Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Mobility, an instrument for more and better jobs: The European Job Mobility Action Plan (2007-2010)
Date: 2007-12-06
Institutions: European Commission
Subjects: action programme, economic and social cohesion, employment policy, geographical mobility, labour mobility

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 6.12.2007 
COM(2007) 773 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS  

Mobility, an instrument for more and better jobs: The European Job Mobility Action 
Plan (2007-2010) 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS  

Mobility, an instrument for more and better jobs: The European Job Mobility Action Plan 
(2007-2010) 

1. 

GENERAL POLICY CONTEXT 

In  a  Europe  with  no  internal  borders,  and  competing  in  a  global  economy,  the  changing 
demands of an ageing society and a labour market in constant evolution demand much greater 
levels of mobility. Worker mobility is a key instrument for an efficiently functioning single 
market and is essential for allowing more people to find better employment, a key objective of 
the  Lisbon  Strategy1.  The  enlargement  of  the  EU  in  2004  and  2007  increased  both  the 
opportunities for workers to find a job, and for employers to find workers. Most of the EU-15 
Member  States  have  lifted  or  eased  restrictions  they  applied  for  citizens  from  eight  of  the 
Member  States  which  joined  the  EU  in  2004  creating  a  large  potential  labour  force  to  cope 
with the challenges of ageing and globalisation. 

Workers need to be more mobile both between jobs, and between regions and Member States. 
They need to be given the right skills and opportunities to move frequently between jobs and 
to  progress  in  their  careers.  This  is  the  key  aim  of  the  commonly  agreed  principles  on 
flexicurity2,  a  concept  that  can  help  people  to  manage  employment  transitions  more 
successfully in times of accelerating economic change. 

However, worker mobility still remains rather restricted by a number of barriers. Aside from 
an uncertainty over the advantages of being mobile, individuals face a number of hurdles to 
their movement. These can range from legal and administrative obstacles, housing costs and 
availability, employment of spouses and partners, portability of pensions, linguistic barriers, 
and issues on the acceptance of qualifications in other Member States. 

2. 

LESSONS FROM THE 2002 ACTION PLAN AND 2006 EUROPEAN YEAR OF WORKERS' 
MOBILITY 

This  Communication  represents  a  further,  important  step  in  a  long  line  of  initiatives  to 
promote  mobility.  Based  on  a  process  launched  in  February  2001  by  the  Commission's 
Communication  on  the  New  Labour  Markets3,  the  conclusions  of  the  Stockholm  European 
Council of March 2001 and the work of the High Level Task Force on Skills and Mobility, 
the Commission adopted in February 2002 an Action Plan for Skills and Mobility4. The Final 

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See Integrated Guidelines for Growth and Jobs (2005-2008), Guideline No 20. 
Towards  Common  Principles  of  Flexicurity:  More  and  better  jobs  through  flexibility  and  security. 
COM(2007) 359 of 27.6.2007.  
New European Labour Markets, Open to All, with Access for All – COM(2001) 116 of 28.2.2001. 
Commission's Action Plan for Skills and Mobility – COM(2002) 72 of 13.2.2002. 

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Report  on  this  Action  Plan,  adopted  on  25  January  20075  looked  at  the  lessons  to  be  learnt 
from the plan and presented three main areas for follow-up:  

•  making  education  and  training  systems  more  responsive  to  the  labour  market  and  to 

preparing people for mobility via language learning, 

•  removing legal and administrative barriers and promoting the cross-border recognition of 

qualifications, 

•  and  setting  up  a  one-stop  mobility  information  portal,  based  on  the  EURES  job  vacancy 

system. 

The  2002  Action  Plan  also  proposed  the  designation  of  2006  as  the  European  Year  of 
Workers'  Mobility.  The  debate  launched  during  this  Year,  and  supported  by  economic 
surveys6, illustrated clearly the variety and impact of remaining obstacles to mobility within 
the EU. It also argued strongly for the need to provide a favourable environment for mobility 
in order to allow it to become a normal practice in people's careers. 

