The Unions and the Relaunching of European Social Policy

VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

Maria The unions and the Eleonora Guasconi Lecturer in History of relaunching of International Relations at the Faculty of Political Science of the European social policy University of Urbino (Italy). Introduction of enterprises, and which gave union representatives adequate representation within An analysis of the role of the unions in pro- the High Authority and the Advisory Com- moting a European social policy in the 1970s mittee (Mechi, 1994), the Treaties of Rome may be a useful way both of assessing whether had allotted only a marginal role to social social partners are able to exert pressure on policy, regarding it more as an effect of the governments to shift their attention towards creation of an integrated market than a goal the social dynamics of integration, and of to be pursued in its own right (Ciampani, providing food for thought on the length of 1995a and 2001; Degimbe, 1999). The very the route that social policy had to travel in concept of social policy seemed complex Europe, and how obstacle-strewn was the and diverse, differing from region to region The question of European path taken by the social forces towards and from actor to actor: for the trade unions trade unions’ approach to- launching a dialogue with the Community and, to some extent, the European institu- wards vocational training is institutions. The creation of Cedefop in 1975 tions, this term covered various aspects of an interesting example of a can be regarded as one of the main achieve- welfare policy, ranging from labour force broader issue, involving both ments of the pressures exerted and claims protection mechanisms to the pension sys- the role played by non-gov- advanced by the trade unions in their efforts tem; for governments it was a way of pur- ernmental actors in shaping to bring about greater visibility within the suing specific national interests. The Ital- the social dimension of the EEC and to promote the development of a ian government, for instance, with its long integration process, and the European policy for employment and vo- tradition of social diplomacy, considered the need to develop a social dia- cational training. development of a European policy for em- logue in the Community. In ployment to be a necessity if the problem this context, the establish- This research, conducted at the International of unemployment, particularly serious in the ment of Cedefop in 1975 can Institute of Social History (IISH) of Amster- south of Italy, was to be resolved. be considered one of the main dam (1) and the archives of the Council of achievements of the protracted Ministers and the Commission in Brussels, The few paragraphs of the Treaty establish- pressure and requests from has concentrated mainly on the 1970s. It was ing the principle of free movement of work- the European trade unions to from the Hague Summit of 1969 and in par- ers within the Community and the institu- be better represented in the ticular the drafting of the Werner Plan on tion of a European Social Fund, together EC and to develop a series of the creation of an economic and monetary with specific measures to guarantee equal initiatives aimed at shaping union, that the Community Institutions and pay for men and women, were a concession a common European social European governments, faced with growing on the part of the European Governments policy in the field of em- unemployment and a serious economic re- to the strong pressure exerted by Italian rep- ployment and vocational train- cession, began to draw up the outlines of a resentatives in the Val Duchesse negotia- ing. social policy paying due attention to em- tions. The European nations nevertheless ployment - a policy not seen as part and maintained control and administered the so- parcel of economic integration but as a goal cial effects of economic integration at a in its own right - and took a wide range national level, preferring to sign bilateral of initiatives in the sector of employment agreements rather than developing a Com- and vocational training (2). munity-wide employment policy. The Treaty made no provision, moreover, for a politi- The origins of European social policy cal intervention mechanism: Article 118 mere- (1) The author thanks Lorenzo Mechi and Francesco Petrini of the Univer- ly entrusted the Commission with the task sity of Padua for the documents Apart from the European Coal and Steel Com- of ‘promoting close cooperation’ among the found at IISH of Amsterdam. munity (ECSC), whose founding Treaty con- Member States through analysis, consulta- (2) For an analysis of the historio- tained a considerable number of articles de- tion and opinions on employment problems, graphic debate on European social voted to the welfare of workers and their the right to work, working conditions, vo- policy, see Geyer, 2000; Hantrais, 2000; Kleinman, 2001; Kowalsky, re-employment following the restructuring cational training and social security systems 2000; Ivor and Springer, 2001; Van- damme (ed), 1984. Cedefop 55 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

