Commission staff working document accompanying the communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Renewed social agenda: Opportunities, access and solidarity in 21st century Europe - Impact assessment {COM(2008) 412 final} {SEC(2008) 2157}
Date: 2008-07-02
Institutions: European Commission
Subjects: European social policy, economic and social cohesion, education policy, employment policy, free movement of persons, globalisation, health policy, migration policy, young person

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 2.7.2008 
SEC(2008) 2156 

COMMISSION STAFF WORKING DOCUMENT 

accompanying the 

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

Renewed social agenda: 
Opportunities, access and solidarity in 21st century Europe 

IMPACT ASSESSMENT 

{COM(2008) 412 final} 
{SEC(2008) 2157} 

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TABLE OF CONTENTS 

Introduction .................................................................................................................. 3 

Background .................................................................................................................. 4 

Basis for EU action ...................................................................................................... 4 

The Social Agenda 2005-10......................................................................................... 6 

Consultations................................................................................................................ 6 

Research feeding into this exercise .............................................................................. 8 

Problem definition...................................................................................................... 10 

The context: changing social realities in Europe ....................................................... 10 

Problems arising from the new social realities in the European Union ..................... 12 

Problems of a horizontal nature ................................................................................. 18 

Objectives................................................................................................................... 21 

Main policy options.................................................................................................... 24 

Option 1: 'no change in approach – no change in policy'........................................... 24 

Option 2: 'no change in approach – change in policy'................................................ 24 

Option 3: 'change in approach - change in policy' ..................................................... 25 

Analysis of impacts .................................................................................................... 25 

Economic impacts ...................................................................................................... 26 

Social impacts ............................................................................................................ 29 

Environmental impacts............................................................................................... 32 

Political impacts ......................................................................................................... 32 

Comparison of options ............................................................................................... 34 

Value added and subsidiarity ..................................................................................... 35 

Monitoring and evaluation ......................................................................................... 38 

Annex 1: Scoreboard on the implementation of the Social Agenda 2005-10............ 39 

Annex 2: Summary of the results of the public consultation ..................................... 46 

Annex 3: Bibliography ............................................................................................... 49 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

3. 

3.1. 

3.2. 

3.3. 

4. 

5. 

5.1. 

5.2. 

5.3. 

6. 

6.1. 

6.2. 

6.3. 

6.4. 

7. 

8. 

9. 

10. 

11. 

12. 

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1. 

INTRODUCTION 

Since the beginning of its mandate, this Commission has successfully shifted the European 
agenda to the key challenges of our times and to the expectations of citizens: growth and 
employment,  energy,  climate  change,  migration,  innovation  and  competitiveness.  The 
Commission’s vision was set out in its contribution "European Values in the Globalised 
World"1 to the October 2005 meeting of Heads of State and Government. The contribution 
stressed  that  common  European  values,  such  as  solidarity  and  cohesion,  equal 
opportunities and the fight against all forms of discrimination, adequate health and safety 
at the workplace, universal access to education and health care, quality of life and quality 
of  work,  and  sustainable  development,  laid  the  foundations  for  our  specific  approach  to 
economic and social policies. 

The  Commission  also  recognised  that  European  citizens  had  greater  expectations  of  the 
State, on which they relied more than their Asian or American counterparts, and that the 
public  sector  played  a  big  role,  be  it  through  regulation  or  government  spending.  On 
average,  the  EU’s  27  Member  States  devote  26%  (2005)  of  GDP  to  spending  on  social 
policy, compared with 15% in the USA and 17% in Japan. There is also a strong European 
dimension  to  Member  States’  social  policies:  in  contrast  to  other  regions  of  the  world, 
European national systems are bolstered by EU-level policies and instruments (such as the 
stability offered by macro-economic policy, the dynamism created by the internal market, 
and social cohesion through the Structural Funds). On top of this is Europe’s longstanding 
tradition  of  social  dialogue  and  partnership  between  governments,  industry  and  trade 
unions. 

In its Communication A citizens’ agenda: Delivering results for Europe2, the Commission 
pointed out that the European Union needed to analyse the radical changes under way in 
our  societies  and  to  develop  sustainable  responses  at  all  levels  if  it  wanted  to  tackle  the 
challenges  facing  Europe’s  economies  and  societies.  On  that  basis,  the  Commission 
undertook a comprehensive stocktaking of Europe’s social reality3 to ascertain the changes 
under  way  in  employment,  family  structure,  lifestyles  and  traditional  support  structures 
and which reflect the growing pressures of demographic changes. 

Building on the results of this wide-ranging consultation (see subsection 2.3), the crucial 
question  that  now  needs  answering  is  whether  the  existing  approaches  provide  adequate 
responses  to  the  new  challenges.  The  Communication  on  Opportunities,  Access  and 
Solidarity: Towards a new social vision for 21st century Europe4 (thereafter 'Social Vision 
Communication')  sets  out  the  Commission’s  initial  response  to  the  new  challenges 
emerging from the first results of the consultation on Europe’s social reality. 

1 
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COM (2005) 525 final 
COM (2006) 211 final 
"Europe's social reality, A consultation document from the Bureau of European Policy Advisers" 
available at: 
http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/docs/background_document_en.pdf 
COM (2007) 726 final 

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This Communication was prepared in close coordination with the Single Market Review 
adopted by the Commission last November5. The November Communication on the new 
social vision also indicates that the Commission will prepare a renewed social agenda for 
mid-2008  –  which  is  the  subject  of  this  impact  assessment  –  to  help  deliver  concrete 
results for European citizens. 

Lastly,  the  March  2008  European  Council  indicated  that  it  looked  forward  'to  the 
Commission's  proposal  for  a  'renewed  Social  Agenda  which  should  play  a  key  role  in 
strengthening the social dimension of the Lisbon Strategy by taking account of Europe's 
new  social  and  labour  realities  and  also  covering  issues  such  as  youth,  education, 
migration and demography as well as intercultural dialogue'. 

Given  the  essentially  political  nature  of  this  initiative,  this  impact  assessment  is 
proportionate  to  the  purpose  set.  As  such,  it  does  not  claim  to  quantify  the  impacts 
precisely,  but  confines  itself  to  a  general  qualitative  analysis  of  the  likely  impacts  (see 
section 6). 

This impact assessment also takes account of the comments of the Commission's Impact 
Assessment Board. In particular, the impact assessment illustrates the problem definition 
section (part 2) with relevant data. The text also clarifies that the problem definition builds 
on  the  issues  identified  in  November  2007  Social  Vision  Communication.  Furthermore, 
the objectives in section 4 and the links between the problem definition and the objectives 
have been clarified. Also in section 4, a new paragraph on the complementarity with other 
current policy objectives and processes, including the European Strategy on Growth and 
Jobs,  has  been  added.  The  three  options  (in  section  5)  have  been  reformulated  and  the 
differences  between  the  three  options  have  been  clarified,  starting  from  the  baseline 
scenario.  The  analysis  of  impacts  (in  section  6)  has  been  modified  to  clarify  the 
differences in terms of impact compared to the baseline scenario. Finally, the text clarifies 
the added value of the preferred option and makes the links between subsidiarity and value 
added aspects. 

2. 

BACKGROUND 

2.1. 

Basis for EU action 

Over the last 50 years, the European Union has built up a considerable body of legislation 
covering  various  spheres  of  citizens'  lives  and  has  developed  a  number  of  policy 
instruments in line with the Union’s objectives as set out in the Treaty on European Union 
(TEU).  The  Union's  citizen-related  objectives  in  Article  2  TEU  are  not  confined  to  the 
promotion  of  economic  and  social  progress,  a  high  level  of  employment,  sustainable 
development, the creation of an  area without internal  frontiers, and economic and social 
cohesion. They also extend to the protection of the rights of the nationals of the Member 
States in an area of freedom, security and justice and the asserting of the Union's identity 
on the international scene. 

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Communication from the Commission: A Single Market for 21st century Europe (COM (2007) 724 
final of 20.11.2007) 

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In addition, Article 2 of the Treaty establishing the European Community (TEC) explicitly 
refers to the internal market and an economic and monetary union, the promotion of the 
sustainable  development  of  economic  activities,  a  high  level  of  employment  and  social 
protection, equality between men and women, sustainable and non-inflationary growth, a 
high degree of competitiveness and convergence of economic performance, a high level of 
protection and improvement of the quality of the environment, the raising of the standard 
of living and quality of life, economic and social cohesion and solidarity among Member 
States. 

These objectives are reflected in the various initiatives and actions of the Community in 
many  different  fields,  such  as  the  internal  market,  health  education,  culture,  information 
society,  enterprise,  macro-economic  policy,  research,  environmental  protection,  trade, 
employment,  social  affairs  and  equal  opportunities.  The  EU’s  employment  and  social 
policy  objectives  are  implemented  through  various  instruments,  in  particular  legislation, 
the open method of coordination, financial instruments, such as the European Social Fund, 
the  European  Globalisation  Adjustment  Fund,  the  Progress  programme,  and  the  social 
dialogue. 

In the fields of employment, social affairs and equal opportunities, as in others, however, 
Community competence is subject to the principle of subsidiarity set out in Article 5 TEC, 
which limits the scope of Community intervention to measures that can, by reason of the 
scale or effects of the proposed action, be better achieved by the Community. 

Over the years, the EU has adopted a comprehensive legal framework protecting workers' 
rights,  including  health  and  safety,  workers'  information  and  consultation,  and  gender 
equality.  More  recently,  three  Directives  based  on  Article 13  were  adopted  to  combat 
discrimination on all grounds at the workplace and on the basis of racial or ethnic origin in 
the  provision  of  goods  and  services.  The  coordination  of  social  security  systems  also 
facilitates the free movement of workers within the EU.  

Moreover, since 1997 the European Employment Strategy has enabled the Member States 
to set common objectives and coordinate their employment policies. Member States have 
also worked within the open method of co-ordination in the fields of social inclusion and 
social protection. With a budget of approximately €75 billion for 2007-13, the European 
Social  Fund  supports  some  9  million  citizens  every  year,  in  particular  with  a  view  to 
improving  their  employability,  labour  market  participation  and  social  inclusion.  Lastly, 
European social dialogue has over the years resulted in the adoption of over 300 joint texts 
by the European social partners. 

The Treaty of Lisbon, which is in the process of ratification, makes significant advances in 
the social field. If ratified, the Charter of Fundamental Rights would be enforceable before 
the European Court of Justice. Second, the existing horizontal clause on gender equality 
would  be  bolstered  by  a  horizontal  clause  on  promoting  non-discrimination  when  EU 
policies and actions are defined and implemented. Third, a horizontal social clause would 
ensure that the definition and implementation of all EU policies and actions would seek, 
among other things, to promote a high level of employment, guarantee an adequate level 
of  social  protection  and  combat  social  exclusion.  Lastly,  Protocol 14  on  services  of 
general interest would recognise the importance and specificity of these services. 

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2.2. 

The Social Agenda 2005-10 

One of the starting points for the renewed social agenda is the social agenda for 2005-10 
adopted  by  the  Commission  in  20056.  The  social  agenda  identified  three  key  conditions 
for success: an inter-generational approach, a partnership for change and the need to seize 
the  opportunities  offered  by  globalisation.  It  also  presented  key  measures  at  EU  level 
related to employment (prosperity), equal opportunities and inclusion (solidarity). 

Of  the  social  agenda’s  28  initiatives  (see  table  in  Annex 1),  24  have  already  been 
implemented  and  three  have  been  abandoned.  The  last  initiative  (modernisation  of  the 
coordination  of  social  security  schemes)  is  the  subject  of  on-going  negotiations  between 
Council and European Parliament. This means that the Commission has now implemented 
all the actions planned under the social agenda 2005-10. 

Although they were not specifically mentioned in the 2005 social agenda Communication, 
two recent initiatives are also worth mentioning: 

–  To  help  workers  deal  with  the  impact  of  changing  world  trade  patterns,  the 
Commission proposed the establishment of a European Globalisation Adjustment Fund 
(EGF) in 2006. Following its adoption by Parliament and the Council7, 10 applications 
for assistance were received by the EGF in 2007, four of which were approved by the 
EU budgetary authority before the year ended. In 2007 the EGF was used twice, each 
time for two separate cases, supporting 5 113 workers in all. 

–  Following a request from the 2006 Spring European Council, the Commission adopted 
a  Communication  on  flexicurity8  in  June  2007,  highlighting  the  four  components  of 
flexicurity  (flexible  and  reliable  contractual  arrangements,  comprehensive  lifelong 
learning  strategies,  effective  active  labour  market  policies  and  modern  social  security 
systems).  Flexicurity  seeks  to  combine  increased  flexibility  (for  workers  and 
companies)  and  new  forms  of  security  for  workers  during  transitions  (between 
education  and  training,  when  accessing  or  re-entering  the  labour  market  and  between 
jobs). In December last year,  the European Council endorsed  the Common  Principles 
for flexicurity, which will enable the Member States and the social partners to design 
and  implement  labour  market  reforms  in  accordance  with  their  specific  national 
situation  through  ‘pathways’.  Furthermore,  a  ‘flexicurity  mission’  was  set  up  to 
promote  practical  implementation  of  the  principles  in  different  national  contexts.  A 
report on the flexicurity mission will be presented to the Council in December 2008. 

2.3. 

Consultations 

2.3.1. Social Reality Stocktaking 

When adopting A Citizen's Agenda in May 2006, the Commission announced its intention 
of taking stock of the reality of European society.  

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COM (2005) 33 final. 
Regulation  (EC)  No  1927/2006  of  the  European  Parliament  and  of  the  Council  of  20  December 
2006 on establishing the European Globalisation Adjustment Fund 
Communication  from  the  Commission  "Towards  Common  Principles  of  Flexicurity:  More  and 
better jobs through flexibility and security" (COM (2007) 359) 

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The  overall  aim  of  this  ‘Social  Reality  Stocktaking’  was  to  ensure  that  European  social 
policies  reflected  the  main  changes  in  European  economy  and  society  as  a  result  of 
globalisation,  demographic  trends  and  technological  change.  A  public  consultation  on 
Europe’s social reality was launched in February 2007. Building  on the initial results of 
the consultation, a Communication 'Opportunities, access and solidarity: Towards a new 
social  vision  for  21st  century  Europe'  adopted  in  November  2007  sets  out  a  range  of 
possible responses to the societal challenges at work in the European Union and extended 
the  consultation  period  until  mid-February  2008.  Building  on  this  consultation,  the 
Commission annnouced that it would prepare of a renewed social agenda for mid-2008. 

On  the  basis  of  approximately  150  contributions  received  by  mid-March  2008,  the 
Commission  published  a  summary  report9  describing  the  consultation  process,  giving 
general  observations  on  the  contributions  received,  and  providing  a  summary  of  the 
positions  set  out  in  the  individual  contributions  based  on  the  seven  key  areas  for  action 
presented in the November 2007 consultation document (see short summary of the results 
in  Annex  2).  The  two  consultation  documents,  together  with  a  number  of  other 
background  documents,  have  been  made  available  on  a  dedicated  website10.  For  the 
information  of  interested  parties,  the  Commission  has  also  placed  the  contributions 
received on the Social Reality Stocktaking website. 

In parallel with the public consultation, the European Parliament, the European Economic 
and  Social  Committee  and  the  Committee  of  the  Regions  provided  their  views  on  the 
future social agenda and related matters11. The Commission actively followed their work 
and that of other European and national bodies12. Lastly, the Commission took account of 
a Eurobarometer poll published in February 2007 on European social reality. 

