princi52se.com

ERAForum(2017)18:187–198DOI10.
1007/s12027-017-0477-0ARTICLEAnemergingrighttocareintheEU:a"NewStarttoSupportWork-LifeBalanceforParentsandCarers"EugeniaCaracciolodiTorella1Publishedonline:13September2017TheAuthor(s)2017.
ThisarticleispublishedwithopenaccessatSpringerlink.
comAbstractReconciliationbetweenworkandfamilylifehasbeenaprominentfeatureofEUdiscourse,policyandlegislationforsometimenow.
Accordingly,anincreas-inglysophisticatedarrayofmeasureshasbeenimplemented.
ThisarticlefocusesonthemostrecentEUinitiative,namelytheNewStarttoSupportWork-LifeBalanceforParentsandCarers,whichwasannouncedon26April2017.
Itentailsamix-tureoflegislativeandnon-legislativemeasuresaimedatmodernisingtheregulationofthisarea.
ThisarticlemaintainsthattheNewStartInitiative,althoughnotaw-less,isground-breaking.
Inthisproposal,theCommissionisembracingasubstantiveandtransformativeapproachtoequality.
TheNewStartInitiativehasthepotentialtoreconceptualisethisareaandtomovefromcareasamother-childissuetoawideronethatseescareasanintegralpartofsociety.
KeywordsWork-lifebalance·Equality·Caringresponsibilities·Brexit1IntroductionThereconciliationofworkandfamilylifehasbeenontheagendaoftheEuro-peanUnion(EU)since1974.
1Overtheyears,EUlegislatorsandpolicymakershave1CouncilResolutionof21January1974ConcerningaSocialActionProgramme[1974]OJC1/13.
Seeingeneral(2015)37:3JournalofSocialWelfareandFamilyLaw:ASpecialIssueonReconciliationofWorkandFamilyLife.
IamindebtedtoalltheparticipantstotheConferenceRethinkingGenderEquality,inparticularS.
Feenstra,London19May2017forthelivelydiscussionandtoA.
Masselot,S.
BurriandR.
Sattarforcommentsonearlierversions.
Anyerrorsaremysoleresponsibility.
BE.
CaracciolodiTorellaecdt1@leicester.
ac.
uk1UniversityofLeicester,Leicester,UK188E.
CaracciolodiTorellastriventodevelopaframeworktohelpworkingparentstobalancetheirworkingandcaringresponsibilitiesandarangeofpolicyandlegislative2measureshavegrad-uallybeenadopted.
Thisframeworkhasbeenadrivingforceinthisareaandhastriggeredthedevelopmentofnationallegislation.
Thereislittledoubtthat,withoutit,workingparentsacrossEuropewouldnotbeinthepositiontheyaretoday.
Yet,evidenceshowsthatsignicantobstaclesstillexist.
Ontheonehand,womenacrossEuropecontinuetoshoulderthelion'sshareofcaringresponsibilitiesand,conse-quently,continuetobeunderrepresentedinthelabourmarket.
3Thisaffectstheirpresentandfutureattachmenttotheemploymentmarketthusheighteningtheriskofpovertyandsocialexclusion.
4Ontheotherhand,mencannotalwaysavailthem-selvesoftheirparentalrights.
5Ultimately,childrenareaffected.
6Furthermore,caringresponsibilitiesoutsidechildcarearestillbarelymentioned.
7Thispresentsissuesoffairness,genderequality,optimalallocationofskills,scalsustainabilityandpoverty.
Addressingthisis,todaymorethanever,bothasocialandeconomicimperative.
On26April2017,aspartoftheEuropeanPillarofSocialRights,8theEuropeanCommissionannouncedaspecicsetofmeasurestomodernisethecurrentframe-work,namelythe"NewStarttoSupportWork-LifeBalanceforParentsandCarers"(theNewStartInitiative).
9Thisisaveryambitiousprojectthatbuildsupontheexist-ingacquisinthisareaandaimstomodernisetheexistingframeworkwhichwassetupinthe1990s.
Thisarticleoffersarstinsightontheinitiativeandisorganisedintotwomainparts.
Therstpartexplainstothereaderthebackground,thecontextandtheaimoftheNewStartInitiative.
Thesecondpartfocusesonitscontent,namelytheproposedlegislativeandnon-legislativemeasures,aswellaswhatisnotincluded,inparticulararevisionofthePregnantWorkersDirective.
Inlightofthisdiscussion,thisarticleconcludesthat,althoughtheNewStartInitiativeremainsincomplete,itisalsoboldandinnovative;todate,isthemostcomprehensiveproposalinthisarea.
Furthermore,thelatestpoliticaldevelopmentsintheEUsuggestthatthisinitiativestandsagoodchanceofbeingsuccessful.
