Communication from the Commission to the Council and the European Parliament - Europe's response to World Ageing - Promoting Economic and Social progress in an ageing world A contribution of the European Commission to the 2nd World Assembly on Ageing
Date: 2002-03-18
Institutions: European Commission
Subjects: economic development, population ageing, social development, world population

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 18.3.2002
COM(2002) 143 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL
AND THE EUROPEAN PARLIAMENT

Europe's response to World Ageing
Promoting economic and social progress in an ageing world
A contribution of the European Commission to the 2nd World Assembly on Ageing

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL
AND THE EUROPEAN PARLIAMENT

Europe's response to World Ageing
Promoting economic and social progress in an ageing world
A contribution of the European Commission to the 2nd World Assembly on Ageing

EXECUTIVE SUMMARY

This  communication  constitutes  the  contribution  of  the  European  Commission  to  the  2nd
World Assembly on Ageing organised in Madrid on April 8-12 2002, by the United Nations
and  the  Spanish  Government.  It  represents  an  input  from  the  European  Commission  to  the
international  debate  on  the  new  International  Plan  of  Action  on  Ageing  to  be  adopted  in
Madrid. As such it is intended to support the efforts of the Belgian and Spanish presidencies
to develop a common EU position on the plan.

When the first International Plan of Action on Ageing was agreed in Vienna in 1982, it was
almost exclusively for the most developed countries that ageing was emerging as an important
concern.  Since  then,  the  ageing  process  has  begun  to  touch  several  parts  of  the  developing
world also. In the 21st century rapid ageing will progressively become a global phenomenon.

The  European  Commission  agrees  with  the  United  Nations  that  a  greater  global  awareness
will  be  necessary  in  order  to  meet  the  challenges  for  all  our  societies  raised  by  the  ageing
process.  International  co-operation  can  improve  the  ability  of  countries  to  respond  to  these
challenges.  Policies  that  take  due  account  of  the  ageing  challenges  in  the  future  have  to  be
prepared now.

With  this  Communication  the  Commission  proposes  to  share  the  experience  from  co-
operation  on  ageing  issues  at  EU  level,  which  illustrates  the  need  for  a  policy  approach
encompassing the economic, employment and social dimensions of ageing. The Commission
is fully aware of the diversity of the ageing challenges across the world and that its experience
cannot  necessarily  be  transposed  to  other  contexts.  Nevertheless,  it  is  convinced  that  its
experience can be used to develop ideas. Responding to ageing issues in the world calls for a
collective effort  of  international  collaboration  to  promote  sustainable  development  at  global
level.

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1. 

INTRODUCTION

This  communication  constitutes  the  contribution  of  the  European  Commission  to  the  2nd
World Assembly on Ageing organised in Madrid on April 8-12 2002, by the United Nations
and the Spanish Government.  It  has the aim  to  contribute  to  the  international  debate  on  the
formulation of the new International Plan of Action on Ageing to be adopted in Madrid.

The international action plan on ageing, adopted at the first UN Conference (Vienna, 1982),
put a particular emphasis on older persons and resulted in, among other things, a proclamation
of  the  United  Nations  Principles  for  Older  Persons,  which  addressed  the  independence,
participation, care, self-fulfilment and dignity of older people. Subsequently, many UN events
have helped advance the global policy agenda on ageing. The General Assembly decided to
observe 1999 as the International Year of Older Persons and to call a 2nd World Assembly in
2002. UN ageing initiatives have furthermore been shaped by the Millennium Declaration.

When the first International Plan of Action on Ageing was adopted in Vienna in 1982, it was
almost exclusively for the most developed countries that ageing was emerging as an important
concern1. Now, the  ageing  process  will soon  begin  to  affect  several  parts  of  the  developing
world also. In the 21st century rapid ageing will progressively become a global phenomenon.

The  second  World  Assembly  is  expected  to  adopt  a  revised  international  action  plan  on
ageing including a long term, global strategy for a society for all ages. 

The sustained growth in longevity and our increased ability to control reproduction represent
some of the great achievements of human kind of the last 50 years. That people in general can
expect  to  live  longer  lives  opens  great  new  opportunities  for  individuals  to  fulfil  their
potential. The combined  effect  of  these  achievements  in  the  form  of  population  ageing  also
presents us with new challenges. In the course of the new century ageing will affect the social
and economic foundations of societies in many parts of the world. Our societies will have to
provide an appropriate  framework for people living longer and longer while ensuring social
and  economic  sustainability  in  an  ageing  world.  Conditions  and  opportunities  for  the
presently old, men  and  women,  are  an  important  concern  at  any  time,  but  adjusting  well  to
population  ageing  is  an  issue  for  everybody  and  the  aim  must  be  to  arrive  at  a  society  for
people  of  all  ages.  Ageing  policies  should  therefore  adopt  a  broad  life-course  and  society-
wide approach, taking into account the UN global initiatives and guiding principles.

