemployment, 
exclusion  are  in  conflict  with  the  Union's 
commonly  agreed  goals  in  relation  to 
employment,  social  protection  and  equ-al 
opportunities.  The 
financing  of  social 
policy systems across the Union depends 
on  jobs.  For the  Union  to  reconcile  high 
the  capacity  to 
social  standards  with 
compete  in  world  markets,  it  is  therefore 
necessary  to  give  the  highest  priority  to 
creating  new  jobs,  enabling  everyone  to 
integrate  into the  economy and  society. 

Competitiveness and social progress: 
two sides of the same coin 

17.  Continuing  social  progress  can  be 
built  only  on  economic  prosperity,  and 
therefore  on  the  competitiveness  of  the 
European  economy.  The  key  to  this  is 
continuing  productivity  gains,  which  will 
enable  the  Union  to  reconcile  high  social 
standards with the capacity to compete in 
global  markets.  Europe  needs  to  move 
quality-based 
efficient, 
towards 
economy with a high rate of investment in 
new  technologies.  The  key  resource  will 
be  a  well-educated  and  highly  motivated 
and  adaptable  working  population.  V\lhile 
is  essential  for  social 
wealth  creation 

an 

4 

progress, the social environment is also an 
essential  factor  in  determining  economic 
founded 
growth.  ··Progress  cannot  be 
simply on the basis of the competitiveness  · 
of economies,  but also on the efficiency of 
European  society  as  a·  whole. 
In  this 
context, account also needs to be taken of 
the  linkages  between  environmental  and 
··social  poficies. 

Convergence which respects diversity 

18.  All  the  comments  on  the  Green 
Paper  stress  the  need  to  respect  the 
diversity of European societies. The future 
development of the  Union needs to  build 
on the richness of its diversity, which adds 
to  the  quality  of ·life  and  to  the  vigour  of 
socio-economic  systems  in  the  face  of 
new  and  unforeseen  challenges.  This 
diversity means that total harmonisation of 
social  policies  is  not  an  objective  of  the 
Union. However, the convergence of goals 
and policies over a period of time by fixing 
common  objectives  is  vital,  since  it  will 
perm it 
the  co-existence  of  different 
national  systems  and  enable  them  to 
the 
in  harmony 
progress 
fundamental  objectives of the  Union. 

towards 

level  playing 
A 
minimum standards 

field  of  common 

should 

not  over-stretch 

19.  Minimum  standards  are  needed  to 
the  cohesion  of  the  Union, 
preserve 
having regard to differing national systems 
and  needs,  and  to  the  relative  economic 
strengths of the  different Member States. 
They 
the 
economically weaker Member States,  and 
the  more 
they  should  not  prevent 
from 
developed  Member  States 
implementing  higher  standards.  The 
establishment  of  a  framework  of  basic 
m1mmum 
the 
Commission  started  some  years  ago, 
provides  a  bulwark  against  using  low 
social standards as an instrument of unfair 
economic  competition  and  protection 
against reducing  social  standards to  gain 

standards,  which 

5 

the ·  political  will 

competitiveness, and is also an expression 
of 
the 
momentum  of  social  progress.  The 
continuing  aim  should  be  to  develop  and 
improve standards for all the  Members of 
the  Union. 

to  maintain 

C - THE  INSTRUMENTS  FOR  ACTION 

In seeking to put these principles and 
20. 
objectives 
the  Union 
into  practice, 
intervenes  in  a  variety  .of  different  ways, 
which are often but not always interactive, 
and  which  must  be  deployed  in  a  policy 
mix 
to  meet 
changing  needs. 

that  constantly  evolves 

Legislation  and  Community-level 
collective agreements 

21.  The  Treaties  provide  for  a  range  of 
legislative  powers  to  achieve  common 
goals.  These  powers  are  exercised  in 
the  principles  of 
accordance  with 
subsidiarity  and  proportionality,  which 
require  an  assessment  of both  the  need 
for and the intensity of action at the Union 
level.  This  implies  that  the  Union  would 
propose 
the  form  of  legislation  most 
compatible with  the  aims  to  be  achieved. 
It  requires  the  Union  to  respect  Member 
States' choices about how to achieve their 
goals,  and  equally the  Member States  to 
respect  Union-wide 
and 
standards. 

objectives 

22.  Given  the  solid  base  of  European 
social  legislation  that  has  already  been 
achieved,  the  Commission  considers that 
there  is  not  a  need  for  a  wide  ranging 
programme of new legislative proposals  in 
the  coming  period.  Legislation  will  be 
considered only when strictly necessary to 
achieve  the  objectives  of the  Union  and 
when  the  issues  addressed  cannot  be 
solved at Member State level.  Proposals 
and adopted legislation should continue to 
seek to  promote  a framework  in  order to 
allow  for  the  diverse  national  systems  to 
determine  detailed  methods  of 

implementation,  and  will  be  preceded  by 
an  evaluation  of the  economic and  social 
to  all  concerned. 
costs  and  benefits 
Proposals  will  also  take  account  of  the 
potential impact on the competitiveness of 
industry,  with  particular  regard  to  the 
needs of SMEs. 

that 

explained 

-23.  The- Agreement  on  Social  Policy 
introduced  by  the  Treaty  on  European 
Union  provides  a  new  basis  for  Union 
action, and the Commission intends to use 
both  this  and  the  other Treaty  provisions 
to  ensure  a  dynamic  social  dimension  of 
the  Union.  The  Commission's 
Communication  on  the  application  of the 
Agreement 3 
the 
Commission  intends to  decide  on  a case 
by  case  basis,  in  the  light  of  objective 
criteria,  when  it  should  make  use  of the 
Agreement. This Communication has now 
been examined  in  the  other institutions of 
the  Union,  and  the  approach  it  proposes 
has  been  broadly  welcomed  by  all 
concerned.  The  Commission  has  noted 
the  strong  desire  of all  Member States to 
proceed  as  12  wherever  possible  and  it 
hopes that Union social policy action will in 
the  future  once  again  be  founded  on  a 
single  legal  framework.  This  is  vital  if the 
integrity  of  the  law  and  the  principle  of 
equal opportunities for all in the Union are 
to  be  upheld.  However,  the  desire to act 
as  12  cannot  be  used  as  an  excuse  for 
standing  still. 

24.  Given the new possibilities which the 
Treaty  on  European  Union  opens  up  for 
collective  agreements,  it is  also  clear that 
a  new  balance  needs 
to  be  struck 
between the legislator at Community level 
and  collective  agreements  between  the 
social  partners, 
the 
European  and  national  levels  for  such 
normative actions. 

and  between 

Financial support and incentives 

25.  The  Union  also  provides  financial 
support  to  achieve  its  objectives.  The 

Structural Funds represent the main Union 
instrument  for  promoting  cohesion  within 
the 
the  Union.  Action,  especially  ·by 
European  Social  Fund,  will  be  developed 
in  an 
integrated  and  comprehensive 
approach (see Chapter II). Most aspects of 
social  policy  are  affected, 
including 
combating  unemployment  and  exclusion, 
promoting equal opportunities,  supporting 
the integration of young people,  promoting 
the  mobility  of  workers  and 
their 
adaptation to industrial change, and, in the 
lagging  behind,  strengthening 
regions 
education, 
technology 
science  and 
services and training for the health sector. 
In  addition, 
the  Union  -also  provides 
financial  support  to  many  valuable  pilot 
projects  and  programmes  in  the  social 
field,  and  promotes  the  exchange  of 
through 
experience  and 
programmes  such  as  LEONARDO  (see 
Chapter II). 

information 

Mobilisation and cooperation 

in 

the 

26.  The  Commission  has  a  role  in  the 
mobilisation of efforts to achieve common 
goals within an agreed framework,  leading 
to  the  convergence  of  objectives  and 
policies,  such  as 
fields  of 
employment  and  social  protection.  The 
Commission  recognizes  that  there  is  a 
need  for  better  synergy  between  the 
Union's  efforts  and  those  of the  Member 
States,  and  for  more  cooperation  and 
concentration  of the  action  involved.  For 
this  mobilisation role  to  be  effective,  it will 
increasingly  be  necessary  to  define  the 
agreed  goals  with  more  precision, 
including 
the  definition  of  quantitative 
targets when appropriate, and for Member 
States  to  take  action  to  meet the  agreed 
objectives.  A  clear  example  of  such 
mobilisation  has  been  provided  by  the 
Commission's  VVhite  Paper  on  Growth, 
Competitiveness  and  Employment. 

27. 
It is  also necessary to  promote more 
and  better  structured  cooperation  and 
exchange  of  experience  on  matters  of 

6 

common  concern,  which  may be  decided 
by the Member States according to  need, 
and for which the Commission can usefully 
provide 
framework  and - technical 
the 
underpinning. 

28.  Furthermore,  social  policy  depends 
for its success on  a wide variety of actors 
·and  organizations  especially  at  loca1  and 
regional  level.  The Commission will assist 
to  establish  stronger 
these  groups 
cooperation  via  networks  across 
the 
Union,  or  parts  of  the  Union,  and  to 
stimulate their contribution to achieving the 
goals  of  the  Union,  especially  through 
actions  which  are  both  innovative  and 
cross-national. 

Information 

29.  The provision of clear and accessible 
information on developments in the social 
field  is  essential  if social  policy is  to  have 
a  real  impact on  people's  everyday  lives. 
The  _Commission  will  therefore  seek  to 
provide  more  and  better  information  to 
European  citizens  concerning  their  social 
rights and opportunities and developments 
in  the  social  sphere,  to  help  achieve 
transparency and better understanding of 
In  addition  to  the 
the  Union's  actions. 
specific proposals elsewhere in this V\lhite 
Paper (particularly Chapters IV and X), the 
Commission will also seek to enhance the 
in  the 
role  of  its 
Member  States 
the  provision  of 
information  in  the  social field. 

Information  Offices 

in 

Analysing future trends 

It 

is 

that 

issues. 

range  of 

30. 
the 
increasingly  clear 
process  of  change  requires  collective 
reflection and coordinated action across a 
whole 
Important 
questions  are  being  raised  about  the 
future  of work  itself,  and  the  impact  that 
the  Information  Society will  have on  work 
and on people's everyday lives.  Examples 
of this include changes in the organisation 
of  time,  the  balance  between  work  and 

leisure,  and  the  social  consequences  of 
changes  in  different  work  sectors  as  the 
-and 
boundaries  ···between  work 
qualifications become increasingly--blurred. 
The  process  of managing  these  changes 
will  need  to  be  taken  forward  in  synergy 
with  the  social  science  elements  of  the 
Union's  research  programme,  and  the 
Commission  will  seek 
its 
medium  term  research  capacity  in  the 
social field. 

to  develop 

31.  The various Observatories which the 
Commission  operates  in  the  social  field4
, 
in  collaboration  with  the  Member  States, 
provide  a  valuable 
instrument  for  the 
collection,  analysis  and  dissemination  of 
information,  a function which  is  becoming 
increasingly important in  view of the need 
the  rapid 
to  understand  and  assess 
changes currently taking  place in  the field 
of  social  policy,  especially  in  the  labour 
market.  This  information  is  an  important 
element of the policy formulation process. 
The  Commission  will  also 
the 
Observatories  to  produce  accessible  and 
informed  analyses  of  specific  problems, 
and  will  promote  a  greater  synergy  and 
interplay  between 
the  different 
Observatories,  so as to develop a greater 
capacity  for  inter-disciplinary  analysis  of 
social  policy  issues. 

.use 

to  develop 

32. 
In  this  context,  the  Comrn ission  will 
its  sectoral 
also  continue 
reports, such as the annual Ernpl<Jyrnent in 
Europe  Report  (Chapter  I),  the  proposed 
annual  Equality  Report  (Chaptor  \/),  the 
annual report on demography (Chapter VI) 
and  the  Social  Protection  report  (Chapter 
VI)  to  provide a forward  looking  analytical 
underpinning  to  its  work  in  the  social 
policy field. 

33.  Furthermore,  the  Comrni~sion  will 
also  keep  under  review  the  role  of  the 
relevant agencies, especially the European 
Foundation for the  Improvement of Living 
and Working Conditions and the European 
In 
Agency 

for  Health  and  Safety. 

(3) 

7 

particular,  building on ·its work to -date,  the 
European Foundation for the Improvement 
of Living  and  Working  Conditions  has  an 
important role to play in analysing the key  . 
developments  and 
factors ..  of  . change ...... 
concerning living and working conditions in 
the Union.  In this context, the Foundation, 
taking  account  of  its  tripartite  structure, 
.. can  play  an  essential 
the 
information  and 
dissemination  of 
exchanges  of experience. 

role 

in. 

links  with 

to  exploit 

the  Foundation  and 

34.  The Commission will seek to improve 
its 
to 
rE;!inf orce  cooperation  for . the  future  in 
the  .... specific 
order.... 
. contribution th~t the Foundation can make. 
In particular, the Foundation will be invited 
by  the  Commission  to  develop further  its 
capacity  for  comparative  analyses  and 
promoting  exchanges of experience. 

fully 

8 

I -

Joas - THE  TOP  PRIORITY 

1. 
The pursuit of more good,  stable jobs 
is both a central objective of the Union and 
a  means  of  addressing  more  effectively 
many of the Union's wider social objectives. 
To this  end,  employment  policies  need  to 
·adapt.  For too  long,  Europe  has focused 
on  the  management  of  unemployment 
instead of promoting job creation as the top 
priority. 

A - UNION  EMPLOYMENT  INITIATIVES 

-

throughout 

Unemployment  in 

from 
they  are 

2. 
the  Union  now 
stands at  11 %  and  has  averaged  close  to 
10% for a decade.  It is seen as the gravest 
social  problem 
the  Union. 
Special  concern  focuses  on  the  lack  of 
prospects  for  new  entrants  to  the  labour 
young  people  and  women 
market 
those  who  have 
especially  - and  on 
regular  work 
become  excluded 
particularly  when 
long-term 
unemployed.  Overall  EU  employment 
performance is markedly worse than in the 
US  or  Japan.  The  Union's  employment 
rate  has  declined  steadily since  1960 and 
is  now  less  than  60%  of the  working-age 
population while that of the US has steadily 
increased  to  over  70%.  EU-wide  youth 
unemployment  stands  at  over  20%  for 
example,  as  against  13%  in  the  US  and 
5%  in  Japan.  The  share  of  long-term 
unemployment  stands  at  over 40%  of the 
total  in  the  EU,  but  11 %  in  the  US. 

to 

Policy initiatives within the Union with 
3. 
regard 
employment  have  been 
developing  progressively  over  the  past 
year, reflecting the shared preoccupation of 
all  Member  States  to  find  new  ways  of 
creating  and  preserving  employment. 
In 
May  1993,  the  Commission  proposed  an 
Employment Framework Initiative which set 
out  the  basis  of  a  concerted  strategy  for 
employment. The major step forward came 
in  December  1993 with  the  Commission's 
White  Paper  on  the  interrelated  issues  of 

9 

Growth, Competitiveness and Employment, 
which developed that employment strategy 
in the wider economic,  industrial and social 
context of Union.  The  Union strategy was 
endorsed  by  the  European  Council  at 
Brussels  in  December 1993. 

4.  Member States now all recognise that 
dynamic  structural  changes,  as  well  as 
stronger  economic  growth  and  increased 
labour  market 
flexibility,  are  urgently 
needed  if the  Union  is  to  break out of the 
low employment,  high unemployment trap, 
and to broaden access to work and spread 
income more widely.  It is  also recognised 
that 
partnerships  between 
national,  regional  and  local  levels  and 
between different actors of society - and at 
Union  level  - are  necessary  in  support  of 
that  strategy,  and  in  support  of the  wider 
development of the  Union  labour market. 

stronger 

The  European  Council  in  Brussels 
5. 
identified  seven  areas 
for  particular 
attention by the Member States in its action 
plan resulting from the Commission's White 
Paper: 

(i) 

(ii) 

(iii) 

(iv) 

especially 

training 
continuing 

improving  education  and 
systems, 
training; 
improving flexibility within enterprises 
and  in  the  labour market; 
the 
enterprise  level; 
targeted  reductions  in  the  indirect 
(statutory 
costs  of 
labour 
contributions),  particularly  of 
less 
skilled  work; 

reorganisation  of  work  at 

(v)  better  use  of  public  funds  set  aside 
for combating  unemployment; 
(vi)  specific  measures  concerning  young 
people without  adequate training; 
(vii)  developing employment in connection 

with  new requirements. 

Progress to date 

The report presented to the Council in 
6. 
June  1994  summarizing  follow-up  to  the 
V\lhite  Paper, 
indicates  that  almost  all 
Member States have undertaken reforms of -
their employment systems in  recent years. 
The  Commission  considers  that,  although 
·action  is -under way  in  Member States  on 
each  of the  7  aspects,  it  clearly  does  not 
yet go far enough to meet the employment 
challenge  of  the  1990s  and  the  next 
century. 

7.  Over the  past  months  the  economic 
outlook  for  the  Union's  economy  has 
forecasts 
improved.  Present  growth 
suggest  that  output  growth  in  the  Union 
could  rise  to  3  percent  or  more  in  1996. 
Employment,  however,  is  still  expected  to 
decrease in 1994.  The unemployment rate 
is  expected  to  stabilize  only  in  1995,  at  a 
jobless total of 18 million or some 11.6% of 
the labour force. As the VVhite Paper urged, 
economic policies  must remain  on  a  long 
term  basis  resolutely  oriented  towards 
creating jobs,  both  by promoting  a  strong 
and employment-creating growth  process, 
by  encouraging  active 
labour  market 
policies  and  by  improving  access  to  the 
labour market,  particularly for the  young. 

rather 

8. 
Increased  economic growth  brings  a 
positive  and  welcome  improvement to  the 
However,  as 
employment  climate. 
recognised  at  Corfu  by  the  European 
Council,  there is  a danger that it may offer 
an  illusion  of relief from  the  pressures for 
structural  change, 
than  being 
harnessed  to  work  systematically towards 
the  changes 
that  better 
required 
economic  environment.  There  is  thus  a 
risk that,  in  the  absence  of new structural 
measures  for  creating  more  employment, 
labour 
growth  will.  not  become  more 
intensive,  and  that  the  effect  of  existing, 
pre-V\lhite  Paper,  structural  reforms  will 
only  be  sufficient  to  compensate  for  the 
from 
increase 
policies aiming at increasing efficiency and 

in  productivity  resulting 

in 

10 

competitiveness.  The  implementation  of 
policies outlined  in  the employment part of 
the  VVhite  Paper  is  thus  fundamental  for 
making  growth  more  labour-creating,  and 
for  ensuring  that 
the  benefits  of  such 
growth are  directed towards  more jobs. 

9. 
The V\lhite Paper stresses the need to 
widen  considerably  access  to  work,  to 
widen  the  concept  of work,  and  to  build  a 
new solidarity based  on  using  productivity 
gains  to  create  new  jobs  rather  than 
increase incomes of those  in  employment. 
In  particular, 
it  underlines  the  need  to 
ensure  that  progress  in  achieving  equal 
opportunities is further pursued, particularly 
in  view of the  increased participation  rates 
of women,  changing  family  structures  and 
roles,  and  the  need  to  maximise  the 
the  Union's  human 
potential  of  all 
resources.  Much more attention  needs to 
be  focused  on  new  jobs  and  the  most 
promising  sectors for employment  growth. 
The VVhite  Paper also focused on the need 
for  a  new sustainable  development model 
based  on 
incorporation  of 
environmental  costs  in  market prices. 

the 

10. 
It  is  important to  ensure that,  as welf 
as  supporting  high  productivity  jobs,  the 
Union maximises its ability to generate and 
sustain jobs  at  other levels,  particularly  in 
the unskilled, semi-skilled and personal and 
This  will  require 
local  services  fields. 
the 
addressing 
and 
acknowledging 
instabilities  inherent  in  rapid  change  and 
global  competition  through  a  range  of 
related measures,  including the integration 
of  macro-economic  policy  with  an  active 
structural development policy accompanied 
by labour market measures.  This will help 
to  make  the  European  economy  more 
terms  of  employment,  and 
effective  in 
enable 
the 
to  make 
opportunities  offered  by  liberalisation  in 
areas  such  as  the  telecommunications 
sector and technological progress in areas 
like 
and 
the 
biotechnology. 