Based on the lessons and on the strong connection between worker mobility and a number of 
learning,  multilingualism  and 
ongoing  policy  debates,  such  as  flexicurity, 
demographic  change,  the  Commission  launches,  with  this  Communication,  a  Job  Mobility 
Action Plan for 2007-2010. The aims of this Action Plan are to: 

lifelong 

•  improve existing legislation and administrative practices regarding worker mobility; 

•  ensure policy support for mobility from authorities at all levels; 

•  reinforce  EURES  as  the  one-stop  instrument  to  facilitate  mobility  of  workers  and  their 

families; 

•  foster awareness of the possibilities and advantages of mobility among the wider public. 

3. 

INCREASING PEOPLE'S READINESS TO BE MOBILE 

Worker mobility in the EU remains relatively low, although statistics on mobility flows or 
on the underlying motivations need improvement. Around 2% of working-age citizens from 
one  of  the  27  EU  Member  States  currently  live  and  work  in  another  Member  State.  By 
comparison, the respective share of third-country citizens residing in the EU is almost twice 
as high. There does however appear to have been a gradual increase in mobility over recent 
years.  The  number  of  mobile  workers  within  the  EU-15  has  increased  from  about  470 000 
persons  in  2000  to  around  610  000  in  2005  (European  Labour  Force  Survey)7.  In  addition, 
although  often  not  included  in  national  figures,  the  number  of  seasonal  and  cross-border 

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Final  Report  on  the  Implementation  of  the  Commission's  Action  Plan  for  Skills  and  Mobility 
COM(2002) 72 final - COM(2007) 24 of 25.1.2007. 
OECD  Economic  Survey  2007  –  European  Union,  Chapter  8:  "Removing  obstacles  to  geographical 
labour mobility". 
The impact of the accession of new Member States is also addressed in the Commission's "Report on 
the Functioning of the Transitional Arrangements set out in the 2003 Accession Treaty (period 1 May 
2004–30 April 2006)", COM(2006) 48 of 8.2.2006. 

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workers (including summer jobs for young people) may be significant and increase further the 
overall percentage of EU migrant workers8. 

Recently surveyed attitudes of Europeans towards mobility also indicate people recognise 
the importance of worker mobility. According to a 2006 Eurobarometer survey 57% said that 
mobility across regions or countries is positive for European integration; 46% think it is good 
for  labour  markets  and  for  the  individual;  and  40%  that  it  is  good  for  the  economy. 
Furthermore 5.5% of citizens from EU-10 say that they are likely to move to another Member 
State in the next five years. Intentions for future mobility within Europe have increased in all 
Member States to varying degrees9. 

Statistics  also  show  new  trends  in  mobility  patterns.  More  young  and  higher-skilled 
workers  engage  in  'multi-mobility  practices',  -  short  mobile  periods  responding  to  specific 
needs  in  a  professional  career,  a  tendency  illustrating  that  mobility  is  becoming  more 
integrated into career perspectives and linked to lifelong learning. The Eurobarometer survey 
shows that a clear majority of young workers – over 70% – are now aware that their career 
will require some form of mobility. 

Despite the low worker mobility rate, there is an increasingly strong case to argue that citizens 
are more ready to be mobile than before. A favourable context seems therefore to be in place 
to build on lessons learnt and to strengthen efforts to tackle barriers to mobility. The gained 
experiences revealed clearly the negative impact of obstacles to geographical mobility at the 
European,  national,  regional  or  local  levels.  In  addition  to  legal  and  administrative  barriers, 
for  example  in  the  area  of  social  security,  mobility  is  discouraged  by  practical  obstacles  in 
domains such as housing, languages, employment of spouses and partners. There are further 
costs to mobility for individuals, e.g. the non-recognition of mobility related experiences for 
career  prospects,  particularly  within  SMEs.  These  barriers  relate  to  issues  that  need  to  be 
tackled  at  various  levels,  local,  regional,  national  and  EU  wide.  This  action  plan  presents 
specific actions aiming to help remove obstacles at the European level and to encourage the 
relevant authorities to deal with the obstacles at the national, regional or local level. 

4. 

