On paper at least, the European Community is meant to play a dynamic role in the promotion of "improved working conditions and an improved standard of living" for the working people of Western Europe (Treaty of Rome, 1957, Article 117). Indeed, it has been able to do so in the past, for example, with regard to the rights of migrant workers travelling between Member Countries. Past experience, however, has also demonstrated that the odds run against success for social policy-makers in international organizations such as the EC. In the first place, they are constantly being buffeted about by the changeable economic and political tides of national governments. Thus, the ambitious "Social Action Programme" was enthusiastically approved by the Council of Ministers in 1974, but when it became apparent in the following years that serious economic difficulties were settling down to stay, many of the Programme's most important objectives were set aside, as deflation became the new priority. A second, complex problem emerges in a body of ten nations with ten distinct sets of historical traditions, cultural characteristics, and social problems. A proposal with progressive implications for the Irish Republic might well seem out of touch with the needs of the people in France. Thirdly, there is the nagging problem of treaty competence. Article 118 of the Treaty of Rome specifically entitles the Commission to promote cooperation between members in the social field in matters relating to employment, labour law and working conditions, vocational training, social security, occupational health and safety regulations, and industrial relations. But because social policy is by nature concerned with human beings whose lives cannot always be divided into such tidy compartments, it is no simple matter to maintain a strict distinction between those issues proper for the Commission to handle, and those which should remain under the jurisdiction of national governments. Finally, and... [ABSTRACT FROM AUTHOR]