2. 

AGEING AND DEMOGRAPHIC TRENDS: A MAJOR ISSUE FOR THE WORLD

The  ageing  of  societies  essentially  results  from  falling  fertility  rates  and  increased  life
expectancy.  An  additional  impact  stems  from  the  so-called  baby-boom,  which  has  lead  to
large differences in the size of age  groups. Migration movements can also affect the ageing
process. While ageing will become more of a universal trend in the coming decades there is a
wide  diversity  in  terms  of  the  timing  and  speed  of  demographic  change,  the  social  and
economic contexts, and the perception of the challenges posed.

This  diversity  is  particularly  evident  when  examining  the  ageing  phenomenon  in  the
developed  and  the  developing  parts  of  the  world.  Although  populations  of  developing

1

In  1980  the  percentage  of  people  aged  60  or  more  was  only  6%  in  the  less  developed  countries,
compared to 16% in more developed ones (UN estimations).

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countries are relatively  young today, many developing countries are  projected to  experience
ageing of an unprecedented speed2 due to a sharp drop in fertility levels and a rapid increase
in longevity. By 2050 the number of older people in less developed countries is projected to
more than quadruple  (from  374 million in 2000  to  1570  million).  This  age  group  will  form
19%  of  the  less  developed  countries'  population  in  2050  as  opposed  to  8%  today,  and  the
median age is projected to increase 11  years reaching a value of 35  years.  In  the  developed
countries, where the share of older people is already much higher following a rapid growth,
particularly over the post-war period, marked population ageing will continue but at a slower
pace than in the less developed countries. Older people will constitute 33% of their population
in 2050 as opposed to 19% today, and the median age will increase by 9  years, reaching 46
years in 2050. 

Furthermore,  a  diversity  of  situations  is  present  within  both  the  developed  and  developing
parts of the world. 

Among  the  developed  countries,  Europe3  and  Japan  will  experience  the  most  pronounced
ageing trends up to 2050 - the share of the above 60 age group will be around 37% in Europe
and even more in Japan, compared to only 27% in North America, where population growth
will continue to be relatively strong. Within the 60+ age group, there will also be significant
growth in the number of "very old", i.e. people aged 80 years and over. Whereas the very old
constitute 3% of the European population today, 11 of the current EU-15 Member States will
have at least 10% of their population aged 80 or over by 2050. Gender differences in ageing
are  considerable.  In  Europe  women's  life  expectancy  is  currently  more  than  6  years  higher
than for men. In the age group of 60 years and over, there are 50% more women than men. Of
people living alone at the age of 75+ more than 70% are women. 

The  process  of  enlargement  of  the  European  Union  is  not  expected  to  have  a  significant
impact  on  the  ageing  process  of  the  Union’s  population.  Though  the  proportion  of  older
people  in  the  Central  and  Eastern  European  countries  today  is  lower  than  in  EU-15,  it  is
expected to increase  rapidly attaining the EU  average levels by 2050. Presently most of  the
applicant countries are experiencing particularly low fertility rates and to the extent this trend
continues it will impact even further on their ageing process. 

In the developing world there are significant differences in the ageing process4. For the least
developed countries, the median age is only projected to increase from 18 years in 2000 to 26
years in 2050. In contrast the less developed countries as a whole can expect an increase from
24 years to 35 years. 

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4

As an example, in France it took 115 years for the proportion of older people to double from 7 to 14
percent. In China the same increase will occur over the course of just 27 years.
Within  Europe,  the  ageing  trend  is  presently  not  so  pronounced  in  the  Central  and  Eastern  countries
(CEECs) as in the EU Member States. 
Asia and Latin America are ageing  most rapidly, and  will reach 20 to 25 percent of older persons by
2050,  whereas  for  example  sub-Saharan  Africa,  which  continues  to  struggle  with  the  HIV/AIDS
pandemic in association with economic and social hardship, is projected to reach only half that level.

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3. 

THE EU POLICY APPROACH TO AGEING

3.1. 

The European Union's general approach to ageing 

As  one  of  the  first  areas  to  be  affected  by  ageing  Europe  has  developed  a  wide  variety  of
policy responses5 to the population ageing which occurred in the course of the 20th century.
For a long time policy deliberations took place only at the national level. However, awareness
that the challenges ahead were in many ways common increased rapidly in the 2nd half of the
1990's6 and recent years have seen major developments in EU co-operation on ageing issues.
When  the  European  Commission  in  1999  presented  a  communication7  on  sensible  policy
responses  to  ageing  as  its  contribution  to  the  UN  International  Year  of  Older  Persons  and
hinted that Member States would benefit from closer European co-operation on these issues, it
was still a vision of what could be. But in the few years since Member States have committed
themselves to work  on  ageing  issues  in  the  context  of  sound  public  finances8,  employment,
social  protection  and  sustainable  development  while  maintaining  these  as  national  policies
and 
the  diversity  of  ageing  situations.  Moreover,  combating
discrimination  on  the  grounds  of  age  has  become  part  of  the  EC  Treaty  as  well  as  of  the
Charter of Fundamental Rights, which also refers to the rights of the elderly9.

