Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Promoting decent work for all - The EU contribution to the implementation of the decent work agenda in the world {SEC(2006) 643}
Date: 2006-05-24
Institutions: European Commission
Subjects: International Labour Organisation, globalisation, humanisation of work, social development, social impact, socioeconomic conditions, sustainable development, the EU's international role, working conditions

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 24.5.2006 
COM(2006) 249 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

Promoting decent work for all 

The EU contribution to the implementation of the decent work agenda in the world 

{SEC(2006) 643} 

EN 

   EN 

 
 
 
  
 
1. 

INTRODUCTION 

In  September  2005,  the  United  Nations  Summit  on  the  follow-up  to  the  Millennium 
Declaration endorsed the need for fair globalisation. It resolved to include the promotion of 
productive  employment  and  decent  work  for  all  among  the  objectives  of  national  and 
international policies. It thus stressed the essential role played by employment and the quality 
of  employment  in  efforts  to  combat  poverty  and  promote  development:  although  some 
progress has been made, half of all workers worldwide earn less than two dollars a day and 
half of the world’s population has no social protection1.  

Prior to the Summit, the Commission, the Council and the European Parliament called for the 
strengthening of the social dimension of globalisation and for the promotion of decent work 
for all, in accordance with the ILO’s strategy in this area2.  

The promotion of decent work has been at the heart of the ILO’s policy agenda since the year 
2000:  in  its  decent  work  agenda,  the  ILO  proposes  giving  all  men  and  women  real 
opportunities  to  acquire  decent  and  productive  work,  in  conditions  of  freedom,  equity, 
security and human dignity. The decent work agenda has been approved by the governments 
and social partners within the ILO and encompasses a number of universal strategies which 
are  not  tied  to  a  specific  developmental  model.  In  2004,  it  was  incorporated  into  the 
recommendations  of  the  World  Commission  on  the  Social  Dimension  of  Globalisation 
(CMDSM).  

The  decent  work  agenda  is  based  on  an  integrated  approach  covering  productive  and  freely 
chosen  work,  rights  at  work,  social  protection,  the  social  dialogue  and  the  inclusion  of  the 
gender  dimension3.  It  therefore  encompasses  the  “core  labour  standards”  which  form  the 
minimum  basis  of  social  rights  established  by  the  international  community  and  whose 
implementation  the  Union  already  supports.  But  the  decent  work  agenda  implies  more  than 
that: it seeks not only to guarantee a minimum basis of rights but also to tailor development to 
values  and  principles  of  action  and  governance  which  combine  economic  competitiveness 
with social justice. 

Combining  economic  competitiveness  and  social  justice  in  this  way  is  at  the  heart  of  the 
European model of development. Playing an active part in promoting decent work forms an 
integral part of the European Social Agenda and of the EU's efforts to promote its values and 
share its experience and its model of integrated economic and social development4. 

In  supporting  the  promotion  of  the  decent  work  agenda  the  Commission  takes  the 
characteristics and diverse nature of the economic and social situations across the world fully 
into account. It recognises the importance of a step-by-step strategy which will help partner 
countries to take ownership and is geared to the circumstances and priorities at national and 
regional level.  

1 
2 

3 
4 

Global Employment Trends, 2006, ILO; report by the CMDSM, 2004, ILO.  
COM(2004) 383; Council conclusions on the social dimension of globalisation, 3.3.2005, doc 6286/05; 
EP report, A 6-0308/2005 du 15.11.2005; opinion of the EESC of 9.3.2005 and of the Committee of the 
Regions of 23.2.2005; European Council conclusions of December 2004 and June 2005. 
For the main reference documents on decent work, see Annexes I and III. 
European values in the globalised world, COM(2005) 525. 

EN 

2 

   EN 

 
                                                 
In this Communication, the Commission proposes strategies for ensuring that EU policy and 
action  play  a  greater  part  in  promoting  the  decent  work  agenda.  These  strategies  involve 
strengthening  cooperation  between  the  European  institutions,  the  Member  States  and  all  the 
relevant stakeholders. 