Information  Society 

full  use  of 

it 

11.  All  Member  States,  in  their  different 
ways,  are seeking to introduce changes to 
their  labour  market  policies,  directly  or 
indirectly  related  to  the  White  Paper's 
suggestions.  The  Wlite  Paper  has  been 
carefully  examined  as  a  valuable  point  of 
reference  in  all  Member  States,  including 
by  social  partners  at  national 
level. 
·"However;  the  urgent  need  for  collective 
reflection and coordinated action across the 
whole range of policies affecting the broad 
employment environment has not yet been 
realised.  A fragmented approach persists, 
with  old  and  complex  national  regulations 
still  in force  in  many Member States.  The 
reforms 
the  employment  systems 
adopted  so  far  often  appear  incomplete 
and  it  is  difficult  at  this  stage  to  assess 
their  wider  impact.  Most  Member  States 
now recognise,  however, the need to build 
the long-term social consensus in favour of 
structural  changes  especially  where  they 
affect  people's 
and  working 
conditions. 

living 

in 

12.  Member  States  generally  recognise 
also that this search for consensus implies 
that  greater  labour  market  efficiency  and 
long-run  competitiveness  is  to  be  sought, 
not  through  a  dilution  of  the  European 
model of social protection,  but through the 
adaptation, rationalisation and simplification 
of regulations,  so  as  to  establish  a  better 
balance 
protection, 
competitiveness and employment creation. 

between 

social 

Increased 

13. 
labour  market  flexibility 
means  different things  to  Member States, 
and needs to be analysed carefully,  as the 
term  deregulation 
is  often  used  with 
differing  connotations.  The  starting  point, 
for most Member States,  is a large body of 
laws, 
regulations  or  collective 
arrangements.  Their ending point, in terms 
of the nature and scale of change required, 
is,  therefore,  likely  to  differ widely  - even 
after  substantial  review  - particularly  in 
terms  of the  degree  of,  and  approach  to, 
In  analysing 
change  in  social  protection. 
these  developments,  differences  between 

Member States have to  be taken  carefully 
into account. 

the 

14.  Most Member States stress the need 
for  a  more  dynamic  contribution  from  the 
social partners at local and sectoral levels, 
and  a  stronger partnership  between  them 
and  public  authorities  at  those  levels.  At 
national 
level,  some  Member  States 
importance  of  building 
recognise 
greater  complementarity  between  public 
policy  and  contractual  negotiations.  At 
Union  level,  discussions  with  the  social 
partners  have  continued  within 
the 
framework  of  the  social  dialogue,  with  a 
particular 
·White  Paper 
The  Council's 
employment 
Standing  Committee  on  Employment-has 
also discussed issues of work organisation 
and  working  time  in  a  positive way. 

issues. 

focus 

on 

and 

acceptance 

15.  Among  the  social  partners,  positive 
attitudes  - reflected  for  instance  in  certain 
agreements  - co-exist  with  reticence  to 
accept  the  change  necessary  to 
take 
account of the interests of the unemployed. 
The  need  for  far-reaching  reform  of  the 
employment  systems  has  yet  to  become 
Greater  public 
generally  accepted. 
awareness 
that 
adjustments  in  the  short-term  are  needed 
for  the  creation  of  more  jobs  will  be 
necessary  to  ensure  the  adoption  and · 
implementation  of  these  reforms.  Major 
political difficulties have been encountered 
by  governments  seeking 
to  undertake 
reforms  in  this  sense.  Resistance  from 
those who feel  threatened  by the  changes 
is  not compensated  by any obvious public 
those  people  who  would 
support  from 
largely 
benefit  .  most,  but  who  are 
the 
disenfranchised  or  excluded 
labour market at present. 

from 

16.  The need to alter fundamentally,  and 
update,  the  structure  of  incentives  which 
influence  the  labour  market  is  still  not 
adequately  recognised. 
Co-operation 
across  Ministerial  boundaries  within 
the  development  of 
Governments 

in 

11 

if 

be  needed 

policies  needs to  be  given  greater priority. 
Further  organisational  and  administrative 
changes  will 
the 
implementation of the White Paper strategy 
is to be pursued effectively.  In this context, 
some  Member  States  have  developed .or 
are  in  the  process  of  setting  up,  inter 
ministry action  on  specific subjects.  Also, 
·most are already decentralising the delivery 
training) 
of 
measures as part of a move towards more 
active  targeting  of those  at  risk  especially 
the  long  term  unemployed.  Some  are 
seeking to integrate and combine services 
at 
instead  of  the 
level 
previously  fragmented  range  of  services 
available.  These different changes need to 
be  given  further  impetus  and  to  be  linked 
within  a global  effort. 

labour  market 

local/regional 

(including 

in  exploiting 

17. 
In redesigning policies and systems it 
will  be  important  to  develop  the  added 
value  of  Union-wide  action,  and  mutual 
the  diversity  of 
support, 
Member State experiences.  This  requires 
careful  examination  of  the  efficiency  of 
in  achieving 
different  national  systems 
It  means  looking 
employment  objectives. 
at 
to  "pick  and  mix" 
the  possibilities 
different  elements  of  policy  and  good 
practice from  different nationa: systems.  It 
also  means 
increased 
compatibility  between  Member  States' 
systems,  so  as  to  ensure  that they do not 
develop  in  ways which conflict with overall 
Union employment objectives or standards, 
distort  conditions  of competition,  or inhibit 
the  development  of  free  movement  of 
people within  the  Union. 

the  pursuit  of 

18. 
In  this  respect,  the  increased  co 
operation between the Member States and 
the  Commission  with  regard  to  the  follow 
up to the VVhite  Paper is  encouraging,  but 
to  be  pursued  much  more 
will  need 
systematically during the  coming  years. 

8  - THE  FUTURE  ROLE  OF  THE  UNION 

19.  During  the  second  half  of  1994," the 
Commission,  in  close consultationwith the 
Member  ·States,  will  prepare  a  more 
specific  action  plan  at  the  level  of  the 
Union and of the Member States.  This will 
be  directed  in  the  short  term  at  reversing 
the trend of unemployment and,  by the end 
of  the  century,  significantly  reducing  the 
numbers of unemployed.  This action plan 
is  to  consist  of : 

(i) 

(ii) 

identified  by 

the  general framework concentrating 
on  fixing  more  specific objectives for 
the 
implementation  of  the  seven 
the  Brussels 
points 
European Council, leaving to Member 
States  the  choice  of means; 
specific  accompanying  measures  to 
be coordinated or adopted at the level 
of the  Union;  and 

closer 

(iii)  a  monitoring  procedure  underpinned 
cooperation  between 
by 
Member  States  on  employment 
issues  and  by  the  intensification  of 
of 
the 
information  and  best practices. 

of  exchange 

process 

This  framework  will  have  to  draw  on  the 
assessment of progress  carried  out so far 
and seek to exploit successful experiences, 
and should have as one of its objectives to 
the 
support,  and 
obstacles to,  the adoption of the necessary 
reforms  in  the  Member States. 

to  help  overcome 

20.  The  action  plan  will  be  proposed  for 
adoption  by  the  European  Council  at  its 
meeting in  Essen in  December 1994.  The 
European  Council  held  at  Corfu  in  June 
had an in-depth discussion on the different 
elements  of the  action  plan,  and  placed  a 
particular emphasis on the encouragement 
of  reforms  in  Member  States  intended  to 
improve 
the  efficiency  of  systems  of 
employment  and  on  specific  measures  to 
fully  exploit  the  employment  potential  of 
small  and  medium-sized enterprises. 

12 

Support for Member State  policies and 
measures 

• 

21.  The  Commission  will  continue 
to 
encourage the Member States to fellow up 
systematically  the  different  suggestions 
made  in  the  White  Paper  on  Growth, 
Competitiveness  and  Employment.  As  a 
·further contribution to the  pooling  of ideas 
between  Member States,  the  Commission 
its  annual 
will 
Employment 
the 
employment situation in  1994 in  the  Union 
and  will  sponsor  a  second  European 
Employment Week in  November 1994. 

in  Europe  report  on 

shortly  be 

issuing 

strengthen 
its  Employment 
Observatory system  and data  bases 
on 
labour  market  measures - in 
cooperation  with  the  Member States, 
and work with  the  Member States,  in 
particular  by  developing  better,  and 
to  date  comparative 
more  up 
statistics 
structure  of 
employment; 

the 

on 

• 

consolidate 
the  European 
Employment Service (EURES), set up 
to  inform,  counsel  and  place  job 
seekers across Europe (see  Chapter 
IV). 

further 
to 

In the meantime, the Commission will 
22. 
to 
its  own  capacity 
develop 
contribute 
the  development  of  the 
Union's  medium  term  employment  plan, 
and  to  strengthen  its  cooperation  in  this 
field with  Member States.  To this  end,  the 
Commission proposes to  : 

In  this perspective,  the  Social Affairs 
23. 
Council is called upon to play a pivotal-role, 
linking  with  other  ministerial/sectoral 
to 
Councils,  notably  ECOFIN,  so  as 
contribute 
to  proposals  and  measures 
which  have  a  much  more  significant 
impact. 

• 

• 

• 

strengthen  its  existing  co-operation 
with  Member  State  authorities 
-
the  Directors-General  of 
notably 
Employment 
regarding  policy 
development,  and to  present regular 
reports 
the 
Commission's  "tableau  de  bord"  of 
comparative 
the 
progress  of  the  Member  States  in 
following up the action plan agreed at 
the  Brussels Summit; 

information  on 

forward 

taking 

24.  The 
social  partners  will  be 
encouraged  to  intensify  their  cooperation 
within the framework of the social dialogue 
both  at  an 
at  European 
level, 
interprofessional and  sectoral  level. 
It will 
be  necessary to  invite  them  to  review  the 
efficiency of the existing machinery for this 
to 
purpose, 
addressing 
the 
the 
unemployed  (see Chapter VIII). 

concerns  of 

in  particular 

relation 

in 

develop  Union-level  co:...operation 
between all Directors-General whose 
responsibilities  concern  or  affect 
employment - including Employment, 
Social Protection  and Education  and 
Training  Ministries; 

expand  the  policy  content  of  its 
in  Europe 
annual  Employment 
Reports and extend the policy debate 
in  its  annual  Employment in  Europe 
Conference ·to  assess  the  impact  of 
current  economic  policy  on 
employment; 

25.  The  Commission  will  continue  to 
monitor  employment  aids  to  ensure  that 
they are targeted on  priority needs and do 
not  distort  conditions  of  employment.  In 
addition, the Commission is also launching 
a  process  of  examining  the  impact  on 
employment  of existing Union and national 
legislation  on  employment  and 
competitiveness. 

26.  Small  and  medium-sized  enterprises· 
are universally recognised as being a major 
source  bf new employment.  The  creation 
of  new  SMEs  and  the  development  of 
existing  SMEs  is  therefore  crucial  in  the 

13 

search for new jobs.  Within the framework 
of  its  integrated  programme  in  favour  of 
SMEs the  Commission  is  therefore paying 
particular  attention 
to  --encouraging 
improvements  in  the  administrative  and 
legal  environment for  SMEs. 

• 

Support  for  successful  job  creation 
·policies and practices 

27. 
In  a  series  of  Resolutions  adopted 
since  1983,  the  Council  has  invited  the 
Commission  to  promote  the  exchange  of 
information  and  experience  about 
the 
development  of  policies  and  practices 
about successful job creation. experiences. 
With  the  active  collaboration  of  Member 
States  and  the  support  of  the  European 
Parliament,  the  Commission  has  set  up  a 
series  of  policy-centred  action  research 
activities  (ERGO,  LEDA,  SPEC,  LEI,  etc.) 
which  have  been  developed  alongside 
MISEP  (Mutual 
information  system  on 
employment policies)  and  are  designed to 
assist  the  rapid  transfer  of  good  practice 
and  know-how  between  all  kinds  of 
enterprise - small,  medium and large - and 
localities  ·- rural,  industrial  and  urban  -
across  the  Union.  During  1994,  these 
different  activities  are  being  carefully 
reviewed  by the Commission in  the light of 
the  priorities  set  by  the  VVhite  Paper  on 
Growth, Competitiveness and Employment, 
the  need  to  secure  value  for  money from 
Union-level  actions  and  to  streamline  the 
machinery  for  policy  interaction. 
The 
Commission will  present in  early  1995: 

a  Communication  rationalising  and 
the  existing  policy 
streamlining 
centred  action 
research  activities 
referred  to· above,  and  designed  to 
build  a  new  cooperative  framework 
for  closer  and  more  structured 
collaboration between Member States 
and  the  Commission  with  regard  to 
employment and labour market policy. 
Account has  also  to  be  taken  of the 
imminent launching of a series of new 
Community lnitiatives,notably ADAPT 
and  EMPLOYMENT,  as  well  as  the 
second  phase  of  other  Community 
Initiatives such  as LEADER. 

to 

locally-based 

28.  This  cooperation  will  be  designed  to 
complement  the  scope  and  thrust  of the 
Community Initiatives, and should  focus in 
.  particular on such issues as the emergence 
of  new  jobs,  the  contribution  of  different 
job  creation, 
kinds  of  enterprises 
promising 
initiatives  and 
partnerships,  the  switch  from  passive  to 
active  labour  market  measures,  and  the 
general encouragement of entrepreneurial 
activity  to  stimulate  the  creation  of  more 
SMEs.  It  will  also  consider 
initiatives  to 
foster 
the  entrepreneurial  activities  of 
women  in  the  labour  market  and  ways  of 
employment 
increased 
encouraging 
opportunities  for women  and  men  in  non 
traditional  occupations. 
thus 
underpin the systematic exchange of good 
feed 
practices  and 
the  results  of  its 
analysis 
the  overall  process  of 
into 
cooperation  in  this field. 

It  would 

14 

II  -

INVESTING  IN  A  WORLD  CLASS  LABOUR  FORCE 

1. 
Investment in  education  and  training 
is  now recognized  as  one of the· essential 
requirements for the competitiveness of the 
Union  as  well  as  for  the  cohesion  of  our 
societies.  This was one of the seven areas 
·identified-by the Brussels European Council 
in  its  action  plan  resulting  from  the  V\lhite 
Paper  on  Growth,  Competitiveness  and 
Employment. 

Building the  skill levels  of the present 
and future workforce 

to 

that 

times. 

their  official  responses 

the 
In 
2. 
Commission5
,  all  Member  States  have 
expressed  their  determination  to  improve 
the  quality  of their  education  and  training 
systems  to  better  meet  the  challenge  of 
long-term  competitiveness,  and to  provide 
the supply of a highly skilled· and adaptable 
workforce.  A  qualified  and  well-motivated 
corner-stone  of  a 
workforce 
is  a 
competitive  economy.  This 
is  vital  as 
individuals  will  in  future  have  to  change 
careers or jobs more frequently during their 
life 
All  Member  States  have 
underlined  the  need  to  sharpen  public 
awareness 
the 
qualifications and  skills of the present and 
future  workforce  is  as  indispensable  as 
investment in real capital.  Special concern 
has  been  expressed  by  some  Member 
States  about 
for  better 
coordination of the policies pursued by the 
Education  and  Employment  Ministries 
in  most  Member  States  have 
which 
overlapping  responsibilities  with  regard  to 
vocational 
close 
coordination  between  education  and 
vocational training systems, and closer ties 
with  research  and  development,  it  will  be 
impossible 
for 
individuals to build or add to their skills and 
qualifications throughout their life time. 

to  ensure  progression 

training.  Without 

investment 

the  need 

in 

3.  Most Member States emphasised the 
need  to  put  a  higher  premium  on  the 

15 

(4) 

importance of vocational qualifications, and 
to  place  them  on  a  par  with  academic 
qualifications  within  the  framework  of  a 
unified  national  system  of  certification  in 
place  of  existing  disparate  certification 
arrangements.  Most Member States stress 
importance  of  a  much  closer 
too  the 
association  of the  social  partners  with  the 
design,  management  and  delivery  of 
·training,  especially  at  local,  regional  and 
sectoral  levels.  All  agree  that  national 
qualification systems should be developed 
along  convergent,  but  not  harmonised 
lines,  at  the  level  of  the  Union  so  as  to 
underpin the free movement of persons on 
a transparent and  practical  basis. 

There  is  little  evidence  of  adequate 
4. 
special measures designed to eliminate the 
problem  of  basic  illiteracy  faced  in  n1ost 
Member States, as well as the lack of other 
basic  skills,  on  the  part  of  many  s_chool 
leavers.  These  unqualified  school-leavers 
inevitably  become  the  hard-core  of  the 
long-term unemployed. Virtually all Member 
States,  however,  have  taken  or  are  now 
taking  steps  to  ensure  that  all  young 
people are offered a sound,  broadly-based 
initial  vocational  training.  Member  States 
have  welcomed  the  Commission's  Youth 
Start  scheme  as  a  further  stimulus  to 
national  efforts.  Although  a  number  of 
measures  targeting  young  people  have 
been  introduced  in  many  Member  States 
over  the  last  few  years, 
the  range  of 
schemes  sometimes  make  it  difficult  to 
perceive how the individual is meant to find 
his or her way through the systems.  Some 
simplification.  and  streamlining  could  be 
useful  within  Member  States  and  lead  to 
greater transparency  and  comparability  of 
the 
systems 
different 
throughout the  Union. 

qualification 

5.  Most  Member  States  have  recently 
following 
committed  themselves  to  ·the 
priorities  designed to  : 

revitalise and extend the coverage of 
their  apprenticeship 
system, 
improving  quality  and  standards, 
including the work-based component; 

develop  further  the  bridges  between 
the  worlds  of  school  and  work, 
including  the  introduction  of  more 
opportunities for work experience and 
the·  introduction  of  credits  for  young 
people  (having  left  full  compulsory 
education)  to  choose  an  approved 
course; 

their 

arrangements 

review 
for 
vocational  guidance,  though  without 
to 
much  evidence  of 
examine 
links  between  such 
services  and  employmenUplacement 
services,  whether public or private; 

the  need 

the 

review  the  training  of  trainers  and 
instructors and  their qualifications; 

encourage  active  partnerships 
between 
and 
industry, 
two-way 
transfer of staff between institutions of 
higher education  and  companies; 

higher  education 
including 

the 

encourage  management  training  for 
potential entrepreneurs to improve the 
survival  rate  of new SMEs; 

improve  foreign  language  teaching 
and  encourage  a  spirit  of enterprise 
among  young  people  so  as 
to 
develop  skills  to  support job creation 
and economic development, including 
the  use  of technology  in  the  school 
curricula. 

So 

training 

far  as  continuing 

is 
6. 
concerned, 
all  Member  States  are 
concerned  to  improve  and  extend  access 
and participation and stress the importance 
of  in-company  training  with  appropriate 
vocational  assessment  of  employees  and 
also  to  strengthen  the  links  with  local  and 
regional  authorities  especially  in  terms  of 

forecasting skill needs and shortages. High 
priority  is  being  accorded  to  continuing 
training for the least qualified unemployed, 
and the creation of more incentives for this 
group.  These p9licies were given a useful 
stimulus  by the  Council  Recommendation 
adopted on  30 June  19936
•  Nevertheless, 
overall,  Member States  still  have  much  to 
do  to  create  a  transparent  and  dynamic 
system  of lifelong learning.  This must be a 
central  priority for the  Union. 

bargaining 

At European level, the representatives 
7. 
of the trade unions have offered to take up 
the  suggestion  made  in  the  Commission's 
'Nhite  Paper  on  Growth,  Competitiveness 
to  negotiate  a 
and  Employment  and 
collective 
agreement  .  on 
continuing  training  so  as  to  extend  access 
to  and  participation  in  continuing  training. 
This  could  build  on  the  previous  joint 
opinions  agreed  on  this  subject within  the 
framework  of the  social  dialogue.  At  this 
stage,  however,  UNICE  has  not  taken  up 
this offer.  The Commission will encourage 
and  support 
this 
subject,  recognising 
importance  of 
improving the motivation and quality of the 
workforce  as  a whole. 

further  dialogue  on 

the 

tax 

is  some  evidence  of  the 
There 
8. 
introduction  of 
financial 
relief  or 
assistance  through  loans  for  individuals 
paying  for  their  training,  and  also  to  help 
small employers to invest in developing the 
skills  of their employees.  There are  some 
signs 
the 
too  of  a  new  approach  to 
organisation  of working  life,  with  a  higher 
degree  of  alternation  between  work, 
training  and 
leave 
schemes  so  as  to  increase  job  rotation 
training  of 
under  which 
employees is  combined with job training of 
unemployed persons who are recruited as 
substitutes for those  on  training  leave. 

for  example, 

continuing 

leave, 

9. 
There  is  growing  evidence  of  the 
internal  flexibility  of firms  being  promoted 
training  efforts  enabling 
through  new 
employees  to  reorganize  their  work  and 

16 

generally  participation 

their working time on a more flexible basis. 
However, 
in 
continuing  training  of  those  employed  in 
small and medium sized firms continues to 
be  relatively weak. 