into  account 

taking 

Ageing  is  not  a  separate  issue  to  be  tackled  in  isolation  from  other  ones.  The  European
Union's  response  to  ageing  is  therefore  developed  as  part  of  the  overall  strategy  of
mutually  reinforcing  policies  launched  at  the  European  Council  meeting  at  Lisbon  and
confirmed  at  subsequent  European  Council  meetings  in  Nice,  Stockholm  Gothenburg  and
Laeken10. As set out in the Economic Policy Coordination and the European Social Agenda11
it  encompasses  the  economic,  employment  and  social  implications  of  ageing.  The  Broad
Economic Policy Guidelines, which are the key instrument for economic policy co-ordination
and  provide 
the
implementation of these recommendations, call for Member States to develop comprehensive
strategies  for  addressing  the  economic  challenge  posed  by  ageing  populations.  The  Social
Policy  Agenda,  which  lists  EU  policy  priorities  in  employment  and  social  affairs,  outlines
how  Member  States  through  mutually  reinforcing  employment,  social  protection  and
economic policies can deal with the wider social and work life related implications of ageing. 

the  framework  for  policy  recommendations  and  for  monitoring 

The EU approach to ageing aims at mobilising the full potential of people of all ages. The
basic  assumption  is  that  adequate  responses  to  ageing  must  go  beyond  attention  to  the
presently old. Adjusting well to population ageing is an issue for people of all ages and a life
course approach can help the development of adequate policy responses taking account of the
related age and gender specific issues.

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9

10

11

Europe  has  pioneered  a  variety  of  institutional  responses  to  ageing  populations  (retirement,  pension
systems, specialised health services, residential and institutional care, activity centres etc.) and it is in
European countries that older peoples policies generally have been developed to the greatest extent.
The  increasing  attention  to  ageing  issues  in  Commission  analyses  and  documents  contributed  to  this.
For a list of these please see the annex.
"Towards a Europe for All Ages", COM (1999) 221 final.
Common forecasting and monitoring activities form an integral part of this work and has resulted in a
number of seminal analyses covering EU-15. For details see list in Annex.
Art.  13  of  the  EC  Treaty  as  revised  further  to  the  Amsterdam  Treaty  and  articles  21  and  25  of  the
Charter proclaimed in Nice on the 7th of December 2000.
For  details  please  consult  the  relevant  parts  of  Presidency  Conclusions  to  these  European  Councils
listed in the Annex. 
See Annex to Presidency Conclusions from the Nice European Council, Dec 2000. 

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This  results  in  an  orientation  towards  active  ageing  policies  and  practices12.  Core  active
ageing practices include life long learning, working longer, retiring later and more gradually,
being  active  after  retirement  and  engaging  in  capacity  enhancing  and  health  sustaining
activities. Such practices aim to raise the average quality of individual lives and at the same
time, at societal level, contribute to larger growth, lower dependency burdens and substantial
cost savings in pensions and health. They therefore represent win-win strategies for people of
all ages. 

Similar  orientations  were  proposed  by  the  Commission  in  its  contribution  to  the  1999
International  Year  of  Older  Persons.  Their  implementation  requires  the  involvement  of  all
stakeholders in a spirit of dialogue and partnership. In its various initiatives to improve and
modernise the EU Social Model, in particular in the area of social protection, social inclusion
and  employment,  the  Commission  encourages  the  co-operation  of  all  the  relevant  actors,
including NGOs, Social Partners, etc. 

3.2. 

Key challenges and policy responses in Europe

Within the overall framework of the EU approach to ageing some common key challenges for
the  European  Union  and  its  Member  States  have  been  identified:  managing  the  economic
implications of ageing in order to maintain growth and sound public finances; adjusting well
to an ageing and shrinking workforce; ensuring adequate, sustainable and adaptable pensions;
achieving  access  to  high  quality  health  care  for  all  while  ensuring  the  financial  viability  of
health care systems.

3.2.1.  Maintaining growth and sound public finances

Given  its  impact  on  the  demand  for  public  pensions,  health  care  and  long-term  care  ageing
presents a considerable  challenge  to  the long-term sustainability  of  public  finances.  Beyond
the  immediate  financial  impact,  the  ageing  of  populations  also  has  wider  implications  for
economic  growth,  inter  alia,  as  a  result  of  the  shrinking  of  the  potential  workforce  and
potentially important effects on the level of aggregate savings.