The  implementation  of  the  decent  work  agenda  will  be  a  central  theme  at  the  July  2006 
ECOSOC High Level segment. Efforts will continue at international level on the decent work 
agenda and the Commission intends to contribute fully to these.  

2. 

A FACTOR IN DEVELOPMENT, GOVERNANCE AND PERFORMANCE 

Globalisation  and  developments  in  technology  and  demographics  have  led  to  considerable 
changes in the way in which production is organised and services provided at global level and 
in  the  structure  and  distribution  of  jobs.  These  changes  extend  the  benefits  of  international 
trade  to  more  countries  and  social  groups  and  can  give  everyone  the  opportunity  to  obtain 
decent work.  

However,  economic  growth  does  not  necessarily  create  new  jobs  or  improve  existing  jobs, 
thereby reducing poverty. Many developing countries have economies in which the informal 
sector  and  poor  quality  jobs  predominate  and  in  which  dualism  exists  in  the  labour  market, 
particularly  in  countries  in  which  most  people  depend  on  subsistence  farming.  Women  and 
young  people,  in  particular,  form  the  bulk  of  those  who  work  in  the  informal  economy  and 
have poor prospects when it comes to income, training and social protection. 

Even  in  the  formal  sector,  the  weakness  of  employment  services,  governance  of  the  labour 
market and social protection systems make these countries less able to manage change.  

In the emerging countries, growth is not enough to reduce the poverty of significant sectors of 
the population. A rise in productivity does not always lead to wage increases. The number of 
poor quality jobs remains high and the size of the informal economy remains significant. In 
all these countries, but also, to a lesser extent, in the industrialised countries, workers in the 
informal economy are effectively excluded from rights at work and from social protection. 

Promoting  decent  work  calls  for  a  consistent  and  global  strategy.  Although  action  must  be 
taken to combat the most flagrant abuses of core labour standards, such as child labour, it is 
also particularly important that patterns of development be modified. Experience shows that 
the elimination of child labour also calls for action with regard to the labour market, the social 
dialogue and social protection (e.g. benefits to discourage or remove the need for child labour 
and promote education). 

In  order  to  stem  poverty,  granting  subsidies  or  expecting  results  from  growth  and  the 
establishment  of  international  companies  is  not  enough.  Action  must  be  taken  to  create  an 
environment which is conducive to national and foreign investment in the creation of jobs at 
local  level;  improve  governance,  including  the  social  dialogue;  identify  shortcomings  with 
regard  to  decent  work;  establish  a  legal  and  regulatory  framework  to  protect  workers  and 
ensure  equality  between  men  and  women;  establish  viable  systems  of  social  protection, 
education and lifelong learning; ensure legal certainty for businesses; reduce corruption and 
establish fair rules for competition. Promoting decent work in this way is also a need felt by 

EN 

3 

   EN 

 
the business sector, which takes the view that the responsibility does not lie with employers 
alone and that the public authorities must also do their bit5.  

By  placing  the  emphasis  on  employment,  the  quality  of  employment  and  appropriate  social 
policies, the promotion of decent work is a factor not only in justice and social cohesion but 
also in economic performance.  

The  endorsement  of  social  objectives  cannot  under  any  circumstances  be  used  for 
protectionist purposes. The objective is to achieve social progress across the board and ensure 
that it is spread fairly for the benefit of all.  

3. 

COMMITMENTS AND STRATEGIES FOR EU POLICIES 

The EU is actively involved in implementing the Millennium Declaration. It helps to promote 
growth and sustainable development at global level, in particular through its trade policy and 
the  action  it  takes  regarding  development  and  external  assistance.  The  EU  supports  the 
ratification  and  genuine  application  by  all  countries  worldwide  of  the  conventions  on  core 
labour standards6.  

