Posting of workers : report on A1 portable documents issued in 2021.
Date: 2023-03-02
Institutions: Directorate-General for Employment, Social Affairs and Inclusion
Subjects: EU Member State, labour mobility, posted worker, social security legislation, social-security benefit, social-security contribution, worker information, working conditions

Posting of workers 

Report on A1 Portable Documents  
issued in 2021 

Frederic De Wispelaere, Lynn De Smedt & Jozef Pacolet – HIVA-KU Leuven 

October 2022 

 
 
 
 
 
 
 
 
EUROPEAN COMMISSION 
Directorate-General for Employment, Social Affairs and Inclusion 
Directorate E — Labour Mobility and International Affairs 
Unit E/2 — Social security coordination 

E-mail:  EMPL-E2-UNIT@ec.europa.eu  

European Commission 
B-1049 Brussels 

 
 
 
EUROPEAN COMMISSION 

Posting of workers 

Report on A1 Portable Documents  
issued in 2021 

2022 

Directorate-General for Employment, Social Affairs and Inclusion 

 
 
Manuscript completed in October 2022 

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PDF 

ISBN 978-92-76-98616-4 

doi: 10.2767/199888 

KE-07-23-034-EN-N 

 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table of Contents 

List of Tables................................................................................................................. 7 

List of Figures ............................................................................................................... 8 

Glossary ........................................................................................................................ 9 

Summary of main findings ......................................................................................... 10 

1. 

Introduction ........................................................................................................ 14 

1.1.  Brief overview of the legal framework .............................................................. 15 

1.2.  Content of the PD A1 report ............................................................................ 15 

1.3.  Some important methodological remarks ........................................................ 16 

2. 

An overall picture of the number of PDs A1 issued ........................................ 18 

2.1.  Number of PDs A1 issued in 2020................................................................... 18 

2.2.  Share in total EU employment ......................................................................... 23 

2.3.  Comparison with previous years ..................................................................... 23 

3. 

Persons covered by Article 12 .......................................................................... 26 

3.1.  General ........................................................................................................... 26 

3.2.  Mainly issued by and to EU-14 Member States ............................................... 28 

3.3.  Comparison with previous years ..................................................................... 29 

3.4.  Breakdown by type: employed or self-employed persons ................................ 31 

3.5.  Breakdown by sector of economic activity ....................................................... 32 

3.6.  The number of individual persons involved ...................................................... 35 

3.7.  The average duration ...................................................................................... 36 

3.8.  The impact on national labour markets ............................................................ 37 

4. 

Persons covered by Article 13 .......................................................................... 39 

4.1.  Breakdown by type of activity .......................................................................... 39 

4.2.  Comparison with previous years ..................................................................... 40 

4.3.  Breakdown by sector of economic activity ....................................................... 41 

5 

Posting of workers 

4.4.  The number of individual persons involved ...................................................... 43 

4.5.  The average duration ...................................................................................... 44 

4.6.  The impact on national labour markets ............................................................ 46 

5. 

Fraud and error .................................................................................................. 48 

Annex I  

Additional tables ..................................................................................... 53 

Annex II   Country abbreviations ............................................................................ 58 

Annex III   PD A1 Questionnaire .............................................................................. 63 

Annex IV  Portable Document A1 ........................................................................... 64 

6 

 
 
 
Posting of workers 

List of Tables 
Table 1 - Total number of PDs A1 issued by the competent Member States, 

breakdown by type, 2021 ............................................................................ 20 

Table 2 - Total number of PDs A1 issued by the competent Member States, row 

percentage breakdown by type, 2021 ......................................................... 21 

Table 3 - Total number of PDs A1 issued by the competent Member States, by type, 

share in column total, 2021 ......................................................................... 22 

Table 4 - PDs A1 issued by the competent Member States, 2012-2021........................ 24 

Table 5 - PDs A1 issued by competent Member States according to Article 12 of the 

Basic Regulation, breakdown by receiving Member State, 2021 ................. 27 

Table 6 - PDs A1 according to Article 12 of the Basic Regulation issued by sending 

Member State, 2010-2021 .......................................................................... 30 

Table 7 - PDs A1 issued according to Article 12 of the Basic Regulation, by 

receiving Member State, 2010-2021 ........................................................... 31 

Table 8 - Number of PDs A1 according to Article 12 of the Basic Regulation issued 

to employed and self-employed persons, 2022 ........................................... 32 

Table 9 - PDs A1 issued according to Article 12 of the Basic Regulation, from a 

sending perspective, breakdown by sector of activity, 2021 (row %) ........... 33 

Table 10 - PDs A1 issued according to Article 12 of the Basic Regulation, from a 

receiving perspective, breakdown by sector of activity, 2021 (row %) ......... 34 

Table 11 - Number of individual persons who received a PD A1 according to Article 

12 of the Basic Regulation, 2021 ................................................................ 35 

Table 12 - Average duration of the period that persons are active under Article 12, in 

days, from a sending perspective, 2021 ...................................................... 36 

Table 13 - Share of persons falling under Article 12 of the Basic Regulation in 

national employment, by sending Member State, 2021 ............................... 37 

Table 14 - Total number of PDs A1 issued for persons active in two or more Member 

States by the sending Member State, breakdown by type of activity, 
2021 ........................................................................................................... 40 

Table 15 - Total number of PDs A1 issued for persons active in two or more Member 

States by the sending Member States, 2010-2021 ..................................... 41 

Table 16 - Total number of PDs A1 issued for persons active in two or more Member 

States, breakdown by economic activity, from a sending perspective, 
2021 (row %) .............................................................................................. 42 

Table 17 - Number of individual persons employed in two or more Member States, 

2021 ........................................................................................................... 44 

Table 18 - Average duration of employment or self-employment in two or more 

Member States, in days, from a sending perspective, 2021 ........................ 45 

Table 19 - Share of persons employed in two or more Member States in national 

employment, from a sending perspective, 2021 .......................................... 47 

Table 20 - Number of cases of inappropriate use of applicable legislation (PD A1), 

as a receiving Member State, 2021 ............................................................ 49 

Table 21 - Number of cases of inappropriate use of applicable legislation (PD A1), 

as a sending Member State, 2021 .............................................................. 50 

Table 22 - Number of PDs A1 withdrawn, 2021 ............................................................ 50 

7 

Posting of workers 

Table 23 - Efforts at uncovering inappropriate use of applicable legislation (PD A1), 

2021 ........................................................................................................... 51 

List of Figures 
Figure 1 - Total number of PDs A1 issued, breakdown by type, 2021 ........................... 18 

Figure 2 - Share of PDs A1 in national employment of the sending Member State, 

2021 ........................................................................................................... 23 

Figure 3 - Percentage in total number of PDs A1 issued, 2010-2021 ............................ 25 

Figure 4 - Net balance between the number of PDs A1 issued and received 

according to Article 12 of the Basic Regulation, 2021 ................................. 28 

Figure 5 - PDs A1 issued according to Article 12 of the Basic Regulation, breakdown 

by classification of the sending or the receiving Member State, total, 
2021 ........................................................................................................... 29 

Figure 6 - Estimated share of individual persons falling under Article 12 of the Basic 

Regulation in total employment in construction, by sending Member 
State, 2021 ................................................................................................. 38 

Figure 7 - Total number of PDs A1 issued for persons active in two or more Member 

States, breakdown by type of activity, 2021 ................................................ 39 

Figure 8 - Share of Articles 12 and 13 of Regulation (EC) No 883/2004 in total 
number of PDs A1 issued to persons employed in the construction 
sector, 2021 ................................................................................................ 43 

Figure 9 - Average duration in days, persons covered by Article 12 versus persons 

covered by Article 13, 2021 ........................................................................ 46 

Figure 10 - Estimated share of persons employed in two or more Member States in 

freight transport by road, 2021 .................................................................... 48 

8 

 
 
 
 
 
 
 
 
 
 
Posting of workers 

Glossary 

Basic Regulation: Regulation (EC) No 883/2004 of the European Parliament and of the 
Council of 29 April 2004 on the coordination of social security systems. 

Implementing Regulation: Regulation (EC) No 987/2009 of the European Parliament and 
of  the  Council  of  16  September  2009  laying  down  the  procedure  for  implementing 
Regulation (EC) No 883/2004 on the coordination of social security systems. 

Competent  Member  State:  The  Member  State  in  which  the  institution  with  which  the 
person concerned is insured or from which the person is entitled to benefits is situated. 

EU-28: Belgium (BE), Bulgaria (BG), the Czech Republic (CZ), Denmark (DK), Germany 
(DE), Estonia (EE), Ireland (IE), Greece (EL), Spain (ES), France (FR), Croatia (HR), Italy 
(IT), Cyprus (CY), Latvia (LV), Lithuania (LT), Luxembourg (LU), Hungary (HU), Malta (MT), 
the  Netherlands  (NL),  Austria  (AT),  Poland (PL),  Portugal (PT),  Romania  (RO),  Slovenia 
(SI), Slovakia (SK), Finland (FI), Sweden (SE), and the United Kingdom (UK).  

EU-27: Belgium (BE), Bulgaria (BG), the Czech Republic (CZ), Denmark (DK), Germany 
(DE), Estonia (EE), Ireland (IE), Greece (EL), Spain (ES), France (FR), Croatia (HR), Italy 
(IT), Cyprus (CY), Latvia (LV), Lithuania (LT), Luxembourg (LU), Hungary (HU), Malta (MT), 
the  Netherlands  (NL),  Austria  (AT),  Poland (PL),  Portugal (PT),  Romania  (RO),  Slovenia 
(SI), Slovakia (SK), Finland (FI), and Sweden (SE).  

EU-15: Belgium (BE), Denmark (DK), Germany (DE), Ireland (IE), Greece (EL), Spain (ES), 
France (FR), Italy (IT), Luxembourg (LU), the Netherlands (NL), Austria (AT), Portugal (PT), 
Finland (FI), Sweden (SE), and the United Kingdom (UK). 

EU-14: Belgium (BE), Denmark (DK), Germany (DE), Ireland (IE), Greece (EL), Spain (ES), 
France (FR), Italy (IT), Luxembourg (LU), the Netherlands (NL), Austria (AT), Portugal (PT), 
Finland (FI), and Sweden (SE).  

EU-13: Bulgaria (BG), the Czech Republic (CZ), Estonia (EE), Croatia (HR), Cyprus (CY), 
Latvia  (LV),  Lithuania  (LT),  Hungary  (HU),  Malta  (MT),  Poland  (PL),  Romania  (RO), 
Slovenia (SI), and Slovakia (SK). 

EFTA countries: Iceland (IS), Liechtenstein (LI), Norway (NO), and Switzerland (CH). 

Persons covered by Article 12 of the Basic Regulation: Article 12 relates to employed 
persons  who  are  employed  by  an  employer  which  normally  carries  out  its  activities  in  a 
Member State and who are posted by that employer to another Member State to perform 
work on its behalf, and persons who normally pursue an activity as a self-employed person 
in a Member State who go to pursue a similar activity in another Member State. 

Persons  covered  by  Article  13  of  the  Basic  Regulation:  These  persons  pursue  an 
activity as an employed/self-employed person in two or more Member States. 

Portable Document (PD) A1: This certificate proves that the social security legislation of 
the issuing Member State applies and confirms that this person has no obligations to pay 
contributions in another Member State.

9 

 
Posting of workers 

Summary of main findings 

The  main  principle  of  the  EU  rules  on  social  security  coordination1  is  that  persons  are 
subject to the legislation of a single Member State2 only. If the person works, the legislation 
of the Member State where the economic activity is carried out applies (‘lex loci laboris’). In 
some  very  specific  situations,  other  criteria  apply.  Such  situations  include,  inter  alia,  1) 
employed  persons  who  are  employed  by  an  employer  which  normally  carries  out  its 
activities in a Member State and who are posted by that employer to another Member State 
to perform work on its behalf (Article 12(1) of the Basic Regulation), 2) persons who normally 
pursue an activity as a self-employed person in a Member State who go to pursue a similar 
activity in another Member State (Article 12(2) of the Basic Regulation); and 3) persons who 
pursue  an  activity  as  an  employed/self-employed  person  in  two  or  more  Member  States 
(Article 13 of the Basic Regulation).3 Under Article 12 of the Basic Regulation, the social 
security  legislation  of  the  Member  State  where  the  employer  normally  carries  out  its 
activities / where the self-employed activity is normally pursued continues to apply for up to 
24  months.  Under  Article  13  of  the  Basic  Regulation,  special  rules  for  persons  who  are 
normally  employed,  self-employed,  or  both  employed  and  self-employed  in  two  or  more 
Member  States  are  laid  down  to  ensure  that  the  social  security  legislation  of  only  one 
Member State is applicable.  

In the situations discussed above, a so-called ‘Portable Document A1 (PD A1)’ is issued.4 
This certificate proves that the social security legislation of the issuing Member State applies 
and  confirms  that  the  person  concerned  has  no  obligations  to  pay  social  security 
contributions  in  another  Member  State.  The  current  legal  framework  provides  that  the 
employer or the person concerned must inform the competent institution about their planned 
transnational activities, whenever possible before these activities take place. Subsequently, 
after verification of several conditions, a PD A1 is provided by the competent institution.5 In 
practice,  authorities  are  not  always  informed  about  these  transnational  activities. 
Consequently, there might be a discrepancy between the number of PDs A1 issued and the 
actual number of persons being sent abroad. However, it is likely that this difference has 
narrowed in recent years. Indeed, some Member States have laid down sanctions in their 
national legislation for not having a PD A1 and/or carry out far more inspections on having 
a PD A1. In addition, the communication of competent authorities concerning the application 
for a PD A1 when making a ‘business trip’ to another EU/EFTA country may also have a 
direct impact.  

The aftermath of the COVID-19 pandemic 

The COVID-19 pandemic and the restrictions on freedom of movement imposed by Member 
States to stem the spread of the virus had an enormous impact on labour mobility in the 

1   Regulation (EC) No 883/2004 of 29 April 2004 on the coordination of social security systems (also referred to as Basic 
Regulation)  and  Regulation  (EC)  No  987/2009  of  16  September  2009  laying  down  the  procedure  for  implementing 
Regulation (EC) No 883/2004 on the coordination of social security systems (also referred to as Implementing Regulation). 

2   The  term  “Member  State”  is  used  in  this  report to  indicate the  27  countries  belonging to  the European  Union  (EU)  in 

reference year 2021, the European Economic Area (EEA), Switzerland, and the United Kingdom (UK). 

3   See EC (2013), Practical guide on the applicable legislation in the European Union (EU), the European Economic Area 

(EEA) and in Switzerland. 

4   For  instance,  in  cases  subject  to  Article  13  of  the  Basic  Regulation,  the  person  concerned  must  inform  the  relevant 
institution in the Member State of residence, which will launch the procedure for determining the applicable legislation. 
Once the competent Member State has been identified, it will issue a PD A1. 

5   Under the CJEU case-law (see e.g., Case C-202/97, FTS, paragraph 51 EU:C:2000:75) the competent authority needs 
to carry out a proper assessment of the facts relevant to the application of the rules for determining the applicable social 
security legislation and, consequently, to guarantee the correctness of the information contained in the PD A1. 

10 

 
 
Posting of workers 

EU/EFTA (including the UK).6 This was also clearly the case for intra-EU posting. In 2020, 
the overall number of PDs A1 issued decreased by almost 900 000 PDs A1 or almost one 
fifth compared to 2019. Even in 2021, the hampering effects of the COVID-19 pandemic 
were  still  visible  in  the  PD  A1  data.  Indeed,  the  total  number  of  PDs  A1  issued  in  2021 
decreased by 2.4 % or some 89 300 PDs A1 compared to 2020 (Figure 1). However, as 
can be seen, it only concerns a drop in the number of PDs A1 issued according to Article 
12 (mainly due to a sharp decline in Germany), as those PDs A1 issued under Article 13 
have increased again after a decrease from 2019 to 2020. Even though there was still a 
decline in the total number of PDs A1, it can be noted that the level of PDs A1 is still above 
the level of 2018, meaning that the growing trend over the past decade is likely to continue.  

Figure 1 - Evolution of the number of PDs A1 issued, by type, 2007-2021 

d
e
u
s
s
i

1
A
s
D
P
f
o
r
e
b
m
u
N

 5,000,000

 4,500,000

 4,000,000

 3,500,000

 3,000,000

 2,500,000

 2,000,000

 1,500,000

 1,000,000

 500,000

 -

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021

Total (E101)

PDs A1 issued according to Art. 12 BR

PDs A1 issued according to Art. 13 BR

Other

Source:  Administrative data PD A1 Questionnaire 2022 and previous years  

In  total,  3.6  million  PDs  A1  were  issued  in  2021  by  the  competent  institutions  in  the 
EU/EFTA countries and the United Kingdom. The majority of these PDs A1 are still issued 
under Article 12, namely some 2.2 million or 61 % of all PDs A1 issued. Nevertheless, the 
share of PDs A1 issued under Article 13 has been on the rise in the last years. Its share 
went from 14 % in 2010 to 37 % in 2021. Finally, around 90 900 PDs A1 were issued to 
other categories (2.5 %).  

While the number of PDs A1 under Article 12 decreased drastically in 2020 and decreased 
even further in 2021, PDs A1 under Article 13 only saw a small decrease in 2020 due to the 
COVID-19  pandemic  and  increased  again  in  2021  (Figure 2).  From  2020  to  2021  the 
number of PDs A1 issued under Article 12 decreased by 9.1 %, while those under Article 13 
increased by 8.7 % (Figure 2). This can be explained by the type of activities mostly covered 
by the different Articles. Most PDs A1 under Article 13 are issued for activities in road freight 
transport.  During  the  COVID-19  pandemic,  this  proved  to  be  one  of  the  most  essential 
sectors. Whereas several sectors came to a complete standstill, road freight transport has 
been  a  sector that  had continued  activities.  This  might  be  a  possible  explanation  for the 
smaller decrease in the number of PDs A1 issued under Article 13 in 2020 and the quick 
recovery again in 2021. Moreover, 2019 was possibly an outlier in terms of the number of 
PDs A1 issued under Article 12, mainly in Germany. 

6   Hassan, E., Fries-Tersch, E., Jones, M. and Siöland, L. (2022), Annual Report on Intra-EU Labour Mobility 2021, Network 
Statistics FMSSFE, on behalf of the European Commission - DG EMPL. See chapter 3 on ‘COVID-19 and intra-EU labour 
mobility’.  

11 

 
 
 
 
 
 
Posting of workers 

Figure 2 - Number of PDs A1 issued and percentage change, by type, 2010-2021 

 3,500,000

 3,000,000

 2,500,000

 2,000,000

 1,500,000

 1,000,000

 500,000

d
e
u
s
s
i

1
A
s
D
P
f
o
r
e
b
m
u
N

 -

76.9%

64.4%

13.4%

9.0%8.5%

8.6%6.6%4.8%

2.8%

2.6%

33.5%

35.9%

20.2%

17.2%18.9%21.9%

-9.1%

-24.4%

100.0%

80.0%

60.0%

40.0%

23.9%

7.2%

8.7%

20.0%

-8.8%

0.0%

-20.0%

-40.0%

r
a
e
y
n
o
r
a
e
y
e
g
n
a
h
c
%

0
1
0
2

1
1
0
2

2
1
0
2

3
1
0
2

4
1
0
2

5
1
0
2

6
1
0
2

7
1
0
2

8
1
0
2

9
1
0
2

0
2
0
2

1
2
0
2

0
1
0
2

1
1
0
2

2
1
0
2

3
1
0
2

4
1
0
2

5
1
0
2

6
1
0
2

7
1
0
2

8
1
0
2

9
1
0
2

0
2
0
2

1
2
0
2

PDs A1 issued according to Art. 12 BR

PDs A1 issued according to Art. 13 BR

Number

% change

Source:  Administrative data PD A1 Questionnaire 2022 and previous years 

In 2021, the two main issuing Member States of a PD A1 were Germany (997 000 PDs A1 
issued) and Poland (677 000 PDs A1 issued). These two Member States issued 47 % of 
the  total  number  of  PDs A1.  However,  both  Member  States  have  a  completely  different 
profile. Germany mainly issued PDs A1 according to Article 12, representing  40 % of the 
total  number  of  PDs  A1  issued  by  the  application  of  this  provision  (Figure 3).  This  is  in 
contrast to Poland, which is the main issuing Member State of PDs A1 issued to persons 
covered by Article 13, issuing one third of all PDs A1 under Article 13. 

Figure 3 - Number of PDs A1 issued, breakdown by type and issuing Member State, 
2020-2021 

Source:  Administrative data PD A1 Questionnaire 2022 and 2021 

Of the main issuing Member States of a PD A1 under Article 12, only Germany (-29.0 % or 
-358 000 PDs A1) shows a strong decline from 2020 to 2021. Other main issuing Member 
States,  such  as  Poland (+7.4 %)  and  Spain  (+39.8 %)  show  a  positive  evolution.  This  is 
also the case for PDs A1 issued under Article 13, where the main issuing Member States 
Poland (+11.1 %) and Spain (+2.3 %) display a growth. Once more, the number of PDs A1 
issued by Germany (-29.4 %) shows a strong decrease.  

PDs A1 issued under Article 12 

The detailed breakdown of the information provided by the issuing Member States on the 
PDs A1 issued according to Article 12, if exhaustively completed, results in a similar view 
by  receiving  Member  State.  Most  persons  covered  by  Article  12  were  sent  to Germany, 
France, Austria, Belgium, the Netherlands, and Switzerland. A PD A1 under Article 12 is 
mainly  issued  by  and to  EU-14  Member  States.  Indeed,  some  seven  out  of  ten  PDs  A1 
under Article 12 were granted by the EU-14 and almost eight out of ten PDs A1 under Article 
12 were received by the EU-14. The top three flows went from Germany to Austria (166 004 
PDs  A1),  from  Poland  to  Germany  (125 380  PDs  A1),  and  from  Germany  to  France 
(100 591 PDs A1).  

12 

 
 
 
 
 
 
 
 
 
Posting of workers 

Most PDs A1 under Article 12 were granted for activities in the industry sector (61 %) of 
which 26 % in the construction sector. Furthermore, 38 % of PDs A1 were for activities in 
the services sector, and only 1 % in the agriculture sector. However, if Germany is left out 
of these shares, the construction sector takes up a more prominent roles, as its share then 
increases to 43 %. This is also visible when comparing the share of the construction sector 
for the EU-14 (15 %) and the EU-13 (49 %). For example, Estonia, Portugal, Romania, and 
Slovakia issue more than one in two PDs A1 for activities in the construction sector. Persons 
with  a  PD  A1  under  Article  12  from  Belgium,  Cyprus,  Malta,  Iceland,  and  Liechtenstein 
mainly provide activities in the service sector. 

Under the current rules on social security coordination the period that persons are pursuing 
an activity covered by Article 12 is set at a maximum of 24 months. In practice, the average 
duration  was  around  106  days  per  PD  A1  in  2021.  Furthermore,  one  individual 
employed/self-employed person was sent abroad 1.7 times in 2021. 

Of all the PDs A1 issued under Article 12, roughly 6 % were issued for posted self-employed 
persons. This share strongly differs between Member States. For instance, more than four 
in ten PDs A1 issued by Iceland and Slovakia were granted to self-employed persons.  

In 2021, some 0.4 % of total EU employment could be related to the employment of persons 
covered by Article 12. Some Member States, and within these Member States some specific 
sectors  of  activity,  in  particular  the  construction  sector,  are  confronted  with  a  high 
percentage of  incoming persons  covered  by  Article 12  (for  instance Belgium). Moreover, 
the construction sector in both Luxembourg and Slovenia is sending a high percentage of 
its employed construction workers abroad.  

PDs A1 issued under Article 13 

Some 9 out of ten of the PDs A1 issued according to Article 13 relate to persons employed 
in different Member States.  

Furthermore, some  42 %  of the  PDs  A1  issued  according  to  Article 13  were  provided to 
persons  employed  in  road  freight  transport.  For  instance,  approximately  224 000 
PDs A1 were  issued  by  Poland  to  persons  employed  in  this  sector.  Especially  a  high 
percentage  of  truck  drivers  employed  in  Croatia,  Latvia,  Lithuania,  Luxembourg,  Malta, 
Poland, Slovakia, and Liechtenstein are active in two or more Member States.  

Article  13  does  not  set  a  maximum  period  for  employment  or  self-employment  in  two  or 
more Member States. Consequently, the average duration persons pursue an activity in two 
or  more  Member  States  was  some  325  days  per  PD  A1  and  even  a  complete  year  per 
individual person (369 days). 

Finally, an equivalent of 0.4 % of EU employment could be related to the employment of 
persons active in two or more Member States (in FTE). 

13 

 
 
Posting of workers 

1.  Introduction 

The data presented in this report concerns data provided by Member States on reference 
year  20217,8 about  the  number  of  Portable  Documents  A1  (PDs  A1),  which  replaced  the 
E101 forms9. For one Member State10, data from previous reference years is used, seeing 
that no or incomplete data were provided for reference year 2021. 

Article  19  of  the  Implementing  Regulation  states  that  the  PD  A111  is  provided  by  the 
competent  Member  State  at  the  request  of  the  employer  or  the  person  concerned.  It 
establishes the presumption that the holder is affiliated to the social security system of the 
Member State which has issued the certificate. Consequently, it confirms that the person 
concerned has no obligations to pay contributions in another Member State. PDs A1 are 
used for various cases: pursuing activities in another Member State  based on Article 12; 
pursuing  activities  in  two  or  more  Member  States  based  on  Article 13;  ‘Article  16 
agreements’; civil servants; mariners; flight or cabin crew members; contract staff of the EU. 
Regarding the granting of a PD A1, the Administrative Commission lays down the structure, 
content,  format,  and  detailed  arrangements  for  the  exchange  of  documents,12  and  the 
Implementing Regulation sets out the information policy affecting the granting of a PD A1.13 
Nonetheless, Member States still have an important margin of discretion for designing their 
internal PD A1 granting procedure. 

The  collected  data  provide  detailed  information  on  the  size,  the  characteristics,  and  the 
impact of intra-EU posting according to Article 12 of the Basic Regulation and of persons 
who  are  active  in two  or  more  Member  States  under  Article  13  of  the  Basic  Regulation. 
Nonetheless,  it  should  be  acknowledged  that  the  PD  A1  data  only  provide  an  indicative 
picture  of  the  actual  number  of  postings  taking  place  both  under  the  Coordination 
Regulations and the Posting of Workers Directive14. First, differences exist in the notion of 
‘posted’ used by the Basic Regulation compared to the Posting of Workers Directive, thus 
covering a different range of persons. Second, in some cases, a posting may take place 
without the institutions being informed of it. Consequently, the number of PDs A1 issued 
may depend on the number of inspections performed by the enforcement bodies in the host 
Member State, to what extent host Member States implemented sanctions in case of failure 
to show a PD A1 but also to what extent posting undertakings are aware of the application 
procedures (see Section 1.3).  

7   The Network would like to thank all delegations of the Administrative Commission for providing these data. Moreover, we 
would  like  to  thank  the  Commission  and  the  Administrative  Commission  for  remarks,  comments,  and  exchanges  on 
previous versions. 

8  See Annex III for the content of the PD A1 Questionnaire. The questionnaire also asks whether Member States are aware 
of cases of fraud or error with regard to the provisions on the PD A1. An analysis of the replies can be found in the thematic 
report on fraud and error (Jorens et al. (2021), Fraud and error in the field of EU social security coordination, Network 
Statistics FMSSFE, European Commission – DG EMPL). 

9   Since 1 May 2010, E101 forms have been replaced by PDs A1 by Regulation (EC) No 883/2004 on the coordination of 
social security systems. However, these new rules have been applied to nationals of Switzerland since 1 April 2012, and 
to nationals of Norway, Iceland, and Liechtenstein since 1 June 2012. 

10   It concerns EL (data 2018). This is always mentioned in a footnote.  

11   See Annex IV for the Portable Document A1. 

12   Administrative Commission Decision No A1 of 12 June 2009. 

13   See Articles 15 and 19 of Regulation (EC) No 987/2009. 

14   Directive 96/71/EC of the European Parliament and of the Council of 16 December 1996 concerning the posting of workers 

in the framework of the provision of services as amended by Directive (EU) 2018/957.  

14 

 
 
Posting of workers 

1.1.  Brief overview of the legal framework 

According to the social security coordination regulations, the social security legislation of 
the  Member  State  in  which  the  employee  or  self-employed  person  is  working  applies. 
Nevertheless, regarding persons covered by Article 12 of the Basic Regulation, there is an 
exception to this principle. This exception states that the social security legislation of the 
Member State where the employer normally carries out its activities continues to apply for 
up to 24 months. The purpose of these provisions is to avoid an administrative burden for 
workers, employers, and social security institutions.15 In addition, it protects posted workers 
by keeping their insurance record stable. Furthermore, Article 13 of the Basic Regulation 
lays  down  special  rules  for  persons  who  are  normally  employed,  self-employed,  or  both 
employed  and  self-employed  in  two  or  more  Member  States,  to  ensure  that  the  social 
security legislation of only one Member State is applicable. Based on Article 11 (5) of the 
Basic Regulation, for flight or cabin crew members, the applicable legislation is determined 
by their ‘home base’. Finally, Article 16 (1) of the Basic Regulation permits the competent 
authorities of two or more Member States to reach agreements dealing with exceptions to 
the rules governing the applicable legislation.  

1.2.  Content of the PD A1 report 

First, a general overview of the number of PDs A1 issued is presented in Chapter 2. Next, 
the focus is on those PDs A1 issued related to persons covered by Article 12 (Chapter 3). 
This  is  done  by  providing  a  breakdown  by  classification  of  the  sending  and  receiving 
Member State, by status, by sector of activity, and by focusing on the impact on the national 
labour market of the sending and receiving Member State. Furthermore, data are reported 
on  the  number  of  individual  persons  involved  and  the  duration  persons  are  pursuing  an 
activity abroad, to gain better insight into the impact of persons covered by Article 12. In 
Chapter 4, more detailed figures on persons who are active in two or more Member States 
under Article 13 are presented. Finally, cases of fraud or error are reported in Chapter 5.   

Almost all Member States provided detailed figures on the number of PDs A1 issued.16 Only 
Switzerland  could  not  provide  a  breakdown  by  receiving  Member  State  for  the  PDs A1 
issued  according  to  Article  12.  Regarding  the  collection  of  more  detailed  figures  on  the 
PDs A1 issued according to Article 12, 21 Member States provided a breakdown by sector 
of  economic  activity.  Furthermore,  20  and  19  Member  States  respectively  were  able  to 
provide (partial) data on the number of individual employed/self-employed persons and on 
the duration persons are pursuing an activity covered by Article 12. Regarding the collection 
of more detailed figures on the PDs A1 issued to persons active in two or more Member 
States 15 Member States provided a breakdown by sector of economic activity, 21 Member 
States reported the number of individual persons active in two or more Member States and 
19 Member States provided data on the duration. These response rates indicate that the 
image  presented  for  some  indicators  is  incomplete  due  to  missing  data  from  several 
Member States. This is of course not without consequence for the robustness of the overall 
conclusions. 

As of 1 February 2020, the United Kingdom is no longer part of the European Union. This 
has a significant impact on the dissemination of statistics. In all thematic reports, the EU-27 
aggregate  (excluding  the  UK)  is  produced  for  2021.  Accordingly,  the  text  of  the  report 
describing  the  quantitative  findings  focusses  on  the  EU-27  aggregate.  Data  before 

15   See recital 1 of Administrative Commission Decision No A2 of 12 June 2009. Moreover, recital 2 of the same decision 
states that “the provisions of Article 12 of Regulation (EC) No 883/2004 … aim in particular to facilitate the freedom to provide 
services for the benefit of employers which post workers to Member States other than that in which they are established, as well 
as  the  freedom  of  workers  to  move  to  other  Member  States.  These  provisions  also  aim  at  overcoming  the  obstacles  likely  to 
impede  freedom  of  movement  of  workers  and  at  encouraging  economic  interpenetration  whilst  avoiding  administrative 
complications, especially for workers and undertakings.”  

