Europaudvalget 2025
KOM (2025) 0230
Offentligt
3035129_0001.png
EUROPEAN
COMMISSION
Brussels, 4.6.2025
COM(2025) 230 final
2025/0154 (NLE)
Proposal for a
COUNCIL DECISION
on guidelines for the employment policies of the Member States
EN
EN
 kom (2025) 0230 - Ingen titel
3035129_0002.png
EXPLANATORY MEMORANDUM
The Treaty on the Functioning of the European Union requires Member States to regard their
economic policies and promoting employment as a matter of common concern and to
coordinate their action within the Council. The Council is required to adopt employment
guidelines (Article 148), which must be consistent with the broad economic policy guidelines
(Article 121).
While the broad economic policy guidelines are valid on an ongoing basis, the employment
guidelines need to be drawn up each year. Both sets of guidelines were adopted together
(‘integrated package’) in 2010 and underpinned the Europe 2020 strategy. Revised integrated
guidelines were adopted in 2015. For the employment guidelines, a practice has developed
since 2018 of alternating between a full update (covering both recitals and guidelines proper)
every other year, and a ‘reconduction’ (updating the recitals while keeping the guidelines
proper unchanged) in the intermediate year. Following a reconduction in 2023, when the
recitals were adjusted to reflect the new EU headline and national targets on employment,
skills and poverty reduction and recent initiatives, a full update was carried out in 2024. The
update entailed adding references to the 2030 national targets (in addition to the EU headline
targets), putting greater focus on the impact of technological developments and AI, giving
more emphasis to labour and skills shortages, and placing increased attention on legal
migration from third countries in addition to harnessing talent within the EU. As in previous
years, the 2024 text also reflected recent policy initiatives of particular relevance, such as
platform work, the social economy and affordable housing. This year, the recitals are being
updated to bring in more elements related to (i) changes in the geopolitical context (including
trade policy tensions); (ii) the Union of Skills initiative; (iii) competitiveness in light of the
Competitiveness Compass; and (iv) upward social convergence following the second year of
implementation of the Social Convergence Framework, now fully embedded in the EU
economic governance framework.
Along with the broad economic policy guidelines, the employment guidelines are presented
as a Council Decision on guidelines for the employment policies of the Member States (Part
II of the Integrated Guidelines) and provide the basis for country specific recommendations
in the respective domains.
The revised “Employment Guidelines” are the following:
Guideline 5: Boosting the demand for labour
Guideline 6: Enhancing labour supply and improving access to employment, lifelong
acquisition of skills and competences
Guideline 7: Enhancing the functioning of labour markets and the effectiveness of social
dialogue
Guideline 8: Promoting equal opportunities for all, fostering social inclusion and fighting
poverty
EN
0
EN
 kom (2025) 0230 - Ingen titel
3035129_0003.png
2025/0154 (NLE)
Proposal for a
COUNCIL DECISION
on guidelines for the employment policies of the Member States
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular
Article 148(2) thereof,
Having regard to the proposal from the European Commission,
Having regard to the opinion of the European Parliament (
1
),
Having regard to the opinion of the European Economic and Social Committee (
2
),
After consulting the Committee of the Regions,
Having regard to the opinion of the Employment Committee (
3
),
Whereas:
(1)
Member States and the Union are to work towards developing a coordinated strategy
for employment and in particular for the promotion of a skilled, trained and adaptable
workforce, as well as labour markets that are inclusive, resilient, future-oriented and
responsive to economic change, with a view to achieving the objectives of full
employment and social progress, balanced economic growth, a high level of protection
and improvement of the quality of the environment laid down in Article 3 of the
Treaty on European Union (TEU). Member States are to regard promoting
employment as a matter of common concern and to coordinate their action in that
respect within the Council.
The Union is to combat social exclusion and discrimination, and to promote social
justice and protection, equality between women and men, solidarity between
generations and the protection of the rights of the child as laid down in Article 3 TEU.
