Opinion of the Economic and Social Committee on the 'Green Paper - Partnership for a new organization of work'
Date: 1997-12-10
Institutions: European Economic and Social Committee
Subjects: competitiveness, employment policy, innovation, organisation of work

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Opinion of the Economic and Social Committee on the ‘Green Paper — Partnership for a new
organization of work’

(98/C 73/29)

On 21 April 1997 the Commission decided to consult the Economic and Social Committee,
under Article 2(2) of the Treaty establishing the European Community and the Protocol
(No 14) on social policy, on the ‘Green Paper — Partnership for a new organization of work’.

The Section for Social, Family, Educational and Cultural Affairs, which was responsible for
preparing the Committee’s work on the subject, adopted its opinion on 13 November 1997.
The rapporteur was Mr Meriano, the co-rapporteur Mrs Engelen-Kefer.

At its 350th plenary session (meeting of 10 December 1997), the Economic and Social
Committee adopted the following opinion by 91 votes to one with four abstentions.

1.

Introduction

1.1.
The Green Paper on the partnership for a new
organization of work aims to add to the on-going debate
on employment prospects in the European Union,
and explores the scope for boosting employment and
competitiveness through better organization of work at
the workplace.

As stated in the introduction, ‘the focus is on a new
organization of work. While there is no one model,
this concept implies, in particular, the replacement of
hierarchical and rigid structures by more innovative and
flexible structures based on high skill, high trust and
increased involvement of employees’. In this context,
the document cites the Ciampi report on boosting the
competitiveness of European industry, according to
which ‘a cooperative approach to a different organ-
ization of work within the firm will improve industrial
relations, allow greater worker participation in decisions
and potentially lead to a better product quality’.

1.2.
In the Commission’s view, whilst the Ford model
of organization, based on mass production, has helped
to create unprecedented levels of prosperity, it is not
sufficiently flexible to meet current needs. Over the last
few decades, new forms of organization have come to
the fore, such as total quality management, just-in-time
and ‘Kaizen’ (continuous improvement) production
systems, which aim in various ways to create a flexible
type of firm with high levels of trust and openings
for highly qualified staff, and capable of providing
continuous quality and productivity improvements.

1.3.
A transformation of this type can be explained
by a combination of three factors: human resources,
which are much better educated and prepared for an

increasingly creative role; the markets, where consumers
increasingly demand a variety of high-quality, innovative
products and services; and technology, where the dawn
of the information society can only fulfil its promise if
it is accompanied by organizational renewal. Each of
these factors has a considerable impact on the structure
of the firm, the organization of work and industrial
relations.

1.4.
All these aspects give rise to issues of various
types, affecting the way production, training and partici-
pation are organized.

These issues are multifaceted in practice and concern
the following areas in particular:

— education and training;

— labour law and industrial relations;

— wage systems;

— working time;

— taxation;

— social security;

— health and safety at work;

— environmental issues;

— equal opportunities;

— integration of people with disabilities;

— labour market policies;

— modernization of the public sector;

— telework.

1.5.
Each of these issues presents challenges, particu-
larly as regards identifying the reasons and arrangements
for the changes in organization of work, but also
concerning the updating of labour policy as a whole,
and the chance to create what the very title of the green
paper refers to as ‘a new partnership’.

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1.5.1.
SMEs are no less affected by these issues than
larger firms: ‘in particular the lack of resources necessary
for systematic organizational planning tends to hinder
(their) long-term personnel development’ (1).

out at corporate and sectoral level, cannot be seen as a
linear, global process, as the arrangements and timescales
are likely to differ according to individual circumstances.

In particular, the notion of a new partnership is based
on the assumption that the current changes are just as
much social as technological in nature. Since many firms
and many public administration departments still adhere
to traditional organization patterns, the green paper’s
view is that a partnership — i.e. the quest for partici-
pation-based concepts of management which, rather
than trying to identify a new, hard and fast system of
organization, seek to introduce a procedure designed to
find the best solutions for each individual sector and
firm — seems to be the most logical approach to the
problem.

2.3. With this in mind, the Committee believes that
any useful discussion of the issues raised in the green
paper must be underpinned by a pragmatic analysis of
the best practice so far established within the field at EU
level. This analysis should aim to identify possible areas
of agreement, bearing in mind that the greatest advances
have so far been achieved at corporate level, and that
an inappropriate — or at any rate premature —
tightening up of regulations could, ultimately, diminish
their impact, both in terms of the quest for greater
flexibility and productivity at work, and of the welcome
boost to employment.