16   Figures for EL apply to reference year 2018.  

15 

 
 
Posting of workers 

1 February 2020 refers to periods when the UK was a Member State, and therefore remains 
valid. Therefore, when discussing the evolution of the number of PDs A1, both the EU-27 
aggregate and the EU-28 aggregate is reported for reference years 2019 and earlier.   

There are two Agreements now governing the relations between the EU and UK in terms of 
social security coordination17. First, the Withdrawal Agreement (WA)18 entered into force 
on 1 February 2020 with a transitional period until 31 December 2020. It provides for full 
coordination  to  all  those  persons  (including  their  family  members/survivors)  who  have 
continuously been in a cross-border situation involving the EU and the UK since before the 
end  of  the  transition  period.  This  means  that  the  complete  social  security  coordination 
acquis19 applies to these persons. Furthermore, partial coordination applies to persons who 
are not covered by Art. 30 (full coordination) but have been subject to both UK/EU social 
security legislation before the end of the transition period. This includes among others EU 
rules  concerning  the  aggregation  of  periods,  rights  and  obligations  deriving  from  such 
periods. The Withdrawal Agreement also protects persons in triangular situations with EFTA 
Member States.  

The Trade and Cooperation Agreement (TCA)20 was signed on 30 December 2020, was 
applied provisionally as of 1 January 2021, and entered into force on 1 May 2021. In this 
Agreement  there  is  a  Protocol  on  Social  Security  Coordination  which  covers  all  persons 
who 1) are or have been covered by the social security legislation of an EU Member State 
or of the UK; 2) are residing in an EU Member State or the UK; 3) are or have been in a 
cross-border situation between an EU Member State and the UK as from 1 January 2021. 
This Protocol fully coordinates all branches of social security coordination that are currently 
coordinated under the Basic Regulation except for family benefits, long-term care, special 
non-contributory cash benefits, and assisted reproduction services. Additionally, there is a 
partial  coordination  for  invalidity  benefits  and  unemployment  benefits.  However,  this 
Protocol does not does not apply to situations involving a UK national moving between two 
or more Member States, without a cross-border element with the UK as such. Furthermore, 
it does not apply to the EFTA Member States. 

This thematic report covering the posting of workers is the only one in which a distinction 
between both agreements could be provided. Where applicable, figures for the Withdrawal 
Agreement (UK WA)  and the  Trade and  Cooperation Agreement (UK  TCA)  are reported 
separately, as well as the total for the United Kingdom (UK).  

1.3.  Some important methodological remarks 

The statistics that become publicly available by collecting data on PD A1 are nearly the only 
source  of  comparable  information  at  European  level  to  estimate  the  number  of 
postings/posted workers. Consequently, these data are frequently used by scholars as well 
as in political debates. When using and citing these data, it is of utmost importance that the 
limitations of these figures are clearly described.  

17  European Commission, Latest developments on free movement of workers, social security coordination and posting of 

workers at EU level, MoveS Seminar Posting of workers: quo vadis, 17 June 2022. 

18  Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and 
https://eur-lex.europa.eu/legal-

the 
content/EN/TXT/?qid=1580206007232&uri=CELEX%3A12019W/TXT%2802%29  

Community2019/C 

European 

Energy 

Atomic 

I/01. 

See 

384 

19  Basic Regulation and Implementing Regulation 

20  Trade and Cooperation Agreement between the European Union and the European Atomic Energy Community, of the 
one  part,  and  the  United  Kingdom  of  Great  Britain  and  Northern  Ireland,  of  the  other  part.  See  https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=uriserv%3AOJ.L_.2021.149.01.0010.01.ENG&toc=OJ%3AL%3A2021%3A149%3ATOC  

16 

 
 
Posting of workers 

Firstly,  the  reader’s  attention  is  drawn  to  the  fact  that  differences  exist  in  the  notion  of 
‘posted’  used  by  the  Basic  Regulation  compared  to  the  Posting  of  Workers  Directive 
(Directive 96/71/EC)21. Consequently, persons might be ‘posted’ under the Basic Regulation 
but not in the meaning of the Directive. For instance, self-employed persons falling under 
Article 12 (2) of the Basic Regulation are not covered by the Posting of Workers Directive. 
In addition, workers who are sent temporarily to work in another Member State, but do not 
provide  services  there,  are  not  covered  by  the  Posting  of  Workers  Directive.  This  is  the 
case, for example, for workers on business trips (when no service is provided), attending 
conferences,  meetings,  fairs,  following  training,  etc.  In  contrast,  persons  might  also  be 
posted  under  the  Posting  of  Workers  Directive  and  not  under  the  Basic  Regulation.  For 
instance, workers who pursue an activity in two or more Member States (Article 13 of the 
Basic  Regulation)  may  fall  under  the  terms  and  conditions  of  the  Posting  of  Workers 
Directive. Furthermore, according to the EU rules on social security coordination, workers 
who at the outset will be posted for a period of longer than two years fall outside the posting 
provisions of the Regulation, and in such case, they need to be socially insured in the host 
Member  State,  unless  a  specific  agreement  under  Article  16  of  the  Basic  Regulation  is 
concluded. Hence, in the absence of such agreement, they no longer need a PD A1, and 
these workers will not appear in the related data. In this regard, data on incoming posting 
undertakings and posted workers registered by national declaration tools may complement 
the data on postings provided by the A1 certificate. Since 2018, such data are collected at 
EU level.22 

Secondly, a posting undertaking which posts a worker to another Member State, or in the 
case  of  a  self-employed  person  the  person  him/herself,  must  contact  the  competent 
institution in the sending Member State.  Whenever possible this should be done in advance 
of the posting. This obligation is defined by Article 15 (1) of the Implementing Regulation. 
Nonetheless,  in  some  cases,  a  posting  may  take  place  without  the  institutions  being 
informed of it or the PD A1 is awarded retroactively. This creates a discrepancy between 
the  number  of  PDs  A1  issued  according  to  Article  12  and  the  actual  number  of  persons 
being sent abroad on the basis of Article 12. Nevertheless, some Member States, such as 
France23 and Austria, recently seem to be much stricter in their judgment of having a PD A1 
as a condition for being legally posted. They implemented sanctions  in case of failure to 
show a PD A1 and/or are currently carrying out far more inspections on having a PD A1. As 
there  are  often  high  administrative  sanctions  if no  proof  can  be  delivered,  it might  be  an 
incentive for posting undertakings to ask for a PD A1. This also applies for business trips.24 
Above  measures  may  have  a  positive  impact  on  the  compliance  with  Article  15  of  the 
Implementing  Regulation.  As  a  result,  the  discrepancy  between  the  number  of  PDs  A1 
issued and the actual number of mobile persons covered by Articles 12 or 13 of the Basic 
Regulation is likely to have narrowed (slightly) over the past few years. From a statistical 
point of view this improves the data accuracy. 

21   Directive 96/71/EC of the European Parliament and of the Council of 16 December 1996 concerning the posting of workers 

in the framework of the provision of services. 

22   See De Wispelaere, F., De Smedt, L. & Pacolet, J.  (2021), Posting of workers - Collection of data from the prior notification 

tools - Reference year 2019, Network Statistics FMSSFE, Brussels: European Commission.  

23   Article L 114-15-1 of the ‘Code de la sécurité sociale’. 

24   See the Practical Guide on Posting (EC, 2019) (section 2.4. “What about ‘business trips’ to another Member State? Are 
the  rules  on  posting  applicable  to  any  mission  abroad  of  workers?”):  “  As  far  as  the  coordination  of  social  security  is 
concerned,  Regulations  (EC)  No  883/2004  and  987/2009  provide  that,  for  every  cross-border  work-related  activity 
(including  ‘business trips’)  the  employer,  or  any  self-employed  person  concerned,  is  under  the  obligation  to  notify the 
competent (home) Member State, whenever possible in advance, and obtain a Portable Document A1. That obligation 
covers  any  economic  activity,  even  if  only  of  short  duration.  These Regulations  do  not  provide for  any  exceptions for 
business trips either.” 

17 

 
 
Posting of workers 

2. 

An overall picture of the number of PDs A1 
issued 

2.1.  Number of PDs A1 issued in 2021 

A  total  number  of  3.6  million  PDs  A1  were  issued  at  the  request  of  the  employer  or  the 
person  concerned  in  2021.  The  majority  of  these  PDs  A1  were  applicable  to  persons 
covered  by  Article 12,  namely  2.2 million  (Figure 1).  Another  1.35  million  PDs  A1  were 
issued  to  persons  covered  by  Article 13.  The  remaining  90 972  PDs  A1  were  issued  for 
other  categories,  mainly  issued  to  civil  servants  (47 784  PDs  A1),  as  well  as  to  persons 
covered by an ‘Article 16 Agreement’ (19 131 PDs A1) and mariners (13 110 PDs A1) (see 
also Table 1). 

Figure 1 - Total number of PDs A1 issued, breakdown by type, 2021 

90,972

1,350,103

2,205,434

PDs A1 issued according to
Article 12 BR
PDs A1 issued according to
Article 13 BR
Other

*  
Source:  Administrative data PD A1 Questionnaire 2022 

EL: data 2018.  

The highest number of PDs A1 were issued by Germany, almost 1 million in 2021 (Table 1). 
The  second  most  important  Member  State  is  Poland  with  over  676 000  PDs A1  issued. 
Together, these two Member States issued 46 % of all PDs A1 in 2021. Additionally, Italy 
and  Spain  issued  more  than  200 000  PDs  A1  each,  while  Belgium,  France,  Lithuania, 
Austria, Slovenia, and Slovakia also issued over 100 000 PDs A1 each. Between 50 000 
and 100 000 PDs A1 were issued by the Czech Republic, Croatia, Luxembourg, Hungary, 
the Netherlands, Portugal, Romania, and Switzerland. Bulgaria, Denmark, Estonia, Latvia, 
and the United Kingdom issued less than 50 000 PDs A1 but more than 10 000 PDs A1. 
Finally, 
Iceland, 
Ireland,  Greece  (2018  data),  Cyprus,  Malta,  Finland,  Sweden, 
Liechtenstein, and Norway each issued less than 10 000 PDs A1. The distinction between 
the EU-14 and EU-13 Member States indicates that the EU-14 issued 2.1 million PDs A1 
while the EU-13 issued around 1.4 million PDs A1. A visual representation of the relative 
share of each Member State is provided in Annex II, for the total number of PDs A1 issued 
(Figure A1), PDs A1 issued under Article 12 (Figure A2), and PDs A1 issued under Article 
13 (Figure A3).  

The row percentages provided in Table 2 give the opportunity to analyse the differences 
between the different types of PDs A1. In total 60.5 % of all PDs A1 were provided according 
to Article 12 while 37.0 % were provided under Article 13. The remaining 2.5 % were issued 
under the category ‘others’. However, there are clear differences between EU-14, EU-13, 
and EFTA countries when analysing the distribution by type of case in which a PD A1 is 
granted. Whereas the EU-14 issued around three quarters of PDs A1 under Article 12, the 
importance of this Article is much less pronounced for EU-13 Member State (42 %). Indeed, 
the EU-13 Member States issued the majority of PDs A1 under Article 13 (56 %). For EFTA 

18 

 
Posting of workers 

Member States, PDs A1 issued under the category ‘others’ are relatively more important 
than for the other Member States (5.8 % for EFTA, 2.7 % for EU-14, 1.9 % for EU-13). 

A total of 16 Member States25 mainly issued PDs A1 to persons covered by Article 12. The 
importance of Article 12 in total is especially high in Germany (88 %), France (97 %), and 
Portugal  (85.5 %).  All  other  Member  States26,  except  for  Malta,  issued  the  majority  of 
PDs A1 to persons active in two or more Member States. In this group of Member States, 
especially the Czech Republic (87 %) and Liechtenstein (84 %) stand out, as they issued 
more than eight out of ten PDs A1 to persons under Article 13. The second most important 
issuing Member State Poland granted around two thirds of PDs A1 by applying Article 13. 
Only  Malta  issued  82 %  of  PDs  A1  for  other  situations,  particularly  mariners  (76.2 %). 
Finally, it might be interesting to point out that in general in the United Kingdom Article 12 
is more pronounced (61 %), but there is a difference between the Trade and Cooperation 
Agreement (TCA) (77 % under Article 12) and the Withdrawal Agreement (WA) (45.5 %), 
as for the latter a high share is also issued under Article 13 (43 %).  

Even though the majority of PDs A1 are provided by competent administrations through the 
application of Article 12 and 13 of the Basic Regulation, other types are possible as well. 
For  example,  Germany  and  Poland  issued  a  relatively  high  number  of  PDs  A1  for  civil 
servants,  namely  31 161  and  8 232  respectively.  Malta  issued  over  5 300  PDs  A1  for 
mariners, while Denmark and Germany each issued over 1 200 PDs A1 for flight or cabin 
crew members.  

In its meeting of October 2017, the Administrative Commission adopted some amendments 
to  the  content  of  the  A1  certificate.  It  was  agreed  to  extend  the  scope  of  the  PD  A1  to 
situations where an employed or self-employed person carries out his/her activities in only 
one  Member  State.  In  2021,  5 043  PDs  A1  were  provided  by  the  competent  authorities 
because  of  this  situation,  of  which  around  half  by  Germany.  This  is  a  serious  increase 
compared to 2020 (1 970 PDs A1), mainly because data for Germany were not included 
concerning this type of PD A1 in reference year 2020. 

Finally, in a Communication concerning the exercise of the free movement of workers during 
the COVID-19 pandemic the Commission underlined that in cases where the social security 
legislation applicable to the frontier workers is to be changed, the worker may request an 
exception stipulated in Article 16 of the Basic Regulation.27 In 2021, some 19 100 PDs A1 
were issued under Article 16. This is an increase compared to 2020 (18 400 PDs A1) and 
2019 (18 995 PDs A1). The majority of PDs A1 under Article 16 were issued by Germany 
(3 404 PDs  A1)  and  Spain  (2 136).  Especially  in  Cyprus  and  Switzerland,  the  relative 
increase of  number  of  PDs  A1  issued under  Article 16  (% change compared to  2020)  is 
significant. In Spain, Croatia, and Luxembourg, the absolute change is significant as well, 
as the number of PDs A1 issued under Article 16 grew by over 450 forms.  

25   BE, DE, IE, EL (data 2018), ES, FR, HR, IT, LU, HU, PT, SI, SK, IS, CH, and UK.  

26   BG, CZ, DK, EE, CY, LV, LT, NL, AT, PL, RO, FI, SE, NO, and LI.  

27   European  Commission  (2020),  Communication  from  the  Commission  Guidelines  concerning  the  exercise  of  the  free 

movement of workers during COVID-19 outbreak (2020/C 102 I/03) – see point 8. 

19 

 
 
 
Table 1 - Total number of PDs A1 issued by the competent Member States, breakdown by type, 2021 

Sum persons 
active under 
Article 12 

Employed, 
working in 
two or more 
States 

Self-
employed, 
working in 
two or more 
States 

Working as an 
employed person 
and as a self-
employed person 
in different States 

2
0

Sending MS 

Employed, 
active 
under 
Article 
12(1) 

Self-
employed, 
active 
under 
Article 
12(2) 
118 004 
60 957 
57 047 
2 054 
124 347 
4 785 
78 
1 423 
135 
25 167 
21 
220 
79 
7 317 
1 661 
88 
14 361 
8 
<5 
239 
358 
437 
49 
2 001 
4 399 
12 986 
144 
30 
2 353 
39 332 
249 
81 
44 
26 
60 
1 924 
3 131 
1 158 
4 289 

2 013 334 
1 473 087 
540 247 
54 559 
2 081 087 
61 219 
10 833 
6 518 
6 509 
850 642 
5 869 
604 
6 504 
107 156 
97 428 
54 475 
175 592 
71 
4 287 
32 568 
53 965 
46 054 
485 
14 784 
36 696 
210 307 
57 299 
31 178 
98 471 
39 131 
3 375 
1 314 
64 
426 
944 
53 125 
7 936 
5 258 
13 194 

 EU-27  
 EU-14 
 EU-13  
 EFTA  
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
*   EL: data 2018.  
Source:   Administrative data PD A1 Questionnaire 2022 

2 131 338 
1 534 044 
597 294 
56 613 
2 205 434 
66 004 
10 911 
7 941 
6 644 
875 809 
5 890 
824 
6 583 
114 473 
99 089 
54 563 
189 953 
79 
4 290 
32 807 
54 323 
46 491 
534 
16 785 
41 095 
223 293 
57 443 
31 208 
100 824 
78 463 
3 624 
1 395 
108 
452 
1 004 
55 049 
11 067 
6 416 
17 483 

1 189 989 
468 821 
721 168 
21 288 
1 217 915 
53 600 
14 707 
43 634 
28 728 
72 805 
14 878 
548 
2 043 
91 445 
254 
24 509 
78 142 
2 288 
17 319 
77 093 
7 879 
21 003 
693 
58 484 
57 468 
384 113 
9 409 
36 409 
62 752 
21 770 
3 960 
4 056 
18 
2 058 
1 094 
18 118 
2 070 
4 568 
6 638 

105 230 
25 537 
79 693 
816 
107 495 
6 230 
117 
11 958 
359 
4 998 
34 
169 
515 
1 901 
1 360 
427 
3 707 
20 
183 
41 
303 
229 
13 
4 812 
642 
59 203 
161 
11 
2 513 
4 944 
251 
129 
10 
129 
106 
571 
673 
776 
1 449 

14 228 
7 350 
6 878 
769 
15 786 
725 
210 
3 480 
134 
2 442 
27 
29 
83 
43 
294 
224 
819 
15 
109 
38 
1 183 
619 
24 
519 
891 
428 
0 
0 
845 
859 
31 
157 
8 
385 
318 
58 
142 
647 
789 

Working as a civil 
servant in one State 
and as an employed/ 
self-employed person 
in one or more other 
States 
8 506 
8 118 
388 
387 
8 907 
495 
0 
40 
60 
924 
<5 
<5 
6 
<5 
<5 
18 
219 
0 
0 
0 
13 
<5 
0 
63 
5 722 
271 
0 
0 
49 
7 
43 
569 
7 
35 
78 
267 
0 
14 
14 

Sum active in two 
or more States 

Civil 
servant 

Contract 
staff 

Mariner 

Flight or 
cabin crew 
member 

Exception 
(Art. 16) 

Working as an 
employed / self-
employed person 
in only one 
Member State 

1 317 953 
509 826 
808 127 
23 260 
1 350 103 
61 050 
15 034 
59 112 
29 281 
81 169 
14 940 
747 
2 647 
93 390 
1 910 
25 178 
82 887 
2 323 
17 611 
77 172 
9 378 
21 853 
730 
63 878 
64 723 
444 015 
9 570 
36 420 
66 159 
27 580 
4 285 
4 911 
43 
2 607 
1 596 
19 014 
2 885 
6 005 
8 890 

45 063 
34 046 
11 017 
2 239 
47 784 
364 
227 
590 
102 
31 161 
142 
18 
21 
337 
37 
165 
664 
19 
86 
7 
<5 
393 
13 
0 
386 
8 232 
0 
228 
889 
26 
534 
420 
36 
9 
362 
1 832 
337 
145 
482 

1 732 
1 731 
1 
0 
1 732 
<5 
0 
0 
0 
1 377 
0 
0 

0 
<5 
0 
0 
0 
0 
0 
0 
0 
0 
349 
0 
<5 
0 
0 
0 
0 
0 
0 
0 
0 
0 
0 
0 
0 
0 

12 799 
3 508 
9 291 
29 
13 110 
31 
109 
0 
109 
99 
21 
0 

1 148 
424 
1 802 
12 
368 
993 
642 
8 
0 
5 305 
837 
0 
47 
0 
0 
<5 
0 
344 
496 
<5 
0 
26 
0 
26 
256 
282 

3 928 
3 219 
709 
175 
4 172 
119 
<5 
23 
1 296 
1 583 
0 
24 

45 
0 
49 
<5 
0 
0 
0 
70 
0 
333 
40 
9 
299 
<5 
0 
<5 
<5 
16 
15 
12 
0 
0 
163 
7 
62 
69 

16 275 
11 704 
4 571 
1 761 
19 131 
626 
54 
247 
526 
3 404 
<5 
98 

2 136 
624 
1 980 
1 258 
255 
866 
13 
1 956 
105 
2 
0 
520 
855 
159 
35 
21 
137 
286 
111 
<5 
36 
270 
1 451 
n.a. 
1 083 
1 095 

4 138 
3 083 
1 055 
753 
5 043 
98 
34 
364 
98 
2 429 
12 
0 

0 
<5 
14 
250 
9 
0 
0 
7 
48 

33 
97 
0 
0 
227 
4 
143 
268 
10 
0 
89 
654 
15 
137 
152 

Sum 
others 

83 935 
57 291 
26 644 
4 957 
90 972 
1 239 
425 
1 224 
2 131 
40 053 
176 
140 
21 
3 666 
1 089 
3 999 
1 949 
892 
1 954 
662 
2 036 
505 
5 701 
1 226 
948 
9 531 
160 
263 
1 143 
169 
1 323 
1 310 
65 
45 
747 
4 100 
397 
1 683 
2 080 

Total 

3 533 226 
2 101 161 
1 432 065 
84 830 
3 646 509 
128 293 
26 370 
68 277 
38 056 
997 031 
21 006 
1 711 
9 251 
211 529 
102 088 
83 740 
274 789 
3 294 
23 855 
110 641 
65 737 
68 849 
6 965 
81 889 
106 766 
676 839 
67 173 
67 891 
168 126 
106 212 
9 232 
7 616 
216 
3 104 
3 347 
78 163 
14 349 
14 104 
28 453 

 
 
 
 
 
 
 
 
 
 
Table 2 - Total number of PDs A1 issued by the competent Member States, row percentage breakdown by type, 2021 

Employed, 
active 
under 
Article 
12(1) 
57.0 % 
70.1 % 
37.7 % 
64.3 % 
57.1 % 
47.7 % 
41.1 % 
9.5 % 
17.1 % 
85.3 % 
27.9 % 
35.3 % 
70.3 % 
50.7 % 
95.4 % 
65.1 % 
63.9 % 
2.2 % 
18.0 % 
29.4 % 
82.1 % 
66.9 % 
7.0 % 
18.1 % 
34.4 % 
31.1 % 
85.3 % 
45.9 % 
58.6 % 
36.8 % 
36.6 % 
17.3 % 
29.6 % 
13.7 % 
28.2 % 
68.0 % 
55.3 % 
37.3 % 
46.4 % 

Self-
employed, 
active under 
Article 12(2) 

3.3 % 
2.9 % 
4.0 % 
2.4 % 
3.4 % 
3.7 % 
0.3 % 
2.1 % 
0.4 % 
2.5 % 
0.1 % 
12.9 % 
0.9 % 
3.5 % 
1.6 % 
0.1 % 
5.9 % 
0.2 % 
0.0 % 
0.2 % 
0.5 % 
0.6 % 
0.7 % 
2.4 % 
4.1 % 
1.9 % 
0.2 % 
0.0 % 
1.4 % 
37.0 % 
2.7 % 
1.1 % 
20.4 % 
0.8 % 
1.8 % 
2.5 % 
21.8 % 
8.2 % 
15.1 % 

Sum 
persons 
active 
under 
Article 12 
60.3 % 
73.0 % 
41.7 % 
66.7 % 
60.5 % 
51.4 % 
41.4 % 
11.6 % 
17.5 % 
87.8 % 
28.0 % 
48.2 % 
71.2 % 
54.1 % 
97.1 % 
65.2 % 
69.1 % 
2.4 % 
18.0 % 
29.7 % 
82.6 % 
67.5 % 
7.7 % 
20.5 % 
38.5 % 
33.0 % 
85.5 % 
46.0 % 
60.0 % 
73.9 % 
39.3 % 
18.3 % 
50.0 % 
14.6 % 
30.0 % 
70.4 % 
77.1 % 
45.5 % 
61.4 % 

Employed, 
working in two 
or more States 

33.7 % 
22.3 % 
50.4 % 
25.1 % 
33.4 % 
41.8 % 
55.8 % 
63.9 % 
75.5 % 
7.3 % 
70.8 % 
32.0 % 
22.1 % 
43.2 % 
0.2 % 
29.3 % 
28.4 % 
69.5 % 
72.6 % 
69.7 % 
12.0 % 
30.5 % 
9.9 % 
71.4 % 
53.8 % 
56.8 % 
14.0 % 
53.6 % 
37.3 % 
20.5 % 
42.9 % 
53.2 % 
8.3 % 
66.3 % 
32.7 % 
23.2 % 
14.4 % 
32.4 % 
23.3 % 

Self-
employed, 
working in 
two or more 
States 
3.0 % 
1.2 % 
5.6 % 
1.0 % 
2.9 % 
4.9 % 
0.4 % 
17.5 % 
0.9 % 
0.5 % 
0.2 % 
9.9 % 
5.6 % 
0.9 % 
1.3 % 
0.5 % 
1.3 % 
0.6 % 
0.8 % 
0.0 % 
0.5 % 
0.3 % 
0.2 % 
5.9 % 
0.6 % 
8.7 % 
0.2 % 
0.0 % 
1.5 % 
4.7 % 
2.7 % 
1.7 % 
4.6 % 
4.2 % 
3.2 % 
0.7 % 
4.7 % 
5.5 % 
5.1 % 

Working as an 
employed person 
and as a self-
employed person in 
different States 
0.4 % 
0.3 % 
0.5 % 
0.9 % 
0.4 % 
0.6 % 
0.8 % 
5.1 % 
0.4 % 
0.2 % 
0.1 % 
1.7 % 
0.9 % 
0.0 % 
0.3 % 
0.3 % 
0.3 % 
0.5 % 
0.5 % 
0.0 % 
1.8 % 
0.9 % 
0.3 % 
0.6 % 
0.8 % 
0.1 % 
0.0 % 
0.0 % 
0.5 % 
0.8 % 
0.3 % 
2.1 % 
3.7 % 
12.4 % 
9.5 % 
0.1 % 
1.0 % 
4.6 % 
2.8 % 

Working as a civil servant 
in one State and as an 
employed/ 
self-employed person in 
one or more other States 
0.2 % 
0.4 % 
0.0 % 
0.5 % 
0.2 % 
0.4 % 
0.0 % 
0.1 % 
0.2 % 
0.1 % 
0.0 % 
0.1 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
5.4 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.5 % 
7.5 % 
3.2 % 
1.1 % 
2.3 % 
0.3 % 
0.0 % 
0.1 % 
0.0 % 

Sum active in 
two or more 
States 

Civil 
servant 

Contract 
staff 

Mariner 

Flight or 
cabin crew 
member 

Exception 
(Art. 16) 

37.3 % 
24.3 % 
56.4 % 
27.4 % 
37.0 % 
47.6 % 
57.0 % 
86.6 % 
76.9 % 
8.1 % 
71.1 % 
43.7 % 
28.6 % 
44.1 % 
1.9 % 
30.1 % 
30.2 % 
70.5 % 
73.8 % 
69.7 % 
14.3 % 
31.7 % 
10.5 % 
78.0 % 
60.6 % 
65.6 % 
14.2 % 
53.6 % 
39.4 % 
26.0 % 
46.4 % 
64.5 % 
19.9 % 
84.0 % 
47.7 % 
24.3 % 
20.1 % 
42.6 % 
31.2 % 

1.3 % 
1.6 % 
0.8 % 
2.6 % 
1.3 % 
0.3 % 
0.9 % 
0.9 % 
0.3 % 
3.1 % 
0.7 % 
1.1 % 
0.2 % 
0.2 % 
0.0 % 
0.2 % 
0.2 % 
0.6 % 
0.4 % 
0.0 % 
0.0 % 
0.6 % 
0.2 % 
0.0 % 
0.4 % 
1.2 % 
0.0 % 
0.3 % 
0.5 % 
0.0 % 
5.8 % 
5.5 % 
16.7 % 
0.3 % 
10.8 % 
2.3 % 
2.3 % 
1.0 % 
1.7 % 

0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.4 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 

0.4 % 
0.2 % 
0.6 % 
0.0 % 
0.4 % 
0.0 % 
0.4 % 
0.0 % 
0.3 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.5 % 
0.4 % 
2.2 % 
0.0 % 
11.2 % 
4.2 % 
0.6 % 
0.0 % 
0.0 % 
76.2 % 
1.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
3.7 % 
6.5 % 
1.4 % 
0.0 % 
0.8 % 
0.0 % 
0.2 % 
1.8 % 
1.0 % 

0.1 % 
0.2 % 
0.0 % 
0.2 % 
0.1 % 
0.1 % 
0.0 % 
0.0 % 
3.4 % 
0.2 % 
0.0 % 
1.4 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
4.8 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.2 % 
0.2 % 
5.6 % 
0.0 % 
0.0 % 
0.2 % 
0.0 % 
0.4 % 
0.2 % 

0.5 % 
0.6 % 
0.3 % 
2.1 % 
0.5 % 
0.5 % 
0.2 % 
0.4 % 
1.4 % 
0.3 % 
0.0 % 
5.7 % 
0.0 % 
1.0 % 
0.6 % 
2.4 % 
0.5 % 
7.7 % 
3.6 % 
0.0 % 
3.0 % 
0.2 % 
0.0 % 
0.0 % 
0.5 % 
0.1 % 
0.2 % 
0.1 % 
0.0 % 
0.1 % 
3.1 % 
1.5 % 
1.9 % 
1.2 % 
8.1 % 
1.9 % 
n.a. 
7.7 % 
3.8 % 

Working as an 
employed / self-
employed person 
in only one 
Member State 
0.1 % 
0.1 % 
0.1 % 
0.9 % 
0.1 % 
0.1 % 
0.1 % 
0.5 % 
0.3 % 
0.2 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
7.6 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.7 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
1.5 % 
3.5 % 
4.6 % 
0.0 % 
2.7 % 
0.8 % 
0.1 % 
1.0 % 
0.5 % 

Sum 
others 

2.4 % 
2.7 % 
1.9 % 
5.8 % 
2.5 % 
1.0 % 
1.6 % 
1.8 % 
5.6 % 
4.0 % 
0.8 % 
8.2 % 
0.2 % 
1.7 % 
1.1 % 
4.8 % 
0.7 % 
27.1 % 
8.2 % 
0.6 % 
3.1 % 
0.7 % 
81.9 % 
1.5 % 
0.9 % 
1.4 % 
0.2 % 
0.4 % 
0.7 % 
0.2 % 
14.3 % 
17.2 % 
30.1 % 
1.4 % 
22.3 % 
5.2 % 
2.8 % 
11.9 % 
7.3 % 

Total 

100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 

2
1

Sending MS 

 EU-27  
 EU-14 
 EU-13  
 EFTA  
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
* 
Source: 

EL: data 2018. 

Administrative data PD A1 Questionnaire 2022 

 
 
 
Posting of workers 

Table 3 demonstrates that the share of Member States may differ strongly according to the 
type of case which the PD A1 is granted for. For instance, around one third of the PDs A1 
provided to persons covered by Article 13 are issued by Poland. However, Poland’s share 
in  total  is  much  lower  regarding  A1  certificates  issued  to  persons  covered  by  Article  12 
(some  10 %).  This  contrasts  with  Germany,  the  main  issuing  Member  State  of  PDs  A1 
issued to persons falling under Article 12. Almost 40 % of the PDs A1 granted to persons 
covered  by  Article  12  are  issued  by  Germany.  This  Member  State  shows  a  much  lower 
share in the total number of PDs A1 issued to persons covered by Article 13, namely only 
6 %. Another striking finding is that while the share of Slovakia in total is limited (3 %), it 
amounts to almost one third of the total number of PDs A1 issued to posted self-employed 
persons according to Article 12(2).  

In total, 58 % of PDs A1 in 2021 were issued by the EU-14 (mainly by Germany) while the 
EU-13 issued 39 %. However, when only focussing on PDs A1 issued under Article 13, the 
EU-13 issued most PDs A1 (60 %) (mainly by Poland) as opposed to the EU-14 (38 %). 