2InparticularDirective2006/54/EContheimplementationoftheprincipleofequalopportunitiesandequaltreatmentofmenandwomeninmattersofemploymentandoccupation(recast)[2006]OJL204/23;CouncilDirective2010/18/EUimplementingtherevisedFrameworkAgreementonparentalleavecon-cludedbyBusinessEurope,UEAPME,CEEPandETUCandrepealingDirective96/34/EC[2010]OJL68/13;CouncilDirective92/85/EEContheintroductionofmeasurestoencourageimprovementsinthesafetyandhealthatworkofpregnantworkersandworkerswhohaverecentlygivenbirthorarebreastfeed-ing;CouncilDirective97/81/ECof15December1997concerningtheFrameworkAgreementonpart-timeworkconcludedbyUNICE,CEEPandtheETUC[1998]OJL14/9.
3Eurofund[9].
4Masselot/CaracciolodiTorell/Burri[14].
5SeeforexampleCaseC-5/12BetriuMontull,EU:C:2013:571.
MoregenerallyseeFredman[12];Carac-ciolodiTorella[5,6];CaracciolodiTorella[7];Burri[1].
6EuropeanCommissionRecommendation,Investinginchildren:breakingthecycleofdisadvantage,20February2013,[2013]OJL59/5;seealsoMasselot[15].
7Horton[13].
8Availableathttps://ec.
europa.
eu/commission/priorities/deeper-and-fairer-economic-and-monetary-union/european-pillar-social-rights_en(asof23June2017)(asof23June2017).
9Availableathttps://ec.
europa.
eu/info/law/better-regulation/initiatives/com-2017-253_en(asof23June2017).
AnemergentrighttocareintheEU.
.
.
1892TheNewStartInitiative:backgroundandaimItisnotthersttimethattheEUhasattemptedtoaddressthisareaanditisnotthepurposeofthisarticletoprovideanhistoricalreview.
10Inthiscontext,sufcetosaythatin2008theEuropeanCommissionputforwardtheWork-LifeBalancePackage11consistingofasetofmeasuresaimedathelpingworkingparents.
ItincludedaCom-municationfromtheEuropeanCommission12explainingthebackgroundandcon-text,areportmonitoringnationalprogresstowardstheBarcelonachildcaretargets13andtwolegislativeproposalstoreviseexistingdirectives,namelytheSelf-employedWorkersDirective14andthePregnantWorkersDirective.
15Whilsttheformerwassuccessfullyadopted,16thelatterencounteredconsiderableopposition,mostnotablybytheUK,andforyearshasbeenblockedintheCouncil.
AttemptstoprovideacomprehensivesolutionfailedandeventuallyitwaswithdrawninJuly2015.
17Inthesameyear,theCommissionannouncedtheRoadmap"NewStarttoaddresstheChallengesofWork-lifeBalancefacedbyWorkingParents"18wherethecaseforfurtheractioninthisareawasagainputforward.
AsrequiredbyArticle154TFEU,atwo-phaseconsultationwiththeSocialPartnersfollowed.
TherstconsultationonthedirectionofUnion'sactiontookplacebetween11November2015and4January2016andthesecond,onthecontentoftheenvisagedproposal,tookplacebetween18November2015and17February2016.
Followingtheconsultations,theNewStartInitiativewasintroducedaspartoftheEuropeanPillarofSocialRights.
19Thisisbasedon20principles,threeofwhichareparticularlyrelevanttounderstandingthe10Seegenerally,McGlynn[16];CaracciolodiTorella/Masselot[5].
11SeeMEMO/08/603,3October2008,availableathttp://europa.
eu/rapid/press-release_MEMO-08-603_en.
htm(asof23June2017);seealsoCommissionImprovesWork-LifeBalanceforMillionswithLongerandBetterMaternityLeave,Brussels3October2008IP/08/1450availableathttp://europa.
eu/rapid/press-release_IP-08-1450_en.
htm(asof23June2017).
12CommunicationfromtheCommission,ABetterWorkLifeBalance:StrongerSupportforReconcilingProfessional,PrivateandFamilyLife,COM(2008)635.
13EuropeanCommissionReport,ImplementationoftheBarcelonaObjectivesConcerningFacilitiesforPre-School-AgeChildren,COM(2008)638.
14ProposalforaDirectiveontheapplicationoftheprincipleofequaltreatmentbetweenmenandwomenengagedinanactivityinaself-employedcapacityandrepealingDirective86/613/EEC,COM(2008)636.
15ProposalforaDirectiveamendingCouncilDirective92/85/EEContheintroductionofmeasurestoencourageimprovementsinthesafetyandhealthatworkofpregnantworkersandworkerswhohaverecentlygivenbirthorarebreastfeeding,COM(2008)637nal—2008/0193(COD).
