EUROPEAN POLICY UNIT
BADIA FIESOLANA, SAN DO M ENICO ( F I )
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T h i s p a p e r is d i s t r i b u t e d f or d i s c u s s i o n and c r i t i c a l c o m m e n t and s h o u l d not be
q u o t e d or c i t e d w i t h o u t p r i o r p e r m i s s i o n of t he a u t h o r (c) O d i l e Q u i n t i n P r i n t e d in I t a l y in M a r c h 1987 E u r o p e a n U n i v e r s i t y I n s t i t u t e Badi a Fi e s o l a n a 1 - 5 0 0 1 6 S a n D o m e n i c o (Fi) I t a l y
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T h e E u r o p e a n P o l i c y U n i t at t h e E u r o p e a n U n i v e r s i t y I n s t i t u t e w a s c r é a t. e d t o f u r t h e r t. h r e e m a i n g o a l s . F i r s t , t o c o n t i n u e t h e d e v e l o p m e n t o f t h e E u r o p e a n U n i v e r s i t y I n s t i t u t e a s a f o r u m f o r c r i t i c a 1 d i s c u s s i o n o f k e y i t e m s o n t: h e C o m m u n i t y a g e n (i a . 5 e c o n d , t o e n h a n c e t h e d o c u m e n t a t: i o n a v a i I a b I e t o s c h o l a r s o f E u r o p e a n a f f a i r s . T h i r d , t o s p o n s o r i n d i v i d u a l r e s e a r c h p r o j e c t s o n t o p i c s o f c u r r e n t i n t e r e s t t o t h e E u r o p e a n C o m m u n i t i e s . D o t h a s i n - d e p t h b a c k g r o u n d s t u d i e s a n d a s p o 1 i c y a n a l y s e s i n t h e i r o w n r i g h t , t h e s e p r o j e c t s s h o u l d p r o v e v a l u a b l e t o C o m m u n i t y p o l i c y ••• m a k i n g . F u r t h e r i n f o r m a t i o n a b o u t t h e w o r k o f 111 e E u r o p e a n P o l i c y U n i t c a n b e o b t a i n e (i f r o m t h e D i r e c t o r , a t t h e E u r o p e a n 1.1 n i v e r s i t y I n s t i t u t e i n F I o r e n c e . M r s O d i l e Q u i n t i n , H e a d o f t h e E E C B u r e a u f o r q u e s t i o n s c o n c e r n i n g e m p l o y m e n t a n d e q u a 1 t r e a t m e n t o f w o m e n , p r e s e n t s i n t h i s p a p e r t h e n e w s t r a t e g i e s o f t h e c o m m u n i t y i n s t i t u t i o n s i n t h i s f i e l d . T h e p a p e r d e s c r i b e s h o w , i n s p i t e o f a v e r y l i m i t e d l e g a l b a s i s , t h e C o m m u n i t y h a s b e e n a b l e t o e x p a n d i n a n a r e a w I n c h h a s b e c orne o n e o f t h e m o s t a d v a n c e d p a r t s o f t h e C o m m u n i t y s o c i a I p o 1 i c y .
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N ew 5 1 ra t e g i e s in the EEC for Equal O p p o r t u n i t i e s in E m p l o y m e n t for Men and W o m e n
by 0 d i 1 e Q u i n t i n
I s h o u l d like to set o ut as c l e a r l y as p o s s i b l e the C o m m u n i t y p o l i c y on equal o p p o r t u n i t i e s for w o m e n . I m u s t s t a r t by n o t i n g t h a t s o m e p e o p l e are s o m e t i m e s r a t h e r s u r p r i s e d t hat t h e r e is a C o m m u n i t y p o l i c y f o r women, b e c a u s e the T r e a t y of R o m e i t s e l f m a k e s no c l e a r m e n t i o n of w o m e n in the s e n s e t h a t the T r e a t y a p p l i e s to b o t h m en and w o m e n w i t h o u t d i s t i n c t i o n . The o n l y a r t i c l e of t he T r e a t y of R ome w h i c h d i r e c t l y c o n c e r n s e q u a l i t y is the f a m o u s A r t i c l e 119, w h i c h p r o v i d e s for equal pay f or m en and w omen. I n t e r e s t i n g l y e nough, t h i s w as not d r a f t e d f or s o cial p u r p o s e s , but b e c a u s e of the e c o n o m i c s i t u a t i o n of one M e m b e r S t a t e of t he C o m m u n i t y , France, w h i c h t h o u g h t t h a t it w as b e t t e r t h a n o t h e r s in the f i e l d of equal pay and f e a r e d p o s s i b l e e f f e c t s on c o m p e t i t i o n . It is i n t e r e s t i n g to s ee how an a r t i c l e d r a f t e d in s u c h c i r c u m s t a n c e s has g i u e n r i s e to a w i d e - r a n g i n g p o l i c y w h i c h I am s u r e t he f o u n d e r s of t he T r e a t y w o u l d n e v e r h ave i m a g i n e d .
T he f i r s t a c t i v i t i e s of the C o m m u n i t y in the a rea of equal o p p o r t u n i t i e s for w o m e n w e r e c o n c e n t r a t e d on legal i ssues, t h a t is on D i r e c t i v e s . T h r e e D i r e c t i v e s h a v e b e e n p a ssed. In 1975,
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t he D i r e c t i v e on equal pay w as a d o p t e d to c l a r i f y A r t i c l e 119. It is w o r t h n o t i n g t hat t h i s was t he f i r s t D i r e c t i v e in the area of s o c i a l policy. In 197i5 came a m u c h m o r e f a r - r e a c h i n g p r o v i s i o n , the D i r e c t i v e on equal t r e a t m e n t in a c c e s s to e m p l o y m e n t , w o r k i n g c o n d i t i o n s and v o c a t i o n a l t r a i n i n g and p r o m o t i o n , w h i c h lays d own the b a s i s f or a p o l i c y of d e s e g r e g a t i o n of the l a b o u r ma r k e t . T he t h i r d D i r e c t i v e was p a s s e d in 1978 and c o n c e r n s equal t r e a t m e n t in s o - c a l l e d s t a t u t o r y s o cial s e c u r i t y s c h e m e s , i.e. s c h e m e s w h i c h are u s u a l l y laid down by social s e c u r i t y l e g i s l a t i o n , in c o n t r a s t w i t h so- c a l l e d o c c u p a t i o n a l s ocial s e c u r i t y s c h e m e s .
T h e s e t h r e e D i r e c t i v e s p r o v i d e for a b asis for n o n d i s c r i m i n a t i o n for w o m e n at work. T he f i r s t two h a v e b e e n in f o r c e for a n u m b e r of y e ars, the t h i r d o n l y e n t e r e d into f o r c e in 1985. T h i s s i x - y e a r t r a n s i t i o n p e r i o d was due to the f a c t t h a t s o c i a l s e c u r i t y - a r a t h e r c o m p l i c a t e d f i e l d in i t s e l f - was also q u i t e s e v e r e l y a f f e c t e d by t he e c o n o m i c s i t u a t i o n , w h i c h m a d e t h i n g s still m o r e c o m p l e x and g ave r i s e to a v a r i e t y of legal p r o b l e m s f or its i m p l e m e n t a t i o n .
T h e s e D i r e c t i v e s h a v e b een i m p l e m e n t e d by na t i o n a l l e g i s l a t i o n in all t he M e m b e r St a t e s . F r o m a legal v i e w p o i n t I w o u l d s ay t hat in ge n e r a l t h e y have b e e n m o r e or less c o r r e c t l y a p p l i e d , t h o u g h t h e r e are still s o m e g aps and e v e n t h o u g h in s o m e
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c a s e s t he C o m m i s s i o n had to b r i n g M e m b e r S t a t e s to the C o u r t of ■Justice. C a s e s h a v e b e e n b r o u g h t a g a i n s t t h r e e M e m b e r S t a t e s on equal pay and agai nst all M e m b e r S t a t e s as r e g a r d s equal t r e a t m e n t , but uihat w as at s t a k e w e r e d i f f e r e n c e s in the i n t e r p r e t a t i o n of the D i r e c t i v e s r a t h e r t h a n s e r i o u s d i s a g r e e m e n t s on s u b s t a n t i v e issues. I will c o m e b a c k to t h i s p o i n t later.
