GREEN PAPER ON AGEING Fostering solidarity and responsibility between generations
Date: 2021-01-27
Institutions: European Commission, Secretariat-General
Subjects: care for the elderly, continuing education, health care, integration into employment, labour market, pension scheme, population ageing, population of working age, poverty, silver economy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 27.1.2021  COM(2021) 50 final  GREEN PAPER ON AGEING               Fostering solidarity and responsibility between generations                                                                  
 
 
1. 

Introduction ............................................................................................................................... 2 

2.  Laying the foundations ............................................................................................................. 3 

2.1.  Healthy and active ageing .......................................................................................................... 3 

2.2.  Education and training in a lifelong learning perspective ....................................................... 4 

2.3.  Territorial aspects in access to education ................................................................................. 5 

3.  Making the most of our working lives ..................................................................................... 5 

3.1.  Bringing more people into the workforce ................................................................................. 6 

3.2.  Productivity, innovation and business opportunities ................................................................ 7 

3.3.  Employment and productivity –  a territorial perspective ......................................................... 8 

4.  New opportunities and challenges in retirement .................................................................. 10 

4.1.  Staying active ............................................................................................................................ 10 

4.2.  Old-age poverty ........................................................................................................................ 11 

4.3.  Adequate, fair and sustainable pension systems ..................................................................... 12 

5.  Meeting the growing needs of an ageing population ............................................................ 14 

5.1.  Meeting the health and long-term care needs of an ageing population ................................ 15 

5.2.  Mobility, connectivity and accessibility ................................................................................... 17 

5.3.  Territorial differences in access to care and services ............................................................. 17 

5.4.  Improving well-being through intergenerational solidarity ................................................... 19 

6.  Outlook..................................................................................................................................... 20 

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1. 

Introduction 

Ageing  affects  every  aspect  of  our  lives,  throughout  our  lives.  As  the  current  pandemic 
continues to challenge us, and as we fight to protect lives and livelihoods, we must not lose 
sight of a remarkable development: never before have so many Europeans enjoyed such long 
lives. This is a major achievement that is underpinned by the EU’s social market economy. 

In the last five decades, life expectancy at birth has increased by about 10 years for both men 
and  women.  The  demographic  profiles  of  EU  regions  vary  widely,  notably  between  urban 
and  rural  areas,  with  some  places  ageing  significantly  and  others  expanding  their  working-
age population. Europe is by no means the only continent with an ageing population, but the 
process is most advanced here. As way of illustration, today’s median age in Europe1 of 42.5 
years  is  more  than  double  the  figure  for  Africa.  This  gap  will  remain  large  in  the  coming 
decades.  

This trend is having a significant impact on people’s everyday lives and on our societies. 
It has implications for economic growth, fiscal sustainability, health and long-term care, well-
being  and  social  cohesion.  In  addition,  the  pandemic’s  disproportionate  impact  on  older 
people – in terms of hospitalisations and deaths - has highlighted some of the challenges an 
ageing  population  poses  on  health  and  social  care.  But  ageing  also  provides  new 
opportunities  for  creating  new  jobs,  fostering  social  fairness  and  boosting  prosperity,  for 
instance in the ‘silver’ and care economies.  

Member  States  are  addressing  the  impacts  of  ageing  by  improving  education  and  skills 
systems,  encouraging  longer  and  fuller  working  lives,  and  advancing  reforms  of  social 
protection and pension systems. However, given the scale, speed and impact this trend will 
have across society, we also need to look at new approaches and ensure that our policies are 
fit for purpose in an era of major change – from the twin green and digital transitions to new 
forms of work and the threat of pandemics.  

The  purpose  of  this  green  paper  is  to  launch  a  broad  policy  debate  on  ageing  to  discuss 
options  on  how  to  anticipate  and  respond  to  the  challenges  and  opportunities  it  brings, 
notably  taking  into  account  the  UN  2030  Agenda  for  Sustainable  Development  and  UN 
Decade for Healthy Ageing. Competences for dealing with the effects of ageing are largely in 
the hands of Member States and the EU is well placed to identify key issues and trends and 
support action on ageing at national, regional and local level. It can help Member States and 
regions develop their own, tailor-made policy responses to ageing.  

The European Pillar of Social Rights2 sets out a number of principles that relate directly or 
indirectly to areas impacted by ageing, such as on old  age income  and pensions, long-term 
care,  health  care,  inclusion  of  people  with  disabilities,  social  protection,  work-life  balance 

1    Europe refers here to the entire continent. Source: the 2019 Revision of UN World Population Prospects. 

Eurostat online data table demo_pjanind indicates 43.7 years as the 2019 median age for EU-27. 

2   https://ec.europa.eu/commission/priorities/deeper-and-fairer-economic-and-monetary-union/european-pillar-

social-rights/european-pillar-social-rights-20-principles_en 

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and  education,  training  and  life-long  learning.  The  Commission  will  soon  put  forward  an 
action plan to support the full implementation of the European Pillar of Social Rights. 

This green paper takes a life-cycle approach that reflects the universal impact of ageing and 
focuses  on  both  the  personal  and  wider  societal  implications  of  ageing.  These  include 
everything from lifelong learning and healthy lifestyles to how to fund adequate pensions or 
the  need  for  increased  productivity  and  a  large  enough  workforce  to  sustain  healthcare  and 
long-term care for older people.  

The life-cycle approach takes into account the fact that the traditional stages of education and 
training,  work  and  retirement  are  becoming  less  rigidly  defined  and  more  flexible.  It  also 
reflects  the  fact  that  responding  to  population  ageing  is  a  question  of  striking  the  right 
balance  between  sustainable  solutions  for  our  welfare  system  and  strengthening 
intergenerational  solidarity  and  fairness  between  both  young  and  old.  There  are  many 
interdependencies  across  generations  that  create  challenges,  opportunities  and  questions  for 
our societies. This is why young people – and those of all ages – should play an active part in 
shaping our policy response.  

This  Commission  has  put  demography  high  on  the  EU  policy  agenda.  In  June  2020,  it 
presented  a  report3  setting  out  the  key  facts  of  demographic  change  and  its  likely  impacts. 
This  green  paper  is  the  first  outcome  of  this  report  and  launches  a  debate  on  one  of  the 
defining demographic transformations in Europe. The debate will be inclusive and build on 
the  work  of  other  EU  institutions  and  bodies4  who  are  actively  engaged  in  the  debate  on 
demographic challenges.  

2.  Laying the foundations 

The years from early childhood to young adulthood affect us for the rest of our lives. What 
we  experience,  what  we  learn,  the  habits  we  adopt  are  all  factors  that  shape  our  future 
prospects,  health  and  well-being.  Laying  the  right  foundations  early  on  can  help  prevent, 
limit and postpone some of the challenges linked to ageing.  

There are two policy concepts, in particular, that can enable a thriving ageing society: healthy 
and  active  ageing,  and  lifelong  learning.  Both  approaches  work  best  when  they  start  at  an 
early age, as they are relevant for the entire life-cycle. Importantly, high levels of education 
and good health are mutually reinforcing.  