(Dølvik, 1999, p. 99), giving the Commis- could not say they were satisfied with the sion freedom of initiative and governments limited role assigned by the Treaties of Rome full control over social policies. to the social forces, confined as it was to consultation, which could hardly be inter- During the 1960s, social questions were not preted as incisive participation in European completely overlooked, partly due to the integration. efforts of the Commission and the Economic and Social Committee (ESC), which were The unions’ repeated requests to be repre- particularly active in calling for the promo- sented within the Commission or on the tion of a Community social policy. In prac- Board of Directors of the European Invest- tice, however, the social component of in- ment Bank remained unheard. In 1964 the tegration was swept to one side by the over- Vice President of the Commission, Sicco Man- whelming interests of France and Germany, sholt, on the occasion of a meeting with the directed towards regulating the Common Executive Committee of the European Trade Agricultural Policy and free trade in in- Union Secretariat (ETUS) (3), reiterated his dustrial goods based on the principle of firm opposition to institutionalising the co- ‘synchronisation’. What was in fact institu- operation with the union movement, pre- tionalised was a permanent system of do ut ferring what he saw as more fruitful infor- des - ‘give and take’. Just one illustration: mal contacts (4). the regulations on the free movement of workers were not brought into force until Up to 1967 the Community social dialogue 1968, thanks to the efforts of the Italian Com- developed exclusively within the advisory missioner Lionello Levi Sandri, the prime committees whose task it was to assist the mover of Regulation 1612/68 on freedom Commission in tackling the different issues of movement for workers. Another illustra- relating to the working world - one of those tion: for the first 10 years of its life the Euro- committees being on vocational training, set pean Social Fund, which was active from up in 1963 - and within the joint commit- 1960, had a minimal amount at its dispos- tees, consisting of representatives of the al, just ECU 420 million, most of which was unions and employers (Degimbe, 1999, p. earmarked for Italy. The European unions 114). strongly criticised the work of the Fund, as evidenced by a memorandum drafted in Oc- The reasons for this rejection varied in na- tober 1969 on the eve of the first reform of ture: alongside the Commission’s desire to the Social Fund, emphasising the limited retain control of the still embryonic devel- nature of its interventions: ‘The automatism opment of social policy, there was the is- of its interventions, the rigidity of its struc- sue of whether the Trade Union Secretari- (3) ETUS was created in 1958 by the ICFTU. It came into being as a re- ture, the complexity of its mechanism, the at was truly representative. The rifts within sult of the demand by European delays generated by its a posteriori criteria the union movement, reflecting the divi- trade unions of an anti-communist for reimbursement, among other factors, sions and tensions brought about by the persuasion to coordinate their reciprocal initiatives in dealings with have meant that the Fund interventions have cold war in the international system (to cite the Community institutions and to been frittered away, without it being pos- only one instance, the split of the Con- win back terrain for union initiatives. sible to coordinate them in a Community fédération Générale du Travail, CGT, in It was later renamed the European Confederation of Free Trade Unions perspective’ (IISH, 1969). France from the Confederazione Generale (ECFTU) and was joined by the Scan- Italiana del Lavoro, CGIL, in Italy), but al- dinavian and British trade unions. The half-hearted interest displayed by the so the profoundly different approaches and In 1974, with the affiliation of the Christian trade unions and the Ital- creators of the Community in the social com- policies of the various federations, had weak- ian Communist union, CGIL, it be- ponent of European construction was re- ened the role and image of the social forces came the European Trade Union flected both in the exclusion of the unions in Europe. Those social forces had their own Confederation (ETUC). from the negotiations for the signature of differing programmes and policies, as demon- (4) The meeting between Sicco Man- the Treaty of Rome, despite the constant and strated by the timorous manner in which, sholt and the unionists is cited in Guasconi, 1998/1999, p. 249. urgent requests to take part (IISH et al., 1955; during the 1960s, the unions of Northern Barnouin, 1986; Ciampani, 1995b; Dølvik, Europe faced issues associated with social (5) For an analysis of the historio- graphic debate that developed on 1999; Pasture, 2001), and in the actual role harmonisation, out of fear of a deteriora- the splitting up of the internation- of the body given the task of acting as tion in working conditions and of coming al organisation, WFTU, see Antonioli spokesman for the social partners in Brus- down to Italian levels. et al., 1999; Carew, 1987; Carew et al., 2000; Macshane, 1992. sels: the ESC, an advisory body that did not receive the right of initiative until 1972 (Var- In addition neither the Christian unions, the (6) On the position of the CGIL towards European construction see sori, 2000). For their part, European unions Communist organisations, the CGIL nor the Galante, 1988; Maggiorani, 1998. Cedefop 56 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