16Directive2010/41/EUoftheEuropeanParliamentandoftheCouncilontheapplicationoftheprinci-pleofequaltreatmentbetweenmenandwomenengagedinanactivityinaself-employedcapacityandrepealingDirective86/613[2010]OJL180/1.
17EuropeanCommission,"Deliveringforparents:Commissionwithdrawsstalledmaternityleavepro-posalandpavesthewayforafreshapproach",Brussels,1July2015(http://europa.
eu/rapid/press-release_IP-15-5287_en.
htm).
18Availableathttp://ec.
europa.
eu/smart-regulation/roadmaps/docs/2015_just_xxx_maternity_leave.
en.
pdf.
19Availableathttps://ec.
europa.
eu/commission/priorities/deeper-and-fairer-economic-and-monetary-union/european-pillar-social-rights_en(asof23June2017).
190E.
CaracciolodiTorellacontextofthisinitiative.
ThesearePrinciple2onGenderEquality,20Principle3onEqualOpportunities,21andPrinciple9onWork-lifeBalance.
Thelatterstatesthat"[p]arentsandpeoplewithcaringresponsibilitieshavetherighttosuitableleave,ex-ibleworkingarrangementsandaccesstocareservices.
Womenandmenshallhaveequalaccesstospecialleavesofabsenceinordertofulltheircaringresponsibilitiesandbeencouragedtousetheminabalancedway.
"ThustheNewStartInitiativeistheresultofanemergingapproachinwhichtheCommissionplacesindividualsattheheartofitspolicies.
Itisaveryambitiousprojectwhichaimsto:setupamodernpolicyframeworkthatseekstoincreasefemaleparticipationinthelabourmarketandreducethegenderpaygap;provideworkers,inparticularmen,withmoreopportunitiesandchoicetobalancetheirprofessionalandcaringresponsibilities;supportMemberStates'modernfamilypoliciesandaddressdemographicandsocietalchallenges.
22Toachievetheseaims,itisformedbyamixofmutually-reinforcinglegislativeandnon-legislativemeasures.
Althoughitacknowledgesthatlegislativeinterventioniscrucial,theinitiativeacceptsthatitisequallyimportanttoleaveroomfornationalandlocaldiversityandallowMemberStatestomakereformsofdifferentkindstosuittheirparticularsituation.
Thiswillalsoensurethatthemeasuresarenotintroducedinatop–downfashion.
Overall,eveniftheNewStartInitiativebuildsupontheex-istingacquisinthisarea,namelymaternity,paternityandparentalleaveandexibleworkingarrangements,itisneverthelessinnovative.
Itsvalueisintheveryfactthat,bylinkingallthesemeasuresandpresentingacoordinatedapproach,itprovidestheopportunitytoreconceptualisework-lifebalance.
Thefollowingsectionswillexplorethemeasuresindetail.
3Theproposedmeasures3.
1ThelegislativemeasuresTheNewStartInitiativeproposesnothinglessthanaDirectiveonWorkLifeBalanceforParentsandCarers.
23ThisDirectivedoesnotaffecttherightscontainedinthePregnantWorkersDirective,whichremainintact,butratheraimstostrengthenandbuilduponthem.
TheproposedDirective,basedonArticle153TFEU,24repealsthe20"Equalityoftreatmentandopportunitiesbetweenwomenandmenmustbeensuredandfosteredinallareas,includingregardingparticipationinthelabourmarket,termsandconditionsofemploymentandcareerprogression.
Womenandmenhavetherighttoequalpayforworkofequalvalue.
"21"Regardlessofgender,racialorethnicorigin,religionorbelief,disability,ageorsexualorientation,everyonehastherighttoequaltreatmentandopportunitiesregardingemployment,socialprotection,edu-cation,andaccesstogoodsandservicesavailabletothepublic.
Equalopportunitiesofunder-representedgroupsshallbefostered.
"22CommunicationfromtheCommission,AnInitiativetosupportWork-lifeBalanceforWorkingParentsandCarers,COM(2017)252nal,availableathttps://www.
eerstekamer.
nl/bijlage/20170502/com_2017_252_commissiemededeling/document3/f=/vkdvedys2dxw.
pdf(asof23June2017).
23ProposalforaDirectiveontheEUParliamentandtheCouncilonWork-LifeBalanceforParentsandCarersCOM(2017)253nal,2017/0085(COD).
24Moreprecisely:AnemergentrighttocareintheEU.
.
.
191ParentalLeaveDirective.
25Itappliestoallworkers,menandwomenwhohaveanemploymentcontractoranemploymentrelationship26andprovidesforfourindivid-ualrights.
Firstly,itstrengthenstherighttoparentalleave.
27Thecurrentlegislationhasprovenineffectiveinpromotingtheuseofthisright,especiallywhenitcomestofathers.