Table 3 - Total number of PDs A1 issued by the competent Member States, by type, 
share in column total, 2021 

Sum persons active 
under Article 12 

Sending MS 

Employed, active 
under Article 12 

Self-employed, 
active under Article 
12 
94.9 % 
49.0 % 
45.9 % 
1.7 % 
100.0 % 
3.8 % 
0.1 % 
1.1 % 
0.1 % 
20.2 % 
0.0 % 
0.2 % 
0.1 % 
5.9 % 
1.3 % 
0.1 % 
11.5 % 
0.0 % 
0.0 % 
0.2 % 
0.3 % 
0.4 % 
0.0 % 
1.6 % 
3.5 % 
10.4 % 
0.1 % 
0.0 % 
1.9 % 
31.6 % 
0.2 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
1.5 % 
2.5 % 
0.9 % 
3.4 % 

EU-27 
EU-14 
EU-13 
EFTA 
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
*   EL: data 2018.  
Source:   Administrative data PD A1 Questionnaire 2022 

96.7 % 
70.8 % 
26.0 % 
2.6 % 
100.0 % 
2.9 % 
0.5 % 
0.3 % 
0.3 % 
40.9 % 
0.3 % 
0.0 % 
0.3 % 
5.1 % 
4.7 % 
2.6 % 
8.4 % 
0.0 % 
0.2 % 
1.6 % 
2.6 % 
2.2 % 
0.0 % 
0.7 % 
1.8 % 
10.1 % 
2.8 % 
1.5 % 
4.7 % 
1.9 % 
0.2 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
2.6 % 
0.4 % 
0.3 % 
0.6 % 

96.6 % 
69.6 % 
27.1 % 
2.6 % 
100.0 % 
3.0 % 
0.5 % 
0.4 % 
0.3 % 
39.7 % 
0.3 % 
0.0 % 
0.3 % 
5.2 % 
4.5 % 
2.5 % 
8.6 % 
0.0 % 
0.2 % 
1.5 % 
2.5 % 
2.1 % 
0.0 % 
0.8 % 
1.9 % 
10.1 % 
2.6 % 
1.4 % 
4.6 % 
3.6 % 
0.2 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
2.5 % 
0.5 % 
0.3 % 
0.8 % 

Active in two or 
more States under 
Article 13 
97.6 % 
37.8 % 
59.9 % 
1.7 % 
100.0 % 
4.5 % 
1.1 % 
4.4 % 
2.2 % 
6.0 % 
1.1 % 
0.1 % 
0.2 % 
6.9 % 
0.1 % 
1.9 % 
6.1 % 
0.2 % 
1.3 % 
5.7 % 
0.7 % 
1.6 % 
0.1 % 
4.7 % 
4.8 % 
32.9 % 
0.7 % 
2.7 % 
4.9 % 
2.0 % 
0.3 % 
0.4 % 
0.0 % 
0.2 % 
0.1 % 
1.4 % 
0.2 % 
0.4 % 
0.7 % 

Others 

92.3 % 
63.0 % 
29.3 % 
5.4 % 
100.0 % 
1.4 % 
0.5 % 
1.3 % 
2.3 % 
44.0 % 
0.2 % 
0.2 % 
0.0 % 
4.0 % 
1.2 % 
4.4 % 
2.1 % 
1.0 % 
2.1 % 
0.7 % 
2.2 % 
0.6 % 
6.3 % 
1.3 % 
1.0 % 
10.5 % 
0.2 % 
0.3 % 
1.3 % 
0.2 % 
1.5 % 
1.4 % 
0.1 % 
0.0 % 
0.8 % 
4.5 % 
0.4 % 
1.9 % 
2.3 % 

Total 

96.9 % 
57.6 % 
39.3 % 
2.3 % 
100.0 % 
3.5 % 
0.7 % 
1.9 % 
1.0 % 
27.3 % 
0.6 % 
0.0 % 
0.3 % 
5.8 % 
2.8 % 
2.3 % 
7.5 % 
0.1 % 
0.7 % 
3.0 % 
1.8 % 
1.9 % 
0.2 % 
2.2 % 
2.9 % 
18.6 % 
1.8 % 
1.9 % 
4.6 % 
2.9 % 
0.3 % 
0.2 % 
0.0 % 
0.1 % 
0.1 % 
2.1 % 
0.4 % 
0.4 % 
0.8 % 

22 

 
 
Posting of workers 

2.2.  Share in total EU employment 

The  total  number  of  PDs  A1  issued  can  be  compared  to  the  total  number  of  employed 
persons in the issuing Member State. Although this gives a first idea of the relative volume, 
it is certainly not the best indicator to measure the impact on national labour markets, as in 
that  case  the  number  of  forms  issued  are  compared  to  the  number  of  employed/self-
employed  persons.  It  is  better  to  compare  the  total  number  of  employed/self-employed 
persons with the number of individual persons involved, as several PDs A1 could be issued 
to the  same  person  during  the reference year.  Such  data are collected for  both  persons 
covered by Article 12 and persons covered by Article 13. 

In  2021,  a  PD  A1  was  issued  to  an  equivalent  of  1.5 %  of  the  employed  population 
(Figure 2).  Especially  Luxembourg  and  Slovenia  stand  out  with  shares  of  13.5 %  and 
15.9 % of the population respectively. Both Member States, together with Lithuania (8.0%), 
Slovakia (4.5%) and Poland (4.1%) are the main sending Member States in relative terms. 
The main sending Member State in absolute terms, Germany, issued a PD A1 to 2.2 % of 
its  workforce  in  2021.  Nevertheless,  as  already  indicated,  these  figures  should  be 
considered as an overestimation of the real impact on national labour markets. In a later 
stage, they will be corrected based on the number of individual persons involved and the 
number of persons in full-time equivalents.  

Figure 2 - Share of PDs A1 in national employment of the sending Member State, 
2021 

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E

T
I

K
D

Z
C

T
P

U
H

H
C

E
D

T
A

E
B

T
M

V
L

E
E

L
P

K
S

T
L

I

U S
L

e
g
a
r
e
v
A

*  
Source:  Administrative data PD A1 Questionnaire 2022 and Eurostat [nama_10_a10_e] 

EL: data 2018.  

2.3.  Comparison with previous years 

The  decline  of  number  of  PDs  A1  issued  which  started  in  2020  continued  in  2021.  The 
overall number of PDs A1 issued decreased by around 116 000 or about 3 % compared to 
2020 (Table 4). This ongoing reduction can still be the effect of the COVID-19 pandemic, 
which was at its peak in 2020, but still continued in 2021. Eleven Member States knew a 
decline in the number of PDs A1 issued with Ireland (-72 %) in particular standing out. The 
remaining  20reporting  Member  States  saw  a  growth  in  the  number  of  PDs  A1  issued  in 
2021 compared to 2020. Switzerland, (+73 %), France (+66 %), Liechtenstein (+60 %), and 
Hungary (+55 %) in particular knew a significant increase. Out of the top issuing Member 
States,  Poland  and  Slovenia  already  issued  more  PDs  A1  in  2021  than  ‘pre-COVID’ 
(reference year 2019), while in Spain the number has increased, but has not yet reached 
the  level  of  pre-COVID  PDs  A1  issued.  In  Germany,  the  number  of  PDs  A1  issued 
decreased even further from 2020 to 2021, namely from 1.4 million to 997 000 or a decrease 
of 29 %.  

23 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Even though the total number of issued PDs A1 continued to fall in 2021 compared to 2020, 
these numbers are still higher than all reference years before 2019. Indeed, reference year 
2019 was an exceptional year in terms of the number of PDs A1 issued.28  For instance, the 
level of the number of PDs A1 issued in 2021 increased by some 622 000 PDs A1 or 21 % 
compared to 2018.  

Table 4 - PDs A1 issued by the competent Member States, 2012-2021 

Change 
2021 vs 2020 

Numbers  % 

-142 461 

-3.9 % 

Sending 
MS 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2020 

2021 

79 067 

36 705 

29 603 

36 705 

49 777 

84 830 

1 798 596  1 397 383 

935 821 
744 722 
19 902 

998 841 
863 261 
24 792 

123 839 
25 773 
61 206 
43 589 

150 677 
30 153 
80 973 
53 269 

59 832 
11 896 
24 162 
19 592 
243 125 
18 606 
7 799 
1 889 
76 960 
140 805 

-271 632  -11.4 % 
1 079 603  1 324 389  1 324 389  1 403 445  1 302 894  1 432 062  129 171  9.9 % 
35 053  70.4 % 
-3.1 % 
-116 351 
3.6 % 
4 454 
2.3 % 
597 
11.6 % 
7 071 
-12.7 % 
-5 533 
-400 352  -28.7 % 
-5.4 % 
-1 200 
-71.9 % 
-4 383 

1 035 468  1 132 760  1 392 689  1 600 478  3 108 956  2 372 793  2 101 161 
942 678 
26 714 

1 481 263  1 680 543  1 862 102  1 978 146  2 212 363  2 717 078  2 884 994  4 512 401  3 675 687  3 533 226 
1 524 363  1 721 592  1 895 194  2 022 478  2 261 573  2 766 574  2 934 219  4 570 675 
839 011 
642 252 
760 

EU-27 
EU-28 
EU-14 
EU-13 
EFTA 
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
*   EL: data 2018.  
Source:  Administrative data PD A1 Questionnaire 2022 and previous years 

1 525 123  1 741 494  1 919 986  2 049 192  2 291 176  2 803 279  2 968 487  4 649 742  3 762 860  3 646 509 
128 293 
26 370 
68 277 
38 056 
997 031 
21 006 
1 711 
9 251 
211 529 
102 088 
83 740 
274 789 
3 294 
23 855 
110 641 
65 737 
68 849 
6 965 
81 889 
106 766 
676 839 
67 173 
67 891 
168 126 
106 212 
9 232 
7 616 
216 
3 104 
3 347 
78 163 
28 453 

79 771 
14 203 
31 675 
20 409 
255 724 
15 054 
7 654 
3 608 
111 557 
125 203 
27 556 
74 431 
1 955 
6 656 
19 208 
62 141 
68 234 
324 
116 060 
48 815 
428 405 
75 577 
57 194 
103 303 
89 494 
6 940 
10 951 
245 
646 
3 252 
20 649 
33 092 

134 398 
36 220 
67 933 
37 848 
399 745 
18 977 
7 745 
7 204 
191 148 
111 659 
60 026 
152 528 
4 040 
20 689 
70 180 
73 875 
82 881 
1 388 
103 738 
68 956 
573 358 
85 074 
84 743 
190 976 
112 978 
8 061 
10 710 
293 
1 024 
4 097 
31 291 
49 496 

104 307 
19 595 
47 578 
29 595 
260 068 
17 953 
7 339 
6 924 
147 424 
135 974 
42 602 
114 515 
3 552 
10 830 
30 723 
68 725 
65 185 
504 
98 687 
75 132 
513 972 
64 459 
50 855 
164 226 
112 028 
8 155 
11 456 
239 
1 343 
4 134 
23 887 
49 210 

137 022 
26 315 
63 693 
47 453 
475 704 
19 862 
7 464 
9 251 
248 532 
119 516 
65 949 
169 774 
4 040 
20 199 
78 384 
79 831 
64 217 
2 655 
100 660 
110 687 
605 785 
74 109 
71 207 
127 059 
135 151 
9 882 
10 593 
245 
1 024 
4 357 
28 642 
49 225 

83 582 
14 185 
30 912 
25 220 
254 469 
15 927 
7 396 
2 131 
101 705 
130 435 
10 227 
59 114 
2 192 
7 425 
17 342 
32 472 
68 489 
322 
95 719 
42 171 
385 422 
82 851 
51 939 
83 898 
56 442 
6 892 
11 664 
277 
548 
n.a. 
19 077 
41 049 

86 218 
15 839 
37 174 
30 031 
240 862 
15 363 
7 899 
4 789 
125 711 
139 040 
38 998 
91 740 
3 091 
7 738 
25 254 
62 947 
63 663 
228 
95 017 
64 373 
463 174 
64 970 
46 871 
126 902 
98 383 
9 369 
12 502 
283 
1 239 
3 887 
21 305 
44 332 

23 060 
6 820 
9 251 
252 270 
126 485 
67 359 
215 628 
4 040 
23 271 
95 074 
92 350 
71 095 
4 082 
104 652 
197 627 
648 032 
77 389 
82 443 
146 157 
127 706 
10 328 
13 614 
288 
1 928 
4 614 
72 237 
58 274 

22 206 
6 094 
9 251 
176 353 
61 677 
71 331 
215 628 
4 040 
23 758 
93 726 
67 818 
44 310 
6 998 
86 809 
104 796 
617 772 
60 832 
66 659 
156 871 
108 244 
8 628 
10 096 
214 
1 936 
2 553 
45 074 
37 402 

35 176  19.9 % 
40 411  65.5 % 
12 409  17.4 % 
59 161  27.4 % 
-18.5 % 
-746 
0.4 % 
97 
16 915  18.0 % 
-3.1 % 
-2 081 
24 539  55.4 % 
-0.5 % 
-5.7 % 
1.9 % 
9.6 % 
10.4 % 
1.8 % 
7.2 % 
-1.9 % 
7.0 % 
-24.6 % 
0.9 % 
60.3 % 
31.1 % 
33 089  73.4 % 
-23.9 % 
-8 943 

-33 
- 4 920 
1 970 
59 067 
6 341 
1 232 
11 255 
-2 032 
604 
-2 480 
2 
1 168 
794 

52 237 
2 282 
5 402 
14 041 
44 256 
65 182 
327 
84 202 
40 038 
341 100 
55 901 
44 459 
65 871 
48 924 
6 223 
6 152 
306 
454 
n.a. 
n.a. 
43 100 

The increasing importance of PDs A1 issued under Article 13 for activities in two or more 
Member States is visualised in Figure 3. In the last decade, the share of PDs A1 issued 
under Article 13 in the total number of PDs A1 issued increased from 13 % in 2010 to 37 % 
in 2018, or a growth of 24 percentage points. While this increase ended in 2019 (mainly due 
to the  strong  growth in the  number  of  PDs  A1  issued by Germany  under  Article 12),  the 
relative importance of PDs A1 issued under Article 13 is now ‘back on track’ with 37 % in 
2021. This is an increase of 4 percentage points compared to 2020. 

It should be noted that the distribution in Figure 3 is based on the number of PDs A1 issued 
and not on the number of individual persons involved and the number of persons in full-time 
equivalents.  One  should  keep  in  mind  that  under  the  current  rules  on  social  security 
coordination  the  period  is  set  at  a  maximum  of  24  months  according  to  Article 12  of  the 
Basic Regulation, while no maximum period for the employment or self-employment in two 
or more Member States has been determined by Article 13. Therefore, it can be expected 
that the number of persons pursuing activities in two or more Member States is at a similar 
or even at a higher level than the number of persons covered by Article 12. 

28   There was a growth rate of some 57 % compared to 2018. 

24 

 
 
 
 
 
 
 
 
 
 
Posting of workers 

Figure 3 - Percentage in total number of PDs A1 issued, 2010-2021 

4%

2%

2%

2%

2%

2%

2%

2%

2%

2%

3%

2%

13%

15%

18%

21%

22%

25%

27%

36%

37%

29%

33%

37%

83%

83%

81%

77%

76%

73%

71%

62%

61%

69%

64%

60%

100%

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

2010

2011

2012

2013

2014

2015

2016

2017

2018

2019

2020

2021

PDs A1 issued according to Article 12 BR

PDs A1 issued according to Article 13 BR

Other

Source:  Administrative data PD A1 Questionnaire 2022 and previous years 

25 

 
 
 
Posting of workers 

3. 

Persons covered by Article 12  

In  this  chapter,  data  on  the  PDs  A1  issued  according  to  Article  12  are  analysed.  By 
comparing the data for 2021 with those of previous years, the evolution of the number of 
PDs  A1  under  Article  12  is  analysed,  for  instance  to  determine  whether  there  is  still  an 
impact  of  the  COVID-19  pandemic  to  be  noticed.  The  characteristics  are  described  by 
making a breakdown by classification of the sending and receiving Member State, by status 
(employed or self-employed), and by sector of activity. Furthermore, data on the number of 
individual persons involved and the duration persons are active under Article 12 is reported, 
to  gain  a  better  understanding  of  the  impact  of  this  group  of  persons  on  national  labour 
markets.  As  already  pointed  out,  due  to  differences in the scope of  posting  between the 
Posting  of  Workers  Directive  and  the  Basic  Regulation,  this  may  not  fully  reflect  the 
characteristics and the scale of posting under the Posting of Workers Directive in the EU. 

3.1.  General 

In  total  in  2021,  2.2  million  PDs  A1  were  issued  for  persons  covered  by  Article  12.  The 
majority of these PDs A1 were granted by EU-14 Member States (1.5 million), and around 
592 000 by EU-13 Member States. The remaining PDs A1 were issued by EFTA countries 
(57 000)  and  the  United  Kingdom  (17 500).  The  main  sending  Member  State  is  clearly 
Germany with around 875 000 PDs A1, or 39.8 % of all PDs A1 issued under Article 12 (see 
also Table A1 in Annex I). Additionally, Poland issued 223 000 PDs A1 under Article 12, or 
10.2 % of the total number of PDs A1 issued under Article 12.  

The detailed breakdown of the information provided by the Member States as a sending 
country,  if  exhaustively  completed,  results  in  a  similar  view  by  receiving  Member  State. 
However, Switzerland did not provide such breakdown and some Member States were not 
able to assign all PDs A1 issued under Article 12 to a particular host country, as in total 
59 574  PDs  A1  fall  in  the  category  ‘unknown’,  of  which  55 049  issued  by  Switzerland. 
Despite these limitations, the main host countries can be determined. The main receiving 
Member States were Germany (19.5 % of all PDs A1 received under Article 12), France 
(14.0 %), and Austria (10.0 %), as well as Belgium (7.9 %), the Netherlands (7.0 %), and 
Switzerland (6.9 %) to a lesser extent (Table 5 and Table A2 in Annex I).  

In  absolute  terms,  the  top  3  flows  go  from  Germany  to  Austria  (166 004  PDs  A1  under 
Article 12),  from  Poland  to  Germany  (125 380),  and  from  Germany  to  France  (100 591) 
(Table 5). Furthermore, more than 80 000 PDs A1 each under Article 12 were issued by 
Germany for activities in Switzerland and the Netherlands. A flowchart combining the top 
10 issuing Member States and top 10 receiving Member States of PDs A1 under Article 12 
is provided in Figure A4 in Annex II. Furthermore, a visual geographic representation of the 
top 10 flows of PDs A1 issued under Article 12 is provided in Figure A5 in Annex II.  

Some  Member  States  grant  more  than  half  of  the  PDs  A1  for  postings  to  one  specific 
Member State. More than half of the persons with a PD A1 from Croatia, Hungary, Austria, 
Poland, Slovenia, and Slovakia are sent to Germany (Table A2 in Annex I). Furthermore, 
57 % of persons with a PD A1 from Cyprus are sent to work in Greece, and 50 % of persons 
with a PD A1 from the Netherlands are sent to work in Belgium. 

26 

 
Table 5 - PDs A1 issued by competent Member States according to Article 12 of the Basic Regulation, breakdown by receiving Member 
State, 2021 

Issuing Member State 

NL 

0 

LI 

FI 

IS 

IE 

SE 

PL 

ES 

EE 

CZ 

85 

PT 

LV 

FR 

BE 

CY 

LU 

AT 

DE 

DK 

HR 

BG 

RO 

EL* 

Total 

1 430 

IT*** 

45 
44 

49 
32 

<5 
13 

743 
88 

739 
431 

415 
12 

719 
0 

519 
543 

638 
334 

556 
498 

HU  MT 

1 755 
394 

2 105 
449 

7 610 
2 561 

4 470 
3 064 

588 
4 249 

1 056 
103 

1 514 
238 

941 
66 
379 

SI***  SK*** 

<5 
0 
0 
0 

47 
0 
<5 
25 

65 
<5 
18 
32 

149 
16 
54 

71 
270 
908 

47 
57 
105 

295 
102 
805 
47 

237 
145 
20 
75 

73 
617 
1 014 

120 
2 583 
1 791 

6 764  3 221  16 350 

7 
45 355  <5 

CH**  UK TCA  UK WA  UK 

7 103 
18 
384 
92 

1 205 
133 
317 
257 

3 721 
48 
5 869 
251 

6 140 
659 
1 504 
1 981 

1 765 
98 
38 
750 

153 712  123 
95 

976 
2 242  98 715 

44 381 
3 964 
39 829 
21 948 

7 508 
3 288  10 380  688 

0 
23 
33 
10 268  164 
801 

11 045  5 554  16 599 
10 326  4 983  15 309 
1 290 
571 
865 
865 

4 594  32 388  2 142 
337 
408 
1 067 
968 
645 
1 082 

16 687  14 154  3 740 
104 
105 
126 
157 
195 
57 

24 016 
32 
35 
36 
7 567 
<5 
54 
118 
428 
19 701 
28 
578 
13 
9 
34 

41 
93 
174 
278 
414 
4 321  4 786  3 068 
22 
23 
67 
73 
270 
197 
1 674 
448 
26 198  1 231 

39 
0 
7 
105 
1 099  69  2 509  14 504  10 761  40 013  23 799  11  1 222  11 451 

NO 
LT*** 
EU-27  64 196  10 446  7 515  4 573  757 851  5 795  730  6 334  104 802  85 490  53 596  140 248  75  4 044  28 402  53 829  40 256  448  16 199  33 267  218 873  56 351  30 679  99 461  77 452  3 196  1 007  95  386  891 
85  368  842 
EU-14  63 053  9 707  6 001  3 597  604 139  5 672  681  5 591  97 294  78 726  50 375  123 898  68  2 988  27 814  53 191  38 151  403  15 643  28 797  211 263  55 832  28 924  94 536  67 210  2 955 
49 
18 
10 
4 925  10 242  241 
EU-13  1 143 
EFTA 
13 
38 
13 
312 
569 
818 
1 219 
Total  66 004  10 911  7 941  7 038  874 956  5 890  824  6 583  114 473  99 089  54 563  189 702  79  4 166  32 784  54 323  41 017  534  16 785  41 095  223 293  57 443  31 208  100 814  78 463  3 623  1 395  108  426  977  55 049  11 045  6 419  17 464  2 199 020 
174 157 
BE 
6 467 
BG 
54 284 
CZ 
31 096 
DK 
429 749 
DE 
2 562 
EE 
6 132 
IE 
13 152 
EL 
88 320 
ES 
308 008 
FR 
13 023 
HR 
107 791 
IT 
1 644 
CY 
2 202 
LV 
4 403 
LT 
43 884 
LU 
38 329 
HU 
2 397 
MT 
153 203 
NL 
220 629 
AT 
58 024 
PL 
36 220 
PT 
18 466 
RO 
12 782 
SI 
14 449 
SK 
23 774 
FI 
57 939 
SE 
1 056 
IS 
2 780 
LI 
21 397 
NO 
152 787 
CH 
38 340 
UK 
59 574 
unkn. 

0 
99 
1 181 
0 
738 
0 
3 348 
2 575 
45 
<5 
<5 
6 041 
12 729  <5 
42 
43 425 
18 
52 005  <5 
39 037 
92 
100 591  234 
6 
1 831 
315 
0 
<5 
5 036 
164 
<5 
9 264 
40 
112 
68 713 
83 
7 
33 
120 
<5 
<5 
716 
0 
105 
6 
49 
97 
0 
29 
1 366 
829 
0 
149 
0 
132 
142 
<5 
25 
2 161 
<5 
<5 
1 241 
45 
7 030 
314 
<5 
<5 
22 808 
<5 
0 
2 561 
194 
979 
910 
<5 
<5 
26 298 
5 
<5 
667 
<5 
83 
<5 
101 
0 
1 222 
59 
<5 
2 749 
5 052 
993 
148  1 065  4 196 
78 
82 425 
10 
0 
1 160  2 085  12 871 
813 
14 
7 
166 004 
<5 
0 
4 496 
85 
2 424 
15 
1 874 
56 
44 899 
<5 
<5 
1 961 
26 
19 043  2 296 
6 
<5 
11 417 
13 
0 
2 128 
29 
1 212 
1 220 
<5 
<5 
11 631 
0 
0 
1 372 
2 766 
196 
138 
0 
0 
6 064 
0 
0 
696 
26 
464 
592 
9 345 
<5 
<5 
0 
338 
855 
375 
514 
1 092 
10 412  2 876  14 
<5  1 121 
1 787 
1 130 
895 
1 724 
22 626  1 099  156 
0 
39 
0 
38 
42 
<5 
0 
50 
0 
9 
11 
0 
1 950 
522 
607 
1 183 
<5 
0 
43 316  <5 
166 
9 726 
2 052 
30 
<5 
4 099 
279 
3 219 
6 383 
62 

55 
8 454 
<5 
17 
15 
39 
93 
273 
2 468  23 725  125 380  3 569  12 890  62 554  45 066  434 
82 
9 
53 
364 
303 
12 
186 
11 
8 
15 
13 
16 
<5 
105 
45 
54 
73 
16 
<5 
<5 

5 
23 
51 
19 
68 
109 
178 
385 
2 533 
1 881 
128 
3 205 
726 
2 890 
17 
<5 
18 
<5 
27 
<5 
164 
411 
2 721 
561 
22 
18 
2 729 
3 974 
15 550  7 838 
574 
42 
186 
607 
20 
489 
2 109  1 222 

880 
322 
54 
33 
101 
37 
261 
81 
2 084 
691 
24 
17 
276 
222 
827 
177 
638 
2 410 
1 128  3 543 
110 
1 794 
171 
15 
20 
95 
287 
10 
1 602 
291 
364 
221 
108 
13 
13 
344 
681 
5 
0 
662 
198 

70 
0 
172 
30 
36 
96 
295 
14 
234 
44 
42 
73 
428 
1 844  10 605  534 
1 006  23 591  22 303  5 503 
465 
1 594 
15 
23 
40 
65 
961 
31 
619 

<5 
<5 
6 
16 
25 046  29 
13 
0 
5 
50 
<5 
17 
143 
16 
52 
355 
714 
16 
1 356  118  1 527 
<5 
431 
149 
685 
8 
0 
0 
6 
<5 
6 
<5 
357 
16 

<5 
377 
10 
<5 
9 
767 
76 
9 
16 644  2 504  1 590 
493 
800 
5 017 
158 
57 
44 

0 
15 
0 
0 
<5 
0 
0 
<5 
13  191 
0 
7 
0 
0 
0 
0 
9 
17 
57 
14 
<5 
0 
30 
16 
0 
0 
5 
0 
0 
<5 
8 
0 
0 
0 
0 
0 
17 
<5 
49 
<5 
<5 
<5 
<5 
<5 
0 
0 
0 
0 
7 
0 
<5 
<5 
5 
<5 
0 

18 450  499 
317 
99 
25 
167 
48 
59 
55 
125 
14 
0 
339 
78 
34 

558 
21 
64 
180 
1 393 
7 
54 
650 
1 772 
2 415 
103 
1 196 
110 
7 
0 
72 
182 
0 
1 015 
208 
148 
94 
56 
8 
13 
245 
474 
0 
0 
0 
0 

984 
302 
11 
135 
302 
499 
9 
231 
20 
6 
55 
7 
97 
12 
301 
215 
367 
84 
25 
<5 
10 
101 
578 
20 
0 
2 136 
86 
223 

119 
15 
0 
119 
2 580 
<5 
116 
<5 
157 
27 
46 
7 
0 
3 417 
159 
121 
<5 
<5 
<5 
13 
1 578 
5 817 
61 
0 
4 163 
25 
133 

16 
0 
0 
94 
37 
13 
<5 
8 
56 
62 
<5 
74 
5 
<5 
<5 
<5 
<5 
<5 
9 
<5 
11 
<5 
9 
0 
<5 
41 
437 
0 
0 

20 
30 
100 
311 
415 
32 
339 
6 
13 
14 
43 
105 
5 
359 
513 
345 
29 
67 
29 
866 
102 
192 
6 
<5 
67 
162 
188 

19 
<5 
12 
107 
99 
<5 
<5 
41 
94 
134 
8 
77 
7 
<5 
<5 
<5 
<5 
<5 
42 
50 
19 
7 
<5 
<5 
0 
263 

0 
3 218 
4 983 
216 
25 
279 
338 
374 
135 
460 
0 
0 
80 
369 
312 

7 
598 
61 
8 
20 
23 
105 
10 
587 
83 
216 
127 
52 
5 
0 
99 
207 
5 
0 
662 
198 

212 
407 
217 
1 232 
3 052 
13 306 
34 
78 
1 223 
1 226 
1 859 

589 
92 
298 
764 
347 
343 
496 
9 
322 
177 
2 556 
245 
4 519 

460 
321 
233 
138 
76 
21 
72 
320 
15 
24 
103 
1 077 
589 

170 
6 
319 
157 
129 
139 
86 
24 
68 
41 
37 
<5 
10 
23 
300 
160 

59 
108 
114 
132 
9 
14 
23 
92 
11 
0 
<5 
75 
155 
6 

657 
182 
108 
112 
14 
29 
68 
126 
<5 
0 
70 
425 
88 

449 
13 
138 
38 
85 
289 
511 
<5 
<5 
139 
675 
535 

63 
1 277 
12 
16 
82 
9 364 
160 
16 

898 
2 510 
44 
244 
610 
700 
961 
122 

82 
3 129 
<5 
5 
5 
107 
1 010 
14 

36 
7 
5 
<5 
0 
<5 
<5 
<5 
<5 
0 
0 
30 
14 
42 

360 
573 
<5 
437 
268 
<5 
0 
34 
19 
19 

56 
12 
21 
77 
481 
17 
0 
211 
315 
549 

43 
137 
222 
397 
<5 
0 
179 
213 
135 

692 
2 270 
6 741 
89 012 
18 390 

12 
840 
13 
5 
5 
215 
101 
14 

68 
139 
53 
8 
7 
37 
107 
8 

200 
<5 
<5 
22 
119 
0 
19 
0 

267 
8 842  2 440 

7 
0 
245 
60 
115 

<5 
0 
342 
35 
9 

11 
<5 
67 
489 
442 

8 
0 
48 
47 
19 

15 
0 
75 
5 
0 

0 
12 
<5 
0 

0 
38 
<5 

13 
73 

55 049 

2
7

e
t
a
t
S
r
e
b
m
e
M
g
n
i
v
i
e
c
e
R

*   EL: data 2018.  
**  CH: no breakdown provided.  
***  IT, LT, SI, and SK reported 164 PDs A1, 27 PDs A1, 38 PDs A1, and 20 PDs A1 respectively for which they were both the issuing and receiving Member State.   
****Total numbers in this table might differ from those reported in Table 1 because Member States report different totals, or the sum of the breakdown does not match the total reported.  
Source:   Administrative data PD A1 Questionnaire 2022 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Figure 4 gives an overview of the net balance per reporting Member State by showing the 
number of PDs A1 issued minus the number of PDs A1 received. Fifteen Member States 
are ‘net senders’ (i.e., more PDs A1 issued than received), in particular Germany, Poland, 
Slovenia, Italy, and Slovakia. The other 17 Member States are ‘net recipients’ (i.e., more 
PDs A1 received than issued), in particular France, Austria, the Netherlands, and Belgium.  

Until 2018, Germany was a net receiving Member State. This has completely changed due 
to  the  enormous  growth  in  PDs  A1  issued  according  to  Article  12  in  2019.  As  a  result, 
Germany is now the main sending Member State while until 2015, it was the main receiving 
Member State.  

