Opinion of the European Economic and Social Committee on ‘the agricultural employment situation in the EU and the accession countries: options for action for 2010’
Date: 2004-01-29
Institutions: European Economic and Social Committee
Subjects: economic and social cohesion, enlargement of the Union, farmers' income, social security, working population engaged in agriculture

30.4.2004

EN

Official Journal of the European Union

C 108/101

Opinion of the European Economic and Social Committee on ‘the agricultural employment situa-
tion in the EU and the accession countries: options for action for 2010’

(2004/C 108/21)

On 23 January 2003, the European Economic and Social Committee, acting under Rule 29(2) of its Rules
of Procedure, decided to draw up an opinion on the agricultural employment situation in the EU and the
accession countries: options for action for 2010.

The Section for Agriculture, Rural Development and the Environment, which was responsible for preparing
the Committee's work on the subject, adopted its opinion on 18 December 2003. The rapporteur was Mr
Wilms.

At its 405th plenary session, held on 28 and 29 January 2004, (meeting of 29 January), the European
Economic and Social Committee adopted the following opinion by 65 votes to 2, with no abstentions.

1. Introduction

1.1
Agriculture and rural development are two of the most
pressing problems which need to be tackled in connection with
the EU's eastward enlargement. Steps to adapt central European
agriculture to EU conditions will affect nearly all spheres of
rural life. In the accession countries, rural areas will undergo
fundamental changes.

1.2
Eastward enlargement will, however, give the EU the
opportunity to solve the economic and structural problems
affecting central European agriculture by targeting agricultural
policy accordingly.

1.3
Enlargement will lead to an increase in the number of
people active in farming – whether as farmers or farm-workers
– and to structural change, and this in turn will heighten
competition between farmers and for jobs in agriculture. This
can have serious repercussions on the economic and social
structure of European agriculture and on social
security
systems.

For the purposes of preparing this opinion, the Euro-
1.4
pean Economic and Social Committee (EESC) held a public
hearing at which experts from a number of accession countries
reported on the situation in their countries. The following
issues in particular were addressed at the hearing:

— high unemployment levels in agriculture;

— high poverty rates in rural areas and emigration from these

areas;

— the number of migrants moving from the East to the West;

— the poor social security cover in agriculture and the high

average age of farm-workers;

— inadequate qualifications of farm-workers;

— insufficient capital resources on farms; and

— the lack of structures for civil society.

1.5
The contributions made by the experts contrasted with
the official reports emanating from the Commission. It was
clear that the situation in rural areas, in particular, was felt by
local inhabitants to be substantially worse than it was described
in the documents. The optimism of the people was, however,
also expressed by the experts. The people expect that accession
to the EU will boost development.

The enormous income disparities between the current
1.6
and future Member States, together with the high proportion
of the accession countries' workforces engaged in farming, are
key issues in the EU's eastward enlargement. Mergers and
major restructuring can be expected in rural areas; failure to
take the necessary action will lead to an upsurge in rural unem-
ployment in the accession countries and put pressure on the
labour market situation in current Member States.

Differences

1.7
in prosperity between metropolitan and
outlying rural areas are expected to increase. Unemployment in
agriculture is nowadays higher than in other sectors. There are
scarcely any new jobs outside farming in rural areas.

One result of this development is that rural areas have
1.8
become even poorer
in more than just economic terms.
Human capital is also undergoing a change: young and quali-
fied people are leaving these regions for more prosperous ones.

1.9
Over the next few years, efforts to combat unemploy-
ment should be redoubled. Better use should be made of the
available potential, and political action should be taken to
create synergies from existing options and programmes. The
social partners can work jointly with other players in the
regions with a view to formulating and implementing new
ideas deriving from their business knowledge and experience
with regard to potential. The contacts which they have with
higher-level programmes and administrations will help them to
achieve this objective.

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2. Starting point

2.1 Competitive and sustainable farming

Agenda 2000 heralded a change to the Common Agri-
2.1.1
cultural Policy. The new approach is viewed with scepticism in
many quarters. It is however clear that in the course of enlarge-
ment, and given the international pressure in this domain
(WTO negotiations), new avenues will have to be explored in
agricultural policy, offering both the existing Member States
and the accession countries opportunities to build up a compe-
titive farming sector. In a multifunctional agricultural sector,
agricultural policy should be modelled on sustainable economic
practices (1).

2.1.2
However, much still has to be done in the accession
countries to bring agricultural systems in line with EU stan-
dards. The areas giving rise to serious concern are in particular
farming, the use of proper procedures for the payment of
financial aid, quality standards and the environment (2).

2.2 Sustainable farming can only work as part of an integrated

policy for rural areas

2.2.1
There are many stakeholders in rural areas and there
is a plethora of aid measures available, some of which, such as
the Structural Funds, could be better used. The lack of inte-
grated approaches for making effective use of existing potential
is to be criticised.

