The European Commission’s first interest in telework dates from 1989. Concerns were raised in the context of the Communication Technology research programme RACE, when assessing risks (of exclusion) and opportunities (for decentralisation) arising from the economic impacts of advanced communications on rural areas and remote regions. The strategic analysis performed by DG XIII in liaison with DG VI (Agriculture), as part of the reform of the Common Agricultural Policy (CAP) and the need to focus on increasing non-agricultural employment in rural areas, identified telework as a key theme.
These considerations led to the launch of the ORA RTD Programme, with a planned synergy with the LEADER I Structural Funds initiative in support of local and rural employment initiatives. It was in this framework that the first research projects with a focus on telework were launched: PATRA (on social and psychological aspects), MITRE (to explore the "business case" for teleworking), and the consensus and awareness raising project SYNERGY (ECTF). Widespread awareness of telework was stimulated in 1993 by a set of explorative research and stimulation actions initiated by the Commission57, linking Europe’s transition to an Information Society with the need for greater flexibility in employment.
Starting with the White Paper on Growth, Competitiveness, Employment, the Challenges and Way Forward into the 21st Century, launched in 1993, the European Commission set the priorities for the coming years to prepare Europe for a new form of society: the Information Society. The main concern expressed in the White Paper was work. The enormous growth of an army of unemployed in the Union reinforced the need for a new focus.
Building on the conviction expressed in the White Paper that "the enormous potential for new services relating to production, consumption, culture and leisure activities will create large numbers of new jobs...", a High Level Group, under the Chairmanship of the Commissioner for Industry Mr. Martin Bangemann, recommended to the Council an Action Plan in order to ensure that new jobs will be created in Europe as rapidly as possible. This Action Plan was first adopted in 199458, and identified telework as the first of ten applications to launch the Information Society. It was updated in 1996 as a "Rolling Action Plan"59, building on the success achieved in liberalisation of the telecommunications sector and in implementing the 4th Framework Programme (1995-98), notably by a large number of support measures for European Research and Technology Development (RTD), especially ACTS (new communications services), ESPRIT (information technology development in the context of changes in business processes), and the Telematics Applications Programme.
These measures are being reinforced by new support opportunities for deployment, such as Trans European (telecommunication) Networks and European structural policies and funds, especially those concerning regional development, training and the adaptation of business structures, and telework is seen as an important component of these.
The 1996 Rolling Action Plan identifies four priorities:
A major instrument for the implementation of this Action Plan, including a reinforced focus on new ways of working, will be the 5th Framework Programme for RTD, scheduled for the period 1999 to 2002. Strong themes of direct relevance to telework are being incorporated, for example new working practices in the context of flexible, remote and mobile working, and electronic trade. Important here is the need to see RTD well integrated with both national and structural policies at European level. For more information: see in section 5.
Building on the Action Plan towards the Information Society, DGV prepared a 1995-97 Medium-Term Social Action Programme, which referred to the Commission’s plan to publish a communication on telework "to provide examples of good practice". DGV, together with the European Foundation for the Improvement of the Living and Working Conditions, undertook major comparative research and analysis on the Social Implications of Telework. Their studies focused on three themes: labour law, social security and occupational health and safety. Experts drew up national reports under these three headings: 45 reports in all. These analyses were summarised in three reports and on this basis a final report was issued in April 1996. These reports constituted working papers63 for a conference on the Social Implications of Telework which was held in Brussels in May 1996.
The social aspects of telework have been addressed by two Green Papers. First by the Green Paper on Living and Working in the Information Society: People First, adopted in mid-1996. The ensuing consultation process showed a somewhat polarised debate, some believing telework should evolve naturally, others arguing that new legislation is needed to protect teleworkers. The follow up to this Green Paper, The labour Market and Social Dimension of the Information Society64, also addressed telework and announced, inter alia, the launching of a consultation with the social partners on whether and to what extent Community action on the protection of teleworkers is advisable.
The second Green Paper, on A Partnership for a New Organisation of Work65, adopted in mid-April 1997, had a consultation period running until 30 November 1997, and which led into a major European conference in April 1998 to discuss all the issues arising.