In defining and implementing its policies and activities, the Union is to take into
account requirements linked to the promotion of a high level of employment, the
guarantee of adequate social protection, the fight against social exclusion, and a high
level of education, training and protection of human health as laid down in Article 9 of
the Treaty on the Functioning of the European Union (TFEU).
In accordance with the TFEU, the Union has developed and implemented policy
coordination instruments for economic and employment policies. As part of those
instruments, the guidelines for the employment policies of the Member States (the
‘Employment Guidelines’) set out in the Annex to Council Decision (EU) 2024/3134
(2)
(3)
1
2
3
Opinion of tbd DATE 2025 (not yet published in the Official Journal).
Opinion of tbd DATE 2025 (not yet published in the Official Journal).
Opinion of tbd DATE 2025 (not yet published in the Official Journal).
EN
1
EN
 kom (2025) 0230 - Ingen titel
3035129_0004.png
(
4
), together with the broad guidelines for the economic policies of the Member States
and of the Union set out in Council Recommendation (EU) 2015/1184 (
5
), form the
Integrated Guidelines. The Employment Guidelines are to guide policy
implementation in the Member States and in the Union, reflecting the interdependence
between the Member States. The resulting set of coordinated Union and national
policies and reforms constitutes an appropriate overall sustainable economic,
employment and social policy mix, which should achieve positive spill-over effects for
labour markets and society at large, strengthen economic and social resilience, and
effectively respond to medium- and longer-term challenges, including the need to
strengthen competitiveness, uncertainty about global trade policies, as well as effects
related to Russia’s war of aggression against Ukraine and the broader geopolitical
context.
(4)
In order to enhance economic and social progress and upward convergence, to support
the green and digital transitions, to strengthen the Union industrial base, productivity
and competitiveness, to face the demographic challenges, and to achieve inclusive and
resilient labour markets in the Union, Member States should address labour and skills
shortages and promote quality jobs as well as quality and inclusive education and
training for all, in line with the Union of Skills (
6
), with a particular focus on
improving basic skills, based on the Action Plan on Basic Skills, as well as labour
market relevant skills, including digital and green skills, especially among
disadvantaged students and adults. Member States should also boost STEM (science,
technology, engineering and mathematics) education and training, in line with the
STEM Education Strategic Plan, strengthen future-oriented vocational education and
training, and lifelong upskilling and reskilling, and striving for inclusive education
systems, as well as ensure effective active labour market policies and improved
working conditions and career opportunities, while respecting the role and autonomy
of the social partners. As stated in the Recommendation on learning for the green
transition and sustainable development, integrating the education and training
dimension systematically into other policies related to the green transition in a lifelong
perspective can support the implementation of those policies. Strengthening these
elements is of particular relevance for the less developed, remote and outermost
regions of the Union, where the needs are the greatest. Shortages can be further
addressed by improving fair intra-EU mobility for workers and learners and attracting
and retaining talent from outside the Union. In addition, the links between the
education and training systems and the labour market should be strengthened, and
skills, knowledge and competences acquired through non-formal and informal learning
should be validated and recognised.
The Employment Guidelines are consistent with the new economic governance
framework of the Union, which entered into force on 30 April 2024 (
7
), and with
Council Decision (EU) 2024/3134 of 2 December 2024 on guidelines for the employment policies of
the Member States (OJ L, 2024/3134, 13.12.2024).
Council Recommendation (EU) 2015/1184 of 14 July 2015 on broad guidelines for the economic
policies of the Member States and of the European Union (OJ L 192, 18.7.2015, p. 27).
Communication of the Commission of 5 March 2025, entitled ‘The Union of Skills’ (COM(2025) 90
final).
Regulation (EU) 2024/1263 of the European Parliament and of the Council of 29 April 2024 on the
effective coordination of economic policies and on multilateral budgetary surveillance and repealing
Council
Regulation
(EC)
No
1466/97
(OJ
L,
2024/1263,
30.4.2024,
ELI: http://data.europa.eu/eli/reg/2024/1263/oj).