2.2.2
The economic importance of agriculture in rural areas
is not just confined to the agricultural sector. Every euro spent
on agriculture also creates added value - and with that, jobs too
- in upstream and downstream sectors. Between four and five
jobs in these latter sectors are dependent upon each job in the
agricultural sector.

2.3 Safeguarding of farmers' incomes

2.3.1
‘At the level of EU-15 per capita agricultural incomes
have developed quite favourably since the beginning of the
reform process. However, this favourable development hides
the increased importance of direct payments in farm income as
well as considerable variations between countries, regions and
sectors.

2.3.2
Since market revenues alone are not enough to ensure
an acceptable standard of living for many farm households,
direct payments continue to play a central role in ensuring a
fair standard of living and stability of income for the agri-
cultural community’ (3).

(1) Opinion of the Economic and Social Committee on policy to conso-
lidate the European agricultural model, OJ C 368, 20.12.99, pages
76-86

(2) The European Commission's Comprehensive monitoring report on

the state of preparedness for EU membership, 2003

(3) Communication from the Commission to the Council and the Euro-
the Common Agricultural

pean Parliament: Mid-term review of
Policy, COM(2002) 394 final, page 8.

2.3.3
The positive trend in incomes in the agricultural
sector must, however, not hide the fact that income trends in
other sectors have been more favourable and the fact that agri-
culture has fallen behind the general trend.

2.4 Employment in agriculture

2.4.1 When the accession countries join the EU, the average
employment rate will
fall and the unemployment rate will
climb. Agriculture poses a particular problem. In the EU-15,
4.1 % of the workforce is employed in agriculture; however the
figure is 13.2 % in the ten accession countries (20.8 % if
Romania and Bulgaria are included). After enlargement, 5.5 %
of
the EU 25's workforce will be employed in agriculture
(7.6 % in an EU of 27) (4).

2.4.2
unemployment in rural areas will rise even further.

If no measures are taken, the already high levels of

2.4.3
‘The agricultural sector of most candidate countries is
expected to undergo a significant restructuring process in the
coming years (with or without enlargement) leading to struc-
tural pressures on rural areas in these countries’ (5).

2.4.4
There are still around 5.5 million self-employed busi-
(plus around 4
nessmen farmers in the EU-15 at present
million in the 10 accession countries). The number of small
farmers continues to decline further. This is a process which
will speed up after enlargement, particularly in the accession
countries. There are about one million employers in EU agri-
culture (plus around 80,000 in the 10 accession countries).

2.4.5
There are around one million permanent employees
paying compulsory social security contributions in the EU-15
(plus around 550,000 in the 10 accession countries). Enlarge-
ment will alter the ratio between small
farmers and farm
employees (more employees, fewer small farmers).

income and social circumstances of

2.4.6
The EESC has repeatedly studied the situation of
seasonal farm-workers. Despite several requests to the Commis-
sion, no precise details have been forthcoming about
the
number, origins,
these
workers in Europe. Altogether, the number of seasonal farm-
workers in Europe is estimated at around 4.5 million, corre-
sponding to at least 1,000,000 full time employees. Of these,
420,000 come from non-EU European countries and 50,000
there are around
from outside Europe.
250,000 seasonal workers in the accession countries. More-
in these countries there are large numbers of illegally
over,
employed seasonal workers from,
inter alia, Russia, Ukraine
and Belarus.

is assumed that

It

The increasing number of

2.4.7
immigrants from
non-Member States, principally from Russia, Ukraine and
Belarus, gives cause for concern. In the Czech Republic alone,
the figure is estimated at 250,000.

illegal

(4) Communication from the Commission: Second progress report on
economic and social cohesion, COM(2003) 34 final, pages 13 and
14.
(5) Ibidem.

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2.4.8
During the hearing it was explained that, especially in
the agricultural sector in the accession countries, large numbers
of workers are not included in the statistics because they are
not paid for their work.

2.4.9
Over the last few years, a new sector has developed
between the private and state sectors in which private indivi-
duals come together to work for the common good. Numerous
businesses with growing numbers of employees have already
been built up on the basis of such a commitment. Such organi-
sations and businesses from the ‘social economy’, or ‘third
sector’ (6) traditionally have a role to play in rural areas too.
Associations for the protection of local culture and customs,
for marketing tourist and cultural facilities and for youth work,
as well as cooperatives for the joint marketing of agricultural
products,
the
economic, social, cultural and environmental fabric of rural
areas. The Commission has already underscored the economic
importance of this sector on many occasions (7).

are becoming

increasingly

important

for

2.4.10
In its employment strategy, the Commission refers to
the local dimension of employment (8). Rural regions still have
the highest unemployment rates and the lowest levels of pros-
perity. Yet there are still no strategies for implementing local
employment initiatives in rural areas. Even national and local
action programmes for employment take little or no account of
rural areas and the agricultural sector.