Competing in a global economy requires high performance enterprises with a high performance workforce. New technology, fast changing markets and the growth of the service sector accentuate this need. Adapting to this new environment means striking the right balance between flexibility and security. Employers need greater flexibility, in particular more interchangeable skills among their employees and adaptable working patterns, while employees need assurances about their own employability and job prospects. Better organisation of work can offer workers increased security through greater involvement in work organisation, a greater choice of working arrangements, more job satisfaction and the possibility of developing skills and long-term employability. In turn, this provides employers with increased flexibility in the form of a more skilled, motivated and versatile labour force, better able to take the initiative, to cope with change and to be more deeply involved in the economic health of the company. Social dialogue has a key role in achieving the right balance.
The commission presented in 1997 a Green Paper on Partnership for a New Organisation of Work66, that launched an ambitious debate on the modernisation of work organisation. The responses to the Green Paper generally confirmed that work organisation is a of vital concern to Europe's current and future competitiveness67. That the debate on work organisation examines the organisation as a totality (‘holistically’) is considered essential – changes in one part of the organisation have repercussions on all others, and the organisation interacts with its environment.
The Green Paper was followed up by a European Conference ‘Working for the Future’ 28 – 30 April 1998. The participants at the conference agreed that there is a need is to renew the structures and the agreements which govern the organisation of work. Strong emphasis was placed on the importance of the role of the social partners and their partnership as an economic factor. Social partners are much closer to the realities of enterprises and workplaces than political institutions, and they represent the two interest that must be balanced to strike a productive compromise between flexibility and security.
The importance of work organisation was endorsed by the Luxembourg Job Summit in December 1997, which made adaptability and the renewal of the organisation of work one of the four pillars of the employment strategy and thereby an important part of the Employment Guidelines 1998. It invited the social partners to negotiate agreements to modernise the organisation of work. Member States undertook to examine the possibility of incorporating more adaptable forms of contract into their law.
The National Action Plans on the implementation of the Employment Guidelines have been sent to the Commission. The content of these report shows clearly that the dynamic of developing the national actions plans has helped to foster the idea of adaptation to change as a mainstream part of employment policy. Furthermore it has directly aided the process of policy integration in work organisation issues. Policies on education, training, taxation, legal reform, and the contribution of the social partners to the modernisation process overall, is clearly in evidence. Training is identified as a powerful force in adapting to change.
In its Social Action Programme 1998 – 200068, the Commission has announced that it will continue to promote a new framework for the modernisation of work organisation and a better balance between work and family life. In particular, it will:
Both the High Level Group of Experts and the Information Society Forum have underlined the need to make a coherent adaptation of the social and legal framework concerning telework.
The Green Paper Partnership for a New Organisation of Work, building on extensive research and comparative analysis of Member States labour, health and safety and social security legislation69, asked public authorities and the Social Partners to consider "how telework and related techniques can bring about a net increase in work opportunities for Europeans in such a way that the overall quality of working life is enhanced".
From the consultation process on the Green Paper it can be concluded that it is commonly agreed that telework is here to stay. Companies are developing with their workforces innovative new ways of distance working. However, there are different views on how significant it will be as a form of work organisation. Neither trade unions nor employers' organisations call for national or European specific legislation in the field of telework, but both underline the need to address issues such as voluntarism, the right to return to on-site work, privacy protection, proper equipment standards, hours of work and remuneration in the field of telework. One of the challenges of telework is the separation of working and living environments.
In its Communication People First - The Next Steps70 and in its Social Action Programme 1998-2000, the Commission has announced that it will consult the social partners in 1998 on the need for Community action on the protection of teleworkers. The consultation document will aim to give an overview of the social dimension of telework within the European Union, in order to identify the horizontal and specific problems of the statutory and contractual framework of telework especially in the fields of labour law, social security and occupational health and safety. Within the social dialogue at European sector level, the Joint Committee on Telecommunications have agreed that telework will be the first of their working priority areas for 1998.
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