28Twomainreasonsforthelowuptakehavebeenidentied:theentitlementisunpaid,thereforenotmanyfamiliescanaffordtotakeit;andtheimplementationisinexiblewhich,defacto,canhavetheeffectof"forcing"people29totaketheleaveinblocks,ratherthaninmoreexibleways(part-timeorinindividualdays)thatmaybettersuittheirneeds.
Thismeansthat,whentaken,itisoftenbymoth-ersthusreinforcingthestereotypethatwomen,ratherthanmen,arecarers.
Bywayofcontrast,theproposedDirectiveaimstomakeiteasierformentosharecaringresponsibilitiesonanequalbasiswithwomen30andforthispurposeitestablishesthatthe4-monthperiod,availabletoeachparent,isnon-transferablefromaparenttoanother.
31Cruciallyitalsoestablishesthattheleaveshouldreceiveanadequateincomeatleastequivalenttosickpaylevel.
32Finally,themaximumageofthechildforwhomparentscantakeleaveisincreasedfrom8to12yearsold,thusexpandingthepoolofpeoplewhocanapplyfortheleave.
Secondly,itintroducesanindividualrighttopaternityleave,33intendedasashortperiodofleaveforfathersaroundthetimeofthebirthofachild.
Thisisnotpartic-ularlycontroversialasthevastmajorityoftheMemberStatesalreadyhavepaternityleaveprovisions.
34AtEUlevel,paternityleavewasrstputforwardintheWork-LifeArt.
153(1)TFEU"WithaviewtoachievingtheobjectivesofArticle151,theUnionshallsupportandcomplementtheactivitiesoftheMemberStatesinthefollowingelds:(.
.
.
)(i)equalitybetweenmenandwomenwithregardtolabourmarketopportunitiesandtreatmentatwork;"Art.
153(2)(b)TFEUestablishesthat"tothisend,theEuropeanParliamentandtheCouncil:(.
.
.
)(b)mayadopt,intheeldsreferredtoinparagraph1(a)to(i),bymeansofdirectives,minimumrequire-mentsforgradualimplementation,havingregardtotheconditionsandtechnicalrulesobtainingineachoftheMemberStates.
Suchdirectivesshallavoidimposingadministrative,nancialandlegalconstraintsinawaywhichwouldholdbackthecreationanddevelopmentofsmallandmedium-sizedundertakings.
TheEuropeanParliamentandtheCouncilshallactinaccordancewiththeordinarylegislativeprocedureafterconsultingtheEconomicandSocialCommitteeandtheCommitteeoftheRegions.
25Art.
19,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
26Art.
2,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
27Art.
5,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
28Eurofund[10],2015.
29Thereisevidencethatthisismoreanissueforfathers.
SeeEurofund[10].
30ProposalforaDirectiveontheEUParliamentandtheCouncilonWork-LifeBalanceforParentsandCarersCOM(2017)253nal,Preamble,Recital5,seealsoRecitals14and15.
31Art.
5(2),proposedDirectiveonWork-LifeBalanceforParentsandCarers,seealsoRecital14inthePreamble.
32Art.
8,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
33Art.
4,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
34Howevertheydonotalwaysworkinpractice.
SeealsoAquarterofnewdadsaremissingoutonpaternityleaveandpay,saysTUChttps://www.
tuc.
org.
uk/node/127022(asfor23June2017).
192E.
CaracciolodiTorellaBalancepackagein200835andthesuggestionhadbeenincorporatedbytheParlia-mentintheproposaltoamendthePregnantWorkersDirective.
TheProgressreport,however,highlightedthateveniftheDirectivehadbeenamended,therewasacon-sensusthatpaternityleavewouldnothavebeenincluded.
36Atthetimeofwriting,theEUhasnoexpressrulesinthisarea,apartfromtheamendedEqualTreatmentDi-rective37andtheRecastDirective.
38Theseinstrumentsacknowledgefathersintheirownrightbutdonotconferspecicrightsonthem.
Article2(7)oftheAmendedEqualTreatmentDirectivestatesthat"itis(.
.
.
)withoutprejudicetotherightofMemberStatestorecognisedistinctrightstopaternityand/oradoptionleave.
"Arti-cle16oftheRecastDirectiveconcernspaternityandadoptionleaveandconrmstheprovisionsoftheamendedEqualTreatmentDirectiveforfathersinapproximatelythesameterms.
39Thereforetheseinstruments,ratherthangrantingpositiverightstofathers,merelyprovidethatthesamelevelofprotectionasappliestomaternityleavemustbeextendedtopaternityandadoptionleave,ifMemberStateshavealreadyin-troducedsuchrulesintonationallaw.
Asaresult,fathers'rightshavebeenconstruedasanoptionforMemberStatestoconsider,ratherthanasindividualrights.
40ThustheproposedDirectiveisawelcomeimprovement.
Therightisnotonlyforfathersbutalsoforsecondparentsandisgrantedirrespectiveofmaritalorfamilystatusasdenedinnationallaw.