2.5 Farm incomes

2.5.1
In the current EU, there are already major regional
disparities in farming incomes, but in an enlarged EU, the
incomes will be even
disparities in farm and farm-workers'
larger.

2.5.2
‘Ensuring a fair standard of living for the agricultural
community and contributing to the stability of farm incomes
remain key objectives for the CAP’ (9). However the suspicion is
it is the smaller farms in particular which will suffer
that
income losses.

socio-economic bodies which basically have

(6) ‘Social economy’, or ‘third sector’, businesses and organisations
encompass
the
following principles in common: they are not-for-profit organisa-
tions which operate independently of the public and private sectors,
target a more participatory form of organisation and are geared to
serving the community ; they cater for needs and public services
which the market does not cover and,
to this end, engage in
economic activity and employ staff; and they are mostly small and
medium-sized businesses in local communities whose work is
geared to long-term regional development (See footnote 5).

(7) Communication from the Commission: Acting locally for employ-
ment - A local dimension for the European Employment Strategy
COM(2000) 196 final, pages 11 and 12.

(8) Ibidem.
(9) See footnote 2.

The EESC has

repeatedly criticised the fact

2.5.3
that
Commission reports make no reference to farm-workers, yet
they too are directly affected by all economic and structural
changes. Thus there are no reports on changes to the incomes
or social situation of
farm-workers and employees of agri-
cultural contractors.

The differences

2.5.4
in prosperity levels between the
various regions of Europe could in the long term jeopardise
comprehensive wage agreements and thus collective agree-
ments as a whole. The fewer issues the social partners are able
to resolve in free negotiations, the more necessary State inter-
vention – via regulations, decrees and rules on the minimum
wage - will become in order to prevent general
impoverish-
ment.

2.5.5 While wage levels in north-western European coun-
tries such as the Netherlands and Denmark are relatively high,
wages in central European countries such as Slovenia and
Poland do not even match a quarter of these. In countries in
the middle on the ‘border of prosperity’, such as Germany,
Austria and (northern) Italy, these disparities will throw the
wage structure into disarray.

2.5.6
Collective agreements are concluded at different levels
in each country. While, for example, wage levels are negotiated
in Germany framework agree-
centrally in the Netherlands,
ments are reached at federal
level and then implemented at
regional
In some countries collective agreements are
concluded only at regional level or even within companies.

level.

2.5.7
The influence of the State in collective bargaining like-
wise varies. In Austria and Germany, for example, the partners
to collective agreements negotiate by themselves, while in the
United Kingdom, the State may have a say in negotiations.

In many countries, a fixed minimum wage establishes
2.5.8
the level below which incomes may not fall. The less influence
trade unions and employers' organisations have on shaping
collective agreements, the more necessary legislation is to cover
this.

2.5.9
It is most difficult to reach and implement collective
agreements in the accession countries. Such agreements are
only embryonic at regional and pan-regional level.

In a non-binding agreement, the social partners in
2.5.10
inter alia, the impor-
the agricultural sector have reaffirmed,
tance of flexible working time rules for employment in rural
businesses and have issued a recommendation on the statutory
annual working time.

2.5.11
The structure and levels of agricultural wages are
based on national systems, which should be reassessed and
developed in the current and acceding Member States at the
time of enlargement.

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2.6 Social criteria in sustainable agriculture

2.6.1
One aim of sustainable development is to strike a
balance between social, economic and environmental dimen-
sions. The debate on the social dimension and its criteria and
indicators has only just begun. To date there is still consider-
able uncertainty as to what social sustainability actually is or
could be. Until now the debate has primarily been held in
scientific circles and at
the top levels of some businesses,
without fulfilling the basic principle of participation. The key
parties are not involved in the debate, and this fact casts doubt
over whether the debate's conclusions can find the acceptance
required for their implementation.

2.7 Social security

2.7.1
Social security in Europe has a complex structure
which European integration will not exactly make any clearer.
The development of each country's system is marked by its
own culture and traditions. Social security is a national respon-
sibility.

2.7.1.1
In many EU Member States, the question of the
long-term financial viability of the social security system has
arisen.

In the enlargement countries,

2.7.1.2
the social security
systems have been, or are being, restructured. With incomes
low and unemployment high, the changeover from purely State
systems to independent, contribution-based schemes is creating
a situation where social insurance systems are short of capital.
As a consequence, farm workers and self-employed farmers
have inadequate cover in old age.

2.7.2
Pension levels in the accession countries' agricultural
sectors are very low, and as a consequence, many pensioners
feel compelled to continue working in order to earn a living.
There is no sign of agricultural pensions coming into line with
general pension levels. At the hearing the particularly proble-
matic situation of farmers who had lost their jobs during the
years of the political and economic transformation were high-
lighted. These farmers will have to contend with particular
social hardships.