Figure 4 - Net balance between the number of PDs A1 issued and received 
according to Article 12 of the Basic Regulation, 2021 

445,207

165,269

88,032
81,911

64,014

41,540

28,381
26,153
21,223

12,742
10,439

4,444

3,328

2,688
1,964

DE
PL
SI
IT
SK
HR
LT
ES
PT
RO
LU
BG
EE
HU
LV
IS
CY
MT
LI
IE
EL*
FI
NO
UK
DK
CZ
SE
CH
BE
NL
AT
FR

-948
-1,565
-1,863
-2,354

-5,308
-6,569
-20,151

-20,420
-20,832

-24,058
-46,343

-56,544

-97,738
-108,153

-136,418

-179,534
-208,919

-300,000

-200,000

-100,000

0

100,000

200,000

300,000

400,000

500,000

*  EL: data 2018. 
**   The receiving Member State is not known for 59 574 PDs A1 (of which 55 049 are issued by CH).  
Source:  Administrative data PD A1 Questionnaire 2022 

Net balance (issued - received)

3.2.  Mainly issued by and to EU-14 Member States 

Some  seven  out  of  ten  PDs  A1  issued  according  to  Article  12  were  granted  by  EU-14 
Member  States  and  27 %  by  EU-13  Member  States  (Figure  5  –  at  the  left-hand  side). 
Furthermore, EU-14 Member States (Figure 5 – at the right-hand side) received some 77 % 
of the PDs A1 issued according to Article 12. 

28 

 
Posting of workers 

Figure 5 - PDs A1 issued according to Article 12 of the Basic Regulation, 
breakdown by classification of the sending or the receiving Member State, total, 
2021 

Perspective of the sending countries

Perspective of the receiving countries

EFTA
3%

UK
1%

EU-13
27%

EU-14
70%

UK
2%

Unknown
3%

EFTA
8%

EU-13
10%

EU-14
77%

Source:   Administrative data PD A1 Questionnaire 2022 

3.3.  Comparison with previous years 

Tables 6 and 7 illustrate the evolution between 2010 and 2021 of the number of PDs A1 
issued and received according to Article 12. These data make it possible to describe the 
trend over the past decade. From 2020 to 2021, the total number of PDs A1 issued under 
Article 12 fell by 221 545 certificates or 9.1 % (Table 6). Although this is a less severe drop 
than  from  2019  to  2020  (-24.2 %)  it  could  indicate  that  the  effects  of  the  COVID-19 
pandemic have not yet entirely disappeared. Nevertheless, the decrease is only noticed in 
the  EU-14  (-15.4 %)  (mainly  due  to  the  sharp  decrease  in  Germany),  as  in  the  EU-13 
(+5.7 %) and EFTA (+167.8 %, mainly due to Switzerland), an increase could be noted.  

The most impressive growths are noted in Switzerland (+184.6 %), Malta (+81.0 %), and 
France  (+64.4 %).  On  the  contrary,  strong  decreases  are  noted  in Ireland  (-69.1 %),  the 
United Kingdom (-35.3%), and the main issuing Member State Germany (-29.0 % or minus 
358 400 PDs A1).  

Data on the number of PDs A1 issued according to Article 12 show an upward trend from 
2010  to  2019.  It  can  be  assumed  that  the  evolution  of  the  number  strongly  depends  on 
economic growth and in particular the evolution of cross-border trade in services. After all, 
trade  in  services  may  require  the  physical  presence  of  workers  crossing  borders. 
Nonetheless, the relationship between the number of PDs A1 issued according to Article 12 
and macro-economic variables such as the export of services might not be so strong. Other 
factors  may  have  a  stronger  influence  on  the  increase  in  the  number  of  PDs  A1  issued 
according  to  Article  12.  For  example,  some  Member  States  have  laid  down  sanctions  in 
their national legislation for not having a PD A1 and/or carry out far more inspections on 
having a PD A1. The communication of competent authorities concerning the application 
for a PD A1 when making a ‘business trip’ to another Member State can also have a direct 
impact on its evolution. Consequently, estimates of the actual volume of ‘postings’ under 
Article  12  are  probably  somewhat  more  reliable  today  than  they  were  a  decade  ago. 
Nevertheless, it may still be an underestimate of the true scale.29 

29   ‘Tourism statistics’ from Eurostat provide another estimate of the number of persons crossing borders in the context of 
-

for  business  or  professional  purposes 

‘trips’ 

trade 
the  number  of 
(based  on 
https://ec.europa.eu/eurostat/web/tourism/data/database).  

services 

in 

29 

 
 
 
Posting of workers 

Table 6 - PDs A1 according to Article 12 of the Basic Regulation issued by sending 
Member State, 2010-2021 

2020 

2019 

2018 

2016 

2015 

2014 

2013 

2012 

2011 

2010 

2017 

2021 

Sending 
MS 

% 
-10.4 % 

565 108 
21 137 

649 765 
30 294 

625 576 
17 478 

597 294 
56 613 

800 906 
651 721 
10 972 

634 659 
389 237 
2 309 

777 195 
639 669 
14 332 

719 113 
581 485 
10 734 

676 578 
520 707 
459 

680 493 
481 563 
2 603 

85 870 
14 792 
10 644 
10 211 

60 803 
11 863 
6 242 
6 141 

66 004 
10 911 
7 941 
6 644 

5 201 
-952 
1 699 
503 
-358 394 
-364 
-1 845 

49 862 
5 734 
15 829 
9 262 
201 436 
13 580 
1 935 
642 
44 087 
133 896 

56 103 
11 091 
15 358 
6 176 
221 650 
14 889 
3 512 
1 661 
48 132 
130 247 

55 931 
7 429 
16 102 
11 491 
226 850 
15 322 
3 106 
888 
48 479 
144 256 

58 611 
13 275 
10 380 
3 869 
232 776 
7 147 
3 261 
2 325 
76 286 
119 727 
24 060 
69 279 

-15.4 % 
976 557  1 133 885  2 485 358  1 813 724  1 534 044  -279 680 
32 186 
702 659 
5.7 % 
35 476  167.8 % 
17 566 
-9.1 % 
8.6 % 
-8.0 % 
27.2 % 
8.2 % 
-29.0 % 
-5.8 % 
-69.1 % 

Change 2021-2020 
Number 
EU-27  1 023 896  1 162 056  1 197 285  1 300 598  1 416 864  1 452 627  1 578 130  1 682 304  1 759 461  3 135 123  2 378 832  2 131 338  -247 494 
EU-28  1 056 005  1 197 424  1 230 433  1 330 533  1 440 365  1 484 335  1 611 777  1 716 084  1 796 651  3 177 941 
EU-14 
EU-13 
EFTA 
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
35 368 
32 109 
*   EL: data 2018.  
Source:  Administrative data PD A1 Questionnaire 2022 and previous years 

869 837 
708 293 
11 918 
1 058 314  1 200 027  1 230 892  1 341 267  1 454 697  1 495 307  1 623 695  1 733 650  1 814 129  3 208 235  2 426 979  2 205 434  -221 545 
69 836 
15 656 
11 145 
6 508 
231 766 
6 327 
3 303 
3 941 
100 469 
132 012 
36 142 
106 395 
169 
2 446 
25 371 
55 364 
61 365 
110 
28 394 
62 526 
259 999 
62 005 
48 710 
150 922 
89 931 
3 707 
3 611 
126 
65 
n.a. 
11 727 
33 647 

76 596 
13 731 
10 255 
9 181 
409 340  1 678 407  1 234 203  875 809 
6 915 
3 687 
6 583 
123 670 
117 739 
48 613 
148 863 
81 
812 
30 801 
64 301 
54 326 
252 
26 597 
88 117 
238 525 
51 905 
41 950 
85 999 
93 316 
4 293 
3 013 
151 
32 
1 479 
15 816 
37 190 

39.8 % 
32 611 
64.4 % 
38 810 
9.0 % 
4 507 
8.0 % 
14 045 
-2.5 % 
-2 
0.2 % 
8 
5.5 % 
1 707 
0.4 % 
233 
25.5 % 
9 448 
81.0 % 
239 
-9.3 % 
- 1 717 
-23.3 % 
-12 507 
7.4 % 
15 329 
6.8 % 
3 645 
-16.9 % 
-6 351 
2.5 % 
2 484 
6.0 % 
4 434 
8.7 % 
290 
-28.5 % 
-555 
-11.5 % 
-14 
23.2 % 
85 
-300 
-23.0 % 
35 705  184.6 % 
-35.3 % 
-9 527 

76 719 
14 781 
11 806 
8 250 
332 091 
6 305 
3 222 
4 253 
110 868 
109 168 
41 253 
129 732 
81 
1 629 
26 548 
58 686 
62 873 
145 
22 305 
50 303 
235 836 
64 320 
46 733 
163 876 
90 793 
3 541 
3 099 
162 
32 
2 100 
15 272 
33 780 

58 522 
12 861 
13 155 
5 320 
227 008 
11 689 
3 457 
1 688 
63 519 
123 580 
8 716 
55 509 
66 
3 237 
14 105 
28 481 
66 415 
322 
25 429 
36 959 
262 714 
81 687 
51 739 
83 659 
52 807 
3 332 
4 622 
269 
119 
n.a. 
10 346 
29 935 

63 467 
14 811 
10 799 
7 288 
218 006 
5 415 
3 616 
2 908 
86 943 
130 468 
33 381 
83 277 
96 
1 801 
21 430 
50 440 
59 711 
88 
27 141 
55 320 
251 107 
64 020 
46 871 
126 153 
80 058 
3 725 
4 287 
179 
65 
n.a. 
10 728 
31 708 

5 890 
824 
6 583 
114 473 
99 089 
54 563 
189 953 
79 
4 290 
32 807 
54 323 
46 491 
534 
16 785 
41 095 
223 293 
57 443 
31 208 
100 824 
78 463 
3 624 
1 395 
108 
452 
1 004 
55 049 
17 483 

7 200 
3 383 
6 583 
136 096 
122 552 
46 299 
175 908 
81 
2 629 
32 005 
75 131 
57 454 
305 
25 074 
98 965 
246 849 
58 887 
44 864 
95 339 
91 304 
4 428 
3 863 
197 
229 
1 940 
27 928 
42 818 

6 254 
2 669 
6 583 
81 862 
60 279 
50 056 
175 908 
81 
4 282 
31 100 
54 090 
37 043 
295 
18 502 
53 602 
207 964 
53 798 
37 559 
98 340 
74 029 
3 334 
1 950 
122 
367 
1 304 
19 344 
27 010 

48 369 
35 
2 846 
11 306 
39 758 
63 742 
327 
24 199 
35 671 
246 214 
54 580 
44 318 
65 727 
44 854 
3 181 
3 339 
293 
166 
n.a. 
n.a. 
33 148 

35 611 
38 
4 287 
9 515 
39 385 
57 848 
318 
25 986 
28 806 
227 930 
54 043 
59 363 
42 485 
40 926 
2 668 
2 993 
377 
63 
2 163 

1 655 
16 683 
50 345 
65 655 
145 
37 775 
41 114 
266 745 
74 735 
57 194 
102 920 
73 810 
2 786 
4 306 
140 
89 
3 252 
10 851 
23 501 

35 430 
81 
3 424 
6 462 
55 852 
40 640 
442 
15 190 
25 957 
221 126 
58 923 
29 730 
23 944 
28 245 
2 187 

376 
61 
1 872 

The total number of PDs A1 received has dropped by 10.8 % (Table 7). The numbers of 
issued and received PDs A1 are slightly diverging as the sum of the breakdown by Member 
State  sometimes  does  not  correspond  to  the  total  reported,  or  the  totals  reported  under 
different questions are diverging.  

The most noticeable decrease of PDs A1 received under Article 12 is the Netherlands by 
236 799 or -60.7 %. This is not surprising, as in the previous report of reference year 2020, 
it was noticed that there was a sharp increase for the Netherlands (+77.9 %) as result of 
the  high  number  of  PDs  A1  issued  by  Germany  to  provide  activities  in  the  Netherlands, 
compared to 2019. In addition, the United Kingdom (-38.5 %) and Ireland (-25.0 %) noted 
down a drop in PDs A1 received. On the contrary, Hungary (+30.1 %), Portugal (+24.2 %), 
and  Iceland  (+21.1 %)show  an  increase  in  the  number  of  PDs  A1  as  receiving  Member 
States.  

From 2010 to 2021, six Member States have almost consistently been the main receiving 
Member  States,  being  Germany,  France,  Austria,  Belgium,  the  Netherlands,  and 
Switzerland.  

Over the past decade, the number of PDs A1 received has doubled or even tripled in several 
Member States. It is mainly Liechtenstein, Hungary, Poland, Slovenia, Austria, the Czech 
Republic, and Denmark which have experienced a strong growth in the number of persons 
received with a PD A1 from 2010 to 2021 (minimum growth of 220 %). 

30 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table 7 - PDs A1 issued according to Article 12 of the Basic Regulation, by 
receiving Member State, 2010-2021 

2020 

2019 

2018 

2016 

2015 

2014 

2013 

2012 

2011 

2010 

2017 

2021 

78 261 
98 201 

78 338 
81 973 

75 546 
94 423 

 % 
-9.7  % 

89 102 
124 070 

228 673 
205 802 

403 810 
291 578 

140 631 
142 179 

80 774 
109 497 

116 633 
131 025 

229 032 
178 020 

Change 2021-2020 
Number 
952 145  1 077 135  1 068 846  1 153 158  1 235 467  1 269 951  1 379 339  1 481 663  1 550 740  2 773 734  2 129 020  1 923 086  -205 934 

90 540 
4 483 
15 892 
9 608 
250 054 
1 235 
5 014 
10 656 
63 304 
160 532 

125 264 
3 896 
17 808 
11 044 
335 862 
2 325 
4 674 
6 795 
46 075 
156 490 

125 107 
4 006 
17 144 
11 002 
311 361 
1 904 
6 084 
7 763 
47 640 
161 954 

Receivi
ng MS 
EU-27 
EU-28  1 056 005  1 197 424  1 230 433  1 330 533  1 440 365  1 484 335  1 611 777  1 716 084  1 796 651  3 177 941 
EU-14 
EU-13 
EFTA 
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Source:  Administrative data PD A1 Questionnaire 2022 and previous years 

880 962  1 001 589  990 508  1 074 897  1 154 693  1 180 849  1 278 775  1 365 030  1 410 109  2 369 924  1 900 347  1 694 054  -206 293 
359 
100 564 
71 183 
-27 782 
130 354 
71 848 
1 058 314  1 208 805  1 191 185  1 294 881  1 395 857  1 448 365  1 566 919  1 672 275  1 753 751  3 197 822  2 397 193  2 139 446  -257 747 
178 319 
3 867 
22 743 
15 698 
440 065 
3 733 
5 760 
6 383 
52 353 
203 019 
9 835 
61 321 
972 
1 080 
2 018 
26 591 
11 312 
2 318 
90 873 
120 150 
17 818 
18 109 
10 028 
5 146 
9 694 
21 014 
39 120 
1 373 
842 
23 844 
104 295 
57 226 

5 277 
452 
-6 201 
-4 114 
18 841 
-166 
-2 046 
1 771 
6 024 
329 
1 289 
16 931 
-287 
-432 
-254 
-3 572 
8 866 
-234 
-236 799 
-11 374 
-939 
7 063 
483 
1 463 
-3 681 
-1 111 
-3 513 
184 
32 
-3 643 
-24 355 
-24 031 

174 157 
6 467 
54 284 
31 096 
429 749 
2 562 
6 132 
13 152 
88 320 
308 008 
13023 
107 791 
1 644 
2 202 
4 403 
43 884 
38 329 
2 397 
153 203 
220 629 
58 024 
36 220 
18 466 
12 782 
14 449 
23 774 
57 939 
1056 
2780 
21 397 
152 787 
38 340 

167 335 
3 508 
24 227 
15 592 
427 175 
3 025 
6 171 
8 109 
60 488 
241 363 
12 791 
64 669 
1 256 
1 356 
2 261 
32 664 
12 924 
2 513 
111 522 
141 046 
20 620 
22 639 
12 036 
6 357 
13 759 
22 252 
44 005 
1 739 
715 
22 882 
105 689 
59 587 

159 749 
3 267 
17 165 
10 869 
414 220 
2 951 
3 973 
4 692 
44 825 
190 848 
4 560 
52 481 
944 
1 504 
1 930 
21 763 
8 955 
1 062 
87 817 
101 015 
14 521 
12 833 
9 717 
6 550 
7 648 
16 589 
33 019 
338 
417 
21 250 
87 492 
50 893 

134 340 
3 805 
18 603 
10 763 
373 666 
2 998 
5 556 
4 820 
46 507 
182 219 
1 753 
47 445 
956 
1 235 
2 274 
20 503 
8 887 
952 
100 423 
88 596 
14 387 
10 696 
10 894 
4 507 
7 010 
19 917 
29 446 
392 
925 
18 778 
78 106 
43 522 

168 880 
6 015 
60 485 
35 210 
410 908 
2 728 
8 178 
11 381 
82 296 
307 679 
11 734 
90 860 
1 931 
2 634 
4 657 
47 456 
29 463 
2 631 
390 002 
232 003 
58 963 
29 157 
17 983 
11 319 
18 130 
24 885 
61 452 
872 
2 748 
25 040 
177 142 
62 371 

156 695 
4 665 
30 557 
20 337 
428 935 
3 175 
7 816 
11 214 
63 939 
262 126 
9 844 
73 927 
1 666 
2 200 
3 035 
36 479 
17 090 
2 636 
126 342 
119 907 
26 714 
28 964 
15 883 
9 173 
13 993 
19 579 
53 849 
982 
818 
26 570 
113 809 
60 832 

218 230 
13 840 
101 502 
46 282 
505 737 
5 023 
17 158 
17 437 
177 082 
450 220 
20 821 
173 727 
2 677 
5 178 
10 103 
52 863 
56 902 
5 001 
219 276 
320 480 
93 630 
50 453 
38 774 
17 205 
33 154 
35 529 
85 450 
2 136 
4 311 
38 170 
246 961 
132 510 

156 556 
3 325 
19 144 
13 352 
418 908 
2 315 
4 039 
5 683 
47 369 
184 695 
7 139 
59 095 
716 
1 431 
2 404 
21 749 
8 743 
1 453 
89 411 
108 627 
17 897 
15 374 
10 709 
5 685 
8 141 
18 618 
37 373 
608 
803 
24 958 
97 701 
54 344 

64 223 
1 042 
1 788 
2 248 
24 295 
9 924 
1 449 
105 885 
76 335 
16 013 
13 345 
10 476 
2 676 
6 876 
22 183 
24 412 
559 
763 
30 523 
62 578 
37 247 

48 663 
1 106 
1 516 
3 497 
19 741 
9 900 
1 052 
99 416 
76 445 
16 033 
11 422 
11 224 
3 340 
6 641 
22 522 
26 095 
385 
510 
16 170 
64 908 
40 366 

60 460 
1 702 
1 851 
1 850 
27 730 
8 457 
1 308 
91 560 
59 642 
12 877 
12 193 
9 445 
3 391 
8 692 
20 205 
19 464 
543 
572 
18 771 
51 962 
34 321 

-10.9 % 
0.2 % 
-13.5 % 
-10.8 % 
3.1 % 
7.5 % 
-10.3 % 
-11.7 % 
4.6 % 
-6.1 % 
-25.0 % 
15.6 % 
7.3 % 
0.1 % 
11.0 % 
18.6 % 
-14.9 % 
-16.4 % 
-5.5 % 
-7.5 % 
30.1 % 
-8.9 % 
-60.7 % 
-4.9 % 
-1.6 % 
24.2 % 
2.7 % 
12.9 % 
-20.3 % 
-4.5 % 
-5.7 % 
21.1 % 
1.2 % 
-14.5 % 
-13.7 % 
-38.5 % 

3.4.  Breakdown by type: employed or self-employed 

persons 

Data  on  the  number  of  posted  employed  workers  versus  posted  self-employed  persons 
temporarily  working  in  another  Member  State  are  reported  below.  As  mentioned  earlier, 
self-employed persons do not fall under the scope of the Posting of Workers Directive. 

On  average  5.6 %  of  the  persons  covered  by  Article  12  were  self-employed  in  2021 
(Table 8),  this  is  a  slight  increase  compared  to  2020  (4.5 %).  However,  there  are  some 
strong  differences  between  the  sending  Member  States.  Especially  Slovakia  (50.1 %), 
Iceland  (40.7 %),  and  Ireland  (26.7 %)  granted  a  high  percentage  of  PDs  A1  under 
Article 12 to self-employed persons. Additionally, more than one in ten PDs A1 issued under 
Article 12 by the United Kingdom, the Czech Republic, the Netherlands, Austria, and Cyprus 
are for posted self-employed persons. For Slovakia in particular, the share of self-employed 
in total increased by 15 percentage points between 2014 (35 %) and 2021 (50 %). 

From  a  receiving  perspective,  especially  Lithuania  (34.7 %),  Switzerland  (11.3 %),  and 
Germany (8.5 %) received a relatively high share of posted self-employed persons.  

31 

 
 
 
 
 
 
 
 
Posting of workers 

Table 8 - Number of PDs A1 according to Article 12 of the Basic Regulation issued 
to employed and self-employed persons, 2021 

Issued 

Received 

Employed 

Self-employed 

Employed 

Self-employed 

Number 
61 219 
10 833 
6 518 
6 509 
850 642 
5 869 
604 
6 504 
107 156 
97 428 
54 475 
175 592 
71 
4 287 
32 568 
53 965 
46 054 
485 
14 784 
36 696 
210 307 
57 299 
31 178 
98 471 
39 131 
3 375 
1 314 
64 
426 
944 
53 125 
13 194 
2 081 087 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
*   EL: data 2018.  
Source:  Administrative data PD A1 Questionnaire 2022 

Number 
4 785 
78 
1 423 
135 
25 167 
21 
220 
79 
7 317 
1 661 
88 
14 361 
8 
<5 
239 
358 
437 
49 
2 001 
4 399 
12 986 
144 
30 
2 353 
39 332 
249 
81 
44 
26 
60 
1 924 
4 289 
124 347 

 % Row 
92.8 % 
99.3 % 
82.1 % 
98.0 % 
97.1 % 
99.6 % 
73.3 % 
98.8 % 
93.6 % 
98.3 % 
99.8 % 
92.4 % 
89.9 % 
99.9 % 
99.3 % 
99.3 % 
99.1 % 
90.8 % 
88.1 % 
89.3 % 
94.2 % 
99.7 % 
99.9 % 
97.7 % 
49.9 % 
93.1 % 
94.2 % 
59.3 % 
94.2 % 
94.0 % 
96.5 % 
75.5 % 
94.4 % 

% Row 
7.2 % 
0.7 % 
17.9 % 
2.0 % 
2.9 % 
0.4 % 
26.7 % 
1.2 % 
6.4 % 
1.7 % 
0.2 % 
7.6 % 
10.1 % 
0.1 % 
0.7 % 
0.7 % 
0.9 % 
9.2 % 
11.9 % 
10.7 % 
5.8 % 
0.3 % 
0.1 % 
2.3 % 
50.1 % 
6.9 % 
5.8 % 
40.7 % 
5.8 % 
6.0 % 
3.5 % 
24.5 % 
5.6 % 

Number 
165 296 
6 291 
52 598 
30 061 
391 479 
2 436 
5 714 
11 868 
83 445 
291 743 
12 328 
101 349 
1 423 
2 163 
4 531 
42 167 
36 979 
2 329 
145 962 
209 980 
56 742 
34 756 
17 921 
12 454 
14 168 
22 751 
53 585 
993 
2 683 
20 462 
135 392 
37 188 

 % Row 
95.4 % 
98.1 % 
97.1 % 
97.5 % 
91.5 % 
96.0 % 
97.6 % 
96.3 % 
97.1 % 
95.8 % 
95.5 % 
95.6 % 
96.6 % 
98.9 % 
65.3 % 
96.3 % 
97.2 % 
97.6 % 
96.3 % 
95.3 % 
98.4 % 
96.5 % 
97.6 % 
97.5 % 
98.1 % 
97.1 % 
93.6 % 
94.5 % 
96.5 % 
98.7 % 
88.7 % 
97.0 % 

Number 
7 981 
122 
1 585 
774 
36 189 
102 
142 
457 
2 465 
12 722 
585 
4 648 
50 
24 
2 406 
1 622 
1 063 
58 
5 639 
10 366 
918 
1 243 
437 
315 
268 
679 
3 673 
58 
97 
273 
17 212 
1 152 

% Row 
4.6 % 
1.9 % 
2.9 % 
2.5 % 
8.5 % 
4.0 % 
2.4 % 
3.7 % 
2.9 % 
4.2 % 
4.5 % 
4.4 % 
3.4 % 
1.1 % 
34.7 % 
3.7 % 
2.8 % 
2.4 % 
3.7 % 
4.7 % 
1.6 % 
3.5 % 
2.4 % 
2.5 % 
1.9 % 
2.9 % 
6.4 % 
5.5 % 
3.5 % 
1.3 % 
11.3 % 
3.0 % 

3.5.  Breakdown by sector of economic activity 

Only  21  Member  States30  could  provide  a  detailed  overview  on  the  sector  of  economic 
activity. Nevertheless, the main sending Member States Germany and Poland were able to 
provide this information, which makes the breakdown representative. 

Table  A3  in  Annex I  presents  a  distribution  by  sector  of  activity  of  the  PDs  A1  issued 
according  to  Article  12.  The  table  shows,  inter  alia,  that  approximately  104 308  PDs A1 
issued by Poland according to Article 12 concern a situation in which services are provided 
abroad in the construction sector. More than half of these PDs A1 (53 914) are received by 
Germany.31 The other main flows in the construction sector are from Slovakia to Germany 
(23,148  PDs  A1),  from Slovenia to Germany  (22,374 PDs  A1), from  Germany  to  Austria 
(17,097  PDs  A1),  from  Portugal  to  France  (12,383  PDs  A1),  from  Poland  to  France 
(12,358 PDs  A1),  from  Poland  to  Sweden  (11,011  PDs  A1),  from  Portugal  to  Belgium 
(10,886  PDs  A1),  from Poland to Belgium  (9,501  PDs  A1),  and from  Slovenia to  Austria 
(9,193 PDs A1).  

30   Data provided by NL were not included, as they are inconsistent with corrections sent afterwards.  

31   Based on the reported figures by sending Member State. Detailed figures describing the flow of PDs A1 between sending 

and receiving Member States by sector of activity are not included in this report. 

32 

 
 
 
 
 
 
 
 
 
Posting of workers 

The row percentages in Table 9 show both the total with and without Germany, as before 
reference year 2020, data for Germany were not available, and this has a serious impact. 
This is especially the case for PDs A1 issued in the construction sector. While in total ‘only’ 
25.9 % of PDs A1 under Article 12 are issued in the construction sector, when Germany is 
not taken into account, the share increases to 42.8 %. This implies that for Germany as an 
issuing Member State, the construction sector is not the most important sector. Especially 
EU-13 Member States issue a high share of PDs A1 in the construction sector (48.9 %) as 
opposed  to  EU-14  Member  States  (15.0 %).  For  example,  Estonia  (53.6 %),  Portugal 
(60.3 %), Romania (53.9 %), and Slovakia (52.5 %) issue more than one in two PDs A1 for 
activities in the construction sector.  

In  general,  the  EU-13  issued  most  PDs  A1  in the  industry  sector  (75.5 %),  while  for  the 
EU-14  it  is  almost  equally  divided  between  the  industry  (54.0  %)  and  services  sector 
(45.6 %). Persons with a PD A1 from Belgium, Cyprus, Malta, Iceland, and Liechtenstein 
mainly  provide  activities in the  service sector.  A more  detailed  distribution  of the  service 
sector illustrates that temporary employment agencies employ a high percentage of persons 
from  Belgium,  Luxembourg,  Portugal,  and  Liechtenstein  falling  under  Article  12.  A  high 
percentage of PDs A1 are issued by Iceland for persons providing education, health and 
social work, arts, and other services. 

Table 9 - PDs A1 issued according to Article 12 of the Basic Regulation, from a 
sending perspective, breakdown by sector of activity, 2021 (row %) 

Industry NACE B to F 

of which 

Sending 
MS 

Agriculture, 
hunting and 
fishing 
NACE A 

Industry  
Total 

Services 
Total 

Construction 
NACE F 

Wholesal
e and 
retail 
trade 
NACE G 

Accommodat
ion and food 
service 
activities 
NACE I 

Transportation 
and storage; 
Information and 
communication 
NACE H and J 

Services NACE G to T 
of which 

of which 

Freight 
transport 
by road                          
NACE H - 
Group 
49.4 

Financial and 
insurance; Real 
estate; Professional, 
scientific and 
technical activities; 
Administrative and 
support service 
activities NACE K, L, 
M, and N 
33.7 % 

0.9 % 

of which 

Temporary 
employment 

agency                   
NACE N - 
Group 78.2 

Education, 
health and 
social work, 
arts and 
other 
services 
NACE P, Q, R, 
and S 

of which 

Human 
health and 
social work 
activities 
NACE Q 

0.0 % 

0.3 % 

0.0 % 

0.0 % 

0.2 % 

0.3 % 

4.6 % 

0.5 % 

5.1 % 

1.7 % 

5.4 % 

0.4 % 

0.8 % 

0.8 % 

21.9 % 

19.3 % 

20.9 % 

43.4 % 

25.3 % 

28.8 % 

61.8 % 

15.0 % 

70.4 % 

37.4 % 

1.0 % 
2.6 % 

1.4 % 
0.7 % 

3.4 % 
0.3 % 

0.5 % 
0.3 % 

5.9 % 
1.5 % 

0.2 % 
0.5 % 

2.6 % 
3.5 % 

0.7 % 
0.3 % 

0.6 % 
0.8 % 

4.3 % 
2.9 % 

6.7 % 
1.5 % 

6.0 % 
2.4 % 

0.4 % 
2.7 % 

0.1 % 
0.0 % 

15.5 % 
6.0 % 

19.4 % 
14.1 % 

15.5 % 
1.3 % 

18.9 % 
7.2 % 

8.3 % 
53.6 % 

12.3 % 
45.8 % 

47.9 % 
23.5 % 

51.7 % 
73.8 % 

45.3 % 
14.5 % 

54.6 % 
85.4 % 

0.0 % 
0.9 % 
0.9 % 
0.3 % 

6.3 % 
6.2 % 
2.6 % 
1.7 % 

0.0 % 
0.5 % 
0.5 % 
0.1 % 

30.4 % 
6.0 % 
0.4 % 
4.8 % 

6.3 % 
0.1 % 
32.2 % 
0.1 % 

5.1 % 
41.2 % 
39.7 % 
42.7 % 

78.5 % 
45.7 % 
49.6 % 
38.7 % 

21.5 % 
53.7 % 
49.9 % 
61.2 % 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR* 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT* 
PL 
PT 
RO 
SI* 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
Total 
(excl. 
DE) 
EU-14 
0.8 % 
EU-13 
4.2 % 
*  FR: breakdown for 96 118 PDs A1 forms (97 % of total); AT: unknown sector for 13 707 PDs A1; SI: unknown 

49.3 % 
66.1 % 
86.0 % 
82.3 % 
72.1 % 
83.4 % 
57.3 % 
52.2 % 
6.9 % 
28.0 % 

0.3 % 
2.9 % 
0.2 % 
0.2 % 
0.2 % 
1.2 % 
1.3 % 
0.8 % 
10.8 % 
0.0 % 

13.8 % 
30.9 % 
13.8 % 
17.5 % 
0.3 % 
15.4 % 
41.4 % 
47.0 % 
82.4 % 
72.0 % 

28.5 % 
46.7 % 
60.3 % 
53.9 % 
41.4 % 
52.5 % 
16.4 % 
20.1 % 
5.9 % 
3.5 % 

0.0 % 
5.6 % 
10.3 % 
0.0 % 
n.a. 
0.0 % 
1.2 % 
2.3 % 
0.0 % 
70.8 % 

10.8 % 
20.5 % 
0.2 % 
3.9 % 
0.0 % 
12.0 % 
24.5 % 
11.9 % 
61.8 % 
0.0 % 

0.4 % 
7.8 % 
11.9 % 
10.8 % 
0.0 % 
0.8 % 
8.6 % 
23.5 % 
17.6 % 
72.0 % 

0.2 % 
1.2 % 
0.6 % 
1.4 % 
0.0 % 
2.0 % 
7.3 % 
5.0 % 
2.9 % 
0.0 % 

0.8 % 
0.9 % 
1.1 % 
0.8 % 
0.2 % 
0.5 % 
0.9 % 
6.2 % 
0.0 % 
0.0 % 

0.1 % 
0.1 % 
0.1 % 
0.5 % 
0.1 % 
0.0 % 
0.1 % 
0.3 % 
0.0 % 
0.0 % 

0.0 % 
1.3 % 
0.1 % 
0.0 % 
n.a. 
0.0 % 
3.6 % 
0.2 % 
0.0 % 
1.2 % 

0.0 % 
8.0 % 
0.0 % 
0.0 % 
0.0 % 
4.3 % 
0.7 % 
0.6 % 
0.0 % 
0.0 % 

30.4 % 
32.8 % 
13.1 % 
30.6 % 

0.0 % 
0.9 % 
0.0 % 
17.8 % 

2.5 % 
0.6 % 
1.4 % 
1.3 % 

0.0 % 
0.0 % 
0.0 % 
0.2 % 

54.0 % 
75.5 % 

45.6 % 
22.9 % 

15.0 % 
48.9 % 

19.9 % 
6.6 % 

14.2 % 
11.3 % 

0.4 % 
1.6 % 

5.9 % 
1.4 % 

5.3 % 
1.0 % 

0.4 % 
2.3 % 

2.6 % 
0.7 % 

3.9 % 
2.8 % 

84.6 % 

60.9 % 

69.8 % 

38.3 % 

29.0 % 

14.4 % 

25.9 % 

42.8 % 

18.0 % 

47.4 % 

13.1 % 

15.6 % 

13.3 % 

12.0 % 

11.2 % 

0.8 % 

1.1 % 

4.4 % 

2.2 % 

0.0 % 

6.2 % 

0.0 % 

0.0 % 

0.0 % 

3.9 % 

1.0 % 

2.0 % 

3.6 % 

2.0 % 

1.6 % 

0.6 % 

5.6 % 

1.9 % 

2.7 % 

sector for 27 665 PDs A1. 