In  accordance with Article  127  of the 
10. 
Treaty,  the  Commission  will  cqntinue  to 
·develop progressively a vocational training 
policy building on the various achievements 
to  date  at  the  level  of  the  Uni9n.  The 
Commission fully recognises  that Member 
States  have 
for 
field.  The 
. implementation 
Commission  will  concentrate  its  effort  on 
the  definition  of objectives  so  as  to  set  a 
policy framework at the  level of the  Union, 
which  is  essential  so  as  to  provide  urgent 
stimulus  to  the  efforts  of Member  States, 
and  to  ensure  high  standards  throughout 
the  Union. 

responsibility 
in 

this 

local 

11.  The  development  of  a  coherent 
the 
training  strategy,  underpinned  by 
different instruments at the disposal of the 
Union, could thus serve to improve training 
performance  and  to  inform  and  stimulate 
training 
national,  sectoral  and 
systems.  This  concerted,  Union-wide 
strategy, could then be followed up by each 
Member State in  the different national and 
regional 
training  actions.  The  national 
training  strategies  should  be  published  by 
the  Commission  so  as 
to  further  the 
exchange  of  experience,  and  exploited 
through  discussions  with 
the  Directors 
General  of  Vocational  Training  and  the 
social  partners. 

the 

12.  The Commission proposes to present 
further  proposals  during  1995,  within  the 
taking 
framework  of  Article  127  and 
account  of 
recent  decisions  on 
LEONARDO and SOCRATES, linked to the 
overall  plan  of  action  for  employment, 
focusing  on  the  following  priority  aspects 
set  out  in  the  VVhite  Paper  on  Growth, 
Competitiveness  and  Employment  and 
the  context  of  national 
in 
designed 
structures to: 

• 

• 

• 

• 

• 

• 

young  persons 

build  a  Union-wide  guarantee  that 
no 
can  be 
unemployed under the age of 18: (hey 
should be guaranteed a  plac~ in  the 
education and .training system or in a 
linked  work  and  training  placement. 
The  contribution  of the  Union  is  to 
underpin  ·this  with 
the  Youthstart 
initiative; 

set progressive targets up to the ·year 
2000  for  the  elimination  of basic 
illiteracy,  and  lack  of  other  basic 
skills,  on  the part of school-leavers; 

training, 

raise  the  status  of initial vocational 
and 
education  and 
encourage  the  development.. of  the 
entrepreneurial skills of young people 
and their capacity to  exploit the  new 
technologies  throughout  appropriate 
work experience; 

extend  the  scope  and  range  of 
existing  apprenticeship  schemes, 
and/or other forms of linked work and 
training, in active cooperation with the 
social partners; 

improve  the  coordinated provision 
of  guidance  and  placement 
services,  notably  at  local  level,  to 
provide  systematic  advice  to  young 
people  on  career  and 
job 
opportunities; 

examine  ways  of  introducing  tax 
incentives for firms and individuals 
to  invest  in  their continuing  training, 
as  an  expression  of  public  policy 
commitment  to  the  development  of 
learning  opportunities  for 
life-long 
adults. 

arrangements 

13. 
In  addition,  in  cooperation  with  the 
Member States, the Commission will review 
the 
for  management 
education  and  training  in  the  Union  and 
identify ways of promoting cooperation and 
of  good  practices. 
the  dissemination 

\

17 

14.  V\lhile recognising the vital importance 
of  linking  employment  and  training,  the 
Commission  is  also  sensitive  to  the  risk 
that  training  schemes  can  simply  become 
mechanisms for containing  unemployment~ 
or  can,  if not  properly  implemented,  give 
rise to abuse in the form  of the substitution 
of  unemployed  people 
in 
--employment.  In  labour  market  terms,  this 
represent  a  downgrading  of 
would 
participants  in  such  schemes,  and  would 
also  have  a  generally  negative  effect  ori 
terms and conditions of employment across 
the board. 

those 

for 

15.  Finally,  a  new  research  initiative  on 
education and training has been introduced 
within  the  Fourth  Framework  programme 
with  the  objectives  of  assisting  Member 
States  in  their  efforts  to  develop  links 
between  research,  education  and  training 
and  improve  their  education  and  training 
systems,  through  dissemination  of  good 
practice.  Research in this field can provide 
valuable support to  building the  skill  levels 
of the  present and future workforce. 

The European Social Fund 

In 

the  context  of 

16. 
its  policy  of 
economic  and  social  cohesion,  the  Union 
has  at  its  disposal  in  the  Structural  Funds 
a very significant financial instrument which 
can  strongly  support  this  process.  The 
Structural Funds and especially the  Social 
Fund  must  increasingly  make  a  carefully 
targeted contribution to the development of 
a skilled;  adaptable and mobile workforce. 
The development of human resources  is  a 
fundamental  component  of  the  Union's 
strategy  for  growth,  competitiveness  and 
increased  employment. 

17.  The Structural Funds, with a financial 
envelope  of  more  than  141  billion  ECU 
between now and 1999, will provide a very 
substantial  contribution  to  investment  in 
human 
fight  against 
unemployment  and  the  working  of  the 
labour market.  The European Social Fund 

resources, 

the 

It 

in particular will account for some 40 billion 
ECU  over  the  coming  period. 
is, 
therefore,  of the  greatest  importance -that 
last  year  the  Council  and  the  Parliament 
accepted the  Commission's proposal for a 
radical  overhaul  of  the  Social  Fund  to 
make  it  a  more  effective  and  flexible 
instrument. 

from 

In  an 

change. 

18.  On  a  Union-wide  basis  the  Social 
Fund  is  focused  on  combatting  long-term 
unemployment  and  exc;:lusion 
the 
labour market, on seeking to ensure that all 
our young people are given the necessary 
skills  and  the  opportunity  to  work,  on 
promoting  equal  opportunities  and,  in  the 
context of the new and innovative Objective 
4,  on  helping  to  adapt  the  work-force  to 
industrial 
integrated 
approach  the  Structural  Funds  make  a 
particularly  significant -contribution  to  the 
facing 
development  of 
particular  development  problems, 
in 
regions  where 
particular  Objective  1 
strengthening  education  and  science 
is  amongst 
technology  services 
the 
additional  priorities. 
In  addition,  new 
flexible  structural  instruments  have  been 
created to help meet the social challenges 
faced  by  certain  industries,  such  as  .the 
fishing sector.  Moreover, the setting-up of 
company-based  training  plans,  linked  to 
company  business  plans,  will  be  widely 
encouraged,  drawing  appropriately on  the 
the  new 
possibilities  opened  up  by 
Objective A. 

those ·  regions 

is 

presently 
19.  The  Commission 
negotiating  Community  Support 
Frameworks  (CSFs)  with  Member  States 
which will  set out a  strategy for the use of 
the Structural Funds between now and the 
end  of the  century.  As  far  as  the  Social 
Fund  is  concerned,  the  Commission  is 
promoting  a  targeted  approach  based  on 
three  priority themes: 

• 

improving  access  to  and  quality  of 
and  education, 
initial 
especially through the implementation 

training 

18 

of  "Youthstart"; 

• 

·• 

increasing 
competitiveness  and 
preventing unemployment by adapting 
the  workforce  to  the  challenge  of 
systematic 
through 
change 
approach  to  continuing training; 

a 

the  employment 
improving 
opportunities  of  those  exposed  to 
long-term  unemployment  and 
exclusion, through the development of 
a package of measures which  form a 
pathway of reintegration. 

Promoting equal opportunities for women in 
the  labour market is  an  integral  part to  all 
of these themes. 

resources 

in  human 

20.  The Commission will continue to seek 
in  partnership  with  the  Member  States  to 
ensure  that  the  priority  to  be  accorded  to 
investment 
is 
reaffirmed  and  reflected  in  the  CSFs  and 
programmes agreed for the coming period. 
It  is  also  important  that  the  CSFs  and 
programmes now adopted contain sufficient 
flexibility  to  make  it  possible  to  adapt 
actions and financial efforts to the ongoing 
implementation  of  the  VVhite  Paper  on 
Growth, Competitiveness and Employment, 
which will put a premium on quality and will 
also  help  to  redress  the  balance  towards 
in  human 
more  adequate 
capital.  The Commission will in this regard 
take steps to ensure systematic monitoring, 
evaluation  and  control 
the 
period  so  that  programmes  are  amended 
as  necessary,  so  that  those  programmes 
which  are  more  effective  are  given 
adequate  support  and  so  that  the  most 
successful  experiences  and  practices  are 
disseminated rapidly  throughout the Union. 

investment 

throughout 

It  is  also  important  to  ensure  better 
21. 
coordination  between  departments  and 
between  national  or  regional  authorities 
and  other relevant actors.  Member States 
review 
will  be  encouraged 
implementation  mechanisms  in  order  to 

to 

19 

and 

· infrastructure 

increase efficiency and transparency in the 
to  ensure  that 
granting  of  support  and 
implications for employment and  skills  are 
fully  taken  into  account when  decisions to 
fund 
productive 
In 
investment  projects  are  being  made. 
addition  to  seeking  closer  national  inter 
departmental  cooperation,  efforts  are 
needed  to  promote  a  broader partnership 
involving  NGOs,  community  bodies,  local 
authorities, 
the  social  and  economic 
partners  and  the · private  as  well  as  the 
public  sector  to  bring  in  new  knowledge 
and  expertise. 

local 

themes  of 

22.  Experience  has  shown  the  growing 
level  and  of 
importance  of  the 
decentralised  management. 
·-The 
development  of 
implemenfation 
mechanisms  which  facilitate  a  bottom-up 
approach is especially relevant for the two 
new 
the  ESF:  combating 
exclusion  and  promoting  adaptation  to 
industrial change,  where much experience 
lies  outside the  public domain.  A  series of 
national conferences will be promoted with 
effect from  1995, together with a European 
level event,  to highlight for the wider public 
the  practical  uses of the  ESF. 

23.  A key challenge for the future will also 
be the phasing-in to the ESF of measures 
currently implemented under the European 
Coal and Steel Community. Useful lessons 
can  be  learned  from  experience  gained 
with  the  ECSC  which  has  operated  in 
exceptionally  close  association  with  the 
social  partners  and  with  co-financing  from 
the  industries  in  the  form  of  a  levy  on 
output.  This  system  has  cushioned  the 
social  impact  of  tremendous  job  losses 
over the  past twenty years  and  more. 

Community Initiatives 

24.  The  new  series  of  Community 
Initiatives  will  be  launched  later this  year. 
These include EMPLOYMENT, whose main 
to 
improve  access 
is 
objective 
for  certain  disadvantaged 
employment 

to 

cooperation,  building  on  the  successful 
experience  of  the  previous  programmes 
(COMETT,  FORCE,  EUROTECNET 
LINGUA and  PETRA).  This  programme  is 
designed  to  promote  and  support  quality 
and  capacity  of  innovation  in  the  field  of 
training. 
It  will  be  developed  in  synergy 
with the structural intervention of the Union, 
especially,  as far as the ESF is concerned, 
with  the  new set  of Community  Initiatives. 
Arrangements  will  be  made  to  ensure  a 
regular  flow  of  information  from 
these 
different  actions  to  the  Member  States. 
The Council should decide the programme 
before  the  end  of 1994 so  that with  effect 
from  January  1995  the  next  phase  of 
field  of  vocational 
cooperation 
training  can  benefit  from  the  full  range  of 
actions  to  be  developed  in  the  .framework 
the  LEONARDO  programme. 
of 
Implementation  of  this  programme  will 
link  with 
benefit 
for 
CEDEFOP 
the 
training), 
development  of  vocational 
especially 
regular 
regards 
production  of  comparative  descriptions  of 
training  systems. 

(European  centre 

reinforced 

from 

the 

the 

the 

as 

in 

local  efforts 

regional  and 

groups  (such  as  the  young  unemployed, 
disabled  people, the  socially  excluded  and 
women),  and ADAPT, which aims to assist 
workers  at  risk  of  unemployment  through 
industrial  change  to  adapt to  new working 
practices and methods. They are designed 
to  have  an  important  catalytic  effect  on 
national, 
to 
·promote  employment  and  to  improve  the 
quality and standards of training provision. 
An  important  feature  of  the  Community 
Initiatives  will  be  the  emphasis  placed  on 
transnational  and 
developing  a  strong 
innovative dimension. The Commission will 
establish  with  all  concerned  a  carefully 
constructed  programme of monitoring  and 
information  exchange  so  as  to  exploit  all 
the  possibilities  opened  up  by 
these 
programmes. 

Community Training Programme 

25.  Moreover, so far as action at the level 
of  the  Union  is  concerned,  the  recent 
adoption  by  the  Council  of  the  common 
position  on  the  LEONARDO  programme 
will  provide  a further impetus to 

20 

Ill  - ENc·ouRAGING  HIGH  LABOUR  STANDARDS  AS  PART  OF  A  COMPETITIVE  EUROPE 

1. 
Legislating for higher labour standards 
and employee rights has been-an important 
part  of  the  Union's  achievements  in  the 
social field.  The key objectives  have been 
both  to  ensure  that  the  creation  of  the 
·single  market did not result in a downward 
pressure  on  labour  standards  or create  a 
distortion of competition, and to ensure that 
working  people  also  shared  in  the  new 
prosperity.  The  main  areas  of focus  have 
been  equal  treatment  between  men  and 
women, free movement of workers,  health 
and  safety,  and  - to  a  limited  extent  -
labour law. 

2. 
Since  the  adoption  of  the  Single 
European  Act,  the  emphasis  has  shifted 
from  harmoni_sation  to  the  adoption  of 
minimum  standards,  and  the  2nd  Social 
-Action Programme7 which resulted from the 
Social Charter adopted in  1989 foresaw 21 
proposals  for  directives,  most  of  which 
were  based  on  Article 
11 BA.  The 
Commission has proposed all of these and 
13 have been adopted.  Important progress 
has  therefore  been  made  on  health  and 
safety at work,  including the  Directives  on 
_ the  protection  of  pregnant  workers8
,  the 
protection of.young people at work9 and the 
organisation  of  working  time 10
,  which,  by 
laying  down  minimum  standards,  have 
recently 
the  social 
protection  of workers.  As  regards  labour 
law,  important decisions  have  been  taken 
the  Directive  on  an  employers 
with 
obligation  to 
inform  employees  of  the 
conditions  applicable  to  the  employment 
contract11  and 
the 
collective  dismissals  Directive12

the  amendment  to 

further  extended 

. 

(i) ··  -

information  and 

consultation 

of 

- workers 

(ii)  non-standard  employment  : 
•  working  conditions 
•distortion of competition 

(iii)  posting  of workers 

In the next phase of social  policy,  the 
4. 
Commission  believes 
that  the  highest 
possible  priority must  be  given  to  bringing 
these proposals to a successful conclusion. 

for 

the 

The  priorities 

5. 
future  will 
therefore  be  completion  of  the  existing 
Social Action Programme, the consolidation 
of a good base of labour standards, and the 
promotion  of health  and  safety at work. 

A  - COMPLETING  THE  EXISTING  SOCIAL 

ACTION  PROGRAMME 

Information  and  consultation  of 
employees 

In  April  1994, 

the  Commission 
6. 
presented  a  proposal 
the 
improve 
to 
information  and  consultation  of employees 
in  Community  scale  undertakings  under 
Article  2(2)  of  the  Agreement  on  Social 
Policy13
•  The  Social  Affairs  Council  on  22 
June  reached  a  Common  Position  on  the 
text  and  the  Commission  expects  it  to  be 
adopted  by 
The 
Commission  will  give  careful  attentioff to 
the 
the 
assisting 
implementation  of 
to  ensuring  cooperative 
Directive,  and 
exchanges  between 
In 
addition: 

the  end  of  1994. 

involved. 

those 

3.  Nonetheless,  a  number of proposals 
remain outstanding.  Four proposals in the 
health  and  safety  area  are  still  under 
discussion  in  the  Council  (see  part  C).  In 
addition, 
there  are  4  other  proposals 
outstanding before the CounciL These are: 

• 

once  this  Directive  is  adopted,  the 
Commission will examine its impact on 
for  Council 
the  seven  proposals 
directives  which  concern  or  contain 
provisions concerning information and 
consultation of employees14  which are 
currently on  the  table of the  Council. 

21 

Posting of workers 

7. 
It  is  urgent that  progress  is  made on 
this  important problem.  The Commission's 
proposal15  seeks  to  establish  a  core  of 
minimum  standards  to  protect  workers 
working  temporarily  in  another  Member 
State. The completion of the single market 
.. makes this  all  the  more  necessary .. 

• 

• 

If no success can  be achieved in  the 
Council  on  this  text  by  the  end  of 
the  Commission,  without 
1994 
prejudice to the legal framework,  will 
initiate  further  discussions  with  the 
social  partners  and,  in  the  light  of 
their opinion, consider further whether 
this problem can be resolved by new 
proposals for action in  this  field. 

New forms of employment 

in 

the 

The 

(fixed 

8. 
last 
four  years  have  seen 
labour 
dramatic  developments 
market  brought  about  in  particular  by 
changes  in  both the  production model and 
the service sector,  leading to  more flexible 
forms  of  work  contract 
term, 
temporary  and  part-time).  This  is  not  only 
because  management  wants  to  increase 
flexibility,  but  also  because  the  workers 
involved quite often prefer alternative work 
patterns.  If these flexible forms of work are 
to  be generally accepted,  it is  important to 
ensure that such workers are given broadly 
equivalent working  conditions  to  standard 
workers,  and there is a general concern to 
make a breakthrough at Union  level  in  this 
area.  The Commission recognises that, as 
a result of these developments,  its original 
proposals  in  this  area 16  may now need  to 
be  reformulated.  The  measures  adopted 
will  also  need  to  take  account  of  the 
principles  of the  ILO  Convention  on  part 
time work adopted  in  June  1994. 

with  the  social  partners  under  the 
Agreement  on  Social  Policy.  These 
consultations will consider what further 
action  might  be  taken,  including  the 
possibility of a first step through a new 
directive  on part time  work. 

In  the same context,  the  Commission 
will  also  examine  the  possibility  of a 
the 
framework  directive  covering 
issues of reconciling professional and 
family  life, 
including  career  breaks 
such  as  parent~/  leave.  Such  a 
proposal  would  seek  gradually  to 
encourage  the  development  of new 
models  better suited to  the  changing 
needs  of European  society,  and  be 
specifically  designed  to  facilita(~  the 
full  integration  of  women  into  the 
labour market (see also Chapter V).  It 
would set minimum standards within a 
framework  designed  to  encourage 
competitive  solutions  in  a  changing 
the  existing 
world. 
proposal on  Parental  Leave 17  will  be 
withdrawn. 

this  event 

In 

Working time 

9. 
The  Working  Time  Directive,  which 
sets  provisions  regarding  minimum  daily 
and  weekly  rest  periods,  a  maximum  48 
hour working  week,  paid  annual  leave and 
night  work  was  adopted 
in  November 
199318
.  In  addition,  the  Commission  has 
given  a  commitment  to  the  Parliament  to 
make proposals to complement the existing 
Directive  to  cover  all  employees.  Provided 
that  certain  minimum  standards  are 
respected, 
time 
arrangements  should  be  encouraged, 
particularly  at  company  level  as  part  of 
developing  new  patterns  of  work  and  in 
order 
improve  competitiveness  and 
increase  employment opportunities. 

in  working 

flexibility 

to 

• 

If no  progress  can  be  made  in  the 
Council  on  the  basis  of the  current 
proposals  by  the  end  of  1994,  the 
Commission  will initiate consultations 

• 

Consultations with  the social partners 
and/or studies by the Commission are 
proceeding in the case of sectors (five 
transport sectors plus sea fishing) and 

22 

activities  (other  work  at  sea  and 
doctors in training) excluded from the 
The 
working 
directive. 
time 
Commission  considers. 
that 
the  social 
agreements  between 
partners  would  be  the  best solution, 
but if no agreements can be reached 
during  1995,  proposals for Directives 
based  on  Article  11 BA  will  be 
considered. 

idea  of  extending  the  floor  of  binding  and 
enforceable  minimum  standards,  as  the 
appropriate  instrument  for  making  gradual 
progress 
towards  economic  and  social 
convergence in the Union,  having regard to 
the  economic strength  and  capacity  of the 
different  Member  States. 
In  addition  to 
supporting adoption of current proposals,  a 
range  of other  areas  were  put  forward  for 
legislative  action  at  Union  level.  These 
included: 

8  - CONSOLIDATING  A  GOOD  BASE  OF 

LABOUR  STANDARDS 

in  European 

10.  With  the  completion  of  the  existing 
Social  Action  Programme,  a  substantial 
labour  standards  has  been 
base  of 
consolidated 
law.  The 
question  of  where  to  go  from  there  is 
complex  and  controversial  because  the 
issue of labour standards is  at the heart of 
the debate about the relationship between 
competitiveness,  growth  and job creation. 