2.7.3
country. They often comprise a mix:

Old age pensions are regulated differently in each

— State pensions,

— statutory insurance,

— supplementary pensions arranged through collective agree-

ments, and

— private provision.

the statutory minimum provision, it is first and foremost the
supplementary pensions negotiated by collective agreement
which play an important role. There are instances of this in
Germany, the Netherlands and France.

2.7.5
Social security systems also have to take account of
the increasing mobility of labour between countries. Migrant
and seasonal workers, for example, are usually not covered at
all by pension insurance schemes. There is considerable need
for action here.

2.7.6 Work on the land is changing, and with it the qualita-
tive nature of the work to be performed. This matter must also
be examined from the point of view of sustainability, and
sustainability criteria must be applied. The working conditions
must attract new workers.

2.7.7
Occupational safety and health protection schemes in
the accession countries still have to be overhauled. Despite
major efforts, accidents involving children and young people
employed on farms are for example, still very frequent in the
accession countries.

2.7.8
The fragility of the social security systems in central
European countries is a major reason why the subsistence
economy plays such a preponderant role in those countries.
Thus in Poland, around 900,000 of
the 4 million people
working in agriculture are of pensionable age.

2.7.9
At the hearing, various parties underlined the high
average age of farm-workers and the consequences of this. This
age structure will in the long term lead to a shortage of quali-
fied workers.

2.8 Basic and further training

European strategies attach considerable importance to
2.8.1
relationship
skills. There is a causal
developing workers'
between the number of
their quality and employee
training. For this reason, it is especially important to encourage
people to improve their skills.

jobs,

Solid basic vocational

2.8.2
training to prepare young
people for work is necessary to maintain the agricultural work-
force in the long term. Training must be geared to providing
people with a broad training in addition to a high level of
specialist skills, enabling them to move to other sectors or
countries.

As part of the social dialogue, the social partners have
2.8.3
signed an agreement on vocational
training stipulating the
steps to be taken to develop vocational training further and
how readily understandable evidence of vocational qualifica-
tions can be provided,
the
in order
increasing free movement of workers (10).

to take account of

2.7.4
Given the low income levels in farming, there are few
possibilities for private provision, so that in order to improve

(10) EFFAT-GEOPA agreement on vocational training

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2.8.4
The proportion of the agricultural workforce taking
part in skills training is below the average for the workforce as
a whole in the EU. In the accession countries, there is a consid-
erable need to match these skills to new techniques and tech-
nologies, new markets and also new economic and social
content and capabilities.

2.9.2
The development of European programmes has
created new opportunities for participation, for example as part
of the Structural Funds Monitoring Committees, the European
Social Fund (ESF) or the LEADER Local Action Groups.
It
should however be noted that the social partners, particularly
employees, are under-represented on these bodies and that the
authorities have too great an influence.

2.8.5
Nowadays, more than traditional farming expertise is
required to manage farms. Constant technical, environmental,
economic and social changes are placing increasingly heavy
demands on managers. Regions with large agricultural holdings
depend in particular on new young managers.
In the new
federal German States (Länder), for example, there will soon be
a shortage of suitable managers to keep farms successfully in
business. Similar developments can soon be expected in the
accession countries.

2.8.6
Nearly all the rural areas in the European Community,
and, above all, however, peripheral, sparsely populated areas,
are facing the problem of mobile young people moving away.
It is in particular older people who stay behind, often to face
impoverishment. To
the threat of loneliness and intellectual
prepare people properly for old age, access to training and the
information society is also needed. Training for older people
should:

— make use of their many years of experience working on the

land;

2.9.3 Worker participation on farms is very rare due to
their small size. Very few farms are large enough to have co-
determination bodies. In the accession countries, where larger
farms have been built up, much still needs to be done to set up
co-determination bodies.

Because worker participation is limited to a few farms,
2.9.4
co-determination at a sectoral
level takes on greater impor-
tance. In some Member States, such as France, there are jointly-
run boards or associations which give workers a say in deter-
mining employment conditions and skill requirements.

2.9.5
Alongside their work in institutionalised co-determin-
ation, the social partners are increasingly involved in moves to
further develop society at grassroots level. Members of their
organisations actively engage their liaising and communication
skills, for example, and help to change fossilised structures. In
turn, new ideas, products, markets and jobs may be developed
for businesses.

— enable their needs to be mainstreamed in everyday life;

3. A vision for 2010

— encourage them to be involved in society; and

— prevent loneliness and intellectual impoverishment.

3.1
The history of the EU shows that visions can be trans-
lated into reality if goals are set and if all parties are ready to
take part in joint action. In this opinion, too, visions, backed
up by concrete options for action, are used as a tool.

Much voluntary work is already being undertaken in this
sphere in rural areas. What is needed is to focus these activities
and to specifically integrate training for older people into Euro-
pean programmes such as the ESF and LEADER.