41MemberStatesmustensurethattheyshallhavetherighttotakeatleast10workingdaysofleavearoundthetimeofbirthofachild.
Inthiscase,theleavewillalsobecompensatedatleastatthelevelofsickpay.
42ThisisamuchstrongercommitmentthantheoneenvisagedatthemomentwhichwouldbringEUlegislationinlinenotonlywiththelegislationalreadyexistingintheMemberStatesbutalsowithcaselawoftheEuropeanCourtofJustice43andarapidlychangingsociety.
35ConsultationDocumentSEC(2006)1245andSEC(2008)571asdiscussedintheCommunicationfromtheCommission,"ABetterWork-LifeBalance:strongersupportforreconcilingprofessional,privateandfamilyLife",COM(2008)635.
SeealsoEuropeanCommission,Employment,SocialAffairsandEqualOpportunities,"OpiniononNewFormsofLeave(PaternityLeave,AdoptionLeaveandFilialLeave)",2008.
36TheEUCouncil,Proposal,ProgressReport,2008/0193(COD)SOC423/SAN107/CODEC875.
37CouncilDirective76/207/EEC[1976]OJL39/40asamendedbyDirective2002/73/EC[2002]OJL269/15.
38Directive2006/54/ECoftheEuropeanParliamentandoftheCouncilof5thJuly2006ontheimple-mentationoftheprincipleofequalopportunitiesandequaltreatmentofmenandwomeninmattersofemploymentandoccupation(recast)[2006]OJL/204.
39"ThisDirectiveiswithoutprejudicetotherightofMemberStatestorecognisedistinctrightstopaternityand/oradoptionleave.
ThoseMemberStateswhichrecognisesuchrightsshalltakethenecessarymeasurestoprotectworkingmenandwomenagainstdismissalduetoexercisingthoserightsandensurethat,attheendofsuchleave,theyareentitledtoreturntotheirjobsortoequivalentpostsontermsandconditionswhicharenolessfavourabletothem,andtobenetfromanyimprovementinworkingconditionstowhichtheywouldhavebeenentitledduringtheirabsence.
"40SeeRecital13inthePreambleandArticle2(7)oftheDirective76/207asamendedbyDirective2002/73.
41Art.
4,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
42Art.
8,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
43CaseC-222/14K.
MastrellisvYpourgosDikaiosynis,DiafaneiaskaiAnthropinonDikaiomaton,EU:C:2015:473;seealsotheOpinionofAGKokottinCaseC-104/09RocalvarezvSesaStartEspaaETTSA,EU:C:2010:254.
AnemergentrighttocareintheEU.
.
.
193Thirdly,theproposedDirectiveintroducesprovisionsforcarers'leave,intendedas"aworkerprovidingpersonalcareorsupportincaseofaseriousillnessorde-pendencyofarelative.
"44Thisgrantsworkingcarersatleastveworkingdaysperyearintheeventofseriousillnessordependencyofarelative.
Needlesstosay,itisasignicantimprovement:atthemomentEUlegislationdoesnotcaterfortheneedsofworkingcarers.
Thisisacauseofconcernasithasacleareffectonwomen'sparticipationintheemploymentmarket.
Theclosestthecurrentlegislationgetstocarers'leaveistheleavefor"forcemajeure"45whichprovidesthatworkerscantakeunpaidtimeoffforworkerscaringforseriouslyillordependentrelatives.
Althoughthisistheonlytrulyfamily—ratherthanjustchild—friendlyprovision,itisarighttotaketimeoffto(swiftly)addressemergenciesratherthanarighttocare.
Article6oftheproposeddirective,primafacie,buildsonthisprovisionandgrantsworkingcarerstherighttotakeatleastvedaysperyear,compensatedatleastatsickpaylevel.
Whilst,conceptually,thisisanunprecedentedinitiativethatacknowledgescareasanintegralpartoflifeandthusacceptsthatworkingcarershaveneeds,inpracticeitisnotenoughtoallowthosewhohaveon-goingcaringresponsibilitiestocareonaregularbasis.
Ratherthandevelopingamuchneededcarestrategy,thisprovisionmerelystrengthenstheexisting"safetynet"foremergencies.
Thenallegislativemeasuregrantsparentsandcarersthepossibilitytoworkex-iblytoadapttheirworkingschedulestotheirpersonalneedsandpreferencessothattheycanbetterbalancetheirworkandcaringresponsibilities.
Thiswillinvolveeitherchangingandorreducingtheirworkinghoursortheirplaceofwork(e.
g.
telework-ing).
46Thereisawealthofevidencesuggestingthatthisiscrucialtoallowindivid-uals(inparticularwomen)toremainintheworkplace.
Itistruethatthisisperhapstheleastinnovativeofthemeasuresasgenerallegislationthatprotectsworkersonpart-timecontractsalreadyexists.