CGT were members of the International The relaunching of social policy at the Confederation of Free Trade Unions (ICFTU), end of the 1960s the organisation created in 1949 following the split of the anti-Communist union The Hague Summit of 1969, in particular the movements from the World Federation of 1970 Werner Plan for the creation of the eco- Trade Unions (WFTU or FSM) (5). The Com- nomic and monetary union, represented a munist organisations had developed a very turning point for the interests of the social critical attitude towards European integra- partners and the progress of social policy in tion, which was regarded - in line with cold Europe (7). war thinking - as a tool of American im- perialism. Only in the course of 1960s did In the course of the conference that marked they start to redirect their approach, setting Europe’s passage from the ‘six’ to the ‘nine’, up a standing committee in Brussels in 1966 with the entry of Denmark, Ireland and the (6). In addition to this, the most powerful United Kingdom into the EEC, a conference European trade union, the TUC in Britain, that sanctioned the first attempt to bring had been firmly sceptical of European in- about an economic and monetary union, tegration, reflecting the position adopted German Chancellor Willy Brandt stressed - by the British Government right from the albeit in summary terms - the need for so- creation of the ECSC (Delaney, 2002). cial groups to be more actively involved in European integration. At several points the Besides these many different voices in the Werner Plan highlighted the need to intro- unions, another factor was the relative lack duce a dialogue with the social partners as of interest shown by employers towards clos- a prerequisite for the effective creation of er cooperation with the unions, as demon- monetary union (8). strated by the fact that up to 1967 the Union of Industrial and Employer’s Confederations The year 1971 saw the first reform of the of Europe (UNICE) refused to meet repre- European Social Fund, and in the following sentatives of the workers formally, prefer- year the Heads of State and Government, ring more direct and informal channels meeting at the Paris Summit, solemnly af- through which it could conduct its lobbying firmed that they regarded vigorous action in (Segreto, 2000). the social field as being as important as Euro- pean economic and monetary union (Archives Up to the 1970s, the limited results achieved Nationales, 1972). They asked the Commis- in the European environment and the dif- sion to draw up a social action programme, ficulties encountered in arriving at a com- to be launched in 1974, focusing on three mon stance on Community policy led the main objectives: full and better employment, European unions to use more traditional an improvement in living and working con- means, such as their own national chan- ditions and greater worker participation in nels, to press their claims and exercise their the Community’s economic and social de- role. Although the European unions wished cisions. to be represented in Brussels, the role they performed was more symbolic and repre- What were the reasons for the renewed sentative than real: their priorities were na- interest among the institutions and European tional initiatives, and they regarded the har- Governments in promoting the dialogue with monisation of living and working condi- the social forces and in the development of tions as an impediment to social progress a European social policy? (Pasture, 2001; p. 97). Despite these views, this first experience of unionism in Europe (a) the protest movements of May 1968 that was not altogether negative, both because spread to many European nations had high- unionists came up against situations other lighted the gradual emergence of new de- than their national experience, something mands and new forces of society; which constituted a process of ‘European’ training, and because this allowed them (b) the growing economic crisis that, espe- contact with influential European politicians cially with the oil embargo and price rises (7) On the Hague Summit see Bitsch, such as Jean Monnet, who hoped to see following on from the Yom Kippur war of 2001; Guasconi, 2003. many unionists taking part in his Action 1973, was to affect every European nation, (8) On the Werner Plan see: Girault Committee. bringing to an end the period of great eco- and Poidevin, 2002; Frank, 1995; nomic and production growth in the post- Bossuat, 1995; Ludlow, 1982; Ver- dun, 2001; Werner, 1991; Wilkens, war period and in the 1960s. This brought 1999. Cedefop 57 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