2.9 Co-determination and participation

2.9.1
A social model has been developed in the European
Union over the last few years which gives as many players as
possible a say in matters. The social partners have a special role
to play here. Through agreements as part of the social dialogue
or at company level, they contribute to the further develop-
ment of the European social model. This concept also embraces
non-trade concerns, which are due to gain in importance as
part of EU external protection, too. Such agreements include,
for example, also agreements between enterprises, trade unions
and other NGOs to meet higher social and environmental stan-
dards in respect of certification. A number of highly promising
initial measures have been taken in the agricultural and forestry
sectors with the Flower Label Programme and the Forest Stew-
ardship Council.

3.2 The EESC is looking forward to a competitive, sustainable agri-

cultural sector offering employment and social balance.

There is to be a competitive agricultural sector that
3.2.1
satisfies sustainability criteria. In this context, sustainable agri-
culture is to be seen as an ongoing process, in which there is
to be permanent dialogue between the players concerned,
aimed at establishing a balance between economic, environ-
mental and social concerns.

Employment in agriculture is continuing to change.
3.2.2
Farms with permanent employees, for whom social insurance
has to be paid, are backed up by agricultural contractors and
seasonal employment,
thereby allowing production require-
ments to be managed flexibly.

3.2.3
There is to be a level playing-field in world trade.
Social and environmental standards in the developing countries
are to be a part of this.

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3.3 The EESC is calling for an integrated policy for rural areas. Such
a policy should take the impact of upstream and downstream
sectors into account.

3.5.3
Seasonal work is to be calculated and observed in
studies of full time employment equivalents. Illegal work is to
be made legal.

3.3.1
The Second European Conference on Rural Develop-
ment, held in Salzburg in 2003, provided a decisive impetus
for reforming rural development policy. Throughout the EU, it
has been accepted, without diminishing the value of agri-
culture, that the funding required for rural development would
be provided by the EU, backed up by funding from national
budgets. The earlier system, which was complicated and inflex-
ible, has been simplified and extended and assured beyond the
previous confines of providing assistance to the agricultural
sector.

3.6 The EESC wants the social partners to conclude collective agree-

ments to safeguard adequate levels of income.

3.6.1
Collective wage agreements will be concluded for
these agreements will apply across-the-board,
farm-workers;
with the result that national minimum wages will be the excep-
tion. Wage rates will be set at a level which provides employees
with a reasonable income. (11)

3.4 The EESC demands the establishment of a uniform system of aid

in Europe, which safeguards farm incomes.

3.7 The EESC is calling for equal treatment for seasonal workers.

3.4.1
The adjustment process in agriculture in the new
Member States will be completed in 2010. A uniform system
of aid will apply. Farm incomes will be safeguarded. Farmers
will acquire new sources of income as the agricultural sector
becomes multifunctional. Subsidies linked to production levels
will be increasingly reduced and will be replaced by perfor-
mance-related income-support payments for farmers.

3.4.2
Farms are to adapt to the constant structural change
in good time. This will also involve an increasing number of
activities outside the traditional sphere of agriculture.

3.4.3
Performance-related income-support payments are to
cover environmental measures and the provision of land and
facilities for tourism.

3.4.4
Farmers who wish to give up their holdings and farm-
workers leaving farming are to have the opportunity to take
part in employment and training schemes.

3.5 The EESC is expecting employment in agriculture to pick up.

The legal transformation of both agricultural enter-
3.5.1
prises and the ownership of agricultural land is to be completed
and, in the agricultural sector, all legal forms are to be placed
on an equal
increase in
footing. There will be an overall
employment amongst
farm-workers and farmers (including
seasonal work and work for agricultural service-supply agen-
cies). Regional funds will be set up, in collaboration with the
social partners, to promote employment and skills acquisition.

3.7.1
Collective wage agreements are to apply to seasonal
workers and migrant workers. Decent accommodation will be
provided for all workers, who will also be protected against
poverty in old age by pension schemes.

Information on occupational

3.7.2
in
seasonal workers' mother tongues is to be essential. The EESC
realises that this is not always an easy task; it calls upon the
European association representing employers' liability insurance
associations and accident-insurance bodies to address this
matter and to put forward proposed solutions.

safety provisions

3.7.3

There is to be no further illegal hiring of workers.

3.7.4
to cover employees from non-EU Member States.

If farms need extra labour, provisions can be enacted

3.8 The EESC is hoping for social criteria and indicators for certi-
fying businesses where farming is the main activity, as a contri-
bution to sustainable farming.

3.8.1
The introduction of certification for such businesses
will be a key factor in promoting sustainable development in
agriculture. Social criteria and indicators will be set in connec-
tion with the introduction of such an EU-wide assessment
scheme.

3.9 The EESC believes that effective social security systems will make

jobs in agriculture attractive.

3.9.1
workforce against loss of social status and social exclusion.

Provident schemes in agriculture are to protect the

The various aid measures are to be effectively used;
3.5.2
the creation and long-term maintenance of
jobs are to be
applied as a criterion when the various public funds are allo-
cated.