2. General comments

2.1.
In a global economy, Europe’s competitiveness
will depend on the extent to which it manages to boost
its ability to innovate, and find more ‘intelligent’
solutions to the organization of work and technology.
The aim must be to optimize the relationship between
technology and work organization, and the use of human
resources. Hierarchical forms of corporate organization
and traditional Tayloristic methods of organizing work
do not always meet the demands of a flexible organ-
ization of production and services which can immedi-
ately adapt to changed market requirements. They must
be replaced by new formulas for production and work
organization, in which human potential can fully develop
as the prerequisite for the ability to innovate.

2.2. Whilst noting that the social partners have been
familiar with the issues raised in the green paper for
some time, the Committee feels that the Commission’s
initiative can usefully encourage them to engage in
in-depth talks. There is often the clear impression that,
in the European debate on boosting competitiveness
and productivity, and creating more employment, the
emphasis lies too heavily on reducing labour costs.
Although a reduction in the statutory non-wage com-
ponent could make an important contribution, economic
and technological restructuring requires firms to adopt
new strategies if they are to hold their own against
international competition. Thus, the document provides
a welcome basis for discussion, as part of consultations
interested groups within society, and
involving all
without prejudice to the independence of the social
partners.

The Committee, however, would first stress that the
on-going transition from a Taylorist system of work
organization to the new systems currently being tried

(1) COM(97) 128 final, point 26.

In this last respect, since the green paper ‘has also to be
situated in the wider context of the various Community
initiatives related to employment’ (par. 2), the Com-
mittee believes that the problem as a whole demands
a dynamic approach,
in which, rather than merely
defending current employment practices, the emphasis
is on the need to strike a new balance between flexibility
and social protection, with a pivotal role for the
development of continuing vocational training systems,
and of new employment arrangements.

The more flexible organization of production and work
must take place within a statutory and contractually-
regulated framework of social protection. The regulation
of working conditions and terms of employment by
means of legislation and collective agreement, and the
creation of new forms of work organization based on
participation and trust, are mutually dependent rather
than mutually exclusive. A new balance must be struck
between flexibility and social protection, to include all
necessary reforms of labour and social legislation and
the rules laid down by collective agreement, but without
leading to an erosion of social standards.

2.4.
The Committee believes that there is also a need
to pay greater attention to the different circumstances in
the public and private sectors, and to state unequivocally
how far the public authorities may intervene in the
proposed partnership,
in order to provide a better
assessment of how this might impact at national and
European level.

The Committee would also point out that, when working
out potential agreements, the social partners must fulfil
the task of improving both corporate and worker
performance. To do this corporate communication
structures and collective bargaining procedures must be
adapted to ensure that the level of involvement needed for
a participatory approach is secured. The Commission’s
proposed partnership for a new organization of work is
to be firmly endorsed. The reorganization of work and

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production processes can only be successfully achieved
in consultation with the employees concerned, and with
the participation of the representatives of company
interests and the trades unions. At European and at
national level, corporate experiences of new forms of
organization should be exchanged, and the testing of
such models should be actively supported within the
framework of the fifth R&D Framework Programme
and European structural policy, as suggested by the
group of experts on the social consequences of the
information society. Here, it is essential to foster the
goodwill of both sides.

3. Specific comments

3.1.
Looking first at the reasons why new forms of
work organization have been introduced only gradually,
the Committee notes that the hearing organized as part
the preparatory work on the opinion and the
of
evaluation of the relevant documents both broadly
confirm the green paper’s analysis in this regard.

Although conditions differ in individual com-
3.1.1.
panies and sectors, it would be true to say that the
crucial impetus to seek innovative solutions came, in
most cases, from growing market competition. This
upset the balance that had existed up to then by helping
already expanding companies to grow even faster.

3.1.2.
According to a recent OECD study (paper
42874 of 25 September 1996), at least a quarter of all
companies, particularly large ones, would appear to
have experienced the impact of this phenomenon. It is
felt particularly keenly in the manufacturing sector,
especially the assembly industry (e.g. motor vehicles),
but also applies to the service sector and to financial
services in particular.

3.1.3.
In many countries, public services too have
been moving in this direction, as empty state coffers
lead to cuts in spending; this is one aspect which requires
greater consideration.