3   Report on the impact of demographic change in Europe (COM(2020) 241 final, 17.6.2020). 
4   For example Council conclusions on demographic challenges – the way ahead (8668/20 of 8.6.2020); Council 

conclusions on human rights, participation and well-being of older persons in the era of digitalisation 
(11717/2/20 of 9.10.2020); Opinion of the European Economic and Social Committee on “Demographic 
challenges in the EU in light of economic and development inequalities" of 5 May 2020 and opinion of the 
Committee of the Regions on “Demographic change: proposals on measuring and tackling its negative effects 
in the EU regions” of 14 October 2020. The European Parliament is also preparing a report on “Old continent 
growing older – possibilities and challenges related to ageing policy post 2020”. 

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2.1.  Healthy and active ageing 

Healthy  and  active  ageing  is  about  promoting  healthy  lifestyles  throughout  our  lives  and 
includes our consumption and nutrition patterns and our levels of physical and social activity. 
It helps reduce the risk of obesity, diabetes and other non-communicable diseases which are 
on  the  rise.  Cardiovascular  diseases  and  cancer  are  the  key  causes  of  avoidable  deaths  for 
people  under  75  years  in  Europe5.  Healthy  and  active  ageing  has  a  positive  impact  on  the 
labour  market,  employment  rates  and  our  social  protection  systems,  and  thereby  on  the 
growth and productivity of the economy.  

Healthy and active ageing is a personal choice and responsibility, but it depends heavily on 
the  environment  in  which  people  live,  work  and  socialise.  Public  policies  can  play  a 
significant  supporting  role.  Proactive  measures  can  help  prevent  and  detect  illness  and 
protect  people  from  the  effects  of  ill  health.  They  can  help  ensure  that  healthy  and  active 
ageing becomes an easier choice, including for those in situations of vulnerability. There are 
innovative ways of promoting healthy lifestyles among children and young people, including 
through safe digital  technology,  games, learning platforms and apps. Personalised medicine 
can help identify, at an early stage, people who are at risk of developing particular  diseases 
later in life.  

While Member States are responsible for their health policies, the EU can support Member 
State  action,  including  through  the  new  EU4Health  programme,  for  example  in  the  fight 
against cancer, dementia, mental health, and promoting healthy nutrition and diets as well as 
regular physical activity. To support this, Europe’s Beating Cancer Plan is set up to address 
the  whole  disease  pathway,  from  prevention  to  survivorship. Monitoring  and  exchanging 
information on national health initiatives may help to reduce the differences of approach and 
provision among and within countries.  

2.2.  Education and training in a lifelong learning perspective 

Lifelong learning - investing in people’s knowledge, skills and competences throughout their 
lives  -  forms  part  of  the  response  to  the  challenges  of  ageing.  Continuous  investment  in 
learning  has  many  positive  effects:  acquiring  and  updating  skills  helps  people  remain 
employable, succeed in job transitions and advance professionally, keeping them in work and 
adding to job satisfaction. In a fast-changing world, lifelong learning is a necessity, as careers 
and education opportunities change at a rapid pace. Continued learning can also help to delay 
the  onset  of  dementia  and  prevent  cognitive  decline  related  to  old  age.  It  is  also  a  way  for 
older  people  to  play  an  active  role  in  society.  Developing  citizenship  competences  is 
important for lifelong democratic participation. 

Lifelong  learning  is  most  effective  when  it  starts  early  in  life.  The  first  years  of  life  are 
critical for developing cognitive and social skills. Evidence shows that access to high-quality 
early  childhood  education  and  care  has  a  lasting  effect  on  achievement  in  school  and 
beyond.  Despite  improvements  in  school  education  and  training,  too  many  young  people 
still leave school  early  and have major problems  with  basic skills,  such  as reading, science 
and mathematics. The same is true for adults. It is alarming that one in five young people in 

5 Source: Eurostat online data table: HLTH_CD_APR and Preventable and treatable mortality statistics 

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lacks  basic  digital  skills.  Students 

from  disadvantaged  backgrounds  are 
Europe 
overrepresented  among  underachievers.  Evidence  also  suggests  a  risk  of  a  low-skills  trap 
whereby  people  with  more  skills  tend  to  engage  more  often  in  learning  activities,  while 
people with lower basic skills do not.  

There is a large potential for developing the skills of older people, as well as to improve how 
they are validated and how career guidance is made available. Adult education and training 
helps  to  improve  employability  in  a  changing  world  of  work  as  evolving  skills  needs  in 
particular due to green and digital transitions bring potential for new jobs.  

This is all at the core of the implementation of the European Skills Agenda recently adopted 
by the Commission6. In addition, with the creation of a European Education Area7 by 2025, 
we are working towards access to quality education for all, taking particular account of those 
more at risk of underachievement and social exclusion.  

2.3. Territorial aspects in access to education 

Access to high-quality education and training cannot be taken for granted, especially in low 
populated regions, where people may have to travel long distances to the relevant facilities. 
The combination of low birth rates and emigration of young people can reduce the demand 
for schooling in rural and remote regions.  

This can lead to a vicious circle: the number of children can fall to such a low level that it is 
difficult to justify maintaining a school. This in turn makes it less attractive for families with 
children to move to or remain in such a region. 

The  shift  to  distance  learning  stimulated  by  the  COVID-19  outbreak  has  provided  some 
lessons  for  the  use  of  digital  technology  in  education  and  training.  However,  it  has  further 
highlighted  inequalities  faced  by  rural  communities  in  accessing  digital  services.  Rural  and 
remote areas are more likely to need investment in connectivity and less likely to have access 
to affordable, high-quality broadband, as well as the devices and skills needed to make use of 
it.  For  some  children  this  meant  being  unable  to  continue  lessons  during  the  pandemic, 
widening pre-existing inequalities with peers in better-serviced regions. New approaches can 
blend  classroom  teaching  with  high-quality  digital  learning  to  improve access  to  education 
and  training,  both  in  urban  and  rural  areas.  The  Digital  Education  Plan8  proposes  a 
comprehensive approach to digital learning and education at EU level.  

1.  How  can  healthy  and  active  ageing  policies  be  promoted  from  an  early  age  and 
throughout  the  life  span  for  everyone?  How  can  children  and  young  people  be  better 
equipped for the prospect of a longer life expectancy? What kind of support can the EU 
provide to the Member States? 

2.  What are the most significant obstacles to lifelong learning across the life-cycle? At what 
stage in life could addressing those obstacles make most difference? How should this be 
tackled specifically in rural and remote areas? 

6   COM(2020) 274 final, 1.7.2020 
7   COM(2020) 625 final, 30.9.2020 
8   COM(2020) 624 final, 30.9.2020 

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3.  Making the most of our working lives 

The  EU’s  working-age  population  has  been  shrinking  for  a  decade  and  this  is  projected  to 
continue9.  With  the  overall  population  remaining  constant,  the  risk  of  labour  shortages 
increases.  This  in  turn  makes  it  difficult  to  sustain  production  and  service  provision  and 
ultimately has an impact on our prosperity and well-being. To compensate for the shrinking 
working-age population, the EU and its Member States should promote policies that bring 
more people into the labour market,  enable longer working lives and improve productivity. 
The potential of less developed regions, i.e. regions with a GDP per head below 75% of the 
EU  average,  could  also  be  better  exploited  with  appropriate  investment  to  support  regional 
levelling-up.   