Source:  Administrative data PD A1 Questionnaire 2022 

33 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

By using the detailed figures reported by 21 sending Member States a fragmented picture 
can be presented of the activities carried out in the receiving Member States by persons 
falling under Article 12. It is worth noting that due to the limited number of reporting Member 
States,  an  incomplete  dataset  from  the  perspective  of  the  receiving  Member  State  is 
obtained.  Nonetheless,  these  fragmented  data  present  an  interesting  view  on  the 
distribution of persons falling under Article 12 by sector of activity in the receiving Member 
States. 

In most Member States, incoming workers with a PD A1 under Article 12 are active in the 
industry and the service sector. More than one out of four workers received by  Belgium, 
Germany, France, Croatia, Luxembourg, Finland, and Sweden are providing activities in the 
construction  sector.  In  Germany  the  share  even  amounts  to  55.1 %.  The  figures  also 
indicate that a relatively high percentage of persons with a PD A1 under Article 12 (over 
8 %)  providing  activities  in  France  and  the  Netherlands  are  employed  by  a  temporary 
employment agency. 

Only Germany receives more than 5 % of PDs A1 in the human health sector. Poland is by 
far the main ‘sending’ Member State of health  workers. This is probably the result of the 
high number of ‘live-in carers’ (persons providing long-term care services while living in a 
private residence with the care receiver) coming from Poland and working in Germany. 

Table 10 - PDs A1 issued according to Article 12 of the Basic Regulation, from a 
receiving perspective, breakdown by sector of activity, 2021 (row %) 

Industry NACE B to F 

of which 

Receiv
ing  
MS 

Agriculture, 
hunting and 
fishing 
NACE A 

Industry  
Total 

Services 
Total 

Construction 
NACE F 

Wholesal
e and 
retail 
trade 
NACE G 

Accommodat
ion and food 
service 
activities 
NACE I 

Transportation 
and storage; 
Information and 
communication 
NACE H and J 

0.2 % 
0.1 % 
0.5 % 
1.2 % 
1.5 % 
0.1 % 
0.1 % 
0.1 % 
1.1 % 
0.5 % 
0.2 % 
0.3 % 
0.2 % 
0.3 % 
0.2 % 
0.4 % 
0.3 % 
0.0 % 
2.8 % 
0.5 % 
0.3 % 
0.2 % 
0.2 % 
0.0 % 
0.4 % 
1.0 % 
0.2 % 
0.1 % 
0.0 % 
0.0 % 
0.2 % 
0.2 % 

BE 
38.6 % 
BG 
7.7 % 
CZ 
12.0 % 
DK 
13.3 % 
DE 
55.1 % 
EE 
9.1 % 
IE 
11.0 % 
EL 
3.7 % 
ES 
12.5 % 
FR 
25.6 % 
HR 
44.2 % 
IT 
7.8 % 
CY 
4.0 % 
LV 
12.0 % 
LT 
14.9 % 
LU 
38.7 % 
HU 
8.5 % 
MT 
4.0 % 
NL 
19.5 % 
AT 
22.2 % 
PL 
4.4 % 
PT 
2.3 % 
RO 
4.7 % 
SI 
21.4 % 
SK 
7.8 % 
FI 
29.1 % 
SE 
44.1 % 
IS 
13.1 % 
LI 
15.8 % 
NO 
15.2 % 
CH 
23.1 % 
UK 
10.7 % 
Source:  Administrative data PD A1 Questionnaire 2022 

71.6 % 
50.8 % 
64.9 % 
38.0 % 
88.2 % 
49.3 % 
51.9 % 
27.4 % 
52.0 % 
57.9 % 
74.2 % 
58.1 % 
24.6 % 
33.7 % 
47.5 % 
62.2 % 
68.6 % 
27.0 % 
47.6 % 
60.4 % 
43.0 % 
37.4 % 
60.4 % 
59.4 % 
64.0 % 
65.7 % 
75.0 % 
53.7 % 
33.2 % 
37.3 % 
55.2 % 
53.4 % 

30.4 % 
35.7 % 
35.1 % 
61.1 % 
28.9 % 
49.4 % 
47.9 % 
70.3 % 
46.0 % 
42.2 % 
63.7 % 
45.1 % 
73.5 % 
40.8 % 
53.0 % 
38.3 % 
31.9 % 
70.8 % 
50.9 % 
46.5 % 
27.7 % 
55.5 % 
39.6 % 
39.4 % 
36.6 % 
33.9 % 
25.9 % 
47.3 % 
49.1 % 
61.1 % 
44.4 % 
46.9 % 

0.4 % 
0.5 % 
0.1 % 
0.7 % 
2.3 % 
0.3 % 
0.5 % 
2.8 % 
0.9 % 
0.5 % 
1.4 % 
0.7 % 
4.5 % 
1.0 % 
0.2 % 
0.4 % 
0.2 % 
1.2 % 
1.2 % 
0.8 % 
0.1 % 
1.0 % 
0.0 % 
0.2 % 
0.1 % 
2.4 % 
2.5 % 
0.7 % 
0.0 % 
0.2 % 
12.3 % 
0.3 % 

2.6 % 
4.1 % 
4.3 % 
5.3 % 
1.4 % 
3.1 % 
3.5 % 
4.2 % 
4.9 % 
3.6 % 
5.2 % 
5.8 % 
2.4 % 
3.4 % 
3.3 % 
7.0 % 
2.4 % 
4.3 % 
4.8 % 
7.4 % 
3.9 % 
4.0 % 
3.7 % 
3.1 % 
6.9 % 
2.2 % 
1.9 % 
3.3 % 
1.6 % 
5.2 % 
1.5 % 
6.6 % 

3.3 % 
5.1 % 
3.8 % 
5.4 % 
1.8 % 
5.5 % 
4.0 % 
8.6 % 
5.2 % 
5.3 % 
8.5 % 
4.7 % 
3.2 % 
3.8 % 
3.5 % 
5.9 % 
3.5 % 
5.7 % 
6.7 % 
7.6 % 
3.5 % 
5.6 % 
3.9 % 
3.2 % 
4.6 % 
2.1 % 
2.5 % 
5.3 % 
7.1 % 
3.9 % 
6.4 % 
5.9 % 

34 

Services NACE G to T 
of which 

of which 

Freight 
transport by 

road                          

Financial and 
insurance; Real 
estate; 
Professional, 
scientific and 
technical activities; 
Administrative and 
support service 
activities NACE K, 
L, M, and N 
15.3 % 
12.1 % 
13.6 % 
34.8 % 
6.6 % 
22.5 % 
27.5 % 
26.7 % 
19.1 % 
20.1 % 
25.4 % 
18.7 % 
22.9 % 
10.6 % 
30.7 % 
16.2 % 
13.9 % 
26.1 % 
26.3 % 
16.1 % 
12.1 % 
18.1 % 
17.8 % 
13.4 % 
16.0 % 
18.0 % 
9.8 % 
23.5 % 
11.9 % 
11.4 % 
14.9 % 
17.4 % 

of which 

Temporar
y 
employm
ent 

Education, 
health and 
social work, 
arts and 
other 
services 
NACE P, Q, R, 
and S 

agency                   
NACE N - 
Group 
78.2 

of which 

Human health 
and social 
work activities 
NACE Q 

4.5 % 
1.0 % 
2.5 % 
0.9 % 
3.1 % 
0.7 % 
2.7 % 
1.3 % 
1.2 % 
8.7 % 
0.9 % 
0.9 % 
0.4 % 
0.5 % 
0.4 % 
3.2 % 
0.7 % 
1.1 % 
12.6 % 
1.6 % 
0.6 % 
0.8 % 
0.9 % 
3.6 % 
0.7 % 
0.7 % 
0.8 % 
1.6 % 
1.6 % 
0.5 % 
0.5 % 
0.4 % 

8.8 % 
13.8 % 
13.3 % 
14.9 % 
16.6 % 
18.2 % 
12.6 % 
28.1 % 
15.9 % 
13.1 % 
15.9 % 
15.3 % 
40.6 % 
19.2 % 
15.4 % 
9.5 % 
12.1 % 
34.1 % 
12.0 % 
14.8 % 
8.1 % 
27.0 % 
14.3 % 
19.5 % 
9.0 % 
9.3 % 
9.1 % 
14.9 % 
28.5 % 
40.5 % 
9.4 % 
16.9 % 

0.3 % 
2.9 % 
0.6 % 
0.8 % 
7.5 % 
1.1 % 
0.9 % 
1.9 % 
0.8 % 
0.6 % 
1.2 % 
0.9 % 
2.0 % 
0.4 % 
0.3 % 
0.4 % 
0.3 % 
2.5 % 
1.1 % 
1.4 % 
0.5 % 
0.4 % 
0.3 % 
0.3 % 
0.3 % 
0.3 % 
0.2 % 
0.7 % 
1.1 % 
0.2 % 
0.4 % 
0.9 % 

NACE H - 
Group 49.4 

1.6 % 
0.6 % 
1.4 % 
3.2 % 
1.0 % 
2.0 % 
1.0 % 
0.6 % 
1.0 % 
2.9 % 
1.2 % 
1.2 % 
0.1 % 
1.6 % 
1.1 % 
3.2 % 
0.7 % 
0.5 % 
4.6 % 
4.0 % 
0.9 % 
0.4 % 
1.0 % 
0.8 % 
1.1 % 
0.4 % 
0.9 % 
2.0 % 
0.2 % 
1.4 % 
1.1 % 
2.0 % 

 
Posting of workers 

3.6.  The number of individual persons involved 

As mentioned before, the number of PDs A1 issued according to Article 12 is not necessarily 
equal to the number of persons involved. Twenty Member States reported figures on the 
number of individual persons involved. The number of individual persons involved is some 
59 % of the number of PDs A1 issued for these persons (Table 11). This means that one 
person falling under Article 12 is sent abroad 1.7 times per year on average.  

As Table 11 shows, the relationship between the PDs A1 and the persons involved differs 
markedly  among  the  reporting  Member  States.  In  Luxembourg  (25 %),  Slovenia  (31 %), 
Italy (45 %), and Belgium (47 %), the share of persons on number of PDs A1 is less than 
50 %,  which  indicates  that  posted  persons  under  Article 12  are  sent  abroad  (at  least)  2 
times per year. On the contrary, in Ireland, Sweden, Iceland, and Norway, the share lies 
close to 100 %, indicating that the number of individual persons involved is (almost) equal 
to the number of PDs A1 issued by these Member States. Figures for Poland show that on 
average, one individual employed/self-employed person was sent abroad 1.3 times in 2021. 

These  kinds  of  figures  are  important  to  calculate  the  impact  of  posting  on  national 
employment,  as  they  constitute  a  better  numerator  than  the  number  of  forms  granted. 
Moreover, it is also useful to make an estimation of the total number of individual persons 
covered by Article 12. Based on the reported figures it is estimated that in 2021 almost 1.3 
million individual persons received a PD A1 according to Article 12.32  

Table 11 - Number of individual persons who received a PD A1 according to Article 
12 of the Basic Regulation, 2021 

Number of PDs A1 issued (B) 

A/B 

B/A 

Individual number of persons who 
received a PD A1 (A) 
31 085 
8 026 
6 259 
5 102 

3 455 

4 290 

13 658 

1.3 
1.1 

78 % 
93 % 

1.7 
1.6 
2.2 

4 596 
770 

5 890 
824 

2.1 
1.4 
1.3 
1.3 

58 % 
62 % 
45 % 

47 % 
74 % 
79 % 
77 % 

56 987 
33 581 
85 437 

99 089 
54 563 
189 953 

66 004 
10 911 
7 941 
6 644 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
Total reported 
Estimate total individual* 
*   Total applicable to all EU/EFTA countries and the UK. Figure obtained by applying the percentage of 59 % to all missing Member States.  
Source: Administrative data PD A1 Questionnaire 2022 

9 459 
5 539 
14 998 
576 080 
1 291 074 

100 824 
78 463 
3 624 
1 395 
108 

30 979 
51 499 
3 127 
1 270 
108 

11 067 
6 416 
17 483 
984 069 

31 % 
66 % 
86 % 
91 % 
100 % 

85 % 
86 % 
86 % 
59 % 

3.3 
1.5 
1.2 
1.1 
1.0 

223 293 
57 443 

173 832 
35 391 

1.2 
1.2 
1.2 
1.7 

78 % 
62 % 

1.3 
1.6 

54 323 

1 004 

81 % 

25 % 

92 % 

922 

1.2 

4.0 

1.1 

32   This  was  estimated  by  assuming  that,  for  those  Member  States  that  did  not  provide  data  on  the  number  of  persons 

involved, on average one individual person was sent abroad 1.7 times in 2021. 

35 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

3.7.  The average duration  

The  period  persons  can  pursue  an  activity  under  Article  12  is  set  at  a  maximum  of  24 
months. This does not necessarily imply that this is also the real duration. Nineteen sending 
Member States reported figures on the average duration for 2021. The average duration 
persons  are  active  under  Article  12  was  106  days  in  2021  (Table 12).33  This  is  the  total 
weighted EU average calculated based on the replies of these 19 reporting Member States. 
The unweighted average amounts to 141 days. 

The period differs strongly between the reporting Member States. The average duration per 
posting is less than 35 days in Belgium, France, and Luxembourg. On the other hand, it 
exceeds 250 days in Croatia34 and Iceland. The average duration for Poland amounts to 
175 days. Unfortunately, there are no data available for Germany. 

By multiplying the average duration by the number of times a person is sent during the year, 
it is possible to estimate the average duration an individual person covered by Article 12 
was  temporarily  employed  or  self-employed  in  another  Member  State.  The  fact  that  the 
average duration is 106 days, and that the person is sent 1.7 times per year implies that an 
individual person is abroad 181 days per year on average. 

Table 12 - Average duration of the period that persons are active under Article 12, in 
days, from a sending perspective, 2021 

Average duration per individual person 
involved (A*B) 
68 

Average duration per PD A1 issued according 
to Art. 12 BR (A) 
32 

Number of times sent abroad during the year 
(B)* 
2.1 

27 

1.2 

196 

1.3 
1.1 

1.3 
1.3 

217 
211 

147 
98 

1.7 
1.6 
2.2 

33 
298 
66 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
Total** 
*  See last column of Table 11. 
**  The total unweighted average duration per PD A1 issued according to Article 12 is 141 days. 
Source:  Administrative data PD A1 Questionnaire 2022 

76 
93 
150 
122 
261 

3.3 
1.5 
1.2 
1.1 
1.0 

159 
228 
194 
106 

1.2 
1.2 
1.2 
1.7 

175 
90 

1.3 
1.6 

198 

4.0 

1.1 

187 
128 

278 
226 

57 
484 
148 

243 

107 

225 
146 

248 
142 
174 
132 
261 

215 

186 
264 
226 
181 

33   It cannot be excluded that average figures are strongly influenced by the sector of activity in which the person is employed. 
The PD A1 Questionnaire does not contain a question that asks for more detailed figures on the average duration of the 
posting period by sector of activity. 

34   The average duration reported by Croatia was only 31 days in 2019, although it amounted to 302 days in 2020. 

36 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

3.8.  The impact on national labour markets 

The total number of PDs A1 issued according to Article 12 can be compared to the total 
number of employed persons. Although this gives a first idea of the relative volume, it is 
certainly not the best indicator to measure the impact on national labour markets, as in that 
case the number of forms issued are compared to the number of employed/self-employed 
persons.  Therefore,  it  is  better  to  compare  the  total  number  of  employed/self-employed 
persons with the number of individual persons involved, as several PDs A1 could be issued 
to  the  same  person  during  the  reference  year.  Even  then,  the  impact  may  still  be 
overestimated. This is because the number of individual persons with a PD A1 is measured 
over  a  full  year  while  total  employment  in  a  Member  State  is  measured  at  one  or  more 
specific  moments  during  the  year.  Ideally,  both  variables  have  the  same  ‘unit  of 
measurement’, which assumes that data on the number of persons with a PD A1 working 
abroad at a specific moment in the year should be collected. The objective must be to make 
the  best  possible estimate of  the  actual  employment  in  a Member  State  at  a  given  time, 
considering all forms of temporary and permanent labour mobility.  

In 2021, an equivalent of 0.4 % of EU employment could be related to the employment of 
persons covered by Article 12 (Table 13). In most Member States, only a limited proportion 
of the working population was sent abroad based on Article 12. Only in Slovenia (3.2 %), 
Luxembourg (3.0 %), Slovakia (2.0 %), Croatia (2.0 %), and Poland (1.1 %), more than 1% 
of the employed population was sent abroad in 2021.  

Table 13 - Share of persons falling under Article 12 of the Basic Regulation in 
national employment, by sending Member State, 2021 

0.2 % 

6 559 

0.7 % 
0.0 % 

0.7 % 
0.0 % 

0.1 % 
0.1 % 

3 962 
540 

4 596 
770 

3 625 
2 032 

56 987 
33 581 
85 437 

0.6 % 
0.3 % 
0.1 % 
0.2 % 

Forms 

% Of employed 
persons 

Persons 

% Of employed 
persons 

Persons in 
FTE*** 

% Of employed 
persons in FTE 

Total employed 
persons 
(in ,000)** 
4 795 
2 987 
5 066 
2 787 
40 154 
616 
2 289 
3 823 
19 493 
27 274 
1 649 
21 849 
417 
822 
1 310 
459 
4 535 
262 
8 975 
4 232 
16 237 
4 623 
7 668 
954 
2 522 
2 470 
4 853 
186 

31 085 
8 026 
6 259 
5 102 

1.4 % 
0.4 % 
0.2 % 
0.2 % 
2.2 % 
1.0 % 
0.0 % 
0.2 % 
0.6 % 
0.4 % 
3.3 % 
0.9 % 
0.0 % 
0.5 % 
2.5 % 
11.8 % 
1.0 % 
0.2 % 
0.2 % 
1.0 % 
1.4 % 
1.2 % 
0.4 % 
10.6 % 
3.1 % 
0.1 % 
0.0 % 
0.1 % 

66 004 
10 911 
7 941 
6 644 
875 809 
5 890 
824 
6 583 
114 473 
99 089 
54 563 
189 953 
79 
4 290 
32 807 
54 323 
46 491 
534 
19 711 
41 095 
223 293 
57 443 
31 208 
100 824 
78 463 
3 624 
1 395 
108 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total**** 
*  EL: data 2018. 
**   The total number of employed persons (in ,000) is retrieved from Eurostat [lfsa_egan2]. It concerns the total number of employed 

1 004 
55 049 
17 483 
2 205 434 

30 979 
51 499 
3 127 
1 270 
108 

23 836 
22 707 
1 690 
529 
88 

2 657 
4 505 
31 382 
231 848 

3.2 % 
2.0 % 
0.1 % 
0.0 % 
0.1 % 

2.6 % 
0.9 % 
0.1 % 
0.0 % 
0.1 % 

0.0 % 
1.2 % 
0.1 % 
1.0 % 

10 155 
33 581 
39 174 

0.2 % 
2.0 % 
0.4 % 

0.0 % 
2.1 % 
0.2 % 

173 832 
35 391 

121 355 
16 096 

0.0 % 
0.3 % 

0.0 % 
0.4 % 

1.1 % 
0.8 % 

0.8 % 
0.4 % 

13 658 

14 998 

10 506 

3 455 

2 605 

4 533 

0.4 % 

0.3 % 

3.0 % 

1.1 % 

0.0 % 

0.0 % 

922 

617 

persons between 15 and 64 years old. LU: incl. frontier workers. 

***   In order to estimate the number of persons in FTEs, the average duration was converted to working days by multiplying it by 5/7. 
Thereafter, this period was divided by 230 days, the number of working days generally considered in one calendar year, taking 
into account holidays etc. Afterwards, this was multiplied by the number of PDs A1 issued. 

**** Average calculated for the reporting Member States. The EU averages are therefore not perfectly comparable. 
Source:   Administrative data PD A1 Questionnaire 2022 and Eurostat [lfsa_egan2]  

37 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

By  using  the  additional  data  on  the  duration  this  group  of  persons  is  active  in  another 
Member State, the relative weight of such activities on the labour market in terms of full-time 
equivalents (FTEs)35 is estimated. Such data are only available for 19 Member States. In 
2021, an equivalent of 0.3 % of employment in FTEs could be related to persons covered 
by Article 12 (weighted average) (Table 13). This low percentage is caused by the fact that 
persons  covered  by  Article  12  stay  abroad  only  for  a  short  period  (see  section  3.7).  For 
instance,  the  share  of  persons  covered  by  Article  12  in  the  Luxembourg  workforce  falls 
sharply when the impact is expressed in FTEs (from 3.0 % to 1.1 %). The same observation 
applies to the results for Slovakia for instance. 

Based on the data by sector of activity a more detailed analysis  is made of the share of 
persons with a PD A1 issued according to Article 12 in national employment by sector of 
activity. The findings for the construction sector, one of the most popular sectors for such 
activities, are shown in Figure 6 for 13 reporting Member States from a sending perspective. 
The reported figures are calculated based on the reported number of persons involved and 
not on the number of PDs A1 issued.  

Mainly the Luxembourg (37 %) and Slovenian (25 %) construction sectors, and to a lesser 
extent  the  Croatian  (12 %)  and  Slovakian  (11 %)  construction  sectors  sent  a  high 
percentage of persons abroad in 2021. Furthermore, some 6 % of the workers employed in 
the Polish construction sector provided services abroad. 

Figure 6 - Estimated share of individual persons falling under Article 12 of the Basic 
Regulation in total employment in construction, by sending Member State, 2021 

40.0%

35.0%

30.0%

25.0%

20.0%

15.0%

10.0%

5.0%

0.0%

36.9%

24.5%

0.1%

0.3%

0.4%

0.7%

1.0%

2.0%

2.5%

4.3%

6.1%

7.0%

11.3% 12.0%

SE

FI

FR

CZ

Total

LV

BE

EE

PL

PT

SK

HR

SI

LU

Source:  Administrative data PD A1 Questionnaire 2022 and Eurostat [lfsa_egan2] data 2021 

From  the  perspective  of  the  receiving  Member  State,  the  impact  of  persons  covered  by 
Article 12 on national labour markets could be estimated as well, based on the number of 
PDs  A1 issued according  to  Article 12 received and  the  breakdown  by sector of  activity. 
However, there are some important caveats. Firstly, the estimate would be based on the 
number  of  forms  received  and  not  on  the  number  of  individual  employed/self-employed 
persons  involved.  This  implies  an  overestimation  of  the  share  of  persons  covered  by 
Article 12.  Secondly,  only  the  impact  of  activities  according  to  Article  12  on  receiving 
Member States would be described. No such data exist for persons active in two or more 
Member States according to Article 13. Finally, the distribution by sector of activity is not 
available for all reporting Member States. Therefore, data on incoming posting undertakings 
and posted workers registered by national declaration tools are preferable to calculate the 
impact on the receiving Member States. 

35   “A full-time equivalent is a unit to measure employed persons in a way that makes them comparable although they may 
work a different number of hours per week. For example, a part-time worker employed for 20 hours a week where full-
time work consists of 40 hours, is counted as 0.5 FTE” (source: Eurostat). 

38 

 
 
Posting of workers 

4. 

Persons covered by Article 13  

In this chapter, detailed figures on persons who are active in two or more Member States 
(i.e., persons covered by Article 13) are reported. Recently, the need emerged for a more 
detailed profile of persons active in two or more Member States, as the number of PDs A1 
issued  to  this  group  of  persons  has  strongly  increased  over  the  past  few  years  (see  for 
instance Figure 3 in Chapter 2). Moreover, in some cases persons covered by Article 13 
might also be posted under the conditions of the Posting of Workers Directive. It should be 
recalled  that  no  information  is  produced  concerning  the  place  of  cross-border  activities 
under Article 13, hence no data is available regarding the receiving Member States.  

4.1.  Breakdown by type of activity 

In total, 1.35 million PDs A1 were issued to persons covered by Article 13 in 2021. Almost 
one third of these PDs A1 were issued by Poland (444 015 PDs A1) (Table 14). None of 
the other Member States issued more than 95 000 PDs A1 for persons pursuing activities 
in  two  or  more  Member  States.  Spain,  Italy,  Germany,  and  Lithuania  issued  more  than 
70 000 PDs A1 under Article 13 each.   

The  type  of  activity  of  the  persons  to  whom  a  PD  A1  under  Article  13  is  issued,  can  be 
looked  at  in  more  detail.  Figure 7  indicates  that  nine  in  ten  PDs  A1  were  for  employed 
persons working in two or more Member States. Furthermore, 8.0 % of certificates were for 
self-employed persons working in two or more Member State. Only a minority of PDs A1 
under Article 13 were issued for those working as an employed person and a self-employed 
person in different Member States (1.2 %). Finally, 0.7 % of forms were issued to persons 
who  were  active  as  a  civil  servant  in  one  Member  State  and  as  an  employed  or  self-
employed person in one or more other Member States. 

Figure 7 - Total number of PDs A1 issued for persons active in two or more Member 
States, breakdown by type of activity, 2021 

1.2% 0.7%

8.0%

90.2%

Employed, working in two or more
States

Self-employed, working in two or more
States

Working as an employed person and as
a self-employed person in different
States

Working as a civil servant in one State
and as an employed/self-employed
person in one or more other States

Source:   Administrative data PD A1 Questionnaire 2022 

Almost all Member States issued the majority of PDs A1 for persons active in two or more 
Member  States  to  employed  persons  working  in  two  or  more  Member  States.  The  only 
exception is France, which issued 71.2 % of forms to self-employed persons active in two 
or more Member States (Table 14). Furthermore, the Czech Republic, Ireland, Iceland, and 
the United Kingdom (under the TCA) issued over one fifth of PDs A1 under Article 13 for 
self-employed  persons.  Member  States  which  issued  a  relatively  high  share  to  those 
working as an employed and self-employed person in different Member States (over 15 %) 
are France, Iceland, and Norway. Finally, only Sweden and Iceland issued more than 10 % 

39 

 
Posting of workers 

of forms under Article 13 to persons working as a civil servant in one Member State and as 
an employed/self-employed person in one or more other Member States. 

Table 14 - Total number of PDs A1 issued for persons active in two or more Member 
States by the sending Member State, breakdown by type of activity, 2021 

Employed, working in 
two or more States 

Self-employed, working 
in two or more States 

Working as an 
employed person and as 
a self-employed person 
in different States 

Working as a civil 
servant in one State 
and as an 
employed/self-
employed person in 
one or more other 
States 

Total active in two or 
more States 

Number 
53 600 
BE 
14 707 
BG 
43 634 
CZ 
28 728 
DK 
72 805 
DE 
14 878 
EE 
548 
IE 
2 043 
EL* 
91 445 
ES 
254 
FR 
24 509 
HR 
78 142 
IT 
2 288 
CY 
17 319 
LV 
77 093 
LT 
7 879 
LU 
21 003 
HU 
693 
MT 
58 484 
NL 
57 468 
AT 
384 113 
PL 
9 409 
PT 
36 409 
RO 
62 752 
SI 
21 770 
SK 
3 960 
FI 
4 056 
SE 
18 
IS 
2 058 
LI 
1 094 
NO 
18 118 
CH 
2 070 
UK TCA 
4 568 
UK WA 
6 638 
UK 
Total 
1 217 915 
*   EL: data 2018.  
Source:   Administrative data PD A1 Questionnaire 2022 

Number 
6 230 
117 
11 958 
359 
4 998 
34 
169 
515 
1 901 
1 360 
427 
3 707 
20 
183 
41 
303 
229 
13 
4 812 
642 
59 203 
161 
11 
2 513 
4 944 
251 
129 
10 
129 
106 
571 
673 
776 
1 449 
107 495 

Row % 
87.8 % 
97.8 % 
73.8 % 
98.1 % 
89.7 % 
99.6 % 
73.4 % 
77.2 % 
97.9 % 
13.3 % 
97.3 % 
94.3 % 
98.5 % 
98.3 % 
99.9 % 
84.0 % 
96.1 % 
94.9 % 
91.6 % 
88.8 % 
86.5 % 
98.3 % 
100.0 % 
94.9 % 
78.9 % 
92.4 % 
82.6 % 
41.9 % 
78.9 % 
68.5 % 
95.3 % 
71.8 % 
76.1 % 
74.7 % 
90.2 % 

Row % 
10.2 % 
0.8 % 
20.2 % 
1.2 % 
6.2 % 
0.2 % 
22.6 % 
19.5 % 
2.0 % 
71.2 % 
1.7 % 
4.5 % 
0.9 % 
1.0 % 
0.1 % 
3.2 % 
1.0 % 
1.8 % 
7.5 % 
1.0 % 
13.3 % 
1.7 % 
0.0 % 
3.8 % 
17.9 % 
5.9 % 
2.6 % 
23.3 % 
4.9 % 
6.6 % 
3.0 % 
23.3 % 
12.9 % 
16.3 % 
8.0 % 

Number 
725 
210 
3 480 
134 
2 442 
27 
29 
83 
43 
294 
224 
819 
15 
109 
38 
1 183 
619 
24 
519 
891 
428 
0 
0 
845 
859 
31 
157 
8 
385 
318 
58 
142 
647 
789 
15 786 

Row % 
1.2 % 
1.4 % 
5.9 % 
0.5 % 
3.0 % 
0.2 % 
3.9 % 
3.1 % 
0.0 % 
15.4 % 
0.9 % 
1.0 % 
0.6 % 
0.6 % 
0.0 % 
12.6 % 
2.8 % 
3.3 % 
0.8 % 
1.4 % 
0.1 % 
0.0 % 
0.0 % 
1.3 % 
3.1 % 
0.7 % 
3.2 % 
18.6 % 
14.8 % 
19.9 % 
0.3 % 
4.9 % 
10.8 % 
8.9 % 
1.2 % 

Number 
495 
0 
40 
60 
924 
<5 
<5 
6 
<5 
<5 
18 
219 
0 
0 
0 
13 
<5 
0 
63 
5 722 
271 
0 
0 
49 
7 
43 
569 
7 
35 
78 
267 
0 
14 
14 
8 907 

Row % 
0.8 % 
0.0 % 
0.1 % 
0.2 % 
1.1 % 
0.0 % 
0.1 % 
0.2 % 
0.0 % 
0.1 % 
0.1 % 
0.3 % 
0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.1 % 
8.8 % 
0.1 % 
0.0 % 
0.0 % 
0.1 % 
0.0 % 
1.0 % 
11.6 % 
16.3 % 
1.3 % 
4.9 % 
1.4 % 
0.0 % 
0.2 % 
0.2 % 
0.7 % 

Number 
61 050 
15 034 
59 112 
29 281 
81 169 
14 940 
747 
2 647 
93 390 
1 910 
25 178 
82 887 
2 323 
17 611 
77 172 
9 378 
21 853 
730 
63 878 
64 723 
444 015 
9 570 
36 420 
66 159 
27 580 
4 285 
4 911 
43 
2 607 
1 596 
19 014 
2 885 
6 005 
8 890 
1 350 103 

Row % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 
100 % 

4.2.  Comparison with previous years 

The total number of PDs A1 issued under Article 13 increased by 8.7 % in 2021 compared 
to 2020 (Table 15). This is mainly due to the increase for EU-13 Member States (+13.4 %), 
as in the EU-14 (+3.3 %) the increase was less impressive, and in the EFTA Member States 
(-13.5 %), the number of certificates issued decreased compared to 2020. It can be seen 
that the total number of PDs A1 covered by Article 13 is almost at the same level as before 
the COVID-19 pandemic (1.36 million in 2019 compared to 1.35 million in 2021), and the 
total number is higher than all the years before 2019. It is remarkable to see that while the 
number of PDs A1 issued under Article 12 still decreased from 2020 to 2021 (-9.1 %, see 
Table 6 in section 3.3), the number of PDs A1 covered by Article 13 has been on the rise 
again.  

