Commission publishes its strategy for a Europe for all ages

In May 1999, the European Commission published a Communication entitled "Towards a Europe for all ages - promoting prosperity and intergenerational solidarity". The document examines demographic trends and outlines the policies that the Commission feels need to be adopted in order to deal with the ageing of the European population.

1999 is the United Nations International Year of Older Persons and in acknowledgement of this, the European Commission published in May a Communication entitled Towards a Europe for all ages - promoting prosperity and intergenerational solidarity(COM(1999) 221 final). It details the demographic, social and economic effects of ageing and proposes strategies intending to ensure that an effective policy is in place to support the ageing population. The aim of the Communication is to stimulate debate between and with Member States.

The Commission estimates that in the next 20 years the 50-64 age group will increase by more than 25%, indicating a need to refocus policies on extended learning and to move away from encouraging early exit from the labour market, which also has implications for the social support system. With an estimated increase of 17 million in the 65 age group, social protection systems need to be reviewed and pensions must be made more resilient in the face of external forces. The significant increase in the average age of the population also has severe implications for the healthcare systems of Member States. The Commission suggests that emphasis should be shifted away from dependency and towards more preventative approaches, such as "healthy ageing", accident prevention and post-illness rehabilitation. Greater awareness is also needed to ensure that older people will not be socially excluded due to poverty in old age or lack of housing and support networks. Old age also carries with it gender implications for older women, many of whom are in low-paid employment or have relied upon a breadwinner, and may have no pension provision and have made few or no contributions to state provision because of lack of equality in the labour market. Women therefore also tend to have higher financial dependency and this is heightened by the fact that they have a longer life expectancy than men.

In order to begin to address these issues, the Commission has laid down policy foundations, many of which will begin to be addressed in its 1999 work programme and the European employment strategy, implemented through the National Action Plans (NAP s) of Member States, and also through the Social Action Programme 1998-2000 (EU9805104F) and Community research. The EU has also established forums and conferences as part of International Year of Older People. The Commission intends to be a forerunner in stimulating debate amongst Member States to ensure that the needs of an ageing population receive a high profile and are placed firmly on the European agenda.

In the workplace, the Commission states that policies should ensure that the needs of older workers are addressed through equal opportunities policies, promotion of participation in the labour market by older people and deterring a culture of early retirement. Older people need to be seen as requiring investment in terms of training and development, something which at present is targeted at younger staff members. Lifelong learning is another way to ensure that older people continue to learn new skills and develop areas of expertise. A more adaptable approach is needed to encourage flexible working, including part-time work, and also to address the ergonomics of the working environment (which would also benefit disabled workers) and taking advantage of technology.

Women still tend to be concentrated in low-paid/low-skilled employment and until this trend is reversed, women will have an increased dependency upon social support systems and be more vulnerable to social exclusion in old age, according to the Communication. The Commission believes that a much more "proactive" approach needs to be taken to ensure that women are given equal access to the labour market and are not treated unfavourably once in it. Women need to be given equality of opportunity in training and development, facilitating career prospects. Policy needs to shift the focus from caring responsibilities being the responsibility of women to encouraging an equal sharing of caring by both men and women. "Family-friendly" work policies and flexible working time can help to address this, as can changes to fiscal policy.

The Communication states that life expectancy has increased by eight to 10 years but, although the older population enjoys better health, there is a trend towards early retirement and retirement levels are still generally set at 65, even though people may be able to continue a healthy working life after this age. This also has an impact upon pensions, which need a high number of people in employment in order to sustain them. Encouraging older workers to remain in the labour market is a step towards this goal; pensions can play an important role in this, as easy access to pensions can encourage early retirement for otherwise healthy individuals. Greater flexibility is needed within pension schemes, as is more flexibility over the age of retirement. There is also scope for cross-border investment of second/personal pensions, whereby the European single currency could enhance financial returns.

The significant growth in the numbers of older people will inevitably have a heavy impact upon the healthcare systems of Member States, although steps can be taken to try to reduce this through preventative measures, according to the Commission. This should invariably include promoting a healthy lifestyle - eating nutritious food and taking regular exercise can help prevent the onset of certain conditions. Healthcare and access to it should not be restrictive in the options offered to older people, nor unequal in relation to the question of to whom the responsibilities of caring should fall. As equal opportunities should encourage more equal participation of women in the workforce, so there will be a need to increase the support for formal care, as women will no longer necessarily be available to assume the unpaid role of informal carer.

It is the belief of the Commission that demographic changes of the next millennium require older people to play a more active role in the labour market, in order to reduce the burdens on an otherwise decreasing working population and on welfare systems. The older population is currently an under-utilised resource and there is no need for this to be the case when older people are healthier and live longer than ever before. In order to ensure that demographic changes do not overstretch existing structures, changes are needed in the approach taken to older workers. Such policies will embrace an older workforce, actively promoting equal opportunities at all levels and encouraging lifelong learning, and should include pension reform and a positive approach to the role of the individual in preventing ill-health.

It is a key factor for the economic sustainability of Member States that provision for older workers is incorporated into European and national policies and that all social partners can contribute to this highly important and essential debate.