T h e C o m m i s s i o n v e r y q u i c k l y r e c o g n i z e d t h a t legal a c t i o n in i t s e l f was n e c e s s a r y , but not s u f f i c i e n t . L e g i s l a t i o n has not m u c h s e n s e - e ven if y o u h a v e the best l e g i s l a t i o n in t he w o r l d - w h e n de f a <::to i n e q u a l i t i e s r e m a i n . As a r e s u l t , t he C o m m i s s i o n t r i e d to e x p a n d its p o l i c y f r o m t he "equal t r e a t m e n t " c o n c e p t to the " equal o p p o r t u n i t i e s " c o n c e p t , i.e. f r o m e q u a l i t y in law to e q u a l i t y in p r a c t i c e . T h a t t r a n s f o r m a t i o n w a s at t he c e n t r e of the new C o m m u n i t y a c t i o n p r o g r a m m e , p r o p o s e d to the C o u n c i l of M i n i s t e r s by the C o m m i s s i o n at t he end of 1981. T h i s was a t h r e e - y e a r p r o g r a m m e , s c h e d u l e d to end in 1 985, i n 1 i a i s o n w i t h the end of the U.M. D e c a d e for W omen, w h i c h was e n d e d by the N a i r o b i c o n f e r e n c e in J u l y 1985. Both a c t i o n p r o g r a m m e s h a v e two f u n d a m e n t a l bases: f i r s t l y to r e i n f o r c e and e x p a n d e q u a l i t y in law, and s e c o n d l y to s t a r t to p r o m o t e equal o p p o r t u n i t i e s in p r a c t i c e , in p a r t i c u l a r to d e v e l o p w h a t is c a l l e d p o s i t i v e ac t i o n . T h i s l a t t e r a s p e c t is of c o u r s e m o r e i n n o v a t i v e ; it has g i v e n r i s e to m o r e e x p e c t a t i o n s f r o m i n t e r e s t e d p a r t i e s . I will
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try to d e s c r i b e t h e s e two l i m b s of the C o m m u n i t y a c t i o n p r o g r a m m e .
On t he legal side, the C o m m i s s i o n has t r i e d to r e i n f o r c e the c o r r e c t i m p l e m e n t a t i o n of the e x i s t i n g C o m m u n i t y l e g i s l a t i o n , and t h i s in two ways. First, the C o m m i s s i o n as G u a r d i a n of the T r e a t y b r i n g s any M e m b e r S t a t e w h i c h d oes not c o r r e c t l y a p p l y C o m m u n i t y l e g i s l a t i o n b e f o r e the C o u r t of J u s t i c e . H o w e v e r , C o m m i s s i o n o f f i c i a l s o b v i o u s l y c a n n o t k now e v e r y t h i n g . All t h e y have is the nat i o n a l l e g i s l a t i o n s and i n f o r m a t i o n p r o v i d e d by the M e m b e r S t a t e s , w h i c h is a r a t h e r n a r r o w w a y of g e t t i n g c o r r e c t i n f o r m a t i o n . The C o m m i s s i o n t h e r e f o r e t h o u g h t t hat it w o u l d be b e t t e r to have a g r o u p of i n d e p e n d e n t e x p e r t s w h i c h w o u l d p r o v i d e it w i t h i n f o r m a t i o n on w h a t h a p p e n s not o n l y in the f i e l d of l e g i s l a t i o n , but also in c o l l e c t i v e a g r e e m e n t s and in p r a c t i c e . O t h e r w i s e it w o u l d be v e r y d i f f i c u l t to r e v i e w e v e r y c o l l e c t i v e a g r e e m e n t in e v e r y M e m b e r S t a t e to s ee w h e t h e r or not t h e r e is not any d i s c r i m i n a t o r y p r o v i s i o n , or to h a v e a c l e a r i m a g e of w h a t t he p r a c t i c e a c t u a l l y is.
T h i s e x p e r t g r o u p is c o m p o s e d of b o t h l a w y e r s , m e m b e r s of t r a d e - u n i o n s and e m p l o y e r s 'a s s o c i a t i o n s and i n d e p e n d e n t e xperts. The m e m b e r s of t he g r o u p h ave been a s k e d to to c o n c e n t r a t e t h e i r w o r k in p a r t i c u l a r on the r a t h e r d i f f i c u l t c o n c e p t of i n d i r e c t d i s c r i m i n a t i o n . A l t h o u g h i n d i r e c t d i s c r i m i n a t i o n is p r o h i b i t e d
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in all t h r e e D i r e c t i v e s , it w as a s s u m e d t h a t it was g o i n g to d e v e l o p m u c h m o r e t h a n d i r e c t d i s c r i m i n a t i o n . I w o u l d s a y c h a t in m o s t M e m b e r S t a t e s t h e r e is now v e r y l i t t l e d i r e c t d i s c r i m i n a t i o n in the s e n s e of formal l i m i t a t i o n s on a c c e s s to j o b s f or w o m e n , but i n d i r e c t d i s c r i m i n a t i o n is g r o w i n g , in p a r t i c u l a r in e c o n o m i c c i r c u m s t a n c e s . As a m a t t e r of fact, it is v e r y d i f f i c u l t to d e f i n e w h a t i n d i r e c t d i s c r i m i n a t i o n is. The C o m m i s s i o n has t r i e d to d e f i n e it in a n s w e r to a p a r l i a m e n t a r y w r i t t e n q u e s t i o n by s a y i n g t h a t it is s o m e t h i n g w h i c h is n e u t r a l l y d e s c r i b e d , but w h i c h has in f a c t an a d v e r s e e f f e c t on one c a t e g o r y of p eople, b a s e d on sex.
If for i n s t a n c e you s ay t hat e v e r y b o d y can be a p o l i c e m a n but t h a t a p p l i c a n t s h a v e to be o ne m e t r e s i x t y - s e v e n m i n i m u m , y ou will not h a v e m a n y w omen. T h a t is ty p i c a l i n d i r e c t d i s c r i m i n a t i o n . But t h e r e are i n d i r e c t d i s c r i m i n a t i o n s w h i c h are m u c h m o r e h i d d e n t h a n that, like all the d i s c r i m i n a t i o n s w h i c h are l i n k e d to w h a t we call t he " h e a d - o f - h o u s e h o l d " c o n c e p t . T h i s a p p e a r s c l e a r l y in B e l g i u m . B e l g i u m is one of the c o u n t r i e s of the C o m m u n i t y w h e r e t he u n e m p l o y m e n t r a t e is t he h i g h e s t , it a lso has a s o c i a l s e c u r i t y s y s t e m w h i c h is q u i t e c o m p r e h e n s i v e , in p a r t i c u l a r as far as u n e m p l o y m e n t b e n e f i t s are c o n c e r n e d . In o r d e r to r e d u c e it, it w as d e c i d e d to g ive p r i o r i t y to h e a d s of h o u s e h o l d f or r e c e i v i n g u n e m p l o y m e n t b e n e f i t s . Is it or is it not d i s c r i m i n a t o r y ? T h e o r e t i c a l l y , a n y b o d y , m a n or w oman, can he
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a h e a d of h o u s e h o l d . H o w e v e r , if y ou look at the s t a t i s t i c s , y ou will see that 9 55 of h e a d s of h o u s e h o l d s are men, w h i c h m e a n s t h a t w o m e n are the o n e s who are e x c l u d e d f r o m u n e m p l o y m e n t b e n e f i t s . Is it or is it not i n d i r e c t d i s c r i m i n a t i o n ? The C o m m i s s i o n has had a lot of d i s c u s s i o n a b o u t it. It a lso had s o m e i deas d e r i v e d f r o m the J e n k i n s j u d g e m e n t of the E u r o p e a n C o u r t of J u s t i c e of 31 M a r c h 1981 on equal pay, w h i c h s a i d t hat w h e n a p r o v i s i o n has a m o r e n e g a t i v e e f f e c t on o ne c a t e g o r y t h a n ano t h e r , it c o n s t i t u t e s i n d i r e c t d i s c r i m i n a t i o n u n l e s s t h e r e are j u s t i f i a b l e r e a s o n s for it. T h i s case c o n c e r n e d a d i f f e r e n c e in pay b e t w e e n p a r t - t i m e w o r k e r s and f u l l - t i m e w o r k e r s , but it is q u i t e an i n t e r e s t i n g j u d g e m e n t b e c a u s e it r e q u i r e s us to e x a m i n e what is or w h a t is not j u s t i f i a b l e . Of c o u r s e t h i s t y p e of p r o b l e m is b o u n d to a r i s e in a p e r i o d of e c o n o m i c d i f f i c u l t i e s . The g r o u p of e x p e r t s is t h e r e f o r e c o n c e n t r a t i n g on i n d i r e c t d i s c r i m i n a t i o n and has f o u n d a c o n s i d e r a b l e amount, b oth on equal pay i s s u e s and on equal t r e a t m e n t issues, in e m p l o y m e n t as well as in s o cial s e c u r i t y .