The main issuing Member State of PDs A1 under Article 13, Poland, has once again seen 
an increase of forms issued of around 44 200 certificates or 11.1 %. This means that the 
40 

 
 
 
Posting of workers 

number has continuously been on the rise from 2010 to 2021, even during the COVID-19 
pandemic. Other remarkable growers are France (+331.2 %) and Hungary (+224.6 %), as 
the number of certificates more than tripled compared to 2020. On the contrary, the number 
of PDs A1 issued for persons active in two or more Member States decreased in Ireland 
(-75.6 %),  Cyprus  (-39.9 %),  and  Germany  (-29.4 %).  Especially  for  Germany  this  is  a 
remarkable evolution, as from 2019 to 2020 it still showed a positive growth rate of 28.1 %. 

As explained in the report for reference year 2020, the growth in PDs A1 under Article 13 
during the COVID-19 pandemic is not surprising. Most PDs A1 under Article 13 are issued 
for  activities  in  road  freight  transport,  which  has  proven  to  be  one  of  the  most  essential 
sectors,  especially  during  the  pandemic.  Whereas  several  sectors  came  to  a  complete 
standstill, this has been a sector that has had continued activities.  

Table 15 - Total number of PDs A1 issued for persons active in two or more Member 
States by the sending Member States, 2010-2021 

Change 
2021 vs 2020 
% 
9.3 % 

Sending 
MS 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2020 

2021 

140 

291 

8 017 

8 908 

26 891 

47 375 

10 510 

17 135 

14 417 

-742 
1 513 
5 389 
-5 211 
-33 828 
-881 
-2 313 

59 451 
12 283 
52 723 
34 496 
60 785 
12 713 
3 435 
2 647 

23 714 
1 093 
17 435 
17 744 
21 651 
4 048 
3 822 
443 
36 152 
5 792 
662 
2 041 
2 113 
3 095 
2 611 
3 802 
1 920 
0 
68 554 
4 258 

21 181 
737 
25 442 
21 924 
16 962 
9 672 
3 875 
1 854 
36 957 
7 667 
1 516 
5 755 
2 795 
3 877 
3 288 
11 773 
3 470 
77 
65 359 
8 137 

20 146 
833 
20 859 
15 999 
16 445 
7 654 
4 177 
1 273 
33 496 
4 451 
927 
2 932 
1 830 
3 001 
2 012 
11 376 
1 930 
115 
75 236 
6 392 

163 548 
168 107 
108 538 
55 010 
172 
168 279 
18 208 
n.a. 
4 099 
5 027 
16 799 
2 297 
556 
0 
13 718 
897 
n.a. 
1 619 
515 
273 
2 061 
4 987 
<5 
<5 
44 822 
n.a. 
44 018 
24 
n.a. 
429 
1 311 
1 881 
n.a. 
34 
138 
n.a. 
n.a. 
4 559 

Numbers 
218 531  261 531  349 873  414 161  490 890  597 759  994 404  1 074 063  1 300 341  1 206 049  1 317 953  111 904 
224 585  269 774  359 116  421 488  501 279  611 237  1 008 242  1 084 618  1 314 085 
124 660  143 062  194 818  201 108  213 127  241 716  395 772  441 776  573 872  493 546  509 826 
93 871  118 469  155 055  213 053  277 763  356 043  598 632  632 287  726 469  712 503  808 127 
23 260 
12 541 

61 050 
61 792 
62 863 
57 273 
2 320 
15 034 
13 521 
15 044 
21 106 
577 
59 112 
53 723 
69 465 
55 700 
8 520 
39 932 
29 281 
34 492 
27 688 
11 043 
89 747  114 997  81 169 
62 877 
15 229 
14 940 
15 821 
15 592 
12 456 
3 511 
747 
3 060 
3 210 
4 180 
4 061 
2 647 
2 926 
2 647 
2 647 
228 
93 390 
77 663  121 713  112 839  91 325 
26 633 
1 910 
9 367 
25 178 
n.a. 
82 887 
2 112 
2 323 
2 244 
17 611 
1 657 
77 172 
2 141 
9 378 
4 323 
21 853 
1 339 
730 
0 
63 878 
58 569 
3 606 
64 723 
94 877  118 599  156 452  207 947  248 214  324 999  351 439  387 402  399 738  444 015 

EU-27 
EU-28 
EU-14 
EU-13 
EFTA 
Total 
BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL* 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
*   EL: data 2018.  
Source:   Administrative data PD A1 Questionnaire 2022 and previous years 

16 280 
95 624 
-3 631 
224 725  270 065  367 133  430 396  511 789  623 778  1 025 377  1 099 035  1 361 460  1 241 521  1 350 103  108 582 
19 857 
n.a. 
4 770 
5 336 
21 631 
3 159 
1 036 
7 
17 776 
5 540 
n.a. 
1 813 
1 497 
523 
1 457 
4 206 
66 
<5 
44 788 
n.a. 
81 770 
31 
n.a. 
66 
561 
1 911 
728 
15 
125 
n.a. 
n.a. 
6 054 

2 065 
1 467 
6 812 
45 755 
-1 545 
-203 
15 009 
-2 906 
15 121 
-60 
-3 426 
14 559 
44 277 
2 719 
8 111 
8 386 
-6 305 
165 
-2 024 
5 
1 082 
756 
-5 474 
309 

33 414 
3 593 
35 672 
22 288 
22 778 
11 411 
3 694 
2 932 
44 340 
3 259 
2 581 
5 458 
3 263 
6 602 
4 738 
12 629 
3 498 
219 
68 377 
11 624 

9 570 
36 420 
66 159 
27 580 
4 285 
4 911 
43 
2 607 
1 596 
19 014 
8 890 

359 
13 451 
18 401 
3 868 
17 681 
46 825 
14 345 
9 751 
1 202 
73 095 
20 973 

2 866 
17 137 
37 132 
3 868 
18 671 
62 764 
15 581 
13 187 
1 130 
78 414 
97 516 

443 
18 366 
37 132 
3 868 
17 814 
62 163 
12 284 
6 732 
790 
67 304 
50 164 

916 
14 023 
20 359 
3 868 
17 289 
43 099 
14 238 
19 540 
827 
79 823 
17 810 

21 452 
29 129 
39 788 
41 434 
4 109 
6 515 
51 
976 
2 279 
11 111 
10 555 

257 
1 171 
210 
16 059 
2 532 
6 396 
102 
548 
n.a. 
8 258 
7 327 

347 
646 
406 
17 890 
3 928 
7 408 
69 
1 174 
n.a. 
9 267 
10 389 

20 070 
37 470 
26 559 
21 696 
3 314 
6 635 
95 
976 
1 829 
14 235 
13 838 

6 851 
28 309 
57 773 
33 885 
4 120 
6 935 
38 
1 525 
840 
24 488 
8 581 

18 136 
37 214 
49 099 
35 896 
4 651 
8 338 
37 
1 656 
2 150 
43 532 
13 744 

892 
1 428 
13 132 
21 692 
3 230 
6 801 
70 
1 278 
n.a. 
11 193 
13 478 

981 
73 
127 
3 403 
1 953 
2 637 
6 
285 
n.a. 
n.a. 
8 243 

878 
109 
208 
3 162 
2 181 
3 786 
8 
423 
n.a. 
7 586 
9 243 

3.3 % 
13.4 % 
-13.5 % 
8.7 % 
-1.2 % 
11.2 % 
10.0 % 
-15.1 % 
-29.4 % 
-5.6 % 
-75.6% 

2.3 % 
331.2 % 
37.1 % 
123.2 % 
-39.9 % 
-1.1 % 
24.1 % 
-23.7 % 
224.6 % 
-7.6 % 
-5.1 % 
29.0 % 
11.1 % 
39.7 % 
28.7 % 
14.5 % 
-18.6 % 
4.0 % 
-29.2 % 
13.2 % 
71.0 % 
90.0 % 
-22.4 % 
3.6 % 

4.3.  Breakdown by sector of economic activity 

Detailed information has been collected on the sector of activity of those persons who are 
covered  by  Article  13.  Nevertheless,  only  16  Member  States  were  able  to  provide  this 
information, so general conclusions cannot be drawn. Absolute numbers are presented in 
Annex I – Table A5, which shows a distribution by economic sector of the PDs A1 granted 
by the sending Member States to persons covered by Article 13. The table shows, inter alia, 
that  some  224 000  PDs  A1  are  provided  by  Poland  to  persons  employed  in  the  freight 
transport sector by road.  

41 

 
 
 
 
 
 
 
 
Posting of workers 

The percentage distribution by economic activity is shown in Table 16. More than two thirds 
of  the  PDs  A1  under  Article  13  are  granted  to  persons  in  the  services  sector,  more 
specifically  42.2 %  of  forms  go  to  persons  active  in  road  freight  transport.  Especially  in 
Croatia, Latvia, Lithuania, Luxembourg, Malta, Poland, Slovakia, and Liechtenstein, more 
than one third of forms are issued for activities in road freight transport. In Lithuania, Malta, 
Poland, and Slovakia, the share even exceeds 50 %. Poland makes up the lion's share in 
absolute terms (224 329 out of 321 493 PDs A1, see Table A5 in Annex I) – in line with the 
importance of international road freight transport in the country's economy. 

The reader will have noticed that the distribution by sector of activity strongly differs from 
the one for persons covered by Article 12. For instance, ‘only’ 19 % of the forms issued to 
persons covered by Article 13 are applicable to the construction sector. 

Table 16 - Total number of PDs A1 issued for persons active in two or more Member 
States, breakdown by economic activity, from a sending perspective, 2021 (row %) 

Industry NACE B to F 

of which 

Sending 
MS 

Agriculture, 
hunting and 
fishing 
NACE A 

Industry  
Total 

Construction 
NACE F 

Services 
Total 

Wholesale 
and retail 
trade 
NACE G 

Accommodation 
and food service 
activities 
NACE I 

Transportation 
and storage; 
Information and 
communication 
NACE H and J 

Services NACE G to T 

of which 

of which 

Freight 
transport 
by road                          
NACE H - 
Group 
49.4 

Financial and 
insurance; Real 
estate; 
Professional, 
scientific and 
technical 
activities; 
Administrative 
and support 
service activities 
NACE K, L, M, 
and N 
21.4 % 

of which 

of which 

Temporary 
employment 

agency                   
NACE N - 
Group 78.2 

Education, 
health and 
social 
work, arts 
and other 
services 
NACE P, Q, 
R, and S 

Human 
health and 
social work 
activities 
NACE Q 

0.8 % 

0.5 % 

1.6 % 

1.3 % 

4.4 % 

7.4 % 

8.0 % 

0.1 % 

0.2 % 

8.2 % 

25.5 % 

10.0 % 

36.6 % 

2.4 % 
1.1 % 

4.9 % 
4.4 % 

2.0 % 
1.8 % 

3.7 % 
0.1 % 

15.5 % 
3.5 % 

26.1 % 
42.1 % 

30.2 % 
52.2 % 

5.5 %  79.8 %  54.4 %  14.7 %  0.5 % 

0.6 %  32.7 %  14.5 %  66.6 %  8.9 % 

0.0 %  40.0 % 
60.0 %  5.7 % 
7.3 % 
0.6 %  36.3 %  15.3 %  63.0 %  2.8 % 

0.0 %  46.1 % 
53.9 %  0.6 % 
6.5 % 
0.5 %  40.8 %  30.4 %  58.8 %  6.7 % 
0.6 %  18.5 %  17.7 %  80.9 %  0.0 % 
1.6 %  22.1 %  12.5 %  76.3 %  4.7 % 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT* 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
*   AT:  the  sum  of  the  three  categories  (Agriculture,  Industry,  and  Services)  does  not  amount  to  100 %  as 

0.2 %  61.8 % 
38.0 %  0.1 % 
0.5 % 
0.1 %  20.2 %  15.3 %  79.7 %  0.5 % 
0.3 %  64.6 %  15.7 %  35.1 %  1.4 % 
0.6 %  49.2 %  13.8 %  50.1 %  10.6 % 

0.1 %  12.8 % 
16.1 %  2.7 % 
3.6 % 
0.5 %  27.4 %  22.4 %  72.1 %  1.5 % 

0.6 %  31.7 %  19.3 %  67.7 %  2.1 % 

40.0 % 
40.3 % 
57.4 % 
63.1 % 

37.9 % 
52.8 % 
15.0 % 
4.8 % 

4.4 % 
37.8 % 
57.4 % 
46.2 % 

2.8 % 
10.3 % 
0.3 % 
7.0 % 

0.3 % 
1.2 % 
16.5 % 
1.0 % 

10.2 % 
0.2 % 
6.7 % 
0.4 % 

n.a. 
52.4 % 
13.8 % 
1.1 % 

0.0 % 
0.7 % 
7.8 % 
14.8 % 

0.0 % 
25.6 % 
10.9 % 
19.4 % 

0.0 % 
0.3 % 
1.1 % 
11.5 % 

1.5 % 
1.5 % 
0.0 % 
0.0 % 

n.a. 
0.0 % 
0.4 % 
0.8 % 

0.0 % 
0.1 % 
0.0 % 
0.2 % 

0.0 % 
0.1 % 
0.0 % 
0.2 % 

3.1 % 
50.7 % 

0.0 % 
50.5 % 

9.6 % 
17.0 % 

0.0 % 
12.8 % 

0.0 %  28.0 % 

72.0 %  0.2 % 

99.9 %  0.0 % 

0.1 % 
0.1 % 

0.6 % 
2.6 % 

0.0 % 
1.9 % 

47.1 % 

14.2 % 

42.2 % 

56.8 % 

45.5 % 

10.2 % 

92.3 % 

0.8 % 

3.8 % 

1.9 % 

7.6 % 

0.1 % 

0.0 % 

2.2 % 

0.0 % 

1.8 % 

0.8 % 

1.0 % 

4.0 % 

0.0 % 

4.8 % 

1.0 % 

0.0 % 

0.0 % 

0.0 % 

71.1 % of PDs A1 were issued in an unknown category.  

Source:   Administrative data PD A1 Questionnaire 2022 

For  the  construction  sector  specifically,  the  distribution  between  PDs  A1  issued  under 
Article 12 and Article 13 is analysed for 16 Member States. Figure 8 shows that on average 
74 %  of  PDs  A1  granted  to  persons  employed  in  the  construction  sector  are  issued  to 
persons  covered  by  Article  12  and  26 %  of  PDs  A1  to  persons  covered  by  Article  13. 

42 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

However,  in  terms  of  individual  persons  and  the  volume  of  work  the  difference  between 
Article 12 and Article 13 is (much) smaller.36  

Poland,  Belgium,  Austria,  Croatia,  Slovakia,  Luxembourg,  Slovenia,  France,  and  Malta 
issued a higher number of PDs A1 to persons employed in the construction sector on the 
basis  of  Article  12.  The  opposite  holds  true  in  Cyprus,  Liechtenstein,  Latvia,  Estonia, 
Sweden,  Finland,  and  Lithuania,  which  issue  the  majority  of  PDs  A1  in  the  construction 
sector under Article 13.  

While in general, the  share  of  Article  13  was  on  the  increase in  recent  years,  there  now 
seems to be a decrease (from 24% in 2017, 28% in 2018, 32% in 2019, 35% in 2020, to 
26 % in 2021). However, as the number of reporting Member States is limited, it is difficult 
to draw general conclusions.   

Figure 8 - Share of Articles 12 and 13 of Regulation (EC) No 883/2004 in total 
number of PDs A1 issued to persons employed in the construction sector, 2021 

100%

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

%
0
.
3
% 5
7
.
9
6

%
3
.
5
7

%
0
.
2
7

%
0
.
7
% 4
3
.
0
3

%
7
.
4
2

%
0
.
8
2

%
9
.
2
% 8
4
.
7
9

%
1
.
7
% 1
6
.
2

%
3
.
6
2

%
7
.
3
7

%
7
.
3
% 3
8
.
8
4

%
3
.
6
% 6
2
.
1
5

%
2
.
1
5

%
8
.
8
4

%
1
.
4

%
3
.
9

%
4
.
6
1

%
4
.
3
1

%
7
.
0

%
2
.
0

%
0
.
0

%
6
.
3
8

%
6
.
6
8

%
9
.
5
9

%
7
.
0
9

%
3
.
9
9

%
8
.
9
9

%
0
.
0
0
1

PDs A1 issued according to Article 12 BR

PDs A1 issued according to Article 13 BR

Source:   Administrative data PD A1 Questionnaire 2022 

4.4.  The number of individual persons involved 

The number of PDs A1 issued according to Article 13 is not necessarily equal to the number 
of  persons  involved.  Several  PDs  A1  could  be  issued  to  the  same  person  during  the 
reference year. In addition, as Article 13 sets no maximum period for the employment or 
self-employment in two or more Member States, a person could be active in two or more 
Member States for several years. Therefore, both the number of PDs A1 issued in 2021 to 
persons  covered  by Article  13  and  the  number of  PDs  A1 in circulation for this  group of 
persons are interesting indicators. This remark also holds for Article 12. 

Based on data reported by 20 Member States, the number of individual persons active in 
two or more Member States is some 88 % of the number of PDs A1 issued for these persons 
(Table 17). This means that one person received some 1.1 PDs A1 during reference year 
2021. In Lithuania and the Netherlands, the number of individual persons is equal to the 
number of PDs A1 issued by these Member States. As the main issuing Member State of 

36   Such calculations are not included in this report as only a very limited number of countries reported all the requested data. 

43 

 
 
Posting of workers 

PDs  A1  under  Article 13,  Poland  issued  some  444 000  certificates  to  around  419 600 
persons covered by Article 13. Based on the reported figures it can be estimated that some 
1.2 million individual persons received a PD A1 according to Article 13 in 2021.37 

Table 17 - Number of individual persons employed in two or more Member States, 
2021 

Sending MS 

A/B 

B/A 

Individual number of 
persons (A)* 
46 810 
13 377 
51 113 
25 037 

Number of PDs A1 
issued (B) 
61 050 
15 034 
59 112 
29 281 

1.2 

1.1 

84 % 

89 % 

1 698 

1 910 

69 381 

82 887 

1.2 
2.0 

80 % 
50 % 

12 001 
377 

14 940 
747 

1.3 
1.1 
1.2 
1.2 

77 % 
89 % 
86 % 
86 % 

15 783 
77 172 
8 502 

17 611 
77 172 
9 378 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
Total reported 
Estimate total individual* 
*   Total applicable to all EFTA/EU countries and the UK. Figure obtained by applying the percentage of 88 % 

2 732 
5 266 
7 998 
893 346 
1 209 662 

66 159 
27 580 
4 285 
4 911 
43 

45 271 
25 212 
4 056 
4 643 
32 

68 % 
91 % 
95 % 
95 % 
74 % 

8 890 
1 015 657 

90 % 
100 % 
91 % 

1.5 
1.1 
1.1 
1.1 
1.3 

1.1 
1.0 
1.1 

90 % 
88 % 

419 615 

444 015 

1.1 
1.1 

63 878 

63 878 

100 % 

1 596 

1 390 

95 % 

87 % 

1.0 

1.1 

1.1 

to all missing Member States.  

Source:   Administrative data PD A1 Questionnaire 2022 

4.5.  The average duration  

As mentioned earlier, no maximum period for the employment or self-employment in two or 
more Member States is set by Article 13. A total of 19 Member States were able to provide 
figures on the average duration persons are active in two or more Member states.  

The average duration of persons covered by Article 13 was 325 days per PD A1 (Table 18). 
Nonetheless, the average duration per PD A1 varies markedly among the reporting Member 
States from some 198 days in the Czech Republic to some 703 days in Luxembourg. By 
multiplying the average duration by the number of times a person has received a PD A1 
(see Table 17) it is possible to estimate the average duration a person is active in two or 
more Member States. On average, an individual person is active during a complete year in 
two or more Member States. 

37   This is calculated by assuming for those Member State that did not provide data on the number of persons involved that 

on average one individual person was sent abroad 1.1 times. 

44 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table 18 - Average duration of employment or self-employment in two or more 
Member States, in days, from a sending perspective, 2021 

Average duration per form (A) 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK TCA 
UK WA 
UK 
Total 

294 

198 
369 

407 
571 

424 
360 
534 

311 

703 
601 

273 

302 
337 
501 
418 
427 

406 

521 
527 
524 
325 

Number of forms issued per individual 
(B) 
1.3 

Average duration per individual 
worker (A*B) 
383 

1.2 
1.2 

1.2 
2.0 

1.1 

1.2 

1.1 

1.1 

1.1 

1.5 
1.1 
1.1 
1.1 
1.3 

1.1 

1.1 
1.1 

229 
431 

507 
1131 

477 

638 

347 

775 

289 

442 
369 
529 
440 
574 

466 

582 
369 

Source:   Administrative data PD A1 Questionnaire 2022 

In general, the average period (strongly) varies between persons covered by Article 12 and 
persons  covered  by  Article  13  (Figure 9).  For  all  reporting  Member  States,  the  average 
period during which persons covered by Article 12 are active in another Member State is 
lower than the period during which persons are active in two or more Member States.  

45 

 
 
 
 
  
 
 
  
 
 
  
 
 
  
  
  
 
 
  
 
 
  
  
  
 
 
  
 
 
  
 
 
  
 
 
  
 
 
  
 
 
  
 
 
  
 
  
 
  
 
Posting of workers 

Figure 9 - Average duration in days, persons covered by Article 12 versus persons 
covered by Article 13, 2021 

s
y
a
d
f
o
r
e
b
m
u
n
e
g
a
r
e
v
A

800

700

600

500

400

300

200

100

0

IE**

LU

IT

UK

IS

FI

EE

FR

NO

SI

SE

DK

BE

Total

SK

LV

PL

CZ

PDs A1 issued according to Article 13 BR

PDs A1 issued according to Article 12 BR

*   Figures from the last column of Tables 12 and 18. 
**   IE: the average number of days for PDs A1 issued according to Article 13 BR amounts to 1 131. 
Source:   Administrative data PD A1 Questionnaire 2022 

4.6.  The impact on national labour markets  

The  number  of  individual  persons  covered  by  Article  13  can  be  compared  to  the  total 
number of employed persons in the sending Member States to grasp the relative importance 
of  this  activity.  The  impact  on  the  receiving  Member  States  cannot  be  calculated  as  no 
further breakdown of individual persons by receiving Member State was included in the PD 
A1  Questionnaire.  By  using  the  additional  data  about  the  duration, the relative  weight  of 
persons covered by Article 13 on the labour market of some reporting Member States in 
terms of full-time equivalents (FTE) can be estimated.  

In 2021, an equivalent of 0.4 % of EU employment could be related to the employment of 
persons active in two or more Member States (Table 19). Only in Lithuania (5.9 %), Slovenia 
(4.7 %) and Poland (2.6 %), more than 2 % of the employed population is active in two or 
more Member States.  

Moreover,  the  share  of  the  work  volume  of  persons  (in  FTEs)  employed  in  two  or  more 
Member States in national employment (0.4 %) is even higher compared to the work volume 
of persons covered by Article 12 (0.3 %, see Table 13 in section 3.8). 

46 

 
 
 
 
Posting of workers 

Table 19 - Share of persons employed in two or more Member States in national 
employment, from a sending perspective, 2021 

0.0 % 

2 515 

1 698 

69 381 

Forms (B) 

Persons (C) 

1.9 % 
0.0 % 

1.9 % 
0.0 % 

12 001 
377 

12 001 
377 

Sending 
MS 

Persons 
in FTE** (D) 

46 810 
12 830 
36 348 
25 037 

46 810 
13 377 
51 113 
25 037 

% Of employed 
persons 
(C/(A*1 000)) 
1.0 % 
0.4 % 
1.0 % 
0.9 % 

% Of employed 
persons in 
FTE** (D/A) 
1.0 % 
0.4 % 
0.7 % 
0.9 % 

% Of employed 
persons 
(B/(A*1 000)) 
1.3 % 
0.5 % 
1.2 % 
1.1 % 
0.2 % 
2.4 % 
0.0 % 
0.1 % 
0.5 % 
0.0 % 
1.5 % 
0.4 % 
0.6 % 
2.1 % 
5.9 % 
2.0 % 
0.5 % 
0.3 % 
0.7 % 
1.5 % 
2.7 % 
0.2 % 
0.5 % 
6.9 % 
1.1 % 
0.2 % 
0.1 % 
0.0 % 

Total employed 
persons 
(In ,000)* (A) 
4 795 
2 987 
5 066 
2 787 
40 154 
616 
2 289 
3 823 
19 493 
27 274 
1 649 
21 849 
417 
822 
1 310 
459 
4 535 
262 
8 975 
4 232 
16 237 
4 623 
7 668 
954 
2 522 
2 470 
4 853 
186 

61 050 
15 034 
59 112 
29 281 
81 169 
14 940 
747 
2 647 
93 390 
1 910 
25 178 
82 887 
2 323 
17 611 
77 172 
9 378 
21 853 
730 
63 878 
64 723 
444 015 
9 570 
36 420 
66 159 
27 580 
4 285 
4 911 
43 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL**** 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total*** 
*   The total number of employed persons (in ,000) is retrieved from Eurostat [lfsa_egan2]. It concerns the total 

1 596 
19 014 
8 890 
1 347 496 

45 271 
25 212 
4 056 
4 643 
32 

45 271 
25 212 
4 056 
6 375 
32 

2 657 
4 505 
31 382 
231 848 

4.7 % 
1.0 % 
0.2 % 
0.1 % 
0.0 % 

4.7 % 
1.0 % 
0.2 % 
0.1 % 
0.0 % 

0.1 % 
0.4 % 
0.0 % 
0.6 % 

15 783 
77 172 
8 502 

15 783 
65 859 
8 502 

1.9 % 
5.9 % 
1.9 % 

1.9 % 
5.0 % 
1.9 % 

0.0 % 
0.4 % 

0.0 % 
0.4 % 

419 615 

376 448 

63 878 

69 381 

54 514 

1 390 

7 998 

1 390 

7 998 

0.1 % 

0.3 % 

0.7 % 

2.6 % 

0.1 % 

0.0 % 

0.3 % 

0.6 % 

2.3 % 

number of employed persons between 15 and 64 years old. LU: incl. frontier workers. 

**   In order to estimate the number of persons in FTEs, the average duration was converted to working days by 
multiplying it by 5/7 (max. 230). Thereafter, this period was divided by 230 days, the number of working days 
generally considered in one calendar year, taking into account holidays etc. Afterwards, this was multiplied 
by the number of PDs A1 issued. 

***  Average  calculated  for  the  reporting  Member  States.  The  EU  averages  are  therefore  not  perfectly 

comparable. 
****EL: data 2018.  
Source:   Administrative data PD A1 Questionnaire 2022 and Eurostat [lfsa_egan2] 

By using the additional data about the sector of activity, a more detailed analysis is carried 
out of the share of persons employed in two or more Member States in total employment of 
the road freight transport sector (Figure 10). It is clear that a high percentage of truck drivers 
employed in Latvia, Slovakia, Poland, Lithuania, and Luxembourg are active in two or more 
Member States, namely more than one in five truck drivers. Furthermore, in Belgium the 
share amounts to almost 20 %.  

47 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Figure 10 - Estimated share of persons employed in two or more Member States in 
freight transport by road, 2021 

51.3%

47.3%

44.3%

60.0%

50.0%

40.0%

30.0%

20.0%

10.0%

0.0%

22.9%

25.4%

19.4%

0.1%

0.1%

1.3%

5.4%

SE

FR

FI

EE

BE

LV

SK

PL

LT

LU

Source:   Administrative data PD A1 Questionnaire 2022 and Eurostat [sbs_na_1a_se_r2] data 2019 (for EE data 

2018) 

5. 

Fraud and error 

Member States were asked whether they are aware of cases of fraud or error.38 (Partial) 
data  were  provided  by  16  Member  States39,  of  which  three  reported  that  no  cases  of 
inappropriate use were found, namely Ireland, Malta, Romania, and Iceland. The remaining 
16  Member  States40  left  this  question  blank  or  reported  that  data  are  not  collected  or 
identified on this issue.  

Several  infractions  of  the  conditions  determined  by  Article  12  of  Regulation  (EC)  No 
883/2004 and Article 13 of Regulation (EC) No 883/2004 have been reported by these 12 
Member States: 

•  no direct relationship between the posted worker and the employer;  

•  no substantial activities in the sending Member State, the employer only makes use 
of  posting,  inappropriate  statements  of the  domestic  activity,  letterbox companies 
etc.;  

• 

• 

falsification of documents (e.g. false PDs A1 or false social security data);         

incorrect information provided by the applicant; 

•  bogus self-employment: wrong status of the person concerned; 

•  circumventing the application of Article 12: false evidence that Article 13 instead of 

Article 12 should be applied;  

• 

fraudulent use of Article 13(3). 

Member States were asked to report the cases encountered both from the point of view of 
a receiving Member State (Table 20) and of a sending Member State (Table 21). 

38   A comprehensive analysis of the prevalence of fraud and error in the field of EU social security coordination can be found 
in the thematic report on fraud and error (Jorens et al. (2021), Fraud and error in the field of EU social security coordination, 
Network Statistics FMSSFE, European Commission – DG EMPL). 

39   BE, BG, CZ, DE, IE, FR, IT, LV, LT, HU, MT, NL, PL, SI, SK, and IS.  

40   DK, EE, EL, ES, HR,, CY, LV, AT, PT, RO, FI, SE, LI, NO, CH, and UK 

48 

 
 
Posting of workers 

Table 20 shows the quantification of inappropriate use from the point of view of the receiving 
Member State. The column ‘Reason’ presents the more detailed explanations of fraud and 
error cases reported by the Member States. The column ‘Other quantification’ shows the 
additional type of quantification that was reported by Member States.  

Overall, the reported number of cases of inappropriate use is at a low level in most of the 
receiving Member States. Only the Netherlands (2 465 cases) reported a significant number 
of irregular cases. The other reporting Member States (BE, CZ, IE, LV, MT, and IS) reported 
no  or  a  very  limited  number  of  cases.  Both  France  and  Slovakia  are  aware  of  cases  of 
inappropriate use but are not able to quantify the size of it. In relative terms, the cases of 
inappropriate use do not exceed 0.5 % for the reporting Member States with the exception 
of the Netherlands for which it amounts to 1.6 %. 