47Furthermore,atthemoment,parentsreturningfromparentalleaveareexplicitlyallowedtorequestexibleworkingarrangementsforasetperiodoftime.
48Withthatsaid,itisthersttimethatexibleformsofemploymentareexpresslylinkedtothebroaderconceptofcaringresponsibilities.
However,theproposedlegislationdoesnotgofarenoughtocreateastronganden-forceablelegalentitlement.
Therightremainsframedasarighttorequest,ratherthanarighttoobtainwhereemployersareobligedtomerelyconsiderandrespondtosuchrequests,takingintoaccounttheneedsofbothemployersandworkers.
Furthermore,Zbyszewska49notesthatthereisnoreferencetothemaininstrumentinthisarea,44Art.
6,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
45Alreadycontemplatedbyclause7(1)Directive2010/18/EUonParentalLeave([2010]OJL68/13)andinArt.
7oftheproposedDirective.
46Art.
9,proposedDirectiveonWork-LifeBalanceforParentsandCarers.
47Seee.
g.
CouncilDirective1999/70/ECof28June1999concerningtheframeworkagreementonxed-termworkconcludedbyETUC,UNICEandCEEP[1999]OJL175/43;corrigendumin[1999]OJL244/64.
48SeeClause6,CouncilDirective97/81/EC,concerningtheFrameworkAgreementonpart-timeworkconcludedbyUNICE,CEEPandtheETUC[1998]OJL14/9.
49Zbyszewska[18].
194E.
CaracciolodiTorellanamelytheWorkingTimeDirective.
50Althoughthisisahealthandsafety—ratherthanagenderequality—instrument,itisthekeyEUinstrumentregulating"normal"workinghours,where"normal"continuestobebasedon"male"patterns,asmenaremorelikelythanwomentoengageinfull-timeworkand/orworkinexcessof"normal"workinghours.
Thus,sheconvincinglyarguesthat,asworkingexcessivehoursinterfereswiththeassumptionofcaringresponsibilities,itisinthiscontextthatchangesareneeded,inparticularifthegoalistoencouragementotakeamoreactiveroleincareandtoenablewomen'sbetteraccesstopaidemployment.
Overall,therightsproposedare,tosomeextent,incompleteandcertainlyrequirefurtherelaboration.
Althoughtheystrivetoaddresstheneedsofanageingsociety,theycontinuetoprivilegeparentsofyoungchildren.
Furthermore,althoughworkersareprotectedagainstdiscriminationforusingtheserights,51awiderprotectionnottobediscriminatedagainstbecauseofcaringresponsibilitiesstilldoesnotexist.
52Despitethis,thepotentialoftheproposedDirectiveisunquestionable:itcreatescon-creteindividualrightsandsendsapowerfulmessage.
CaringresponsibilitieshavenowexplicitlybeenplacedontheEUagenda.
3.
2Anoticeableabsentee:thePregnantWorkersDirectiveJustasimportantaswhattheDirectiveincludesiswhatitdoesnotinclude.
Itispara-doxicalanddisappointingthatthecontentofthePregnantWorkersDirectivewasnotrevised.
ItisparadoxicalbecausetheNewStartInitiativewasdefactotriggeredbytheveryfailuretorevisethisDirective.
Itisdisappointingbecausethisfeelslikeamissedopportunity.
Indeed,ithadbeensuggestedthatthewithdrawaloftheproposedrevisioncouldhavepavedthewaytotheintroductionofamoreprogressiveframe-work.
53ArevisedPregnantWorkersDirectivecouldhaveincludedsituationsthat,duetomedicaladvancements,arebecomingincreasinglycommon,54namelyIVFandsurrogacy.
55AclaricationbytheEUlegislatureon,forexample,therightsofcommissioningmothers,wouldhavebeenwelcomed.
Thisisparticularlyregrettable,inlightofthefactthatsomeMemberStateshavealreadyintroducedsomerightsinthisrespect.
56TheCommissionitselfhadannouncedthat"[t]hisopensthewayforafreshapproachtothepolicyobjectivesofimprovingtheprotectionofmothers.
.
.
".
5750CouncilDirective93/104ECconcerningcertainaspectsoftheorganizationofworkingtime[1993]OJL307/18(repealed);CouncilDirective2003/88ECoftheEuropeanParliamentandoftheCouncilof4November2003concerningcertainaspectsoftheorganizationofworkingtime[2003]OJL299/9.
51Art.
11proposedDirectiveonWork-LifeBalanceforParentsandCarers.
52Seefurther,CaracciolodiTorella[8].
53CaracciolodiTorella/Foubert[4].
54EuropeanParliament,"AComparativeStudyontheRegimeofSurrogacyinEUMemberStates"(PublicationsOfceoftheEU,2013),p.