home the problems associated with unem- The first Tripartite Conference on ployment, persuading the European Govern- employment in 1970 and the problem ments of the need for renewed dialogue with of vocational training the social partners, above all the unions, which seemed to be playing a far stronger The dramatic prospect of an economic re- role (as exemplified by the ‘hot autumn’ of cession and a crisis in the European labour 1969 in Italy); market led the European institutions to de- vote new attention to social issues and the (c) the forthcoming enlargement of the Com- issues raised by employment. munity to the countries applying for membership, which raised the problem of how In April 1970 the first Tripartite Conference to harmonise profoundly differing social poli- on employment was held in Luxembourg, cies in countries which, like United King- attended by representatives of the unions dom, were living through a dramatic in- and employers, the Commission and the Min- dustrial decline; it led to a realisation of the isters for Labour of the Six. In the memo- need for a European social dimension, side randum that the unions submitted to the at- by side with the more specifically econom- tention of the Council of Ministers on 25 ic dimension of integration; March 1970, the organisations stressed the need to develop a European employment (d) the role played by European partners policy, whose objective would be to pro- such as Italy in promoting a Community- mote the creation of jobs in regions where wide social policy, not just based on the free there was surplus manpower and encour- movement of workers, as an instrument for age movements of manpower from these re- solving the problem of depressed areas such gions to more productive and expanding as the south of Italy; sectors, to help match the supply of and demand for jobs, as well as to improve train- (e) lastly, the greater international strength ing and vocational training guidance for of the unions, exemplified by the creation young people (European Council of Minis- in 1973 of the European Trade Union Con- ters, 30567-b). The report explicitly called federation (ETUC), whose membership infor the creation of a standing committee on cluded the Scandinavian unions, the British employment, linked with the reform of the trade union movement, the Christian unions Social Fund (9) and made up of represen- and, after prolonged internal struggles and tatives of governments, the Commission and due to the support of the Italian Confed- the social partners. The aims of this com- eration of Workers’ Trade Unions (CISL) mittee, which would have the right of ini- and the Unione Italiana del Lavoro (UIL), tiative, would be more efficient organisation the CGIL from Italy. The birth of the ETUC of the labour market, provision of good vo- was a true turning point for union repre- cational training services and better use of sentation vis-à-vis the Community institu- existing administrative instruments such as tions, as it marked an end to the divisions the Social Fund and the European Invest- that featured so prominently in the history ment Bank, in part through more effective of the union movement after the Second coordination among the committees work- World War. The unions now acquired the ing in vocational training and the freedom role of a social interlocutor in the eyes of of movement for workers (European Coun- the European institutions. Although in the cil of Ministers, 30567-a). early years of its life the unions saw the ETUC as a coordinating body and a Brus- During the Conference the debate focused sels lobbying channel, in 1974 the Con- on the need for a change in the Communi- federation had a membership of 17 unions ty’s approach to and policy on the employ- and represented some 36 million work- ment problem. The policy based solely on ers. It was evident, then, that ‘given the his- free movement for workers had been un- torical legacy of splits and rivalry within the satisfactory, creating regional imbalances, as labour movement, the establishment of a shown in the case of the south of Italy (10). (9) The unions had first asked for a standing committee on employment regional trade union association including The problem of vocational training was al- to be set up in their memorandum unions from all western European coun- so tackled and debated at length: vocation- on the reform of the European So- tries, most ideological directions and dif- al training was defined as a ‘permanent cial Fund (IISH, 1969). ferent global internationals, was a signifi- process’ (European Council of Ministers, 10 ( ) On the debate during the Con- cant achievement’ (Dølvik, 1999, p. 74). 30565) and a necessary way of bringing about ference on employment, see Guas- coni, 2003. economic growth and improving the prospects Cedefop 58 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

of workers. In particular the French union, credibility of the union movement in the Force Ouvrière, tabled a plan which was ac- eyes of the Council of Ministers and the gov- cepted as a basis for the debate (IISH, 1970). ernments. A similar pattern of behaviour The Council of Ministers, in a note drafted could be linked both with the refusal of the after the Conference, stressed the growing Council of Ministers to recognise the bind- importance of vocational training, now seen ing power of decisions taken by the Com- as an instrument that would help develop mittee (Degimbe, 1999; p. 119) and to the an effective policy on employment and pro- greater importance attached by the Euro- vide a key to solving many economic and pean unions to the Tripartite Conferences, social problems (European Council of Min- in which the Ministers for the Economy and isters, 30541). Finance also took