T he s e c o n d t h i n g t h a t t he C o m m i s s i o n did in o r d e r to a c h i e v e a c o r r e c t i m p l e m e n t a t i o n of C o m m u n i t y l e g i s l a t i o n w as to i m p r o v e legal r e d r e s s . O ne m a j o r c o n s e q u e n c e of the D i r e c t i v e s has b een to p r o v i d e legal r e d r e s s f or b o t h men and w o m e n who t h i n k t h a t t h e y are d i s c r i m i n a t e d ag a i n s t . It has b e e n noted, h o w e v e r , t h a t t h i s r e m e d y has not b een u sed v e r y much, e s p e c i a l l y
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by w o m e n , f or a n u m b e r of r e a s o n s like l ack of i n f o r m a t i o n and u n c e r t a i n e c o n o m i c c i r c u m s t a n c e s . It a l s o a p p e a r e d t h a t legal s t r u c t u r e s in M e m b e r S t a t e s did not a l w a y s f a v o u r its d e v e l o p m e n t . The o n l y C o m m u n i t y c o u n t r y w h i c h has d e v e l o p e d s u c h legal r e d r e s s is t he U n i t e d K i n g d o m . T h i s c e r t a i n l y has to do w i t h t he f a c t t h a t t he U n i t e d K i n g d o m is a c o u n t r y w h e r e legal r e d r e s s is w i d e l y a v a i 1 a b 1 e ( what w ould be c a l l e d in F r e n c h un E t a t d e d r o i t ). But it is a l s o t he o nly c o u n t r y w h e r e t h e r e is a b ody r e s p o n s i b l e f or p r o m o t i n g legal r e d r e s s , w i t h a b u d g e t for t h i s p u r p o s e . T h a t b ody is the Equal O p p o r t u n i t i e s C o m m i s s i o n , w h o s e a c t i v i t y in t h i s area is q u i t e s i g n i f i c a n t . T he C o m m i s s i o n has m a d e a c o m p a r a t i v e a n a l y s i s of the s i t u a t i o n in the M e m b e r S t a t e s to s e e k a d e q u a t e w a y s to p r o m o t e b e t t e r use of t h i s legal r e d r e s s - and t h e r e b y to a c h i e v e a b e t t e r i m p l e m e n t a t i o n of the D i r e c t i v e s .
The C o m m i s s i o n a lso t r i e d to e x p a n d C o m m u n i t y l e g i s l a t i o n w h e r e it felt it was n e c e s s a r y . First, it h as p r o p o s e d t h r e e new D i r e c t i v e s in t: h e a r e a of equal o p p o r t u n i t i e s s t r i c t o s e n s u . T h e f i r s t is i n t e n d e d to a p p l y equal t r e a t m e n t to m e n and w o m e n in s e l f - e m p l o y e d o c c u p a t i o n s i n c l u d i n g a g r i c u l t u r e , for it w as c l e a r that, a l t h o u g h the D i r e c t i v e s a p p l y to t h e s e p e o p l e in p r i n c i p l e , m o s t w o m e n w o r k i n g in t h e s e a r e a s have no p r o f e s s i o n a l s t a t u s , no s a l a r y , no s ocial s e c u r i t y r i g h t s . U e r y o f t e n t h e y do not e v e n h ave p r o t e c t i o n of p r e g n a n c y and m o t h e r h o o d nor e q u a l i t y in
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p r o f e s s i o n a l r e p r e s e n t a t i o n . The new D i r e c t i v e t h e r e f o r e t r i e d to g ive t h e s e w o m e n s o m e r i g h t s l i n k e d to t h e i r p r o f e s s i o n a l a c t i v i t y in all t h e s e areas, for it was t h o u g h t t h a t it was not a p p r o p r i a t e to g ive t h e m a real p r o f e s s i o n a l s t a t u s .
T he s e c o n d new d r a f t D i r e c t i v e is on p a r e n t a l l e a v e and l e a v e for f a m i l y r e a s o n s . P a r e n t a l l e a v e is g i v e n to b oth p a r e n t s a f t e r the end of m a t e r n i t y leave, to t a k e care of t h e i r c h i l d f or a c e r t a i n p e r i o d of time. It is a p r o v i s i o n w h i c h is i n c r e a s i n g l y a v a i l a b l e in C o m m u n i t y c o u n t r i e s . T h e r e are now o n l y t h r e e c o u n t r i e s of t he C o m m u n i t y w h i c h do not h ave pa r e n t a l leave: t he U n i t e d K i n g d o m , t he N e t h e r l a n d s , and I r e l a n d . The o t h e r s h ave p r o v i s i o n s in f o r c e or in p r e p a r a t i o n . T h i s r i g h t was g r a n t e d to b oth p a r e n t s on an equal basis, b e c a u s e in s ome c o u n t r i e s it is a v a i l a b l e f o r the m o t h e r only, w h i c h may h ave a n e g a t i v e i m p a c t on w o m e n ' s e m p l o y m e n t and w h i c h d oes not help to p r o m o t e a b e t t e r s h a r e of o c c u p a t i o n a l and f a m i l y r e s p o n s i b i l i t i e s b e t w e e n t he f a t h e r and the mo t h e r . The s e c o n d part of the D i r e c t i v e a l l o w s a m i n i m u m n u m b e r of days of l e a v e for f a m i l y r e a s o n s (e.g. w h e n a c h i l d is s e v e r e l y s i c k or w h e n a m e m b e r of the f a m i l y dies, etc.). T he m a j o r p r o b l e m the C o m m i s s i o n had to f a c e w as to d e c i d e w h e t h e r or not t h i s l e a v e s h o u l d be f i n a n c e d . T he s i t u a t i o n v a r i e s g r e a t l y in t his r e s p e c t in all M e m b e r St a t e s . The C o m m i s s i o n f i n a l l y d e c i d e d t h a t in the p r e s e n t e c o n o m i c c i r c u m s t a n c e s it w o u l d be u n w i s e to r e q u i r e
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M e m b e r S t a t e s to h ave p a i d leave, but it n e v e r t h e l e s s r e c o m m e n d e d M e m b e r S t a t e s to p r o v i d e for paid l e a v e in the long term. T his w o u l d of c o u r s e p r o m o t e b e t t e r e q u a l i t y b e c a u s e it is p r o b a b l e t h a t not m a n y f a t h e r s will t a k e it if it is not f i n a n c e d .