3.1.4.
At the hearing, it was also noted — rightly —
that flexibility takes various different forms (duties,
working time, annualized working hours, part-time
working, limited-term contracts, wage systems, etc.).
Moreover, it became clear that participation takes many
different forms in practice depending on how far workers
are involved (information, consultation, co-determina-
tion).

3.1.5.
In many countries, this trend was encouraged
by the public authorities through industrial and techno-
logical incentives (1).

(1) The OECD paper mentioned above lists a comprehensive

catalogue of measures.

3.1.6.
This was particularly evident in the case of a
number of SMEs and the organizations which support
them in the ongoing processes of change, particularly as
regards the training and retraining of staff at all levels.
In this connection, the hearing also drew attention to
other requirements, such as the development of a new
type of professional management. At the same time, it
was stressed that so far SMEs have shown themselves
particularly adroit at adapting to changing market
conditions. In many cases, this is due to their special
position in relation to the institutional framework; while
making for more flexibility, this is no guarantee of
greater security. The Committee feels that these are
issues which demand attention, all the more so given
the substantial — and inescapable — role SMEs play in
developing the production system as a factor in the
continual renewal of economic structures.

Finally, in its analysis of prevailing conditions,
3.1.7.
the Committee would note both the desire and the
capacity of trade union organizations to play an active
part in developments to date. This has included promot-
ing structures which, in their different ways, favour
worker involvement in corporate restructuring and
boost their representatives’ commitment to innovation
in the various negotiations.

3.1.8. One company submitted an interesting report
to the hearing on the experience it had gained in this
field, showing, at least in part, the requirements and
main features of a tried and tested participatory company
management system: well-qualified, effective represen-
tation of interests as an essential element in overcoming
polarization in relations; greater employee responsibility
and scope for action, while at the same time reducing
supervision costs; and the optimization of production
processes coupled with an ongoing reflection on forms
of work.

A look at best practices in areas most directly
3.2.
affecting new forms of work organization has, in the
first instance, confirmed — including in financial terms
— the crucial importance which has to be attached to
the development of systematic plans for improving those
skills linked to new forms of work organization.

3.2.1.
Such skills are, in most cases, the key element
in promoting forms of work organization which are
marked by a high degree of individual responsibility
and participation, coupled with the comprehensive
decentralization of decision-making processes and an
increasing need for vocational adaptability.

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3.2.2.
The available data show that the situation in
this regard can vary considerably in the industrialized
since
countries and within the European Union,
vocational adaptability depends very much on the
general
level of basic training. This fact, which is
already adequately recognized in the reorganization of
manufacturing industry, is perhaps even more evident
today in the service sector (1).

The Committee is in broad agreement with the
3.2.3.
views expressed by the European Commission and
supports the need to reform training. Initial training is
primarily about imparting key qualifications and social
skills. Given continually changing conditions on the
labour market, a broad interdisciplinary basic training
is particularly important. The use of new information
and communication technologies has resulted in a
continual need for new skills within companies them-
selves. New structures of work must be set in place
which promote the acquirement of such skills and these
must be linked to systematic continuous training plans.
The ‘spirit of partnership’ means, among other things,
that workers have ways of working out what skills they
need and ask for relevant training. As the green paper
points out, training may sometimes involve external
activities organized by third parties outside the firm.
For this reason, the nature and conditions of the training
arrangements must be regulated by agreements with the
representatives of company interests and the social
partners in compliance with collective agreement. This
is the only way to ensure that workers’ creativity
and willingness to learn — elements essential to any
company’s innovative performance — can be utilized
and a positive climate created for further training.

The Committee’s findings during the course of
3.2.4.
its work also show that, along with training measures,
the possibilities of ‘self-education’ must also be provided
within the company. It was also suggested that where
companies have spare training capacity after training
their own workers, they should be encouraged to offer
their trainers’ time to train the unemployed and young
offenders. This could be done by publishing information
on such initiatives as in the Transatlantic Civil Society
Dialogue (TACD) and/or by means of business best
practice awards.

(1) In this connection, the above-mentioned OECD paper
makes a distinction between various models which can be
applied to market economy systems (Canada, the USA
and, with considerable differences, Australia, New Zealand
and the United Kingdom), to systems based on the
quest for national consensus (Austria, Belgium, France,
Germany, the Netherlands, the Scandinavian countries in
general and Switzerland), to the corporate field (Japan)
and to the various systems which exist in Greece, Ireland,
Italy, Portugal, Spain and Turkey.