2.3.2. Further consultations 

Apart  from  the  public  consultation  on  the  social  reality  stocktaking,  the  Commission 
consulted various stakeholders up to early May 2008: 

–  Conference  of  16  April  2008  on  ‘A  social  Europe  fit  for  globalisation’:  Speakers 
stressed the positive role of European integration in preparing citizens for globalisation. 
The Single Market and the euro were presented as the basic instruments for coping with 
the  new  challenges  of  the  globalised  economy.  Strengthening  solidarity  and  social 
cohesion  at  home  and  promoting  minimum  standards  of  decent  work  and 
environmental protection at international level are two sides of the same coin. The EU 
should  tackle  the  challenges  by  focusing  on  education  and  training  for  young  people, 
solidarity with those left behind, social inclusion and intercultural dialogue as well as 
research and innovation. The need for a cross-cutting, holistic approach was stressed.  

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See  http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/index_en.htm#,  SEC  (2008) 
1896, or a short version in Annex 2 of this impact assessment report. 
http://ec.europa.eu/citizens_agenda/social_reality_stocktaking/contributions/contribution_en.htm 
European  Parliament,  Rapport  Lynne  (2007/2104(INI));  Committee  of  the  Regions,  L'avenir  du 
marché  unique  et  le  bilan  de  la  réalité  sociale  européenne  (Rapporteur:  M.  PARSONS,  CdR 
339/2006, mars 2007) et Comité Economique et Sociale Européen, Bilan concernant la réalité de la 
société européenne (Rapporteur: M. OLSSON, Avis Exploratoire CESE 94/2007 du janvier 2007). 
Note  that  the  Commission’s  representations  supported  the  consultation  and  debate  on  the  social 
reality stocktaking in a number of Member States. 

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–  In its Opinion of  30  April  2008, the Social  Protection Committee (SPC) stressed that 
the  renewed  Social  Agenda  should  pave  the  way  for  a  holistic  approach.  The  SPC 
shared  the  Commission's  broad,  cross-cutting  approach  set  out  in  the  Social  Vision 
Communication of November 2007. The SPC also called for a better mainstreaming of 
the  EU’s  social  objectives  in  key  EU  policy  areas,  in  particular  through  the  extended 
use  of  social  impact  assessments.  The  SPC  also  called  for  the  reinforcement  of  the 
Open Method of Co-ordination in the social protection and social inclusion fields and 
stressed that the use of other instruments, such as Community programmes and social 
dialogue,  should  be  optimised,  together  with  a  better  implementation  of  the  existing 
legislation.  The  SPC  stressed  the  diversity  of  social  needs  and  institutions  across  the 
EU and the principle of subsidiarity. 

–  The Conference of 5 and 6 May 2008 'Responding to new social realities: Developing 
an  EU  agenda  for  opportunities,  access  and  solidarity'  provided  a  platform  for 
stakeholders — the Member States, representatives from the European institutions, the 
social partners, civil society representatives, and experts — to discuss the broad policy 
lines of the renewed Social Agenda. There was widespread agreement on the the need 
for an integrated, comprehensive approach. Speakers underlined the specific role of the 
EU  in  this  regard.  Opportunities,  access  and  solidarity  were  confirmed  as  three  basic 
principles  for a holistic  European  social policy agenda. Several speakers stressed that 
the  renewed  Social  Agenda  could  not  confine  itself  to  stating  principles  but  should 
come forward with concrete proposals that lead to tangible results for citizens13. 

Lastly,  it  is  worth  noting  that  the  Commission  has  conducted  consultations  with 
stakeholders and the general public for individual initiatives which are expected to be part 
of  the  'renewed  Social  Agenda'  package  in  accordance  with  its  established  policy  and 
standards of consultation. The results of these consultations are reflected in the individual 
impact assessments accompanying these initiatives. 

2.3.3. Timing 

The  review  of  the  2005-10  Social  Agenda  was  originally  planned  as  part  of  the 
Commission’s  2007  Legislative  and  Work  Programme.  However,  in  order  to  take  due 
account  of  the  results  of  the  Social  Reality  Stocktaking,  the  Commission  decided  to 
postpone the review until mid-2008. 

2.4. 

Research feeding into this exercise 

The Commission regularly conducts assessments of the economic and social conditions in 
the European Union through studies and reports (in particular, the annual progress reports 
on  the  Lisbon  Strategy  for  Growth  and  Jobs,  the  ‘Employment  in  Europe’  reports,  the 
‘Social Situation’ reports, the joint reports on employment,  and  on  social  protection and 
inclusion,  the  ‘Industrial  Relations’  reports,  the  annual  reports  on  migration  and 
integration, and the 'European Economy' reports, etc.). 

In order to assess future economic and social challenges and buttress decision-making, the 
Commission has conducted a number of studies over the last two years on such topics as 
'Is  Social  Europe  Fit  for  Globalisation?',  'EMU@10',  the  long-term  trends  in  Social 

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http://ec.europa.eu/employment_social/emplweb/social_agenda/ec_conference_en.html 

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Europe, 'Globalisation and Europe: Prospering in the New Whirled Order', 'Child Poverty 
and Well-Being in the EU', and ‘the links between the environmental and social pillars of 
sustainable development’. 

In addition, a number of European and international organisations or agencies (including 
the  OECD,  the  ILO,  the  European  Foundation  for  the  Improvement  of  Living  and 
Working  Conditions,  the  European  Training  Foundation)  have  conducted  studies  that 
provided input into this impact assessment. Lastly, Eurobarometer opinion polls, namely 
the  poll  conducted  on  the  Future  of  Europe  as  part  of  the  Social  Reality  Stocktaking 
exercise  and  surveys  on  specific  topics  (e.g.  discrimination  in  the  EU,  European 
employment and social policy, poverty and exclusion, the Single Market, and racism and 
xenophobia),  and  selected  national  and  international  opinion  polls,  provided  additional 
essential information on citizens’ perceptions and expectations. 

Annex 3 lists the studies, reports, evaluations and articles used for this impact assessment. 

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3. 

PROBLEM DEFINITION 

3.1. 

The context: changing social realities in Europe 

In  the  November  2007  Social  Vision  Communication,  the  Commission  provided  a  first 
overview of the social realities on the basis of the ongoing Social Reality Stocktaking. It 
noted that European societies were undergoing fast-moving, profound changes in both the 
economic and social spheres. These changes are driven by powerful external forces such 
as globalisation and climate change, as well as by internal forces such as demographic and 
social  developments.  Based  on  the  initial  results  of  the  Social  Reality  Stocktaking,  the 
Commission presented an initial analyis of the changes in society, in the economy, and in 
lifestyle  and  values  in  the  Social  Vision  Communication.  The  following  section  reflects 
the initial analysis set out in the November 2007 Communication and takes account of the 
results of the Social Reality Stocktaking. 

3.1.1. Changes in society 

A key source of change in society is demographic shift. Life expectancy at birth, which in 
2000 was at 75.5 for men and 81.4 for women, will probably continue to increase to 82 for 
men  and  87.4  years  for  women  by  2050.  This  means  that  a  growing  percentage  of 
Europeans enjoy longer and more active retirement. However, this has economic, financial 
and social implications for European societies and families. The old-age dependency ratio 
is expected to double to 51% by 2050, which means that there will be two elderly citizens 
aged  65  and  above  for  every  person  of  working  age  (15  to  64  years).  The  working 
population will shrink by 48 million over the same period.  At the same  time, birth rates 
are  at  a  constant  low14,  despite  people's  desire  to  have  children,  and  family  patterns  are 
changing, with a trend towards single parenthood and weaker family bonds. 

Society  meanwhile  is  becoming  less  cohesive  and  less  inclusive.  Social  isolation, 
particularly  among  the  elderly,  is  an  increasing  risk.  There  are  growing  inequalities  in 
income and opportunity, with over 100 million people living on an income of less than 23 
euros  a  day.  The  incidence  of  child  poverty  is  high  and  even  rising  in  some  Member 
States. Young people are facing difficulties in securing housing and decent employment. 
Gender inequality has not yet been achieved, as testified by the enduring 15% gender pay 
gap.  

Finally, society is becoming more diverse, as a result of the enlargement of the EU to 27 
Member States and immmigration from outside the EU's borders. A vibrant multicultural 
environment has inspired innovation and creativity, but it has also generated new concerns 
about intercultural dialogue and tolerance. Lastly, migration is testing the effectiveness of 
Member States' integration strategies, notably in major European cities and border regions. 

3.1.2. Changes in the economy 

Economic  globalisation  and  rationalisation  of  production  on  an  international  scale  are 
developing apace, spurred in part by technological innovations that bring lower prices for 

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The  rate  for  the  EU-25  in  2006  was  1.5  children  per  woman,  much  lower  than  the  so-called 
replacement rate of 2.1 children per woman. 

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goods,  services  and  increase  productivity  gains.  This  process  is  changing  the  shape  of 
Europe's economy. 

Following the completion of the Single European Market and recent enlargements, the EU 
is  now  a  single  market  of  almost  500  million  consumers  and  the  world’s  largest  trading 
entity.  The  EMU  and  the  euro  have  ensured  price  stability,  which  is  conducive  to  job 
creation  and  high  and  stable  economic  growth.  Europe's  share  of  world  exports  has 
increased over the past decade, rising from 40.8% in 2000 to 41.7% in 2006. Since 1990, 
the EU has been the main recipient and supplier of foreign direct investment (FDI). The 
EU’s stock of outward FDI has helped boost the competitive position of many European 
companies  while  greater  cross-border  trade  and  investment  have  boosted  growth  and 
created jobs15. 

Thirteen  million  jobs  have  been  created  since  2000  –  6.5  million  alone  in  the  last  two 
years, and 5 million more are projected to be created by 2009. Unemployment has fallen 
from 9 % in 2003 to 6.7% in February 2008. The overall employment rate in the EU has 
risen from 63.3 % in 2000 for the EU-15 to 66% in late 2007 for the EU-27. Over the last 
two decades, for every job lost to economic change Europe has created a new one in more 
competitive sections of the economy. In 2006 alone, there were nearly 3 million new jobs 
in the EU, topping the 2.3 million created in the USA in the same year16. 

And  yet,  despite  increasing  employment  rates  overall,  unemployment  remains  high  in 
many  parts  of  Europe17.  Working  life  is  changing  at  an  ever-faster  pace,  bringing 
challenges  and  opportunities  and  demanding  new  skills  and  new  adjustments  from 
businesses and workers alike. This requires strengthening actions to better anticipate and 
manage change and deal with the social consequences of company restructuring. 

Work  patterns  are  also  changing,  with  the  ‘job-for-life’  career  pattern  giving  way  to 
increasingly diverse types of contracts and working conditions. In the knowledge society, 
the labour market is also more reliant on human capital, education and skills. This poses 
challenges for the quality and effectiveness of education and training systems. 

Finally, the transition to a low-carbon economy and the preservation and management of 
natural  resources  are  of  vital  importance  for  safeguarding  the  well-being  of  future 
generations.  There  is  the  challenge  of  maximising  the  benefits  of  change  by  harnessing 
new  opportunities  for  economic  development  and  the  creation  of  'green  jobs',  while 
ensuring that the consequences of climate change and poor environmental quality impact 
on the weak and poor as little as possible. 

15 
16 

17 

European Commission (2004), Employment in Europe, Chapters 2 and 5. 
Daniel  S.  Hamilton  and  Joseph  P.  Quinlan  (2008),  Globalisation  and  Europe:  Prospering  in  the 
New Whirled Order. 
For instance in Slovakia (9.9% in early 2008) and in Spain (9.0% in early 2008). 

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3.1.3. Changes in lifestyles and values 

European societies are experiencing a weakening of the traditional bonds that held society 
together, such as family and religion, and a trend towards individualisation of values and 
atomisation of culture.  

Interest  and  trust  in  traditional  forms  of  political  participation  are  decreasing  as  more 
flexible  forms  of  civic  participation  emerge,  aided  by  advances  in  information  and 
communication  technology.  Globalisation  has  increased  the  exposure  of  European 
societies  to  diversity,  enriching  social  life  but  also  prompting  challenges  related  to 
integration  and  intercultural  dialogue  and  raising  questions  as  to  Europe's  capacity  to 
assert its common values. 

Changing  lifestyles  are  also  associated  with  increases  in  social  problems,  such  as  stress, 
obesity, 
isolation,  and  substance  abuse.  Current  production  and 
consumption  patterns  have  significant  environmental  impacts  too.  Reversing  these 
negative impacts of today’s lifestyles will mean adjusting behaviour. 

insecurity  and 

3.2. 

Problems arising from the new social realities in the European Union 

The following section describes a number of problem areas deriving from the key changes 
set  out  in  the  previous  section.  The  problems  are  related  "opportunuties",  "access"  and 
"solidarity" which are closely interrelated and of equal importance. 

Creating opportunities means generating more and better jobs and facilitating mobility. In 
societies  where  each  individual  is  regarded  as  being  of  equal  worth,  no  barriers  of  any 
kind  should  hold  people  back.  This  means  ensuring  the  chances  for  all  to  develop  their 
own potential while respecting Europe’s diversity and tackling discrimination, racism and 
xenophobia. 

Opportunities cannot be ensured without improving access for the most disadvantaged. All 
citizens must have access to good quality education, health care and services that can help 
overcome inequalities and enable them to enjoy longer and healthier lives. All Europeans 
should have access to education and skills development throughout life so as to adapt to 
change. 

Europeans share a sense of solidarity: between generations, between regions, between the 
wealthier  and  less  wealthy  Member  States.  Solidarity  is  part  of  how  European  society 
works  and  how  Europe  engages  with  the  rest  of  the  world.  Real  equality  of  opportunity 
depends on both access and solidarity. Solidarity also means helping disadvantaged people 
who  cannot  reap  the  benefits  of  an  open,  rapidly  changing  society.  It  means  fostering 
social inclusion and integration, participation and dialogue. 

3.2.1. Young people are not getting the best start in life 

Despite the fact that young people in the EU currently enjoy a wealth of opportunities, the 
Social  Reality  Stocktaking  consultation  confirms  that  today's  young  generation  are  in  a 
particularly fragile situation.  

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This is in line with the findings of a Eurobarometer poll in which around two thirds (64%) 
of  respondents  said  they  expected  life  to  be  more  difficult  for  the  next  generation18.  In 
particular, the individual life chances for the young are unevenly spread. Evidence shows 
that life chances are often set by the time a child reaches school, with family background 
playing  a  key  role.  This  means  that  the  situation  of  disavantaged  children,  including 
migrant children, needs to be addressed. 

In 2005, 19% of children were at risk of poverty in the EU, against 16% for the total EU 
population19. According to a recent OECD report, the gap between child poverty and the 
overall poverty rate had increased in a number of EU Member States. Besides, the OECD 
PISA  2003  survey  shows  a  positive  correlation  between  the  parents'  educational 
attainment  and  occupational  status,  and  the  performance  of  the  15  year-old  pupils  in 
mathematics,  reading  and  science.  Also,  pupils  from  migrant  background  perform 
relatively worse than peers who were born in the country. Furthermore, the overall number 
of  low-achievers  in  reading  literacy  has  increased  since  2000  from  20.2%  to  23.4%  in 
200620. 