(5)
4
5
6
7
EN
2
EN
 kom (2025) 0230 - Ingen titel
3035129_0005.png
existing Union legislation and various Union initiatives, including Council
Recommendations of 14 June 2021 (
8
), 29 November 2021 (
9
), 5 April 2022 (
10
), 16
June 2022 (
11
), 28 November 2022 (
12
), 8 December 2022 (
13
), 30 January 2023 (
14
),
12 June 2023 (
15
) and 27 November 2023 (
16
), Commission Recommendation (EU)
2021/402 (
17
), Council Resolution of 26 February 2021 (
18
), Commission
Communications of 9 December 2021 on building an economy that works for people:
an action plan for the social economy, of 30 September 2020 on the Digital Education
Action Plan 2021-2027, of 3 March 2021 on Union of Equality: Strategy for the
Rights of Persons with Disabilities 2021-2030, of 7 September 2022 on a European
Care Strategy, of 1 February 2023 on A Green Deal Industrial Plan for the Net-Zero
Age, of 25 January 2023 on strengthening social dialogue in the European Union, of
11 October 2023 demographic change in Europe: a toolbox for action, of
28 September 2022 on Better assessing the distributional impact of Member States’
policies, of 20 March 2024 on labour and skills shortages in the EU: an action plan,
and of 5 March 2025 on the Union of Skills, Decisions (EU) 2021/2316 (
19
) and
(EU) 2023/936 (
20
) of the European Parliament and of the Council, and Directives
(EU) 2022/2041 (
21
), (EU) 2022/2381 (
22
), (EU) 2023/970 (
23
) and (EU) 2024/2831
(
24
) of the European Parliament and of the Council.
8
9
10
11
12
13
14
15
16
17
18
19
20
21
Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee
(OJ L 223, 22.6.2021, p. 14).
Council Recommendation of 29 November 2021 on blended learning approaches for high-quality and
inclusive primary and secondary education (OJ C 504, 14.12.2021, p. 21).
Council Recommendation of 5 April 2022 on building bridges for effective European higher education
cooperation (OJ C 160, 13.4.2022, p.1).
Council Recommendation of 16 June 2022 on learning for the green transition and sustainable
development (OJ C 243, 27.6.2022, p. 1), Council Recommendation of 16 June 2022 on a European
approach to micro-credentials for lifelong learning and employability (OJ C 243, 27.6.2022, p. 10),
Council Recommendation of 16 June 2022 on individual learning accounts (OJ C 243, 27.6.2022, p. 26)
and Council Recommendation of 16 June 2022 on ensuring a fair transition towards climate neutrality
(OJ C 243, 27.6.2022, p. 35).
Council Recommendation of 28 November 2022 on Pathways to School Success and replacing the
Council Recommendation of 28 June 2011 on policies to reduce early school leaving (OJ C 469,
9.12.2022, p. 1).
Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care (OJ
C 476, 15.12.2022, p. 1) and Council Recommendation of 8 December 2022 on early childhood
education and care: the Barcelona targets for 2030 (OJ C 484, 20.12.2022, p. 1).
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion
(OJ C 41, 3.2.2023, p.1).
Council Recommendation of 12 June 2023 on strengthening social dialogue in the European Union (OJ
C, C/2023/1389, 6.12.2023, ELI: http://data.europa.eu/eli/C/2023/1389/oj).
Council Recommendation of 27 November 2023 on developing social economy framework conditions
(OJ C, C/2023/1344, 29.11.2023, ELI: http://data.europa.eu/eli/C/2023/1344/oj).
Commission Recommendation (EU) 2021/402 of 4 March 2021 on an effective active support to
employment following the COVID-19 crisis (EASE) (OJ L 80, 8.3.2021, p. 1).