9,http://www.
europarl.
europa.
eu/RegData/etudes/STUD/2013/474403/IPOL-JURI_ET(2013)474403_EN.
pdf(accessed23June2017).
SeealsoTrim-mings/Beaumont[17].
55CaracciolodiTorella/Foubert[3].
Foubert/Imamovic[11].
56FromApril2015theChildrenandFamiliesAct2014grantstointendedparentsinsurrogacyarrange-mentsqualifyforadoptionleaveandpay.
57EuropeanCommission,"DeliveringforParents:Commissionwithdrawsstalledmaternityleavepro-posalandpavesthewayforafreshapproach"Pressrelease,1July2015,http://europa.
eu/rapid/AnemergentrighttocareintheEU.
.
.
195Itisunderstandablethattheverysameamendments,inparticularthelongerperiodofmaternityleaveandtheenhancedlevelofpayment,thathadcausedthefailureoftheproposalin2015,couldnothavebeenre-proposed.
Measurestostrengthenthepositionofwomenworkerscouldhavebeenintroduced,however.
Indeedimprovingdismissalprotection58andintroducingfurtherprovisionsforbreastfeedingbreaksand/orfacilities59hadoriginallybeensuggested.
Bothtypesofmeasureswouldhaveeasedthetransitionbacktoworkaftermaternityleave.
3.
3Thenon-legislativemeasuresInadditiontothemeasuresdiscussedabove,theCommissionhasproposedasetofnon-legislativemeasuresaimedatcreatingapolicyframeworktoenhancetheeffec-tiveness,forbothwomenandmen,oftherightsenvisagedintheWork-LifeBalanceDirective.
60Arguably,policyinitiativesatEUlevelarealreadyinplace.
61However,theyareoftenfragmentedandnotcomplementarytotheexistinglegislation.
Forexample,thesystemofleaveisnotdevelopedinconjunctionwithaffordablechild-careservicesandthis,defacto,limitsthechoiceofworkingparents(oftenmoth-ers)andweakenstheirprotection.
Inmanycases,itsimplydelaysthemomentwhenwomenwillleavetheemploymentmarket.
Thusthecurrentmismatchbetweenlegis-lationandpolicycanhavetheundesiredsideeffectofreinforcinggenderinequality.
Bycontrast,theproposednon-legislativeinitiatives,byspecicallyaddressingthesegaps,aimtotargetthedriversofwomen'sunderrepresentationinthelabourmarketinacomprehensiveway.
Oneofthemainaimsofthenon-legislativemeasuresistoenhancethemonitoringofthetranspositionofEUlegislationandtopursuethelaunchofinfringementpro-cedureswhennecessaryandtopromotecompliancethroughraisingawareness.
TheyalsoaimatimprovingthedatacollectionofEU-leveldatabyEurostatonthetake-upoffamily-relatedleaveandexibleworkingarrangementsbywomenandmen.
Furthermore,theywillpromotethesharingofgoodpracticeswithsocialpartnersandMemberStatesbymeans,forexample,ofseminarsundertheMutualLearningprogramme.
Finally,theEUendeavourstosupporttheMemberStatestoaddressthelackofad-equatecareservicesforbothchildrenandadultsthroughmakingfundingavailabletopress-release_IP-15-5287_en.
htm.
SeeP.
Foubert,ChildCareLeave2.
0—Suggestionsfortheimprove-mentoftheEUMaternityandParentalLeaveDirectivesfromarightsperspectiveintheMaastrichtJournalofEuropeanandComparativeLaw2017,Vol.
24(2)pp.
245–263.
58Thiscouldhavebeendonebyextendingtheperiodofdismissalprotectionforaperiodoftimeaftertheendofmaternityleave;prohibitingnotonlydismissalsduringtheprotectedperiodbutalsostepsfordismissal,suchasrecruitingareplacementemployeeonapermanentbase;introducingarighttowrittenreasonsfordismissalsduringthefullperiodforwhichdismissalprotectionisavailable.
59Breastfeedingfacilitiesareinsteadaddressedunderthenon-legislativemeasures(seediscussionaboveinthisarticle).
60CommunicationfromtheCommission,AnInitiativetosupportWork-lifeBalanceforWorkingParentsandCarers,COM(2017)252nal.
61SeeforexampleCouncilRecommendation92/241EEConchildcare[1992]OJL123/16andmorere-cently,CouncilRecommendation2013/112EUInvestinginChildren:Breakingthecircleofdisadvantage[2013]OJL59/5.
196E.
CaracciolodiTorelladevelopchildandlongtermcare.
FundingwillalsobeavailableundertheProgrammeforEmploymentandSocialInnovation62thatwillfundnewpilotschemesaddressedtoemployersforthedevelopmentofinnovativeworkingarrangementssuchasfam-ilyleavesandexibleworkingarrangements.