As a result, too many young people are not able to develop their full potential and to enter 
the  job  market  successfully.  Too  many  young  people  leave  school  without  a  formal 
qualification, which puts them at a disadvantage in the knowledge economy. Even if the 
percentage  of  18-24  year-olds  leaving  school  with  no  more  than  lower  secondary 
education decreased from 17.7% in 2000 to  15.3% in 2006, the figure is well above the 
EU benchmark of 10% to reach by 2010. Another priority is to substantially increase the 
rate of young people aged 20-24 with a upper secondary education qualification (currently 
78%), and the number of young people staying on to tertiary education. 

Youth unemployment remains a serious problem: Even though the unemployment rate of 
young  people  has  decreased  over  the  recent  years  (18.7%  in  2004,  14.6%  in  February 
2008), it is more than twice as high as for the average working age population age (6.7% 
in  February  2008)21.  Innovative  approaches  are  needed  to  enhance  well-being  among 
young  people,  ease  the  difficulties  they  face  in  accessing  the  job  market,  housing  and 
financing, and encourage them to participate more in society.  

Problem 1: how to give youth the best start in life? 

3.2.2.  Citizens  are  not  yet  equipped  with  the  skills  needed  for  fulfilling  careers  in  the 
knowledge economy 

The EU is well placed to take advantage of globalisation. But the benefits of globalisation 
are not equally shared and globalisation creates apprehension. The EU needs to support its 
citizens to help them adapt to changing realities and to show solidarity with those who are 
affected negatively. 

18 
19 

20 
21 

Eurostat: Special Eurobarometer 273 (2007): 'European Social Reality'. 
European Commission: Child Poverty and well-being in the EU. Current status and way forward', 
2008.  
See Joint Employment Report 2007/2008. 
Eurostat (2008), Euro indicators – news release 44/2008 

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In  the  age  of  globalisation  and  increased  competitiveness,  restructuring  has  become  a 
widespread phenomenon affecting companies, workers and their families, and regions and 
territories.  However,  Europe  continues  to  be  a  net  creator  of  jobs.  Thirteen  million  jobs 
have been created since 2000 – 6.5 million alone in the last two years, and 5 million more 
are projected to be created by 2009. Unemployment has fallen from 9 % in 2003 to 8.6% 
in 2005 to 6.7% in February 2008. Annual labour productivity growth measured as value-
added per worker accelerated to 1.2% in 2006, compared to an average of 0.4% between 
2001 and 2005.  

For  the  first  time  in  about  a  decade,  employment  increases  and  productivity  growth  go 
hand in hand22. The overall employment rate in the EU has risen from 63.3 % in 2000 for 
the EU-15 to 66% in late 2007 for the EU-27. 

In  today's  labour  markets  and  tomorrow's  too,  citizens  face  a  range  of  transitions,  both 
between  jobs,  between  periods  spent  in  employment,  on  training  and  when  looking  for 
work. For  instance, while 23% of  pensioners and 21% of those 55 years and older have 
never changed their employer, this is only true for 16 % of those below 55 years. More 
flexibility  in  working  life  means  more  freedom  for  the  individual  to  combine  periods  of 
employment with periods of education and learning and facilitates reconciliation of work 
and family life. However, not all citizens have the skills and flexibility to cope with these 
transitions.  

A  key  problem  is  the  widespread  lack  of  skills  needed  to  adapt  to  the  knowledge 
economy.  According  to  a  recent  report,  the  insufficent  spread  of  ICT  (information  and 
communication  technology)  innovations  in  Europe  is  mainly  responsible  for  the  gap  in 
productivity between the USA and the EU since the mid-1990s. Between 1998 and 2003, 
the growth in the employment rates of high-skilled workers (+25.1%) in the EU-15 by far 
outnumbered  that  rates  for  workers  with  intermediate  (+14.2%)  and  low  (+2,2%)  skills. 
What  is  more,  the  number  of  low-qualification  jobs  is  forecast  to  fall  by  8.6  million  by 
2015. 

In  view  of  this  situation,  participation  rates  in  life-long  learing  and  education  are  not 
adequate:  even  if  participation  in  lifelong  learning  has  increased  from  7.1%  in  2000  to 
9.6%  in  2006,  progress  is  currently  too  slow  to  make  the  EU  reach  the  agreed  12.5% 
benchmark by 2010. Furthermore, too many young people leave school with at best lower 
secondary education.  

In addition, labour markets sometimes lack the combination of flexibility, safeguards and 
incentives  needed  to  allow  workers  and  businesses  to  cope  with  change  and  enjoy  more 
diversified working lives. In labour markets no longer characterised by a ‘job for life’ with 
early  retirement,  there  is  also  a  lack  of  mechanisms  to  ensure  that  workers  can  access 
quality  employment  throughout  their  lives,  taking  on  family  commitments  and  working 
later in life. Lastly, citizens are not yet properly equipped to be able to manage mobility 
between jobs throughout their career.  

22 

European  Commission  (2007):  The  EU  economy:  2007  review.  Moving  Europe's  productivity 
frontier. 

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There  is  a  particular  need  to  overcome  obstacles  to  geographic  mobility  within  the 
Union23,  so  that  in  developing  their  careers,  more  citizens  are  able  to  exploit  the 
possibilities of free movement. 

Problem 2: how to equip citizens to lead fulfilling careers in the age of globalisation? 

3.2.3. The EU has not risen up to the demographic and health challenge 

As  a  result  of  better  health  and  working  conditions,  a  growing  proportion  of  Europeans 
now enjoy longer and healtier lives, and longer and more active retirement.  

Immigration  remains  the  main  element  in  EU  demographic  growth  and  positive  net 
migration  is  recorded  in  most  Member  States.  Eurostat  conservative  projection  is  that 
around 40 million people will emigrate to the European Union between now and 2050. As 
a result, European societies  will  become increasingly diverse. The  successful integration 
of  third-country  nationals  and  their  children  depends  to  a  large  degree  on  their 
opportunities  to  realise  their  potential.  Issues  concerning  the  integration  of  third-country 
natinals  are  addressed  in  detail  in  the  Commission  Communication  adopted  on  17  June 
200824. This issue is therefore not covered by this impact assessment. 

In spite of migration from third countries, the total population of the EU will fall slightly 
and become much older. In economic terms, the main change will involve the size of the 
working-age  population  (15-64  years),  which  will  decrease  by  48  million  between  now 
and 2050. The dependency ratio is set to double and reach 51% by 2050, which means the 
EU will change from having four to only two persons of working age for each citizen aged 
65 and more25. In the EU, welfare expenditure has risen from 2004 to 2005 by 3 to 4 GDP 
points, representing an increase of 10 % in public spending26. Welfare expenditure related 
to aging alone, is projected to rise to 2 % of GDP by 2030 and to 4.1% by 2050. 

As a result, ensuring the sustainability of pensions is a challenge which is crucial for the 
future  of  social  protection  systems.  More  generally,  enhancing  the  efficiency  and 
effectiveness  of  welfare  systems  is  essential  to  ensure  progress  towards  the  long-term 
financial sustainability of the European social model. 

Furthermore, as a result of the expected decrease of the working age population over the 
next  40  years,  the  EU  faces  the  challenge  of  keeping  up  its  competitiveness  with  a 
shrinking  workforce.  Projections  show  that,  if  current  trends  and  policies  remain 
unchanged, the average annual growth rate in GDP for the EU-25 will fall from 2.4% over 
the period 2004-2010 to only 1.2% between 2030 and 2050.  

23 

24 

25 

26 

Only around 2% of working-age citizens from one of the 27 EU Member States currently live and 
work in another Member State – despite recent increases. According to Eurobarometer surveys on 
geographical  and  labour  mobility  of  citizens,  the  two  biggest  obstacles  to  moving  to  another 
European  country  are  lack  of  language  skills  (58%  of  respondents)  and  finding  a  job  (29%).  But 
also legal and administrative obstacles (such as the recognition of qualifications) or the portability 
of pensions play an important role. 
Communication  from  the  Commission:  A  common  Immigration  Policy  for  Europe:  principles, 
actions and tools, COM (2008) 359 of 17 June 2008. 
Communication  from  the  Commission:  The  demographic  future  of  Europe  –  from  challenge  to 
opportunity, COM (2006) 571 final. 
Commission Report on the sustainability of public finances of 2006.  

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At the same time, it is fair to say that the EU is not making use of the full potential of its 
workforce. Many of the elderly or disabled people27 are willing and able to take up work, 
provided appropriate conditions are met. In the same vein, Europe is not fully exploiting 
the potential for jobs and growth opened up by the so-called 'silver economy'. 

Lastly,  climate  change  and  modern  lifestyles  have  brought  new  health  problems  in  their 
wake. While EU legislation on health and safety at work has contributed significantly to 
improving  the  situation  of  workers  since  the  1990s,  there  are  still  persistent  problems. 
More than one third (35%) of European workers on average — with variations within the 
EU — feel that their jobs put their health at risk. There are new occupational hazards, such 
as musculoskeletal disorders and work-related stress. 

Problem 3: how to live up to the demographic and health challenge? 

3.2.4. Social exclusion persists in many parts of European societies 

Employment is often is a key determinant of people's ability to participate fully in society, 
build a social network and realise their full potential. Yet all part of the population have 
benefitted from the overall increase in employment rates and social exclusion is a real and 
growing phenomenon in most EU Member States. According to a recent joint Commission 
/  Council  report28,  joblessness  (i.e.  unemployment  and  professional  inactivity)  plays  a 
major role to explain poverty and social exclusion. Long-term unemployment persists: the 
figure has remained stable since the beginning of the decade at around 4%. Moreover, 8% 
of the working population in the EU is estimated to live in poverty29. 

Effective,  equal  access  to  employment,  lifelong  learning,  social  and  healthcare  services 
varies markedly across the EU, with a significant proportion of the EU population facing 
severe  difficulties  in  achieving  a  decent  living  and  finding  a  job.  In  2004,  around  100 
million  Europeans  earned  less  than  the  EU  median  income  of  around  €8 000  per  year 30. 
Low incomes result in reduced consumption possibilities and increased financial hardship. 
In the longer term, the negative consequences of low incomes include reduced life chances 
for  children  from  deprived  families  and  increased  risks  of  poor  health  and  mortality 
affecting people of lower socio-economic status. 

Moreover, the risk of experiencing poverty is not evenly spread across society. While the 
overall risk-of-poverty rate for the EU-27 is 16%, four high-risk groups stand out in nearly 
all Member States31: 

–  people of working age, both employed and unemployed — and in the vast majority of 

cases, women — living alone with a dependent child; 

–  those aged 65 and over and living alone who are no longer in paid employment — and 

again, in most cases, women; 

27 

28 
29 

30 
31 

Some 44.6 million people aged 16-64, making up 16% of the EU working-age population, consider 
they have a longstanding health problem of disability. 
Joint Report on Social Protection and Social Inclusion 2007, SEC (2007) 329. 
Estimation  by  Eurostat,  Source:  European  Commission:  2007  compendium  of  indicators  for 
monitoring the Employment Guidelines. 
Amounts adjusted for purchasing power (PPS) and household size. 
See  European  Commission:  The  social  situation  in  the  European  Union  2007.  Cohesion  through 
Equal Opportunities. 

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–  those of working age and living alone who are not in employment; 

–  families with children where only one parent is in employment. 

Problem 4: how  to  reduce  social  exclusion and the number  of Europeans at  risk of 
poverty? 

3.2.5. Continued discrimination on gender and non-gender grounds 

Europe  has  made  significant  progress  over  the  years  in  the  field  of  gender  equality.  For 
instance, women now attain a higher educational level than men in all Member States and 
account for up to 59% of university graduates. Nonetheless, marked inequalities still exist 
on the labour market, in reconciling work and private life, in social protection and social 
exclusion,  in  health,  entrepreneurship,  political  and  economic  decision-making,  and  in 
science and technology.  

The  employment  rate  for  women  in  the  EU  27  in  2007  was  at  58.3 %  (up  from  53%  in 
2000). This means that achieving the target of female employment rate of 60% in 2010 is 
within reach. However, the average employment rate for men is currently well above 70%. 
The  gender  pay  gap  is  on  average  15  %  in  Europe,  a  figure  which  has  remained  steady 
since  2003.  The  share  of  women  in  decision-making  positions  is  increasing  slowly  and 
unevenly. While in national parliaments, the share of women increased from 16 % to 24 % 
between  1997  and  2007,  the  share  of  women  in  the  boards  of  the  largest  publicly-listed 
companies  hardly  changed  and  remains  at  around  10%.  The  share  of  women  among  the 
presidents of the boards is currently at 3%. 

There  are  many  reasons  for  women’s  under-representation  in  social,  economic  and 
political life, including persistent gender stereotypes and discrimination, or segregation in 
education and on the labour market. Both women and men do not always have sufficient 
opportunities to strike a work-family life balance (for instance, through access to childcare 
facilities and flexible working arrangements), but this affects women more: domestic and 
family responsibilities are still unequally distributed. 

The disadvantaged position of women in accessing the labour market has consequences in 
terms of the higher risk of exposure to poverty among women, particularly older women. 
Among people over 65 years, the risk was significantly higher for women than for men in 
the EU-25 in 2005 (21% as against 16%). 

Problem 5: how to overcome the remaining gaps in gender equality? 

In  2006  a  major  EU-wide  survey32  showed  that  many  Europeans  believed  that 
discrimination  was  widespread,  in  particular  on  grounds  of  disability  (53%)  and  sexual 
orientation  (50%).  In  terms  of  discrimination  on  grounds  of  age  (46%)  and  religion  or 
belief  (44%)  the  situation  is  perceived  as  only  slightly  better.  Furthermore,  a  large 
majority  of  Europeans  (79%,  77%,  69%  and  62%  respectively)  believe  that  being 
disabled,  being  Roma,  being  over  50  or  being  of  a  different  ethnic  origin  are  a 
disadvantage in their society.  

32 

Special Eurobarometer 263 (2006), Discrimination in the European Union. 

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In  January  200833  another  survey  revealed  that  discrimination  was  perceived  as  most 
widespread  when  it  comes  to  access  to  housing,  followed  by  education.  As  to  access  to 
services, 40% of respondents felt that people buying insurance policies were likely to face 
discrimination because of their age, and the same percentage felt this applied to disabled 
persons. 

Protection provided against discrimination outside the field of employment on grounds of 
disability, age, sexual orientation and religion or belief varies across the Member States. 
In  addition,  only  a  very  few  Member  States  provide  for  remedies  against  multiple 
discrimination (discrimination on a combination of grounds). In addition, awareness of the 
existence of European anti-discrimination laws is quite low among Europeans. Only 32% 
claimed to know their rights if they should fall victim to discrimination or harassment34.  

Lastly, the EU’s disability strategy is based on the Disability Action Plan for 2003-10, and 
more specifically on its final phase set out in last year’s 'Commission Communication on 
the  situation  of  disabled  people  in  the  EU:  the  European  Action  Plan  2008-09'35. 
Implementation by the Community and the Member States of the UN Convention on the 
Rights of Persons with Disabilities should provide the basis for closer cooperation in this 
area. 

Problem 6: how to ensure that life chances are not hamstrung by discrimination? 

3.3. 