11.  On the one hand, there are those who 
labour 
that  excessively  high 
argue 
standards  result  in  costs  which  blunt  the 
competitive  edge  of  companies  in  one 
country or region as compared with others. 
On  the  other  hand,  many  believe  that 
productivity  is  the  key  to  competitiveness 
and that high labour standards have always 
been  an  integral  part  of  the  competitive 
formula. 

12.  The tension between these two views 
has  been  very  evident  in  the  different 
submissions  which  the  Commission  has 
received as a result of the  Green  Paper.  It 
must  be  said 
is  no  clear 
consensus  on  this  point  and  that  Member 
States  and  others  remain  divided  in  their 
opinions  about 
further 
legislative  action  on  labour  standards  at 
European  level. 

the  need 

there 

that 

for 

13.  A  number  of  Member  States,  with 
support  in  particular  from  the  European 
Parli,ament, 
the  Economic  and  Social 
Committee  and  the  ETUC,  developed  the 

5) 

23 

(i) 
(ii) 

(iii) 

(iv) 

(v) 

(vi) 

to 

regard 

protection against individual dismissal; 
protection of the privacy of workers  in 
particular  with 
the 
including  the  collection 
processing, 
and  disclosure of workers'  data; 
requirement of equal treatment in case 
of part-time  work  and  work  on  fixed 
term  contracts  (see  part A  above); 
prohibition  of  discrimination 
the 
against  workers  who  uphold 
their 
rights  or  refuse  to  perform  unlawful 
tasks  ; 
the  right  to  payment  of  wages  on 
public holidays and  during  illness; 
the  right  of the  worker to  be  heard  in 
internal  company  matters  which 
concern  him  or her personally. 

14.  The  Commission 
is  already 
undertaking detailed studies on the situation 
in  the  Member  States  on  poir1ts  (i)  and  (ii) 
above and expects to be able to publish the 
results  within  the  next  nine  months.  It  will 
also  encourage  debate  in  the  Council  and 
Parliament,  and with the  social  partners on 
these  issues.  The  need  for  proposals  for 
further  legislation  at  European  level  in  any 
of these areas will be considered in the light 
of this debate,  taking  into account the work 
already  undertaken 
the 
proposal  for a  general framework  directive 
on  data  protection.  In  addition,  there  are  a 
number  of  other  areas  -
for  example 
homeworking and teleworking  - where new 
approaches might be developed and which 
should  be  further  explored  with  a  view  to 
possible  Union  action  in  the  future. 

relation 

to 

in 

15.  Other issues mentioned in responses 
include the prohibition  of discrimination on 
the  grounds  of  race,  religion,  age  and 
disability (see Chapter VI)  and the informal 
economy.  With  regard  to  the  complex 
problems  surrounding  the  issue  of  the 
informal 
the  Commission 
proposes;  drawing  on  past  discussion,  to 
·encourage  the  exchange  of  experience 
between  Member  States  with  a  view  to 
creating  a  new  impetus  and  identifying 
In  the  light  of  this 
possible  solutions. 
process the  Commission will: 

economy, 

• 

present  proposals  to  address  the 
issue of illegal work,  including its links 
with  illegal immigration. 

the  Commission 
16.  More  generally, 
believes  that, 
in  the  immediate  future, 
consolidation  and  implementation  of  the 
existing  corpus  of  law  - in  this  as  in  all 
areas - in order to ensure that com petition 
is not distorted by non-transposition will be 
at least as important as the presentation of 
new  proposals  (see  Chapter  X).  This 
situation  may  change  once  the  present 
process  of adaptation  of labour law which 
is  underway  in  all  Member  States  has 
settled  down.  Once  the  new  patterns  of 
workers rights are clearer at national level, 
the question of how best to underpin this at 
European  level  will  no  doubt  return  to  the 
agenda.  In  this  context,  given  that  it  is 
almost five years since the adoption of the 
Social  Charter,  the  Commission  believes 
that  it  is  now  time  to  take  stock  for  the 
future.  It therefore  plans to: 

• 

organise during 1995, in collaboration 
with  the European  Parliament,  a joint 
hearing to  assess the  achievements, 
problems  and perspectives  following 
the Social Charter,  five years on.  This 
will  also draw on  the  1994  report  on 
progress  in  achieving  the  objectives 
of  Article  1  of  the  Agreement  on 
Social Policy,  which  the  Commission 
is  required to  draw up  by Article  7 of 
the  Agreement  and  which  will,  for 

practical  purposes,  be  merged  with 
the  report  on  the  application  of the 
Social Charter. 

C .. - PROMOTING  HEALTH  AND  SAFETY  AT 

WORK 

17.  The Commission's Communication on 
safety,  hygiene  and  health  protection  at 
work 19  sets out the main areas for action to 
be  undertaken up to  the  year 2000. 

··  18.  A ~key  priority  remains  the  need  to 
make  progress  on  the  health  and  safety 
proposals currently under discussion in the 
Council, with a view to their adoption during 
1994 and  199520
.  In addition,  following the 
consultation of the Union Institutions on the 
Communication,  a  fourth  programme  of 
action on sat ety and health will be drawn up 
in  1995.  The  key 
this 
programme will  be  : 

features  of 

• 

• 

• 

• 

in 

appropriate  development  of  Union 
legislation 
light  of  new 
the 
knowledge or technical progress, or to 
identified  shortcomings, 
remedy 
especially  in  relation 
to  high  risk 
situations and harmful agents; 

consolidation of existing provisions in 
order  to  reflect  advances  in  science 
and  technology  and  to  make  them 
more  easily  applicable  by  all 
concerned; 

promotion  of  information,  education 
and  training  activities 
targeted  at 
employers  and  workers  as  well  as 
cooperation  between  Member States 
and  the  social  partners  to  improve 
awareness  of  health  and  safety 
issues; 

promotion 
and  development  of 
preventive  measures  and  protective 
services,  especially in  relation  to  risk 
assessment; 

• 

study  of  problems  encountered  in  · 

24 

undertakings and enterprises such as 
small and medium-sized enterprises 
and in particular by specific groups as 
well  as  issues  connected  with  well 
being at work; 

• 

development  of  non-legislative 
accompanying  measures  in  order to 
promote  and  supplement  legislative 
objectives. 

19.  The  Parliament  has  called  on  the 
Commission to develop a programme to be 
called  Safety  Action  For  Europe  (SAFE). 
The Commission intends to respond to thi~ 
request in its fourth action programme.  As 
foreseen in the above Communication,  the 
Commission will  also: 

• 

make  proposals 
formalise 
Labour Inspectors group. 

to  develop  and 
the  role  of  the  Senior 

20.  On  22  June  1994 
the  Council 
approved  a  Regulation  establishing  a 
European Agency for Health  and  Safety at 
Work,  based  in  Bilbao21
.  The  Agency  will 
· have  as  its  main  tasks  the  collection  and 
dissemination  of  technical,  scientific  and 
economic information on  health and  safety 
at work,  the  promotion  of and  support  for 
exchanges  of  information  and  experience 
between  Member  States, 
organising 
conferences  and  seminars,  providing  the 
information  necessary for the  Commission 
in· 
the  preparation  and  evaluation  of 
legislation,  the  establishment  of a  network 
linking  Member  States'  national  networks, 
and  the  collection  and  dissemination  of 
health  and  safety  information from  outside 
the  Union.  The  Commission  will  place  a 
special  emphasis  on  ensuring  that  the 
Agency becomes operational during 1995. 

25 

IV - BUILDING  A  EUROPEAN  LABOUR  MARKET 

into 

integration  has  been 

1.  One  of  the  great  successes  of 
to 
European 
transmute economic migratory movements 
between  Member  States 
free 
movement  based  on  free  movement  of 
persons  who  draw  their  rights  from  the 
Treaty,  which  contributes  to  a  concrete 
and  practical  expression  of  European 
citizenship.  This  is  a real  testimony to the 
values  inherent  in  the  European  social 
model,  and  in  particular  the  rights  and 
responsibilities  of individuals. 

The  pursuit  of  the  goal  of  free 
2. 
movement  for  the  citizens  of  the  Union, 
and  the  more  so  for  settled  third  country 
immigrants, 
is  obviously  more  difficult 
under  conditions  of  high  unemployment. 
This  is  a reality which  cannot  be  ignored, 
the 
but 
background  of the  European  tradition  of 
openness, 
the  historical  successes  of 
Europe  in  integrating  immigrants  and  the 
contribution  this  has  made  to  economic 
success  and  demographic  and  societal 
vitality. 

to  be  seen  against 

it  has 

A - THE  FREE  MOVEMENT  OF  PERSONS 

WITHIN  THE  UNION 

in 

this 

resources  are  hindered 
right, 

Article  8 A  of the  Treaty gives  every 
3. 
citizen  of the  Union the  right  to  move  and 
reside  freely  within  the  territory  of  the 
Member States.  In  reality,  certain persons 
without 
from 
exerc1s1ng 
particular 
unemployed people without benefits, those 
who  live  on  social  benefits  and  certain 
disabled  people,  and  gypsies,  who 
encounter  practical  and  administrative 
difficulties in residing  in the Member State 
of  their  choice.  An  in-depth  reflection  on 
the notion of the citizenship of the Union is 
necessary, with a view to re-examining the 
conditions  set  by  derived  law  for  the 
exercise of free movement, in particular as 
regards the right to stay and reside,  taking 

26 

also into account the need to avoid,  as far 
as  possible,  creating  additional  financial 
burdens or potential  irregularities. 

in  which 

the  past.  Such 

The  challenge  to  the  Union  now  is 
4. 
to  create  a  real  European 
therefore 
freedom  of 
mobility  area, 
movement  becomes  not  only  a 
legal 
entitlement  but  also  a  daily  reality  for 
people  across  Europe.  This  calls  for  a 
more complex  interaction  of policies  than 
in 
free  movement 
contributes  to  achieving  the  objectives  of 
the  single  market  as  well  as 
the 
establishment  of  a  more  flexible  and 
efficient European labour market.  In  other 
words, 
it  is  a  clear  illustration  of  the 
integration of social and economic policies 
that  the  debate  on  the  Green  Paper  has 
emphasised.  The  Commission  therefore 
proposes: 

• 

to review all aspects of the operation 
of the  single  market  with  regard  to 
the 
free  movement  of  people 
(employed,  self employed,  students, 
pensioners  and  others),  and  will 
establish a high level panel to assess 
the  problems  faced  and to  propose 
possible  solutions.  The  panel  will 
the  Commission  during 
report  to 
1995. 

In  this  context,  the  Commission  will 
5. 
also seek to ensure the  provision of clear 
and  accessible 
to  people 
seeking to move about the Union,  building 
information  already  provided 
on 
through  the  EURES  data  bases  (see 
section  C). 

information 

the 

to 

In  order  to  remove  the  remaining 
6. 
legal  barriers 
free  movement  of 
workers,  the  Commission  will  press  for 
adoption of the proposed measures in the 
areas  of 
reunion,  equality  of 
treatment,  and  the  strengthening  of  the 

family 

entitlement to  residence for workers  in  an 
atypical  employment situation22

. 

7. 

In  addition,  the  Commission will: 

• 

• 

• 

• 

use  all  available  means  to  ensure 
real and effective  implementation  of 
the rules,  including legal procedures 
where  necessary.  Member  States 
should provide adequate training and 
information to officials at all levels in 
order 
to  alleviate  cumbersome 
administrative procedures; 

evaluate the measures already taken 
the  mutual 
level  on 
at  Union 
recognition  of  diplomas  and  the 
comparability  of  qualifications, 
to 
exchange  experiences  and 
information  and  to  achieve  greater 
transparency both for employers and 
for workers.  In addition, measures to 
promote  academic  recognition  of 
diplomas  and  study  periods  should 
be  considered  in  order  to  facilitate 
the  mobility  of  students  and 
researchers; 

to  extend 

propose 
the  general 
system of recognition  of diplomas to 
professions  not  yet  covered  and 
continue the evaluation of measures 
already 
the 
to 
provision  of  services  by  and  the 
establishment  of 
regulated 
professions in  the  Union; 

facilitate 

taken 

make  proposals  additional  to 
its 
Recommendation  of  21  December 
199323 to solve the taxation·problems 
free 
of  workers  who  exercise 
movement, 
frontier 
workers,  with 
the  aim  of 
guaranteeing equal treatment. 

in  particular 

8  - SOCIAL 

SECURITY 

AND 

FREE 

MOVEMENT 

provisions  in  the field  of social  security is 
a pre-condition to  the  effective use of the 
right to move and to stay within the Union. 
Without  such  protection, 
the  existing 
disparities  between  the  social  security 
systems  of  the  different  Member  States 
would  adversely  affect  people  moving 
across frontiers.  They would risk losing all 
or  part  of  their  rights  acquired  or  in  the 
process  of being  acquired  under national 
legislation (for example to pensions, health 
insurance,  unemployment benefits,  family 
benefits),  when  leaving  their  country  to 
work,  to  look for a job,  to  reside or to stay 
elsewhere  in  the  Union. 

9. 
In more than thirty years of European 
action  in  this field  many obstacles  to free 
movement have been removed, but others 
which discourage people from  moving still 
remain. The overall approach is not aimed 
at  harmonising 
the  Member  States' 
systems  of  social  protection,  but  at 
achieving  effective  coordination  of  these 
systems 
the  Union. 
Coordination 
a  dynamic  and 
never-ending  process  reflecting  the  rapid 
evolution  of  the  national  social  security 
schemes  and  changing  requirements. 

throughout 
is 

10.  To 
proposes: 

this  end, 

the  Commission 

• 

a wide-ranging technical revision and 
restructuring  of the  coordination  of 
social security provisions in  order to 
keep  pace  with  developments  and 
the needs of people, and simplify the 
existing  rules.  The  Commission  will 
identify  the  relevant  problems,  in 
order to  assess  the  extent  and the 
implications  of 
necessary 
changes.  This  analysis  will serve as 
the 
a  basis 
for  discussions  on 
strategy 
for  modernization  and 
simplification, involving governments 
and  social  partners,  and  for  the 
development of a concrete proposal. 

the 

8. 

Adequate 

protection  by  Union 

11. 

In the meantime,  Union action is also 

27 

necessary  to  preserve  and  to  improve 
what  has  been  achieved  so  far.  The 
Commission  will  therefore  bring  forward 
legislative  proposals  covering: 

• 

• 

• 

• 

• 

the  need 
to  maintain  adequate 
protection  for people moving  across 
borders as regards occupational and 
other complementary social security 
schemes 
supplementing  or 
substituting for protection guaranteed 
by  law.  As  regards  occupational 
pensions,  it  is  envisaged  that  the 
Union's 
the 
to  mobility  already 
obstacles 
the  Commission's 
in 
identified 
Communication  of 1991 24  will  be  to 
establish  a  general  framework  of 
broad objectives,  and a proposal for 
a directive will be presented towards 
the  end of 1994; 

role  'in  overcoming 

coordination provisions for some new 
and modern  types  of benefits which 
have  been  created  by  Member 
States  in  recent  years,  such  as 
education  benefits  and  benefits  for 
persons in  need of long-term care; 

third  country  nationals  who  are 
legally employed and resident within 
the  Union  and  who,  when  staying 
temporarily in another Member State, 
suffer  multiple  disadvantages 
because they are not covered by the 
coordination  provisions.  As  a  first 
they  should  be  entitled  to 
step, 
necessary health  care  benefits; 

the  need  to  adapt  Union  rules  on 
unemployment  benefits  for  persons 
looking  for work in  another Member 
State. 
The  existing  rules  were 
adopted  when  unemployment  rates 
were comparatively low,  and need to 
be adapted to today's labour market 
situation  without  creating,  however, 
financial  burdens  or 
additional 
incentive  for abuse; 

28 

solutions  to  the  problems  posed by 
early retirement  schemes  based on 
industrial agreements,  which are not 
covered  by 
coordination 
the 
regulations  and which  pose  various 
problems  affecting, 
in  particular, 
frontier workers. 

In addition, the existing provisions ·on 
12. 
cross-border access to health care are too 
restrictive  and  no  longer  appropriate  to 
today's  requirements.  With  a  view  to 
enabling greater and more efficient use of 
existing 
in  border 
regions,  the  Commission  will  encourage 
co-operation in this field between Member 
States and  their appropriate  institutions. 

facilities,  especially 

the  modernisation  of  the 
13.  Finally, 
exchange of data between social  security 
institutions  is  vital for the  efficiency of the 
whole  coordination  system  and 
the 
provision of a better service to the public. 
The  further  development  of  a  telematic 
network  will 
therefore  be  given  a 
prominent  place  in  Union  action  in  the 
It  is  planned  that  this 
coming  years. 
network,  linking  social security institutions 
in  all  Member  States,  will  be  in  place 
before the  end  of 1998. 

C  - EURES 

14.  The  current  economic  and 
employment crisis has highlighted the fact 
that  a true  European  employment market 
does  not  yet  exist.  EURES  (EURopean 
Employment  Services)  has  been  set  up 
both to act as a comprehensive European 
employment  agency  with  a  mandate  to 
inform,  counsel  and  place  job-seekers 
across  Europe,and to  provide a forum  for 
discussion  of  European  employment 
level.  EURES 
issues  at  operational 
operates  through  a  partnership  between 
the  Commission,  national  employment 
services 
in  16  countries,  and  other 
institutions  interested  in  labour  mobility, 
such  as  employer  organisations,  trade 
unions  and  universities. 

15. 
It reflects the demand from European 
employees and employers for a tool to tap 
into  the  enormous  potential  of  a  true 
European  labour  market,  above  all  by 
information  on 
providing  good 
transnational 
recruitment 
and 
job 
opportunities.  By  facilitating  transnational 
recruitment and experience,  it can reduce 
existing  structural  labour market  barriers, 
and  can  help  develop  the  links  between 
training  and  employment  at  European 
level.  The  object  is  also  to  draw  on 
successful  ideas  in  one  country  or region 
to  tackle  the  challenges  of another. 

16.  The  core  network  of  400  trained 
advisers  to  deal  with  transnational  job 
seekers  and  job  providers  is  already  in 
place.  By the end of 1994, a computerised 
jobs  data  bank  will  be  fully  operational, 
supplemented  by  a  living  and  working 
conditions data bank treating matters from 
accommodation to contract law to taxation. 
EURES  will  also  have  a  particular  focus 
on 
frontier-free 
cross-border employment regions in areas 
of potentially high  mobility. 

the  creation  of 

true 

tool  will  be  developed 

17.  This 
to 
facilitate  the  liaison  between  other  EU 
initiatives  (e.g. 
training  initiatives,  ESF 
Community  Initiatives)  and  the  world  of 
work;  and  become  a 
transnational 
framework for the exchange of experience 
and  good  practice  relating  to  all  issues  in 
the  field  of employment. 

D -

INTEGRATION  OF  IMMIGRANTS 

18. 
In  February  1994  the  Commission 
issued  a  Communication  on  immigration 
and asylum  policies25  as a basis for a new 
and  wide-ranging  debate  about  how  the 
possibilities which the Treaty on European 
Union creates  can  be  used to provide the 
coordinated  response  necessary,  and  the 
framework,  to  guide the  Union in  its future 
work. 