(11) The term ‘reasonable income’ implies that employees will receive
an agreed performance-related income to satisfy their economic,
social and cultural needs. Income trends in agriculture must be
geared to general income trends.

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3.9.2
Pension schemes for farmers and farm-workers are to
provide them with a reasonable income in old age (12). Early
retirement arrangements will offer decent conditions for taking
up retirement.

If farm-workers are to reach retirement age in good
3.9.3
health, the environment in which they work must be geared
towards the sustainable development of the workforce. Effective
measures and instruments have been introduced as part of a
European strategy. This strategy will be backed up by national
occupational safety strategies for agriculture.

National social

3.9.4
insurance systems covering the agri-
cultural sector in Europe are to be transparent and compatible,
thereby making it possible to move from one system to
another without difficulty.

3.10 The EESC is looking forward to a sector-based strategy for life-

long learning to underpin employment.

3.10.1
A sector-based strategy for lifelong learning is to be
implemented. This strategy will be based on the following
pillars:

— basic vocational training;

— further training for employees in the agricultural sector;

— promotion of entrepreneurship in agriculture;

— learning schemes in old age.

3.10.2
Implementation of this strategy and the establish-
ment of a network of training bodies operated by the social
partners in rural areas will have boosted demand for training
measures in the agricultural sector.

The social partners' agreement on vocational training
3.10.3
is to be put into practice; the authorities concerned are to play
an appropriate part in this.

3.10.4
The measures required for this are to be funded from
EU sources such as the ESF, CAP, and LEADER programmes
with national co-financing.

3.10.5
The profile of careers in agriculture and forestry can
be raised by holding cross-border European-wide competitions.
Support measures for individuals and grants are also to be
provided as part of this initiative.

3.11 The EESC is calling for civil society players to be involved in

the sustainable development of rural areas.

3.11.1
As part of a move towards ‘new participation’ in the
EU, national and regional civil society players are to work
together to promote sustainable development in rural areas. An

(12) cf. footnote 1.

agricultural sector geared to meeting sustainability criteria will
be a key component of this sustainable development.

3.11.2
Guidelines are to be drawn up for sustainable agri-
culture. Problems about conflicting objectives are to be settled
responsibly by the agricultural sector in conjunction with civil
society players in such a way that resource use also takes
economic requirements into account.

3.11.3
prevent rural depopulation.

One of the goals of sustainable development is to

3.11.4
All countries are to have instruments for facilitating
social dialogue in the agricultural sector at the level of the
Member States and the regions.

3.11.5
ests of farm-workers to be effectively represented.

There are to be legal provisions to enable the inter-

4. Possible courses of action

4.1 Achieving a competitive, sustainable agricultural sector

4.1.1
Agriculture is one of the largest users of land in the
EU. It has a special role to play in sustainable development in
the EU. This justifies the introduction of a European sectoral
strategy for a sustainable agricultural sector to complement
Europe's overall strategy.

— The Commission will formulate this strategy together with
the civil society players in rural areas. The strategy will
inter alia provide a basis for the debate on the new aid
period post 2007.

— The strategy for a sustainable agricultural sector can only
be successful if it enjoys broad support. For this reason, the
Commission is asked to present a programme for publi-
cising the strategy and to fund appropriate activities for
achieving this goal, such as seminars and documentation.
Civil society players in rural areas are called upon to help
implement this strategy.

4.1.2
The sustainable farming model must be taken into
consideration in the WTO negotiations. Here the concept of
wholesome food production at a fair price must be non-negoti-
able and minimum social and environmental standards must be
agreed upon and complied with.

4.2 Integrated rural development

4.2.1
The Commission must press harder than in the past at
all levels of action for the targeting of aid to be coordinated.
This requires the participation of stakeholders, a clear statement
of objectives and funding which has a sustainable impact.

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4.3 Safeguarding incomes in the agricultural sector

4.3.1
The gradual alignment of agricultural policy between
the EU-15 and the accession countries is designed to safeguard
employment and the income of agricultural workers and self-
employed farmers. Modulation is a key tool here. Measures to
step up aid to rural areas with the aim of providing new
sources of income for agricultural businesses, should be further
extended.

— The provision of aid under the CAP should be geared
towards achieving two objectives: on the one hand, transi-
tional funding should be provided for businesses with new
entrepreneurial ideas and, on the other hand, direct finan-
cial aid should be provided for services which, although
they are not marketable, are socially necessary and desirable
(such as measures to restore parts of the landscape).

— The LEADER programme should be geared more to the
level and to

involvement of the social partners at local
employment and sustainable development.

— Under

employment and training measures

the LEADER programme, assistance should be
for
provided for
to give up
farmers who are obliged, or who choose,
farming,
thereby stopping them from becoming unem-
ployed. Corresponding, programme-related adjustments
should also be made in the accession countries.