It could play a specific role in helping to promote decent work by sharing its experience and 
expertise with international organisations and developing a political dialogue with regions and 
countries outside the EU. The  Commission  has  already  introduced  specific  measures  in  this 
area, such as stepping up its cooperation with the ILO, implementing the Generalised System 
of  Preferences  (GSP),  developing  the  European  consensus  on  development  and  initiating 
dialogues on employment with the countries in Asia and Latin America.  

3.1. 

Decent work: a commitment for the Union 

In  the  course  of  its  history,  the  EU  has  developed  a  model  of  economic  and  social 
development  which  extends  beyond  the  diversity  of  national  situations  and  is  based  on 
common  values  and  principles,  in  particular  the  objective,  affirmed  in  the  Treaty,  of 
promoting hand in hand economic and social progress. 

The Community acquis in the fields of employment, social policy and equal opportunities in 
many  respects  goes  beyond  the  international  standards  and  measures  which  underpin  the 
concept  of  decent  work  and  incorporates  the  major  principles  of  that  concept.  The  ILO 
standards form the background to a number of policies, laws and collective agreements in the 
Member  States  and  at  European  level.  The  standards  and  measures  of  the  ILO  also 
complement the acquis in areas which are not covered or only partly covered by legislation 
and Community policies, such as labour administration and inspection, trade union freedom, 
collective bargaining and minimum standards in terms of social security. 

The  Member  States  have  already  ratified  a  large  number  of  ILO  conventions  relating,  in 
particular,  to  core  labour  standards,  labour  inspection,  labour  administration,  employment, 

5 

6 

Decent  work:  how  to  make  it  operational;  the  employers’  point  of  view,  2002,  IOE  (International 
Organisation of Employers). 
COM(2001)  416;  Council  conclusions  of  21.7.2003  and  3.3.2005;  EP  reports,  July  2003  and 
November 2005. 

EN 

4 

   EN 

 
                                                 
social security and wages7. A large number have ratified more recent conventions (health and 
safety  at  work,  working  conditions).  The  very  recent  ILO  consolidated  maritime  labour 
convention  (2006)  is  particularly  relevant  to  the  European  social  dialogue  and  to  the  future 
regulatory activities of the Community and the Member States. 

It is important that the Member States continue the process of ratification and application, in 
particular  of  conventions  which  have  been  brought  up-to-date.  The  Commission  will 
encourage  and  facilitate  this  process,  where  required,  while  taking  account  of  the  relevant 
areas of responsibility and policies of the Community in this regard. 

Beyond  the  objectives  of  the  decent  work  agenda,  the  Lisbon  Strategy  and  the  European 
Social  Agenda  provide  a  much  broader  political  framework  for  resolute  action  in  favour  of 
employment, equal opportunities and social cohesion. 

3.2. 

Raising awareness in order to convince and mobilise more effectively 

The Commission will work with the ILO, the UN and other organisations to explore in greater 
depth the problem of decent work, improve the capacity of the partner countries and develop 
appropriate indicators, i.e.:  

–  identify good practice and successes in the field; 

–  examine decent work in greater depth and the way in which it interacts with other policies; 

–  develop methodologies for measuring how decent work is affected by trade liberalisation 
and  global  production  and  distribution  systems  at  global  level,  including  in  export 
processing zones; expand the pilot study under way with the ILO in order to measure the 
impact of trade on decent work; 

–  examine in greater depth the impact of trade on sustainable development (SIA); 

–  improve  the  link  between  analyses,  operational  activities  and  the  planning  of  external 
assistance; promote a concerted approach between partner countries and regions in order to 
select priorities more effectively and harness external assistance. 

In this context, it is important that the EU’s policy on research be brought into play, not only 
to promote knowledge but also to support social and economic development.  

The  Commission  supports  the  ratification  and  application  of  core  labour  standards  and  the 
implementation  of  decent  work  country  programmes  as  agreed  in  the  ILO  or  an  equivalent 
roadmap in particular in the context of national development strategies. The Commission will 
cooperate with the ILO, the UN and other international organisations to improve analysis and 
to develop indicators related to the implementation of the decent work agenda.  