Projections  of  future  public  expenditure  for  the  period  2001-2005  indicate  that  increases  in
most  EU-countries  could  amount  to  3-5  percentage  points  of  GDP  for  pensions  and  2-3
percentage  points  for  health  and  long-term  care.  Increases  of  such  magnitudes  give  serious
cause for concern over the sustainability of pension systems and public finances and present
major challenges for social policies. On present trends, the EU working age population  will
fall  by  approximately  40  million  people  from  2000  until  2050  and  the  old  age  dependency
ratio will double from 24% to 49%13. In other words the EU is projected to move from 2000
to  2050  from  having  4  to  only  2  persons  of  working  age  (15-64)  for  every  person  65  and
above. 

The  economic  challenges  are  addressed  in  the  context  of  the  stability  and  convergence
programmes  and  the  Broad  Economic  Policy  Coordination.  The  Broad  Economic  Policy
Guidelines  state  that  the  need  for  sound  macroeconomic  policies  and  comprehensive
economic  reforms  is  amplified  by  the  challenges  posed  by  ageing  populations  and  call  for
Member  States  to  develop  comprehensive  strategies  for  dealing  with  these.  Moreover,  in
accordance  with  the  stability  and  growth  pact  and  in  line  with  a  report  endorsed  by  the

12

13

The ideas of active ageing and life course approach inform the bulk of innovative policy responses to
ageing in Europe and are generally perceived as the way of the future. 
These trends are calculated on the EU-15. Possible future enlargements of the Union are not considered.

6

                                                
Stockholm  European  Council14  EU  Member  States  must  sustain  sound  budgetary  positions,
while at the same time improve the quality and sustainability of public finances. The aim is to
ensure  that  public  finances  maximise  their  contribution  to  growth  and  employment  and  the
achievement  of  the  objectives  agreed  in  Lisbon  and  Stockholm,  including  better  social
cohesion. 

The Stockholm European Council endorsed a three-pronged strategy15, further incorporated in
the Broad Economic Policy Guidelines, to anticipate and manage the budgetary challenges of
ageing.  The  first  prong  is  to  increase  the  revenue  base  and  reduce  the  cost  of  transfers  by
raising the employment rates. The second prong is to run down public debt at a fast pace so
that lower interest payments can offset some of the projected increase in spending on pensions
and health care. The third prong is to reform pensions systems in order to maintain them on a
sound financial footing. 

3.2.2.  Responding to the challenge of an ageing and shrinking workforce

Over the next two decades the number of Europeans in the 20-29 age band will fall by 20%,
while the number in the 50-64 age group will increase by 25%. At the same time the cohorts
reaching  pension  age  will  be  substantially  bigger  than  their  predecessors.  The  timing  and
magnitude of these demographic changes will vary between EU Member States, but Europe is
faced with the prospect of an ageing and shrinking workforce. 

Yet, the impact on the work force is not given merely by the demographics. The effect may be
substantially influenced by measures aimed at raising the employment rates of all of working
age and of women and older workers in particular16. Hence, ageing reinforces the importance
of  general  efforts  to  raise  participation  and  employment  rates  in  Europe.  In  relation  to  the
employment rates of women it furthermore underlines the crucial pertinence of policies aimed
at securing gender equality in the world of work and at reconciling the demands of family and
work life. 

As for older workers ageing points to the need for changes in the present practices of age
management in work places and labour markets. With the drop in the supply  of  young and
prime-age workers older workers, which represent a valuable labour supply that for years has
been  under  utilised,  should  see  their  labour  market  prospects  substantially  improved.  It  is
important that policies and practices, which enable and motivate older workers to fully seize
these new opportunities, be put in place. 

A number of changes are important. First, a shift towards maintaining  the  working capacity
and  employability  of  older  workers,  men  and  women,  through  measures  such  as  training,
health  and  safety  measures,  adjustments  to  workplace  and  job  design,  introduction  of  work
facilitating  technology,  and  new  working  time  arrangements.  Secondly,  the  extension  of
active employment policies to older workers. Possibilities for generating job opportunities for
older workers and raising their employment rate through measures of reinsertion and retention
should be exploited. As a result the effective retirement ages of both women and men would
be  raised,  thus  avoiding  that  the  negative  impact  of  ageing  on  labour  supply  is  exacerbated

14

15

16

Council  of  the  European  Union  (2001),  “The  Contribution  of  Public  Finances  to  Growth  and
Employment: Improving Quality and Sustainability”, Report from the Commission and the (ECOFIN)
Council to the European Council (Stockholm 23-24 March 2001), 6997/01.
Presidency Conclusions, Stockholm European Council 23 and 24 March 2001, point 7 last sentence. 
As an effect of various policies and practices resulting in early retirement present European activity and
employment  rates  of  older  workers  (55-64)  are  less  than  half  that  of  prime-age  workers  (25-49)  and
considerably lower than in the US and Japan.