T he t h i r d d r a f t D i r e c t i v e is on o c c u p a t i o n a l s ocial s e c u r i t y s c h e m e s , and will e x p a n d the p r e s e n t D i r e c t i v e , w h i c h o n l y a p p l i e s to s t a t u t o r y s c h e m e s . It s h o u l d be p o i n t e d out t h a t t h i s D i r e c t i v e on s ocial s e c u r i t y d o e s not c o v e r m a j o r i s s u e s s u c h as r e t i r e m e n t age and s u r v i v o r s ' p e n s i o n s , w h i c h will be p art of a new C o m m u n i t y i n s t r u m e n t , b e c a u s e M e m b e r S t a t e s w a n t e d to h a v e t h i s o ut of the D i r e c t i v e for o b v i o u s e c o n o m i c and f i n a n c i a l r e a s o n s .
T h e s e t h r e e D i r e c t i v e s are c u r r e n t l y b e f o r e of the C o u n c i l , w h i c h w as s h o w e d no real e n t h u s i a s m a b o u t them, or in any e v e n t a b o u t any new D i r e c t i v e s in the s o c i a l area. In t h i s p e r i o d of cr i s i s , not o n l y in the C o m m u n i t y in g e n e r a l , but in p a r t i c u l a r in t he s ocial area, the t e n d e n c y is r a t h e r in f a v o u r of d e - r e g u l a t i o n . S o m e M e m b e r S t a t e s are a g a i n s t any C o m m u n i t y i n t e r f e r e n c e in t h e i r l e g i s l a t i o n and e v e n a g a i n s t any f u r t h e r l e g i s l a t i o n in g e n e r a l , w h a t e v e r its o r i g i n , in the s o cial area. T h e s e M e m b e r S t a t e s are m a i n l y the U n i t e d K i n g d o m and D e n m a r k , w h i c h a lso h a p p e n to be the M e m b e r S t a t e s in w h i c h t he p o l i t i c a l p r o b l e m s g e n e r a t e d by t h e i r p a r t i c i p a t i o n in t h e C o m m u n i t y are
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the m o s t acute. T h e s e S t a t e s are a lso e x t r e m e l y r e l u c t a n t to any kind of e q u a l i t y l e g i s l a t i o n , w h i c h m a k e s C o m m i s s i o n i n i t i a t i v e s in t h i s a rea a c o m p l i c a t e d p o l i t i c a l issue. The C o m m i s s i o n m i g h t p e r h a p s h a v e a b e t t e r c h a n c e for p a r e n t a l l e a v e and social s e c u r i t y if it w e r e not for the o p p o s i t i o n in p r i n c i p l e f r o m the U n i t e d K i n g d o m and D e n m a r k . S u c h a p o l i t i c a l p r o b l e m can o n l y be s e t t l e d at the p o l i t i c a l level, and it is v e r y d i f f i c u l t at the m o m e n t to p r e d i c t how m a t t e r s will en v o l v e .
In a d d i t i o n , it is w o r t h m e n t i o n i n g t wo o t h e r d r a f t D i r e c t i v e s w h i c h are not real e q u a l i t y D i r e c t i v e s , but w h i c h will if t h e y are a d o p t e d ( w h i c h does not s e e m to be l i k e l y ) h ave an i m p a c t on w o m e n ' s e m p l o y m e n t : t he P a r t - T i m e D i r e c t i v e and the T e m p o r a r y W o r k D i r e c t i v e . Both of t h e m are b l o c k e d by the s a m e G o v e r n m e n t s and for the t i m e b e i n g h ave not m u c h c h a n c e of b e i n g a d o p t e d in t h e i r p r e s e n t form.
The C o m m i s s i o n has a lso t a k e n i n i t i a t i v e s in o t h e r areas, t h o u g h not legal i n i t i a t i v e s s t. r i c t o s e n s u . T he f i r s t area is t a x a t i o n , and its e f f e c t on w o m e n ' s e m p l o y m e n t , in p a r t i c u l a r on m a r r i e d w o m e n ' s e m p l o y m e n t . It is q u i t e o b v i o u s that s o m e t a x a t i o n s y s t e m s , e s p e c i a l l y s y s t e m s w h i c h are b a s e d on c u m u l a t i o n of i n c o m e s , are q u i t e n e g a t i v e for w o m e n ' s e m p l o y m e n t , fit t h i s stage, the C o m m i s s i o n has p r e f e r r e d for b o t h p o l i t i c a l and legal r e a s o n s not to l e g i s l a t e in t h i s area, b e c a u s e t a x a t i o n
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as s u c h is not part of C o m m u n i t y c o m p e t e n c e ; t he p r o b l e m c an o n l y be t a c k l e d by v i r t u e of the equal t r e a t m e n t d i m e n s i o n . The C o m m i s s i o n p r o d u c e d a M e m o r a n d u m w h i c h was e s s e n t i a l l y a p o l i t i c a l i n i t i a t i v e , a i m i n g at t r y i n g to i n i t i a t e a d e b a t e at the p o l i t i c a l level b e t w e e n the M e m b e r S t a t e s of t he C o m m u n i t y , to m a k e c o r r e c t i o n s in the tax s y s t e m w i t h the aim of p r o m o t i n g a s e p a r a t e i n c o m e tax s y s t e m . S u c h a s y s t e m a l r e a d y e x i s t s in s o m e M e m b e r S t a t e s of the C o m m u n i t y , in p a r t i c u l a r D e n m a r k and Italy.
P r o g r e s s has b e e n l ess s i g n i f i c a n t in o t h e r areas. T he f i r s t o ne is p r o t e c t i v e l e g i s l a t i o n , i.e. l e g i s l a t i o n c o n c e r n i n g w o r k d one in d i f f i c u l t c o n t i o n s . T h i s t y p e of l e g i s l a t i o n , u s u a l l y i n h e r i t e d f r o m t h e n i n e t e e n t h c e n t u r y , t e n d s to p r o t e c t w o m e n m o r e t h a n men. The m o s t f a m o u s e x a m p l e is the ban on n i g h t w o r k f or w o m e n in s o m e M e m b e r S t a t e s of the C o m m u n i t y . W h e n l i n k e d to the new f o r m s of r e d i s t r i b u t i o n of w o r k i n g time, s u c h l e g i s l a t i o n s o m e t i m e s has a p r o h i b i t o r y e f f e c t on w o m e n ' s e m p l o y m e n t . I am t h i n k i n g f or i n s t a n c e of new t e c h n o l o g i e s , w h e r e t h e r e is now a g r e a t deal of r e o r g a n i z a t i o n of w o r k i n g time, w h i c h i m p l i e s p a r t l y n i g h t work. M o s t w o m e n are e x c l u d e d f r o m t h e s e new jobs, w i t h o b v i o u s n e g a t i v e e f f e c t s on t he g e neral level of f e m a l e e m p l o y m e n t . The C o m m i s s i o n will t h e r e f o r e r e c o m m e n d the r e m o v a l of p r o t e c t i v e l e g i s l a t i o n , on the b a s i s of the equal t r e a t m e n t D i r e c t i v e . T h i s l a t t e r p r o v i s i o n a l r e a d y c o n t a i n s s u c h a r e q u i r e m e n t , not to the e x t e n t t h a t all
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p r o t e c t i o n s h o u l d be s u p p r e s s e d but r a t h e r that in s ome c a s e s p r o t e c t i o n s h o u l d be e x t e n d e d to c o v e r b o t h men and women. T his m i g h t be the case, for e x a m p l e , for n i g h t work.
T he s e c o n d a rea w h e r e the C o m m i s s i o n is t a k i n g a c t i o n is s o cial s e c u r i t y . I m e n t i o n e d t hat m a j o r i s s u e s s u c h as r e t i r e m e n t age and s u r v i v o r s ' p e n s i o n s are not c o v e r e d by t he p r e s e n t C o m m u n i t y l e g i s l a t i o n . The C o m m i s s i o n is now d r a f t i n g a new i n s t r u m e n t w h i c h will c o v e r t h e s e i s s u e s in the s e n s e of g r e a t e r i n d i v i d u a l i z a t i o n of r i g h t s , b e c a u s e it was n o t i c e d t hat m o s t i n d i r e c t d i s c r i m i n a t i o n is l i n k e d to the e x i s t e n c e of w h a t are c a 1 1 e d d e r i v e d r i g h t s - d e r i v e d u s u a l l y f r o m the man.