Table 20 - Number of cases of inappropriate use of applicable legislation (PD A1), 
as a receiving Member State, 2021 

BE 

CZ 
IE 

FR 

LV 
MT 
NL 

6 
0 
2 465 

SK 

Other 
quantification 
Amount involved 
EUR 188 184 

Cases 

180 

2 
0 

Falsified PD A1 

Reason 

Amount 
recovered 
EUR 33 268 228 

Fraud:  
* False PDs A1 
* The company has no economic/structural/professional reality in a Member State 
but only exists to post employees on French territory 
* Non-compliance with the conditions of posting (art 12) and multi-activity (art 13), 
* Creation of pure management structures to make posted employees available to 
construction sites or farms, 
* The company is only created via a complex legal arrangement to provide French 
companies, on French soil, with seconded employees 
* A French company posts employees within the EU, provides PDs A1 but does not 
make any social declaration/payment of social security contributions in France 
Falsified PD A1 

Fraud 
Fraud:  
* Cases of manipulation of PD A1 
* False evidence that Article 13 instead of Article 12 should be applied 
Error:  
* Bogus self-employment 
* Incorrectly or insufficient completion of the PD A1 issued by the competent 
institution. 

% Of PDs A1 
received* 

0.1 % 

0.004 % 

0.2 % 

1.6 % 

0 

IS 
*   Based on the number of PDs A1 received according to Article 12 (see Table 5 in section 3.1). 
Source:  Administrative data PD A1 Questionnaire 2022  

In addition to the cases of inappropriate use encountered as a receiving Member State, the 
questionnaire  also  asked  about  the  situations  of  inappropriate  use  encountered  as  a 
sending Member State, which is shown in Table 21.  

Most  of the  competent Member  States reported  no  or  only  a limited  number  of  cases  of 
inappropriate use (CZ, DE, IE, FR, IT, LT, HU, MT, SI, and IS). Only the Netherlands and 
Poland reported over 100 cases of inappropriate use, of which the majority concerned cases 
of fraud for both Member States. Slovakia is aware of inappropriate use but cannot quantify 
it. The rather limited occurrence of inappropriate use is also evident when comparing it to 
the  total  number  of  PDs  A1  issued  by  the  competent  Member  States.  For  none  of  the 
reporting Member States, the share was higher than 0.3 %.  

49 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table 21 - Number of cases of inappropriate use of applicable legislation (PD A1), 
as a sending Member State, 2021 

Cases  

Other 
quantification 

Reason 

% Of total PDs 
A1 issued* 

CZ 
DE 
IE 
FR 

IT 

LT 
HU 
MT 
NL 

PL 

0 
0 
0 
0 

49 

27 
6 
0 
120 

175 

SI 

6 

A few million 
euros 

SK 

49 error cases 
* 44 cases incorrect indication of data (period of posting, data on the employer) 
* 5 cases incorrect indication of data (period of posting, data on the employer) 
Article 12 should be applied instead of Article 13 
Lack of domestic activity and incorrect data provided 

63 persons 

Fraud 
*155 cases of fraud: falsified PDs A1 
*20 cases of error 
Fraud: Reasonable doubt about compliance with Art. 12: substantial character 
of the activities, prior submission to the social security legislation of the 
sending state, maximum anticipated duration of 24 months 
Fraud:  
* Cases of falsification of documents issued by the relevant institution when 
issuing PD A1 
* False evidence that Article 13 instead of Article 12 should be applied 
* “Letterbox” companies - payment of the social insurance contributions in a 
more convenient social security scheme 
* Cases of manipulation of PD A1 
Error:  
* Improperly defined position of the person concerned - e.g., self-employment 
should be properly defined as an employee's activity 

0.03 % 

0.1 % 
0.01 % 

0.3 % 

0.1 % 

0.01 % 

0 

IS 
*   Based on the number of PDs A1 issued according to Article 12 (see Table 5 in section 3.1). 
Source:  Administrative data PD A1 Questionnaire 2022 

Furthermore, data are reported on the number of PDs A1 withdrawn by the receiving and 
sending Member States (Table 22). From the point of view of the receiving Member State, 
Member States can request for a PD A1 to be withdrawn. Most cases are reported by the 
Netherlands with  over  2 400 PDs  A1 requested  to  be  withdrawn.  Furthermore,  Germany 
stated that in 2021, 21 dialogue and conciliation procedures were initiated in which at least 
1 952 PDs A1 were contested by a total of 1 952 workers from 27 companies. The exact 
number  of  disputed  A1  certificates  cannot  be  stated,  as  some  PDs A1  were  issued  for 
multiple workers. France reported requests for withdrawal of PDs A1 within the framework 
of  the  control  of  14  companies  for  579  employees  concerned  and  11  Member  States 
concerned. When comparing the number of requested withdrawals to the total number of 
PDs A1 received, the share only exceeds 0.5 % in the Netherlands (1.6 %).  

As  a  sending  Member  State,  Italy  and  Poland  withdrew  the  highest  number  of  PDs  A1, 
namely 439 and 431 respectively, while the other reporting Member States stayed under 80 
PDs A1 withdrawn in 2021. Hungary reported 25 PDs A1 which were withdrawn in 8 cases 
due to an error in the legal basis. The Netherlands withdrew 76 PDs A1, and on top of this, 
44 applications were rejected due to their investigations. Once more, the relative impact is 
limited, as it does not exceed 0.2 % for any of the reporting Member States.  

Table 22 - Number of PDs A1 withdrawn, 2021 

Number of PDs A1 requested to be 
withdrawn (A) 
48 
Minimum 1 952 
579 employees 
2 465 

BE 
DE 
FR 
NL 

As a receiving Member State 

Total number of PDs A1 received under 
Art. 12(B)* 
175 456 
431 801  
303 945 
152 055 

% Of requested PDs A1 to be withdrawn 
(A/B) 
0.03 % 
0.5 % 
0.2 % 
1.6 % 

50 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

As a sending Member State 

Number of PDs A1 withdrawn (A) 

BG 
IT 
LT 
HU 
NL 
PL 
*   Based on the number of PDs A1 issued and received according to Article 12 (see Table 5 in section 3.1). 
Source:  Administrative data PD A1 Questionnaire 2022 

0.2 % 
0.2 % 
0.1 % 
0.1 % 
0.2 % 
0.2 % 

23 
439 
27 
25 
76 
431 

Total number of PDs A1 issued under 
Art. 12 (B)* 
10 911 
189 702 
31 784 
41 017 
44 885 
223 293 

% Of withdrawn PDs A1 (A/B) 

Although the number of PDs A1 withdrawn is useful information, it is important to note that 
there are other interesting statistics regarding the withdrawal of PDs A1. The reality is that 
there  are  often  much  more  requests  between  Member  States  to  verify  whether  the 
conditions for delivering a PD A1 were indeed complied with compared to the number of 
PDs A1 that were eventually withdrawn.  

To what extent foreign service providers commit violations against the applicable rules can 
be analysed by confronting the number of audits or investigations to the number of cases 
identified (Table 23). As a receiving Member State, Belgium performed around 3 400 audits 
or investigations, uncovering 180 cases of inappropriate use. The Netherlands performed 
13  audits  or  investigations  and  found  2 456  cases  of  inappropriate  use.  For  the  sending 
Member  State’s  point  of  view,  the  Netherlands  and  Poland  were  able  to  provide  a 
quantification. While the Netherlands had 21 audits or investigations, uncovering 120 cases, 
Poland had 326 audits or investigations, which uncovered 175 cases of inappropriate use.  

Table 23 - Efforts at uncovering inappropriate use of applicable legislation (PD A1), 
2021 

Number of audits 
or investigations 

Number of cases 
of inappropriate 
use identified 

As receiving MS 
BE 

3 425 

180 

FR 

Methodology 

EUR 207 607 financial resources allocated, around 62 human resources allocated. 
NISSE: will investigate possible fraud when contacted by inspection services or by its 
own datamining. When PDA1 fraud is identified, NISSE will use the conciliation 
procedure provided for in Decision A1 of 12 June 2009. The calculations provided are 
based on the cases in that procedure 
ONSS: an investigation is conducted in several stages. It starts with an inspection at 
the workplace. the workplace is selected by datamining or by information the 
inspectors gathered on the field.  The investigation continues with the extraction of 
data relating to workers posted by the company in the various applications which 
record the mandatory declarations of the employer whose main ones are LIMOSA, 
GOTOT in (database of PD A1), Construction site declarations, Check in at work (daily 
registration of presence at a construction stie). On the basis of these findings, the 
investigation may or may not result in a request for a reassessment of the applicable 
legislation by the competent institution of the sending State. If this is the case, the 
decision of the competent institution as to the withdrawal of the subjection at the 
social security system of its State then entails a declaration by the workers posted to 
the State of employment, i.e., Belgium. The inspection service shall draw up this 
declaration on the basis of the information in its possession at the time of the decision 
(in accordance with article 76 of the Regulation Nr 883/2004 and articles 7 and 20 of 
regulation Nr 987/2009). The number of cases identified and the amounts of 
regularisations (in terms of declared remuneration) concern the number of 
investigations which have been concluded at this stage. They relate mainly to findings 
made in previous years, given the time needed to gather the convincing findings to be 
transmitted to the competent institution in the sending State and the time needed for 
dialogue between competent institutions in accordance with the procedure laid down 
in Decision A1. 
In 2021: 36 PSI control actions that have been completed by the URSSAF for a total 
amount recovery of EUR 33 268 228, stable compared to 2020. The average 
adjustment amount for posting/multiple activity checks was EUR 924 117. For 
comparison, for targeted GR actions alone, this average is 233 531. This observation 
therefore attests to the major financial challenges of PSI. It should be noted that, 
since 2016, the URSSAF have carried out 281 actions of fraudulent posting/multiple 
activity situations for a cumulative amount of EUR 320.4 million. 
Methodology: the amount of fraud is the adjustment accounted for within the 
framework of the control: i.e., the quantification of the amount of contributions and 

51 

 
 
 
 
 
Posting of workers 

Number of audits 
or investigations 

Number of cases 
of inappropriate 
use identified 

Methodology 

social security contributions evaded over 5 years + the current year and the 
application of financial sanctions 
A tool for monitoring PSI control procedures is being developed within the Urssaf 
network to strengthen monitoring and management 
The volume of PSI control actions should be consistent with the complexity of the 
procedures, the length/depth of the investigations. 
The data is reduced: it only concerns inspections closed in 2021 that resulted in a 
recovery. Controls started in 2021 are still in progress in 2022. 
On withdrawal requests: the control and cooperation strategy with the MS aims to 
solicit the SS authorities well in advance of the request for withdrawal of A1s: in fact, 
A1s are not issued or withdrawn very quickly. The data is therefore not significant. 
13.5 FTE human resources allocated 

CCMSA (agricultural scheme): The MSA funds systematically consult the SIRDAR tool 
during any inspection involving the use of posted workers by the inspected company, 
in order to verify the existence/compliance of the A1 forms. There were 82 
connections by the MSA in 2021 (compared to 59 in 2020 and 109 in 2019), for 181 
forms consulted following checks. 
Nationally, 89 actions were carried out on the theme of secondment in 2021. It 
appears that this type of action is mainly organized in CODAF with the support of 
partners. In this respect, it should be noted that nearly 90 % of the control actions 
scheduled for 2021 have indeed been carried out, which attests to the priority 
attached by the MSA and its partners to the control of these situations. 
Finally, the consolidation of the 2021 annual survey relating to checks on situations of 
secondment of temporary employees reveals 27 checks carried out by 8 MSA funds 
giving rise to the checks of 83 temporary employees. These control actions revealed 7 
temporary employees with anomalies and a situation gave rise to a report to the 
partner control bodies about temporary employees appearing to be in anomaly. 
13.5 FTE human resources allocated 
326 audits or investigations (number of cases conducted by ZUS branch in Siedlce 
(unit designated for cases where institutions of MSs request for withdrawal of PD A1s 
or have doubts with regard to determination of applicable legislation)) of which 115 
investigations concerned the conditions for issuing PD A1s and 211 investigations 
regarding the authenticity of issued A1 (of which 38 cases were found to be incorrect.) 

13 

NL 
As a sending Member State 
FR 

2 456 

NL 
PL 

21 
326 

120 
175 

Source:  Administrative data PD A1 Questionnaire 2022 

52 

 
 
 
 
Annex I  Additional tables 

Table A1 - PDs A1 issued by the sending Member States according to Article 12 of the Basic Regulation, breakdown by receiving Member 
State, 2021 (row %) 

Sending Member State 

5
3

S
M
g
n
i
v
i
e
c
e
R

CH  UK TCA  UK WA  UK 

LI 

FI 

IS 

SI 

IT 

IE 

LT 

SE 

PL 

ES 

EE 

CZ 

SK 

LV 

FR 

PT 

CY 

BE 

NL 

AT 

DE 

DK 

BG 

HR 

RO 

NO 

EL* 

HU  MT 

LU 
0.3 % 
0.0 %  0.8 %  0.2 %  0.1 %  25.5 %  0.0 %  0.0 %  0.1 %  2.6 %  18.6 %  1.2 %  3.5 %  0.0 %  0.0 %  1.0 %  13.8 %  0.7 %  0.0 %  4.9 %  0.2 %  9.6 %  8.1 %  2.1 %  4.1 %  2.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
BE 
0.3 % 
0.7 %  10.2 %  0.0 %  0.0 %  1.5 %  0.5 %  2.1 %  0.0 %  0.3 %  1.6 %  1.9 %  1.6 %  1.6 %  0.3 %  0.7 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.6 %  0.0 %  0.2 %  0.2 %  61.3 %  0.0 %  0.0 %  2.2 %  6.3 %  5.2 % 
BG 
0.1 % 
0.1 %  2.8 %  0.0 %  0.0 %  0.1 %  0.1 %  0.6 %  0.0 %  0.1 %  1.5 %  4.8 %  0.3 %  0.2 %  0.7 %  10.8 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.3 %  0.2 %  0.0 %  0.1 %  73.4 %  0.0 %  0.0 %  0.0 %  1.8 %  2.0 % 
CZ 
0.6 % 
0.3 %  6.4 %  0.0 %  0.1 %  2.4 %  0.1 %  0.8 %  0.1 %  0.9 %  0.2 %  5.8 %  0.2 %  0.6 %  0.3 %  0.8 %  0.3 %  0.3 %  0.0 %  0.0 %  0.3 %  0.0 % 
1.3 %  0.9 %  0.3 %  0.0 %  70.6 %  0.3 %  0.1 %  0.2 %  3.5 %  2.1 % 
DK 
0.3 % 
9.3 %  5.5 %  0.0 %  0.3 %  2.7 %  1.8 %  5.8 %  0.0 %  0.6 %  5.5 %  29.2 %  0.8 %  3.0 %  14.6 %  10.5 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
1.0 %  1.1 %  0.7 %  0.2 %  0.0 %  0.3 %  0.0 %  0.6 %  3.4 %  2.5 % 
DE 
0.3 % 
0.0 %  3.9 %  0.0 %  7.8 %  4.6 %  0.2 %  0.2 %  0.0 %  0.5 %  1.2 %  6.7 %  0.0 %  2.7 %  0.9 %  0.2 %  3.2 %  0.0 %  0.3 %  0.0 %  0.5 %  0.0 % 
0.9 %  0.9 %  0.8 %  11.8 %  46.1 %  0.0 %  0.0 %  0.1 %  2.8 %  2.8 % 
EE 
0.9 % 
0.4 %  12.0 %  0.0 %  0.0 %  0.2 %  0.9 %  0.3 %  0.0 %  0.8 %  0.2 %  4.8 %  1.6 %  0.6 %  0.3 %  0.8 %  0.1 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 % 
1.2 %  1.1 %  0.5 %  0.2 %  54.6 %  0.0 %  0.0 %  0.2 %  10.1 %  4.4 % 
IE 
4.9 % 
1.5 %  2.1 %  0.8 %  1.0 %  45.9 %  0.0 %  0.0 %  0.0 %  7.7 %  6.9 % 
0.3 %  19.6 %  0.3 %  0.0 %  0.0 %  0.9 %  0.4 %  0.1 %  1.1 %  0.6 %  1.8 %  0.3 %  0.3 %  0.8 %  0.5 %  0.4 %  0.3 %  0.0 %  0.0 %  0.1 %  0.0 % 
EL 
2.0 % 
1.9 %  0.5 %  0.4 %  0.3 %  49.2 %  0.0 %  0.0 %  0.4 %  0.0 %  11.6 %  0.2 %  14.4 %  0.0 %  0.0 %  0.1 %  0.5 %  0.4 %  0.0 %  0.8 %  0.5 %  2.1 %  12.0 %  0.6 %  0.4 %  0.2 %  0.4 %  0.1 %  0.0 %  0.0 %  0.1 %  0.0 % 
ES 
0.8 % 
0.3 %  16.9 %  0.0 %  0.0 %  0.8 %  6.4 %  0.4 %  0.0 %  0.5 %  0.3 %  7.7 %  7.2 %  1.8 %  0.6 %  0.8 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
8.5 %  0.4 %  0.1 %  0.2 %  32.7 %  0.1 %  0.0 %  0.2 %  12.7 %  0.0 % 
FR 
0.8 % 
0.0 %  14.1 %  0.0 %  0.0 %  0.0 %  0.2 %  3.3 %  0.0 %  0.1 %  3.6 %  6.9 %  0.0 %  0.6 %  24.6 %  1.0 %  0.1 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.5 %  0.5 %  0.2 %  0.1 %  38.7 %  0.0 %  0.0 %  0.0 %  2.4 %  2.1 % 
HR 
1.1 % 
2.3 %  0.2 %  0.0 %  0.0 %  0.1 %  0.5 %  0.6 %  0.1 %  0.8 %  1.5 %  2.3 %  0.3 %  2.9 %  2.7 %  0.7 %  0.2 %  0.1 %  0.0 %  0.0 %  0.1 %  0.0 % 
1.2 %  0.1 %  0.3 %  0.2 %  63.7 %  0.1 %  0.0 %  0.4 %  8.6 %  8.2 % 
IT 
6.7 % 
0.4 %  5.0 %  0.0 %  0.0 %  0.1 %  0.8 %  0.0 %  0.5 %  0.8 %  0.9 %  2.7 %  0.6 %  0.1 %  0.2 %  1.0 %  0.7 %  0.4 %  0.0 %  0.0 %  0.3 %  0.0 % 
0.7 %  3.2 %  0.4 %  1.2 %  43.6 %  0.1 %  0.2 %  16.3 %  7.3 %  2.0 % 
CY 
0.3 % 
0.7 %  0.4 %  0.6 %  0.3 %  62.0 %  1.3 %  0.0 %  0.1 %  4.4 %  2.2 % 
0.3 %  4.8 %  0.0 %  0.0 %  7.1 %  0.4 %  0.3 %  0.0 %  0.2 %  1.0 %  11.1 %  0.2 %  0.2 %  0.0 %  0.8 %  0.4 %  0.2 %  0.0 %  0.2 %  0.0 %  0.0 % 
LV 
0.0 % 
0.0 %  3.4 %  0.0 %  18.8 %  0.6 %  0.8 %  0.1 %  0.0 %  0.1 %  0.9 %  13.9 %  0.2 %  0.1 %  0.0 %  0.6 %  0.3 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 % 
1.9 %  0.2 %  0.3 %  1.2 %  49.1 %  0.6 %  0.0 %  0.0 %  3.2 %  3.0 % 
LT 
0.2 % 
21.3 %  0.1 %  0.1 %  0.0 %  52.0 %  0.0 %  0.0 %  0.1 %  0.7 %  16.0 %  0.1 %  2.8 %  0.0 %  0.0 %  0.1 %  0.0 %  0.8 %  0.0 %  0.5 %  0.1 %  1.6 %  1.7 %  0.2 %  0.9 %  0.4 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
LU 
0.5 % 
0.5 %  6.7 %  0.0 %  0.0 %  0.0 %  0.4 %  0.0 %  0.0 %  0.3 %  2.5 %  2.5 %  0.2 %  2.6 %  1.5 %  7.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.4 %  0.3 %  0.3 %  0.3 %  68.6 %  0.0 %  0.0 %  0.0 %  2.4 %  2.6 % 
HU 
0.0 % 
0.2 %  27.8 %  0.0 %  0.2 %  0.0 %  0.3 %  0.0 %  0.0 %  0.6 %  1.3 %  5.1 %  0.4 %  0.6 %  0.8 %  0.9 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.7 %  0.3 %  0.2 %  0.5 %  51.0 %  0.0 %  0.1 %  0.8 %  4.2 %  3.5 % 
MT 
0.7 % 
0.6 %  3.3 %  0.0 %  0.0 %  2.2 %  0.2 %  2.1 %  0.0 %  0.0 %  0.4 %  10.9 %  1.6 %  1.0 %  1.8 %  2.6 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
12.0 %  0.3 %  0.2 %  0.2 %  53.8 %  0.1 %  0.1 %  0.7 %  2.7 %  1.8 % 
NL 
0.1 % 
0.9 %  5.8 %  0.0 %  0.0 %  0.1 %  0.1 %  2.3 %  0.0 %  0.3 %  0.0 %  2.3 %  0.4 %  0.2 %  7.0 %  3.6 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.2 %  0.1 %  0.2 %  0.1 %  75.2 %  0.0 %  0.0 %  0.0 %  0.4 %  0.5 % 
AT 
0.3 % 
0.1 %  7.7 %  0.0 %  0.0 %  0.2 %  0.2 %  0.4 %  0.0 %  0.3 %  1.0 %  0.0 %  0.1 %  0.3 %  0.8 %  1.0 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.6 %  0.2 %  0.6 %  0.6 %  77.4 %  0.1 %  0.0 %  0.2 %  4.2 %  3.2 % 
PL 
0.3 % 
0.1 %  5.4 %  0.0 %  0.0 %  0.0 %  0.4 %  0.1 %  0.0 %  0.3 %  0.3 %  0.6 %  0.0 %  0.1 %  0.0 %  0.1 %  0.2 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.6 %  0.1 %  0.1 %  0.2 %  31.5 %  0.0 %  0.0 %  0.3 %  52.6 %  6.3 % 
PT 
0.3 % 
0.7 %  0.9 %  0.4 %  0.1 %  63.0 %  0.0 %  0.0 %  0.7 %  6.6 %  6.6 % 
0.2 %  11.5 %  0.0 %  0.1 %  0.0 %  0.5 %  1.5 %  0.0 %  0.6 %  1.6 %  2.2 %  0.3 %  0.0 %  0.7 %  1.0 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
RO 
0.1 % 
0.6 %  0.4 %  0.2 %  0.0 %  47.4 %  0.0 %  0.0 %  0.1 %  1.1 %  1.5 %  21.6 %  10.7 %  0.0 %  0.0 %  0.0 %  0.2 %  2.6 %  0.0 %  0.1 %  6.0 %  1.7 %  0.1 %  0.3 %  0.3 %  4.7 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
SI 
0.1 % 
0.2 %  4.8 %  0.0 %  0.0 %  0.1 %  0.5 %  2.6 %  0.0 %  0.2 %  2.4 %  8.5 %  0.1 %  0.9 %  0.6 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.1 %  0.4 %  6.0 %  0.1 %  64.7 %  0.0 %  0.0 %  0.1 %  4.1 %  3.2 % 
SK 
1.0 % 
1.6 %  3.6 %  0.0 %  1.4 %  6.6 %  0.2 %  0.6 %  0.0 %  0.3 %  1.4 %  12.8 %  0.3 %  0.9 %  1.2 %  2.1 %  0.0 %  1.1 %  0.0 %  0.0 %  0.2 %  0.0 % 
0.3 %  0.2 %  0.4 %  0.4 %  43.8 %  12.1 %  0.1 %  0.1 %  4.6 %  2.2 % 
FI 
0.8 % 
2.0 %  3.1 %  0.0 %  1.9 %  10.0 %  0.1 %  0.8 %  0.0 %  0.2 %  0.9 %  23.0 %  0.8 %  0.7 %  0.9 %  3.6 %  2.1 %  0.0 %  0.0 %  0.0 %  0.8 %  0.0 % 
0.6 %  0.2 %  0.3 %  1.0 %  39.1 %  1.9 %  0.3 %  0.2 %  3.0 %  1.5 % 
SE 
0.0 % 
0.0 %  3.7 %  0.0 %  0.8 %  5.8 %  0.1 %  0.0 %  0.0 %  0.3 %  0.9 %  3.2 %  1.6 %  0.2 %  0.3 %  1.0 %  0.7 %  0.2 %  0.0 %  0.0 %  0.0 %  0.0 % 
1.4 %  1.3 %  0.6 %  1.9 %  65.5 %  1.4 %  0.1 %  1.0 %  4.0 %  3.6 % 
IS 
0.0 % 
0.0 %  1.8 %  0.0 %  0.0 %  0.0 %  0.4 %  0.0 %  0.0 %  0.0 %  11.6 %  2.8 %  0.0 %  0.0 %  0.0 %  0.1 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.9 %  0.0 %  0.1 %  0.0 %  81.7 %  0.0 %  0.0 %  0.0 %  0.4 %  0.3 % 
LI 
0.0 % 
2.4 %  9.1 %  0.0 %  0.2 %  19.5 %  0.1 %  0.4 %  0.1 %  0.3 %  0.8 %  5.7 %  1.0 %  0.8 %  0.6 %  0.3 %  1.1 %  1.6 %  0.1 %  0.0 %  0.0 %  0.0 % 
0.5 %  1.6 %  0.3 %  10.0 %  31.5 %  0.4 %  0.0 %  0.0 %  5.5 %  2.8 % 
NO 
0.0 % 
0.1 %  28.4 %  0.0 %  0.0 %  0.0 %  0.2 %  0.2 %  0.0 %  0.3 %  1.7 %  0.8 %  0.2 %  0.1 %  0.4 %  0.3 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.7 %  0.1 %  0.1 %  0.1 %  58.3 %  0.0 %  0.0 %  0.0 %  1.3 %  6.4 % 
CH 
0.7 %  10.7 %  0.0 %  0.0 %  0.3 %  0.4 %  0.8 %  0.1 %  0.2 %  0.6 %  4.8 %  1.4 %  0.4 %  1.4 %  1.2 %  0.3 %  0.0 %  0.0 %  0.0 %  0.2 %  0.0 % 
UK 
0.0 % 
1.5 %  0.1 %  0.5 %  0.6 %  48.0 %  0.0 %  0.2 %  0.4 %  16.6 %  8.4 % 
0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  7.6 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  92.4 %  0.0 % 
unkn.  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.5 % 
2.5 %  8.6 %  0.0 %  0.2 %  1.5 %  2.5 %  1.9 %  0.0 %  0.8 %  1.9 %  10.2 %  2.6 %  1.4 %  4.6 %  3.6 %  0.2 %  0.1 %  0.0 %  0.0 %  0.0 %  2.5 % 
Total  3.0 %  0.5 %  0.4 %  0.3 %  39.8 %  0.3 %  0.0 %  0.3 %  5.2 %  4.5 % 

Total 
0.5 %  100 % 
0.2 % 
0.8 %  100 % 
0.5 % 
0.2 %  100 % 
0.1 % 
0.8 %  100 % 
0.3 % 
0.5 %  100 % 
0.2 % 
0.9 %  100 % 
0.7 % 
4.5 %  100 % 
3.6 % 
6.3 %  100 % 
1.3 % 
2.7 %  100 % 
0.7 % 
1.2 %  100 % 
0.4 % 
0.8 %  100 % 
0.1 % 
0.6 % 
1.7 %  100 % 
3.7 %  10.4 %  100 % 
0.7 %  100 % 
0.4 % 
0.5 %  100 % 
0.5 % 
0.2 %  100 % 
0.1 % 
0.7 %  100 % 
0.3 % 
0.4 %  100 % 
0.4 % 
1.0 %  100 % 
0.4 % 
0.1 %  100 % 
0.0 % 
0.6 %  100 % 
0.4 % 
0.6 %  100 % 
0.4 % 
0.6 %  100 % 
0.3 % 
0.1 %  100 % 
0.0 % 
0.1 %  100 % 
0.0 % 
1.4 %  100 % 
0.4 % 
1.2 %  100 % 
0.4 % 
0.5 %  100 % 
0.5 % 
0.0 %  100 % 
0.0 % 
3.1 %  100 % 
3.1 % 
0.1 %  100 % 
0.1 % 
0.0 %  100 % 
0.0 % 
0.0 %  100 % 
0.0 % 
0.8 %  100 % 
0.3 % 

*   EL: data 2018. 
Source:   Administrative data PD A1 Questionnaire 2022 

 
 
 
 
 
 
 
 
 
 
Table A2 - PDs A1 issued by the sending Member States according to Article 12 of the Basic Regulation, breakdown by receiving Member 
State, 2021 (column %) 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
unkn. 
Total 

S
M
g
n
i
v
i
e
c
e
R

5
4

*  
** 
Source: 

LI 

FI 

IS 

IE 

SE 

PL 

ES 

CY 

AT 

HR 

RO 

EL* 

SI** 

IT** 

SK** 

DK 

DE 

CZ 
5.2 % 
0.2 % 

0.0 % 
0.0 % 
0.3 % 

0.0 % 
0.1 % 
0.2 % 
0.8 % 

0.0 % 
0.0 % 
0.1 % 
0.9 % 

0.2 % 
5.1 %  5.5 % 

BE 

BG 
13.1 % 

LV 
1.1 % 
0.0 % 
0.1 % 
0.6 % 

2.1 %  5.1 % 
0.2 %  0.5 % 
0.8 %  4.6 % 
2.5 % 

0.0 %  0.0 %  0.1 %  0.1 %  0.0 %  0.1 %  0.0 % 
0.2 %  0.5 %  0.3 %  0.0 %  0.4 %  0.0 % 

LT** 
HU 
LU 
5.4 %  44.2 %  2.9 % 
0.3 % 
0.1 % 
0.3 % 
0.8 % 
0.1 % 
0.1 % 
0.6 % 
0.1 % 
2.3 % 

Sending Member State 
MT 
PT 
NL 
0.7 %  50.4 %  0.7 %  7.5 %  24.6 %  12.0 %  7.0 %  4.7 %  1.5 % 
0.3 %  0.0 %  0.1 %  0.1 % 
0.2 % 
0.2 %  0.1 %  0.2 %  0.1 % 
0.4 %  0.4 %  7.5 %  0.4 % 
0.3 % 
1.1 %  0.2 %  2.0 %  1.2 % 
0.6 %  0.1 %  0.3 %  2.6 % 
0.1 % 
3.0 %  1.6 %  0.1 %  0.8 % 

FR 
7.9 %  3.6 %  4.0 %  32.7 %  3.9 %  3.2 %  1.3 % 
0.1 %  2.2 %  0.4 %  0.3 %  0.1 %  0.3 %  0.0 % 
2.2 %  0.3 %  0.8 %  1.1 %  0.1 %  0.8 %  0.0 % 
3.9 %  1.1 %  0.9 %  0.7 %  0.2 %  1.0 %  0.0 % 

NO 
EE 
1.4 %  13.9 %  0.0 %  1.6 % 
0.7 % 
0.0 %  0.0 %  0.0 % 
0.1 % 
0.0 % 
0.0 %  0.7 %  0.0 % 
0.9 % 
0.1 % 
1.8 % 
0.9 %  0.0 %  9.6 % 
7.7 % 
18.7 %  8.4 %  38.1 %  12.7 %  10.9 %  73.3 %  12.5 %  13.9 %  29.3 %  34.9 %  13.9 %  61.1 %  5.4 %  14.7 %  57.7 %  56.2 %  6.2 %  41.3 %  62.0 %  57.4 %  12.0 %  7.1 %  12.0 %  44.8 %  3.8 % 
6.5 %  0.0 %  1.3 % 
0.0 %  0.1 %  0.1 %  0.1 % 
0.0 %  0.0 %  0.1 % 
0.6 %  0.3 %  0.0 %  0.1 % 
3.0 %  0.9 %  0.2 %  0.1 % 
0.0 %  0.0 %  0.8 % 
3.0 %  4.3 %  1.0 %  0.8 %  18.5 %  1.7 %  0.4 %  0.2 %  10.0 %  6.7 %  15.7 %  2.1 %  5.7 % 
9.6 %  13.0 %  13.4 %  6.3 % 
0.6 % 
0.0 %  0.5 %  0.4 % 
5.5 %  14.8 %  7.0 %  7.6 % 
0.0 %  0.0 %  0.5 % 
0.5 % 
0.0 %  1.2 %  0.1 % 
0.3 % 
0.9 %  0.0 %  0.1 % 
0.2 % 
0.0 %  1.9 %  0.1 % 
0.3 % 
0.0 %  0.0 %  0.3 % 
0.3 % 
0.0 %  0.0 %  0.1 % 
0.1 % 
0.9 %  4.0 %  0.9 % 
3.0 % 
1.9 %  11.5 %  0.3 % 
3.6 % 
1.9 %  0.2 %  1.1 % 
1.4 % 
0.9 %  0.2 %  0.3 % 
0.5 % 
0.0 %  0.0 %  0.9 % 
0.2 % 
0.0 %  0.0 %  0.0 % 
0.2 % 
0.0 % 
0.0 %  1.6 %  0.1 % 
18.9 %  0.9 %  0.2 %  4.2 % 
3.7 %  1.2 %  44.7 % 
0.0 %  0.0 % 
0.0 % 