CONFRONTING CHALLENGES: THE 2007-2010 JOB MOBILITY ACTION PLAN 

The  Lisbon  Strategy  and  the  European  Employment  Strategy  have  identified  enhanced 
geographic and job-to-job mobility as important in creating employment and developing the 
employability and adaptability of the EU workforce in the context of rapidly changing labour 
markets.  This  Communication  presents  an  Action  Plan  in  four  domains  to  ensure  the 
Commission  builds  upon  the  hitherto  experiences  in  this  field.  The  foreseen  actions  are 
complementary to other important legislation and initiatives at Community level.10 

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of 

Workers crossing borders inside the EU and the European Economic Area. 
See  "Long-distance  mobility  in  Europe:  Getting  the  balance  right",  European  Foundation  for  the 
Improvement 
(2006) 
Living 
(http://www.eurofound.europa.eu/pubdocs/2006/36/en/1/ef0636en.pdf ). 
E.g. Directive 2005/36/EC on the mutual recognition of professional qualifications, to be implemented 
by 20.10.2007, the Single Market Review,.the implementation of directive 2006/123/EC on Services in 
the  Internal  Market,  due  to  be  implemented  before  the  end  of  2009;  the  eGovernment  Action  Plan 
COMM (2006)173 on the use of ICT for modernising government services, also in their trans-national 
dimension; the ongoing implementation of the "Council Directive 2005/71/EC on a specific procedure 
for admitting third-country nationals for the purposes of scientific research.  

Conditions 

Working 

and 

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4.1. 

Improving existing legislation and administrative practices 

An  important  instrument  for  promoting  worker  mobility  within  the  EU  is  the  Community 
legislation on the coordination of social security schemes, currently laid down in Regulation 
(EEC)  No  1408/7111  and  its  Implementing  Regulation  (EEC)  No  574/7212.  These  rules  are 
designed  to  ensure  that  EU  migrant  workers  who  make  use  of  their  Community  right  to 
freedom of movement do not face a loss of social security protection. 

The  Regulations  have  proven  to  be  a  successful  instrument  in  achieving  this  objective. 
However, new forms of mobility (shorter periods, varying statuses, multi-mobility practices) 
can make their application problematic. For example, a mobile worker, who frequently works 
on  short-term  contracts  in  different  Member  States,  could  be  faced  with  a  number  different 
social  security  schemes.13  It  is  therefore  time  to  look  at  whether  there  is  a  need  to  develop 
new instruments better suited to the needs of mobile workers and the companies that employ 
them. These instruments are also to be seen as a significant part of  an emerging agenda for 
opportunities, access and solidarity14. 

The Commission will consider whether there is a need to adapt Community legislation on 
social  security  coordination  and  the  administrative  practices  developed  on  the  basis  thereof. 
Following  an  inventory  of  the  problems  that  can  arise  under  the  current  legislation15,  a 
consultation with stakeholders16, a systematic investigation will be conducted at the beginning 
of  2008  on  the  scope  and  characteristics  of  the  new  mobility  patterns.  On  the  basis  of  the 
outcome of the consultation process, the Commission will take a decision in the second half 
of 2009, accompanied by a thorough impact evaluation, on whether there is a need to adapt 
administrative practices or the rules themselves. 

This investigation will be conducted in the framework of TRESS (Training and Reporting in 
European  Social  Security),  a  Commission-funded  network  of  national  experts  on  social 
security matters. The Commission intends to strengthen the status and analytical capacity 
of the TRESS network by proposing to include a specific provision in Regulation (EC) No 
883/2004. The activities of the network would then be focused on three main tasks: 

to enhance the knowledge of Community regulations among specific groups of stakeholders 
(civil servants, lawyers, judges, trade unions); 

•  to publish regular reports on the application of social security regulations within Member 

States; 

•  and to provide expert advice on the evolution of existing regulations and practices in order 

to meet the changing needs of EU migrant workers. 