T he last a r e a is p r o t e c t i o n of p r e g n a n c y and m o t h e r h o o d , w h e r e the C o m m i s s i o n has so far c a r r i e d out a c o m p a r a t i v e a n a l y s i s of the s i t u a t i o n in t he M e m b e r S t a t e s w i t h r e g a r d to b o t h legal and f i n a n c i a l p r o t e c t i o n . It is now e x a m i n i n g w h e t h e r f u r t h e r h a r m o n i z a t i o n is n e c e s s a r y , h a v i n g r e g a r d a lso to t he p a r e n t a l l e a v e D i r e c t i v e .
T he general c o n c l u s i o n to be d r a w n f r o m t h e s e i n i t i a t i v e s is t h a t t he legal w o r k of the C o m m i s s i o n is v e r y m u c h l i n k e d to t he o v e r a l l s i t u a t i o n of t he C o m m u n i t y on g e neral p o l i t i c a l t e r m s and in p a r t i c u l a r in t he s o cial area. The s e c o n d a s p e c t of the a c t i o n p r o g r a m m e w h i c h is r a t h e r m o r e i n n o v a t i v e in C o m m u n i t y
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p r a c t i c e , in p a r t i c u l a r by p o s i t i v e action.
P o s i t i v e a c t i o n is b e t t e r k nown as p o s i t i v e d i s c r i m i n a t i o n or a f f i r m a t i v e a c t i o n in t h e U.S. c o n c e p t i o n of the term. It is u s u a l l y e q u a t e d w i t h r i g i d m e t h o d s a imed at p r o m o t i n g m o r e w o m e n in c e r t a i n areas, for e x a m p l e by u s i n g q u o t a s . The C o m m i s s i o n has t a k e n a m u c h b r o a d e r v i e w of p o s i t i v e ac t i o n , c o v e r i n g any a c t i o n w h i c h has an e f f e c t on p r o m o t i n g e q u a l i t y in p r a c t i c e . T h i s m ay r a n g e from, f or e x a m p l e , i n f o r m a t i o n c a m p a i g n s to r a i s e c o n s c i o u s n e s s , r i g h t a l o n g t he s p e c t r u m to r i g i d a c t i o n s s u c h as q u o t a s . T he r e a s o n for t h i s a t t i t u d e is t w o f o l d : f i r s t l y , it a p p e a r e d t h a t the A m e r i c a n model had not w o r k e d p a r t i c u l a r l y well; s e c o n d l y , E u r o p e a n n a t i o n a l l e g i s l a t i o n is not a d v a n c e d e n o u g h to go v e r y far. In p a r t i c u l a r , t h e r e are c o n s t i t u t i o n a l p r o b l e m s in s o m e M e m b e r S t a t e s w i t h s u c h m e a s u r e s as q u o t a s . An O p i n i o n w a s r e c e n t l y h a n d e d d own in F r a n c e by the s u p r e m e c o n s t i t u t i o n a l b o d y w h i c h s a i d t h a t they w e r e u n c o n s t i t u t i o n a l . T he s a m e r e a s o n i n g a lso a p p l i e s to G e r m a n y and co t h e U n i t e d K i n g d o m . The C o m m i s s i o n t h e r e f o r e o p t e d for m ore f l e x i b l e m e t h o d s , and has t r i e d to p r o m o t e p o s i t i v e a c t i o n in two ways.
H a v i n g n o t e d t h a t p o s i t i v e a c t i o n had b e e n m u c h m o r e e x t e n s i v e in c o u n t r i e s w h e r e l e g i s l a t i o n or f r a m e w o r k p r o v i s i o n s e x i s t e d , s u c h as t he U n i t e d St a t e s , S w e d e n or C anada, t h a n in
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Co mm u n i t y M e m b e r S t a t e s , the C o m m i s s i o n c o n c l u d e d that, e ven if it w e r e not p o s s i b l e to go for a legal i n s t r u m e n t in t h i s area i t w o u l d be a d v i s a b l e to h ave a p o l i t i c a l c o m m i t m e n t f r o m M e m b e r S t a t e s to p r o m o t e an o v e r a l l p o l i c y of p o s i t i v e action. In P r a c t i cal terms, t h i s m e a n t m o v i n g on f r o m t he p r e s e n t " p i l o t " si tuati on of small p o s i t i v e - a c t i o n i n i t i a t i v e s , t o w a r d s the p r o m o t i o n of a c o m p r e h e n s i v e p o l i c y as the o n l y k ind able to have a w i d e s p r e a d e ffect. The i n s t r u m e n t for t h i s q u a l i t a t i v e leap was t he R e c o m m e n d a t i o n on p o s i t i v e a c t i o n a d o p t e d by the Co u n c i l of M i n i s t e h e r 1984. T h o u g h not l e g a l l y b i n d i n g , it e m b o d i e s M e m b e r St a t e s ' p o l i t i c a l c o m m i t m e n t to p r o m o t e its p o l i c i e s . T he R e c o m m e n d a t i o n p r o v i d e s t h a t M e m b e r S t a t e s c o m m i t t h e m s e l v e s to a d o p t a c o m p r e h e n s i v e p o l i c y for p o s i t i v e a c t i o n and to d e v e l o p a f r a m e w o r k to p r o m o t e it. S e c o n d l y , it i d e n t i f i e s t he a r e a s for t he p r o m o t i o n of p o s i t i v e action, r a n g i n g f rom e d u c a t i o n and t r a i n i n g to m o r e r i g i d p o s s i b i l i t i e s . L a s t l y , M e m b e r S t a t e s a g r e e d to p r o v i d e a co n t r o l f o l l o w - u p of the p o l i c y g u i d e l i n e s e m b o d i e d in the R e s o l u t i o n , as it is c o m m o n know! e d g e t h a t w h e n c o m m i t m e n t s are m a d e in t he a b s e n c e of a s y s t e m of c ontrol and f o l l o w - u p , t h e n t h i n g s j ust v a n i s h and di s a p p e a r T h i s R e c o m m e n d a t i o n s h o u l d p r o v i d e the b a s i s for f u t u r e d e v e l o p m e n t of t he C o m m i s s i o n ' s p o s i t i v e a c t i o n policy.
The C o m m i s s i o n also t r i e d to i d e n t i f y t he a r e a s w h e r e the C o m m u n i t y c o u l d s t i m u l a t e and p r o m o t e p o s i t i v e a c t i o n p r o g r a m m e s
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t o g e t h e r w i t h the M e m b e r S t a t e s , s t a r t i n g w i t h e d u c a t i o n . E d u c a t i o n is g e r y m u c h c h a l l e n g e d by s o m e M e m b e r S t a t e s of the C o m m u n i t y as b e i n g o u t s i d e C o m m u n i t y j u r i s d i c t i o n , so t h a t the p o s s i b i l i t y of a c t i o n at C o m m u n i t y leuel is m u c h m ore d i f f i c u l t t h a n in o t h e r areas. N e v e r t h e l e s s , the C o u n c i l of M i n i s t e r s is now d i s c u s s i n g a new a c t i o n p r o g r a m m e on equal o p p o r t u n i t i e s for g i r l s in e d u c a t i o n . T h i s w o u l d c over a w i d e r a n g e of a c t i o n s , f r o m the d e - s t e r e o t y p i n g of m a t e r i a l to s t r u c t u r a l m e a s u r e s to e n c o u r a g e g i r l s to d i v e r s i f y t h e i r v o c a t i o n a l c h o i c e s , p l u s an i n f o r m a t i o n c a m p a i g n , w i t h s o m e s u p p o r t , i n c l u d i n g f i n a n c i a l s u p p o r t , f r o m the C o m m i s s i o n , to p r o m o t e t h e s e ac t i o n s . T he C o m m i s s i o n has c r e a t e d a n e t w o r k of equal o p p o r t u n i t y a d v i s e r s in t he a rea of e d u c a t i o n and t r a i n i n g , and h as a s k e d this n e t w o r k , c o o r d i n a t e d by M a d a m e S u l i e r o t f r o m Fr a n c e , to p r o m o t e s i g n i f i c a n t a c t i o n s in e a c h c o u n t r y of t he C o m m u n i t y in t h i s area and to c r e a t e n e t w o r k s at nat i o n a l level to p r o m o t e t h e s e a c t i o n s . T he r e s u l t s of t h e s e i n i t i a t i v e s , w h i c h h ave now b e e n in o p e r a t i o n for o v e r two y ears, are q u i t e p o s i t i v e for the t i m e being.