Problems of a horizontal nature 

3.3.1 The EU needs to better promote the social dimension of globalisation 

Recent ILO reports36 indicate that despite growth in the economy and jobs, many people 
in the world, and particularly women, do not have access to appropriate jobs and working 
conditions. An estimated 487 million workers — or 16.4 percent of all workers — still do 
not earn enough to lift themselves and their families above the US$1 per person, per day 
poverty line. 

The EU is taking decisive action to shape the international agenda so that it reflects our 
interests and values. The Social Agenda 2005-10 emphasises the contribution of the EU to 
strengthening  the  social  dimension  of  globalisation.  Efforts  towards  promoting  decent 
work for all in EU external and internal policies are part of this. Decent work is founded 
on  four  pillars  (productive  and  freely  chosen  employment,  rights  at  work  including  the 
core labour standards, social protection and social dialogue). 

The decent work agenda seeks to promote values and principles of action and governance 
which combine economic success and social justice. As part of the international efforts to 
promote  decent  work,  the  Commission  proposed  an  integrated  strategy  with  a  view  to 
mobilising EU internal and external policies around this purpose37. Both the Council and 

33 
34 
35 
36 

37 

Flash Eurobarometer 232 (2008). 
Special Eurobarometer 263 (2006).  
COM (2007) 738 final. 
ILO, Global employment trends for women, Geneva, March 2008; ILO, Global employment trends, 
Geneva, January 2008. 
Commission  from  the  Commission  on  Promoting  decent  work  for  all:  the  EU  contribution  to  the 
implementation of the decent work agenda in the world (COM (2006) 249) of 24.05.2006). 

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the  Parliament  welcomed  the  Commission  efforts  in  this  area.  The  Commission  has  to 
follow up on its commitment to report on the 2006 Communication to review progress in 
the implementation of the EU decent work agenda. 

Furthermore,  in  the  context  of  the  decent  work  agenda,  the  Commission  stressed  the 
importance  for  Member  States  to  continue  the  process  of  ratification  and  application  of 
ILO conventions.  

Since  2007  all  Member  States  have  ratified  the  eight  ILO  fundamental  or  core  labour 
standards  conventions.  However,  the  Commission  needs  to  encourage  Member  States, 
which have not done so, to ratify the ILO conventions (classified as up-to-date), including 
the four priority conventions38, the social security minimum standard convention (n° 102) 
and the recent conventions that have reviewed existing Conventions39. Failure to ratify and 
implement  them by all  Member States could undermine the credibility of the EU on the 
international stage40. 

Problem  7:  how  to  encourage  Member  States  to  further  contribute  to  the 
international decent work agenda ? 

3.3.2 All EU policies and instruments need to be mobilised to respond to the new social 
realities 

Both  the  consultation  on  the  social  reality  and  recent  studies  have  confirmed  that  the 
common challenges that all EU Member States face are of a multi-dimensional nature. In 
addition, many policies other than employment and social policies, such as environmental, 
macro-economic,  internal  market,  educational  or  research  policies,  have  a  major  social 
impact.  The  Commission  has  already  been  pursuing  comprehensive  approaches  that 
involve  different  policies  and  instruments.  The  Lisbon  Strategy  is  a  case  in  point;  the 
recent Single Market Review and the "Climate Action and Renewable Energy Package"41 
also illustrate this new approach. 

In response to the new social realities which are multi-faceted and complex, the question 
is  to  know  whether  there  is  scope  for  more  joined-up  cross-cutting  action  at  EU  level 
bringing  together  between  all  relevant  policies  to  ensure  better  synergies  between  them 
and greater overall effectiveness and efficiency.  

The EU has a number of tools at its disposal to support and supplementing Member States' 
actions,  namely  legislation,  social  dialogue,  policy  coordination  between  the  Member 
States,  comunication,  partnership  and  financial  instruments.  The  question  arises  as  to 
whether they should be revisited to take account of the new social realities. For example: 

38 

39 

40 

41 

Convention on labour inspection (n° 81), Convention on labour inspection in agriculture (n° 129), 
Convention on employment policy (n° 164), and Convention on tripartite consultations (n° 144). 
Promotion  framework  for  Occupational  Health  and  Safety  Convention  (n°  187),  the  Private 
Employment Agencies Convention (n° 181) and the Maternity Protection Convention (n° 183). 
For instance, the EU has a considerable acquis communautaire on occupational safety and health 
(OSH) and has an internationally recognised leadership role in this area at global level. However, 
this  leadership  role  is  not  yet  reflected  in  the  Member  States’  ratification  scoreboard  on  OSH 
Conventions,  such  as  the  Promotional  Framework  for  OSH  Convention,  2006  (No  187),  see 
COM(2007) 62 final. 
http://ec.europa.eu/environment/climat/climate_action.htm 

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–  the  open  method  of  co-ordination  in  various  fields  (including  employment,  social 
protection  and  social  inclusion,  education  and  youth)  has  successfully  contributed  to 
Member States' reforms. However, various studies and evaluations42 suggest that there 
is scope for increasing its relevance and impact, for example by focusing on a smaller 
number of priorities and making them more relevant to the objectives of the renewed 
Lisbon  Strategy,  increased  monitoring  of  Member  States'  policies  through  new 
quantified 
level,  and  more  systematic  use  of  Commission 
recommendations; 

targets  at  EU 

–  further analysis is needed of the ‘well-being’ goals that have emerged from the social 
reality stocktaking exercise, reflecting the emerging consensus that GDP is a measure 
of economic performance and not a measure that suffices to guide policy responses to 
the complex challenges facing the EU; 

–  the  introduction  of  a  new  horizontal  social  clause  in  the  Lisbon  Treaty,  if  ratified, 
means  that  all  major  new  EU  initiatives  will  undergo  an  even  more  rigorous 
examination of their potential social and employment consequences in the future. These 
considerations should be taken into account, in particular, in impact assessments; 

–  the on-going budget review43 would provide an opportunity for re-evaluating priorities 

and deciding where to concentrate resources in the future; 

–  although  the  European  Globalisation  Adjustment  Fund  (EGF)  has  already  intervened 
effectively in a number of Member States in its first year of operation, the Fund’s full 
potential  has  not  been  harnessed.  The  Commission  should  indicate  how  decision-
making procedures could be streamlined to improve delivery and make suggestions as 
to how to broaden the scope of the EGF44; 

–  the  Commission  needs  to  ensure  that  the  existing  body  of  Community  legislation  is 
effectively  implemented  and  enforced  in  line  with  the  Communication  of  September 
200745. Where necessary, Community law may need to be updated to take account of 
emerging  issues  and  to  increase  its  effectiveness.  Alternatives  to  legislation  (for 
example,  social  partners’  agreements,  codes  of  conduct  and  corporate  social 
responsibility) should be further explored. 

Problem 8: how to ensure a more comprehensive policy mix and a more effective use 
of EU instruments? 

42 

43 

44 

45 

See  impact  assessment  accompanying  the  Communication  from  the  Commission  on  "reinforcing 
the open method of co-ordination in social protection and social inclusion" (SEC (2008) 418) 
Communication  from  the  Commission  "Reforming  the  budget,  changing  Europe:  a  public 
consultation paper in view of the 2008/2009 budget review" (SEC (2007) 1188) of 12.09.2007) 
Communication from the Commission: Solidarity in the face of change: the European Globalisation 
Adjustment Fund (EGF): 2007 Review and Prospects (COM (2008) 421 final of 02.07.2007) 
Communication  from  the  Commission:  "A  Europe  of  results:  Applying  Community  law"  (COM 
(2007) 502 final of 5.09.2007). 

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4. 

OBJECTIVES 

4.1.  Ultimate objective 

Improving  the  well-being  and  quality  of  life  of  European  citizens,  while  respecting  the 
principles of subsidiarity and proportionality. 

4.2. 

Specific objectives 

On the basis of the problem definition set out in section 3, the following objectives should 
be pursued. 

4.2.1. Improving the life chances of young people 

Action  is  required  to  break  the  vicious  cycle  of  childhood  deprivation,  academic  under-
achievement  and  social  exclusion  of  children.  Problems  related  to  high  youth 
unemployment, high levels of school drop-outs, and the relative job insecurity and wage 
inequality  faced  by  younger  people,  have  to  be  tackled.  All  children  need  to  receive  an 
education that gives them a fair chance in today's world. They need to be encouraged to 
reach higher levels of qualification and skills than their parents achieved. New forms of 
intergenerational  solidarity  should  be  developed  and  the  specific  problems  facing  young 
people today, including access to education and training, the labour market, housing and 
finance, should be addressed. 

4.2.2. Promoting new skills for new jobs, fulfilling careers and better employment 

Growth and jobs should be fostered at EU level since a healthy economy is the foundation 
for  prosperity  and  good  quality  employment  is  the  best  escape  route  out  of  poverty. 
Member States should modernise labour markets and anticipate change and restructuring. 
Education  and  investment  in  human  capital  formation  in  general  are  critical  to  ensuring 
labour participation and social inclusion, and to enhancing the competitiveness of the EU 
economy.  This  means  a  commitment  to  lifelong  learning  and  ongoing  renewal  of  skills 
attuned  to  present  and  future  labour  market  needs.  Free  movement  is  a  source  of 
opportunities for citizens, helping to boost economic growth and competitiveness. Efforts 
should  be  pursued  to  facilitate  mobility  and  remove  obstacles,  including  for  workers, 
young people and patients.  

4.2.3. Fostering longer and healthier lives 

Europe's ageing society demands a variety of policy responses - from supporting research 
into how information technology can improve the health and well-being of older people, 
to  assessing  what  health  care  and  pension  reforms  are  needed  to  meet  the  needs  of  an 
ageing population while ensuring the sustainability of public financing. Efforts should be 
pursued  to  ensure  the  financial  sustainability  of  social  protection  systems,  adequate 
pensions in the future, and preserve the quality and accessibility of services. 

4.2.4. Combating poverty and social exclusion 

Efforts to promote active inclusion, including labour market integration, making work pay 
and  life-long  learning,  particularly  for  those  who  are  furthest  from  the  labour  market, 

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should be further strengthened. Rules should be in place to facilitate the development of 
good quality, accessible and sustainable social services. 

4.2.5. Taking gender equality and equal opportunities further 

Too  many  obstacles  still  hinder  the  participation  of  women  in  work  and  society. 
Addressing  pay  gaps,  reviewing  tax  systems  to  improve  work  incentives,  developing 
affordable  and  accessible  childcare  and  eldercare  services,  promoting  family-friendly 
practices in the workplace with more flexible leave arrangements are essential priorities in 
this  respect.  Given  that  discrimination  on  various  grounds  (e.g.  age,  disability,  belief, 
sexual orientation, race or ethnic origin) is still prevalent, action should be taken to further 
promote equal opportunities, including outside the sphere of employment. 

4.3.  Horizontal objectives 

4.3.1. Shaping the international agenda to promote European values 

The EU is a key player on the world scene and also a 'shaper' of globalisation. Through 
multilateral  negotiations  and  cooperation  with  international  partners,  the  EU  should 
further  promote  the  social  and  environmental  dimension  of  globalisation  as  part  of  the 
Decent Work Agenda. 

4.3.2.  Ensuring  the  appropriate  policy  mix  and  increasing  the  effectiveness  of  EU 
instruments 

The EU should exploit the scope for synergies between EU policies and seek to improve 
the  efficiency  and  effectiveness  of  instruments  available  at  EU  level  (legislation,  open 
method  of  coordination,  EU  funding,  social  dialogue  and  dialogue  with  civil  society), 
while respecting the principle of subsidiarity and maximising EU value added. 

4.4.  Consistency with other EU policies 

The  above-mentioned  objectives  are  fully  consistent  with,  and  in  support  of  other  EU 
policies and strategies, and in particular with the renewed Lisbon Strategy for Growth and 
Jobs, the EU Sustainable Development Strategy and the Single Market. 

–  In 2005, the European Council placed the focus of the Lisbon Strategy for Growth and 
Jobs. During the first cycle (2005-2008), the renewed strategy has helped to speed up 
the  pace  of  reform,  helping  Member  States  to  implement  sometimes  difficult  but 
necessary changes to address the challenges of globalisation. However, much remains 
to be done to prepare to strengthen the foundations for economic success in the medium 
to longer term. The Commission proposal for the Integrated Guidelines for Growth and 
Jobs (2008-2010)46 underlines that Member States need to keep pace with fast changing 
social  realities  (longer  working  lives,  increasingly  diverse  family  structures,  new 
patterns of mobility and diversity). Within this framework, even higher priority should 
be  given  to  the  social  dimension,  flexicurity  policies,  and  to  education  and  skills  as 
elements to modernise European markets and to ensure new opportunities for citizens 
in a knowledge society. 

46 

Communication  from  the  Commission  to  the  European Spring  Council:  Integrated  Guidelines  for 
Growth and Jobs (2008-2010) (COM (2007) 803 final part V of 11.12.2007). 

EN 

22 

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–  Also in 2005, the European Council set out principles to guide Europe on a sustainable 
path  of  development.  These  principles  include  the  ongoing  efforts  to  foster  economic 
prosperity  based  on  an  innovative,  competitive  and  eco-efficient  economy,  protecting 
and  improving  the  quality  of  the  environment,  and  promoting  equity  and  social 
cohesion. In 2006, the European Council adopted a renewed Sustainable Development 
Strategy consisting of seven key challenges. The 2007 Commission Progress Report on 
the Sustainable Development Strategy47 stresses that the challenge is to work towards 
convergence  of  the  overarching  long  term  objective  of  sustainable  development 
focusing  on  quality  of  life,  inter-generational  solidarity  and  the  long-term  viability  of 
European societies, and the medium goal of growth, competitiveness and jobs under the 
Lisbon Strategy. The energy and climate change agenda48 provides a good example of 
how these medium and longer term objectives have converged. 

–  The  Single  Market  is  a  fundamental  pillar  of  the  European  Union  It  has  created  jobs 
and  stimulated  growth.  It  has  enabled  people  to  live,  work,  study  and  retire  in  a 
different country. As noted by the Commission in the November 2007 Communication 
on  the  Single  Market49,  the  Single  Market  still  has  untapped  potential  and  needs  to 
adapt to new evolving social and environmental realities. As a result, the Commission 
has proposed new actions to take account of the social and environmental implications 
of  market  opening  and  to  enable  citizens  and  businesses  to  take  advantage  of  new 
opportunities.  In  doing  so,  the  Single  Market  can  effectively  contribute  to  improving 
the well-being of citizens. 

47 

48 
49 

Commission from the Commission: Progress Report on the Sustainable Development Strategy 2007 
(COM (2007) 642 of 22.10.2007). 
See footnote 41. 
See footnote 5. 

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5. 

MAIN POLICY OPTIONS 

Under  the  EC  Treay,  EU  Member  States  bear  the  main  responsibility  for  the  policy 
changes  needed  to  respond  to  the  new  social  realities  and  to  meet  the  corresponding 
objectives  in  section  4.  This  being  so,  as  explained  in  section  2,  there  is  a  considerable 
Community  "acquis"  in  a  number  of  areas  affecting  citizens'  lives.  The  fundamental 
question  is  therefore  to  know  whether  the  EU  should  continue  supporting  and 
supplementing  Member  States'  actions,  and  if  so  how.  The  following  subsections  assess 
three possible options. 

5.1. 