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OJ L 149, 05.07.1971, as last amended by Regulation (EC) No 1992/2006 (OJ L 392, 30.12.2006). 
OJ  L  74,  27.03.1972,  as  last  amended  by  Regulation  (EC)  No  311/2007  of  19.03.2007  (OJ  L  82, 
23.03.2007). 
Provided that the worker is not posted, in which case he would continue to be subject to the national 
social security rules of the Member State where he is employed. Another category that deserves special 
attention consists of those working in international road and air transport. 
COM(2006) 211 of 10.05.2006: "A Citizens' Agenda Delivering Results for Europe", COM(2007) 726 
of 20.11.2007: "Opportunities, access and solidarity: towards a Social Vision for 21.Century Europe". 
Based on a questionnaire sent to all stakeholders (institutions and social partners) in June 2007. 
Including  the  Administrative  Commission  on  Social  Security  for  Migrant  Workers  as  well  as  the 
Advisory Committees on Social Security and on Free Movement of Workers. 

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The  protection  of  rights  to  supplementary  pensions  can  also  have  a  significant  influence  on 
worker  mobility  decisions.  In  2005  the  Commission  presented  a  proposal  for  a  Directive 
aimed  at  reducing  obstacles  to  mobility  by  improving  the  portability  of  supplementary 
pensions17. Following discussions on the content and scope of the proposed Directive in the 
Council  and  the  European  Parliament,  the  Commission  has  brought  forward  an  amended 
proposal, focused on minimum requirements for enhancing worker mobility by improving the 
acquisition and preservation of supplementary pension rights and containing a commitment to 
regularly  review  the  progress  by  which  Member  States  improve  the  portability  of 
supplementary pensions18.  

In addition, the Commission will intensify the streamlining of administrative practices and 
administrative cooperation between national institutions and authorities. In 2009, when the 
new  Regulation  (EC)  No  883/2004  is  expected  to  become  applicable19,  the  administrative 
exchange of information between national institutions for the coordination of social security 
matters should become fully electronic20. This will allow online consultation and exchange of 
information,  as  well  as  the  introduction  of  an  electronic  version  of  the  European  Health 
Insurance  Card21,  considerably  reducing  the  time  taken  to  process  EU  migrant  workers' 
social security claims. 

Actions 

The Commission will: 

1. 
Examine  whether  Regulation  (EC)  No  883/2004,  its’  Implementing  Regulation  and 
related  administrative  practices  need  adapting  to  take  account  for  changing  patterns  of 
worker mobility. 

2. 
Propose the inclusion of a new provision in Regulation (EC) No 883/2004 formalising 
the  status  and  analytical  capacity  of  the  TRESS  network  of  independent  experts  in  order  to 
strengthen existing expertise in the area of social security coordination at European level. 

3. 
Intensify  the  streamlining  of  national  administrative  practices  and  cooperation,  in 
particular through electronic consultation and exchange of information, and the launch of an 
electronic version of the European Health Insurance Card. 

Follow  up  its  2005  proposal  and  its  2007  amended  proposal  for  a  Directive  on 
4. 
minimum  requirements  for  enhancing  worker  mobility  by  improving  the  acquisition  and 
preservation of supplementary pension rights. 

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Implementing the Community Lisbon Programme: proposal for a Directive of the European Parliament 
and of the Council on improving the portability of supplementary pension rights – COM(2005) 507 of 
30.11.2005. 
Amended  proposal  for  a  Directive  of  the  European  Parliament  and  of  the  Council  on  minimum 
requirements  for  enhancing  worker  mobility  by  improving  the  acquisition  and  preservation  of 
supplementary pension rights, COM(2007) 603 of 9.10.2007. 
This Regulation will replace the current Regulation (EEC) No 1408/71. 
Subject to the transitional provisions that Member States may agree in the Council. 
Implementation will be gradual and flexible. See COM(2003) 73 of 2.2.2003. 

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4.2. 

Ensuring policy support for mobility from authorities at all levels 

Member States play an important role in demonstrating the benefits of geographic and job-to-
job mobility for the individual and the economy as a whole. Such mobility is a key instrument 
for  the  successful  implementation  of  the  Lisbon  Strategy,  and  in  particular  by  developing  a 
flexicurity-based approach to dealing with modern labour market challenges. 