3.1.  Bringing more people into the workforce  

High  labour-market  participation  and  longer  working  lives  can  mitigate  the  problem  of  an 
ageing society with a shrinking working-age population10. However, discrimination at work – 
or when looking for work – is widespread and can affect certain groups more. Ensuring that 
people with a minority racial or ethnic background can fully deploy their potential will lead 
to better social and economic outcomes for all. In this respect, continued work on building a 
Union of Equality and fully implementing existing legal instruments is key. 

Employment  rates  among  women  (aged  20-64)  in  the  EU  remain  11.7  percentage  points 
lower than those among men, and more women tend to work part time despite more women 
than men obtaining a university degree11. 

Measures to promote equal participation of women and men in both paid and unpaid family 
work  can  help  boost  employment  rates  among  women,  including  by  supporting  people  and 
families  to  achieve  better  reconciliation  between  work  and  private  life.  Action  to  improve 
gender  equality  in  the  labour  market  and  close  the  gender  gap  could  enhance  men’s 
participation  in  household  work  and  family  care  -  if  coupled  with  structural  measures 
reforming  the  tax  and  welfare  systems.  The  EU  Gender  Equality  Strategy  2020-202512  has 
already set out a number of key actions in this area. 

Recent  data13 show that 5.4% of women (and 2.2% of men)  aged 18-64 have reduced their 
working time, or have taken employment breaks of more than a month to care for ill and/or 
older relatives with disabilities. Better availability of quality childcare, formal long-term care 
and  support  for  informal  carers  would  not  only  help  to  meet  the  increasing  needs  of  older 
people,  but  also  enable  more  workers  -  in  particular  women  -  to  enter  and  remain  in  the 
labour market. 

9   Source: Eurostat online tables demo_pjan and proj_19np 
10   JRC, Demographic Scenarios for the EU: Migration, Population and Education, 2019. 
11   Source: Eurostat online table lfsi_emp_a 
12   COM(2020) 152 final, 5.3.2020 
13   Labour Force Survey, Care for incapacitated relatives. 

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If enabled to pursue work that reflects their qualifications and skills, people with a migrant 
background could be better integrated. This would contribute to improved social cohesion, 
economic growth and reduction of inequalities.  

Legal  migration  can  help  fill  skills  shortages  and  therefore  address  labour  market  needs. 
Highly educated migrants are more likely than average to be over-qualified for the job they 
are doing. Harnessing the potential of migrant women is particularly challenging as a result 
of  structural  barriers,  such  as  access  to  high-quality  and  affordable  childcare.  The 
Commission  presented  in  November  2020  a  new  Action  Plan  on  Integration  and  Inclusion 
2021-202714,  which  takes  into  account  the  different  situation  of  migrant  populations  and 
supports Member States and other relevant stakeholders in finding the adequate response in 
their  integration  and  inclusion  policies.  As  a  follow-up  to  the  New  Pact  on  Migration  and 
Asylum15, the Commission recently concluded a public consultation on the future of EU legal 
migration and will propose a number of measures including a ‘talent and skills’ package with 
options for developing an EU talent pool.  

There is also potential to address labour shortages by increasing employment among people 
with  disabilities,  which  requires  reasonable  accommodation  and  an  accessible  work 
environment. 

Despite recent increases, the employment rate among older workers in the EU remains lower 
than the average. Only 59.1% of those aged 55-64 were employed in 2019 versus 73.1% of 
all those aged 20-6416. After the age of 50, the risk of long-term unemployment increases17. 
Many  older  workers  face  difficulties  when  it  comes  to  recruitment,  access  to  training 
opportunities,  job  transitions  and  age-adapted  tasks.  Facilitating  the  labour  market 
participation of older persons could be better encouraged, including for example with fiscal 
incentives for employers to recruit older workers. 

In  some  sectors,  such  as  agriculture,  people  continue  to  work  into  old  age,  either  out  of 
choice or because of their living conditions, the lack of a potential transferee, or because of 
low  pension  provision.  Physical  aspects  –  whether  ergonomic  or  to  do  with  accessibility  – 
and  flexible  working  conditions  would  allow  older  workers  to  postpone  their  retirement 
should they choose to do so. Accidents at work and occupational diseases are more dangerous 
as  people  get  older.  Good  working  conditions,  including  sound  occupational  safety  and 
health, help protect the health of workers of all ages, thus promoting well-being and reducing 
early  retirement  rates.  Digital  technologies  can  support  workers  and  offer  better  adapted 
working  environments,  with  ICT-based  personalised  systems,  wearables  and  mobile  health 
applications. 

Senior  entrepreneurship  can  prolong  working  lives,  reduce  old-age  unemployment, 
improve the social inclusion of older individuals and enhance innovation through start-ups. It 
can  foster  intergenerational  learning  and  ensure  knowledge  transfer.  Raising  awareness  of 
entrepreneurship as a late-career option can help counter ageism as a potential barrier to such 

14   COM(2020) 758 final, 24.11.2020. 
15   COM(2020) 609 final, 23.9.2020 
16   Source: Eurostat online table lfsi_emp_a 
17   Source: lfsa_upgan  

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activity. Public policy can support senior entrepreneurs by removing disincentives in tax and 
social security systems, providing well-targeted advice and ensuring access to finance. 

3.2.  Productivity, innovation and business opportunities 

Productivity  growth  has  slowed  in  all  advanced  economies  in  recent  decades.  Against  the 
backdrop of a shrinking working-age population, higher productivity is key to underpinning 
sustainable and inclusive economic growth and higher living standards in the EU. The green 
and  digital  transitions  present  an  opportunity  to  reignite  productivity  growth  by  promoting 
innovation in  the form  of new technologies and business  models.  Innovation can also  help 
improve resource efficiency while labour-saving technologies can mitigate the challenges of 
a shrinking working-age population.  

Adequate and efficient investment in research and development and intangible assets in 
general  is  central  to  stimulate  innovation  and  foster  adoption  of  new  technologies.  An 
efficient  public  administration  and  judiciary  system,  a  supportive  business  environment, 
effective  competition  policies,  and  a  fair,  transparent  and  efficient  system  of  subsidies  and 
taxation coherent with long-term objectives of socio-environmental sustainability also play a 
role in supporting productivity and innovation.  

One of the opportunities for the EU is the ‘silver economy’  – this  term  refers to  a  general 
shift in demand for products and services that reflects the specific needs and preferences of 
older  people.  The  silver  economy  is  expected  to  grow  by  about  5%  a  year  from  EUR  3.7 
trillion in 2015 to EUR 5.7 trillion in 202518.  