3.2.5.
In the case of SMEs, it became clear how
important it is to pursue initiatives promoting, integrated
learning structures. A very interesting case in point is
the work of the employers’ federations and workers’
organizations in the French farming sector. These are
jointly led bodies committed to the pursuit of training
objectives. They negotiate agreements with the national
employment office giving seasonal workers satisfactory
job security with various employers, thus avoiding
dismissal. In the field of continuing training too, the
obvious relevance of a direct link between training
content and employment demand clearly demonstrates
the appropriateness of structures in which socio-
occupational and trade union organizations have joint
representation.

Initiatives of this kind are part of the general
3.2.6.
scheme of measures designed to help SMEs adapt to
new market conditions by developing new forms of
organization of work.

3.3.
Yet the wide range of experience brought to the
Committee’s attention confirms the obvious relationship
between vocational training, organization of work and
working hours.

Against this backdrop, the Committee feels
3.3.1.
compelled to reiterate emphatically the views
it
expressed in the previous own-initiative opinion on this
issue: ‘There is no single uniform model of reduction
and reorganization of working time which the European
authorities can issue by “decree”. There is however a
compelling case to promote “made-to-measure” working
time options’ (2). This view is broadly in line with what
is said in the green paper: ‘The way work is distributed
has to be planned and working time patterns have to be
adapted to the new situation’ (3).

3.3.2. On the other hand,
it would be wise to
recall the recommendations which the above-mentioned
own-initiative opinion gave both to the European Union
and to the governments of the Member States, namely
its encouragement of the social dialogue and collective
agreements, at appropriate levels, on the reduction
and reorganization of working time and the need for
unequivocal legislation on equal treatment of part-time
workers.

3.3.3.
In this regard, the Committee would note the
European framework agreement on part-time work,
concluded as part of the social dialogue.

3.3.4.
The Committee believes that this agreement,
which follows on from a similar one on parental leave,

(2) ESC own-initiative opinion on working time, 30.10.1995,

OJ C 18, 22.1.1996.

(3) Green paper (COM(97) 128 final), box following point 50.

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represents a point of departure for further agreements
on other atypical or flexible forms of work which, in
line with the agreement on social policy appended to
the relevant protocol in the Maastricht Treaty (1), are
transposed in the form of Council decisions, thereby
becoming binding in the signatory states by legislation
or by corresponding agreement.

3.3.5.
The Committee feels that the findings to date
in this field give reasonable grounds to assume that the
two sides of industry will one day reach agreements
which (a) meet the need of companies to adjust working
conditions to changed production and market con-
ditions, and (b) meet the needs of workers of both sexes
preparing for retirement or seeking to combine a career
and family life who wish to avail themselves of training
opportunities in order to expand their knowledge and
boost their chances of promotion (2). In this way, these
agreements increase the competitiveness of the company
concerned, improve employees’ working conditions and
help tackle unemployment. In addition, of course, they
also respond to employees’ personal needs, to which,
even in corporate circles, growing importance is now
being attached. This is particularly true of the need
shared by many workers for more individual responsi-
bility and involvement in their work, for a working life
that is also compatible with outside — particularly
family — interests and for greater independence in time
management.

3.3.6.
Against this background, the Committee also
feels that the gradual testing of new forms of work
organization at both corporate and, where appropriate,
sectoral level cannot be looked at in isolation from the
possible impact this will have on the terms and conditions
of employment. This makes it essential to develop
an overall reference framework which protects the
employees concerned from possible discrimination. In
doing this, attention must also be paid to promoting the
competitiveness of Europe’s economy and avoiding
administrative, financial and legal constraints which
could stand in the way of SME establishment and
development (3). In this way the measures taken by the
European Union could lead to a more adaptable legal
framework, which is, of course, an essential element,
particularly in innovation.

3.4.
Furthermore, the experience of firms looked at
to date would indicate that corporate restructuring and
redistribution of work tasks is often linked to the
development of new wage systems. These may be a way

of helping introduce an element of participation into the
working environment, for instance, via profit-sharing
and other incentives.

3.5. However, the Committee feels that the issue
under consideration here is inextricably bound up with
guaranteeing real worker participation in the process
of work reorganization and, more generally, in the
restructuring of the companies concerned.