Theimportanceofthenon-legislativemeasurescannotbeemphasisedenough.
Byraisingawarenessandsharingbestprac-tice,theycontributetoshapinganenvironmentwherecareisseenasanintegralandunavoidablepartofsociety.
Potentially,theyaremorefarreachingthanthelegislativemeasures.
4ConclusionsTheNewStartInitiativeisastepintherightdirectionthatmustbecommendedandcelebrated.
Thisisnottosaythatitisawless.
Forexample,whilstthesystemofleaveprovidedbytheDirectiveissupportedbyaprohibitionondiscriminationforusingtherights,ageneralrightnottobediscriminatedagainstongroundsofcar-ingresponsibilityisstillnotprovided.
Furthermore,theoveralllegislativemeasurescontinuetoprivilegeparentsofyoung(andhealthy)childrenovercarersofadults.
Inaddition,theindividualrightsproposedneedtobedeveloped.
Despitethis,inmanyrespects,theNewStartInitiativeisground-breaking.
Sofar,measuresinthisareahavebeenintroducedinapiecemealfashion,atdifferentstages,withdifferentlegalbasesandhavelackedtheunderpinningofaclearvision.
Theyhavefocusedonim-provingthesituationofwomeninthecontextofpaidemployment,ratherthanlook-ingattheeffectofunpaidworkingeneral,andcaringresponsibilitiesinparticular.
Inotherwords,theyhavefailedtopromotesubstantiveandtransformativeequal-ity.
Bycontrast,theNewStartInitiativepresentsanintegratedapproachthatwillhelptoreconceptualisethewholearea.
Bydoingso,itmovesawayfromthehealthandsafetyvequalitydichotomyandintroduceswhatcommentatorshavearguedforsometime,namelyarighttocare.
63Suchanintegratedapproachacknowledgesthatcareisalife-cycle,anon-goingcommitmentthatdoesnotendwhenchildrengotoschool.
Onamorepracticallevel,theintegratedapproachisimportantbecauseifpoliciesandlegislationaredraftedinisolation,theycarrytheriskofreinforcinggen-derstereotyping.
Forexample,ifanyformofchildrelatedleave(maternity,paternityorparental)isnotcomplementedbythepossibilitytointroduceexibilityinone'sworkingarrangements,inpractice,itmightbeofverylimitedhelp.
Equally,iftheyarenotcomplementedbyanexpansionofaffordablecareservices,theywillmerelypostponethepointatwhichacarer(oftenawoman)willexitthelabourmarket.
Fur-thermore,theNewStartInitiative,inparticulartheWork-LifeBalanceDirective,willbetherstlegislativemeasurethatexpresslyacknowledgesthatmenarepivotaltothesuccessofreconciliationmeasures.
Asanalthought,thisarticlereectsonthechancesoftheNewStartInitiativesucceeding.
Ofcourseitisnotpossibletopredictwithcertaintyifitwillsucceed.
Itmightbeadoptedwithsignicantamendmentsthatwould(further)waterdownits62http://ec.
europa.
eu/social/main.
jspcatId=1081(asof23June2017).
63Seee.
g.
Busby[2].
AnemergentrighttocareintheEU.
.
.
197practicalpotential.
Evenwithamendments,however,theimportanceoftheprincipleitembodieswillstand.
Withthatsaid,theEuropeanCommissionhasmadeclearthatitssuccesswillrequirea"sharedcommitment"andinvitestheEUpoliticalinstitu-tionstoendorseandtoactivelysupporttheNewStartInitiatives.
Theseinstitutionsareencouragedtoworkinclosecooperationwithsocialpartnersandallotherrelevantstakeholdersto"stepuptheireffortsinprovidingbetterwork-lifebalancepoliciesandallowforimprovedwell-beingofourEuropeansociety".
64TheNewStartInitiativeingeneralandtheWork-LifeBalanceDirectiveinparticular,arelikelytosucceedbecausethissharedcommitmentisexactlywhatishappening.
Indeed,arguablyasaconsequenceoftheBrexitvote,theremaining27MemberStatesarenowcloserthanever.
65Thismightmeanthat,initiativessuchasthis,whichinthepasthaveencoun-teredtheoppositionoftheUK,66arenowmorelikelytogoforward.
IfBrexithasasilverlining,itisthat,ironically,ithaspotentiallycreatedthepossibilitytoachieveamoreinclusiveandsupportiveEuropeansociety.
OpenAccessThisarticleisdistributedunderthetermsoftheCreativeCommonsAttribution4.
0Inter-nationalLicense(http://creativecommons.
org/licenses/by/4.
0/),whichpermitsunrestricteduse,distribu-tion,andreproductioninanymedium,providedyougiveappropriatecredittotheoriginalauthor(s)andthesource,providealinktotheCreativeCommonslicense,andindicateifchangesweremade.
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