The  silver  economy  can  open  up  new  job  opportunities  in  sectors  such  as  tourism,  smart 
homes  that  support  independent  living,  assistive  technologies,  accessible  products  and 
services,  service  robotics,  wellness,  cosmetics  and  fashion,  safety,  culture,  personal  and 
automated  mobility,  and  banking.  Scientific  and  medical  innovation  will  also  boost 
opportunities  for  technology  developers  and  highly  skilled  health  staff  and  carers,  while 
delivering the breakthrough needed to respond to an ageing society. 

Telemedicine,  smartphone  apps  and  biosensors  for  remote  diagnosis  and  monitoring  can 
improve  patient  outcomes.  New  assistive 
the  autonomy, 
independence  and  participation  of  older  people  with  disabilities.  A  developed  market  of 
products and services for healthy and active ageing could improve the efficiency of health 
and social care systems, potentially making them more sustainable.  

technologies  may  extend 

3.3. Employment and productivity – a territorial perspective  

The map below shows the increase in working life needed to counter population ageing in the 
EU regions. Only one in five regions of the EU is projected to have a growing working age 
population between 2020 and 2040. These regions often include the capital city, another large 
city  and/or  their  suburbs.  Firms  in  the  few  regions  with  a  growing  working  age  population 
will  find  it  easier  to  fill  their  vacancies  and  expand  their  business.  Firms  in  regions  with  a 
shrinking working-age population,  however, are  more likely  to  face labour shortages in  the 

18   https://ec.europa.eu/digital-single-market/en/news/silver-economy-study-how-stimulate-economy-hundreds-

millions-euros-year  

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absence  of  increased  labour  mobility.  As  a  result,  they  will  have  to  invest  more  in  labour 
saving technology and innovation just to produce the same amount of goods or services. 

Map  1.  Projected  maximum  working  age  that  keeps  the  size  of  the  working-age 
population constant, 2040 

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The potential of less developed regions, including rural regions, can be further explored, 
for  example  to  use  opportunities  emerging  in  the  silver  economy.  Cohesion  policy  plays  a 
significant  role  in  supporting  their  development.  Rural  areas  in  Europe  vary  greatly  with 
some  performing  well  in  economic  and  social  terms  and  others  in  economic  and/or  social 
decline. The quality of life is often considered to be better in rural areas than in cities. The 
closeness to nature, clean air, sense of community and cheaper housing appeal to people from 
cities.  If equipped  with  sufficient basic infrastructure, transport  facilities and  conditions  for 
economic activity, they can be attractive both for working-age people as well as for an ageing 
population.  

Digital  connectivity  can  also  help  remote  territories  with  access  to  quality  education  and 
quality  job  opportunities,  as  demonstrated  during  the  COVID-19  crisis.  The  crisis  has  also 
highlighted the potential of telework for some professions as a way of avoiding commuting 
with all its consequences for air pollution and time use. 

Infrastructure  -  from  transport  to  schools,  connectivity  to  housing  or  postal  networks  to 
healthcare  - and the provision of  services, such  as education and training, health  and long-
term care, can enhance opportunities for development, if adapted to local needs. 

3.  What  innovative  policy  measures  to  improve  participation  in  the  labour  market,  in 

particular by older workers, should be considered more closely?  

4.  Is  there  a  need  for  more  policies  and  action  at  EU  level  that  support  senior 
entrepreneurship? What  type of support is needed at EU level and how can we build on 
the  successful  social  innovation  examples  of  mentorship  between  young  and  older 
entrepreneurs? 

5. How can EU policies help less developed regions and rural areas to manage ageing and 
depopulation? How can EU territories affected by the twin depopulation and ageing 
challenges make better use of the silver economy? 

4. 

 New opportunities and challenges in retirement 

Never before in European history have so many people enjoyed such long and healthy lives. 
More people than ever remain active for longer, extend their work careers and participate in 
social activities after retiring. Thanks to healthier lifestyles and medical progress (improved 
prevention, diagnosis and treatment of disease), most retirees are fit and can choose how to 
spend their time19. These new realities change our perception of ageing, shining a light on the 
important contribution older people make to society and economy through intergenerational 
learning and cohesion. 

At the same time, the retirement stage presents challenges to individuals but also to the social 
protection systems that support them. Ensuring the adequacy, affordability and sustainability 
of pension systems requires us to critically assess how fit the current pension systems are to 
deal with a fast ageing population. 

19   Source: Eurostat’s 2020 edition of Ageing Europe  

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4.1.  Staying active 

Volunteering  activities  can  promote  intergenerational  solidarity  and  cooperation,  creating 
value and benefiting young and old alike in terms of knowledge, experience and self-esteem. 
At the same time, volunteering has an important economic value. Data show that about a fifth 
of  65-74  year-olds  participate  in  formal  volunteering  while  people  aged  75+  also  remain 
engaged  when  their  health  allows20.  During  the  COVID-19  pandemic,  retirees  have  helped 
the  community  by  returning  as  medical  or  nursing  staff,  or  providing  voluntary  services  to 
relieve others in their everyday lives. 

Many,  especially  older  women,  are  unpaid  carers,  mainly  within  their  families  (for  their 
parents, partners, children, or grandchildren), thereby helping the generation of core working 
age to balance work and family life.  

Intergenerational  learning,  including  mentoring  or  experience  sharing,  allows  the  young 
and  old  to  exchange  knowledge  and  competencies.  A  lot  of  intergenerational  learning 
happens  informally  in  the  community,  in  activities  around  libraries  and  museums,  cultural, 
sports or other associations, religious institutions, etc. 

Active  mobility  also  supports  active  ageing.  Walking  and  cycling  are  popular  in  many 
Member  States,  including  among  people  over  65.  New  forms  of  electric  mobility,  mainly 
electric  bicycles,  are  already  providing  a  flexible  response  to  some  older  people’s  mobility 
needs  and  allowing  them  to  use  an  active  mode  of  transport  while  reducing  their  transport 
emissions. 

4.2.  Old-age poverty 

For most people, retirement comes with a drop in income and, for some, the threat of old-age 
poverty. As people grow old, they face increasing financial risks relating, for instance, to the 
need for healthcare and especially long-term care. 

Pensions  are  the  main  source  of  income  for  most  retirees.  To  ensure  that  they  remain 
adequate  in  view  of  increased  life  expectancy,  people  will  have  to  work  longer  in  future. 
Nevertheless,  some  will  still  run  a  higher  risk  of  old-age  poverty  than  others,  including 
energy poverty. This concerns in particular those who earned low incomes, had career breaks 
or were in jobs or trades that provided limited protection, such as non-standard workers and 
the self-employed. 

The risk continues to be higher for specific groups. Women tend to earn less, have shorter, 
less  linear  careers,  work  part-time  and  take  on  more  unpaid  care  responsibilities.  Women’s 
pensions in the EU are on average 29.5% lower than men’s21. In 2019, 37% of third country 
migrants were at risk of poverty and social exclusion against 22% of EU mobile citizens22. 
In  the  coming  years,  they  may  face  higher  risks  of  old-age  poverty  due  to  shorter  careers 
within the EU. 