Mobility should be encouraged through national employment strategies and lifelong learning 
schemes  that  develop,  amongst  other  factors,  vocational  skills  as  well  as  language  and 
intercultural skills. Member States are encouraged to implement the European Qualifications 
Framework  and  develop  Europass22,  which  will  make  qualifications  more  readable  to 
employers  and  so  facilitate  job  mobility.  Concerted  action  with  social  partners,  local  and 
regional  authorities,  learning  and  training  centres,  and  civil  society  should  address  practical 
obstacles to mobility. This should be developed whilst ensuring the concept of "fair mobility", 
particularly  fighting  undeclared  work  and  social  dumping,  which  is  to  ensure  that  labour 
standards  and  legal  requirements  are  always  fully  respected.  To  promote  this,  and  based  on 
the success of initiatives launched in the context of the 2006 European Year, the Commission 
will establish an inventory of existing mobility schemes at national, regional or local level. 
It  will  encourage  Member  states  to  include  such  schemes  in  their  plans  elaborating  the 
Cohesion  Policy,  to  stimulate  cross-border  co-operation  for  job  opportunities  and  common 
infrastructures. It will also examine the possibility of developing appropriate mechanisms to 
encourage  worker  mobility  based  on  the  positive  experiences  from  existing  European 
schemes, such as the Leonardo da Vinci and Marie Curie Programmes. 

Actions 

The Commission will: 

Encourage Member States to include geographic and job-to-job mobility as a priority 

5. 
in their national employment and lifelong learning strategies. 

6. 
Encourage authorities at regional and local levels, and other relevant stakeholders, to 
remove  remaining  practical  obstacles  to  mobility  and  to  promote  the  concept  of  "fair 
mobility", namely by fighting undeclared work and social dumping. 

7. 
Encourage  Member  States  to  learn  from  good  practice  through  mutual  learning 
schemes  for  the  mobility  actions,  financed  from  EU  Cohesion  Policy,  in  particular  the 
schemes  made  possible  by  the  European  Social  Fund.  Establish  an  inventory  of  existing 
financial  support  schemes  and  examine  the  possibility  of  developing  European  mobility 
schemes. 

8. 
Support  the  implementation  of  the  European  Qualifications  Framework,  develop 
Europass,  and  give  appropriate  follow-up  to  upcoming  initiatives  on  credit  transfer  in 
vocational education and training (ECVET). 

22 

The  European  Qualifications  Framework  (EQF)  is  a  voluntary  reference  framework.  Member  States 
will  be  recommended  to  relate  their  qualifications  systems  to  it  by  2010  and  that  their  individual 
qualifications bear an EQF reference from 2012.  

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4.3. 

Reinforcing EURES 

Created in 1993 to facilitate the free movement of workers, EURES (European Employment 
Services)  is  an  important  instrument  for  strengthening  the  labour  market  infrastructure  at 
national  and  EU  level23.  Designed  as  a  one-stop  instrument  to  facilitate  the  mobility  of 
workers  and  their  families,  EURES  is  a  unique  Community  service  that  combines  a  well 
qualified human  network of 750 advisors with a powerful Internet portal enabling access to 
over  one  million  vacancies.  Since  2006  all  vacancies  from  EU  and  EEA  national  public 
employment  services have been accessible on the EURES portal  in 25 European languages. 
The network of EURES advisors provides for personalised assistance to EU migrant workers 
and their families in all matters related to their mobility experience. It works in cooperation 
with  other  Community  services,  including  general  and  specific  information  and  problem-
solving  services  for  citizens  and  businesses  such  as  EUlisses  on  social  security,  PLOTEUS 
portal on learning opportunities, Eurodesk, ERYICA, Europe Direct, Your Europe, Citizens' 
Signpost  Service,  Europass,  national  contact  points  for  professional  recognition  of 
qualifications, ERA-MORE, the European Researchers' Mobility Portal and SOLVIT, etc. 

The  third  strand  of  the  2007-2010  Job  Mobility  Action  Plan  aims  to  significantly  reinforce 
the services provided by EURES, pursuing three new objectives24: 

•  to  enhance  its  strategic  dimension,  by  reinforcing  its  analytical  potential  as  regards 

mobility flows and changes in the labour market; 

•  to enhance the scope and quality of its services by assisting EU mobile workers and their 

families in all matters dealing with their mobility experience; 

•  to  increase  its  operational  coverage  by  reinforcing  its  relations  with  other,  in  particular 
private, providers of similar services and, in line with the Policy Plan on Legal Migration, 
gradually opening up its activities to workers  from other parts of  the world, in particular 
the Candidate Countries25. 