4.4 Measures to boost employment in agriculture

The local dimension of employment

is becoming
4.4.1
particularly marked in rural regions. In areas where large, non-
farm businesses are rare,
local businesses and workers must
take their future employment into their own hands and pool
their ideas. The approaches adopted up to now by the Commis-
sion under the LEADER programme and the European Employ-
ment Initiative should be further developed and better coordi-
nated. Local players are, however, not yet sufficiently involved
in the development of the process at local level. Local authori-
ties and regions (NUTS 1 and NUTS 2) still have a considerable
amount of ground to make up in terms of participation. If our
vision is to become reality, the following measures will have to
be taken:

— In EU programmes such as the CAP, LEADER and Local
Employment, greater attention needs to be paid to the
impact of rural employment.

areas. In this context there are still many areas of activity
(support for civil society) where new jobs could be created.
There is a particular need to take action in the accession
countries, where the ‘third sector’ or ‘social economy’ has
not yet been extensively developed.

— Local training and employment funds should be provided
with assistance under EU programmes; the social partners
will be able to launch training and employment initiatives
with the aid of such funds.

4.5 Collective agreements to be concluded by the social partners

Farm incomes are being safeguarded with the help of
4.5.1
the CAP. Farm-workers must not be excluded from the general
income trend. Collective agreements negotiated by the social
partners must form the basis. State-imposed rules, such as the
minimum wage, should only come into play on an exceptional
basis. The State should only step in when negotiations are
unsuccessful.

— The trend in wages scales and employment in agriculture
and the situation as regards migrant work and seasonal
work are matters of particular interest in the context of
economic and social uniformity in the EU-25. For this
reason, an observatory for agricultural wages, employment
and seasonal work is to be set up. The observatory's task
will be to investigate the impact which accession to the EU
has on income trends,
the socio-economic situation of
workers and broader social developments in agriculture.
The aims of the observatory will be to: monitor the situa-
tion; provide advice for, amongst others, the social partners,
the Commission and governments; and identify approaches
and options for taking action. The EESC requests the Joint
Committee on Agriculture to take on the role of
the
proposed observatory.

— The income of farm-workers should be included in the

Commission's reports.

— As part of the social dialogue, assistance should be provided
for the organisation of events for disseminating information
about collective agreements between the social partners in
the Member States and in the accession countries.

— The social partnership is not yet sufficiently developed in
the accession countries for all matters to be covered by
collective agreements. The Commission must continue to
provide support (especially financial support) in this field.

— A programme aimed at the social partners in rural areas
and designed to promote employment at local level as part
of the European Employment Strategy should be developed
and implemented.

4.6 Seasonal work

— The Commission should press for the employment situation
in rural regions and in the agricultural sector to be taken
and reflected in the National Action
into account
Programmes
and the Local Action
Programmes for Employment.

for Employment

In order to prevent upheavals on the agricultural
4.6.1
labour markets in Europe, seasonal work in agriculture needs
to continue to be regulated even after the countries of Central
and Eastern Europe (CEEC) join the EU:

— European aid programmes should attach special importance
to the development of the ‘third sector’ as a means of stabi-
lising the economic, social and cultural situation in rural

— With the support of the Commission, the social partners in
the agricultural sector are to reach agreement on minimum
standards with regard to the treatment and accommodating
of seasonal workers.

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— The introduction of an EU-wide identity card for migrant
workers and seasonal workers is still necessary (13). The ID
card should not be regarded as a passport but rather should
provide employers and employees with useful information,
e.g. with regard to skills and social security.

this is that such work is less attractive than work in other
sectors for a number of reasons, such as the lower wage levels
and the hard physical work frequently involved. One way of
making jobs in agriculture more attractive to the new genera-
tion of workers is to improve social security systems.

— If, after EU enlargement, there is still a need for additional
agricultural seasonal workers from non-EU Member States,
EU rules should be introduced with a view to reconciling
the interests of the social partners and the Member States.

4.7 Introduction of social criteria and indicators for certifying busi-

nesses where farming is the main activity

4.7.1
in the
Agricultural production is a key element
sustainable development of rural areas. Consumers are increas-
ingly demanding transparency with regard to the internal work-
ings of businesses. Farmers are increasingly ready to accept
transparent production. There are several
these calls
approaches possible for putting ‘transparent production’
into
practice. The development and introduction of certification
systems, with the participation of the social partners, is essen-
tial for a sustainable agricultural sector in the EU.

for

— Certification systems, stamps of quality and labels are key
components of a sustainable agricultural sector. The certifi-
cation system must therefore also include social criteria and
indicators.

— As part of the cross compliance provisions, businesses are
to be assessed for keeping land in ‘good agricultural condi-
tion’. The latter is not possible unless all parties in the
production process are suitably prepared and qualified for
the tasks in hand. Corresponding criteria are to be included
in the definition of ‘good agricultural condition’ (14).