20   For more information see Eurostat online table: ilc_scp19 
21   Source: Eurostat online table ilc_pnp13.  
22   Source: Eurostat online table ilc_peps05 

11 

 
 
 
                                                           
Older  people  with  disabilities  can  face  particular  problems.  Working-age  people  who 
develop a disability often benefit from labour market-related support to compensate for loss 
of income and extra expenditure. While this is insufficient in many cases, people acquiring a 
disability after retirement are often ineligible for these benefits. 

Box 1. Autonomy, participation and rights of older people 

The European Pillar of Social Rights serves as a compass on the path to better working and 
living conditions for all, regardless of age, and genuine social rights. It includes a number of 
principles that focus on the challenges of ageing. 

Older people often find  themselves in  a situation of vulnerability;  some in  more ways than 
one,  for  instance,  those  with  ill  health  or  a  disability23,  those  from  an  ethnic  or  religious 
minority or those who are LGBTQI. Some may need assistance directly related to protecting 
themselves  or  their  assets,  such  as  taking  care  of  finances  or  managing  medical  treatment. 
This has also been highlighted in the recent New Consumer Agenda24. In addition, vulnerable 
older  persons  may  also  face  risk  of  abuse  such  as  through  neglect,  or  physical  or  mental 
violence.  The  heavy  toll  on  vulnerable  older  people  during  the  pandemic  underlines  the 
importance of protecting their autonomy, as well as their health and living conditions.   

Access to goods, services, including public services, and participation in political, social and 
cultural  life  increasingly  requires  digital  skills.  Technological  developments  may  amplify 
older persons’ vulnerability, for example if they are less familiar or at ease with digital tools, 
or have limited access to digital technology. This may make them more prone to fraud, scams 
and rogue trading as we have seen during the pandemic and lockdowns. Older people living 
abroad  or  owning  assets  abroad  may  also  be  particularly  vulnerable  due  to  the  barriers  of 
foreign languages  and unknown administrative and legal  systems  and specific measures for 
protection may be needed in cross-border situations. 

The  growth  in  the  number  of  older  people  in  the  EU  brings  specific  security  and  safety 
concerns, as organised criminals may target them, for instance with house calls, street cons, 
burglary, pickpocketing or other scams and crimes. 

In order to enable older people to enjoy their rights and autonomy and participate in society 
to  the  fullest  extent  possible,  such  situations  of  vulnerability  need  to  be  taken  into  account 
and, where necessary, be addressed specifically by policymakers at all levels. 

4.3.  Adequate, fair and sustainable pension systems 

The  challenge  of  maintaining  adequate,  fair  and  sustainable  pensions  in an  ageing  society 
and the need for people to  accumulate additional savings have been highlighted repeatedly, 
notably  in  Pension  Adequacy  Reports  published  jointly  by  Council  and  Commission  25. 
However,  in  the  absence  of  further  reforms,  more  pensioners  and  fewer  people  of  working 

23   The EU is committed to the United Nations Convention on the Rights of Persons with Disabilities 

(UNCRPD) to protect the rights and dignity of persons with disabilities. 

24   COM(2020) 696 final, 13.11.2020 
25   Every three years the Council and the Commission publish jointly the Ageing Report and the Pension 

Adequacy Report (next editions will be published in 2021). 

12 

 
 
 
                                                           
age  are  likely  to  lead  to  higher  contribution  rates  and  lower  pension  replacement  rates  in 
order to ensure the sustainability of public finances. Such developments may create a double 
burden for the younger generations and thus raise questions of intergenerational fairness. 

Longer  working  lives  are  a  key  answer  to  this.  According  to  the  most  recent  Eurostat 
population projection, the EU old age dependency ratio26 in 2040 would only remain at the 
same  level  as  in  2020  if  working  life  were  extended  to  the  age  of  70.  There  are,  however, 
significant  variations  between  Member  States,  which  show  the  different  challenges  across 
Europe.  To  keep  the  national  old  age  dependency  ratio  constant  in  2040  relative  to  2020, 
projections suggest that Malta, Hungary and Sweden would have to extend working life only 
to 68, while Lithuania and Luxembourg would have to extend it to 72. Already in 2019, the 
old age dependency ratio varied substantially from 22 in Luxembourg to 39 in Italy and 38 in 
Finland27. 

Pension  systems  could  support  longer  working  lives  by  adjusting  retirement  ages  or  career 
requirements,  accrual  rates  or  benefits  automatically  to  reflect  higher  life  expectancy. 
Limiting  early  retirement  to  objectively  warranted  cases,  establishing  a  general  right  to 
work  beyond  pensionable  age  and  flexible  retirement  schemes,  can  help  to  make  pension 
systems both adequate and sustainable. 

Reforms  to  modernise  pension  systems  need  to  carefully  consider  the  redistribution  and 
fairness  logic  of  pension  systems.  Factors  that  could  be  taken  into  account  include  the 
increasing demographic burden on future generations, a fair treatment of workers who enter 
the  labour  market  early,  the  redistributive  capacity  across  income  groups,  the  protection  of 
family-related career breaks and the phasing-out of preferential pension schemes.  

Pensions allowing for dignified living standards in old age should be available to those who 
will  not  be  able  to  have  longer  working  lives  in  the  future.  This  could  be  achieved,  for 
instance, through pension credits, minimum pensions, pensions based on residence and social 
assistance targeted at, or also available to older people. 

Ensuring  that  pension  systems  cover  different  types  of  economic  activity,  for  instance  by 
extending access to more types of workers and to self-employed, would help safeguard their 
adequacy  and  contribution  base  and  mitigate  inequalities  within  the  labour  market.  As 
changes in the economy and the world of work could affect the contribution base, Member 
States may need to reconsider how their social protection systems are resourced. 

Citizens need to  be made aware of the status  of  their retirement  entitlements. High quality, 
safe  and  cost-effective  supplementary  pensions,  including  the  pan-European  personal 
pension product (PEPP)28, that complement statutory pension schemes can provide additional 
retirement  savings.  Policies  to  facilitate  and  encourage  participation  in  supplementary 
pension schemes should consider their fiscal cost and distributive effect, and strike a balance 

26   Old age dependency ratio used here is the ratio between the number of persons aged 65 and over and the   

number of persons aged between 20 and 64. The value is expressed per 100 persons of working age (15-64). 

27   Source: Eurostat online table proj_19np and calculations made by Commission's Directorate-General for 

Regional and Urban Policy, more information available here.  

28   PEPP is a voluntary personal pension scheme due to be rolled out in 2022 that will offer consumers a new 

pan-European product to save for retirement. Cf. Regulation (EU) 2019/1238 of 20 June 2019. 

13 

 
 
                                                           
between broad and inclusive coverage and safeguards against the effects of market volatility 
on the one hand and cost-effectiveness on the other. 

6.  How  could  volunteering  by  older  people  and  intergenerational  learning  be  better 
supported, including across borders, to foster knowledge sharing and civic engagement? 
What  role  could  a  digital  platform  or  other  initiatives  at  EU  level  play  and  to  whom 
should such initiatives be addressed? How could volunteering by young people together 
with and towards older people be combined into cross-generational initiatives?  

7.   Which services and enabling environment would need to be put in place or improved in 
order to ensure the autonomy, independence and rights of older people and enable their 
participation in society? 