0.1 % 
0.9 % 
0.3 % 
2.5 % 
1.1 % 
0.6 % 
43.9 %  38.6 %  14.0 % 
6.5 % 
0.4 % 
4.8 % 
0.3 % 
0.2 % 
0.0 % 
4.3 %  0.1 % 
0.0 % 
0.0 % 
0.4 % 
0.6 % 
0.1 % 
0.2 %  0.4 % 
0.0 % 
0.9 %  0.9 %  0.1 %  1.4 %  57.0 %  0.0 % 
1.3 % 
2.5 % 
0.3 % 
1.9 %  0.7 % 
0.4 % 
0.5 % 
10.4 %  0.3 %  6.7 %  1.3 % 
3.9 % 
2.5 % 
4.1 % 
4.3 %  5.0 % 
7.9 %  36.3 %  3.3 %  22.1 %  9.1 %  2.4 %  10.6 %  38.8 %  17.6 %  1.9 %  3.2 %  8.4 % 
2.9 % 
1.5 %  27.4 %  1.3 % 
5.2 % 
39.7 %  11.3 % 
7.1 %  11.5 %  4.0 %  11.2 %  8.7 %  34.1 % 
0.0 % 
0.0 % 
0.3 %  3.2 %  0.2 %  0.3 % 
0.0 % 
0.0 %  0.1 %  0.3 %  0.3 % 
1.0 %  7.6 % 
0.0 % 
0.4 % 
0.6 % 
0.1 % 
0.1 %  0.6 % 
0.7 %  10.0 %  2.9 %  0.9 %  5.1 % 
0.4 % 
0.5 % 
4.9 %  6.6 %  8.1 %  8.9 %  4.5 %  0.1 %  3.8 % 
1.9 % 
4.3 % 
1.3 % 
1.9 % 
3.3 %  7.9 % 
0.0 %  0.0 %  0.0 %  0.3 % 
0.0 % 
0.0 % 
0.4 %  4.1 %  0.1 %  0.0 %  0.0 %  0.0 % 
0.0 % 
0.0 % 
0.1 % 
0.5 % 
0.0 % 
0.3 %  0.1 % 
0.0 %  0.0 %  0.0 %  0.2 % 
0.0 % 
0.0 %  0.0 %  0.1 %  0.0 %  0.0 %  0.1 %  0.0 % 
0.5 % 
0.5 % 
0.2 % 
0.1 % 
0.0 % 
0.1 %  0.2 % 
0.0 %  0.0 %  0.0 %  0.4 % 
0.0 % 
0.2 %  0.0 %  0.1 %  0.1 %  0.0 %  0.1 %  0.0 %  19.9 %  0.1 % 
0.4 % 
0.2 % 
0.1 % 
0.1 % 
0.8 %  0.2 % 
0.3 %  0.4 %  0.2 %  0.4 % 
1.3 % 
0.1 % 
0.1 %  0.5 %  0.3 %  7.1 %  0.1 %  0.7 %  1.3 % 
0.0 % 
0.0 % 
0.5 % 
0.3 % 
14.2 % 
0.1 %  2.6 % 
0.3 % 
3.2 %  0.6 %  3.5 %  0.4 % 
0.1 % 
0.0 % 
0.2 %  0.3 %  0.8 %  1.0 %  0.4 %  1.4 %  0.0 % 
0.0 % 
0.0 % 
1.3 % 
1.0 % 
0.2 % 
1.4 %  3.0 % 
0.0 %  0.0 %  0.0 %  0.1 % 
0.0 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.4 %  0.3 %  0.1 %  0.1 %  0.0 %  0.4 %  1.3 % 
0.1 % 
0.1 % 
0.0 % 
0.2 %  0.1 % 
5.1 %  2.7 %  5.1 %  2.9 % 
4.4 % 
1.4 %  10.4 %  0.6 % 
1.3 %  18.0 %  16.2 %  3.7 %  2.8 %  1.8 %  2.7 %  3.8 % 
4.5 % 
4.6 % 
28.0 % 
4.3 %  9.4 % 
0.3 %  12.1 %  1.3 %  3.9 % 
1.6 %  15.4 %  10.0 %  1.2 % 
1.4 % 
0.5 % 
0.2 % 
1.7 %  0.9 %  0.7 %  1.2 %  3.8 %  6.8 %  0.0 % 
6.5 % 
2.9 % 
0.7 % 
3.1 %  19.0 %  0.1 % 
0.2 % 
0.5 %  0.4 %  0.7 %  1.5 % 
0.4 % 
0.1 % 
1.8 %  1.6 %  2.1 %  1.9 %  0.2 %  2.4 %  0.0 % 
0.1 % 
4.3 % 
0.9 % 
0.5 % 
1.0 % 
5.2 %  5.1 % 
0.3 % 
0.1 %  0.0 %  0.1 %  2.0 % 
0.0 % 
0.0 % 
0.7 %  1.7 %  16.6 %  2.3 %  0.0 %  1.0 %  1.3 % 
0.4 % 
0.2 % 
0.4 % 
0.0 % 
1.2 %  1.3 % 
0.2 % 
0.1 %  0.2 %  0.4 % 
0.0 % 
0.3 % 
0.4 %  2.0 %  1.1 %  1.2 %  0.1 %  1.1 %  0.0 % 
0.0 % 
0.8 % 
1.5 % 
0.2 % 
0.4 %  1.3 % 
0.0 % 
0.1 %  0.0 %  0.8 %  0.0 % 
0.0 % 
0.0 % 
0.0 %  0.1 %  0.1 %  0.2 %  5.1 %  0.7 %  0.0 % 
0.0 % 
0.0 %  0.7 % 
0.4 % 
0.4 % 
0.1 % 
0.4 %  0.1 %  0.0 %  0.1 % 
0.1 % 
0.0 % 
0.0 % 
0.2 %  0.2 %  0.5 %  0.5 %  0.0 %  0.4 %  0.0 % 
10.9 %  0.1 %  1.1 % 
0.5 % 
0.0 % 
0.0 % 
0.7 %  0.3 %  0.6 % 
1.4 %  1.2 %  48.8 %  1.7 %  0.3 %  1.0 %  0.5 %  0.7 %  0.5 %  0.0 % 
0.1 % 
4.8 % 
8.1 % 
1.3 % 
0.5 % 
0.1 % 
1.3 %  0.5 %  2.7 %  33.7 % 
8.2 %  2.6 %  18.7 %  18.9 %  1.4 %  1.5 %  0.9 %  2.1 %  0.9 %  1.3 %  26.9 %  17.7 %  0.1 % 
2.4 % 
1.1 % 
0.5 % 
0.0 %  0.0 %  0.0 %  0.2 % 
0.0 % 
0.1 %  0.2 %  0.0 %  0.0 %  0.0 %  2.2 %  0.0 % 
0.3 %  0.1 % 
0.1 % 
0.1 % 
0.0 % 
0.2 % 
0.2 % 
0.0 %  0.0 %  0.0 %  0.0 % 
0.0 % 
0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 %  0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 % 
0.0 %  0.3 % 
0.0 % 
0.6 %  0.1 %  0.1 %  6.8 %  24.5 %  11.1 %  0.0 % 
1.2 %  12.7 %  0.0 % 
0.1 %  0.0 %  1.0 %  0.6 %  1.0 %  0.0 %  0.0 % 
0.8 %  30.3 %  0.8 % 
3.1 % 
0.2 % 
0.7 %  0.7 %  0.6 %  1.7 % 
0.6 % 
0.1 % 
1.1 % 
3.6 %  1.1 %  1.8 %  9.8 %  0.3 %  1.0 %  3.8 % 
2.0 % 
0.7 % 
1.6 % 
0.4 %  0.5 %  0.6 %  3.2 % 
0.3 % 
0.4 % 
0.5 % 
7.5 %  2.4 %  5.6 %  3.2 %  0.5 %  22.8 %  1.3 % 
2.4 % 
0.3 % 
0.9 % 

1.1 % 
0.4 %  0.1 %  1.1 %  0.4 % 
1.7 %  27.9 %  5.0 %  3.9 %  1.1 % 
1.5 %  0.1 %  0.0 %  0.0 % 
0.0 % 
0.0 %  0.0 %  0.1 %  0.1 % 
0.0 % 
0.2 %  0.0 %  0.1 %  0.3 % 
0.0 % 
0.6 %  1.3 %  0.2 %  0.3 % 
0.9 % 
3.0 %  0.6 %  2.3 %  0.4 % 
0.1 %  0.1 %  0.1 % 
6.7 %  0.0 %  1.5 %  7.5 % 
2.2 % 

0.9 %  1.1 %  1.4 % 
0.2 %  0.6 %  0.2 %  0.1 % 
0.0 %  0.7 %  0.7 %  0.2 % 
0.7 %  0.1 %  1.9 %  0.1 % 
0.4 %  0.2 %  0.8 %  0.6 % 
0.2 %  0.4 %  0.8 %  1.4 % 
0.7 %  0.8 %  1.2 %  6.0 % 
0.0 %  0.5 %  0.0 %  0.0 % 
0.0 %  0.0 %  0.8 %  0.0 % 
5.6 %  0.0 %  0.4 %  0.5 % 
2.6 %  0.4 %  6.2 %  0.5 % 
7.9 %  2.5 %  0.6 %  0.8 % 
0.0 %  11.0 % 

0.3 % 
0.0 % 
1.3 % 
1.2 %  10.2 %  0.1 % 
0.0 % 
3.2 %  2.1 % 

0.2 %  0.0 %  0.0 %  2.3 % 
0.1 %  0.0 %  0.1 %  0.2 % 
0.1 %  0.1 %  0.1 %  1.5 % 

0.5 % 
0.1 % 
0.7 % 
0.8 % 
0.9 % 
0.3 % 
1.1 % 
0.0 % 
0.0 % 
0.2 % 
0.9 % 
0.8 % 

0.1 % 
0.0 % 
0.0 % 
0.1 % 
0.8 % 
0.0 % 
0.0 % 
0.4 % 
0.5 % 
1.0 % 

0.9 %  8.9 %  1.3 % 
0.0 %  0.5 %  7.5 % 

0.1 % 

0.0 % 

0.1 % 
1.1 % 
0.0 % 
0.0 % 
0.1 % 

0.1 % 
0.3 % 
2.9 % 

0.0 % 
0.2 % 
0.1 % 

2.5 % 
0.6 % 

0.1 % 
0.0 % 

0.0 % 
7.8 % 

0.0 % 

CH  UK TCA  UK WA  UK 

5.0 % 
0.5 % 
0.6 % 
1.3 % 

Total 
5.0 %  7.9 % 
5.1 % 
0.3 %  0.3 % 
0.2 % 
0.6 %  2.5 % 
0.6 % 
1.6 % 
1.5 %  1.4 % 
12.6 %  10.8 %  11.9 %  19.5 % 
0.1 %  0.1 % 
0.1 % 
0.3 % 
1.6 %  0.3 % 
0.5 % 
3.5 % 
2.8 % 
5.9 % 
4.7 %  0.6 % 
16.0 % 
9.9 %  13.8 %  4.0 % 
21.9 %  17.6 %  20.3 %  14.0 % 
0.1 % 
0.9 % 
0.6 %  0.6 % 
9.3 %  10.3 %  4.9 % 
10.8 % 
1.0 %  0.1 % 
1.0 % 
1.0 % 
0.1 %  0.1 % 
0.1 % 
0.1 % 
0.1 %  0.2 % 
0.3 % 
0.0 % 
0.5 %  2.0 % 
0.4 % 
0.7 % 
1.6 %  1.7 % 
1.6 % 
1.6 % 
0.1 %  0.1 % 
0.2 % 
0.0 % 
9.2 %  7.0 % 
9.1 % 
9.2 % 
1.7 %  10.0 % 
1.3 % 
1.9 % 
2.1 %  2.6 % 
3.4 % 
1.3 % 
1.3 %  1.6 % 
2.0 % 
0.9 % 
0.6 %  0.8 % 
0.8 % 
0.5 % 
0.1 %  0.6 % 
0.1 % 
0.1 % 
0.1 %  0.7 % 
0.0 % 
0.1 % 
2.0 %  1.1 % 
1.5 % 
2.2 % 
3.9 %  2.6 % 
3.2 % 
4.3 % 
0.0 %  1.7 % 
0.1 % 
0.0 % 
0.0 % 
0.0 % 
0.0 %  0.0 % 
10.3 %  3.8 %  0.1 % 
0.0 % 
1.1 %  1.0 % 
3.1 % 
0.0 % 
6.9 % 
2.7 % 
100 %  100 %  100 % 

100 % 

100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 %  100 % 

100 % 
100 % 
EL: data 2018.  
IT, LT, SI, and SK reported 164 PDs A1, 27 PDs A1, 38 PDs A1, and 20 PDs A1 respectively for which they were both the issuing and receiving Member State.   
 Administrative data PD A1 Questionnaire 2022 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table A3 - PDs A1 issued by the sending Member States according to Article 12 of 
the Basic Regulation, from a sending perspective, breakdown by sector of activity, 
2021  

Industry NACE B to F 

of which 

Sending 
MS 

Agriculture, 
hunting 
and fishing 
NACE A 

Industry  
Total 

Services 
Total 

Construction 
NACE F 

Wholesale 
and retail 
trade 
NACE G 

Accommodat
ion and food 
service 
activities 
NACE I 

Transportation 
and storage; 
Information and 
communication 
NACE H and J 

502 

23 221 

15 714 

38 352 

3 139 

299 

3 356 

55 

5 163 

3 180 

2 115 

337 

20 

127 

Services NACE G to T 
of which 

road                          

of which 

Freight 
transport by 

NACE H - Group 
49.4 

536 

14 

Financial and 
insurance; Real 
estate; Professional, 
scientific and 
technical activities; 
Administrative and 
support service 
activities NACE K, L, 
M, and N 
20 928 

of which 

Temporary 
employment 

agency                   
NACE N - 
Group 78.2 

of which 

Human health 
and social work 
activities NACE 
Q 

Education, 
health and 
social work, 
arts and 
other 
services 
NACE P, Q, R, 
and S 

12 998 

11 952 

168 

1 604 

0 

0 

0 

3 500 
160 

402 762 
4 346 

64 813 
3 155 

372 909 
1 384 

46 208 
89 

3 766 
19 

52 329 
87 

26 812 
18 

151 050 
830 

10 847 
39 

120 796 
355 

7 979 
153 

56 
27 

0 
22 
158 
32 

<5 

103 
6 556 
92 
71 
153 
930 
43 
10 
11 
0 

52 513 
46 599 

11 783 
24 986 

43 549 
7 937 

17 
2 229 
16 351 
32 830 

<5 
1 708 
13 021 
22 889 

62 
1 897 
16 275 
20 756 

4 168 
1 587 

24 
248 
116 
2 589 

614 
412 

5 
5 
10 549 
55 

80 

77 

452 

0 

18 413 
147 672 
49 409 
25 682 
72 648 
65 474 
1 932 
683 
7 
97 

10 647 
104 308 
34 635 
16 827 
41 785 
41 209 
551 
263 
6 
12 

5 146 
69 065 
7 942 
5 455 
348 
12 059 
1 395 
615 
84 
249 

294 
1 993 
618 
252 
185 
395 
30 
81 
0 
0 

33 

39 
272 
30 
168 
68 
23 
5 
<5 
0 
0 

5 721 
1 310 

5 
257 
859 
903 

96 

67 
2 636 
347 
426 
34 
1 561 
247 
66 
<5 
0 

692 
173 

0 
36 
287 
144 

0 

0 
3 004 
46 
0 
n.a. 
7 
121 
<5 
0 
<5 

18 181 
3 915 

24 
1 359 
4 291 
16 385 

2 502 
1 926 

0 
38 
0 
9 551 

253 

0 

136 
17 430 
6 853 
3 383 
27 
634 
291 
307 
18 
249 

0 
12 449 
5 903 
0 
n.a. 
0 
39 
30 
0 
245 

14 865 
713 

<5 
26 
457 
711 

70 

4 030 
45 672 
94 
1 226 
34 
9 446 
826 
155 
63 
0 

161 
269 

0 
<5 
0 
132 

0 

0 
17 953 
9 
0 
10 
3 335 
22 
8 
0 
0 

12 483 

968 128 

411 573 

608 046 

62 353 

8 983 

565 366 

346 760 

235 137 

16 145 

16 386 

12 620 

70 437 

18 108 

31 897 

5 085 

248 148 

97 098 

56 567 

211 493 

45 720 

90 697 

30 200 

22 221 

FR: breakdown for 96 118 PDs A1 forms (97 % of total); AT: unknown sector for 13 707 PDs A1; SI: 
unknown sector for 27 665 PDs A1. 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR* 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT* 
PL 
PT 
RO 
SI* 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
Total 
(excl. DE) 
*  

Source:   Administrative data PD A1 Questionnaire 2022 

55 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Table A4 - PDs A1 issued according to Article 12 of the Basic Regulation, from a 
receiving perspective, breakdown by sector of activity, 2021 

Services NACE G to T 
of which 

of which 

Freight 
transport 
by road                          
NACE H - 
Group 
49.4 

Financial and 
insurance; Real estate; 
Professional, scientific 
and technical 
activities; 
Administrative and 
support service 
activities NACE K, L, 
M, and N 
21 718 
595 
6 295 
10 752 
18 184 
415 
1 095 
1 850 
11 903 
36 938 
1 682 
14 749 
191 
261 
1 208 
6 075 
4 152 
364 
33 131 
26 662 
7 631 
2 520 
2 240 
1 322 
1 792 
3 467 
4 687 
5 472 
121 
277 
2 092 
18 062 
247 767 

of which 

Temporary 
employment 

agency                   
NACE N - 
Group 78.2 

Education, 
health and 
social work, 
arts and 
other 
services 
NACE P, Q, 
R, and S 

6 413 
50 
1 152 
268 
8 465 
14 
109 
88 
724 
16 010 
58 
730 
<5 
13 
15 
1 181 
204 
15 
15 901 
2 729 
363 
115 
111 
357 
83 
132 
363 
373 
16 
13 
72 
426 
56 567 

12 446 
674 
6 125 
4 613 
45 681 
335 
502 
1 944 
9 944 
24 112 
1 056 
12 058 
338 
472 
604 
3 568 
3 609 
475 
15 040 
24 575 
5 094 
3 752 
1 797 
1 932 
1 002 
1 792 
4 356 
3 478 
290 
986 
1 321 
17 511 
207 470 

of which 

Human 
health and 
social work 
activities 
NACE Q 

362 
144 
289 
241 
20 713 
19 
35 
129 
498 
1 043 
82 
743 
17 
9 
11 
155 
100 
35 
1 444 
2 304 
317 
51 
37 
30 
35 
56 
96 
172 
11 
6 
61 
955 
30 200 

Industry NACE B to F 

of which 

Receiving 
MS 

Agriculture, 
hunting and 
fishing 
NACE A 

Industry  
Total 

Construction 
NACE F 

Services 
Total 

Wholesale 
and retail 
trade 
NACE G 

Accommodation 
and food 
service activities 
NACE I 

Transportation 
and storage; 
Information 
and 
communication 
NACE H and J 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT 
PL 
PT 
RO 
SI 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
Source:  Administrative data PD A1 Questionnaire 2022 

54 852 
378 
5 541 
4 100 
151 146 
168 
440 
255 
7 783 
47 125 
2 931 
6 108 
33 
296 
586 
14 496 
2 548 
55 
24 549 
36 923 
2 764 
326 
592 
2 116 
876 
5 605 
21 006 
3 050 
161 
371 
3 250 
11 115 
400 952 

101 866 
2 490 
29 944 
11 718 
242 116 
910 
2 067 
1 895 
32 398 
106 603 
4 916 
45 734 
205 
830 
1 866 
23 331 
20 520 
377 
59 894 
100 263 
26 997 
5 203 
7 608 
5 878 
7 155 
12 674 
35 768 
12 520 
339 
908 
7 771 
55 324 
949 753 

43 196 
1 750 
16 192 
18 854 
79 445 
912 
1 910 
4 872 
28 664 
77 696 
4 223 
35 506 
612 
1 004 
2 084 
14 371 
9 545 
988 
63 955 
77 198 
17 399 
7 731 
4 986 
3 897 
4 099 
6 540 
12 343 
11 034 
501 
1 487 
6 248 
48 549 
602 664 

3 701 
202 
1 963 
1 627 
3 878 
58 
139 
293 
3 064 
6 676 
344 
4 584 
20 
84 
129 
2 616 
720 
60 
6 098 
12 291 
2 439 
556 
463 
307 
770 
427 
925 
769 
16 
126 
214 
6 794 
62 061 

258 
<5 
219 
375 
4 246 
<5 
<5 
<5 
662 
968 
12 
264 
<5 
7 
9 
165 
93 
0 
3 523 
822 
179 
22 
29 
<5 
49 
187 
106 
35 
0 
<5 
28 
206 
12 380 

530 
24 
49 
222 
6 203 
5 
21 
196 
574 
844 
94 
534 
38 
24 
6 
148 
57 
17 
1 453 
1 257 
34 
140 
<5 
16 
15 
465 
1 176 
156 
0 
5 
1 735 
345 
16 347 

4 725 
252 
1 761 
1 665 
4 879 
102 
160 
596 
3 216 
9 838 
566 
3 719 
26 
93 
139 
2 218 
1 042 
79 
8 391 
12 610 
2 221 
783 
496 
320 
519 
401 
1 211 
1 244 
72 
96 
895 
6 102 
70 370 

2 329 
28 
659 
1 003 
2 752 
36 
41 
39 
615 
5 339 
77 
916 
<5 
40 
42 
1 191 
206 
7 
5 837 
6 595 
584 
52 
120 
79 
128 
80 
426 
458 
<5 
34 
154 
2 028 
31 897 

56 

 
 
 
Posting of workers 

Table A5 - Total number of PDs A1 issued for persons active in two or more 
Member States, breakdown by economic activity, from a sending perspective, 2021 

Industry NACE B to F 

of which 

Services NACE G to T 
of which 

Sending 
MS 

Agriculture, 
hunting and 
fishing 
NACE A 

Industry  
Total 

Construction 
NACE F 

Services 
Total 

Wholesale 
and retail 
trade 
NACE G 

Accommodation 
and food service 
activities 
NACE I 

Transportation 
and storage; 
Information 
and 
communication 
NACE H and J 

356 

18 004 

7 974 

36 616  4 902 

74 

20 105 

of which 

Financial and 
insurance; 
Real estate; 
Professional, 
Freight 
scientific and 
transport 
technical 
by road                          
activities; 
NACE H - 
Administrative 
Group 
and support 
49.4 
service 
activities NACE 
K, L, M, and N 
11 771 

13 999 

of which 

of which 

Temporary 
employment 

agency                   
NACE N - 
Group 78.2 

Education, 
health and 
social 
work, arts 
and other 
services 
NACE P, Q, 
R, and S 

Human 
health and 
social 
work 
activities 
NACE Q 

5 524 

4 417 

256 

BE 
BG 
CZ 
DK 
DE 
EE 
IE 
EL 
ES 
FR 
HR 
IT 
CY 
LV 
LT 
LU 
HU 
MT 
NL 
AT* 
PL 
PT 
RO 
SI* 
SK 
FI 
SE 
IS 
LI 
NO 
CH 
UK 
Total 
*  

818 

11 922 

8 133 

2 200 

73 

24 

1 220 

1 100 

650 

194 

232 

119 

0 
163 

98 
9 142 

18 
3 858 

147 
15 873 

14 
706 

1 070 
6 978 
14 247 
1 732 

150 
5 197 
13 639 
983 

78 
484 
126 

14 

1 251 
10 065  1 153 
62 442 
5 976 

36 
368 

<5 

0 

0 

729 

0 

32 

1 583 
2 086 
2 198  121 753  99 418  320 064  6 539 

9 428 

7 517 

121 
21 
11 
28 

37 903 
5 579 
2 560 
2 149 

308 
4 207 
622 
604 

23 283 
21 980 
1 390 
2 187 

52 
144 
55 
462 

0 

730 

58 

1 877 

5 

9 
27 

237 
28 
5 161 
30 

35 

39 
602 

7 
22 
<5 
8 

21 

74 
13 146 

64 
10 595 

38 
881 

929 
6 907 
44 294 
4 942 

101 
6 479 
44 292 
3 618 

65 
1 765 
242 
545 

13 

674 

7 

5 
445 

35 
252 

<5 

0 

12 
1 113 

6 
272 

6 
208 
12 709 
75 

0 

9 

19 

0 

1 833 

0 

225 288  224 329 

334 
11 432 

0 
8 257 

5 637 
75 632  56 836 

0 

23 224 
14 549 
593 
209 

n.a. 
14 463 
548 
46 

0 
202 
307 
645 

n.a. 
<5 
15 
33 

0 
7 063 
431 
845 

0 
69 
44 
502 

1 481 

1 185 

266 

27 

104 

4 437  241 384  147 255  515 508  16 106 
14 789  108 484  58 132 
AT: the sum of the three categories (Agriculture, Industry, and Services) (16 977) does not equal the 
total reported (58 649) as 41 672 of PDs A1 were issued in an unknown category.  
SI reported 4 537 PDs A1 for other (unknown) sector. However, they are not included in the total, so 
the sum of the relative distribution in Table 16 in section 4.3 does amount to 100 %.  

358 807  321 493 

29 150 

6 325 

Source:  Administrative data PD A1 Questionnaire 2022 

57 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Posting of workers 

Annex II  Additional visualisations 

Figure A1 - Number of PDs A1 issued, relative share in total number of PDs A1 issued, 2021 

*  

EL : data 2018.  

58 

 
Posting of workers 

Figure A2 - Number of PDs A1 issued under Article 12, relative share in number of PDs A1 issued under Article 12, 2021 

*  

EL: data 2018.  

59 

 
Posting of workers 

Figure A3 - Number of PDs A1 issued under Article 13, relative share in number of PDs A1 issued under Article 13, 2021 

*  

EL: data 2018.  

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Figure A4 - Total number of PDs A1 issued under Article 12, 2021 

. 
*  CH should have also been included as one of the top issuing Member States, as it issued 55 049 PDs A1 under Article 12 in 2021, placing it on the tenth place (before HR). However, a breakdown by receiving Member 

State could not be provided by CH. Therefore, as an issuing Member States, this Member State is excluded from this visual representation.   

**  On the left side the top 10 exporting Member States are shown (DE, PL, IT, ES, SI, FR, SK, BE, PT, and HR). Together, they issued 84.5 % of all PDs A1 under Article 12. On the right side the top 10 receiving Member 
States are shown (DE, FR, AT, BE, NL, CH, IT, ES, SE, and PL). Together they received 79.6 % of all PDs A1 issued under Article 12. The other Member States are included under ‘Rest category issuing MS’ and 
‘Rest category receiving MS’ respectively. The total number of PDs A1 issued under Article 12 which are captured in this figure between the top 10 issuing and top 10 receiving Member State account for 69.6 % of all 
PDs A1 issued under Article 12.  

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Figure A5 - Top 10 flows of PDs A1 issued under Article 12, 2021 

*  The  top 10 flows which  are visualised  are the  following:  1)  from Germany  to Austria (166 004  PDs  A1); 2)  from  Poland  to 
Germany (125 380); 3) from Germany to France (100 591); 4) from Germany to Switzerland (89 012); 5) from Germany to 
the Netherlands (82 425); 6) from Germany to Italy (68 713); 7) from Slovenia to Germany (62 554); 8) from Italy to France 
(52 005); 9) from Slovakia to Germany (45 066); and 10) from Germany to Poland (44 899). In total these 10 flows amount to 
836 649 issued PDs A1 under Article 12 out of the total of 2 199 020 PDs A1 issued under Article 12, 38.0 % of all issued PDs A1 
under Article 12. 

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Annex III  

PD A1 Questionnaire 

63 

Number of PD A1 issued Number of PD A1 issued according to Regulation (EC) No 883/2004 on the coordination of social security systems3.3 Posted self-employed person3.5 Civil servantCategories (corresponding to field 3 of PDA1 concerning the status of the holder)3.1 Posted employed person Total3.2 Employed, working in two or more States3.4 Self-employed, working in two or more States3.6 Contract staff3.7 Mariner3.11 Exception3.8 Working as an employed person and as a self-employed person in different States3.9 Working as a civil servant in one State and as an employed/self-employed person in one or more other States3.10 Flight or cabin crew member3.12 Working as an employed / self-employed person in only one Member Stateof whichof whichof whichConstructionNACE FFreight transport by road                          NACE H - Group 49.4Temporary employment agency                   NACE N - Group 78.2Human health and social work activities NACE QReceiving country (single destination only)BelgiumBulgariaCzech RepublicDenmarkGermanyEstoniaIrelandGreeceSpainFranceCroatia ItalyCyprusLatviaLithuaniaLuxembourgHungaryMaltaNetherlandsAustriaPolandPortugalRomaniaSloveniaSlovak RepublicFinlandSwedenUnited KingdomIcelandLiechtensteinNorwaySwitzerlandTotal postings000000000000000Employed      Art 12 (1) [box 3.1 of PDA1]Self-employed Art 12 (2)[box 3.3 of PDA1]of whichNumber of PD A1 issued by sector of economic activity according to Art. 12 of Regulation (EC) No 883/2004 on the coordination of social security systems: Avarage duration in days of all PD A1 issued (of total)Total Sectors of economic activity (of total)Agriculture, hunting and fishingNACE AIndustry NACE B to FServices NACE G to TIndustry TotalEducation, health and social work, arts and other servicesNACE P, Q, R and SFinancial and insurance; Real estate; Professional, scientific and technical activities; Administrative and support service activities NACE K,L, M and NWholesale and retail tradeNACE GServicesTotalof whichNumber of 'unique' persons who received a PD A1 (of total)Accomodation and food service activitiesNACE ITransportation and storage; Information and communicationNACE H and Jof whichof whichof whichConstructionNACE FFreight transport by road                          NACE H - Group 49.4Temporary employment agency                   NACE N - Group 78.2Human health and social work activities NACE QEmployed, working in two or more States (box 3.2 of PD A1)Self-employed, working in two or more States (box 3.4 of PDA1)Working as an employed person and as a self-employed person in different States (box 3.8 of PDA1)Total number of PD A1 issued according to Art. 13 (boxes 3.2 + 3.4 + 3.8)0Number of PD A1 issued by sector of economic activity according to Art. 13 of Regulation (EC) No 883/2004 on the coordination of social security systems: Avarage duration in days of all PD A1 issued (of total)Agriculture, hunting and fishingNACE AIndustry NACE B to FServices NACE G to TIndustry Totalof whichServicesTotalof whichWholesale and retail tradeNACE GAccomodation and food service activitiesNACE ITransportation and storage; Information and communicationNACE H and JFinancial and insurance; Real estate; Professional, scientific and technical activities; Administrative and support service activities NACE K,L, M and NEducation, health and social work, arts and other servicesNACE P, Q, R and S¨Please leave this space emptyTotal Sectors of economic activity (of total)Number of 'unique' persons who received a PD A1 (of total) 
 
 
 
 
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Annex IV 

Portable Document A1  

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