Council Resolution on a strategic framework for European cooperation in education and training
towards the European Education Area and beyond (2021-2030) (OJ C 66, 26.2.2021, p. 1).
Decision (EU) 2021/2316 of the European Parliament and of the Council of 22 December 2021 on a
European Year of Youth (2022) (OJ L 462, 28.12.2021, p. 1).
Decision (EU) 2023/936 of the European Parliament and of the Council of 10 May 2023 on a European
Year of Skills (OJ L 125, 11.5.2023, p. 1).
Directive (EU) 2022/2041 of the European Parliament and of the Council of 19 October 2022 on
adequate minimum wages in the European Union (OJ L 275, 25.10.2022, p. 33).
EN
3
EN
 kom (2025) 0230 - Ingen titel
3035129_0006.png
(6)
The European Semester combines various instruments in an overarching framework
for integrated multilateral coordination and surveillance of economic and employment
policies within the Union. The Semester is aligned with the Competitiveness Compass
which provides a framework to boost competitiveness by closing the innovation gap,
decarbonising our economy, reducing excessive dependencies and increasing security,
and sets out horizontal enablers that include skills, quality jobs and social fairness. The
Semester integrates the principles of the European Pillar of Social Rights, proclaimed
by the European Parliament, the Council and the Commission in November 2017 (
25
)
(the ‘European Pillar of Social Rights’), and its monitoring tool, the Social
Scoreboard, also allowing an analysis of risks and challenges to upward social
convergence in the Union, and provides for strong engagement with social partners,
civil society and other stakeholders. The European Semester also supports the delivery
of the Sustainable Development Goals set out by the United Nations. The economic
and employment policies of the Union and the Member States should go hand in hand
with the Union’s fair transition to a climate-neutral, environmentally sustainable and
digital economy, improve competitiveness and productivity, ensure adequate working
conditions, foster innovation, promote democracy at work, social dialogue, social
justice, equal opportunities and upward socio-economic convergence, tackle
inequalities and regional disparities, and fight poverty and social exclusion.
Climate change and other environment-related challenges, the need to ensure a fair
green transition, energy independence and enhanced competitiveness of net-zero
industries, technological sovereignty, and the need to increase defence spending and
secure Europe’s open strategic autonomy, as well as demographic changes and the
development of digitalisation, including artificial intelligence, algorithmic
management, the platform economy and teleworking are deeply transforming
economies and societies in the Union. The Union and its Member States are to work
together to effectively and proactively address such structural developments and adapt
existing systems as needed, recognising the close interdependence of the Member
States’ economies and labour markets, and related policies. That requires coordinated,
ambitious and effective policy action at both Union and national levels while
recognising the role of social partners, in accordance with the TFEU and with the
Union’s provisions on economic governance, taking into account the European Pillar
of Social Rights. Such policy action should encompass a boost in sustainable
investment across all Union regions, a renewed commitment to appropriately
sequenced reforms and investments that enhance sustainable and inclusive economic
growth, skills, the promotion of quality jobs, productivity, competitiveness, and fair
working conditions, social and territorial cohesion, upward socio-economic
convergence, resilience and the exercise of fiscal responsibility. Support should be
provided from existing Union funding programmes, and in particular the Recovery and
Resilience Facility established by Regulation (EU) 2021/241 of the European
Directive of the European Parliament and of the Council (EU) 2022/2381 of 23 November 2022 on
improving the gender balance among directors of listed companies and related measures (OJ L 315,
7.12.2022, p. 44).
Directive (EU) 2023/970 of the European Parliament and of the Council of 10 May 2023 to strengthen
the application of the principle of equal pay for equal work or work of equal value between men and
women through pay transparency and enforcement mechanisms (OJ L 132, 17.5.2023, p. 21).
Directive (EU) 2024/2831 of the European Parliament and of the Council of 23 October 2024 on
improving working conditions in platform work (OJ L, 2024/2831, 11.11.2024,
ELI: http://data.europa.eu/eli/dir/2024/2831/oj).