19.  The  Communication  stresses  that 

action  in  the  area  of  integration  policy 
remains an essential element of the wider 
need to promote solidarity and integration 
in  the  Union.  To  achieve  this,  integration 
policies  must be  directed  in  a  meaningful 
way  towards  improving  the  situation  of 
third  country  nationals  legally  resident 
within the Union by taking steps which will 
go  further  towards  strengthening  their 
rights  relative  to  those  of  citizens  of  the 
Member States. 

in 

20.  The  framework  for  action  by  the 
Union  set  out 
the  Communication 
constitutes  the  basis  for  the  action  plan 
which  will  enable  the  Union  to  pursue  an 
active  and  comprehensive  migration 
policy.  In  particular,  the  Commission will: 

• 

• 

• 

make a proposal by the end of 1994 
recommending 
the  ratification  by 
Member  States  of the  International 
Convention  on  the  protection  of all 
migrant  workers  and  members  of 
their families,  adopted by the  UN on 
18  December 1990; 

encourage  the  social  partners  to 
address,  in  the  framework  of  the 
social  dialogue,  the  question  of the 
for 
conditions  of  employment 
third-country  nationals 
legally 
residing  in  the  Union; 

finalise,  during  1994,  a review of the 
implementation by Member States of 
the  Decision  of  the  EC-Turkey 
Association  Council on  the  situation 
of Turkish  workers  employed in  the 
This  will  be  followed  by 
Union. 
the 
reviews 
similar 
situation  of  workers 
the 
Maghreb  countries  and,  in  a  later 
stage,  of workers  from  Eastern  and 
Central  European  countries  with 
which 
the  Union  has  concluded 
agreements. 

concerning 
from 

21.  An internal market without frontiers in 
which  the  free  movement  of  persons  is 

29 

E - COM BATTING RACISM AND XENOPHOBIA 

24.  As  agreed  at  the  Corfu  European 
Council, the Union will step up its efforts to 
develop  a  global  strategy  at  Union  level 
aimed 
and 
xenophobia.  For its part,  the  Commission 
will: 

combatting 

racism 

at 

• 

• 

• 

to  encourage 

continue 
the 
development  of systems  to  monitor 
incidents of racial harassment, where 
several  Member  States  have  made 
progress  and  discussions  are 
proceeding  on  how  cooperation 
the  Union  could  stimulate 
within 
further progress. 

increase existing financial support for 
anti-racism projects, with the purpose 
of pump-priming  national  and other 
efforts  in  this  field,  and continue  to 
fund  organizations  whose  aims and 
programmes  contain  a  large  anti 
racist element. 

level  in  1994  on 

the  social  partners  at 
consult 
European 
the 
possible adoption of a code  of good 
employment  practice  against  racial 
discrimination. 

25.  The  Commission  will  also  press for 
specific 
racial 
to 
discrimination to be  included in  the Treaty 
(see  Chapter VI). 

combat 

powers 

implies 

logically 

free 
ensured 
legally  resident  third 
movement  of  all 
the  purpose  of 
for 
country  nationals 
engaging 
in  economic  activities.  This 
objective should be realised progressively. 

the 

As  a first  step the  Commission will: 

• 

legally  resident 

present a proposal in  1995 to ensure 
that  Member  States  give  priority  to 
third-country  nationals  permanently 
in  another 
and 
Member  State,  when  job  vacancies 
cannot  be  filled  by EU  nationals  or 
nationals  of  third  countries  legally 
resident in  the  Member State. 

access 

22.  At  a 
to 
later  stage, 
employment  in  response  to  an  offer  of 
employment  will  have  to  be  secured;  the 
free 
timing 
for  the  realisation  of  full 
movement  rights,  will  depend  on 
the 
labour market situation. 

of 

the  Union's 

23.  Successful  integration  in  the  host 
country  is  perhaps  the  ultimate  test  of 
effectiveness 
free 
movement  policy,  and  it  is  important that 
the migrant communities themselves have 
a  voice  in  their  own  integration  process. 
Migrants  associations  can  often  serve  as 
mediators  in  promoting  integration  in  the 
host  country.  The  Commission  will 
therefore  start,  in  1994: 

• 

an  evaluation  of integration  projects 
and projects  against  racism  carried 
out  by  NGOs  with  financial  support 
from  the  Commission,  in  order  to 
develop  guidelines  which 
can 
be used at national,  regional or local 
level. 

30 

V. 

EQUALITY  OF  OPPORTUNITY  BETWEEN  WOMEN  AND  MEN 

that 

legal 

the  Member  States. 

1. 
long 
The  European  Union  has  a 
standing commitment to equal opportunities 
between  women  and  men  (Article  119  of 
the  Treaty  of Rome),  and  it  is  now widely 
recognised 
framework 
the 
reflecting  social  policy at  European  Union 
level has been a catalyst for major change 
in 
the 
clarification  and  interpretation  of  the  law, 
usually through  legal cases,  has benefited 
the  development  of  equal  opportunities. 
Nevertheless,  much  remains  to  be  done. 
The  need  for  a  strong  legal  framework 
remains,  and there should  be  a consistent 
application  of  existing  equality  legislation 
across the  Union. 

turn 

In 

2. 
The  economic  context  of  equality 
policy  has  changed  dramatically  over  the 
past years and this needs to be reflected in 
the  development of European  policy.  The 
increase  in  women's  activity  rates  has 
taken  place  in  spite  of and  in  parallel  with 
higher rates of female unemployment (12% 
compared to 9% for men),  and experience 
in  some  countries  shows  that  increased 
activity  by  women  is  not  automatically 
linked  with  the  growth  in  part-time  work. 
finding  work  has  not 
The  difficulty  of 
discouraged  women 
increased 
economic  activity, 
including  enterprise 
for 
creation:  women  were  responsible 
creating  a  significant  proportion  of  new 
small  enterprises  set  up  in  the  EU  in  the 
1980s. 

from 

is  a  strength 

This  adaptability  and  creativity  of 
3. 
women 
that  should  be 
harnessed  to  the  drive  for  growth  and 
competitiveness  in  the  EU.  Lower activity 
rates of women in the EU  (66%)  compared 
to  women  in  the  US,  Japan  and  non  EU 
countries  (72%)  is  a factor which  militates 
against achieving greater competitiveness, 
especially given the current predominance 
level 
in  second  and 
of  women 
education  in  the  EU  and  their  generally 

third 

higher  educational  attainments.  Greater 
competitiveness  can  also  be  achieved  by 
upgrading working conditions in flexible and 
. low protected,  low paid or informal jobs so 
that  their  economic  role  in  production  as 
well  as  consumption  is  increased  through 
appropriate recognition  and remuneration. 

4. 
The  contribution  which  women  can 
make to  the revitalizing  of the  economy is 
one  of  the  reasons  why  the  issue  of 
equality should  be  seen  as  a  key element 
to  be  taken  into  account  in  all  relevant 
mainstream  policies.  European  efforts 
should  be  redoubled  to  develop  actions 
and policies which reinforce women's rights 
and  maximise their potential contributions. 
They  should  be  underpinned  by  an 
evaluation  of  the  economics  of  equal 
opportunity,  especially  the  costs  of  not 
applying  equal  opportunity policy. 

5.  Women  are  not  a  homogeneous 
group.  Much  discrimination  comes  from 
the  same  historical  and  cultural  roots  and 
affects all women.  However,  policies need 
also  to  address  the  differing  needs  and 
for  example,  disabled, 
expectations  of, 
elderly,  migrant  and/or  ethnic  minority, 
young  women,  or  those  who  live  in  rural 
areas  or inner cities.  Specific  attention  is 
given to  women  in  other relevant  sections 
of this  V\lhite  Paper. 

A - DESEGREGATING THE LABOUR MARKET 
AND  PROMOTING  THE  VALUE  OF 
WOMEN'S  WORK 

The gender balance of activities in the 
6. 
economy  is  likely to  be  deeply affected  by 
structural  economic  change,  in  particular 
the  new 
the  growing  role  of  services, 
technologies and the new flexibility of work 
organisation,  working  time  and  the  new 
technologies  and  the  new  flexibilities  of 
work  contracts  that  public  and  private 
enterprises  are  seeking.  Positive  and 

31 

offer 

sustained action is needed to maximise the 
opportunities and reduce the dangers. This 
is  especially relevant to  homeworking  and 
teleworking,  which 
significant 
opportunities  for  women  - the  majority  of 
workers  in these fields - but where there is 
also  a  need  to  guard  against  the  danger 
that  they  may  generate  poorer  working 
conditions  and  isolation  for women.  It  will 
be  necessary to  reassess  the  value  given 
to  jobs traditionally  performed  by  women, 
jobs  like  childcare,  care  of elderly  people, 
work  in  family  enterprises  and  care  in  the 
home  local  services. 
In  addition,  new 
forms  of  work  organisation  will  tend  to 
create  more  flexible  jobs  not  only  for 
women  but  also  for  men.  Policies  are 
necessary  which  will  lead  to  both  sexes 
taking  advantage  of the  potential  benefits 
of flexibility. 

in 

To  achieve 

this,  changes 

7. 
the 
workplace must be accompanied by action 
to eliminate discrimination, by, for example, 
the  use  of codes  of practice  covering  pay, 
training  and  vertical  desegregation  (i.e., 
opening  all  levels  of seniority  to  women). 
All forms of women's productive work must 
be  appropriately  paid 
inter  alia, 
implementing gender-neutral job evaluation 
and  job  classification  schemes)  and  that 
social  protection  can  guarantee  an 
independent  life for the  individual  worker. 

(by, 

Equally,  ensuring  real  choice  and 
8. 
equal  opportunities 
in  education  and 
vocational training  together with  access to 
life-long learning opportunities,  is  essential 
to maximise women's career opportunities. 
Moreover, more attention should be paid to 
the  benefits  of  integrating  specific  social 
the  strategic  plans  of 
objectives 
business.  The  social  partners  could 
participate in devising measures to support 
positive action within the public and private 
sector  by  encouraging  the  use  of equality 
audits  within  enterprises,  using  flexible 
targets and publishing the results; providing 
to  help  employers, 
practical  guidance 
especially  SMEs,  calculate  the  cost  and 

into 

32 

benefits  of  positive  action  and  "family 
friendly" policies,  and publishing examples 
of best practice  in  European  enterprises. 

9. 

The  Commission will  therefore: 

• 

• 

• 

introduce  codes of practice on  equal 
pay for work of equal value  (a  follow 
up  to  the  Memorandum  adopted  in 
training  and  on 
June  1994),  on 
vertical desegregation; 

develop  measures  to  encourage  the 
skilling  and  development  of 
professional qualifications of women, 
including measures designed to  help 
women  set up  their own  businesses; 

make  proposals  for  the  removal  of 
fiscal  and  social 
discriminatory 
the 
protection  policies  and 
individualisation  of 
(see 
Chapter  VI); 

rights 

for 

8  - RECONCILING 

EMPLOYMENT 

AND 

HOUSEHOLD/FAMILY  LIFE 

reinforcing. 

features  of 

10.  The growing participation of women in 
the  economy  has  been  one  of  the  most 
striking 
recent  decades, 
suggesting  that  there  is  now  an  urgent 
need,  in the interests of society as a whole, 
for  working  life  and  family  life  to  be  more 
Technological 
mutually 
production  and  societal trends  are  leading 
enterprises  to  be  at  the  forefront  of  such 
social changes,  in some respects ahead of 
legislation  and  public  policy.  The  latter  is 
now confronted with  major issues such  as 
the relationship between working time  and 
care  time.  Changing  demographic  trends 
mean  that  the  responsibility  for  elderly 
dependants 
the  social 
is  moving  up 
agenda, although childcare is still the major 
in  many 
for  working  parents 
problem 
Member States.  New social infrastructures 
are  needed  to  support the  household  and 
the family, and the question of how families 
can be helped to carry the costs remains to 
be  addressed. 

tam ily 

greater 

towards  new  ways  of 
11.  Progress 
perceiving 
responsibilities  may 
slowly  relieve  the  burden  on  women  and 
allow  men  to  play  a  more  fulfilling  role  in 
society.  However, 
solidarity 
between men and women is needed if men 
are to take on greater resp9nsibility for the 
caring  role  in  our societies and  if flexibility 
in  employment  is  not  to  lead  to  new 
pressures on worn en to return to the ranks 
of the non-salaried population or be obliged 
to  accept  paid  work  at  home  in  isolation 
from  the community.  This  solidarity will  be 
implementation  of  the 
assisted  by  the 
the  1992  Council 
provisions  of 
Recommendation  on  Childcare26
,  which 
leave 
provision  of 
calls 
arrangements 
fathers  as  well  as 
mothers  throughout  the  Union.  Positive 
policy  action  is  also  needed  to  help  the 
process of change and to  promote a more 
nearly  equal 
of  parental 
sharing 
responsibilities,  another  element  in  the 
Childcare  Recommendation. 

the 

for 

for 

12.  Drawing  on 
Member  States,  and  with  a  view 
fostering  greater  cooperation, 
Commission  will: 

the  experiences  of 
to 
the 

• 

• 

the  Childcare 
follow  up 
Recommendation  by  assessing  the 
implementation  of  the 
establishing 
Recommendation, 
childcare 
baseline  data 
infrastructure  and  services  in 
the 
Member States,  and looking  at ways 
of addressing the issues of stereotype 
roles  of the  sexes in  society 

on 

the 

job-creation 

undertake  an  economic  assessment 
and 
both  of 
reflationary  potential  of  child  and 
dependent-care  infrastructures  and 
include  an 
This  will 
services. 
assessment of the use of quantitative 
and  qualitative 
the 
improvement  of childcare  provision, 
and  the  potential  use  of fiscal  and 
financial instruments to improve these 

targets 

for 

infrastructures  and  services.  In  the 
light  of 
the 
Commission  will  make  appropriate 
proposals. 

assessment 

this 

C  - ACCELERATING  THE  PARTICIPATION  OF 

WOMEN  IN  DECISION-MAKING 

for  girls  arid  women 

13.  The role of women in decision making 
is  fundamental  to  the  progress  of society. 
Indeed,  the  objective  of equality  between 
women  and men will  be frustrated  if much 
more  rapid  progress  is  not  made  in  the 
involvement of women  in  decision-making 
in  all  sectors  of society.  The  great  strides 
that  have  been  made 
towards  equal 
in 
opportunities 
education  have  laid  the  foundation  for  a 
major step forward in the next decade. The 
Commission considers that there is a need 
now to  move  to  the  next  phase,  focusing 
on  equal  treatment  as  well  as  equal 
opportunities not only in the  labour market 
but in  society as  a whole.  Experience now 
shows 
formal  equal  opportunities 
alone  do  not automatically  result  in  either 
equal treatment or proper representation of 
women  at  decision  making  levels.  Closer 
examination  is  required  of the  entrenched 
institutional and cultural barriers that inhibit 
or prevent  the proportional representation 
of  women  in  public  and  political  bodies, 
including  organisations  of 
the  social 
partners.  The  European  Union  should 
exercise  leadership  by  taking  concrete 
steps  to  enhance  the  role  of women  in  its 
own  institutions,  and  should  assist  the 
Member  States  and  other  European 
institutions  to  make  progress  in  the  same 
-direction. 

that 

14.  Drawing  on 
Member  States,  and  with  a  view 
fostering  greater  cooperation, 
Commission will: 

the  experiences  of 
to 
the 

• 

continue  to  develop  research  into, 
information  on, 
for  and 
proposals for action on  the increased 
participation  of  women  in  decision-

training 

33 

• 

• 

making in  both the public and private 
sectors. 

D - NEXT  STEPS 

to 
15.  The  Commission  will  continue 
promote  equal  opportunities 
through 
integrated action program mes. The current, 
Third,  Action  Programme  is  due  to  be 
completed by the end of 1995.  A mid-term 
evaluation will  be published  in  the  second 
half of 1994.  In the light of that evaluation 
and this \/Vhite  Paper, the Commission will: 

• 

• 

publish  during  1995 a  Fourth  Action 
Programme  on  Equal  Opportunities 
between  Women  and  Men,  to  come 
into  force  in  1996 

publish,  beginning in  1996, an annual 
"Equality  Report"  which  will  review· 
developments in  equality at Member 
State and Union level and serve as a 
instrument  for  equality 
monitoring 
policies. 

16. ·  Furthermore,  the  Commission will: 

• 

• 

for 

press 
the  adoption  of  the 
proposed Directive on  parental leave 
leave 
and/or  other  legislation  on 
arrangements (see  Chapter Ill); 

proposal  and 

the  adoption  of 

the 
encourage 
outstanding  proposal  for  a  directive 
on  the burden of proof7
.  If this is not 
adopted  by  the  end  of  1994,  the 
Commission will consider withdrawing 
a 
the 
Communication  on  procedures  and 
rem.edies  for  the  implementation  of 
Article  119 and the equality directives 
(access to justice,  time limits,  burden 
of proof, and remedies and sanctions, 
etc.), building on the existing case law 
of the  ECJ; 

issuing 

34 

use all available means to ensure the 
real  and  effective  implementation  of 
all  applicable 
prov1s1ons, 
including 
legal  procedures  where 
necessary; 

legal 

the 

following 
recent  Council 
Resolution on the promotion of equal 
opportunities  through  the  Structural 
Funds28  and  in  line  with  demands 
from 
the  European  Parliament, 
develop mechanisms to integrate the 
equality dimension in the operation of 
the  Funds  including  the  Community 
Initiatives  through  the  use  of more 
precise  targets,  data  collection  and 
monitoring  of  the  participation  of 
women.  Criteria  will  be  developed 
which  can  be  consistently  applied 
across  all  Member  States  to  enable 
effective collection of information and 
comparison  at  trans-national  level. 
The  European  Advisory  Committee 
could  play  a  key 
the 
development. of such  criteria  and in 
the  monitoring  process. 
In  parallel, 
the  Commission will encourage by all 
means at its  disposal the  successful 
take-up  and  operation  of 
the 
"EMPLOYMENT-NOW"  Community 
Initiative; 

role 

in 

• 

examine  how to  build  monitoring by 
gender into all relevant Union policies 
and  make  it  a  requirement  in  their 
evaluation. 

the 

national 

17..  To  deepen  the  social  dialogue  with 
regard  to  equality,  the  Commission  will 
propose  that  regular  meetings  be  held 
between the social partners and the heads 
of 
agencies 
represented on the Advisory Committee for 
Equal  Opportunities. 
It  will  also  develop 
contacts  and  consultation  of  women's 
organisations 
the 
proposed social policy Forum (see Chapter 
VIII). 

the  context  of 

equality 

in 

VI  - SOCIAL  POLICY  AND  SOCIAL PROTECTION  - AN  ACTIVE  SOCIETY  FOR  ALL 

-· 

that 

The  responses  to  the  Green  Paper 
1. 
make  clear 
traditional  social 
the 
protection  systems  of Europe  - based  on 
the  concept  of the  welfare  state  - are  an 
important  achievement  that  needs  to  be 
·maintained.  But  it  is  also  clear  that- there 
needs  to  be  a  move  away  from  more 
passive  income  maintenance  measures 
towards  active  labour  market  measures 
designed  to  ensure  the  economic  and  .. ., 
social integration of all people. This means 
giving  a 
to  employment, 
securing  new  links  between  employment 
and  social  policies  by  develC?ping  a 
"trampoline"  safety  net,  and  recognising 
that those who are not in the labour market 
also  have  a  useful  role  to  play  in  society. 
Wlile the  European social model provides 
a  good 
to  be 
developed  to  provide  a  new  synergy 
between  the  welfare  and  wealth-creating 
functions  of society. 

top  priority 

foundation, 

it  needs 

2. 
This is all the more important because 
the  European  Union  will  experience 
significant  changes  in  its  demographic 
structure  within  the  next  20  years,  most 
especially the ageing of the po~;..ilation, and 
social  protection  schemes  will  need  to 
adapt to all these developments. The share 
of  people  over  60  will  rise  from  20%  to 
23%  by  2010  while  the  share  of  young 
people under 20 will decrease from 24 % to 
21 % over the same period. Life expectancy 
will continue to increase, by one year every 
five  years.  The  active  and  creative 
contribution  of  older  people  to  society 
therefore  needs to  be  encouraged.  At the 
same  time,  family  patterns  are  changing: 
larger number of families are being formed 
outside  marriage,  people  are  having 
children  later  and  partnerships  are  often 
less  stable. 

3. 
The  Commission  is  monitoring  these 
changes,  and will produce a regular report 
on demography in the EU, the first of which 

will be issued at the end of 1994. The main 
objective  of this  report  will  be  to  illustrate 
the  ways  in  which  demography  - in  the 
short and  longer term  - will  impact on  and 
interrelate with social and economic policy. 

A  - MAINTAINING  AND  ADAPTING 

THE 
EUROPEAN  MODEL  OF  THE  WELFARE 
STATE 

. 