Actions 

EURES will: 

9. 
Significantly  improve  the  provision  of  information  and  raise  awareness  on  the 
principle of equal treatment and the respect of labour standards within the European labour 
markets via its portal and advisors' services. 

10. 
Enhance  its  services  to  meet  the  needs  of  specific  categories  of  workers  (long-term 
unemployed,  young  workers26,  older  workers,  women,  researchers,  self-employed  workers, 
seasonal  workers).  The  network  will  support  individuals  in  preparing  a  full  career  plan, 

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Council  Decision  2005/600/EC  of  12  July  2005  on  Guidelines  for  the  employment  policies  of  the 
Member States (OJ L 205, 6.8.2005). 
All  planned  developments  in  this  area  will  be  in  line  with  the  2007-2010  EURES  Guidelines,  which 
were approved in June 2006. 
COM(2005)  669  of  21.12.2005;  planned 
http://ec.europa.eu/justice_home/funding/tenders/2007_S158_196406/specifications_en.pdf 
Proposed in COM(2007) 498 of 5.9.2007 on "Promoting young people's full participation in education, 
employment and society".  

third-country  nationals 

Immigration  Portal 

for 

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including their reintegration into the labour market upon their return. 

11. 
Significantly increase the collection of strategic information, in particular on mobility 
flows. Synergies with other networks and information providers will be reinforced and cross-
border  cooperation  schemes  established,  including  new  activities  and  partnerships  between 
Member States.  

12.  Where relevant, be expanded to the benefits of third country nationals including those 
who  have  not  yet  acquired  long  term  resident  status.  As  a  first  step,  information  will  be 
provided on the rules and procedures for entering the EU labour market and on the demand 
for specific types of workers within these markets. 

4.4. 

Fostering awareness of the advantages of mobility 

The development of a genuine mobility strategy for workers in the EU can only be effective if 
it  builds  on  the  active  support  of  all  stakeholders.  Some  citizens  still  need  to  be  better 
informed of their rights regarding free movement and be convinced of the benefits of mobility 
for  their  professional  career.  The  fourth  strand  of  the  Communication  will  promote 
innovative awareness-raising activities, the exchange of information and good practice. 

Actions 

The Commission will: 

13. 
Organise annual 'European Job Days' to improve public awareness of workers' rights 
and  the  benefits  of  mobility,  and  step  up  the  exchange  of  information  and  best  practices 
among all stakeholders. 

Launch  the  'European  Job  Mobility  Partnership',  an  initiative  hosting  a  network  of 

14. 
stakeholders committed to developing job mobility in the EU. 

15. 
Earmark,  within  the  PROGRESS  Programme,  support  for  the  financing  of  pilot 
activities,  exchange  of  good  practices,  disseminating  results  on  new  developments  and  the 
emergence of innovative schemes. 

5. 

CONCLUSION 

Labour  market  mobility  either  between  jobs  or  between  Member  States  or  regions  is  an 
essential part of the Lisbon objectives. It is an important component of Europe's response to 
demographic  change  and  globalisation.  This  Communication  aims  to  present  a  more 
integrated  approach  to  worker  mobility  as  a  means  both  to  create  employment  and  to  help 
individual personal development. It serves as a reminder that EU citizens have a fundamental 
right to move freely in the EEA for work purposes, and it encourages stakeholders to ensure 
that people are aware of this right and that they can exercise it under good conditions. 

To  better  understand  the  mobility  decision  and  the  barriers  facing  an  individual  it  is  also 
important that the Commission further improves its factual knowledge of mobility, including 

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data collection. The Commission will also pay close attention to the labour mobility to meet 
its commitments and obligations resulting from the 2003 and 2005 Accession Treaties.  

The Commission will monitor progress of the actions outlined in this Communication through 
studies  and  surveys  conducted  at  European,  national  or  regional  level,  and  including 
Eurobarometer  surveys  on  the  evolution  of  citizens'  attitudes  and  practices  relating  to  job 
mobility. An interim report on the implementation of this Communication will be published in 
2009. 

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