3.5.1.
All those whose experiences were looked at in
the course of this study expressed similar calls, and
concurred in stressing the need to change the structures
of communication within firms and to increase the
options for staff to participate. This is an essential
element in boosting a sense of co-responsibility.

3.5.2.
It should be noted that the recently compiled
Commission consultation document (4) makes explicit
reference to the green paper under review here and
points out that an appropriate and effective level of
employee information and consultation at a time of
high unemployment makes it easier to take effective
preventive action on employment in industry; in this
way, particularly as far as job losses are concerned,
problems may be identified and anticipated and their
social costs avoided or reduced.

In this connection, the Committee would also
3.5.3.
point
to its opinion on the previous Commission
communication on this issue (of 29 May 1996) which is
referred to in the fifth paragraph of the new paper. This
leaves it up to the social partners to determine the
expediency of a European arrangement, which would
ideally be based on an agreement worked out at national
level.

3.5.4.
The Committee feels that this issue is set to
grow in importance. It is not only a question of
protecting workers from the risk that the quest for
more competitiveness may have an adverse impact on
employment and health. It is also about recognizing that
greater worker participation is essential if the company
itself is to realize its goals. Research projects carried out
in this field by the European Commission itself have
shown that direct worker participation at the workplace
is most effective where permanent structures are in place
in the form of company representation bodies and/or
trade unions.

(1) Now incorporated into the Amsterdam Treaty.
(2) Cf. European Framework Agreement on part-time work,

5th general recital.

(3) Ibid., 7th general recital.

(4) Consultation document for the Community level social
partners concerning information and consultation of
introduction,
workers within the national framework,
7th paragraph.

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3.6.
As for the impact of new models of work
organization on employment trends in the companies
analyzed, the cases looked at naturally reveal various,
quite different scenarios. These range from situations
in which workforce levels have been maintained, or
redundancies kept to a minimum in companies in
difficulty, to considerable job increases which, particu-
larly in the case of some industrial SMEs, have exceeded
even the most optimistic forecasts.

The findings always depended, of course, on
3.6.1.
the market situation which varied from country to
country and sector to sector. However, the best practices
looked at were marked by an ability to surmount in
some cases serious crises and to boost productivity and
competitiveness in an incontrovertibly sustainable way.

3.6.2.
The Committee feels that, in a situation such
as today’s, marked in Europe by high unemployment,
there is no alternative but to join in the green paper’s
clear call
for the debate on new forms of work
organization to be conducted as part of a general
employment strategy designed to combat joblessness.

3.7. Moreover, the introduction of new forms of
work organization undoubtedly has to be determined
basically through negotiations between the social part-
ners; however, as far as social security is concerned, this
development clearly touches on areas outside the social
partners’ remit and, consequently, requires legislation.

3.7.1.
In this respect, the preamble to the aforemen-
tioned framework agreement on part-time work
recognizes that decisions on legal
issues related to
social security lie with the Member States. Indeed, an
appropriate adaptation of social security systems to the
new conditions is essential if the types of discrimination
dealt with in this agreement are to be eradicated
completely, a point already made by the European
Council in Dublin in its declaration on employment.

3.7.2.
In this connection, the Committee would draw
attention to its opinion on the communication from the
Commission on the future of social protection (1),
particularly the section headed Backing developments
in working practices which looks, among other things,
at the 1994 ILO Convention and Recommendation on
part-time work, and clearly demonstrates the need for
social security systems and pension arrangements to be
adapted to fit into these new working patterns and for
adequate assurances to be given that ‘people with

(1) Opinion on the communication from the Commission on
the future of social protection: a framework for a European
debate, OJ C 66, 3.3.1997.

inflexible or atypical forms of work do not receive a low
level of social protection or even lose it altogether’ (2) (3).

3.7.3.
The hearing organized as part of the work on
this opinion raised all the issues brought to bear in the
green paper relating to the economic and social impact
of the current changes in the organization of work.

3.7.4.
Particular attention was paid to aspects directly
affecting SMEs. At the moment, SME development
is clearly linked, not least as regards suppliers and
subcontracting, to the corporate restructuring process
which, in turn, is largely the reason behind the emergence
of new forms of organization of work.