In 

4. 
Two  years  ago,  the  European  Union 
completed  a  long  period  of  discussion 
culminating  in  the adoption by the  Council 
of a Recommendation on the Convergence 
of  Social  Protection  Objectives  and 
Policies29
this  Recommendation, 
Member States acknowledged that a single 
market  can  be  created  while  maintaining 
the  diversity  of  social  protection -systems 
that  exist  within  the· Union  - mainly  as 
regards the arrangements for financing arid 
organizing  them  - and  that  comparable 
trends  in  Member States  lead  to  common 
problems  a,_nd  challenges  (unemployment, 
ageing,  changing  family  structures,  health 
care  cost-containment,  etc.). 
In  order  to 
perm it the co-existence of different national 
systems and to enable them  to progress in 
harmony  with  one  another  towards  the 
fundamental  objectives  of 
the  Union, 
Member  States  have  agreed  to  foster the 
convergence  of  their  social  protection 
policies, and have fixed common objectives 
which  will  act  as  pointers  to  the  way their 
systems  are  modified  to  take  account  of 
the -challenges  set out above. 

to  analyse 

5. 
The  Commission,  at  the  Council's 
the 
request,  will  continue 
development  of  social  protection  policies 
within 
in 
cooperation  with  them,  to  evaluate  their 
outcome,  so  that  each  of  them  can  fully 
benefit from  the  experience  of others. 

the  Member  States  and, 

6.  ·  This  exchange  of  experience  will 
focus  on  the  relationship  between  social 

35 

protection,  employment  promotion  and 
combating  exclusion,  and  in  particular  on 
ways  to  combine  the  grant  of  benefits, 
including the guarantee of a minimum level 
of  resources,  with  an  active  employment 
policy.  The financing  of social  security,  in 
order  to  better  adapt  it  to  employment 
promotion,  is  again  an  important  issue for 
. -the exchange of experience, as is the need 
to  guard  against  potential  abuses  of  the 
system.  Furthermore,  ways  of containing 
the  cost  of  health  care  services  and 
adapting  social  protection  systems  to  the 
development of tam ily structures where this 
creates  new  social  protection  needs  will 
also be  addressed. 

7. 
The Green Paper addressed the issue 
of  the  social  transition  to  economic  and 
monetary Union.  Most of the  contributions 
received  deal  with  this  question,  but  they 
show contrasting views. However, it is clear 
that the  problem  of rising  social  protection 
expenditure,  which  currently  amounts  to 
one  quarter or even  one  third  of the  GDP 
of 
raises 
important  questions.  In  order  to  integrate 
the  economic  and  social  approaches,  the 
Commission therefore  intends: 

individual  Member  States, 

• 

to  monitor the  social challenges  that 
Member  States 
face,  as  regards 
social protection expenditure, through 
joint  discussions  with 
regular 
Directors  General  for  Employment 
and 
for  Social  Protection  and 
consultations with  the social partners 
and other economic and social actors. 
The  Social  Protection 
in  Europe 
report  will  play  a  key  role  in  this 
monitoring. 

Drawing  on 

8. 
experience, 
consideration  to: 

these  exchanges  of 
the  Commission  will  give 

• 

a  complementary  Recommendation 
on the adaptation of social protection 
systems to changing family structures, 
notably  through  the  individualization 

36 

. of  rights  and  contributions  on  the 
basis  of  a  comparison  of  actual 
gender inequalities in  social security. 

• 

• 

a  Recommendation  on  the  financing 
of social security setting out common 
to  promote  better 
guidelines 
adaptation  of  social  security 
to 
employment  promotion  while 
maintaining  solidarity  networks  and 
permitting the co-existence of different 
national systems. 

a Recommendation on long-term care 
insurance  for  people  who  become 
dependent. 

9. 
Finally,  in  order  to  ensure  the  equal 
treatment of women and men in the field of 
the  Commission  will 
social  protection, 
propose: 

• 

judgment, 

a  modification  to  the  Directive  on 
equal treatment in occupational social 
security  schemes30  in  line  with  the 
Barber 
the  additional 
protocol  to  Article  119  in  the  Treaty 
on European Union, and the ECJ post 
Barber 
the 
application  of Article  119  in  the  field 
of occupational social security. 

judgments  clarifying 

10. 
It will also pursue its work to complete 
the  adoption  of  the  principle  of  equal 
treatment  in  social  security31

. 

8  - PROMOTING  THE  SOCIAL  INTEGRATION 

OF  ALL 

to 

is  a  challenge 

11.  The  marginalisation  of  major  social 
groups 
the  social 
cohesion  of  the  Union  and  calls  for  a 
mobilisation  of  efforts  by  Member  States 
and  all  the  parties  concerned,  and  for  a 
reinforcement  of  the  bulwark  of  social 
rights. 
that  contemporary 
economic  and  social  conditions  tend  to 
exclude'  some  groups  from  the  cycle  of 
opportunities. The responses to the Green 
Paper confirm  the  need  to  respond  to  this 

is  clear 

It 

challenge and focus on the well-being of all 
people,  workers  and  others. 

12.  This  is  not  just  a  question  of  social 
jusfice;  the  Union  simply  cannot  afford  to 
lose the contribution of marginalised groups 
to  society  as  a  whole.  At  a  time  when 
major technological,  economic  and  social 
· ehanges are increasing the  insecurity of a 
the  Union 
growing  number  of  people, 
needs  to  ensure  that  the  most  vulnerable 
(people excluded from social and economic 
life,  young people unable to find a foothold 
in  the  economy,  long-term  unemployed, 
disabled and older people, for example) are 
not  excluded  f ram  the  benefits  of  - and 
from  making an  active contribution to - the 
economic  strength  of  a  more  integrated 
Europe. 

the  Member  States, 
them,  within 

13.  V\/hile  the  basic responsibility for this 
full 
lies  with 
cooperation  between 
the 
Union,  plays  an  important  role.  Moreover, 
Article  2(2)  of  the  Agreement  on  Social 
Policy gives the  Union a role  in  supporting 
the  activities  of 
and  complementing 
Member  States.  The  Commission  will 
therefore continue to develop the basis for 
equal  rights,  spread  new  ideas  on  best 
innovation  and 
practice,  and  support 
experimentation,  increasingly  of  a  trans 
national  character,  through  the  Structural 
Funds,  and  notably  the  European  Social 
Fund. 

The  fight  against  poverty  and  social 
exclusion 

the  Union 

in 
line32

,  social  exclusion 

14.  At present,  with  more than  52  million 
people 
living  below  the 
is  an 
poverty 
endemic phenomenon,  stemming from  the 
structural changes affecting our economies 
the  social 
and  societies. 
cohesion of each Member State and of the 
Union  as  a whole. 

threatens 

It 

15.  Exclusion processes are dynamic and 
multidimensional in nature. They are linked 

37 

not  only  to  unemployment  and/or  to  low 
incomes,  but  also  to  housing  conditions, 
levels  of  education  and  opportunities, 
health,  discrimination, ·  citizenship  and 
integration  in  .the  local  community.  As  a 
result,  preventing  and  com bating  social 
exclusion calls for an overall mobilisation of 
efforts  and  combination  of both  economic 
and  social  measures.  At  European  level, 
this  also  implies  also that  social  exclusion 
should  be  addressed  in  the  framework  of 
all  Union  policies. 

in 

to 

lead 

16.  The  creation  of  more  jobs  is  a  vital 
factor 
the  struggle  against  social 
exclusion,  but  the  provision  of  new  jobs 
alone  - even  in  substantial  numbers  - will 
not 
the  elimination  of  social 
exclusion.  Since  the  mid-1970s,  Union 
level  action  through  the  three  Poverty 
Programmes 'has  demonstrated a  number 
of lessons,  and  it  is clear that it  is  possible 
for such  action  to  have  a  multiplier effect. 
for 
This  message  was  reinforced  by, 
example,  the  European  Conference  on 
combatting  social  exclusion  held 
in 
1993.  The 
Copenhag~n  in 
Commission  will  continue  its  efforts  in  this 
respect,  and  in  particular will: 

June 

• 

• 

make  every  effort  to  ensure  the 
adoption  by  the  Council  of the  next 
programme  of  Union  action  in  this 
field,  on  the  basis  of the  proposals 
in 
presented  by  the  Commission 
September 199333

. 

particular 

continue  actions currently underway, 
in 
the 
dialogue  with  representative  bodies 
and working towards a public solemn 
declaration  against exclusion. 

strengthening 

17. 
In addition, further efforts are required 
to  stimulate  a  European-wide  solidarity 
involving  all  partners  in  fighting  exclusion. 
V\/hile  the  primary  responsibility  for  both 
policy  and  action  must  lie  with  Member 
States,  and  indeed  at  regional  and  local 
levels,  action  is  also  needed  at  the  Union 

and 

socially 

level.  The  Union must demonstrate that it 
is  not  silent  or  inactive  on  this  issue,  and 
that it is able to act not only in the interests 
of 
the 
the  employed  but  also  of 
unemployed 
excluded. 
Moreover, Article 2(2) of the Agreement on 
Social Policy gives the Union a specific role 
in  supporting  and  complementing 
the 
··activities-of the Member States as regards 
the  integration  of  persons  excluded  from 
the 
The  Commission 
therefore believes that there is a good case 
for examining the  possibility of: 

labour  market. 

• 

further Union action on the integration 
of  those  excluded  from  the  la.hour 
market,  covering  both  the  economic 
and  the  social  dimensions  of  this 
legal 
integration, 
and 
framework 
stimulating the efforts in  the  Member 
States. 

providing  a 
supporting 

for 

taking 

18.  The purpose of such a proposal would 
be 
to  define  common  objectives  and 
guidelines,  rather than  detailed  provisions 
It  would  seek  to 
or  uniform  solutions. 
underpin  the  emphasis  on  moving  from 
passive to  active  labour market measures 
by 
the  1992 
forward 
Recommendation on sufficient resources34 
and combining the guarantee of a minimum 
level  of  resources  with  an  active  policy 
which would maintain finaneial· incentives to 
get a job.  This  might include proposals for 
the  gradual  implementation  by  Member 
States  of  minimum  requirements  on,  for 
example,  measures to  help those  seeking 
employment  to  make  a  full  contribution  to 
·society,  and the social  integration of those 
who cannot join the  labour market. 

19. 
In  addition,  the  new  Research  and 
Development  programme  contains  a 
specific subprogram me on social exclusion, 
which will enable research on indicators as 
well as on the impact of policies in the field 
of  social  exclusion 
to  be  carried  out. 
Moreover,  the  Structural  Funds,  and  in 
the 
particular 

the  Social  Fund,  within 

38 

framework  of the  new  Objective  3  and  of 
the  new  Community  Initiative  Programme 
on  Employment  and  Human  Resources, 
also  make  a  major  contribution 
to 
combating  exclusion. 

issue 

is  also  a  key 

20.  Housing 
in 
combating  social  exclusion  and  may  also 
be  an 
important  source  of  new  jobs. 
Further projects will be pursued on housing 
issues,  in  particular  through  exchanges 
promoted  by  the  regular  meetings  of 
for  housing  and 
Ministers  responsible 
exchange  programmes  developed  in  this 
context.  These  different  actions  will  be 
coordinated  by  the  Commission  so  as  to 
structured  and 
provide 
comprehensive  contribution  in  this field. 

a  well 

factors 

the  Urban 

In  addition, 

Initiative, 
21. 
agreed  by  the  Commission  on  15  June35
, 
seeks to target help on a limited number of 
neighbourhoods  within  cities  where  an 
(high 
accumulation  of 
unemployment 
low  education 
levels, 
attainment,  poor  housing,  environmental 
decay,  high  crime  rates,  etc.)  make  for  a 
generally  poor  quality  of 
life. 
Unemployment  in  poor urban  areas  tends 
to  be  significantly  higher  that  national 
averages.  The  problems  will  need  to  be 
tackled  in  an  integrated way,  by means of 
concerted  action  by  national  and  city 
authorities.  Similarly, 
the  Rural 
Development  Initiative  (Leader  II)  aims  to 
combat 
rural 
communities, when an overall development 
strategy,  based on the combined efforts of 
the  local  partners  and  the  development of 
their  skills,  has  proved  to  be  a  profitable 
approach. 

the  problem 

faced  by 

Promoting  the  social  integration  of 
disabled people 

of 

22.  More  than  10% 
total 
population  of  the  European  Union have 
disabilities.  The  needs  of 
individual 
disabled  people  may  vary  considerably 
depe~ding  on the nature of their disability, 

the 

as 

such 

coupled  ·with  factors 
their 
previous experience, their level of skill,  and 
their  personal  circumstances.  Assistance 
often  needs to  be  tailored  to  the  severity 
of  a  disability.  However,  as  a  group, 
people  with  disabilities  undoubtedly face 
a  wide  range  of obstacles  which  prevent 
them 
from  achieving  full  economic and 
social  integration.  There  is  therefore  a 
to 
need  to  build  the  fundamental  right 
equal  opportunities  into  Union  policies. 

including 

23.  -Considerable  help  has  been  given 
from 
the 
the  European  Social  Fund, 
HORIZON Initiative and the HELIOS Action 
Programme, 
the  Handynet 
system, to support and promote the training 
of disabled people so as to enable them  to 
enter  or  re-enter  the  labour  market.  The 
aim  of  this  assistance  is  to  demonstrate 
that  enabling  people 
their 
abilities is beneficial not only to themselves 
but  also  to  society  as  a  whole.  This  work 
will  continue.  In  addition,  the  Commission 
will: 

to  develop 

into  account 

build on the positive experience of the 
European Disability Forum to ensure, 
through appropriate mechanisms that 
the  needs  of  disabled  people  are 
relevant 
taken 
legislation,  programmes  and 
initiatives.  This includes ensuring that 
to 
the  maximum  extent  possible 
Union programmes are accessible to 
disabled  people  and  that  they  are 
actively encouraged  to  participate  in 
them; 

in 

how such a  model could be extended 
more  widely. 

to 

the  key 

It will also examine how Union action 
24. 
could  contribute 
issue  of 
improved access to means of transport and 
public buildings, and press for the adoption 
of  the  proposed  Directive  on  the  travel 
conditions 
of  workers  with  motor 
disabilities36

. 

The  economic and social role  of older 

·  people 

today's 

25.  The  concerns  of 
- and 
tomorrow's  - older citizens  go  beyond  the 
traditional  issues  of  pensions  and  care 
services,  vital  as  these  policy  areas  will 
continue  to  be.  The  challenge  is  bigger:  it 
is to  maintain a  high  level  of integration  of 
the  older population as  Europe ages. 

26.  Achieving 
require  new 
-this  will 
thinking  on  many  issues  that  have  been 
taken  for  granted  until  now,  such  as 
traditional  career  patterns,  retirement  age 
and  the  role  of the  nuclear and  extended 
family.  Account  also  needs to  be taken  of 
the  fact  that  women  are  in  a  majority 
among  older  people,  and  that  women  of 
this age usually have much lower incomes. 
The  European  Year  of  Older  People  and 
Solidarity  between  Generations  1993 
showed how new ideas and new practices 
can  be  promoted  at  European  level.  In 
order 
the 
forward 
Commission  will  shortly  make  a  proposal 
for: 

this  work, 

take 

to 

prepare  an  appropriate  instrument 
endorsing the  UN Standard Rules on 
the  Equalisation  of Opportunities  for 
Persons  with  Disabilities; 

.e 

a  Decision 
for  further  Union-wide 
actions to help meet the challenges of 
in 
an  ageing  population  covering, 
particular,  the role and contribution of 
the  active retired population. 

as  part  of a  process  to  encourage 
model employers,  prepare  a  code  of 
good  practice  in  relation  to  its  own 
personnel policies and practices,  and 
the 
encourage  discussions  within 
framework  of the  social  dialogue  on 

Equal opportunities for all 

27.  A  number  of  contributions  to  the 
including  the  European 
Green  Paper  -
the  Economic  and  Social 
Parliament, 

39 

• 

• 

• 

Committee  and  the  ETUC  - called  on  the 
Commission to take further concrete action 
to combat discrimination on the grounds of 
race,  religion,  age and disability.  V\lhile the 
Treaties  as they stand do not provide any 
specific  competence  for  legislation  in  this 
area,  this  is  an  omission  that  is  becoming 
increasingly  difficult  to  justify  in  today's 
-Europe.  The  Union  must  act  to  provide  a 
guarantee for all people against the fear of 
discrimination  if  it  is  to  make  a  r~ality  of 
free movement within the single market.  In 
addition to its existing work in these areas 

IV) 

(see  above  and  Chapter 
the 
Commission therefore believes that,  at the 
next  opportunity  to  revise  the  Treaties, 
serious consideration must be given to the 
introduction  of  a  specific  reference  to 
com batting discrimination on the grounds of 
race,  religion,  age and  disability.  With  this 
in  mind,  the  Commission  will  undertake 
further  work  aimed  at  demonstrating  the 
value added of specific Union level actions 
in  this  field,  as  a  natural  complement  to 
what can be achieved at national,  regional 
o(even local  level. 

40 

VII  - ACTION  IN  THE  FIELD  OF  PUBLIC  HEAL TH 

1. 
Both this VVhite  Paper and the earlier 
Green  Paper  refer  to  the  significant  links 
between  public  health  and  social  and 
environmental  policy.  These  include  the 
adverse effects  of poverty,  unemployment 
-and  social  exclusion  on  health; 
the 
increasing  pressures  on  health  and  social 
protection systems caused by demographic 
changes,  notably 
the 
the  role  of  preventive  and 
population; 
rehabilitative 
in 
fostering  social  integration;  the  impact  of 
environmental  conditions on  public health; 
and the specific health problems and needs 
arising  from  increased  mobility  within  the 
Union and  migration  into  it. 

the  ageing  of 

programmes 

health 

4. 
The  Commission  intends  to  bring 
forward  further programmes  on  AIDS  and 
other  communicable  diseases  and  on 
health  data  and  indicators,  including  the 
monitoring and surveillance of diseases, as 
a  matter of priority.  Consideration  is  also 
being  given  to  the  possibility  of  further 
programmes  in  areas  such  as  accidents 
and  injuries,  pollution  - . related  diseases 
and  rare  diseases. 

5. 
The  Commission  has  also  set  up  an 
inter-departmental  group  on  health  which 
aims,  in  line  with  the  provisions  of Article 
129, 
that  policies  being 
developed in other sectors take full account 
of health  protection  requirements. 

to  ensure 

6. 
In  formulating  and  developing  the 
Union's  action,  the  Commission  will  take 
full  account  of the  links  with  other  areas, 
and will aim  to maximise synergy between 
social  and  health  m·easures  while  being 
careful 
in 
structures,  organisation and  implementation 
between  the  two  areas. 

the  differences 

respect 

to 

In 

the 

light  of  experience 

in 
7. 
implementing the Union's health protection 
objective,  the  Commission  will  consider 
what  further  actions  may  be  required. 
In 
particular,  the  Commission will  respond  to 
requests from Member States and facilitate 
cooperation  between  them  in  areas  such 
as fundamental health choices, the delivery 
of  services  and  new  health-related 
·technologies.  One  particular  area  for 
consideration  is  that  of assisting  Member 
States to respond to health issues such as 
increased access to  services  and facilities 
·arising  from  improved  mobility  within  the 
Union. 