The  Commission  will  develop  training  and  information  on  decent  work  through  its 
delegations in third countries and will hold regional seminars in order to enhance the capacity 
of those involved.  

7 

http://www.ilo.org/ilolex/french/newratframeF.htm 

EN 

5 

   EN 

 
                                                 
3.3. 

Harnessing the EU’s external policies more effectively 

Enlargement 

In  the  run-up  to  accession,  the  candidate  countries  are  required  to  adopt  the  Community 
acquis  in  its  entirety.  Alongside  the  adoption  of  the  Community  acquis,  the  pre-accession 
strategy  plays  a  direct  role  in  helping  to  promote  the  decent  work  agenda  in  the  candidate 
countries.  It  is  important  to  stress  the  relevance  of  this  agenda  for  the  candidate  countries 
while  taking  account  of  the  EU's  commitment  to  decent  work  and  the  complementarity  of 
certain  ILO  conventions  and  strategies  with  the  Community  acquis.  In  this  context,  the 
Commission will support initiatives on: 

–  promoting trade union freedom and collective bargaining in order to enhance the capacity 

of the parties concerned to engage in autonomous social dialogue;  

–  improving  labour  administration,  labour  inspectorates  and  bodies  for  managing  social 

protection; 

–  developing prevention strategies in the field of health and safety at work.  

Neighbourhood policy, regional and bilateral relations 

Neighbourhood 

The  decent  work  agenda  is  also  of  relevance  to  countries  covered  by  the  European 
neighbourhood policy, which are gradually growing closer to the Union, even if they are not 
under  the  same  obligation  to  adopt  the  Community  acquis.  The  neighbourhood  policy  will 
help to promote decent work through: 

–  implementation  of  clear  reforms  concerning  core  labour  standards,  employment,  social 
affairs and equal opportunities set out in the action plans agreed between the EU and the 
countries concerned;  

–  regular  political  dialogue  concerning  issues  relating  to  the  institutional  structures 
established  as  a  result  of  the  partnership  and  cooperation  agreements  and  the  association 
agreements; 

–  implementation  of  the  five-year  work  plan  agreed  as  part  of  the  Barcelona  process,  in 
November  2005,  which  seeks  to  strengthen  systems  of  social  protection  in  the  southern 
Mediterranean countries; 

–  inclusion of thematic planning and other aspects of cooperation in the strategy documents 
for  each  country  and  region;  possible  involvement  of  the  countries  concerned  in  certain 
Community  programmes  and  cooperation  with  EU  agencies,  in  accordance  with 
arrangements which are still to be determined. 

EN 

6 

   EN 

 
Bilateral and regional relations 

The Commission recently redefined its strategic relations with Latin America, the Caribbean 
and Africa. It included elements associated with decent work in its proposals and will actively 
implement them. 

The  Commission  will  step  up  cooperation  on  social  cohesion  with  Latin  America  and  the 
Caribbean. It has established work programmes with Chile and the Andean Community and is 
preparing  other  forms  of  bilateral  cooperation,  such  as  with  Brazil  and  Mexico.  It  will 
encourage  and  support  cooperation  on  these  issues  between  all  the  countries  of  Latin 
America. 

The  Commission  will  implement  cooperation  with  the  African  Union  concerning  the  social 
dimension of regional integration and decent work, as well as bilateral cooperation with South 
Africa.  It  will  take  decent  work  into  account  in  the  context  of  the  Cotonou  Agreement  and 
regional strategies (Africa, Caribbean, Pacific). 

The Commission will also address these issues in political discussions with Asian countries. It 
has  launched  in  2005  a  dialogue  with  China  on  employment,  labour  legislation,  social 
dialogue,  social  protection  and  social  cohesion.  The  Commission  is  also  cooperating  on 
employment with India and ASEM with a view to implementing decent work worldwide. 

The Commission will support the social dialogue in processes of regional integration outside 
Europe which are supported by the EU.  