3.7.5.
Thus, problems of health and safety at work
were looked at particularly closely, on the basis, among
other things, of the study carried out last year by
the Dublin foundation. This study demonstrated the
importance of adapting existing arrangements to con-
ditions which have changed as a result of new forms of
work organization. In general terms, stress was laid on
the need to back up company-based innovations by a
corresponding reform of the social security system in
order to protect and promote the equal treatment of
women and men at the workplace.

3.7.6.
In terms of both planning and practical appli-
cation, the momentum towards modern industrial safety
as it is understood in the European directives can be
stimulated by new forms of work organization, and vice
versa. The structures and institutions of industrial safety,
well as the experience gained in this field, are a valuable
resource for the spread of new forms of organization of
work. The Committee expects the European Com-
mission to come up with initiatives to promote pilot
projects designed to integrate health and safety at work
into the development of new forms of organization of
work.

3.7.7.
Teleworking and distance working were also
debated on and proved to be of increasing importance.
However the discussion revealed that a common defi-
nition, framework and understanding still needed to be
specified and analyzed. The Committee welcomes the
Commission’s initiative (4) to launch, in the first half of
1998, consultations with the social partners on whether
and to what extent Community action and protection
of teleworkers is advisable.

(2) Ibid., point 4.3.7.2.4.
(3) In this context, it should be noted that the Committee is
at present working on an opinion on the communication
from the Commission: Modernizing and improving social
protection in the European Union; this paper was the
conclusion of deliberations covered by the preceding
document.

(4) Communication from the Commission on ‘The social and
labour market dimension of the information society’ —
people first — the next steps (COM(97) 390 final, 23.7.1997,
p. 9, paragraph 31 ‘key actions’).

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3.7.8.
Finally, one issue raised which was not touched
on in the green paper was how information can help
SMEs develop new activities and the extent to which
these activities are suited to the self-employed, particu-
larly in the farming sector.

4. Conclusions

4.1.
In arriving at its conclusions, the Committee has
broadly taken account of the important contributions
made in the course of the hearing. It would be wrong
to overestimate the value of statements on specific,
somewhat unrepresentative situations. However, there
is no denying that the cases looked at to date relate, to
a greater or a lesser degree, both to sectors at the
pinnacle of technological development and to traditional
economic activities; one should nonetheless guard
against jumping to hasty conclusions as a result of the
phenomena analyzed so far, since these phenomena are
also found in areas which are not considered so
frequently, such as cooperatives and the non-profit-
making sector. Some of the cases illustrated in the green
paper are particularly informative on this point.

4.1.1. One business expert gave a detailed list of the
difficulties encountered on the road towards a new
organization of work and the accompanying changes in
corporate power structures. This expert felt that these
difficulties might even compromise the results of restruc-
turing, not only as far as protecting workers’ interests
was concerned but also in respect of the feasibility
of the new management strategies themselves. This
description is certainly useful in showing the difficulties
inherent in any period of transition when new responsi-
bilities have to be shouldered, for example the loss of
acquired security and guarantees, problems of forward
planning and the mistrust which arises from the clashes
sometimes entailed in new organization of work; as
already pointed out, this leads to new kinds of conflict
between the parties concerned which all must try to
resolve.

Besides the not inconsiderable scale of these
4.1.2.
new conditions, matters of principle are also clearly
involved, compelling the social partners to embark on
a critical reassessment of their traditional ways of
thinking.

4.2.
The current situation warrants differentiated
procedures and lines of attack depending on the circum-
stances of each case. This therefore requires the utmost
vigilance on the part of all concerned as to what changes
have occurred and what their impact is likely to be,
particularly on employment. As the work on this opinion
progressed, it was useful to be reminded that attention
to the changing nature of working conditions represents

major progress in itself and that this, more that any
theoretical speculation, has a real effect on the quality
of the solutions arrived at gradually through negotiation.

4.2.1.
As has been stressed more than once, vigilance
of this kind must be exercised, above all by companies
themselves; the partnership proposed by the Commission
in this field is designed to open up a new dimension in
relations between the social partners and to ensure
regular monitoring of what avenues are open for
significant moves towards flexibility and participation.

it

4.2.2.
Apart from the possible extension of certain
company-based solutions to some situations within a
particular industry,
is possible to draw general
conclusions, particularly in the context of social dialogue
in specific sectors. It is also possible, where appropriate,
to secure agreements between the social partners. Such
agreements have already been reached in social policy,
and are designed to form a common reference framework
based on general principles and minimum regulations
which can become binding by Council decision, or else
are implemented autonomously by the parties to the
collective agreement.