In 

its  Communication  on 

2. 
the 
framework for  action  in  the  field  of public 
health37  the  Commission  describes  the 
related  problems 
current  health  and 
confronting the Member States and defines 
an  approach 
the 
provisions  of Articles  3(0)  and  129  of the 
Treaty. 

implementing 

for 

level, 

Following an assessment of the scope 
3. 
the 
for  action  at  Union 
Communication provides for the possibility 
of multi-annual programmes in a number of 
areas.  Proposals for Decisions on  'three of 
these programmes have been adopted  by 
the  Commission  to  be  considered  by  the 
Council  and  Parliament  under  the  co 
decision  procedure  for  implementation  in 
1995.  These  are  programmes on: 

• 
• 

• 

cancer 
health 
education  and  training 
prevention  of drug  dependence38 

promotion, 

information, 

41 

VIII  -

TRADE  UNIONS,  EMPLOYERS'  ORGANISATIONS  AND  VOLUNTARY  ORGANISATIONS  AS 
PARTNERS  IN  THE  PROCESS  OF  CHANGE 

if  social 

reforms  are 

1. 
The  challenges  set  out  in  the  Green 
Paper and  the  responses  to  them  from  all 
sides  leave  no  doubt  that  consensus  is 
needed 
to  be 
effectively  realised.  Moreover,  in  a  fast 
changing  Europe,  the  legal  process  has 
difficulty in  keeping  pace with  events.  The 
internationalisation  of  the  forces  behind 
change,  both  economic and  social  as  well 
as  demographic,  also  argues  for  new 
mechanisms which, in synergy with the law 
state 
maker, 
regulation to find  their proper place. 

legislation  and 

allow 

in 

creating 

2. 
The historical and cultural traditions of 
the  Member States have  made  it possible 
to  build  a  European  social  model  of 
consensus, 
reconciling  economic 
effectiveness  and  social  solidarity.  The 
social partners have played a crucial role in 
this  process,  both  through  cooperation 
between the state, employers and the trade 
unions  on  economic  and  social  policies, 
and through the establishment of relations 
based  on  agreement  between  employers 
and  trade  unions.  In  particular,  collective 
bargaining  has  proved  to  be  a  flexible 
instrument 
consensus, 
encouraging an equitable distribution of the 
results  of economic  progress  and  smooth 
adaptations  to  shifts  in  the  productive 
process and social changes.  For example, 
in  the  ECSC  industries  (coal  and  steel), 
where such shifts and changes have been 
numerous,  both  passive  and  active  social 
measures  have  been  carried  out  in  the 
framework  of  sectorial  consultation  and 
consensus.  The  high 
level  of 
unemployment  illustrates the  need for  the 
social  partners  to  give  more  weight  in  the 
the 
collective  bargaining  process 
reintegration  of the  unemployed.  Equally, 
a strong role is played in all Member States 
by  the  large  number  of  voluntary  and 
welfare  organisations. 

to 

this 

facing 
for 

The  massive  structural  changes 
3. 
the  Union  pose  new 
currently 
challenges 
system.  The 
development  of  the  Union's  labour  law  is 
now confronted with  a need for new,  more 
flexible  mechanisms  of  social  regulation 
which  can  adapt  to  the  speed  and  the 
extent  of  these  changes.  This  requires  a 
new  complementarity  between  legislative 
regulation  and  collective  agreements,  the 
increased participation of the social partners 
in  the  preparation  of the  measures  under 
consideration  at  Union  and  national  level, 
and 
between 
employers and workers organisations.  The 
corresponding  social  adjustments  will  also 
require the full involvement of the voluntary 
and  other representative  organisations. 

cooperation 

stronger 

A  - PROMOTING  AND  STRENGTHENING  THE 

SOCIAL  DIALOGUE 

The  existing  cooperation  between 
4. 
management  and  labour  has  now  been 
consolidated by the new framework defined 
by  the  Agreement  on  Social  Policy.  The 
Agreement  recognises  and  formalises  the 
double  function  of  the  social  dialogue: . 
consultation  of· the  social  partners  at  the 
Union  level,  and  the  right  of  the  social 
partners to negotiate agreements which can 
either be given binding  legal effect or place 
obligations  only  on  the  signatories.  From 
now  on,  it  is  possible  for  European  social 
regulation  to  rest  on  both  the  legislative 
initiative  of  the  Union 
institutions  and 
collective  bargaining  between  the  social 
partners.  This  process,  which  needs  to 
evolve  and  develop  over  time,  will  enable 
the  development  of  a  new  partnership 
between  economic  and  social  actors, 
making  it  possible  to  adapt  effectively  to 
structural  change. 

The  Commission  has 

5.· 
Communication  on  how 

issued  a 
these  new 

42 

procedures  will  operate39
•  The  key 
message  of  the  Communication  is  that 
although  some  elements  of  a  European 
level  social  diarogue  are  already  in  place, 
its  development  towards  an  organic  and 
structured system  of industrial relations for 
the  Union  still  requires  progress. 

In 

terms  of  structures,  action 

6. 
is 
needed on a number of points. Specifically, 
the  existing  consultative  committees  need 
to  be restructured  in order to take account 
of a number of new elements  such  as  the 
the 
enlargement  of 
the  Union  with 
accession  of  new  members; 
the 
composition  of 
social  partners' 
the  question  of 
delegations, 
representativity;  the  relationship  between 
legislation  and  collective  agreements;  and 
the  relationship  between  consultation  and 
negotiation. 

and 

the 

7. 
The  Commission  will  therefore  bring 
forward  proposals  for  Decisions  designed 
to  reexamine: 

• 

• 

the  mandate  and composition  of the 
Standing  Employment  Committee  in 
the  light of the  implementation of the 
Agreement  on  Social  Policy. 
Consideration will be given to giving it 
a new role  so that it would become a 
Standing  Committee on  Employment 
and Social Policy,  and 

the  number,  mandate,  coverage  and 
composition  of  the  sectoral  social 
dialogue committees. The linkage with 
the  existing  and/or  strengthened 
interprofessional  Consultative 
Committees  will be improved. 

the 

8. 
level 
The  promotion  of  European 
social dialogue necessarily relies in the first 
social  partners' 
instance  on 
organisations themselves. The contribution 
of the Commission to this process rests on 
the following  objectives:  balanced  support 
for the  parties;  training  and  information on 
European  issues;  extending  the  results· of 

the  European  social  dialogue  at  national 
level;  and  the  relationship  between  the 
various  levels  of dialogue. 

9.  With  a  view  to  helping  the  social 
partners to develop the social dialogue, the 
Commission  therefore  proposes  to  bring 
forward: 

• 

the 
discussion  document  on 
a 
development  of the  social  dialogue, 
focusing on  balanced support for the 
parties and implementation of Articles 
3  and 4  of the  Agreement  on  Social 
Policy. 

for 

include, 

for  both  sides  of 

inter  alia, 
10.  This  would 
for  the  establishment  of  a 
proposals 
training  centre 
industrial 
European 
the  rationalisation  of  financial 
relations; 
support  for the  social  partners  with  a  view 
to strengthening  action to  ensure balanced 
support 
the  social 
and  a  dissemination  and 
dialogue; 
awareness-raising  programme  about  the 
European level social dialogue,  with a view 
to  extendin,g  it  at  national  level.  This  will 
the  promotion  of  meetings, 
involve 
seminars, 
(Joint 
Opinions,  agreements,  etc.)  and  of 
and 
exchanges 
interregional  levels. 

studies,  publications 

at  Union, 

national 

the  Commission 
11.  More  generally, 
believes  that,  in  order  to  respond  to  the 
current  changes  in  the  labour  market,  the 
social dialogue could usefully be broadened 
in  a  number of ways.  In  this  context,  it  will 
make  proposals  to  : 

• 

the  social  partners  at 
encourage 
European  level  to  consider  how  the 
search  for high  labour standards can 
be  pursued  as  an  integral  part  of 
In  order  to 
improved  productivity. 
maintain 
Jabour 
and 
in  a  competitive  world 
standards 
economy,  Europe  needs  a  renewed 
from  both  sides  of 
commitment 
the  pursuit  of  quality 
to 
industry 

improve 

43 

production  processes  with  high 
productivity. 

This  would  cover  such  issues  as 
access  to  continuing  training  for  all 
employees  (including  management), 
for  ensuring 
new  mechanisms 
employee  participation  and 
full 
the  new 
exploitation  of  all 
opportunities  offered  by  the  new 
technologies.  The  practical problems 
faced  by  very  small  companies  in 
rapidly  changing 
adapting 
business  environment  would  need 
special attention. 

to  a 

stimulate the involvement of the social 
partners at European level in  actions 
to  address 
the  question  of  the 
conditions  of  employment  of  third 
country  nationals  legally  resident  in 
the  Union  and the  possible  adoption 
of good employment practice against 
racial discrimination (see Chapter IV), 
to  devise  measures 
to  support 
positive  action  for  women  within  the 
public and private sector (see Chapter 
VJ,  to encourage model employers to 
help  disabled  people  at  work 
(Chapter  VI),  and  to  address  major 
new issues such as reconciling family 
and work,  exclusion  and ageing. 

drawn  between  the  negotiating  processes 
now  established  under  the  Agreement  on 
Social  Policy  and  the  consultations  which 
the European Union must undertake to deal 
with social  problems which  cannot be  dealt 
with  by  collective  bargaining.  In  relation  to 
problems,  such  as  exclusion, 
racism, 
demographic trends and  ageing,  the  Union 
needs to  develop partnerships with a wider 
range  of  institutions,  including  employers 
and trade unions in  view of their civic rather 
than  their collective  bargaining  functions. 

13. 
In  addition to the  strengthening of the 
social dialogue, the Green Paper raised the 
question  of  the  need  for  an  "appropriate 
forum  for discussion  in  which  the  strategic 
problems  of  European  society  could  be 
debated 
in  an  open  and  democratic 
manner".  The  responses  to  this  question 
varied.  V\/hile  the  Commission  does  not 
think  it  appropriate  for  the  social  dialogue 
as  such  to  take  on  this  role,  given  its 
the  process  of 
purpose  of  nourishing 
collective  agreements  between  the  two 
sides  of 
that 
appropriate  mechanisms  are  needed  to 
associate other relevant organisations,  with 
the evolution of European social policy. This 
is  also  in  line  with  the  declaration  in  the 
Treaty  on  European  Union  on  cooperation 
with welfare  organisations. 

industry, ·  it  does  agree 

• 

8  - DEVELOPING  THE  ROLE  OF 
VOLUNTARY  ORGANISATIONS 

THE 

14.  The  Commission  therefore  proposes: 

• 

to  institute  a  Forum  for  debate  and 
discussion  on  social  policy  issues, 
along  the  lines  of the  Green  Paper 
conference  held  in  May  1994.  This 
Forum  would  be  convened  every  18 
the  widest 
involve 
months  and 
possible  range  of interested  bodies. 
The 
first  meeting  will  be  held  in 
October 1995. 

12.  Whilst  recognizing  the  unique  role 
played  by  consensus  and  collective 
agreements between employers and trade 
unions  i,n  the  European  social  model,  it  is 
that  voluntary  and  other 
clear 
representative organisations have a right to 
be consulted by the Union and to play their 
role  in  the  process  of change.  It  is  for this 
reason  that  a  clear  distinction  has to  be 

44 

IX -

INTERNATIONAL·COOPERATION  - THE  ROLE  OF  EUROPEAN  SOCIAL  POLICY 

1. 
The  European  social  model  is  not 
impervious to outside influences from other 
parts  of the  world,  nor  can  it  be  ignored 
that  the  achievement  in  Europe  of  a 
reasonable  balance  between  wealth 
justice 
. .creation, - freedom  and  social 
appealed  to  the  peoples  of  Central  and 
Eastern  Europe  and  contributed  to  the 
collapse  of  Communism.  And  while 
European  rigidities  were  ~he  subject  of 
considerable  criticisms  from  the  United 
States in the period after the oil shocks, the 
·current US/Europe debate (as for example 
at the G7 Summit on Jobs) recognizes that 
much can  be  learned  from  the  European 
level  of  social 
commitment  to  a  high 
the 
protection.  On 
Japanese  socio-economic  model,  which 
has been the subject of debate in  Europe, 
is  .beginning  to  evolve  towards  a  new 
balance between  security and flexibility. 

the  other  hand, 

A  - BILATERAL  AND  MULTILATERAL 

COOPERATION 

2. 
The fact that European social policy is 
now emerging increasingly in the context of 
the  external  relations  of the  Union  arises 
not  only  from 
interaction  between 
different  socio-economic models,  but  also 
from  the  reality  that  world  competition  is 
increasingly  socio-economic  in  character. 
The  Commission therefore  intends: 

the 

• 

to systematise exchange and contacts 
with  other industrialised  countries;  a 
programme  of  exchanges  of 
experience  already exists with Japan, 
and dialogue with the US in the social 
The 
field  will  be  widened. 
to 
intends 
Commission  also 
strengthen 
international 
links  with 
organizations  such  as  OECD,  /LO, 
the Council of Europe and the  United 
Nations. 

45 

consideration  of 

3. 
The  World  Summit  on  Social 
Development,  to  be  held  in  March  1995 
under  UN  auspices,  demonstrates  the 
increasing  importance being attached to  a 
joint 
social 
the 
the  evolution  and 
consequences  of 
transformation  of  the  world.  The  Summit 
will  be  an 
for  such 
discussions,  and  will  take  employment, 
social  integration  and  reduction of poverty 
as  its  central  themes. 

important 

forum 

• 

The  Commission,  in  the  light  of its 
work on the  White  Paper on  Growth, 
Competitiveness  and  Employment, 
and  more  broadly  because  of  the 
the  European 
values 
social  model  will  have  a  special 
contribution to  make. 

inherent  in 

4. 

The  Commission  also  intends: 

• 

to 
continue 
cooperation  with 
Labour Organisation. 

its 

the 

long-standing 
International 

in  a  constructive 

In this context,  it will be important to ensure 
that  an  acceptable  solution  is  found  to 
the 
resolve 
outstanding  questions 
the 
participation  of  the  Community  and  the 
Member States at the  International Labour 
Conference,  recognising  that  the  tripartite 
nature  of that  body  requires  a  particularly 
careful  approach  to  be  taken  by the  EU. 

fashion 
to 

related 

5. 
In  the  run  up  to, the  enlargement  of 
the  Union  in  1995,  the  Commission  will 
also: 

• 

continue  to  play  an  active  role  in 
ensuring cooperation on social policy 
within the framework of the European 
Economic Area  agreement. 

8  - RELATIONS  WITH  THE  COUNTRIES  OF 
CENTRAL  AND  EASTERN  EUROPE 

• 

6. 
The Union has been actively engaged 
in assisting the transition process in Central 
and  Eastern  Europe  through  PHARE,  and 
now has  Europe Agreements with  most of 
the  countries  concerned.  Two  of  them 
. -{Hungary  and  Poland)  have  already 
entered into force,  and these two countries 
have applied to be members of the  Union. 
Their future  integration was  agreed  as  an 
objective  by  the  Copenhagen  European 
Council  in  .June  1993.  This  means  that 
policy cooperation between the two parts of 
Europe  needs  to  be  reinforced,  and  that 
technical  and  financial  assistance  by  the 
Union within the G.24 framework needs to 
respond to the requirements for such policy 
cooperation  at European  level. 

poverty  and 

7.  With  regard  to  the  social  aspects  of 
the transition,  there  is  now a  need to  look 
again  at  the  serious  social  problems  that 
levels  of 
have  emerged,  notably  high 
unemployment, 
social 
exclusion,  which  have  also,  of  course, 
important  political  repercussions.  These 
countries  need  socio-economic  policies 
aimed  at  active,  competitive  and 
fair 
societies and which make the best possible 
use of their major comparative advantages 
economy.  PHARE 
in 
global 
to  support 
programmes  have  begun 
institutional developments in that direction, 
regional 
including 
support  of 
development  to  promote  an 
integrated 
reconversion, 
industrial 
approach 
support  for  an  autonomous  civil  society, 
structures  for  social  dialogue,  and  the 
promotion  of SMEs  and  local  job  creation 
programmes. 

the 

the 

to 

8. 
The  time  is  therefore  ripe  for  a well 
focused policy discussion between EU and 
Central and Eastern European countries on 
a  number of social  issues.  Making full  use 
of the  existing structures and mechanisms 
established  by  the  Europe  Agreements,  it 
will  be  one  of the  Commission's  tasks: 

46 

to  help  formulate  responses  to  the 
(social 
most  acute  difficulties 
consequences  of 
industrial 
restructuring,  the  implementation  of 
employment policies, the fight against 
poverty  and  social  exclusion  and 
setting  up  social  security  systems, 
etc.) and to organize cooperation with 
the  help  and  support  of  Member 
States. 

C  - SOCIAL  QUESTIONS 

IN  RELATION  TO 

INTERNATIONAL TRADE 

9. 
The  comments  on  the  Green  Paper 
generally endorse the  view that discussion 
is  now  necessary  on 
the  social  rules 
needed  to  complement  trade.  The  Union 
recognizes that other regions may need to 
compete on the basis of lower labour costs, 
based  on  lower wages,  longer  hours  and 
more difficult conditions,  but  it  is  not in  the 
interests  of  international  cooperation  that 
the exploitation of workers should become 
an  instrument of international  competition. 
VVhile  rejecting  for  reasons  of  principle  a 
protectionist approach,  it  is  in the  interests 
of  all  that  social  progress  becomes  a 
generally  held  political  objective  as 
economies 
develop.  A  multi-lateral, 
progressive and multi-faceted approach to 
social rules is therefore proposed, which is 
founded  on  partnership  and  positive 
less 
incentives 
developed  countries. 

for  social  progress 

in 

1 O.  An  important  element  of  this  is  the 
recently  adopted  guidelines  for  the  new 
include  special 
ten-year  GSP  scheme 
incentives,  one  of  which 
is  the  social 
clause.  It aims at ensuring the promotion of 
quality development by helping developing 
countries  to  face  the  additional  cost  of 
more advanced social policies,  in particular 
the  right  of  association  and  of  collective 
bargaining,  and 
the  abolition  of  child 
labour. 

11.  Another important contribution to this 
positive  orientation  of  the  external  union 

policy  is 
-the  promotion  of  economic 
cooperation  and  aid  by  the  European 
Union,  for example in  Central and Eastern 
Europe,  which should recognise the social 
dimension  of economic  progress  and  the 
need  for  improved  social  standards  when 
possible. 

In addition, the Commission considers 
.. 12. 
that  the  future  World  Trade  Organization, 
which  will  play  a  major  role  as  an 
international forum for discussions on trade 
matters,  must tackle the  subject without 

delay,.  so  that  respect  for  basic  social 
rights,  notably the  right  of association  and 
the  right  to  collective  bargaining,  forced 
labour and child labour, are reflected in the 
taken.  The  Corfu  European 
decisions 
Council concluded that the European Union 
will  play an  active  role  in  efforts to  ensure 
that  the  wro can  carry  out  effectively  its 
task  of  ensuring  observance  of the  rules 
drawn  up jointly  and  promote  progress  in 
com batting unfair trade conditions, and that 
environmental  and  social  issues  will  have 
to be, discussed  in  this  context. 

47 

X -

TOWARDS  A  MORE  EFFECTIVE  APPLICATION  OF  EUROPEAN  LAW 

1. 
This White Paper has made clear that 
much  has  already  been  achieved  by  the 
Union  in  terms  of legislative  action  in  the 
social field.  But if such legislation is to have 
a real impact on the situation of individuals 
.-in  Europe,  it is essential to ensure that it is 
not only adopted, but that it is also properly 
applied.  This has been a problem  in  some 
areas  in  the  past,  and  the  Commission  is 
committed to ensuring that,  in the future,  a 
greater  emphasis  will  be  placed  on  the 
effective  implementation and  enforcement 
of Union  law." 

A  -

TRANSPOSITION  AND  IMPLEMENTATION 
OF  DIRECTIVES 

2. 
Article  155  of the  Treaty  states  that 
the  Commission  shall  "ensure  that  the 
provisions of this Treaty and the measures 
taken  by  the  institutions  pursuant  thereto 
are applied ... " . 

is 

to 

transposition 

the  notification 

Directives  require 

in 
3. 
national  law,  and  the  first  step  in  this 
the 
process 
-- Commission  by  Member  States  of  the 
national  measures  adopted  to  implement 
law.  The  Commission 
agreed  Union 
considers 
level  of 
the  current 
that 
compliance  and  transposition  of  Union 
legislation,  as  shown  in  Table  1,  .neegs  to 
be  improved. 

TABLE 1  :  PROGRESS  IN  TRANSPOSING  DIRECTIVES  APPLICABLE  TO  EMPLOYMENT AND  SOCIAL 

Poucy40 

Member States 

Directives applicable 
on  31.12.93 

Directives for which 
measures  have been 
notified as at 31.12.93 

Belgium 

Denmark 

Germany 

Greece 

Spain 

France 

Ireland 

Italy 

37 

37 

3841 

3642 

37 

37 

37 

28 

32 

27 

24 

25 

29 

32 

% 

76 

86 

71 

67 

68 

78  l 
86  J 

Note: Table 1 concerns Directives:  68/360, 75/117, 75/129, 76/207, 77/187, 77/576, 78/610, 79/007, 
79/640,  80/987,  80/1107,  82/130,  82/605,  83/477,  86/188,  86/378,  86/613,  88/035,  88/364,  88/642, 
89/391,  89/622,  89/654,  89/655,  89/656,  90/239,  90/269,  90/270,  90/394,  90/659,  90/679,  91/269, 
91/322,  91/382,  91/383,  91/533,  92/041,  92/057 

48 

The 

situation 

transposition 

4. 
is 
particularly serious as concerns the health 
the 
and  safety  legislation  flowing  from 
health and safety framework Directive.  As 
of 30  June  1994,  only  one  Member State 
had transposed  all  of the  Directives which 
were  in  force,  and five  had not yet notified 
measures  to  transpose 
the  framework 
Directive itself {see Table 2).  During the 

to  discuss 

course  of  1994,  in  parallel  with  pursuing 
legal  action  where  necessary, 
the 
Commission  has  held  a  series  of bilateral 
in 
meetings 
the  problems 
transposing  - these  directives  and 
to 
encourage  action  to  resolve  them,  and  it 
will  continue  to  give  priority  to  ensuring 
prompt transposition of all legislation in the 
social field. 