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through a continuation of current practices leading to early retirement. Promoting such active
ageing  policies  in  employment  is  central  to  the  European  Employment  Strategy.  It  is  also
essential for the realisation of the EU goal of moving towards full employment. 

Following  the  EU-level  targets  for  the  employment  rates17  set  by  the  Stockholm  European
Council, Member States have been invited to set national employment rate targets in order to
focus national strategies on promoting higher labour market participation, including for older
workers. The strategies would define action needed for raising quality in work and, therefore,
its  attractiveness;  correcting  the  balance  of  financial  incentives  to  work,  especially  the  net
effect  of  tax  and  benefit  systems;  tackling  gender  gaps  in  pay  and  labour  market  access
promoting  participation  of  persons  -  especially  women  -  with  care  responsibilities  in  the
household; reviewing measures to reduce school drop-out rates; and last but not least, setting
up  a  joint  government-social  partners  initiative  to  retain  workers  longer  in  employment  by
focusing  on  the  provision  of  company  training  to  promote  adaptability  and  longer-term
employability of workers and on improving quality in work. Such an initiative must be based
on the understanding that these efforts are of wider interest and benefit to society as a whole
and  thus  may  entail  a  redirection  of  public  funding  in  favour  of  this  area.  In  the  European
Employment  strategy  older  workers  are  thus  increasingly  perceived  as  one  of  the  core
elements in future labour supply and as crucial contributors to the sustainable development of
an ageing Europe.

Instruments by which to drive back negative attitudes towards older workers have furthermore
been  secured  through  new  European  legislation.  In  November  2000  the  Council  adopted  a
directive outlawing discrimination in employment18 including on the grounds of age as part of
the Union’s right-based approach to these issues. It also agreed an action programme, which
will target discrimination in all spheres of life including that directed against older persons19.

3.2.3.  Ensuring adequate, sustainable and adaptable pensions 

An  increasingly  older  population  creates  considerable  pressures  on  pensions.  Despite  the
substantial  differences  in  pension  systems  design  across  Europe  Member  States  have
recognised  that  deeper  co-operation  on  common  problems  is  required  in  the  domain  of
pension  policy.  At  the  Göteborg  European  Council  Member  States  endorsed  three  broad
principles  for  securing  the  social  and  economic  sustainability  of  pension  systems:
Safeguarding  the  capacity  of  systems  to  meet  their  social  objectives;  maintaining  their
financial  sustainability;  and  adapting  them  to  changing  societal  needs.  At  the  Laeken
European Council they subsequently agreed a set of common objectives, which are to guide
their policy efforts. The purpose of EU level co-ordination is to help Member States develop
their national  strategies  to  meet  these  objectives,  i.e.  securing  pensions  which  are  adequate,
financially sustainable and able to adapt to changing conditions.20

17

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19

20

The employment rate targets for 2010 were set as 70% in general, 60% for women and 50% for older
workers.
Council Directive 2000/78/EC establishing a general framework for equal treatment in employment and
occupation (27/11/00)
Council Decision 2000/750/EC establishing a Community action programme to combat discrimination
(2001 to 2006) (27/11/00). Another contribution to the rights based approach is the establishment of an
EU  Charter  of  Fundamental  Rights  which  widens  the  prohibition  of  discrimination  including  on
grounds of age and recognises “the rights of the elderly to lead a life of dignity and independence and to
participate in social and cultural life” (article 25).
The process that led to the Laeken agreement on a process of co-operation on adequate and sustainable
pensions  in  the  EU  was  supported  by  two  Commission  Communications:  "The  Future  Evolution  of
Social Protection from a Long-Term Point of View: Safe and Sustainable Pensions" (COM(2000) 622),

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At EU level challenges to pension systems are addressed both in the context of the economic
policy  coordination  and  in  the  framework  of  the  recently  launched  open  method  of
coordination21 on pensions. Beyond that they are also indirectly addressed in the employment
process. Both in the sense that higher employment rates improve the revenue base and in the
sense that working to higher ages eases the pressure on pension systems.

As set out in the objectives, which fully recognise the diversity of pension schemes, Member
State  strategies  should  aim  to  secure  adequacy  of  provisions,  with  a  particular  view  to
ensuring  that  older  men  and  women  are  not  placed  at  risk  of  poverty,  and  promote  inter  as
well as intra-generational equity. 

Pension  reform  is  addressed  as  well  within  the  overall  context  of  promoting  employment-
friendly policies. Pensions systems and adjacent tax structures should offer sound incentives
to continue working until pensionable age and avoid penalising people who continue beyond
that. Moreover pensions should be adjusted to cover people, who work in non-standard jobs,
and to facilitate flexibility and mobility in labour markets. Importantly pensions should offer
the same incentives to men and women and gender distinctions based on outdated perceptions
of the man as the sole or main breadwinner of the family should be phased out.