part (Barnouin, 1986, p. 89). While the Council asked the Commission to study the problem of vocational training, the The European unions and the creation Standing Committee on Employment was of Cedefop set up in December 1970 and became one of the first centres of the European social di- The Paris Summit of October 1972 was an- alogue, the body through which the social other turning point in the development of a partners tried to influence the Community European social policy. For the first time the decision-making process. Right from its first Heads of State and Government stressed the meeting, held in Brussels on 18 March 1971, need to promote ‘vigorous action in the so- the German union DGB highlighted the im- cial field’, calling on the Commission, with portance of vocational training being one of the help of the other Community institutions the Committee’s priorities and proposed the and the social partners, to outline a social creation of a European institute for coordi- action programme whose objectives would nation, research and the production of tech- include establishing a common vocational nical and teaching method studies in the training policy with a view to the step-by- fields of vocational training and employment step achievement of its objectives and in par- (IISH, 1971a). The European Confederation ticular the harmonisation of vocational train- of Free Trade Unions (ECFTU), the prede- ing standards, especially by creating a Euro- cessor of the ETUC, was to take up this pro- pean vocational training centre (IISH, 1974a), posal, presenting it formally during the sec- something regarded as of the utmost im- ond meeting of the Committee held in Brus- portance. It was clear from this programme sels on 27 May. As the ETUC wrote in its re- that social policy was no longer regarded as port on the meeting: ‘Our delegation stressed a side issue of economic integration but had the need to go beyond the stage of choos- become a goal in its own right - one how- ing doctrines and principles and on to the ever that was not free from risks and am- implementation of concrete actions. The cre- biguities, as it was very difficult to draw a ation of a European Institute for the scien- clear line between this social policy and the tific study of vocational training, with the economic sector. objective of more intensive reciprocal in- formation on actual experience and the meth- This call from the Heads of State and Govern- ods and programmes used, was called for’ ment was shaped by an explicit request from (IISH, 1971b). the European unions which, in June 1972, presented a memorandum for the Summit The union demands were not accepted at calling on ‘the Community governments and the time, partly because they were offset by institutions to give practical support to the the lack of interest displayed by the union creation of a European labour institute aimed organisations in the Committee, as evidenced to train and prepare union leaders for their by the fact that no ECFTU leader, either its task of representing workers in terms of the Secretary-General or its President, took part European dimension’. On the subject of vo- in the first two meetings. This attitude im- cational training it stated that ‘permanent printed a very negative image of the abili- training is not just a generous idea but a ty of European trade union forces to take an fundamental requirement of our times’ (IISH, adequate part in the promotion of Commu- 1972). nity social policy, conveying the impression that, in spite of their Europeanism, the unions Despite this new call for action, the Coun- preferred national to Community initiatives, cil and Commission were to regard many something that obviously detracted from the aspects of this programme, such as the cre- Cedefop 59 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

ation of a European vocational training cen- Board was then to consist of nine represen- tre, with great caution. The Communist unions tatives of the Governments, three of the Com- bitterly criticised this attitude, as demon- mission, six of the unions and six of the em- strated by a letter sent by the Committee of ployers. There was also disagreement as to the CGIL-CGT in Brussels to the President the procedures for nominating representa- of the ESC, Victor Feather, in June 1973. ‘The tives of the social partners, with the French, governmental side,’ the unions wrote, ‘has Irish and Dutch governments being opposed expressed reservations on the more signif- to union nominations, preferring candidates icant points of the draft Action Programme to be nominated nationally (IISH, 1974b). submitted for debate, relating to measures The unions, for their part, attached great im- on employment, working conditions, voca- portance to controlling the appointment of tional training, emigration ... All that it took the Director, on whom in their opinion the was to create an incident in order to avoid future effectiveness of the Centre would de- the debate, and this is what was done with pend (IISH, 1974b). the Council of Ministers’ refusal to take ac- count of certain views expressed by the more On 10 February 1975 the Council of Minis- representative trade unions’ (IISH, 1973b). ters announced the creation of a European Centre for the Development of Vocational For