Development cooperation  

The European Consensus on Development of 20.12.2005, concerning the EU’s development 
policy,  is  the  core  document  which  for  the  first  time  focuses  the  efforts  of  the  European 
institutions and the Member States on the improvement of the coordination, consistency and 
complementarity  of  the  action  they  take.  The  document  recognises  social  cohesion  and 
employment  as  an  area  of  Community  action  and  stipulates  that  the  Community  and  the 
Member States will promote decent work for all.  

The  Commission  will  support  the  following  measures  as  part  of  thematic  programming  and 
the country and regional programming:  

–  integrate  decent  work  into  national  and  regional  strategies  to  promote  development  and 

reduce poverty;  

–  gradual inclusion of the decent work objective in budget support measures;  

–  improve the capacity of the competent authorities and civil society organisations;  

–  development of small and medium-sized enterprises;  

–  involvement  of  the  social  partners  and  civil  society  in  development  strategies  and  in 

poverty reduction strategies;  

–  strengthening of external assistance for social adjustments in countries and regions outside 

the EU which are involved in trade liberalisation;  

EN 

7 

   EN 

 
–  promotion  of  policy  coherence  and  cooperation  with  relevant  international  and  regional 

organisations. 

Regulation  (EC)  No  2110/2005  imposes  an  obligation  on  those  submitting  tenders  for 
contracts  financed  by  Community  assistance  to  respect  core  labour  standards.  The 
Commission  plans  to  extend  this  provision  to  contracts  financed  through  the  European 
Development Fund. The Commission calls on the Member States and other donors to adopt 
the same approach.  

Annex II gives examples of actions on promoting decent work that can be developed in the 
context  of  external  assistance  programmes,  while  taking  into  account  the  context  and  the 
needs of the countries concerned.  

Trade: a factor in sustainable development 

Trade  liberalisation  should  help  to  achieve  goals  such  as  high  growth,  full  employment, 
poverty reduction and the promotion of decent work. 

In  the  Community’s  trade  policy,  the  instrument  of  preference  for  promoting  core  labour 
standards  is  the  new  GSP  and  its  special  incentive  for  sustainable  development  and  good 
governance GSP + (2006-2008).  

The  new  GSP  has  already  had  the  significant  impact  of  speeding  up  the  ratification  of  ILO 
core labour standards conventions. 

The  Commission  will  put  more  of  its  commercial  weight  behind  efforts  to  promote  social 
standards  and  decent  work  in  bilateral  and  multilateral  trade  negotiations.  In  particular,  it 
plans to:  

–  improve the link between the GSP, the GSP + and Community external assistance;  

–  take account of the social dimension, decent work and the recommendations of SIA studies 
in  bilateral  and  regional  trade  negotiations  (including  the  APE/EPA,  the  ACP  countries, 
Mercosur, the Gulf Cooperation Council, MED and Central America);  

–  make  use  of  EU  policies  and  instruments,  such  as  external  assistance,  to  promote  decent 

work in the context of an open system of trade;  

–  adopt the approach concerning the interaction between trade, social rights and employment 
which was presented in 2004 in the submissions to the trade policy review mechanism, and 
encourage other members of the WTO to adopt this approach;  

–  promote  cooperation  between  the  WTO,  UNCTAD,  the  ILO  and  other  relevant 

organisations.  

EN 

8 

   EN 

 
3.4. 

Promoting international and multilateral governance 

It  is  essential  that  international  and  multilateral  governance  be  strengthened  in  order  to 
promote the social dimension of globalisation and ensure that the partners take ownership of 
the decent work agenda. 

As part of economic and social cooperation 

The Commission supports the dialogue recently launched between the international financial 
institutions  (IFI),  the  ILO,  the  UN  and  the  WTO  concerning  the  complementarity  and 
consistency of their policies and the interdependence of economic growth, investment, trade 
and decent work. It calls on these organisations and the G8 to help to promote decent work 
when devising and implementing their policies, strategies and instruments. 

It will step up its cooperation with the ILO. 