Member  States  also  agreed  that  their  strategies  should  aim  to  make  pension  systems  more
transparent,  and  to  develop  reliable  and  easy-to-understand  information  on  the  likely  long-
term evolution of benefit levels and contribution  rates,  so  that  citizens  can  continue to have
confidence in them. 

Finally,  Member  States  found  it  important  to  promote  the  broadest  possible  consensus
regarding pension policies and reforms and to improve the methodological basis for efficient
monitoring of pension reforms and policies.

3.2.4. 

Securing  access  to  high  quality  health  and  long  term  care  while  ensuring  the
financial sustainability of services

In  the  context  of  increasing  life  expectancy  and  a  growing  proportion  of  older  people  the
central challenge of health and long-term care policies is to provide full access to high-quality
services  for  all  while  ensuring  the  financial  sustainability  of  these  services.  Policies  should
strive to secure an adequate and cost-effective response to the needs and demands of women
and  men  of  all  ages.  Differences  in  life  expectancy  and  the  traditional  patterns  of  care
provisions of men and women make it particularly pertinent to pay attention to gender issues
in this respect.

Preparing  for  healthy  ageing  starts  with  public  health  policies  and  practices,  which  support
well-being  throughout  the  life  course.  To  promote  a  policy  environment  to  enhance  social
participation, care, self-fulfilment and dignity of older people is conducive to healthy ageing

21

"Supporting  national  strategies  for  safe  and  sustainable  pensions  through  an  integrated  approach"
(com362/2001),  and  a  SPC  report  "Adequate  and  sustainable  pensions:  A  report  by  the  Social
Protection Committee to the Göteborg European Council on the  future evolution of social protection"
(June 2001)
This  new  form  of  EU  co-operation  was  named  the  "open  method  of  coordination"  by  the  European
Council in Lisbon and defined as a means of spreading best practice and achieving greater convergence
towards EU goals and to help Member States to progressively develop their own policies in accordance
with  these  goals.  It  involves  setting  broad  common  objectives,  agreeing  realistic  targets,  translating
these into national policies by means of national plans and, finally, as part of a mutual learning process,
periodic monitoring on the basis of commonly agreed and defined indicators.

9

                                                                                                                                                        
for  women  and  men.  The  promotion  of  active  ageing  practices  could  also  contribute  to  it.
Meeting the growing demand for health and care services, related to the significant growth of
people aged 80 years and over, requires cost-efficient ways to support the supply of informal
care  and  expand  formal  health  and  care  provisions  as  well  as  progress  in  aids  and  assistive
technologies. Efforts in these areas have to maintain the equity principles, which are inherent
to the European Social Model (equal access to quality health care).

EU co-operation on these issues is starting within the framework of the EU works on Social
Protection22 and on Public Finances. The fifth EU framework programme for research (1998-
2002) contributes to promote research that enhances the quality of life, autonomy and social
integration  of  older  people  (with  particular  emphasis  on  healthy  ageing  over  the  life  course
and well being in old age)  and that improves the quality, efficiency and user friendliness of
care and welfare provisions.

4. 

AGEING IN THE WORLD

As  we  move  through  the  21st  century  more  and  more  countries  including  those  of  the
developing  world  will  experience  the  implications  of  substantial  ageing  processes.  In  fact,
many  developing  countries  are  now  in  the  early  stages  of  adapting  to  the  changing  age
structure of the population.

Current and prospective policy responses are likely to differ among countries. The realities of
ageing  depend  on  the  socio-economic  and  cultural  context  in  which  people  live.  These
dimensions also play an important role for how countries form their priority responses to the
challenges  raised  by  ageing.  Despite  such  differences,  countries  can  learn  and  profit  from
each other's experience. To take advantage of this opportunity international mechanisms that
can best inform public policies around the world should be strengthened. 

Three  key  challenges  in  relation  to  ageing  would  require  particular  attention.  Firstly,  the
challenge of securing a sufficient labour force to provide for a growing population of retired
people. This would include providing conditions that would enable people to be economically
active as they age for as long as they can manage. Secondly, managing the cost implications
for  public  sector  finances  and  the  economy  at  large  including  particular  risks  for  fiscal
stability and overall economic sustainability. Thirdly, tackling the issue of poverty in old age,
which remains a serious problem in many countries of the world, where many older people,
especially  women,  have  insufficient  access  to  basic  income,  health  and  social  welfare
provision.

Though  the  particular  expressions  will  vary  across  the  world,  ageing  is  everywhere  a
phenomenon  marked  by  significant  gender  differences.  The  Suriname  resolution  on  the
situation  of  Older  Women,  adopted  at  the  56th  session  of  the  UN  General  Assembly  is  a
positive contribution to mainstreaming the gender dimension in ageing issues.