Interinstitutional Proclamation on the European Pillar of Social Rights (OJ C 428, 13.12.2017, p. 10).
(7)
22
23
24
25
EN
4
EN
 kom (2025) 0230 - Ingen titel
3035129_0007.png
Parliament and of the Council (
26
) and the cohesion policy funds, including the
European Social Fund Plus established by Regulation (EU) 2021/1057 of the
European Parliament and of the Council(
27
) and the European Regional Development
Fund governed by Regulation (EU) 2021/1058 of the European Parliament and of the
Council (
28
), as well as the Social Climate Fund established by Regulation (EU)
2023/955 of the European Parliament and of the Council (
29
) and the Just Transition
Fund established by Regulation (EU) 2021/1056 of the European Parliament and of
the Council (
30
). Policy action should combine supply-side and demand-side measures,
while taking into account the economic, environmental, employment and social impact
of such measures.
(8)
The European Pillar of Social Rights sets out twenty principles and rights to support
well-functioning and fair labour markets and welfare systems, structured around three
categories: equal opportunities and access to the labour market, fair working
conditions, and social protection and inclusion. Those principles and rights give
strategic direction to the Union, ensuring that the transitions to climate-neutrality,
environmental sustainability and digitalisation and the impact of demographic change
are socially fair and just and preserve territorial cohesion. The European Pillar of
Social Rights, with its accompanying Social Scoreboard, constitutes guidance to
monitor the employment, skills and social performance of Member States, including
upward social convergence in the Union, within the European Semester, to drive
reforms and investments at national, regional and local levels and to reconcile the
‘social’ and the ‘market’ in today’s modern economy, including by promoting the
social economy. On 4 March 2021, the Commission put forward an Action Plan for
the implementation of the European Pillar of Social Rights (the ‘Action Plan’),
including ambitious yet realistic Union headline targets for 2030 on employment (that
at least 78 % of the population aged 20-64 should be in employment), skills (that at
least 60 % of all adults should participate in training every year) and poverty reduction
(that at least 15 million fewer people should be at risk of poverty or social exclusion,
including 5 million children) (the ‘Union headline targets for 2030’) and
complementary sub-targets, as well as a revised Social Scoreboard.
As recognised by the Heads of State or Government at the Porto Social Summit on 8
May 2021, the implementation of the European Pillar of Social Rights will strengthen
the Union’s drive towards a digital, green and fair transition and contribute to
achieving upward social and economic convergence and addressing demographic
challenges. The Heads of State or Government stressed that the social dimension,
social dialogue and the active involvement of social partners are at the core of a highly
competitive social market economy, and welcomed the new Union headline targets.
They affirmed their determination, as established by the European Council’s Strategic
Agenda 2019-2024, to continue deepening the implementation of the European Pillar
Regulation (EU) 2021/241 of the European Parliament and of the Council of 12 February 2021
establishing the Recovery and Resilience Facility (OJ L 57, 18.2.2021, p. 17).
Regulation (EU) 2021/1057 of the European Parliament and of the Council of 24 June 2021 establishing
the European Social Fund Plus (ESF+) and repealing Regulation (EU) No 1296/2013 (OJ L 231,
30.6.2021, p. 21).
Regulation (EU) 2021/1058 of the European Parliament and of the Council of 24 June 2021 on the
European Regional Development Fund and on the Cohesion Fund (OJ L 231 30.6.2021, p. 60).
Regulation (EU) 2023/955 of the European Parliament and of the Council of 10 May 2023 establishing
a Social Climate Fund and amending Regulation (EU) 2021/1060 (OJ L 130, 16.5.2023, p. 1-51).
Regulation (EU) 2021/1056 of the European Parliament and of the Council of 24 June 2021 establishing
the Just Transition Fund (OJ L 231, 30.6.2021, p. 1).