Option 1: 'no change in approach – no change in policy' 

This  option  would  entail  no  change  in  approach  and  no  change  in  policy.  In  concrete 
terms, this would mean: 

–  Implementing  the  existing  Community  acquis:  the  Commission  would  continue  with 
the  implementation  of  existing  legislation,  the  European  Structural  Funds  and  the 
policy  coordination  processes  in  place  (such  as  the  renewed  Lisbon  Strategy  and  the 
Open  Method  of  Coordination  in  the  fields  of  social  protection  and  social  inclusion, 
and education). 

–  Considering that the Community acquis already adequately responds to the new social 
realities  and  that  there  would  be  no  need  for  i)  new  (or  a  review  of)  European 
legislation,  ii)  a  review  of  the  existing  instruments  at  EU  level,  iii)  more  joined-up 
work between EU policies. 

–  Completing the implementation of the Social Agenda (2005-10) in its present form. 

5.2. 

Option 2: 'no change in approach – change in policy' 

Under  this  option,  there  would  be  no  change  in  approach  but  change  in  policy.  As  in 
option  1,  the  Commission  would  keep  implementing  the  existing  Community  acquis. 
However, by contrast to option 1, option 2 would mean: 

–  Considering  that  the  existing  Community  acquis  does  not  adequately  respond  to  the 

emerging social realities. 

–  Presenting a revised Social Agenda to take account of the new social realities. As was 
the case for the Social Agenda (2005-10), the revised Social Agenda would be focused 
on the employment, social affairs and equal opportunities fields. New actions in other 
policy  areas  (for  example,  education,  health,  information  society  and  single  market) 
would  also  be  taken,  although  independently  from  the  revised  Social  Agenda.  Co-
ordination  between  various  policies  would  be  ensured  in  the  context  of  overarching 
processes, such as the Lisbon Strategy or the Sustainable Development Strategy. There 
would be no change in approach. 

–  Presenting  new  actions  to  build  on  the  Community  acquis  in  order  to  improve  the 
quality of life and well-being of citizens. This would entail both legislative (review of 
existing  legislation  or  new  legislation)  and  non-legislation  initiatives  (for  example 
Commission Communications to spur policy debate with the relevant stakeholders and 

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24 

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to  set  out  new  policy  orientations  -  "policy  agenda  setting").  This  would  also  entail 
reviewing  existing  instruments,  including  the  Open  Method  of  Coordination  in  the 
social protection and social inclusion fields and the European Globalisation Adjustment 
Fund.  The  new  initiatives  would  be  adopted  at  the  same  time  as  the  revised  Social 
Agenda or and announced for later adoption as part of it. There would be a change in 
policy. 

5.3. 

Option 3: 'change in approach - change in policy' 

As in options 1 and 2, the Commission would keep implementing the existing Community 
acquis. However, option 3 would differ fundamentally from options 1 and 2 as it would 
mean: 

–  By  contrast  to  option  1  and  as  in  option  2,  considering  that  the  existing  Community 

acquis does not adequately respond to the emerging social realities. 

–  By  contrast  to  option  2,  considering  that  the  cross-cutting  nature  of  the  problems 
emerging  from  the  new  social  realities  requires  the  mobilisation  of  all  relevant  EU 
policies  in  a  holistic  way  going  beyond  employment,  social  affairs  and  equal 
opportunities  and  extending  to  health,  education,  information  society,  single  market, 
macroeconomic policies, environment and external policies. There would be a change 
in approach. 

–  Presenting  a  renewed  Social  Agenda  bringing  together  all  relevant  policies  and 
capitalising  on  the  so  untapped  potential  between  them  based  on  three  pillars: 
Opportunities, Access and Solidarity. 

–  By contrast to option 1, which would not entail any new actions, and over and above 
option 2, which would entail new actions only in fields of employment, social affairs 
and  equal  opportunities,  presenting  a  series  of  new  actions  (both  legislative  and  non 
legislative) in all the policy fields covered by the renewed Social Agenda. As in option 
2, there would be a review of the existing instruments at EU level but going beyond the 
sole  employment,  social  affairs  and  equal  opportunities  fields.  The  new  initiatives 
would  be  adopted  at  the  same  time  as  the  renewed  Social  Agenda  or  announced  for 
later adoption as part of it. There would be a change of policy. 

6. 

ANALYSIS OF IMPACTS 

As explained above, the purpose of the initiative is to set out a general policy response to 
the  new  social  realities  (‘broad  policy-defining  document’).  As  this  impact  assessment 
does  not  cover  a  specific  initiative,  the  economic,  social  and  environmental  impacts 
cannot  be  assessed  in  detail.  It  is  necessarily  a  preliminary  step  and  does  not  imply 
detailed  quantitative  data.  It  also  does  not  cover  migration aspects  as  the  latter  are  dealt 
with in a separate package of proposals adopted on 17 June 200850. 

50 

See footnote24. 

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6.1. 

Economic impacts 

Competitiveness  and  macro-
economic environment 

Completion  of 
Market 

the  Single 

Option 1: status quo 

Option 2: revised Social Agenda 

Option 3: renewed Social Agenda for 
opportunties, access and solidarity 

Economic impacts 

-  Overall  impact  on  competitiveness  is 
likely to remain positive for the time being, 
to  adapt  Community 
however, 
policies 
social  and 
the  changing 
economic  realities  may  result  in  policies 
being  less  effective  and  efficient,  thereby 
impacting negatively on competitiveness.  

failure 
to 

-  In  the  medium  and  long  term,  the  overall 
effectiveness of national policies is likely to 
decrease even further as a result of reduced 
role of EU as a catalyst for change. 

(operation 

-  Risk  of  negative  impacts  in  the  medium 
and  long-term.  Even  if  present  inititives 
continued 
EURES, 
coordination  of  social  security  schemes, 
etc.),  obstacles  to  the  free  movement  of 
workers  and  people  would  not  be  further 
reduced,  thus  hindering  the  completion  of 

of 

-  EU  action  (e.g.  modernisation  of  Member 
States’ social protection systems and labour 
markets, measures to anticipate and manage 
econmic change, efforts to match skills with 
labour  market  needs,  up-dating  instruments 
in  the  social  and  employment  fields)  is 
likely 
impact  on 
competitiveness. 

to  have  a  positive 

-  A  holistic  approach  is  likely  to  maximise 
complementarity and synergies between EU 
policies  and  increase  overall  effectiveness 
and efficiency of EU action. Review of EU 
instruments  beyond  employment,  social 
affairs  and  equal  opportunties  would 
enhance  effectiveness  and  maximise  the 
positive impact of EU action. 

-  However,  the  EU  and  its  Member  States 
would  forego  possible  gains 
in  policy 
effectiveness  and  efficiency  by  not  fully 
exploiting  synergies  between  employment, 
social  and  equal  opportunties  policies  with 
other policies. 

in 

the  fields  of 
-  Further  EU  action 
employment, 
social  affairs  and  equal 
opportunties  would  contribute  to  further 
removing  obstacles 
the  mobility  of 
workers  and  create  a  more  effective  and 
field  between 
efficient 

level  playing 

to 

policy, 

enterprise 

-  Coordinated  EU  action  in  the  fields  of 
education, 
and 
employment  will  improve  the  quality  and 
relevance of national education and training 
systems 
labour  market  needs  and 
contribute to increasing the competitiveness 
of  the  enterprises  and  the  overall  EU 
economy. 

to 

strategies 

-  Promoting 
for 
national 
enhancing  efficiency  and  effectiveness  of 
social  spending  in  the  Member  States  is 
likely 
the  overall  macro-
economic environment. 

improve 

to 

-  A  'holistic  approach'  would  contribute  to 
removing  obstacles  to  mobility  not  just  of 
workers,  but  also  larger  sections  of  the 
population,  i.e.  young  people,  volunteers, 
researchers and patients. 

-  A  holistic  approach  would  contribute  to 

EN 

26 

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Operating  costs  and  conduct  of 
business 

the Single Market. 

companies operating in EU. 

-  Mobility  would  be  harmstrung  and  would 
fail  to  contribute  sufficently  to  the  good 
functioning of the European labour market. 

-  Risks  related  to  the  lack  of  further 
harmonisation  of  the  protection  of  citizens 
and  workers  (e.g.  in  field  of  health  and 
labour law), including social dumping.. 

-  EU  action  would  i)  create  a  level  playing 
field  between  companies  operating  in  the 
EU;  ii)  open  up  new  business  opportunties 
for  certain  companies  by  facilitating  the 
access of all consumers; iii) offer companies 
a  wider  pool  of  human  resources;  iv) 
improve  capacity  to  anticipate  and  manage 
change 
information  and 
consultation of workers and enhanced social 
dialogue. 

through  better 

- Impact on operation of businesses is likely 
to  be  neutral  in  the  short  run.  However,  in 
the medium and long-term, a moratorium on 
new  legislation  or  on  a  review  of  existing 
legislation could be negative in terms of the 
lack of adaptation of the legal framework to 
the  new  realities  or  new  risks  (for  example 
in the field of heath and satefy at work) and 
in 
in 
legislation between Member States (likely to 
make  the  conduct  of  business  at  EU  level 
more complicated, in particular for SMEs). 

increasing  differences 

terms  of 

- "Freezing" of the Community acquis is not 
in  line  with  the  EU  Better  Regulation 
agenda  and  the  reduction  of  administartive 
burden.  

the harmonious development of the internal 
market  ensuring  respect  for  fundamental 
rights and common values. 

-  EU  action  in  the  field  of  education  will 
improve  quality  and  relevance  of  national 
education  and  training  systems  to  labour 
market  needs  and  contribute  to  facilitating 
the conduct of business. 

enforcement 

- Targeted use of legislative instruments and 
better 
existing  EU 
legislation  across  various  policy  fields  will 
improve  the  regulatory  environment  for 
companies. 

of 

/ 

citizens 

consumers 

- Failure to further promote equal access for 
all 
(including 
disadvantaged groups) to goods and services 
would make businesses forego gains from a 
level  playing  field  for  all  consumers  / 
citizens. 

-  Companies  would  fail  to  benefit  from  a 
wider  pool  of  human  resources  through  the 
removal  of  remaining  obstacles  to  mobility 

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27 

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Third 
countries 
international relations 

and 

across the EU. 

National approaches in relation to the decent 
work  agenda  would  prevail.  Difficulty  of 
ensuring  coherent  approach  at  EU  level. 
International  leadership  of  the  EU  in  the 
development  of  the  decent  work  agenda 
may  be  jeopardised.  As  a  consequence, 
overall  impact  on  the  situation  in  third 
countries and on the promotion of the social 
dimension  of  globalisation  likely  to  be 
negative. 

Overall 
impact  would  be  positive  (for 
example  through  implementation  of  the  EU 
Decent  Work  Agenda  and  invitation  to 
Member  States  to  ratify  ILO  conventions) 
but  limited  involvement  of  trade-related 
policies. 

Overall impact would be positive. EU would 
be  in  a  better  position  to  promote  inclusion 
of  social  and  environmental  concerns  in 
agreements between EU and third countries 
/  environmental 
social 
and 
dimension of trade-related policies. 

reinforce 

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6.2. 

Social impacts 

Employment 
markets 

and 

labour 

Standards  and  rights  relating  to 
job quality 

Option 1: status quo  

Option 2: reviewed Social Agenda 

Option 3: renewed Social Agenda for 
opportunties, access and solidarity 

Social impacts 

- Proper functioning of national markets will 
be  hampered  in  the  medium  run  if  existing 
or new obstacles to mobility of workers are 
not tackled; skills bottlenecks and shortages 
are likely to worsen. 

-  Success  of  the  overall  Lisbon  Strategy 
would be put at risk if Employment Strategy 
were  not  further  developed  together  with 
macroeconomic and microeconomic pillars. 

- Pace of reform of national labour markets 
would  slow  down  in  the  long  as  a  result  of 
decreasing ‘peer pressure’ between Member 
States  and  diminishing  role  of  EU  as 
catalyst for change. 

in 

- Failure to review policies and instruments 
would  in  the  medium  to  long  term  lead  to 
differences 
level  of  protection 
between  Member  States.  As  a  result,  the 
overall level of protection of workers at EU 
level  is  likely  to  decrease  in  the  face  of 
future challenges. 

the 

-  Action  at  EU  level  is  likely  to:  i)  push 
reform agenda at national level; ii) promote 
peer  pressure  and  mutual  learning  between 
Member States; iii) contribute to the overall 
growth  and  jobs  agenda  at  EU  level;  iv) 
improve  functioning  of  national 
labour 
markets. 

- In addition to option 2, the mobilisation of 
all  relevant  policies  (including  education, 
training,  enterprise,  single  market,  and 
information  society  policies)  would  further 
contribute  to  improving  the  employment 
situation  and  the  the  functioning  of  the 
labour markerts..  

-  Impact  of  climate  change  on  employment 
structure  and  new  skills  would  also  be 
looked at in more detail. 

tools  beyond 
-  Review  of  existing 
employment, 
social  affairs  and  equal 
opportunties  at  EU  level  would  increase 
effectiveness and efficiency of EU action in 
support of Member States. 

- In addition to option 2, closer coordination 
of  EU  action,  for  instance  of  employment 
and  social  policies  with 
the  field  of 
education will improve more effectively the 
quality  of  national  education  and  training 
systems and their relevance to labour market 
needs  and  contribute  to  improving  job 
quality. 

the  EU  would  contribute 

Where  appropriate,  Commission  would 
propose  legislation  to  update  Community 
law to take account of case law of European 
Court  of  Justice  and  emerging  issues.  As  a 
result, 
to 
increasing the level of protection of workers 
improve  minimum 
and  maintain  or 
standards  applicable  across  the  EU.  EU 
action  would  also  contribute  to  anticipating 
and  managing 
(eg. 
restructuring) through enhanced information 
and consultation of workers, social dialogue 
relevant 
and 

partnerships 

between 

change 

better 

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Gender 
discrimination 

equality 

and  non-

- Differences in the level of protection in the 
medium and long term as a result of failure 
to review existing policies and legislation. 

-  Commitment  of  the  EU  to  fundamental 
rights and equal opportunities put at risk.  

Social  inclusion  and  protection 
of specific groups 

- Overall effectiveness of national activities 
is  likely  to  decrease  over  time,  if  no 
adaptation of policies. 

-  Reduced  role  of  EU  as  a  catalyst  for 
change in Member States. 

-  Decreasing  social  cohesion  and  public 
support for EU as possible long-term results 

stakeholders. 

-  EU-level  action  is  likely  to  improve  the 
level  of  protection  of  workers/citizens 
through  a  combination  of  non-legislative 
and  legislative  initiatives,  including  in  the 
areas  of  reconciling  work,  family  and 
private  life,  gender  pay  gap  and  non-
discrimination  outside 
the  employment 
sphere. 

-  EU-level  action  level  would  encourage 
Member  States  to  promote  active  inclusion 
(through  provision  of  adequate  income, 
active  labour  market  policies  and  access  to 
quality  services)  and  eradicate  poverty,  in 
particular of children.  

-  Member  States'  actions  are  likely  to  be 
more  effective  through  clearer  focus  on 
priorities,  stronger  links  to  Lisbon  Strategy 
and new quantified EU targets.  

- However, action in employment and social 
fields  alone  is  likely  to  have  a  limited 
impact  as  the  issues  at  stake  are  multi-
dimensional and require the mobilisation of 
all relevant policies. 

gender  mainstreaming 

-  Mobilisation  of  all  relevant  policies  will 
facilitate 
in 
accordance with Article 2 of EC Treaty and 
the Lisbon Treaty whereby equality between 
men  and  women  and  non-discrimination 
should be promoted in all EU policies. 