The  Commission  will  contribute  not  only  to  the  UN’s  work  on  the  implementation  of  the 
conclusions of the 2005 Summit on productive employment and decent work but also, and in 
particular, to the work of the High-Level Segment of the UN’s Economic and Social Council 
(ECOSOC) in July 2006. 

Better management of economic migration  

The management of migration calls for cooperation between countries and regions of origin, 
transit and destination and with international organisations (ILO, IOM, UN). 

In  2005,  the  Commission  adopted  an  action  plan  on  legal  economic  migration.  The 
Commission  supports  ongoing  efforts  to  achieve  a  consistent  approach  to  international 
migration, such as the report of the Global Commission on International Migration (2005) and 
the ILO’s action plan for migrant workers (2004). It is contributing to the preparations for the 
UN’s high-level dialogue on migration and development (2006). 

In  order  to  ensure  that  EU’s  policy  on  migration  contributes  to  development  steps  must  be 
taken to facilitate the transfer of remittances to countries of origin and their contribution to the 
development of these countries, mobilise the diasporas, encourage circular migration, mitigate 
the  negative  impact  of  “brain  drain”  and  limit  in  a  responsible  way  recruitment  which 
undermines development, in sectors confronted with qualified labour shortage, in particular in 
the health care sector8. 

Action  should  also  be  taken  to  help  the  authorities  in  the  countries  concerned  to  manage 
migratory  flows  more  effectively,  protect  migrants  from  exploitation  and  ensure  better 
treatment  of  migrants  resident  on  their  territory.  The  fight  against  illegal  immigration  and 
human trafficking forms part of such action.  

The Commission is also sharing with national and regional authorities its long experience of 
ensuring the free movement of workers, promoting the rights of migrants, immigration policy 
and integration of migrants. 

8 

Communication  of  the  Commission  on  “Migration  and  development:  concrete  orientations”, 
COM(2005) 390, 1.9.2005. 

EN 

9 

   EN 

 
                                                 
3.5.  Working with civil society and the business sector 

Social partners, social dialogue and partnerships 

The Commission will support efforts to: 

–  strengthen the technical capacity of the social partners and of civil society; 

–  develop institutions, mechanisms and practices to facilitate and consolidate the process of 

bipartite and tripartite social dialogue; 

–  improve  the  involvement  of  the  social  partners  and  other  social  society  stakeholders  in 

global governance (WTO, IFI) on the basis of the OECD’s consultative model; 

–  conclude transnational collective agreements and global framework agreements. 

Corporate social responsibility (CSR)  

The  Commission  acknowledges  the  important  role  of  CSR,  which  complements  legislation, 
collective  bargaining  and  control  of  working  conditions.  It  takes  the  view  that  codes  of 
conduct and other CSR instruments should be based on instruments adopted at international 
level (OECD, ILO). 

The Commission will continue to promote CSR. It calls on businesses, the European Alliance 
for CSR9 and other stakeholders to take action to promote decent work for all. 

4. 

CONCLUSIONS 

The promotion of decent work forms part of the EU’s efforts to promote and share its values 
and experience. 

The EU and its Member States have helped to endorse this objective in the conclusions of the 
United Nations Summit in 2005. 

The Commission plans to make a resolute contribution to the achievement of this objective, 
while  cooperating  closely  with  the  parties  concerned,  partner  countries  and  regions  and 
international  and  regional  organisations.  It  calls  on  the  other  EU  institutions,  the  Member 
States, the social partners and all those involved to work together to promote decent work for 
all in the world. 

It will harness its external policies, its development aid and its trade policy for this purpose. It 
calls  not  only  for  respect  for  core  labour  standards  but  also  for  the  implementation  in  all 
countries  of  ambitious  programmes  to  promote decent  work.  It  will  work  with  international 
organisations to establish indicators to follow up the action taken. 

The  Commission  will  produce  a  report  on  the  follow-up  to  this  Communication  by  the 
summer of 2008. 

9 

Cf. COM(2006) 136. 

EN 

10 

   EN