8.  How can the EU support vulnerable older persons who are not in a position to protect 
their own financial and personal interests, in particular in cross-border situations? 
9.  How  can  the  EU  support  Member  States'  efforts  to  ensure  more  fairness  in  the  social 
protection  systems  across  generations,  gender,  age  and  income  groups,  ensuring  that 
they remain fiscally sound?  

10. How can the risks of poverty in old age be reduced and addressed? 
11. How  can  we  ensure  adequate  pensions  for  those  (mainly  women)  who  spend  large 

periods of their working life in unremunerated work (often care provision)? 

12. What role could supplementary pensions play in ensuring adequate retirement incomes? 
How could they be extended throughout the EU and what would be the EU’s role in this 
process?  

5.  Meeting the growing needs of an ageing population 

Despite improved healthy life expectancy, the older you get the higher the chance of illness 
or disability. Gradually, many older people become frail and dependent on long-term care.  

14 

 
 
 
Figure 1.  EU dependency rates29 increase with age, 2015-2019  

40,0%

35,0%

30,0%

25,0%

20,0%

15,0%

10,0%

5,0%

0,0%

35,1% 

19,2% 

10,6% 

8,7% 

5,6% 

1,6% 

2,1% 

3,1% 

16-24

25-34

35-44

45-54

55-64

65-74

75-84

85+

Source:  Calculation  of  the  Commission's  Directorate-General  for  Economic  and  Financial  Affairs 
based on Eurostat online data table hlth_silc_06 

Health promotion and disease prevention, in the form of healthy lifestyles, health and safety 
at  work,  and  active  social  lives  can  help  limit  or  postpone  these  problems.  Supporting 
policies,  such  as  urban  renewal,  revitalised  rural  areas  and  accessibility  in  buildings  and 
transport, can help make life easier, in particular for people with limited mobility.  

While  such  policies  can  help  mitigate  the  overall  challenge,  ageing  and  longevity  will 
invariably lead to  a structural  increase in  overall demand for healthcare  and long-term  care 
services30.  This  is  exacerbated  for  some  remote  and  rural  regions  that  typically  face 
challenges in terms of quality and scale of the social services provided. 

The  way  societies  prepare  for  ageing  needs  to  go  beyond  economic  issues  and  quality, 
affordable services. We have to think about how generations live together. One concern is the 
increasing risk of loneliness and social isolation both among  younger and older people, as 
experienced by many not least during the COVID-19 pandemic. While less visible, this has a 
real impact on our economic, social and healthcare systems and deserves the attention of the 
policy-makers. 

5.1.  Meeting the health and long-term care needs of an ageing population 

As a result of demographic change, there will be more older patients suffering from chronic 
and, in many cases, multiple diseases. Almost half of persons 65 years or older are perceived 
as having a disability or long standing activity limitation. In addition, the effects of climate 
to 
change,  natural  disasters  and  environmental  degradation  and  pollution 

tend 

29   Note: The dependency rates are calculated as a five-year average of annual self-perceived long-standing 

severe limitations in usual activities due to health problem. 

30   Principles 16 and 18 of the European Pillar of Social Rights set out ‘the right to timely access to affordable, 
preventive  and  curative  healthcare  of  good  quality’  and  ‘the  right  to  affordable  long-term  care  services  of 
good quality, in particular home care and community-based care’. 

15 

 
 
 
                                                           
disproportionately increase pressure on older people’s health. This will increase the need for 
healthcare and other care or support services.   

Although  healthcare  and  long-term  care  systems  will  both  need  to  respond  to  increased 
demand,  they  face  different  challenges,  such  as  with  regard  to  their  workforce,  social 
protection coverage or quality standards.    

involve 

A  comprehensive  policy  response  may 
in  quality  services  and 
infrastructure,  as  well  as  in  healthcare  research  and  innovation,  ensuring  the  access  to 
healthcare,  offering  attractive  working  conditions  to  address  staff  shortages  and  exploiting 
innovative  technology  to  improve  efficiency.  Technological  progress  makes  it  possible  to 
provide certain services and therapies in new ways, rather than in hospitals. Greater provision 
of ambulatory and community care infrastructure not only provides better health and social 
care, it can also allow older people to take part in social and well-being activities.  

investing 

There is a potential of 8 million job openings in the health and social care sector in the next 
10  years.  This  will  require  more  specialists  and  up-  and  re-skilling  of  workers,  which  will 
notably be addressed through the Pact for Skills launched in November 2020. Also, in order 
to  address  the  lack  of  healthcare  staff,  cross-border  mobility  of  staff  could  play  a  role.  In 
2018, EU citizens working in a Member State other than their own represented almost 5% of 
the  health  and  long-term  care  workforce,  while  immigrants  from  outside  the  EU  accounted 
for 9.1%31.  Integrating  health  and  long-term  care  considerations  in  existing  legal  migration 
channels may also improve the use of the skills of the migrants in the EU. 

The  number  of  people  potentially  in  need  of  long-term  care  is  expected  to  increase  from 
19.5 million in 2016 to 23.6 million in 2030 and 30.5 million in 2050 in the EU2732. Relying 
on  informal  carers  is  no  more  sustainable,  as  help  from  family  members  is  increasingly 
difficult  to  ensure,  with  families  having  fewer  children,  living  further  apart,  and  women 
participating more in the labour market. 

Member  States  face  common  challenges  in  long-term  care,  which  include  ensuring  access, 
affordability and quality, of long-term care, as well as adequate workforce. Many in need 
of care cannot access it due to gaps in supply, high costs, and a lack of social protection or 
insurance coverage to  ensure affordability. Without adequate social protection, the need for 
long-term  care  can  push  individuals  into  poverty.  This  risk  needs  to  be  squared  with 
maintaining the systems’ fiscal sustainability in an ageing society.  

Quality long-term care is important to ensure personal dignity, choice, well-being, as well as 
to  avoid  unnecessary  hospitalisations.  Currently,  there  are  different  quality  standards  and 
interpretations across the EU and Member States are at different stages of quality assurance. 
It  is  important  to  note  that  there  are  different  ways  of  delivering  quality  long-term  care. 
Offering  community-based  service  provision  for  older  people  in  need  of  long-term  care, 
including  those  with  disabilities,  can  support  their  right  to  live  independently  in  the 
community, as long as this is possible. Residential or other services, on the other hand, may 
secure the provision of care services that exceed the capacities of community-based settings.   

31   JRC,  Health  care  and  long-term  care  workforce:  Demographic  challenges  and  potential  contribution  of 

migration and digital technology, https://publications.jrc.ec.europa.eu/repository/handle/JRC121698   

32   Projections from the Ageing Report 2018. 

16 

 
 
                                                           
Recruiting and retaining qualified staff to work in long-term care is difficult given low pay 
and demanding working conditions. This adds pressure on informal carers - usually women - 
who  struggle  to  balance  care  and  paid  work,  often  with  costs  for  society  such  as  negative 
effects  on  health  and  well-being,  reduced  participation  in  the  labour  market  and  reduced 
income.    