-  EU-level  action  is  likely  to  be  most 
effective  if  all  relevant  EU  policies  are 
mobilised,  including  education  (to  ensure 
that  young  people  acquire  necessary  key 
competencies),  health  (to 
tackle  health 
inequalities),  information  society  (to  ensure 
that  all  people  have  access  to  ICT  – 
e.inclusion),  energy  (access  of  energy  for 
disadvantaged  groups)  and  single  market 
(financial inclusion).  

-  Review  of  existing  EU-level  tools  would 
increase  effectiveness  and  efficiency  of  EU 
action in support of Member States. 

Public health and safety 

- Overall effectiveness of national activities 
is  likely  to  decrease  over  time,  if  no 
adaptation of policies. 

-  Reduced  role  of  EU  as  a  catalyst  for 
change in Member States.  

-  Action  in  the  framework  of  the  three 
existing  strands  of  the  OMC  for  social 
inclusion  and  social  protection  (inclusion, 
pensions,  health  and  long-term  care)  is 
likely  to  have  a  positive  impact  on  overall 
public health and safety. 

-  failure  to  tackle  health  inequalities  across 
the  EU;  risks  in  terms  social  cohesion  and 

-  However,  impact  is  likely  to  be  limited  if 
other relevant policies are not mobilised. 

in 

In  addition  to  option  2,  EU-level  action 
would  complement  and  support  Member 
States'  activities.  Impact  is  likely  to  be 
i) 
positive 
increasedopportunities 
to 
receive  the  necessary  health  services;  ii) 
increased  quality  of  national  health-care 
services; iii) reducing health inequalities; iv) 
longer and healthier lives (including through 

of: 
patients 

terms 
for 

EN 

30 

EN 

 
  
public support for EU 

use of modern ICT). 

-  Under  the  holistic  approach,  other  EU 
policies  would  contribute 
increasing 
public  health  and  safety,  for  example 
education,  demography  policy  and  fight 
againt social exclusion. 

to 

EN 

31 

EN 

 
  
 
6.3. 

Environmental impacts 

Option 1: status quo  

Option 2: reviewed Social Agenda 

Option 3: renewed Social Agenda for 
opportunties, access and solidarity 

Environmental impacts 

Difficult  to  assess  impacts,  but  failure  to 
update  social  and  employment  policies    to 
new  environmental  concerns  may  have  a 
negative  impact  on  the  social  impact  of 
environmental policies. 

6.4. 

Political impacts 

and 

implementation 

Definition 
of 
employment and social policies would have 
protection 
to 
requirements (cf. Article 6 of EC Treaty). 

environmental 

integrate 

In addition to option 2: Better integration of 
sustainable  development  considerations,  in 
particular through development of EU-level 
indicators  that  go  beyond  GDP,  and  the 
promotion of green jobs. 

Option 1: status quo  

Option 2: reviewed Social Agenda 

Option 3: renewed Social Agenda for 
opportunties, access and solidarity 

Political impacts 

Responsiveness and 
comprehensiveness 

Low:  failure  to  respond  to  calls  for  further 
action  at  EU  level  and  to  respond  to  new 
social realities through a holistic approach.  

Average: visible response to calls for action 
at  EU 
level  and  new  social  realities; 
however failure to respond the call for more 
cross-cutting work at EU level. 

High:  visible  response  to  calls  for  further 
action  and  EU  level  and  to  respond  to  the 
call for more cross-cutting work at EU level. 

Consistency 

to  average:  Risk  of  decreasing 

Low 
consistency between policies (over time). 

Average:  Consistency  within  the  social, 
employment and equal opportunties areas is 
likely to be high, but consistency with other 
policies is likely to be sub-optimal. 

Effectiveness 

Low to average: Effectiveness may decrease 
over  time  because  of  lack  of  modernsiation 
of policies. 

Average:  effectiveness  of  EU  action  would 
depend  in  part  on  quality  and  intensity  of 
interaction / synergies with other policies. 

High:  holistic  approach 
to 
guarantee  high  degree  of  consistency  and 
positive  interplay  between  social,  economic 
and environmental dimensions. 

likely 

is 

is 

likely 

to 
High:  holistic  approach 
guarantee  high  level  of  effectiveness  of  EU 
responses  through  better  complementarity 
and  synergies  between  the  relevant  EU 
policy 
review  of  EU 
instruments. 

fields  and  a 

EN 

32 

EN 

 
  
 
 
 
Visibility 

Low:  failure  of  the  EU  to  provide  visible 
responses  to  citizens  expectations  and  to 
calls  for  further  action  at  EU  level  could 
undermine confidence of EU citizens in the 
European project. 

Average to high: visible response of the EU 
to  citizens'  expectations  and  to  calls  for 
further action at EU level; visibility high for 
stakeholders 
the  employment,  social 
affairs  and  equal  opportunities  fields  but 
limited in others. 

in 

High: visible response of the EU to citizens' 
expectations and to calls for further action at 
EU 
the 
"traditional"  employment,  social  affairs  and 
equal opportunities stakeholders. 

reaching  out  beyond 

level, 

EN 

33 

EN 

 
  
7. 

COMPARISON OF OPTIONS 

Under  Option  1,  the  current  Community  acquis  and  policies  would  be  maintained  in  their 
present  form,  while  taking  account  of  the  new  social  realities  would  be  left  mainly  to  the 
Member States. Failure to adapt EU policies to new social realities is likely to have a negative 
impact  across  the  four  dimensions  (economic,  social,  environmental,  and  political)  in  the 
medium  and  long  term.  The  EU  would  no  longer  play  its  role  as  a  catalyst  for  change  and 
would fail to take account of evolving issues. The degree of involvement would vary between 
the Member States. As a result, the degree of protection of European workers/citizens would 
be uneven and there would be no level playing field between companies across the EU. The 
functioning  of  the  Single  Market  would  be  jeopardised  in  the  medium  to  long  term. 
Furthermore, there would be no guarantee that national responses to the new social realities 
would  have  the  degree  of  comprehensiveness  and  consistency  required  to  provide  holistic 
policy responses to the challenges facing the EU. From an EU-governance point of view, the 
Commission  would  fail  to  demonstrate  its  commitment  to  improving  the  well-being  of 
European citizens, in spite of their expectations as illustrated by the social reality consultation 
and in various recent Eurobarometer polls. This could seriously undermine the legitimacy of 
the EU. 

Under  Option  2,  the  Commission  would  present  a  revised  Social  Agenda  limited  to  the 
employment, social and equal opportunities fields. The analysis of the economic, social and 
environmental  dimensions  has  shown  that  the  overall  impact  would  be  positive.  The  EU 
would  review  the  instruments  at  its  disposal  in  the  fields  of  employment,  social  affairs  and 
equal opportunties. The EU would push forward reforms of national employment and social 
systems,  increase  the  level  of  protection  of  workers  and  ensure  a  level  playing  field  for 
companies  operating  in  the  Single  Market.  Although  the  EU  would  be  seen  to  address  the 
concerns of EU citizens, the overall impact of EU action is likely to be limited, because of its 
lack  of  comprehensiveness  (failure  to  mobilise  other  policies  in  response  to  the  new  social 
realities) and responsiveness (failure to take account of all citizens’ expectations). Lastly, the 
consistency of EU action is likely to be sub-optimal. 

Under Option 3, the EU would mobilise all its relevant policies to respond to the new social 
realities.  As  a  result,  EU  responses  to  the  challenges  emerging  from  the  consultation  on 
Europe's social reality are likely to be more effective. This will enable synergies between EU 
policies. For example, the development of school education will have an impact not only on 
the acquisition of key competencies but also on the future career prospects of young people, 
the availability of highly skilled workers for companies, the reconciliation of work and family 
life  (as  more  parents  will  be  able  to  take  up  employment),  and  the  social  inclusion  of 
disadvantaged groups. Equally, action to improve the health of the EU population will have a 
postive  impact  not  only  on  public  health  but  also  on  the  social  inclusion  of  disavantaged 
groups  and  on  employment  and  productivity.  This  option  would  also  be  in  line  with  the 
Lisbon Treaty, which calls for the mainstreaming of employment and social objectives in all 
EU policies51. 

51 

See  new  Article  5a  of  the  Treaty  on  the  Functioning  of  the  European  Union:  ‘In  defining  and 
implementing  its  policies  and  activities,  the  Union  shall  take  into  account  requirements  linked  to  the 
promotion of a high level of employment, the guarantee of adequate social protection, the fight against 
social exclusion, and a high level of education, training and protection of human health.’ 

EN 

34 

   EN 

 
                                                 
Furthermore,  EU  action  would  be  highly  comprehensive  (it  would  go  beyond  the 
employment, social affairs and equal opportunities fields), responsive and consistent. It would 
not  create  a  new  process  at  EU  level.  Rather,  it  would  support  the  existing  proocesses, 
including  the  renewed  Lisbon  Strategy  for  "Growth  and  Jobs".  It  would  support  Member 
States'  activities  and  respect  the  principle  of  subsidiarity  and  proportionality.  Lastly,  the 
analysis  of  impacts  clearly  shows  that  a  review  of  existing  tools  would  maximise  the 
effectiveness and efficiency of EU action.  

In conclusion, Option 3 (‘A renewed Social Agenda for opportunities, access and solidarity’) 
is the preferred option. 

8. 

VALUE ADDED AND SUBSIDIARITY 

Member States have the main responsibility for the policy changes needed to respond to the 
new social realities. However, the consultation on Europe's social reality has confirmed that 
the  confidence  of  citizens  in  the  European  project  depends  on  credible  social  policies  at 
European  level.  As  explained  in  section  2.1,  the  role  of  the  EU  is  anchored  upon  a  solid 
foundation. 

EU action should  remain conditional  upon  proven added value, in line with the subsidiarity 
and  proportionality  requirements.  But  this  does  not  preclude  a  more  pro-active  role  at  EU 
level to catalyse change  and  to  steer,  support  and  accompany  necessary  reforms.  As  part  of 
the renewed Social Agenda, the Commission intends to present concrete new initiatives either 
at the same time as the Communication or to be adopted at a later date. Where appropriate, the 
Commission will carry out impact assessments of the specific initiatives in accordance with 
the  Commission’s  impact  assessment  guidelines52.  The  individual  impact  assessments  will 
deal with the aspects related to subsidiarity and value added in more detail.  

Some of the planned initiatives are listed below to illustrate the contribution and value added 
of the EU in five main areas. 

- Setting policy frameworks for action: there is a shared willingness to work towards common 
goals  at  EU  level.  This  is  why  in  a  number  of  policy  domains  such  as  employment,  social 
inclusion,  social  protection,  education,  youth,  culture  and  health  (and  more  recently  in  the 
field of immigration and integration), the EU has established or is about to establish common 
objectives,  reporting  mechanisms  and  indicators  as  a  means  of  monitoring  progress  and 
comparing best practice. The experience of the European Employment Strategy launched ten 
years ago - and now an essential pillar of the Lisbon Strategy - shows that such mechanisms 
can  make  a  difference,  by  shedding  new  light  on  priorities  that  were  not  prominent  at  EU 
level  earlier  on  -  such  as  "flexicurity",  quality  and  productivity  of  work,  childcare, 
immigration, undeclared work and minority issues - as well as on innovative ways to address 
them. 

These  processes  have  now  been  operating  for  several  years.  They  have  been  successful  in 
allowing  the  Member  States  and  the  Commission  to  define  common  goals;  but  less  so  in 
stimulating the necessary degree of ambition and policy efforts to reach these common goals. 

52 

SEC (2005) 791. 

EN 

35 

   EN 

 
                                                 
As is being done for the review of the Lisbon Strategy, the EU should consider how to make 
these  voluntary  processes  more  dynamic  and  more  focused  on  implementation  while  at  the 
same time taking into account the diversity of institutions and traditions. 

Examples of initiatives: 

- Communication from the Commission "A renewed commitment to social Europe: Reinforcing the Open Method 
of Coordination for Social Protection and Social Inclusion" (July 2008). 

- Commission Recommendation on active inclusion (October 2008). 

- Communication from the Commission on "Developing the Open Method of Coordination on Youth (2008). 

-  Communication  from  the  Commission  on  "Updating  the  strategic  framework  for  European  co-operation  in 
education and training (December 2008). 

-  Upholding  Europe's  values  and  ensuring  a  level-playing  field:  There  is  a  solid  EU  legal 
framework  in  areas  such  as  gender  equality,  anti-discrimination,  free  movement  of  workers 
and  working  and  employment  conditions.  European  social  partners  have  been  active  in 
negotiating  agreements  or  defining  joint  strategies  in  a  number  of  key  areas.  In  the  light  of 
changing social realities, the increased diversity of the EU and the new Treaty of Lisbon, the 
legal  framework  should  to  be  reviewed  and  adapted,  where  appropriate,  to  ensure  that  it 
reaches agreed goals effectively. EU legislation will remain essential to uphold the rights of 
citizens as set out in the Treaties, including by ensuring compatibility between national rules. 
Lastly, the EU has set out its views on how Europe can succeed in an era of globalisation by 
shaping  global  regulation  and  examining  best  ways  to  promote  a  convergence  of  standards 
globally.  

Examples of initiatives: 

-  Proposal  for  a  Directive  on  the  establishment  of  a  European  Works  Council  or  a  procedure  in  Community-
scale undertakings and Community-scale groups of undertakings for the purposes of informing and consulting 
employees (recast) (July 2008). 

- Proposal for a Council Directive implementing the principle of equal treatment between persons irrespective of 
religion or belief, disability, age or sexual orientation (July 2008). 

- Proposal for a Directive on the application of patients' rights in cross-border healthcare (July 2008). 

- Legislative proposals with a view to improving the reconciliation of private and professional life by improving 
parental  leave  arrangements,  introducing  news  forms  of  leave  (paternity,  adoption  and  filial  leave),  and 
strengthening protection for pregnant women (September 2008). 

- Commission Staff Working Document "Report on the EU contribution to promoting decent work for all in the 
world" (July 2008). 

- Sharing experience and good practice: For all the EU's diversity, Member States are often 
faced  with  common  societal  trends  and  practical  difficulties,  offering  scope  for  mutual 
learning. Progress towards common EU goals should be monitored, evaluated and compared. 
Best  practice  needs  to  be  rolled  out:  EU  mechanisms for the exchange of experiences, joint 
evaluations  and  peer  reviews  should  be  reinvigorated,  making  sure  that  they  are  part  of  the 
mainstream  national  and  European  policy  debate.  Ensuring  the  greater  involvement  of 
national and regional parliaments, local and regional authorities, social partners and NGOs is 
essential in this respect. 

EN 

36 

   EN 

 
Examples of initiatives: 

-  Commission  Communication  "Improving  competences  for  the  21st  Century:  An  Agenda  for  European 
Cooperation on Schools" (July 2008). 

- Commission Staff working paper "Efficiency and effectiveness of social spending" (July 2008). 

- Commission Report on the Barcelona targets concerning the availability of child-care facilities in the Member 
States (September 2008). 