One of t he m a n y p r i o r i t i e s of t h e E u r o p e a n Social F u n d is to p r o m o t e d i v e r s i f i c a t i o n of v o c a t i o n a l c h o i c e s for women, both y o u n g w o m e n and a d u l t w omen, and to h e l p t h e m r e - i n t e g r a t e into the l a b o u r m a r k e t f o l l o w i n g a c a r e e r i n t e r r u p t i o n o ver a c e r t a i n p eriod, in p a r t i c u l a r to t a k e care of t h e i r c h i l d r e n . T h i s
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p o s s i b i l i t y has not b e e n w i d e l y u sed by M e m b e r S t a t e s : in 1984, o n l y one and a half p e r c e n t of t he F u n d w a s u s e d for t h e s e e x p e r i m e n t s . The P r e s i d e n t of the C o m m i s s i o n r e c e n t l y d e c l a r e d t hat it s h o u l d he e x p a n d e d and that it s h o u l d b e c o m e a p r i o r i t y in the S ocial F u n d ' s new g u i d e l i n e s .
As r e g a r d s e m p l o y m e n t policy, the s i t u a t i o n is c h a r a c t e r i z e d by the s e g r e g a t i o n of the l a b o u r m a r k e t b e t w e e n men and women: w o m e n are to be f o u n d m a i n l y in l o w - p a i d o c c u p a t i o n s and c o n c e n t r a t e d in c e r t a i n jobs and s e c t o r s . T he aim of the C o m m i s s i o n - w h i c h a lso a p p e a r s in the equal t r e a t m e n t D i r e c t i v e - is to r e d u c e t his s e g r e g a t i o n . In t h i s area, b e s i d e legal p r o v i s i o n s , s o m e t h i n g q u i t e new in EEC p o l i c y has b een a t t e m p t e d : p r o m o t i n g p ilot a c t i o n s d i r e c t l y in s o m e s e c t o r s . A p ilot e x p e r i m e n t was l a u n c h e d in the b a n k i n g s e c t o r w i t h the h elp of se v e r a l b a n k s in the C o m m u n i t y . B a n k i n g w as c h o s e n b e c a u s e it is a s e c t o r w h i c h for t he t i m e b e i n g is not s u f f e r i n g too m u c h f r o m t he c r i s i s and w h i c h still has money. C o n v e r s e l y , b a n k i n g is v e r y m u c h a f f e c t e d by the i n t r o d u c t i o n of new t e c h n o l o g i e s , w h i c h is b o u n d to h ave i m p o r t a n t i m p l i c a t i o n s on w o m e n ' s e m p l o y m e n t , s i n c e m o r e t h a n 4 05 of p e o p l e w o r k i n g in t h i s s e c t o r are w omen. T h i s p ilot a c t i o n has b e e n q u i t e f r u i t f u l . F o u r b a n k s in the C o m m u n i t y a g r e e d to p lay a l e a d i n g r o l e b e f o r e t h i s t y p e of a c t i o n w as e x t e n d e d to o t h e r s . It has b een i n t e r e s t i n g to note
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how the C o m m i s s i o n w a s able to a c h i e v e r e s u l t s by c o l l a b o r a t i n g d i r e c t l y w i t h firms.
T h i s a c h i e v e m e n t is all the m o r e i n t e r e s t i n g g i v e n the c u r r e n t s t a t i c d i s c u s s i o n s w i t h the social p a r t n e r s at C o m m u n i t y level, w h i c h are c o m p l e t e l y b l o c k e d by the e m p l o y e r s ' r e l u c t a n c e for s ocial i n i t i a t i v e s . D i r e c t a r r a n g e m e n t s w i t h p r i v a t e f i r m s a l l o w the C o m m i s s i o n to s t a r t a p o s i t i v e a c t i o n p r o g r a m m e and to r e l y on a k i n d of r i p p l e ef f e c t . T his was e s p e c i a l l y c l e a r in the B e l g i a n case. T h e l e a d i n g B e l g i a n b a n k s t a r t e d a p o s i t i v e a c t i o n p r o g r a m m e , i m m e d i a t e l y f o l l o w e d by t wo o t h e r banks. On t h i s basis, the C o m m i s s i o n t h o u g h t it i n t e r e s t i n g to e x p a n d this t y p e of a c t i o n to the w h o l e i n d u s t r i a l s e c t o r . T h e r e are now p i l o t e x p e r i m e n t s w i t h a m i n i m u m of t h r e e c o m p a n i e s in six M e m b e r S t a t e s of the C o m m u n i t y : U n i t e d K i n g d o m , Fr a n c e , Italy, G e r m a n y , N e t h e r l a n d s , and B e l g i u m . L a r g e c o m p a n i e s in the C o m m u n i t y are q u i t e i n t e r e s t e d and s e e m w i l l i n g to t a k e p a r t in i n i t i a t i v e s w h i c h m ay h ave a g o o d e f f e c t on the p r o m o t i o n of t h i s p o s i t i v e action. P i l o t p r o j e c t h a v e also b e e n s t a r t e d in t he p u b l i c s e c t o r of s o m e M e m b e r S t a t e s , s u c h as t he U n i t e d K i n g d o m , F r a n c e and B e l g i u m , and t he C o m m i s s i o n h o p e s to s o m e e x t e n t to c o o r d i n a t e the C o m m u n i t y a p p r o a c h in t h i s area. I m u s t add t h a t the C o m m i s s i o n i t s e l f has m a d e a c o m m i t m e n t to act in t h i s area; it
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has s t a r t e d a p o s i t i v e a c t i o n p r o g r a m m e , to be i m p l e m e n t e d by an e q u a l i t y c o m m i t t e e c o m p o s e d of r e p r e s e n t a t i v e s f r o m b o t h the a d m i n i s t r a t i o n and the t r a d e unions.
The t h i r d a rea in w h i c h the C o m m i s s i o n has a t t e m p t e d to p r o m o t e d e - s e g r e g a t i o n of the l a b o u r m a r k e t is t he p r o m o t i o n of local i n i t i a t i v e s for w o m e n . One of the m a j o r a r e a s of C o m m u n i t y a c t i o n in the b a t t l e a g a i n s t u n e m p l o y m e n t is t he p r o m o t i o n of local i n i t i a t i v e s , in p a r t i c u l a r c o o p e r a t i v e s , w h i c h can be p a r t i c u l a r l y useful for c o m b a t i n g w o m e n ' s u n e m p l o y m e n t by g i v i n g t h e m m o r e r e s p o n s i b i l i t i e s , o f t e n m o r e f r e e d o m in w o r k i n g time, and b e t t e r s a l a r i e s t h a n in o t h e r areas. T h e s e local i n i t i a t i v e s for w o m e n are i n t e g r a t e d in a s u p p o r t p r o g r a m m e . The C o m m i s s i o n h e l p e d t h e s e i n i t i a t i v e s w i t h f i n a n c i a l gr a n t s ; it also c r e a t e d an e x p e r i m e n t a l n e t w o r k to f a c i l i t a t e t he e x c h a n g e of i n f o r m a t i o n on t h e s e e x p e r i m e n t s . T h i s in my v i e w is r e a l l y the k ind of c o n c r e t e i n i t i a t i v e t h a t t he C o m m u n i t y s h o u l d s u p p o r t , i n s t e a d of g i v i n g m o n e y in all d i r e c t i o n s ; it is b e t t e r to d i r e c t l y s u p p o r t i n i t i a t i v e s w h i c h we k now will g ive j obs to w o m e n and will r a i s e t h e i r level of r e s p o n s i b i l i t i e s . I s h o u l d also add on t h i s i s s u e t h a t t he C o u n c i l of M i n i s t e r s last y e a r a d o p t e d a R e s o l u t i o n w h i c h a g r e e d to t a k e a w h o l e s e r i e s of m e a s u r e s to c o m b a t w o m e n ' s u n e m p l o y m e n t , and r e c o g n i z e d t hat w o m e n ' s u n e m p l o y m e n t is m o r e p e r t u r b i n g than
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m e n ' s u n e m p l o y m e n t and r e q u i r e s s p e c i f i c ac t i o n , in p a r t i c u l a r p o s i t i v e a c tions.