As  underlined  in  the  Communication  on  a  strong  social  Europe  for  just  transitions33, 
developing  strong  long-term  care  systems  will  improve  access  to  affordable  and  quality 
long-term care, ensure dignified lives in old age and boost the job opportunities in the care 
economy.  A  joint  European  Commission  and  Social  Protection  Committee  Report,  to  be 
published in  2021, will shed light  on the state of play of long-term  care  systems  across the 
EU as well as the impact of the COVID-19 pandemic. 

The  large-scale  introduction  of  social  and  technological  innovation,  such  as  e-health, 
mobile health, telecare, integrated care or independent living, could substantially improve the 
efficiency  of  health  and  long-term  care  systems.  Remote  monitoring  healthcare  models,  in 
particular those that include patients and family members in the care team, have shown clear 
benefits for patients with chronic disease34.  

through  close  cooperation  and 

Integration  of  care 
information-sharing  between 
professionals, patients and their carers (including informal carers) has the potential to contain 
the  rising  costs  of  health  and  social  care  and  at  the  same  time  help  older  people  to  remain 
independent for longer and increase their well-being. 

Social enterprises  and non-profit organisations, (in particular, mutual  societies), have been 
used increasingly to deliver health and social care services, including for older people. They 
can  be  effective  because  of  their  local  roots  and  knowledge  and  their  explicit  social 
objectives. 

The EU supports Member States in  advancing long-term care systems  and reforms through 
analytical  work,  mutual  exchanges,  policy  guidance,  as  well  as  EU  funding.  Challenges  in 
long-term care and health care are also reflected in the European Semester. The EU facilitates 
coordination  of  national  social  security  systems,  protecting  the  rights  of  persons  moving 
within Europe, including their access to long-term care benefits35. Several initiatives will help 
improve  the  situation  of  informal  carers  and  ensure  adequate  pay  in  the  sector,  such  as  the 
Directive  on  work-life  balance,  or  the  proposal  for  a  Directive  on  adequate  minimum 
wages36.  In  the  context  of  COVID-19,  the  analysis  of  its  impact  on  long-term  care37  and 
guidance provided on managing the pandemic in the long-term  care settings38 highlight  the 
structural weaknesses. 

33   COM(2020) 14 final, 14.1.2020 
34   Transforming the future of ageing, SAPEA (2019) https://www.sapea.info/wp-content/uploads/tfa-report.pdf 
35    Regulation (EC) No 883/2004 of 29 April 2004. 
36    Directive (EU) 2019/1158 of 20 June 2019 and COM(2020)682 final, 28.10.2020. 
37   A joint European Commission and Social Protection Committee Report to be published in 2021. 
38   https://www.ecdc.europa.eu/en/publications-data/surveillance-COVID-19-long-term-care-facilities-EU-EEA  

17 

 
 
                                                           
5.2.  Mobility, connectivity and accessibility  

Ageing  societies  in  Europe  represent  a  demographic  trend  that  is  likely  to  shape  mobility 
patterns in the future. Public transport providers will have to adapt to an increasing number of 
passengers  with  disabilities  or  reduced  mobility  and  invest  in  barrier-free  smart  transport 
infrastructure  and  vehicles.  With  a  predominantly  female  older  population,  mobility  may 
need to focus more on the specific needs of women in terms of time and purpose of travel, 
route and travel distance as well as safety. 

The  automation  and  digitalisation  of  transport  can  help  reduce  the  number  of  accidents, 
improve travel  and transport operations, promote multimodality, lower  energy consumption 
and pollution, and optimise the use of resources and infrastructure. On the other hand, they 
also present challenges for older people who lack basic digital skills or have limited internet 
access. Those challenges are particularly relevant for older people residing in rural areas. 

Varying needs and capacities of older people should be taken into account in the organisation 
of urban infrastructure and services. Many cities already take into account health, gender 
equality  and  other  considerations  in  their  urban  mobility  plans.  Accessibility  contributes  to 
social  inclusion.  Adapted  housing  solutions  and ‘smart  homes’  with  sensors  and  automated 
systems for electrical appliances, lighting and heating can improve the safety of older people 
living alone and increase product durability and reusability. 

5.3. Territorial differences in access to care and services 

Although  most  EU  countries  have  achieved  universal  coverage  for  a  core  set  of  health 
services,  the  range  of  services  and  the  degree  of  cost-sharing  vary  significantly  across 
countries. Effective access to care can be restricted for financial reasons, staff shortages, long 
waiting  times  and  excessive  distance  to  travel  to  the  closest  health  care  facility.  Some 
Member States record problems in access to healthcare in rural and peripheral areas. These 
areas  are  known  as  ‘medical  deserts’39.  Regional  disparities  in  access  to  healthcare  have 
gained a new momentum during the COVID-19 pandemic. This is equally relevant for access 
to long-term care services and infrastructure. 

39   Source: Eurostat online table: hlth_silc_21. See also the map of health care facilities in the EU.  

18 

 
 
 
 
 
                                                           
Map 2. Driving time to the nearest health care facility 

Technology  can  help  improve  access  to  healthcare  for  older  people,  in  particular  in  remote 
areas.  Digital  solutions  play  an  important  role  in  closing  the  gaps  and  are  becoming 

19 

 
 
 
increasingly common, for instance for teleconsultations. This will require appropriate training 
and support in the use of such tools. 

Low  population  densities  make  it  difficult  for  rural  municipalities  to  offer  cost-effective, 
regular  and  convenient  public  transport  that  is  also  accessible  and  affordable  for  older 
people.  If  local  facilities,  such  as  shops,  banks, healthcare,  etc.  close  down,  people  have  to 
travel  further  to  access  these  services,  an  issue  which  may  disproportionately  affect  older 
rural residents. Innovative, community-based, sometimes mobile service solutions can help to 
fill the gaps, maintaining access to services in low populated areas.  

Box 2. Addressing the needs of all generations 

One of the big issues in the debate on how to respond to ageing is intergenerational fairness. 
The  challenge  is  to  maintain  an  adequate  level  of  social  protection  without  putting  an 
excessive burden on the shrinking working-age population whose contributions represent the 
biggest financing source for social systems. Shifting the tax burden from labour to pollution, 
as proposed in the European Green Deal, may offer new solutions. In the absence of further 
reforms,  the  increasing  diversity  in  the  labour  market  has  fewer  people  covered  by  and 
contributing to social protection systems. 

The sustainability of public finances needs to be closely monitored, especially for countries 
with high public debt. Currently, the total cost of age-related public expenditure exceeds 25% 
of  GDP  in  the  EU  as  a  whole.  In  the  2018  Ageing  Report,  these  costs  were  projected  to 
increase  by  1.1 percentage  points  (pp)  by  2070,  with  an  increase  of  3 pp  or  more  in  11 
Member  States.  The  rise  is  driven  mainly  by  spending  on  long-term  care  and  healthcare  in 
line with the need to adequately meet the needs of an ageing population. In addition, the fall-
out of fighting COVID-19 and the economic consequences of lockdown measures have posed 
further challenges. 