— A Farm Advisory System (FAS), as proposed by the
Commission, is designed to secure a steady improvement in
the economic, environmental and social situation of farms.
Apart from advising farms, the FAS is to provide indepen-
dent advice to workers to prepare them for the future (15).

— There is effective social dialogue at EU level in the agri-
cultural sector. In this context, social criteria and indicators
should be drawn up without delay, for use as guidelines
when working out common approaches to the problem of
sustainable agriculture. These criteria and indicators should
be discussed with NGOs, consumer organisations, etc.
in
order to obtain a broad consensus, and are to serve as
guidelines at regional level.

4.8 Social security systems in sustainable agriculture

4.8.1
In many European countries agricultural businesses
complain about the shortage of skilled workers. One reason for

(13) EESC Opinion on the Elaboration of an initiative aimed at estab-
lishing a regulatory framework for the employment of migrant
agricultural workers from non-EU states (Own-initiative Opinion,
OJ C 204 of 18.7.2002, page 92).

(14) See EESC Opinion on the CAP review, CESE 591/2003, pages 10

and 11.

(15) See EESC Opinion on the CAP review, CESE 591/2003, p 11.

— Under the CAP, early retirement provisions are to be
extended in order to provide workers and farmers with
decent retirement conditions. Appropriate programmes are
to be provided in the accession countries for this purpose,
too. It is particularly necessary also to introduce such provi-
sions in central and eastern European countries (CEEC), in
view of the increasing ageing of their farmers.

should be

— ILO Convention (No. 184) on Safety and Health in Agri-
implemented. The Commission is
culture
pressing Member States to draw up and implement national
industrial health and safety strategies for the agricultural
sector.

— As part of a wide-ranging initiative, migrant workers are to
be provided with information on how to improve their
social protection arrangements. The EESC calls upon the
Commission to coordinate the information campaign with
social
insurance bodies and the social partners and to
provide financial assistance.

— Member States must fulfil their social security responsibil-

ities in the future, too.

— Farm-support services are to provide assistance for small

farmers when farm managers are absent.

4.9 A sector-based strategy for lifelong learning in the agricultural

sector

4.9.1 With a view to improving employment in the agri-
cultural sector and in rural areas, efforts must be stepped up to
boost the level of training. In addition to qualitative improve-
ments in training provision, there is also a particular need to
stimulate the demand for training. A sector-based strategy for
lifelong learning is to be introduced to provide the requisite
framework. This will contribute to the development of a
knowledge-based economy,
in accordance with the Lisbon
strategy.

— Along with the social partners, the Commission is devising
further
a four-pillar strategy - basic vocational training,
vocational
entrepreneurship,
learning schemes in old age - for providing lifelong learning
in the agricultural sector. This strategy is to be co-funded
with EU resources, including ESF and CAP funding.

strengthening of

training,

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— A lifelong learning strategy should also include training
counselling for farmers and farm-workers. This measure
could be funded under the CAP. Funding should be chan-
nelled via technical assistance. The social partners should be
involved in the provision of advisory services.

4.10.2
The key players in the process should be taken into
account and involved in developing civil society as part of the
move to boost sustainable development in rural areas. Scope
for involvement should be created in order to expand participa-
tion, with a view to developing society at grassroots level.

— The transfer of expertise is to be organised by a European
training network, bringing together training and employ-
ment bodies on which the social partners sit; this network
is to be provided with assistance from the Commission.

— The own funding will be supplied by regional funds.

4.10 Civil society players are to help shape sustainable development

in rural areas

The development of

labour relations between the
4.10.1
social partners in the agricultural sector in the Member States
assumes many different forms. The EU should introduce appro-
priate measures for developing the social dialogue.

— The Commission is urged to examine and make an
appraisal of examples of best practice in labour relations
and to disseminate the findings.

— The Commission should provide funding to the social part-
ners in the accession countries in order to ensure that posi-
tive and innovative approaches adopted by the social part-
ners can continue to receive assistance.

— Synergistic effects may be exploited by holding sectoral
dialogue in the agricultural sector in Member States and
regions. The Commission is urged to set up forums for
dialogue as part of key programmes. Sectoral dialogue
should cover the coordination of programme development
and project assistance in connection with operational
programmes, such as LEADER, the ESF and the ERDF.

— The process of having a local agenda for implementing
sustainable development has barely taken root
in rural
regions. A key aspect of this process is motivating as many
people as possible to participate; bottom-up approaches
can only be successful if the grassroots themselves are in a
position to become involved. Such approaches are also
necessary to ensure the success of local employment poli-
cies.

— ‘Rural development workshops’ should be set up at regional
level
in all rural areas. The key players (MPs, heads of
administrative bodies and representatives of farmers' asso-
ciations, trade union, churches etc.) should come together
in these workshops to address the problems of rural devel-
opment.

Brussels, 29 January 2004.

The President

of the European Economic and Social
Committee

Roger BRIESCH