(9)
26
27
28
29
30
EN
5
EN
 kom (2025) 0230 - Ingen titel
3035129_0008.png
of Social Rights at Union and national levels, with due regard for respective
competences and the principles of subsidiarity and proportionality. Lastly, they
stressed the importance of closely following, including at the highest level, progress
achieved towards the implementation of the European Pillar of Social Rights and the
Union headline targets for 2030.
(10)
The Union headline targets for 2030 were welcomed by the Heads of State or
Government at the Porto Social Summit and by the June 2021 European Council. They
help, together with the Social Scoreboard, in monitoring progress towards the
implementation of the principles of the European Pillar of Social Rights as part of the
policy coordination framework in the European Semester. In addition, the Porto Social
Summit called on Member States to set ambitious national targets which, taking due
account of the starting position of each Member State, should constitute an adequate
contribution to the achievement of the Union headline targets for 2030. The
implementation of the European Pillar of Social Rights and progress on the Union
headline and national targets for 2030 is monitored in the Joint Employment Report
adopted by the Council in March 2025 (the ‘Joint Employment Report 2025’), and is
integrated into the monitoring tools for the European Semester. Since its 2024 edition,
the Joint Employment Report contains a ‘first-stage country analysis’ on potential
risks to upward social convergence in line with the Social Convergence Framework
that identifies Member States which experience potential risks to be examined in a
deeper ‘second-stage analysis’. In the Joint Employment Report 2025, 10 Member
States were initially identified, and the conclusion of the deeper analysis showed that
overall challenges were confirmed for three of them.
Following the Russian invasion of Ukraine, the European Council, in its conclusions
of 24 February 2022, condemned Russia’s actions, which seek to undermine European
and global security and stability, and expressed solidarity with the Ukrainian people,
underlining Russia’s violation of international law and the principles of the United
Nations Charter. In the current context, temporary protection, as granted by Council
Implementing Decision (EU) 2022/382 (
31
) and extended by Council Implementing
Decision (EU) 2024/1836 (
32
), offers assistance in the Union to people displaced from
Ukraine and allows them to enjoy minimum rights across the Union that offer an
adequate level of protection. By participating in the Union’s labour markets, persons
displaced from Ukraine can continue to contribute to strengthening the Union’s
economy and help support their country and people at home. In the future, the
experience and skills acquired can contribute to rebuilding Ukraine. For
unaccompanied children and teenagers, temporary protection confers the right to legal
guardianship and access to childhood education and care. Member States should
continue to involve social partners in the design, implementation and evaluation of
policy measures that aim to address the employment and skills challenges, including
the recognition of qualifications of people displaced from Ukraine. Social partners
play a key role in mitigating the impact of that war in terms of preserving employment
and production.
(11)
31
32
Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass
influx of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and
having the effect of introducing temporary protection (OJ L 71, 4.3.2022, p. 1).
Council Implementing Decision (EU) 2024/1836 of 25 June 2024 extending temporary protection as
introduced by Implementing Decision (EU) 2022/382
(
OJ L, 2024/1836, 3.7.2024,
ELI: http://data.europa.eu/eli/dec_impl/20234/1836/oj).
EN
6
EN
 kom (2025) 0230 - Ingen titel
3035129_0009.png
(12)
Reforms to the labour market, including national wage-setting mechanisms, should
observe national practices of social dialogue and collective bargaining, as well as the
autonomy of the social partners, with a view to providing fair wages that enable a
decent standard of living, including in retirement, sustainable growth and upward
socio-economic convergence. Such reforms should allow for a broad consideration of
socio-economic factors, including improvements in sustainability, competitiveness,
innovation, the promotion of quality jobs, fair working conditions, democracy at work,
gender equality, prevention and reduction of in-work poverty, quality education,
training, and skills, public health, social protection and inclusion, demographic change
and the promotion of supplementary pensions, as well as real incomes. The importance
of social dialogue in tackling challenges in the world of work, including labour and
skills shortages, was reaffirmed at the 2024 Val Duchesse Summit and in the Pact for
European Social Dialogue signed in March 2025.