- Supporting action at local, regional and national level: Through its cohesion policy, the EU 
has played a major role in reducing differences in prosperity and living standards across the 
EU.  The  funds  have  provided  and  continue  to  provide  a  financial  lever  for  less  advanced 
regions and Member States to catch up. In recent years, these instruments have become more 
closely associated with the 'growth and jobs' policy priorities of the EU. For instance, over the 
period 2007-2013, € 75 billion are be ing invested by the European Social Fund (ESF) to equip 
the workforce with new skills and companies with innovative work organisations. Moreover, 
the European Globalisation Fund has helped reintegrate into the labour market workers made 
redundant  due  to  changing  global  trade  patterns.  This  Fund  is  an  important  symbol  of 
solidarity for those affected by the consequences of globalisation. Lastly, the Commission has 
launched a debate on the future of the European budget after 2013. It will be important to feed 
the findings of the social reality consultation into that debate. 

Example of initiatives: 

- Commission Communication "Solidarity in the face of change: The European Globalisation Adjustment Fund 
(EGF) in 2007 - Review and Prospects" (July 2008). 

- Raising awareness and building a strong knowledge base: the EU has an important role to 
play  in  flagging  key  issues,  stimulating  discussion  and  creating  political  momentum  for 
tackling  common  challenges  in  Europe.  Initiatives  such  as  the  European  Years  for  Equal 
Opportunities  for  All  (2007),  for  Intercultural  Dialogue  (2008)  and  for  Combating  Poverty 
and  Social  Exclusion  (2010)  facilitate  this  type  of  discussion.  Awareness  and  analysis  of 
social  issues  has  often  been  hampered  by  the  lack  of  complete  and  up-to-date  EU-wide 
statistics and indicators. Yet, decision makers need these facts in order to better inform public 
debate and assess the social impact of initiatives. 

Examples of initiatives: 

-  Commission  Staff  Working  Document  "First  biennial  report  on  the  situation  of  social  services  of  general 
interest in the EU" (July 2008). 

-  Commission  Communication  "Non-discrimination  and  equal  opportunities:  A  renewed  commitment"  (July 
2008). 

-  Commission  Staff  Working  Document  "Restructuring  and  Employment:  the  contribution  of  the  European 
Union" (July 2008). 

- Green Paper on "Migration and Mobility: challenges for EU education systems (July 2008). 

- Commission Communication on "Meeting the needs of an ageing population (October 2008). 

- Commission Communication on health inequalities (2009). 

EN 

37 

   EN 

 
9. 

MONITORING AND EVALUATION 

First, as explained above, the renewed Social Agenda for opportunities, access and solidarity 
does not create a separate process. It supports and is closely linked with on–going processes 
such  as  the  Lisbon  Strategy  for  Growth  and  Jobs,  the  renewed  Sustainable  Development 
Strategy, the Single Market, and the processes of open method of coordination in the fields of 
social  protection  and  social  inclusion,  of  education  and  of  youth.  Separate  monitoring, 
reporting and evaluation mechanisms exist for all these processes. This will continue to be the 
case  without  adding  an  extra  reporting  mechasim  for  the  implementation  of  the  renewed 
Social Agenda. 

Second,  the  renewed  Social  Agenda  is  backed  up  by  a  number  of  legislative  and  non-
legislative initiatives, often with their own impact assessments and monitoring and evaluation 
mechanisms.  As  a  result,  there  will  no  additional  process  to  monitor  and  evaluate  the 
individual initiatives, although coherence between them will be ensured.  

Third,  the  Commission  will  present  a  report  on  the  implementation  of  the  renewed  Social 
Agenda in 2010. This report should include an evaluation of the implementation of the new 
horizontal social clause in the Lisbon Treaty (if ratified). On that basis, the Commission will 
present  a  Communication  on  the  review  of  the  renewed  Social  Agenda  for  opportunities, 
access and solidarity in 2010. 

EN 

38 

   EN 

 
10. 

ANNEX 1: SCOREBOARD ON THE IMPLEMENTATION OF THE SOCIAL AGENDA (2005-10) 

INITIATIVES TRANSVERSALES 

INITIATIVE 

OBJET 

ETAT  
(achevé, 
reporté, en 
cours) 

INTITULE 

REFERENCE 

1  Un 

livre  vert  sur 
intergénérationnelles 

les 

relations 

2  Forum sur l'Agenda social 

3  Promotion du travail décent  

4  Un partenariat intergénérationnel: une 
contribution  à  l'initiative  européenne 
en faveur de la jeunesse.  

Analyse 
mutations 
des 
démographiques  des  populations 
européennes  et  des 
relations 
entre les générations  

Achevé 

Evaluation  de  la  mise  en  œuvre 
de l'Agenda social 

Achevé 

1.  Promotion  du  travail  décent 
comme  objectif  mondial  à  tous 
les niveaux 

1. Achevé 

d'un 

2.  Création 
groupe 
interservices  pour  la  promotion 
de 
la  dimension  externe  de 
l’emploi,  de  la  politique  sociale 
et du travail décent 

le  cadre  du 
S'inscrit  dans 
intergénérationnel. 
partenariat 
Intégrer  la  dimension  "jeunesse" 
dans les stratégies de l'emploi et 
de l'inclusion sociale 

2. Achevé 

Achevé 

vert 

Livre 
changements 
démographiques:  une  nouvelle  solidarité  entre 
générations" 

"Face 

aux 

Communication  de  la  Commission  "Promouvoir 
un  travail  décent  pour  tous.  La  contribution  de  la 
Commission à la mise en œuvre de la l'agenda du 
travail décent dans le monde"  

Groupe interservices (DGs: SG, RELEX, AIDCO, 
DEV,  ELARG,  TRADE,  ECFIN,  EAC,  JLC, 
ENU, 
ESTAT,  BEPA) 
« Dimension  externe  de  l’emploi,  de  la  politique 
sociale et du travail décent». 

SANCO,  RTD, 

la  Commission  sur 

Communication  de 
les 
politiques  européenne  de  la  jeunesse  "Répondre 
aux  préoccupations  des  jeunes  Européens  –  mise 
en  œuvre  du  Pacte  européen  pour  la  jeunesse  et 
promotion de la citoyenneté active" 

COM (2005) 94 final 

Forum a eu lieu les 5 
et 6 mai 2008. 

COM 
final 

(2006)  249 

COM 
final 

(2005)  206 

EN 

39 

EN 

 
  
 
 
 
 
 
INITIATIVES RELATIVES A L'AXE EMPLOI 

INITIATIVE 

OBJET 

ETAT  
(achevé, annulé, 
en cours) 

INTITULE 

REFERENCE 

1  Un  cycle  rénové  de  la  Stratégie 

Européenne pour l'Emploi  

Réexamen  à  mi-parcours  de  la 
stratégie de Lisbonne  

Achevé  

Communication  de  la  Commission  au  Conseil 
européen  de  printemps  "  Travaillons  ensemble 
pour la croissance et emploi. Un nouvel élan pour 
la Stratégie de Lisbonne" 

COM(2005) 24 

2  Une  action  de  sensibilisation  des 
acteurs  du  Fond  Social  Européen  en 
de 
2006 
des 
communication 
parlements 
acteurs 
et 
concernés en 2006/2007 

campagne 
auprès 
d'autres 

une 

et 

3  Nouvelle stratégie dans le domaine de 

la gestion des restructurations 

Améliorer  la  gouvernance  de  la 
SEE 

Achevé 

1.  Proposer  une  approche  active 
face  aux  restructurations  afin  de 
mieux anticiper, susciter et gérer 
les mutations économiques. 

1. Achevé 

2.  Forum  européen  sur 
restructurations 

les 

Achevé  

Achevé 

3. 2ème phase de consultation des 
partenaires  sociaux  :  questions 
des  restructurations  et  de 
la 
révision  de  la  directive  relative 
d'entreprise 
aux 
européens (94/45/CE) 

comités 

de 

Commission 
Communication 
"Restructuration 
et 
accompagner  les  restructurations  pour  développer 
l'emploi: le rôle de l'Union européenne" 

emploi.  Anticiper 

et 

la 

COM 
final 

(2005)  120 

Mise en place du Forum sur les "Restructurations" 
et  organisation  régulière  de  réunions  rassemblant 
l'ensemble des parties prenantes. 

Annoncé  dans:  COM 
(2005) 120 final 

de 

Commission 
Communication 
"Restructuration 
et 
accompagner  les  restructurations  pour  développer 
l'emploi: le rôle de l'Union européenne" 

emploi.  Anticiper 

et 

la 

COM 
final 

(2005)  120 

4  Livre  vert  sur  l'évolution  du  droit  de 

travail 

Rôle  du  droit  du  travail  face  à 
l'évolution de nouveaux modèles 
d'organisation du travail  

Achevé 

Livre  Vert:  Moderniser  le  droit  du  travail  pour 
relever les défis du XXIe siècle  

COM 
final du 22.11.2006 

(2006)  708 

Communication  de  la  Commission :  Issue  de  la 

COM 

(2007)  627 

EN 

40 

EN 

 
  
 
 
 
 
 
 
5  Une 

initiative  communautaire  en 
matière  de  protection  des  données  à 
caractère personnel 

Protection 
caractère 
travailleurs  

données 

des 
personnel 

à 
des 

Annulé 

consultation  publique  sur  le  Livre  vert  de  la 
Commission  "Moderniser  le  droit  du  travail  pour 
relever les défis du XXIe siècle" 

final du 24.10.2007 

6  Mise 

à 

2001/23/CE 
d'entreprises 

jour  de 
sur 

la  directive 
transferts 

les 

7  Codification des diverses dispositions 
relatifs à l'information et consultation 
des travailleurs 

jour  de 

la  directive 
Mise  à 
(licenciements 
98/59/CE 
matière 
collectifs) 
d'information et consultation des 
travailleurs 

en 

Annulé 

Annulé 

8  Nouvelle stratégie dans le domaine de 
la  santé  et  sécurité  au  travail  pour  la 
période 2007-2012 

Prévention  face  aux  nouveaux 
risques et sauvegarde de niveaux 
minimum  de  protection  sur  le 
lieu de travail 

Achevé 

Communication  de  la  Commission  « Améliorer  la 
qualité  et  la  productivité  au  travail:  stratégie 
communautaire  2007-2012  pour  la  santé  et  la 
sécurité au travail » 

COM 
final du 21.02.2007 

(2007)  062 

9 

Initiative  visant  le  développement  et 
la  transparence  de  la  responsabilité 
sociale des entreprises  

Concourir  à  l'efficacité  et  à  la 
crédibilité des pratiques relevant 
de  la  responsabilité  sociale  des 
entreprises 

Achevé 

Communication  "Mise  en  œuvre  du  partenariat 
pour la croissance et l'emploi: faire de l'Europe un 
pôle  d'excellence  en  matière  de  responsabilité 
sociale des entreprises" 

COM 
final 

(2006)  136 

10  Propositions  visant  à 

les 
obstacles  à  la  mobilité  de  la  main-
d'œuvre  et  relatives  aux  régimes  de 
retraite professionnelle 

lever 

Réalisation 
marché européen du travail 

d'un 

véritable 

Achevé 

Proposition de directive relative à l'amélioration de 
la portabilité des droits à pension complémentaire 

COM(2005) 507 final 

11  Une nouvelle proposition relative à la 

négociation collective transnationale 

en  place  un  outil 
Mettre 
permettant  de 
la 
conduite  et  les  résultats  de  la 
collective 
négociation 
transnationale 

formaliser 

Commission  Staff  Working  Document  "The  role 
of 
the 
in 
transnational  company  agreements 
context of increasing international integration" 

SEC  (2008)  2155  du 
02.07.2008 

EN 

41 

EN 

 
  
 
 
 
 
 
 
 
 
 
12  Organisation  de  l'Année  européenne 
(2006) de la mobilité des travailleurs 

Vers  un  marché  européen  de 
l'emploi 

Achevé 

13  Constitution  d'un  groupe  de  haut 
des  Etas 
(représentants 

niveau 
Membres) 

14  Modernisation  et  simplification  de  la 
coordination  des  régimes  de  sécurité 
sociale  

de 

l'impact 

Évaluation 
de 
l'élargissement sur la mobilité et 
du  fonctionnement  des  périodes 
transitoires 

Achevé 

Modifications des règlements:  

En cours 

CEE 

1. 
2. 
n° 
CE 
3. CEE n°574/72 

n°1408/71, 
883/2004, 

Communication de la Commission "Rapport sur le 
fonctionnement des dispositions transitoires visées 
au  traité  d'adhésion  de  2003  (période  du  1er  mai 
2004 au 30 avril 2006)"  

Proposition  de 
règlement  d'application  du 
règlement  883/2004.  D'autres  initiatives  prévues 
dans  le  Programme  législatif  et  de  travail  de  la 
Commission  pour  2007  concernant  l'extension  du 
Règlement 883/04 aux ressortissants des pays tiers 
et les annexes manquantes. 

COM (2006) 48 final 

COM(2006)16 

EN 

42 

EN 

 
  
 
 
INITIATIVES RELATIVES A L'AXE SOLIDARITE 

INITIATIVE 

OBJET 

1  Appliquer  le  processus  de  la  MOC 
aux domaines de la santé et des soins 
de longue durée à partir de 2006.  

Rationnaliser et simplifier la mise en 
œuvre de la MOC 

2  Une  initiative  communautaire  sur  les 
dispositifs  des  ressources  minimales 
et  l'intégration  des  exclus  du  marché 
du travail 

Ouverture  de  la  MOC  à  de 
nouveaux 
domaines. 
Rationalisation  et  simplification 
consistera 
l'établissement 
liste  unique  d'objectifs 
d'une 
- 
aux  3  volets 
communs 
inclusion, 
- 
santé 
retraites, 
incluant 

en 

2  objectifs  horizontaux:  l'égalité 
des chances et l'accès au marché 
du travail 

Continuation  du  débat  sur  les 
dispositifs  nationaux  de  revenu 
minimum.  Consultation  sur  les 
efficacité 
d'une 
raisons 
insuffisante 
dispositifs 
des 
existants 

3  Organiser l'Année européenne (2010) 
de  la  lutte  contre  la  pauvreté  et 
l'exclusion sociale 

Mesurer  le  progrès  obtenu  au 
la  décennie  pour 
cours  de 
souligner 
vulnérabilité 
la 
particulière  des  populations  les 
plus sensibles 

Achevé  

ETAT  
(achevé, 
reporté, en 
cours) 

Achevé 

INTITULE 

REFERENCE 

la  Commission  "Travailler 
Communication  de 
ensemble, 
mieux :
travailler 
Un nouveau cadre pour la coordination ouverte des 
politiques  de  protection  sociale  et  d’inclusion 
sociale dans l’Union européenne" 

(2005)  706 

COM 
final 

Achevé 

Communication  de  la  Commission  "Consultation 
sur  une  action  à  mener  au  niveau  communautaire 
pour promouvoir l'inclusion active des personnes les 
plus éloignées du marché du travail". 