TABLE  2  :  STATUS  OF  TRANSPOSITION  OF  HEALTH  AND  SAFETY  LEGISLATION  FLOWING 
FROM  THE  FRAMEWORK  DIRECTIVE 

Directives 

B 

DK 

D 

E 

F 

GR 

f  1R~I I  L  I NL  I PT  . L ~~- . 

89/391 
Framework 

89/654 
Workplace 

T 

T 

T 

T 

N 

N 

N 

N 

T 

T 

N 

31.12. 
1994 

T 

T 

N 

N 

N 

N 

T 

T 

T 

T 

T 

T 

T 

N 

N 

N 

T 

T 

N 

N 

T 

89/655 Work 
equipment 

T 

N 

N 

N 

89/656 
Personal 
protective 
equipment 

N  TlT  r 
~~-~-~-l_;_~_o_f-~T-~-T-~-N-~-N-~-T-~-N-~-T--~-~J=-~-~ 

N 

N 

T 

T 

T 

T 

T 

T 

T 

N 

N 

T 

N 

T 

N 

N 

T 

T 

T 

90/270 
Display 
screen 
equipment 

lt-----+---+--~-+--------!-c~~~~r-~-~~--- --~~~-------+--------] 

T 

N 

N 

N 

N 

90/394 
Carcinogens 

90/679 
Biological 
agents 

92/57 
Construction 

92/58 
Safety Signs 

93/88 
Biological 
agents 
(amendment) 

T 

T 

T 

N 

T 

T 

N 

N 

N 

N 

N 

N 

N 

N 

N 

T 

T 

T 

T 

T 

N 

N 

N 

N 

N 

T 

T 

N 

N 

T 

N 

N 

N 

N 

N 

N 

N 

N 

N 

N 

T 

T 

T 

N 

2a.11.  N 
1995 

N 

N 

T 

N 

N 

31.12. 
1995 

N 

N 

N 

T 
N 

Transposition  into  national  legislation  communicated 
No  communication  of transposition 

49 

Once  national 

transposition 
5. 
measures  have  been  communicated,  the 
Commission carries out a detailed analysis 
to check the conformity of the national law 
with  that  adopted  by  the  Council  and 
prepares  an  implementation  report  in  the 
light  of  any  necessary  further  multilateral 
and bilateral meetings with Member States. 
. .lt  also  considers  any  complaints  received 
about  the  national  measures  that  have 
been adopted,  and will  collaborate  closel~· 
the 
the  European  Ombudsman, 
with 
Parliamentary Committee on Petitions and 
the  Temporary  Committee  of  Inquiries  in 
the investigation of alleged contraventions 
or  maladministration  connected  with  the 
implementation  of Union  law. 

8  -

ENFORCEMENT 

implemented 

8. 
The fact that Regulations are directly 
applicable  in  Member  States,  and  that 
in 
Directives  have  been 
national  law does not,  in  itself,  ensure the 
effective  application  and  respect  of  such 
legislation.  The  Commission  has  a 
responsibility on the basis of Article  169 of 
the  Treaty  to  ensure  that  Member  States 
respect  and  apply  Union  obligations.  In 
addition,  Member States'  authorities  must 
ensure  ...  that  Union 
fully 
enforced  through,  inter  alia,  appropriate 
systems  of control  or sanctions  which  are 
effective  in  practice  and  have  a  deterrent 
value. 

legislation 

is 

is 

in 

implementation 

The  participation  of 

the  social 
6. 
partners 
also 
essential.  The  Commission  will  provide 
support  for  the  social  partners  in 
the 
in 
implementation  of  directives  and, 
particular,  will  address  when  appropriate 
the problem of implementation of directives 
by collective agreements in Member States 
which  have  no  legal  tradition  of  erga 
omnes  collective  agreements. 
The 
Commission  will  ensure  that  agreements 
on the transposition of directives contain a 
reference  to  these  directives,  and  will 
the 
discuss  with 
Commission's  draft 
the 
implementation  of  certain  directives  and 
recommendations  in  the  social field. 

the  social  partners 
reports  on 

infringement  procedures 

The  Commission  pursues, 

as 
7. 
necessary, 
in 
cases  where  Member  States  have  either 
failed to communicate the relevant nati_onal 
law,  or when  that  law  ~s  considered  to  be 
defective. The Commission will also ensure 
that 
infringement  proceedings  against 
Member States are preceded by a general 
evaluation of the national law concerned, to 
avoid,  as  far  as  possible,  the  initiation  of 
proceedings on  single  and  isolated points. 
It  will  also  cooperate with  Member States' 
institutions 
of 
the 
infringements. 

investigation 

in 

in 

for 

the 

cooperation 

The  Commission's  Communication 
9. 
the  development  of  administrative 
on 
cooperation 
implementation  and 
enforcement  of  Community  legislation  in 
internal  market44  set  out  a  policy 
the 
framework 
between 
Member  States'  administrations,  and 
between them and the Commission, for the 
enforcement  of  European  law,  which  has 
been  endorsed  by  the  Council  Resolution 
on  the  sa!11e  topic45
.  In  the  field  of  social 
policy this should involve the enhancement 
of  existing,  well  established  mechanisms 
for administrative  cooperation such as the 
Administrative  Commission 
in  Social 
Security,  the Technical Committee on free 
the  Senior  .  Labour 
movement,  and 
the 
Inspectors  Committee. 
In  addition, 
the 
Commission  will  also  encourage 
reinforcement  of  the  Directors  General 
networks (Employment, Industrial Relations 
and Social Protection) and the extension of 
labour  inspectors  networks  to  fields  other 
than those of health,  safety and hygiene at 
work. The existing partnership with national 
authorities has also  proved to  be  useful  in 
the implementation of the directives on the 
mutual  recognition  of diplomas. 

The  Commission  will  also  continue 
10. 
to  develop,  in  the  framework  of  the  IDA 
Programme (Interchange of Data between 

50 

Administrations) once adopted,  the TESS 
for 
SOSENET  Programme  (Telematics 
Social Security) to improve the exchange of 
data  between  social  security authorities  in 
the context of social security regulations for 
migrant workers,  and  the  EURES  network 
(see  Chapter  IV).  The  Commission  will 
examine to what extent telematic networks 
_could  cover  other  social  fields,  such  as 
industrial  relations,  public  health,  health 
and  safety at work and  social  protection. 

The  Commission  also  favours  the 
11. 
creation  by each  Member State  of central 
contact points which will ensure the flow of 
information  between  Member  States,  and 
between  them  and  the  Commission  on 
social  matters,  in  particular  health  and 
safety  at  work,  labour  law  and  industrial 
relations and equality of treatment between 
women  and  men.  With  respect to  existing 
legislation,  the  Commission proposes that 
information  ·on  contact  points  should  be 
notified  by Member States  before  the  end 
of 1994.  Contact points have already been 
created 
the 
professional  recognition  of  diplomas.  For 
future  legislation  this  information  should 
become  a  normal  part  of  the  process  of 
implementation, to be communicated to the 
Commission with the transposition  text. 

for  all  Directives  on 

12. 
\/Vhere  a Member State fails  to take 
the  necessary  measures to  comply with  a 
judgement  of  the  Court  of  Justice,  the 
Commission,  following  the  procedure  laid 
down  by  Article  171  of  the  Treaty  will,  if 
necessary, bring the case before the Court 
of Justice  together with  a  proposal  of the 
amount  of  the 
lump  sum  or  penalty 
payment  to  be  to  be  paid  by  the  Member 
State  concerned  which 
it  considered 
appropriate  in  the  circumstances. 

C  -

ADAPTING EXISTING LEGISLATION TO A 
CHANGING  WORLD 

The  Commission  accepts  that,  in 
13. 
order to  adapt to  a  changing  world,  Union 
regulations  should  be  regularly  review·ed 

51 

the 

law  Directives, 

and, 
if  necessary,  amended  or  even 
repealed.  For  example,  with  regard  to 
labour 
·collective 
dismissals  Directive  was  amended 
recently46  and  the  insolvency  Directive  is 
under  study.  A  proposal  mddifying  the 
Directive  on 
rights  of 
employees  in  the  case  of  transfers  of 
undertaking will  be  presented  shortly. 

the  acquired 

14.  On  health  and  safety, 
the  main 
body of legislation  is  very  recent,  and  the 
is  on 
Commission's.  main  emphasis 
ensuring the correct application of the texts 
adopted. However, where possible existing 
texts  on  specific  risks  are  being  reviewed 
and  consolidated  into  broader  directives. 
the  proposed 
An  example  of  this 
chemical  agents  directive47
if 
,  which, 
three  previously 
replace 
adopted,  will 
adopted  directives48  on  specific risks. 

is 

the 

15. 
The  Commission  will  continue  to 
incorporation  of  revision 
propose 
clauses  in  future  directives,  with  a view to 
ascertaining  whether  and  to  what  extent 
legislation -$hould  be  revised.  In  addition, 
Union  legislation  needs  to  be  kept  under 
review  in  the  light  of  Court  judgements, 
either to  consolidate the  legislation to take 
account  of judgements  of the  Court,  or to 
review  legislation  in  cases  where  Court 
interpretations  raise  the  issue  of the  real 
intentions  of the  legislator.  This  process 
will be carried out on a case by case basis 
by  the  Commission,  in  close  cooperation 
with  the  Council  and  Parliament. 

0  -

IMPROVING  ACCESS  TO  AND  THE 
TRANSPARENCY  OF  UNION 

LEGISLATION 

the  Union's 

The  final  element  in  ensuring  the 
1:6. 
effectiveness  of 
social 
legislation is to ensure easy access to it for 
all.  The Commission will provide more and 
information  concerning  people's 
better 
rights  and  opportunities  and 
social 
developments 
In 
the  social 
addition  to  existing  publications  such  as 

field. 

in 

legislation,  a  guide 

Social Europe, the Social Protection report 
and  the  annual  Employment  in  Europe 
report,  the Commission also encourage,  in 
cooperation  with  Member  States, 
the 
publication  of  guides  on  Union  social 
the 
legislation  and  memoranda  on 
interpretation  of  existing  Union  rules.  By 
the  end  of  1995,  this  will  include,  the 
. .publication  of a  compendium  on  all  Union 
to  national 
social 
implementing  measures 
s0cial 
for 
legislation,  the  distribution  of  guides  on 
for  European  citizens 
social  . security 
moving within the  Union,  the adoption of a 
Memorandum on acquired rights of workers 
in  cases  of transfers  of undertakings,  and 
a  series  of publications  on  equality  in  law 
between men and women in  the Union.  In 
addition,  a  vademecum  on  the  use  of the 
general  system  of  diplomas  will  be 
published  shortly,  and  a  repertory  of 
national and Union legislation on regulated 
professions will  be  elaborated. 

to 

in  order 

Furthermore, 

foster 
17. 
the 
increased  mobility  with  the  Union, 
to  provide 
Commission  will  continue 
information on living and working conditions 
in the  Member States,  notably through the 
EURES  database (see  Chapter  IV). 

inter-alia,  undertake 

18. 
In order to improve the transparency 
and  clarity  of  Union  law,  the  Commission 
will, 
in  1995  the 
codification  of  Regulations  in  the  field  of 
social  security 
for  migrant  workers, 
consolidate  the  Directives  on  collective 
dismissals,  and  consolidate 
the  Union 
legislation  on  rights  of residence . 

19. 
The  Commission  will  also  promote 
the  progressive  introduction  of  efficient, 
reliable  and  user-friendly  communication 
and data-exchange systems and adapt and 
improve  the  efficiency  of  its  data-base 
systems, 
in  particular  Info  '92,  Celex, 
Eurobases and the electronic catalogue of 
Union  publications. 

Finally, 

the  Commission  believes 
20. 
that the exchange of experiences and best 
practice  among  Member States  should  be 
promoted. 
In  this  context,  it will  stimulate 
the organisation of meetings, seminars and 
cont erences on enforcement and faster the 
exchange  of  national  officials  and  joint 
training programmes for enforcement. The 
comparative study on working conditions in 
the twelve Member States published in the 
Social  Europe  supplements  of  1992  and 
199349
,  will  also  be  updated  and 
supplemented  at regular  intervals. 

52 

NEXT STEPS 

1. 
This  \l\lhite  Paper  has  set  out  a 
strategy  for  consolidating  and  developing 
the  Union's  action  on  social  policy for the 
future. 
It  has  proposed  a  number  of 
specific measures where concrete progress 
. Gan  be  achieved  in  the  short term.  . It  has 
also proposed other areas for consideration 
and development over a longer time frame. 
These  actions  will  be  consolidated  in  the 
incoming  Commission's work programme, 
which  will  be  presented  during  1995 
following  consultations  with  the  Member 
States,  the  Union  Institutions  and  other 
interested bodies on the proposals set out 
in  the \l\lhite  Paper. 

It  is clear that European social  policy 
2. 
is at a watershed. Although much has been 
achieved, this \l\lhite Paper has made clear 
that much remains to be done.  The Social 
Charter was an important milestone for the 
Union,  but  many  responses  to  the  Green 
Paper - including the European Parliament, 
the  Economic  and  Social  Committee  and 
the  ETUC  - have called for a further step 

forward,  with  the  establishment  of  the 
fundamental  social  rights  of citizens  as  a 
constitutional  element  of  the  European 
Union.  Doubtless  this  vital  issue  needs  to 
be  considered  in  the  context  of  future 
revisions of the Treaties.  Certainly, there is 
a need to ensure that all  people  in  Europe 
are  aware  of,  and  are  able  to  exercise, 
their fundamental  social  rights.  This  is  the 
only  way  of  achieving.  a  Europe  of 
opportunities  for  all,  which  has  been  a 
recurrent theme of this \l\lhite Paper.  As its 
specific  contribution  to  this  process,  the 
Commission  will  take forward  during  1995 
its  proposals  for  a  joint  hearing  on  the 
future of the Social Charter (Chapter 111),  a 
free  movement 
high 
(Chapter  IV)  and  a  social  policy  Forum 
(Chapter VIII).  These proposals will  play a 
valuable,  interrelated,  role  in  helping  to 
identify  and  give  a  stimulus  to  new ways 
forward, 
forming  part  of  an  ongoing 
process  to  ensure  that  European  social 
policy  is  p4t when  it  belongs,  at  the  heart 
of the  Union. 

level  panel  on 

53 

1. 
2. 
3. 
4. 

5. 
6. 
7. 
8. 
9. 
10. 
11. 
12. 
13. 
14. 

15. 
16. 
17. 
18. 
19. 
20. 

21. 
22. 
23. 
24. 
25. 
26. 
27. 
28. 
29. 
30. 
31. 
32. 

33. 
34. 
35. 
36. 
37. 
38. 

39. 
40. 
41. 

42. 
43. 
44. 
45. 
46. 
47. 
48. 

49. 

COM  (93) 551  of 17.11.93 
Supplement6/93 of the  Bulletin of the  EC 
COM  (93) 600 final of 14.12.93 
The  Employment Observatory, comprising MISEP  (mutual information system  on  employment), SYSDEM  {European system  of 
documentation on  employment),  NEC  (Network  of  employment  coordinators)  and  the  Central  and  Eastern  Europe  bulletin; 
European Observatory of Industrial Relations {EURi);  MISSOC (mutual Information exchange on social protection); the  European 
Observatory of national family policies; the Observatory  on national policies to combat social exclusion; the Observatory on ageing 
and older people; and the Observatory on complementary pensions .. 
Responses to the V\lhite  Paper on Growth, Competitiveness and Employment and to  the Green Paper on Social Policy. 
OJ  L181  OF 23.07.93 
COM  (89) 568 final of 29.11.89 
92/85/EEC (OJ  N°  l  348 of 28.11.92) 
COM  (94) 88 of 30.03.94- adopted text not yet published in the Official Journal 
93/103/EC (OJ  N°  l  307 of 13.12.93) 
91/533/EEC (OJ  N' L288of18.10.91) 
92/56/EEC (OJ  N°  L 245 of 26.08.92) 
COM  (94) 134 final of 13.04.94 
Draft Directive concerning the  European Company Statute (OJ  N°  C 263 of 16.10.89), draft Directive on procedures for informing 
and  consulting  employees (OJ  N'  C  297  of 15.11.80 and  OJ  N'  C  217 of 12.08.83), draft  Directive  on  the  establishment of 
European Works  Council in  Community-scale undertakings (OJ  N°  C 39 of 15.02.91  and  OJ  N°  C 336 of 31.12.91 ), draft Fifth 
Directive  concerning the  structure of public limited companies and the  powers and obligations of their organs (OJ  N'  C  240 of 
19.08.83), draft Directive supplementing the statute for a  European association with regard to  the  involvement of employees (OJ 
N' C 99 of 21.04.92), draft Directive supplementing the statute for a European cooperative society with  reg~rd to  the involvement 
of employees (OJ  N.  C 99 of 21.04.92),  and draft Directive supplementing the statute for a  European mutual  society with regard 
to  the  involvement of employees (OJ  N' C 99 of 21.04.92). 
COM  (91) 230 final of 19.06.91 
COM  (90) 228 final of 13.08.90 
COM  (83) 686 of 24.11.83 
93/104/EC OJ  N' l307 of 13.12.93 
COM  (93) 560 final of 19.11.93 
Draft  Directives  on  health and  safety  for activities in  the  transport sector (OJ  C 271  of 16.10.93), physical agents (OJ  C 77 of 
18.03.93), chemical agents (OJ  C 165of16.06.93), travel conditions of workers with  motor disabilities (OJ  C 15 of 21.01.92) and 
work equipment (modification)(COM(94)56final of 14.03.94) 
COM  (90) 564 - adopted text not yet published in the  Official Journal 
OJ  C119of15.05.90 
OJ  N' L39of10.02.93 
SEC  (91)  1332 
COM  (94) 23 final of 23.02.94 
921241/EEC OJ  l  123 of 08.05.92 
COM  (88) 269of11.05.88 
Adopted text not yet published in the Official Journal 
92/442/EEC OJ  N' L 245 of 26.08.92 
86/378/EEC OJ  N' L 225of12.08.86 
cf pending proposal COM  (87) 494 of 16.10.97 
Source: EUROSTAT.  The  figure  covers people living  in  a household where the expenditure per equivalent adult is  less than half 
the national average. 

COM  (93)  435 Final of 22.09.93 
92/441/EEC OJ  N' L 245 of 26.08.92 
OJ  N' C 180  of 01.07.94 
COM  (90)  588 of 28.02.91 
COM  (93)  559 final of 24.11.1993 
COM  (94)  83 of 29.03.94 
COM  (94)  202 of 01.06.94 
COM  (94)  234 of 08.06.94 
COM  (94) 600 Final of 14.12.93 
11th Annual report on the control of the application of Community law 
Directive  90/659 sets transitional measures for  health and  safety  directives following  German unification, and therefore applies 
only to  Germany 
Directive  91/382/EEC enters into  force  in  Greece on 01.01.96 
Directive 90/679/EEC enters into  force  in  Portugal on  28.11.95 

COM  (94) 29 final of 16.02.94 
OJ  N.  C179 of 01.07.94 
92/056/EEC  OJ  l  245 of 26.08.92 
COM  (93)  155 final of 14.05.93 
80/1107/EEC OJ  L 327 of 03.12.80 
82/605/EEC OJ  L 247 of 23.08.82 
88/364/EEC OJ  L 179 of 09.07.88 
Social Europe supplements4/92 and 5/93 

54 

ISSN 0254-1475 

COM(94) 333 final 

-DOCUMENTS 

EN 

05 

Catalogue numb.er : CB-C0-94-372-EN-C 

ISBN 92-77-72195-2 

Office for Official Publications of the European Commu_nities 
L-2985 Luxembourg