In  practice,  however,  the  rise  in  age-related  spending  may  prove  to  be  even  higher,  for 
example, if  past  pension  reforms  are  reversed  or  new  reforms  are  adopted  that  increase 
spending.  In  the  area  of  healthcare  and  long-term  care,  technological  progress  could  help 
improve  the  quality  of  services,  but  may  also  lead  to  higher  expenditure;  similarly,  better 
access to affordable long-term care may require additional public financing.  

Fiscal  sustainability  and  adequacy  are  two  faces  of  the  same  coin,  as  Europe  is  strongly 
committed to upholding its high social standards. Policy measures can help reconcile social 
and  fiscal  sustainability  by  prolonging  working  lives  as  well  as  increasing  coverage  and 
rethinking social protection systems. 

5.4.  Improving well-being through intergenerational solidarity 

The growing share of older people may mean that policies are needed to address social and 
emotional  needs,  such  as  safety  and  social  interaction.  Social  intermixing  is  limited  by  the 
fact that age groups cluster in different neighbourhoods and regions according to residential 
preferences that depend on their stage of life. Young students tend to gravitate towards city 
centres, young families settle in suburbs, while older people move to less densely populated 

20 

 
 
areas  and  at  higher  distances  from  city  centres.  These  patterns  of  movement  according  to 
age40 can have implications for intergenerational cohesion. 

It  is  estimated  that  around  30  million  adults  in  the  EU  frequently  feel  lonely41.  Loneliness 
affects all age groups. Factors such as poor health, unfavourable economic circumstances and 
living alone are associated with higher levels of loneliness.   

The COVID-19 crisis has highlighted the general importance of mental health. Lockdowns 
have had a significant impact on very old, frail people living in residential care, who often do 
not  have  access  to  -  or  the  skills  to  use  -  digital  communication.  Investing  in  digital  skills, 
community  development  and  intergenerational  cohesion  can  prevent  the  deterioration  of 
mental health and well-being and reduce inequalities. 

Healthy  older  people  are  able  to  contribute  substantially  to  the  production  of  social  and 
economic value in our societies. Wasting their cognitive skills is not only detrimental to their 
mental and physical health and well-being, but also a missed opportunity for the community.  

There  is  a  growing,  but  still  nascent,  tendency  to  arrange  ‘multi-generational  housing’, 
sometimes in the form of housing cooperatives, which can provide companionship for older 
residents,  the  transfer  of  skills  and  knowledge  for  younger  residents,  and  valuable  social 
interactions for all. 

13.  How  can  the  EU  support  Member  States’  efforts  to  reconcile  adequate  and  affordable 

healthcare and long-term care coverage with fiscal and financial sustainability? 

14.  How  could  the  EU  support  Member  States  in  addressing  common  long-term  care 
challenges?  What  objectives  and  measures  should  be  pursued  through  an  EU  policy 
framework addressing challenges such as accessibility, quality, affordability or working 
conditions?  What  are  the  considerations  to  be  made  for  areas  with  low  population 
density?  

15.  How  can  older  people  reap  the  benefits  of  the  digitalisation  of  mobility  and  health 
services?  How  can  the  accessibility,  availability,  affordability  and  safety  of  public 
transport options for older persons, notably in rural and remote areas, be improved? 

16.  Are  we  sufficiently  aware  of  the  causes  of  and  impacts  of  loneliness  in  our  policy 
making?  Which  steps  could  be  taken  to  help  prevent  loneliness  and  social  isolation 
among older people? Which support can the EU give? 

17.  Which role can multigenerational living and housing play in urban and rural planning in 
addressing the challenges of an ageing population? How could it be better harnessed? 

6.  Outlook 

Ageing  and  its  challenges  and  opportunities  are  present  throughout  our  lives  but  our 
perspectives change. Many young people today find it difficult to join the labour market and 
the current COVID-19 crisis has worsened the situation. In the longer term, the prospect of a 
longer life expectancy than their grandparents’ generation informs many of the choices young 

40   JRC, Demographic landscape of EU territories — challenges and opportunities in diversely ageing regions, 

https://publications.jrc.ec.europa.eu/repository/handle/JRC123046 . 

41    JRC, Policy brief: Loneliness – an unequally shared burden in Europe, 2019 

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people  make,  including  on  education,  work  life,  career  breaks.  This  in  turn  has  impacts  on 
their  health,  and  their  place  in  the  economy  and  society.  At  the  same  time,  today’s  older 
generation  brings  the  contributions,  needs  and  expectations  of  their  lifetime.  All  together, 
they form  part of a society and economy that needs to  ensure prosperity, success  and well-
being for all its members. Addressing the challenges and opportunities of ageing is therefore 
an individual and collective responsibility.  

As discussed in this green paper, there are many ways of preventing or limiting the negative 
consequences of ageing on our society. These include promoting healthy and active ageing, 
improving  the  resilience  of  our  health  and  care  systems,  improving  labour  market 
performance, modernising social  protection and fostering legal  migration  and integration as 
part of a policy mix, striving for higher productivity and efficiency across the board.  

The  EU  can  face  them  with  the  commitment  and  engagement  of  young  and  older  people, 
fostering  intergenerational  solidarity  and  responsibility  with  enabling  policies,  and  at  the 
same time leading the way in developing a supportive, dynamic society. 

The  Recovery  and  Resilience  Facility,  the  key  recovery  instrument  at  the  heart  of 
NextGenerationEU, aims to support Member States in doing this, enabling them to enhance 
their economic growth potential, job creation, and economic and social resilience in the way 
out of the current crisis. NextGenerationEU is at the same time a vehicle of intergenerational 
support and fairness, facilitating a sustainable economic recovery over the medium- and long-
term that should benefit the generations to come, through a combination of ambitious reforms 
and investments by Member States.  

However, ageing is not just about sustaining growth and the welfare state. It is also about our 
societies  as  a  whole  and  how  we  interact  across  generations.  In  parallel  with  our  policy 
response  to  the  socio-economic  impact  of  ageing,  we  have  to  discuss  how  to  ensure  that 
everyone can participate in our societies. This calls for an active involvement of both young 
and old in the discussion.  

Ultimately, the debate on policies to address the challenges and opportunities of ageing is one 
of  both  immediate  and  long-term  solutions.  It  requires  a  forward-looking  reflection  on  the 
impacts  and  alternatives  in  this  demographic  transition  inside  the  EU  as  well  as  its 
consequences for Europe’s role in the world. Such forward thinking could inform the debate 
and support long-term sustainable policy choices to the benefit of every age. 

HOW TO TAKE PART IN THE CONSULTATION 

This  green  paper  launches  a  12-week  public  consultation.  The  Commission  will  take  all 
contributions  into  consideration  in  its  future  work  and  provide  feedback  on  the  results.  We 
invite  you to  submit  your contribution  using the electronic form,  which  you can find at  the 
following address:  
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12722-Green-Paper-
on-Ageing  

Using  the  electronic  response  form  will  make  it  easier  to  process  your  opinions.  However, 
you can also send a written contribution to the following address: 

Green paper on ageing 

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SG.E.3 
BERL 06/270 
European Commission 
1049 Brussels  
Belgium 

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