4.2.3. While developments to date have undeniably
been fraught with difficulties and held back by delays,
some of the results achieved have been encouraging.
This shows that, to move towards a new organization
of work, it is essential to adapt contractual agreements
to the gradually emerging new conditions. It also
demonstrates that legislation in this sensitive and crucial
area should not be allowed to undermine the social
partners’ autonomy, but must, where deemed necessary,
be based on agreements between the social partners,
particularly at a sectoral level (1).

4.2.4.
The debate sparked off by the Commission
with the publication of this green paper and the ensuing
consultations must therefore be seen as a part of the
process of reflection. Without prejudice to the bodies
responsible for reaching agreements in individual cases
or to their freedom of action, it is hoped that all the
other institutions concerned will become involved.
Contributions are welcome, for example, from univer-
sities, local bodies and non-governmental organizations
of all kinds, including, of course, the organizations
represented on the Committee which have not so far
been directly involved in the social dialogue.

4.3.
The Committee thus sees the partnership for a
new organization of work put forward in the green
paper as a challenge not only for the Committee but for
the other European institutions as well, and as an

(1) Such agreements have recently been concluded, for example
in the agricultural sector (EFA/ETUC — GEOPA/COPA —
Recommendation Framework Agreement on the improve-
ment of paid employment in Agriculture of 24 July 1997)
and in the cleaning sector (Memorandum of SENI-Eurofiet
on new sources of employment of 21 October 1996).

9.3.98

EN

Official Journal of the European Communities

C 73/129

invitation for the Committee to be involved in the
consultation process. The Committee believes that the
green paper is a part of the more general Commission
campaign to actively promote the process of adapting
the social infrastructure of Europe to the new conditions
of
international competition and changed worker
requirements. As for the more direct involvement of the
authorities in discussions on the partnership proposals,
the Committee welcomes the fact that the paper draws
attention to modernizing the public sector. The inclusion
of the public sector is quite obviously essential if progress
is to be made towards a more flexible administration
the economy with enhanced participation. The
of
Committee would point out that a sine qua non for the
modernization of the public sector is to ensure that
management responsibility is tapped to the full. Another
prerequisite is to operate in a manner which takes
account of economic efficiency factors and considers
the specific interests of employers and employees in
cost-benefit analyses. The Committee hopes that the
encouragement of the authorities will play a positive
role in future progress in this area and if possible, lead
to a wider debate within society and its institutions;
however, the authorities should not thereby diminish
the role of the social partners in the exercise of their
freedom of collective bargaining.

4.3.1.
The Committee does not see new forms of
work organization as an optimum and definitive solution
to the problems affecting employer-worker relations.
However,
in the quest for such solutions it would
advocate focusing on human dignity, protecting and
promoting the individual’s freedom to realize his/her
full potential and build up a sense of responsibility,
reducing and eliminating health risks in work and

Brussels, 10 December 1997.

production processes and encouraging a working
environment which develops both the vocational and
personal skills of employees and gives them the tools
for decision-making, communication and cooperation,
opening up career prospects. It would also recommend
action to combat the traditional gender-based division
of labour and to help develop new, highly qualified
fields of employment for women. Measures should
also aim to strengthen the basis for efficiently-run
well-managed companies.

4.3.2.
Cooperative forms of work, in which staff have
a greater opportunity to develop their skills and are
given more responsibility and scope for participation,
could help strike a new balance between employees’
needs on the one hand and the advantages for companies
of a more flexible organization of production and labour
on the other. Lastly, the Committee would stress that it
is in the interests of all parties that Europe’s entire
workforce should be sufficiently highly qualified to be
‘employable’ in new jobs, thereby facilitating restructur-
ing and boosting growth and security in the process of
change. A high level of long-term unemployment in
tandem with a shortage of labour in expanding sectors
is neither economically nor socially acceptable.

Negotiations and agreements between the social partners
at various levels hold the key to building up a training
and security network to back up the public system
thereby helping to enhance the workforce’s ‘employa-
bility’. The Committee would also point out that the
speed of change and skills required in the workplace
make it necessary in future to mobilize all public
education and vocational training facilities more effec-
tively than hitherto.

The President

of the Economic and Social Committee

Tom JENKINS