its part, the ECFTU reacted to this Training (Cedefop), whose seat would be stonewalling by putting forward numerous Berlin. Three months later, on 26 May, the proposals, including a social conference in Foundation for Working and Living Condi- May 1973, to provide a new forum for de- tions was established in Dublin. bate with the Commission and Governments; its main objective was to implement gen- The first few years of Cedefop’s life were uine consultation with the social partners not easy. Most of 1976 was devoted to re- who would jointly set the priorities for the cruiting staff and drawing up internal reg- programme promoted by the Council of Min- ulations. It was not until the end of the year, isters (IISH, 1973a). This was an occasion to in December, that Cedefop organised its first propose once again the creation of a Euro- study seminar on the problems of youth un- pean institute for vocational training with employment in Zandvoort. Staff members the task of acting as a channel of informa- complained of their terms of recruitment, tion, promoting the harmonisation of Euro- which they saw as less advantageous than pean training and carrying out pilot pro- those of Community staff. The first Director, grammes aimed at reducing the imbalance Karl Jörgensen, decided to resign. In spite between the demand for employment and of these initial difficulties, the unions proved its supply. to be particularly cooperative in promoting the Centre’s activities. One example was The decision to set up Cedefop did not make the appointment of the new Director, Roger it any easier for the European Governments Faist, the former Secretary General of the to discuss such important factors as the mem- Confédération Française des Travailleurs bership of the management bodies of the (CFDT) whose name was put forward by new institution, its budget, its functions and the ETUC following a unanimous vote. This the participation of the social partners. In Ju- was the outcome of an informal agree- ly 1974, during a heated debate at a meet- ment reached with UNICE, the employers’ ing of the Council of Ministers social group, union: UNICE was to control the appoint- the UK delegation expressed strong reser- ment of the Director of the Dublin Founda- vations about the creation of Cedefop, while tion, allowing the trade unions to exert their the German delegation bitterly criticised the influence over Cedefop’s activities (IISH, composition of the Management Board, point- 1975). ing out that, based on the proposals put forward by the Commission, the social partners, Conclusions with two thirds of the votes at their dispos- al, would be able to impose their decisions During a meeting of the union representa- on the other members (IISH, 1974a). Despite tives of Cedefop and the Dublin Foundation the Commission’s attempts to defend its pro- in Düsseldorf in June 1978, Maria Weber, the posals, the German delegation exerted pres- German DGB unionist and, as ETUC mem- sure on the other partners to change the com- ber, active promoter of Cedefop, who served position of the Management Board, thus giv- as its chairperson in 1979, stressed the coming the Governments a majority vote. The mitment of the European unions towards Cedefop 60 VOCATIONAL TRAINING NO 32 EUROPEAN JOURNAL

promoting a Community social dialogue, Even though the social policy results achieved both generally and in vocational training. in the 1970s still seemed to be in the em- ‘What I would like to say,’ declared Maria bryonic stage, for a number of reasons these Weber, ‘without any emphasis is that it is the first few steps should not be underestimat- workers’ representatives who secured the ed. First of all, social policy was an integral creation of these three bodies, by means of part of the European agenda, even though a protracted campaign at the level of the it was at that time specially identified with Commission’s advisory committees, the Eco- the issues raised by unemployment. Se- nomic and Social Committee and negotia- condly, these results were to be the start- tions by the European Trade Union Con- ing point for the broader programme pro- federation, three bodies that are of great im- moted by Jacques Delors in the 1980s, which portance for the workers of Europe ... Th- was to make social policy one of the Com- ese institutions were necessary, because it munity’s main goals. The creation of Cede- became increasingly apparent that the ad- fop and the issues of European vocational ministration of the European Communities training were to become key issues for the was unable to perform the necessary tasks unions in promoting dialogue with Com- as effectively and as successfully as was munity institutions and broadening the de- wished in the various social domains; this bate on aspects of European integration such of course was due to its structure and or- as employment, the right to work, social se- ganisation but also to the fact that staffing curity, working conditions and freedom of in social affairs had been progressively erod- movement for workers, which up to that ed, despite the merging of Euratom-ECSC time had been the exclusive domain of na- and the EEC and the enlargement of EEC to tional governments. nine Member States.’ (IISH, 1978).

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