Policy  responses  are  first  and  foremost  the  responsibility  of  each  State,  However,  co-
operation within the framework of the UN is crucial to share experience and encourage best
practices throughout the world, keeping in mind the diversity of national situations.

22

Following  a  request  from  the  Gothenburg  European  Council  a  new  process  of  deliberation  has  been
initiated  by  the  adoption  of  the  communication  "The  future  of  health  care  and  care  for  the  elderly:
guaranteeing accessibility, quality and financial viability" (COM (2001) 723).

10

                                                
4.1. 

Important issues in relation to an International Plan of Action on Ageing 

The European Commission supports the UN efforts to develop a global framework for action
on ageing. A long term world strategy must set out a vision of what is to be achieved within a
time horizon, which is manageable both to citizens and governments. Given the reliability of
the  demographic  projections  we  dispose  of  today,  there  are  good  arguments  for  setting  this
time horizon to 20 years (i.e. 2002-2022).

The focus should reflect the kind of socio-economic set up which would enable people around
the  world  as  they  age  to  continue  to  participate  in  the  achievement  of  a  society  for  all.  A
holistic view of ageing, as life-long and society-wide is called for. 

The  European  Commission  considers  that  the  plan  should  consist  of  specific  objectives,
indicate  the  outcomes  that  are  required  to  achieve  the  objectives  and  spell  out  the  kinds  of
activities  that  are  needed  to  generate  the  outcomes.  Furthermore,  it  should  identify  a  set  of
indicators, which will allow for progress to be monitored and assessed. 

The International Action Plan should take account of the different levels of social, economic
and political development among countries, which affect the capacity to respond to the ageing
challenge. Consequently, it may be useful to distinguish between objectives applicable to all
countries  and  those  that  may  be  specific  to  particular  regions  of  the  world.  Likewise
differences  should  be  reflected  in  the  spelling  out  of  appropriate  actions  and  responsible
actors.

On the basis of these considerations, the Commission suggests that the following points merit
particular attention:

(cid:1)  The European Commission agrees with the United Nations that a greater global awareness
will be necessary in order to meet the future challenges for all our societies raised by the
ageing  process.  The  process  of  ageing  must  be  addressed  within  the  larger  process  of
development  in  a  global  context.  International  co-operation  can  improve  the  ability  of
countries  to  respond  to  these  challenges.  Policies  that  take  due  account  of  the  ageing
challenges in the future have to be prepared now.

(cid:1)  While conditions and opportunities for the presently old people are an important part of our
concern,  adjusting  well  to  population  ageing  should  be  seen  as  a  life-cycle  process
involving people of all ages. All generations will have to contribute to solutions and find
ways to adjust. Moreover, population ageing can better be tackled if the different domains
affecting the quality of life are taken into account in the process of policy making.

(cid:1)  Appropriate responses to ageing aim at promoting a society for all ages and encourage age
integration in all spheres of economic and social life. Existing policies should be evaluated
on the extent to which they promote age segregation or integration strategies.

(cid:1)  The  long-term  objective  of  national  policies  should  be  to  ensure  that  good  health  and
wellbeing  accompany  the  extended  longevity.  Healthy  longevity  requires  a  life  long
process of maximising opportunities for economic, physical, social and mental well being.
A  life  long  approach  to  health  and  a  new  balance  with  health  promotion  and  disease
prevention is also required to cope with the challenge of an ageing society.

(cid:1)  Education from an early age to promote awareness of the multifaceted aspects of longevity
is  an  essential  and  cost  effective  measure  to  enhance  healthy  lifestyles  and  reduce
disability in old age. While it is up to governments to create supportive environments for

11

advancing  health  and  wellbeing  into  old  age,  individuals  themselves  are  responsible  for
maintaining healthy life styles.

(cid:1)  Dependence and disability is an important issue in relation to old age. It is determined to a
large extent by contextual factors. Countries should integrate into their priorities the need
to maintain the quality of life and social integration of older persons, and especially that of
the  'oldest  old',  the  definition  of  which  may  vary  between  countries.  Safe  and  adequate
housing, transportation  and  communication  systems  are  especially  important  for  the  well
being  of  older  people.  Minimising  hazards  in  the  physical  environment  is  important  for
avoiding debilitation and painful injuries for older people. 

(cid:1)  Family  and  household  structures  are  undergoing  profound  changes  in  many  countries.
Families tend to become less able to manage all the caring responsibilities and to provide
alone  the  support  required  by  dependent  and  frail  members.  Structures  of  formal  care
provision  may  therefore  have  to  be  erected.  Current  generations  of  older  people  play
significant  care-giving  roles  and  provide  important  financial  support  to  younger
generations.  It  is  important  to  note  that  across  all  generations,  women  bear  the  greatest
burden in terms of providing care.