The Recovery and Resilience Facility and other Union funds are supporting Member
States in implementing reforms and investments that are in line with the Union’s
priorities, making economies and societies in the Union more sustainable and resilient
and better prepared for the green and digital transitions. Russia’s war of aggression
against Ukraine has further aggravated pre-existing socio-economic challenges
including energy poverty through higher energy prices, while uncertainties in global
trade and more widely from the geo-political context endanger growth. Member States
and the Union should continue to ensure that the social, employment and economic
impacts are mitigated and that transitions are socially fair and just, also in light of the
fact that increased open strategic autonomy and an accelerated green transition will
help reduce the dependence on imports of energy and other strategic products and
technologies. Strengthening resilience and pursuing an inclusive society in which
people are protected and empowered to anticipate and manage change, and in which
they can actively participate in society and the economy, are essential.
A coherent set of active labour market policies, consisting of temporary and targeted
hiring and transition incentives, skills policies, including learning for the green
transition and sustainable development, flexible retirement paths, and targeted,
effective and adaptable employment services, is needed to support labour market
transitions and make full use of untapped labour market potential, also in line with the
active inclusion approach and in light of the green and digital transformations, as
highlighted inter alia in the 2024 La Hulpe Declaration on the Future of the European
Pillar of Social Rights (
33
). Adequate working conditions and occupational health and
safety, including both the physical and mental health of workers, should be ensured.
Discrimination in all its forms should be tackled, gender equality ensured and the
employment of groups that are under-represented in the labour market supported.
Equal access and opportunities for all should be ensured and poverty and social
exclusion, in particular that of children, persons with disabilities and the Roma people,
should be reduced, in particular by ensuring an effective functioning of labour markets
and adequate and inclusive social protection systems, as set out in the Council
Recommendations of 8 November 2019 (
34
) and of 30 January 2023 (
35
). In addition,
Signed by the Kingdom of Belgium on behalf of 25 Member States.
Council Recommendation of 8 November 2019 on access to social protection for workers and the self-
employed
(
OJ C 387, 15.11.2019, p. 1).
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion
(OJ C 41, 3.2.2023, p. 1).
(13)
(14)
(15)
33
34
35
EN
7
EN
 kom (2025) 0230 - Ingen titel
3035129_0010.png
barriers to inclusive and future-oriented high-quality education and training, lifelong
learning and labour-market participation should be removed. Member States should
invest in early childhood education and care, in line with the European Child
Guarantee and the Recommendation on the ‘Barcelona targets for 2030’, in making
vocational education and training more attractive and inclusive, in line with the
Council Recommendation of 24 November 2020 (
36
), and in digital and green skills, in
line with the Digital Education Action Plan and the Recommendations on learning for
the green transition and sustainable development and on Pathways to School Success.
Access to affordable and adequate housing, including through social housing, is a
necessary condition for ensuring equal opportunities. Homelessness should be tackled,
specifically with prevention measures and by promoting access to permanent housing
and the provision of enabling support services. Timely and equal access to affordable
high-quality long-term care, in line with the Council Recommendation of 8 December
2022 (
37
), and healthcare services, including prevention and health promotion, are
particularly relevant, in light of potential future health risks and in a context of ageing
societies. The potential of persons with disabilities to contribute to economic growth
and social development should be further realised, in line with the Strategy for the
Rights of Persons with Disabilities, which invited Member States to set up
employment and adult learning targets for persons with disabilities. The EU Roma
Strategic Framework (
38
) highlights the capacity within the marginalised Roma
communities to reduce labour and skills shortages and aims to cut the employment gap
between Roma and the general population by at least half. New technologies and
evolving workplaces throughout the Union allow for more flexible working
arrangements as well as improved productivity and work-life balance, whilst
contributing to the Union’s green commitments. Those developments also bring new
challenges to labour markets, affecting working conditions, health and safety at work
and effective access to adequate social protection for workers and the self-employed.