COM 
final 

(2006) 

44 

Communication  de  la  Commission  « Moderniser  la 
protection sociale pour renforcer la justice sociale et 
la  cohésion  économique:  promouvoir  l'inclusion 
active  des  personnes  les  plus  éloignées  du  marché 
du travail » 

COM 
(2007)  620 
final du 17.10. 2007 

Proposition  de  DÉCISION  DU  PARLEMENT 
EUROPÉEN  ET  DU  CONSEIL  relative  à  l’Année 
européenne de lutte contre la pauvreté et l’exclusion 
sociale (2010) 

(2007)  797 

COM 
final du 12.12.2007 

EN 

43 

EN 

 
  
 
 
4  Une  communication  suite  au  Livre 
Vert  "Egalité  et  non-discrimination 
dans l'UE élargie de 2004" 

5  Organiser l'Année européenne (2007) 

de l'égalité des chances 

pour 

politique 

Cadre 
les 
nouvelles  mesures  en  matière 
d'égalité  et  non  discrimination. 
Question 
minorités 
des 
(notamment les Roms) 

l'importance  de 

Souligner 
la 
question de l'égalité des chances. 
Rendre plus visibles les résultats 
les 
déjà  atteint  et 
avantages  de  la  diversité  pour 
l'économie 
société 
et 
européenne 

illustrer 

la 

Achevé 

Achevé  

Communication  de  la  Commission  européenne  sur 
une  stratégie-cadre  visant  à  promouvoir  la  non-
discrimination et l’égalité des chances pour tous, en 
réponse aux commentaires et aux réactions au Livre 
vert de mai 2004 

(2005)  224 

COM 
final 

Décision relative à l’Année européenne de l’égalité 
des  chances  pour  tous  (2007)  -  Vers  une  société 
juste 

JO  n°  L  146  du 
31/05/2006 

6  Une  communication  sur  la  question 
de  l'égalité  entre  les  femmes  et  les 
hommes 

L'expiration de la stratégie-cadre 
2001-2005. 
de 
nouvelles actions 

Propositions 

Achevé 

Communication  de  la  Commission  "Croissance, 
prospérité et solidarité dans une société égalitaire et 
démocratique:  une  feuille  de  route  pour  l'égalité 
entre les femmes et les hommes 2006-2010 

COM 
final 

(2006) 

92 

7  Création  d'un  Institut  européen  pour 
l'égalité entre hommes et femmes 

d'informations 

Collecte 
et 
échange  des  bonnes  pratiques. 
Rôle  d'assistanat  auprès  de  la 
des  Etats 
et 
Commission 
Membres dans la mise en œuvre 
des  objectifs  communautaires 
pour  la  promotion  de  l'égalité 
hommes femmes 

Achevé 

Règlement  (CE)  Nª  1922/2006  du  Parlement 
européen  et  du  Conseil  du  20  décembre  2006 
portant création d'un Institut européen pour l'égalité 
entre les hommes et les femmes 

JO  L 
30.12.2006 

403 

du 

8 

Nouvelles  éditions  du  plan  d'action 
en  faveur  de  l'égalité  des  chances 
pour les personnes handicapées 

1. L'action en matière de l'égalité 
des  chances  pour  les  personnes 
handicapées 

Achevé  

Communication de la Commission "La situation des 
personnes  handicapées  dans  l’Union  européenne 
élargie : plan d’action européen 2006-2007" 

COM 
final 

(2005)  604 

Rapport sur la situation des personnes 
handicapées  

2. A présenter tous les deux ans, 
lors  la  Journée  européenne  des 
personnes handicapées 

Achevé  

Communication de la Commission : La situation des 
personnes  handicapées  dans  l’Union  européenne: 
plan d’action européen 2008-2009 

(2007)  738 

COM 
final du 26.11.2007 

EN 

44 

EN 

 
  
 
9  Une  communication  sur  les  services 
sociaux  d'intérêt  général  (SSIG)  en 
2005 

Clarifier 
le 
fonctionnement 
modernisation des SSIG 

cadre 
et 

de 

Achevé 

du 
la 

Communication  de  la  Commission  "Mettre  en 
œuvre  le  programme  communautaire  de  Lisbonne: 
Les  services  sociaux  d'intérêt  général  dans  l'Union 
européenne" 

(2006)  177 

COM 
final 

Communication  de  la  Commission  "Les  services 
d'intérêt  général,  y  compris  les  services  sociaux 
d'intérêt général: un nouvel engagement européen 

(2007)  725 

COM 
final du 20.11.2007 

10  Décision  (fondé  sur  art.  86,  par.  3 
TCE)  et  un  cadre  communautaire 
relatifs  au  financement  des  services 
d'intérêt économique général (SIEG) 

Clarifier  dans  quelles  conditions 
les  aides  d'Etat  octroyées  au 
SIEG  sont  compatibles  avec  les 
règles communautaires 

Achevé 

Décision  de  la  Commission  du  28  novembre  2005 
concernant  l'application  des  dispositions  de  l'article 
86, paragraphe 2, du traité CE aux aides d'État sous 
forme de compensations de service public octroyées 
à  certaines  entreprises  chargées  de  la  gestion  de 
services d'intérêt économique général 

C(2005) 2673 

EN 

45 

EN 

 
  
 
 
 
11. 

ANNEX 2: SUMMARY OF THE RESULTS OF THE PUBLIC CONSULTATION 

Social reality stocktaking 

Summary of results of the public consultation 

General Observations 

A satisfactory outcome of the public consultation 

The  fairly  long  consultation  period  (from  February  2007  until  February  2008)  produced  a 
satisfactory  result  in  terms  of  volume,  scope  and  depth  of  contributions.  Some  150  mostly 
comprehensive contributions were received from all across the EU and from a wide range of 
sources  such  as  public  authorities,  a  national  parliament  committee,  social  partners,  NGOs, 
various interest groups, universities and research institutions, religious groups and churches as 
well as individual citizens. This result is comparable to the outcome of other European-level 
consultation exercises. 

The  responses  received  from  public  authorities  indicate  that  the  consultation  received 
significant political attention. As intended by the European Commission, the consultation was 
seen as a first step in the process of formulating a  new social policy  based on a new social 
vision. Contributions were received from Bulgaria, Czech Republic, Germany, Estonia, Spain, 
France, Italy, Malta, Austria, Poland, Finland, Sweden and the United Kingdom. A number of 
contributions were also received from regional and local governments.  

the  major  social  partner  groupings  at  European 

Apart from individual responses received from social partner organisations at national level, 
level,  such  as  ETUC, 
most  of 
BUSINESSEUROPE  and  the  Conféderation  Européenne  des  Cadres,  sent  comprehensive 
contributions  reflecting  their  interest  in  having  a  say  in  defining  the  new  social  agenda. 
Further  contributions  came  from  NGOs  with  a  more  general  scope  of  activity  in  the  social 
field  such  as  CARITAS  Europe,  Care  for  Europe  and  the  Social  Platform,  as  well  as  from 
NGOs  with  a  more  specific  area  of  activity  dealing  with  poverty,  children,  youth,  health, 
disability, family issues, etc. As for religious groups, contributions were received from both 
the Catholic and the Protestant Church at European level as well as from various other bodies 
at  national  level.  26  contributions  were  received  directly  from  individual  citizens  in  ten 
different Member States.  

Observations concerning approach and coverage of the consultation documents 

Comments regarding the approach 

Most  of  the  contributions  endorse  the  description  of  the  social  trends  that  have  shaped 
European societies in recent times as set out in the consultation documents: globalisation and 
the shift towards a knowledge society as well as demographic trends are recurring topics that 
keep reappearing throughout the whole set of responses. Against this background, most of the 
contributions across all categories  of contributors appear  to be  based  on the firm  belief that 
the  confidence  of  citizens  in  the  European  project  one  way  or  another  depends  greatly  on 
credible social policies at European level.  

EN 

46 

   EN 

 
In  this  context,  a  number  of  contributors  firmly  believe  that  Europe  still  has  the  strongest 
welfare states and public services in the world, with universal democracy and with the social 
well-being  and  the  fundamental  rights  of  its  people  at  the  centre  of  its  political,  social  and 
economic  life.  Nevertheless,  there  also  appears  to  be  widespread  concern  that  globalisation 
might  be  used  as  a  pretext  to  pursue  economic  growth  at  all  costs,  causing  large-scale  de-
localisations as well as a race to the bottom in terms of employment standards.  

Against this multifaceted background, most of the contributors directly or indirectly point to 
the need for a new impulse in terms of social policy at European level. Especially in view of 
the challenges emanating from globalisation, European ageing populations and changing work 
patterns,  these  contributors  consider  a  fundamental  re-assessment  of  social  policies 
indispensable.  In  this  context,  most  contributions  appear  to  indicate  that  the  key  lies  in 
striking the right balance between social policies on the one hand and the drive for economic 
growth and competitiveness on the other.  

Having regard to the wider political process in the field of economic and social policies, some 
contributors  point  out  that  the  Lisbon  Strategy  remains  the  appropriate  platform  for  the 
formulation  and  implementation  of  social  policies.  In  this  context,  other  contributors  argue 
that  the  current  focus  of  the  Lisbon  Strategy  on  growth  and  jobs  is  much  too  narrow  and 
recommend  adding  social  guidelines  to  the  existing  set  of  integrated  guidelines.  Other 
contributors, particularly from Member States as well as from employers' federations, argue 
instead that the current set of procedures in the field of social policies has generally worked 
well and that no new processes or procedures are required. In this context, both sides of the 
social  partners  on  European  level  underline  the  importance  of  the  social  dialogue  which,  at 
times, could even replace legislation by the European Commission.  

Some remarks on the coverage 

A  large  majority  of  contributors  of  all  categories  directly  or  indirectly  express  strong 
appreciation of the coverage of the consultation documents. Quite a lot of contributions, for 
instance,  confirm  the  strong  link  between  Europe's  future  social  reality  and  further 
development of the Union's Single Market. Other contributors underline the importance of a 
stable macroeconomic framework promoting growth, investment and fiscal sustainability. In 
this  context,  some  contributions  even  call  for  supportive  macroeconomic  policies  as  a 
necessary  pre-condition  for  ensuring  the  well-being  of  European  citizens.  Only  a  very  few 
contributors  specifically  refer  to  areas  such  as,  for  instance,  pensions  as  well  as  disabled, 
housing  and  the  situation  of  the  homeless  which  they  would  have  liked  to  be  addressed  in 
more detail in the consultation documents.  

In  terms  of  process,  one  contribution  underlines  the  appropriateness  of  the  open  method  of 
coordination (OMC) as a suitable means to advance reform in the area of social policies. A 
number of other contributions (including from Member States), however, emphasise the need 
to further improve the OMC. A number of contributions suggest that the forthcoming social 
agenda should also launch a process of reassessment of the current social policy instruments 
in  the  light  of  globalisation  and  other  major  challenges.  Finally,  a  number  of  contributions, 
largely from the NGO sector, stress the need for appropriate funding of social policies. 

Some specific results on the seven key areas for action proposed 

In an effort to present a pragmatic basis for the further discussion, the positions put forward in 
the individual contributions have been grouped according to the seven categories sketched out 

EN 

47 

   EN 

 
in  the  second  consultation  document  (youth,  fulfilling  careers,  longer  and  healthier  lives, 
gender equality, etc.). Among the particularly noteworthy points were the following: 

–  Investing in youth: early intervention is seen as key in addressing youth issues of whatever 
kind so as to avoid the possible emergence of problems of long duration already at an early 
stage. 

–  Investing  in  fulfilling  careers:  concept  of  flexicurity  is  seen  by  many  contributions  as 

central for a new social vision. 

–  Investing  in  longer  and  healthier  lives:  health  is  seen  as  a  factor  influencing  virtually  all 
domains of the social reality of individuals. On the other hand, strong suggestions to take 
into consideration the role of the elderly as an economic factor recognising more strongly 
resources and potential of ageing societies. 

–  Investing  in  active  inclusion  and  non-discrimination:  the  role  of  social  services  as  an 
instrument  of  a  policy  of  cohesion  and  participation  is  seen  as  crucial.  Such  services  are 
seen as possible bridges into society facilitating integration and participation. Further, quite 
a  strong  call  for  a  change  of  perspective  in  the  field  of  social  policies  in  Europe  putting 
families  as  the  constitutive  units  of  society  into  the  centre  of  the  political  discussion 
(thereby extending the current somewhat narrow focus on childcare). 

EN 

48 

   EN 

 
12. 

ANNEX 3: BIBLIOGRAPHY 

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Sustainable Development Strategy, Interim Report to the European Commission 2007 

•  BBC World Service Poll. Widespread unease about economy and globalization, February 

2008 

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•  Brandt  Nicola,  Burniaux  Jean-Marc,  Duval  Romain.  Assessing  the  OECD  Jobs  Strategy: 
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•  Centre for European Policy Studies. China and India: Implications for the EU Economy. 

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•  Centre for European Policy Studies. Is social Europe fit for globalisation? A study of the 

social impact of globalisation, March 2008 

•  Danish  Technological  Institute.  Restructuring  in  Europe.  The  Anticipation  of  Negative 

Labour Market Effects, October 2006 

•  Economist  Intelligence  Agency.  Foresight  2020:  Economic,  Industry  and  Corporate 

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•  European  Commission.  Communication  from 

employment.  Anticipating  and  accompanying  restructuring 
employment: the role of the European Union, March 2005 

the  Commission.  Restructuring  and 
to  develop 
in  order 

•  European Commission. Communication from the Commission to the European Council. A 

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society, September 2007 

EN 

49 

   EN 

 
•  European Commission. Communication from the Commission to the European Parliament, 
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•  European  Commission.  Communication  from  the  Commission  to  the  Spring  European 
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•  European  Commission.  Communication  from  the  Commission  to  the  Council,  the 
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•  European  Commission.  Communication  from  the  Commission  to  the  Council,  the 
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•  European  Commission,  Bureau  of  European  Policy  Advisers.  China,  the  EU  and  the 

world: growing in harmony?, July 2006 

•  European  Commission,  Bureau  of  European  Policy  Advisers.  Migration  and  public 

perception, October 2006 

•  European  Commission,  Directorate-General  for  Economic  and  Financial  Affairs.  The 
European  Economy,  No  4/2006,  The  long-term  sustainability  of  public  finances  in  the 
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•  European  Commission,  Directorate-General  for  Economic  and  Financial  Affairs.  The 

European Economy: 2007 review: Moving Europe's productivity frontier 

•  European  Commission,  Directorate-General  for  Economic  and  Financial  Affairs. 
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•  European Commission, Directorate-General for Economic and Financial Affairs. EMU @ 

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•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
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in-depth study of specific items, May 2004 

EN 

50 

   EN 

 
•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal.  The 

evolution of labour law (1992-2003), vol 1: General Report, June 2005 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 

Opportunities. Employment in Europe, issues 2004-2007 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities. Joint Report on Social Protection and Social Inclusion 2007, March 2007 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities.  A  study  on  policies  for  involving  the  Social  Partners  in  the  integration  of 
people at a disadvantages in the Labour Market, January 2006 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities.  Various  studies  on  the  policy  implications  of  demographic  change  in 
national and Community policies. Lot.1: Implications of demographic change in enlarged 
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2006 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 

Opportunities. Business demography and employment study, December 2006 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities.  Ageing  and  employment:  Identification  of  good  practice  to  increase  job 
opportunities and maintain older workers in employment, March 2006 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities. Health and quality in work. Impact of macroeconomic factors on mortality 
in Europe and the OECD, July 2006 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 

Opportunities. Study on the Impact of Working Time, February 2007 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
Opportunities.  Qualitative  Study  on  the  European  Employment  Strategy.  Analysis  of  the 
Attitudes of the Main Actors in Employment Policy in 28 European Countries, July 2007 

•  European  Commission,  Directorate-General  Employment,  Social  Affairs  and  Equal 
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