P o s i t i v e a c t i o n i n i t i a t i v e s h a v e also been s t a r t e d in t h r e e o t h e r areas. F i r s t of all as r e g a r d s m i g r a n t w o men, who are d i s c r i m i n a t e d a g a i n s t in t wo ways: as w o m e n and as m i g r a n t s . T h i s is l i n k e d to t h e i r w h o l e social and s t r u c t u r a l c l i m a t e , w h i c h d oes not e n c o u r a g e t h e i r i n t e g r a t i o n i n t o w o r k i n g life. In o r d e r to t a c k l e t h i s c o m p l e x and p o l i t i c a l l y d e l i c a t e p r o b l e m , the C o m m i s s i o n has a n a l y s e d the legal and a d m i n i s t r a t i v e d i s c r i m i n a t i o n w h i c h w o m e n h ave to face; it has a lso r e v i e w e d g o o d e x a m p l e s of a c t i o n s on v o c a t i o n a l t r a i n i n g for w o m e n , w i t h a v i e w to s t i m u l a t i n g i n i t i a t i v e s w h i c h h elp to i n t e g r a t e w o m e n i n t o w o r k i n g life.
T he s e c o n d f i e l d is the w h o l e a rea of p r o m o t i n g a b e t t e r s h a r e of r e s p o n s i b i l i t i e s b e t w e e n men and w o m e n on b o t h f a m i l y and o c c u p a t i o n a l i ssues, w h i c h is f u n d a m e n t a l for the p r o m o t i o n of e q u a l i t y . The P a r e n t a l L e a v e D i r e c t i v e is c l e a r l y l i n k e d to t h i s b e t t e r s h a r i n g of o c c u p a t i o n a l and f a m i l y r e s p o n s i b i l i t i e s . I n i t i a t i v e s on c h i l d - c a r e f a c i l i t i e s and c r e c h e s h ave also b een t aken. A f t e r a s t u d y on t he d e v e l o p m e n t of t h e s e f a c i l i t i e s , t he C o m m i s s i o n c o n c l u d e d t hat in the p r e s e n t e c o n o m i c s i t u a t i o n the t r e n d was r a h e r a g a i n s t the d e v e l o p m e n t of s u c h p r o v i s i o n , e x c e p t in t wo M e m b e r S t a t e s w h i c h h ave g i v e n p r i o r i t y to the d e v e l o p m e n t
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of s u c h f a c i l i t i e s . T h i s c l e a r l y d e m o n s t r a t e s t hat p o l i t i c a l will is s o m e t i m e s s u f f i c i e n t to c o u n t e r a c t u n f a v o u r a b l e c i r c u m s t a n c e s ; a p o i n t w o r t h r e c a l l i n g at t h i s j u n c t u r e . T h e r e now s e e m s to be w i d e d e m a n d for a D i r e c t i v e on t h i s issue. I p e r s o n a l l y feel t h a t t h i s w o u l d be both t e c h n i c a l l y d i f f i c u l t and p o l i t i c a l l y i n a d v i s a b l e , but the C o m m i s s i o n m i g h t well be a ble to d e v e l o p a k i n d of n e t w o r k of p e o p l e r e s p o n s i b l e for t h e s e k i n d s of f a c i l i t i e s , in o r d e r to e n c o u r a g e M e m b e r S t a t e s not to m ake t h e i r b u d g e t c uts d i r e c t l y in t h i s area, but to c o n s i d e r a r e d i s t r i b u t i o n of t h e i r e c o n o m i c a u s t e r i t y m e a s u r e s .
ft s r e g a r d s t he p r o m o t i o n of w o m e n in t he d e c i s i o n - m a k i n g p r o c e s s , the s t a t i s t i c s are q u i t e clear: t h e r e are v e r y few w o m e n at the top l evels, in p a r t i c u l a r at t he p o l i t i c a l level. The C o m m i s s i o n c a r r i e d out an i n t e r e s t i n g s o c i o l o g i c a l s t u d y on four c o u n t r i e s of the C o m m u n i t y , w h i c h r e a c h e d t he s a m e c o n c l u s i o n . M o r e to the point, t h i s s t u d y i n d i c a t e d w a y s in w h i c h p o s i t i v e a c t i o n may be t a k e n to i m p r o v e t h i s s i t u a t i o n . In s ome M e m b e r St a t e s , for e x a m p l e , c e r t a i n p a r t i e s h a v e q u o t a s for women. R e c r u i t m e n t m e t h o d s are m u c h m o r e f a v o u r a b l e to w o m e n in s o m e p o l i t i c a l p a r t i e s t h a n in ot h e r s . T h i s k i n d of m e a s u r e c o u l d c e r t a i n l y be t a k e n as an i n s p i r a t i o n .
L a s t but not l e a s t c o m e s the f i e l d of i n f o r m a t i o n and a c t i o n to r a i s e p u b l i c a w a r e n e s s of t h e s e issues. B e f o r e any
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a c t i o n is taken, be it legal or p o s i t i v e , t he g r o u n d has to be p r e p a r e d , b e c a u s e if s o c i e t y is not r e a d y to r e s p o n d to t h e s e i n i t i a t i v e s , t h e n t h e y will s i m p l y h ave no p r a t i c a l i m p a c t . The C o m m i s s i o n t h e r e f o r e m a k e s g r e a t p r o v i s
b r o c h u r e s and t r i e s to i n f o r m a m a x i m u m of p e o p l e of its a c t i v i t i e s in v a r i o u s f i e l d s . The R e v i e w " W o m e n of E u r o p e " , p u b l i s h e d by the D i r e c t o r a t e - G e n e r a l for I n f o r m a t i o n , t r i e s to p r o m o t e s o m e of t h e s e ideas. M o r e and more, t he C o m m i s s i o n also t r i e s to r e a c h the p e o p l e w h o r e a l l y h a v e d e c i s i o n - m a k i n g power. The m a i n t a r g e t s f or t h e t i m e b e i n g are l a w y e r s , f or it has been n o t i c e d t h a t t he e q u a l i t y D i r e c t i v e s are a p p l i e d in v e r y d i f f e r e n t w a y s by n a t i o n a l c a s e - l a w . S o m e e x t r e m e l y i n t e r e s t i n g c a s e s s h o w that in t h i s a rea e m o t i o n a l and s t r u c t u r a l i d e a s can h a v e a n e g a t i v e or p o s i t i v e e f f e c t on the final d e c i s i o n . It m i g h t t h e r e f o r e be useful to i nform, and to d i s c u s s w i t h l a w y e r s t h e c o r r e c t i n t e r p r e t a t i o n of b oth C o m m u n i t y and n a t i o n a l l e g i s l a t i o n in the a rea of e q u a l i t y .