Member States, in collaboration with the social partners, should ensure that new forms
of work organisation translate into quality jobs and adequate healthy and safe
workplaces and working conditions, as well as work-life balance, active and healthy
ageing, maintaining established labour and social rights, and strengthening the
European social model.
(16)
The Integrated Guidelines should serve as a basis for the country-specific
recommendations that the Council addresses to Member States. Member States should
make full use of the European Social Fund Plus, the European Regional Development
Fund, the Recovery and Resilience Facility and other Union funds, including the
Social Climate Fund, the Just Transition Fund and InvestEU established by Regulation
(EU) 2021/523 of the European Parliament and of the Council (
39
), as well as the
Technical Support Instrument, to foster quality employment and social investments, to
Council Recommendation of 24 November 2020 on vocational education and training (VET) for
sustainable competitiveness, social fairness and resilience (OJ C 417, 2.12.2020, p. 1).
Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care
(
OJ
C 476, 15.12.2022, p. 1).
Communication of the Commission of 7 October 2020, entitled ‘A Union of Equality: EU Roma
strategic framework for equality, inclusion and participation’ (COM(2020) 620 final), and Council
Recommendation of 12 March 2021 on Roma equality, inclusion and participation (OJ C 93, 19.3.2021,
p. 1).
Regulation (EU) 2021/523 of the European Parliament and of the Council of 24 March 2021
establishing the InvestEU Programme and amending Regulation (EU) 2015/1017 (OJ L 107, 26.3.2021,
p. 30).
36
37
38
39
EN
8
EN
 kom (2025) 0230 - Ingen titel
3035129_0011.png
fight poverty and social exclusion, to combat discrimination, to ensure accessibility
and inclusion, and to promote upskilling and reskilling opportunities for the
workforce, lifelong learning and high-quality education and training for all, including
digital literacy and skills in order to empower citizens with the knowledge and
qualifications required for a digital, green and competitive economy. The amendments
introduced by Regulation (EU) 2024/795 establishing a Strategic Technologies for
Europe Platform (STEP) and the recent Commission Communication on the
modernised Cohesion policy: Mid-term review aim at aligning the support provided to
new strategic priorities, including to address the shortage of skills in certain sectors,
such as for the development and manufacturing of critical technologies, defence
industry and sectors affected by decarbonisation and the green and digital transitions.
Member States should also make full use of the European Globalisation Adjustment
Fund for Displaced Workers established by Regulation (EU) 2021/691 of the
European Parliament and of the Council (
40
) to support workers made redundant as a
result of major restructuring events, such as socio-economic transformations that are
the result of global trends and technological and environmental changes. While the
Integrated Guidelines are addressed to Member States and the Union, they should be
implemented in partnership with all national, regional and local authorities, closely
involving parliaments, as well as the social partners and representatives of civil
society.
(17)
The Employment Committee and the Social Protection Committee should monitor
how the relevant policies are implemented in light of the Employment Guidelines, in
line with their respective mandates under the TFEU. Those committees and the
Council preparatory bodies involved in the coordination of economic and social
policies should work closely together. Policy dialogue between the European
Parliament, the Council and the Commission should be maintained, in particular as
regards the Employment Guidelines.
The Social Protection Committee was consulted,
(18)
HAS ADOPTED THIS DECISION:
Article 1
The Guidelines for the employment policies of the Member States, as set out in the Annex to
Decision (EU) 2024/3134, are maintained for 2025 and shall be taken into account by the
Member States in their employment policies and reform programmes.
Article 2
This Decision is addressed to the Member States.
Done at Brussels,
For the Council
The President
40
Regulation (EU) 2021/691 of the European Parliament and of the Council of 28 April 2021 on the
European Globalisation Adjustment Fund for Displaced Workers (EGF) and repealing Regulation (EU)
No 1309/2013 (OJ L 153, 3.5.2021, p. 48).
EN
9
EN