(cid:1)  Considerations  about  the  end  of  life  should  have  their  place  in  the  debate  of  ageing
societies. In accordance with the UN Principles for Older Persons, all people should have a
right to a death that is as dignified as possible and one which respects their cultural values.
Policies  must  strive  to  enable  people  to  die  in  a  caring  environment  with  adequate
professional support but also giving high priority to social interaction with the patient and
their relatives.

(cid:1)  There is a  need for developing a better information base for public policy in  the  field  of
ageing. The universal trend of population ageing amid  great  diversity  raises  the  need  for
more  international  co-operation  and  pooling  of  efforts  for  providing  an  effective
knowledge  base  and  analytical  framework  in  relation  to  the  wide  variety  of  challenges
posed.  Basic  information  is  needed  about  trends  and  differentials  within  the  trends,  in
mortality,  morbidity,  migration  as  well  as  in  the  socio-economic  circumstances  of  older
persons as related to gender, regional, and country differences. Particular emphasis should
be given to cross national collaboration in the areas of standardisation and comparability of
instruments and scientific methodologies. 

12

5. 

CONCLUSION

The Commission agrees that the 2nd World Summit on  ageing  represents  an  opportunity  for
adopting common approaches to the challenge of ageing at the global level and supports the
UN efforts aimed at developing a global framework for action. This global framework should
include the results and commitments at the Copenhagen World Social Summit (1995) as well
as subsequent UN Conferences on women and communicable diseases. 

Within this context, the European Commission pledges its willingness to share with countries
in other  parts  of the world, and particularly with  developing countries, its experience  in  the
search  for  responses  to  ageing,  and  invites  all  UN  Member  States  to  reflect  on  the  policy
ideas, innovative forms of co-operation and policy progress achieved in the European Union.

13

ANNEX

“Adequate  and  sustainable  pensions:  A  report  by  the  Social  Protection  Committee  to  the
Göteborg European Council on the future evolution of social protection" (June 2001)

“Ageing  and  fiscal  studies  in  the  European  Union”,  article  in  the  Welfare  State  in  Europe:
Challenges and reforms, Reports and Studies No.4, 1997, European Commission, Directorate-
General for economic and Financial Affairs

Ageing  and  pension  expenditure  prospects  in  the  Western  World,  European  Economy,
Reports & studies no. 3 1996

"Budgetary  challenges  posed  by  ageing  populations:  the  impact  on  public  spending  on
pensions,  health  and  long-term  care  for  the  elderly  and  possible  indicators  of  the  long-term
sustainability of public finances”, EPC/ECFIN/655/01 –EN final, 

Council of the European Union (2001), “The Contribution of Public Finances to Growth and
Employment:  Improving  Quality  and  Sustainability”,  Report  from  the  commission  and  the
(ECOFIN) Council to the European Council (Stockholm 23-24 March 2001), 6997/01

Council  of  the  European  Union  (2001),  "Quality  and  viability  of  pensions  -  Joint  report  on
objectives and working methods in the area of pensions" 14098/01 SOC 469 ECOFIN 334

European Commission: Employment in Europe 1999

European Commission: The demographic situation in the European Union 1995 & 1997

European Commission: The Social Protection Report 1995 & 1997

European Commission: “Towards a Europe for All Ages", COM (99) 221 final, May 1999

European Commission: “A Concerted Strategy for Modernising Social Protection” COM (99)
347 final, July 1999

European  Commission:  “The  contribution  of  public  finances  to  growth  and  employment:
Improving quality and sustainability”, COM(2000)846

European Commission: “The Future Evolution of Social Protection from a Long-Term Point
of View: Safe and Sustainable Pensions" (COM(2000) 622)

European  Commission:  “Supporting  national  strategies  for  safe  and  sustainable  pensions
through an integrated approach” (COM 362/2001)

European Employment Observatory, Trends no. 33 1999

Presidency Conclusions, European Council, Lisbon 23-24 March 2000

Presidency Conclusions, European Council, Nice 7-9 December 2000

Presidency Conclusions, European Council, Stockholm 23-24 March 2001

Presidency Conclusions, European Council, Göteborg 15-16 June 2001

Presidency Conclusions, European Council, Laeken 14-15 December 2001

14

Reforms  of  pension  systems  in  the  EU  –  an  analysis  of  the  policy  options”,  in  the  EU
Economy:  2001  Review,  European  Commission,  Directorate-General  for  Economic  and
Financial Affairs

“The long-term economic and budgetary implications of ageing populations”, article in The
EU  Economy:  1999  Review,  European  Commission,  Directorate-General  for  Economic  and
Financial Affairs

“The  sustainability  of  public  finances  in  EMU”,  article  in  Public  Finances  in  EMU  –
2001.Reports  and  Studies  No.  3,  European  Commission,  Directorate-General  for  Economic
and Financial Affairs

15