T h e s e c o n d t a r g e t c a t e g o r y is the m e d i a . fit t he m o m e n t , t he E E C ’s i n f o r m a t i o n p o l i c y is q u i t e lim i t e d , b o t h for p o l i t i c a l r e a s o n s - the M e m b e r S t a t e s do not w ant to be o v e r w h e l m e d by C o m m u n i t y p u b l i c i t y - and for b u d g e t a r y r e a s o n s . C o m m u n i t y a c c e s s to t e l e v i s i o n in p a r t i c u l a r is m u c h m o r e l i m i t e d t h a n that of n a t i o n a l g o v e r n m e n t s . It w as t h e r e f o r e d e c i d e d to i n t e n s i f y a c t i o n in t h i s area by h o l d i n g s e m i n a r s w i t h t he t e l e v i s i o n
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c o m p a n i e s on i s s u e s s u c h as wo m e n s ' e m p l o y m e n t in T U o r g a n i z a t i o n s (how m a n y w o m e n are w o r k i n g and w h e r e ) or w o mens' i mage in T U p r o g r a m m e s , and in p a r t i c u l a r in TU news, se r i e s , and a d v e r t i s i n g . D i s c u s s i o n s w i t h s e n i o r TU e x e c u t i v e s will also t a k e p l a c e to s ee how t he e m p l o y m e n t and t he i m a g e of w o m e n in t e l e v i s i o n may he i m p r o v e d , for it is c l e a r t h a t t his is an area in w h i c h i n f o r m a t i o n and s ocial s t r u c t u r e s h a v e a c h a n c e to be c h anged.
The C o m m i s s i o n is a lso p u r s u i n g a n o t h e r s t r a t e g y , w h i c h c o n s i s t s in i n t e g r a t i n g the w o m e n ' s d i m e n s i o n into general p o l i c i e s of the C o m m u n i t y . W o m e n ' s p o l i c y m u s t not be a ghetto, but o u g h t to be i n t e g r a t e d i nto a m o r e g eneral policy, arid p a r t i c u l a r l y in social po l i c y . The C o m m i s s i o n has b e e n q u i t e s u c c e s s f u l in t h i s r e s p e c t . In most of the i n i t i a t i v e s t hat t he C o m m u n i t y has r e c e n t l y t a k e n in the s ocial area, the w o m e n ' s d i m e n s i o n has b een t a k e n i nto c o n s i d e r a t i o n . I w o u l d m e n t i o n , for exa m p l e , t he r e c e n t C o m m u n i c a t i o n on m i g r a t i o n , w h e r e o ne of t he m a i n a s p e c t s for C o m m u n i t y c o o p e r a t i o n was s t a t e d to be the w o m a n ' s b e t t e r i n t e g r a t i o n in s o cial life. I s h o u l d also m e n t i o n y o u t h p o licy, w h i c h has b e c o m e o ne of the h i g h e s t p r i o r i t i e s of s o cial policy; h ere too the n e c e s s i t y of p o s i t i v e a c t i o n for y o u n g w o m e n and y o u n g g i r l s has been one of t he e l e m e n t s of the p o l i c y r e c o m m e n d e d . As r e g a r d s t he s o cial i m p a c t of new t e c h n o l o g i e s , it has b een r e c o g n i z e d t h a t w o m e n are m o r e a f f e c t e d
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t h a n men by t h e i r i n t r o d u c t i o n , and u s u a l l y l ess t e c h n i c a l l y p r e p a r e d f o r the new j obs l i n k e d w i t h them. In t h i s c o n t e x t , it is also w o r t h m e n t i o n i n g t he local i n i t i a t i v e s p o l i c y d e s c r i b e d e a r l i e r . W i t h all t h e s e m e a s u r e s , the C o m m i s s i o n has t r i e d to e x p a n d b e y o n d the e q u a l i t y s p h e r e s t: r 1 c t. o s e ri s u : t h i s s e e m s to be a b e t t e r l o n g - t e r m a p p r o a c h t o w a r d s i n t e g r a t i n g b o t h m e n and w o m e n i n t o g e neral s o cial policy.
A n o t h e r m a t t e r w h i c h d e s e r v e s our a t t e n t i o n is the w a y the C o m m i s s i o n c o o p e r a t e s , or s e e k s to e s t a b l i s h a d i a l o g u e , w i t h i n t e r e s t e d gr o u p s . It is t r u e t h a t in s u c h a d e l i c a t e and c o m p l i c a t e d a rea b u r e a u c r a c y c a n n o t be e x p e c t e d to do e v e r y t h i n g by i t self. W o m e n ' s a s s o c i a t i o n s and w o m e n ' s g r o u p s c e r t a i n l y r e p r e s e n t i n t e r l o c u t o r s w i t h w h i c h the C o m m i s s i o n p u r s u e s useful d i a l o g u e . But the C o m m i s s i o n has also t r i e d to e x p a n d its c o o p e r a t i o n w i t h i n t e r e s t e d g r o u p s by the c r e a t i o n of an A d v i s o r y C o m m i t t e e on Equal O p p o r t u n i t i e s c o m p o s e d of n a t i o n a l b o d i e s in M e m b e r S t a t e s d e a l i n g w i t h the s a m e s u b j e c t . T h i s C o m m i t t e e a d v i s e s t he C o m m i s s i o n on its p o l i c y and f o l l o w s up the i m p l e m e n t a t i o n of the C o m m u n i t y policy. The s e c o n d m a j o r f o r u m for d i a l o g u e is of c o u r s e the E u r o p e a n P a r l i a m e n t , in w h i c h w o m e n are b e t t e r r e p r e s e n t e d t h a n in nat i o n a l P a r l i a m e n t s ; p r o b a b l y b e c a u s e it is p e r c e i v e d as less i m p o r t a n t t han n a t i o n a l P a r l i a m e n t s . It is a l s o t he o n l y P a r l i a m e n t w h e r e a p e r m a n e n t W o m e n ' s C o m m i t t e e d e a l s w i t h w o m e n ' s r i g h t s and w o m e n ' s p o l i c y
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and acts as an e x t r e m e l y p o w e r f u l and d y n a m i c lobby, s o m e t i m e s e x e r t i n g great: p r e s s u r e on t he C o m m i s s i o n .
T he t h i r d g r o u p is c o m p o s e d of t he s o c i a l p a r t n e r s . The t r a d e - u n i o n w o m e n ' s g r o u p s are also q u i t e a c tive; the a c t i o n p r o g r a m m e in p art r e f l e c t s t h e i r p r o p o s a l s . As I s a i d e a rlier, d i f f i c u l t i e s t e n d to be m o r e s e r i o u s w i t h t he e m p l o y e r s , o w i n g to t he general s i t u a t i o n of the social d i a l o g u e at the mo m e n t , but the r e s p o n s e can be e x t r e m e l y p o s i t i v e w h e n the C o m m i s s i o n c a r r i e s out a c t i o n in d i r e c t c o l l a b o r a t i o n w i t h p r i v a t e firms. It m i g h t be useful to d raw the c o n c l u s i o n s f r o m t h e s e e x p e r i m e n t s and r e v i s e t he ge n e r a l c o n c e p t i o n of s o c i a l d i a l o g u e : is it r e a l l y e f f e c t i v e to go t h r o u g h t he normal s t r u c t u r e s , or s h o u l d we t ry a m o r e i n f o r m a l b a s i s ? T h i s is c e r t a i n l y a m a j o r q u e s t i o n for the y e a r s to come.
I s h o u l d like to c o n c l u d e by r e t u r n i n g to my o p e n i n g r e m a r k s . It is e x t r e m e l y i n t e r e s t i n g to see how, w i t h a v e r y l i m i t e d legal s t a r t i n g - p o i n t , C o m m u n i t y a c t i o n has b e e n able to e x p a n d in a n a r e a w h i c h a. p r i o r i does no t s e e m a p r i o r i t y f o r C o m m u n i t y policy. Equal O p p o r t u n i t i e s for W o m e n have b e c o m e in fact one of the m o s t a d v a n c e d s e c t o r s in C o m m u n i t y s ocial policy. T h i s e v o l u t i o n m u s t be l i n k e d to d i f f e r e n t f a c t o r s , a m o n g s t w h i c h the i n t e r e s t of c e r t a i n p e r s o n s i n s i d e t he C o m m i s s i o n has c e r t a i n l y p l a y e d a c o n s i d e r a b l e role. H o w e v e r , the r o l e of the
