Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States
Date: 2023-05-24
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: EU Member State, EU employment policy, equal treatment, job creation, labour market, marginalisation, social dialogue, social integration, working conditions

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   EUROPEAN COMMISSION  Brussels, 24.5.2023  COM(2023) 599 final 2023/0173 (NLE)  Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States  
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

Pursuant  to  the  Treaty  on  the  Functioning  of  the  European  Union,  Member  States  are  to 
regard their economic policies and promoting employment  as a matter of common concern 
and  shall  coordinate  their  action  within  the  Council.  The  Council  is  to  adopt  employment 
guidelines  (Article  148),  specifying  that  they  must  be  consistent  with  the  broad  economic 
policy guidelines (Article 121).  

Whilst  the  broad  economic  policy  guidelines  remain  valid  for  any  duration  of  time,  the 
employment  guidelines  need  to  be  drawn  up  each  year.  The  guidelines  were  first  adopted 
together  (‘integrated  package’)  in  2010,  underpinning  the  Europe  2020  strategy.  The 
integrated guidelines remained stable until 2014. Revised integrated guidelines were adopted 
in 2015. In 2018 the employment guidelines were aligned with the principles of the European 
Pillar  of  Social  Rights  proclaimed  in  November  2017  by  the  European  Parliament,  the 
Council and the Commission, with a view to drive reforms at national level and to serve as a 
compass  for  a  renewed  process  of  upward  convergence  across  Europe  towards  better 
working and living conditions, and remained unchanged in 2019. In 2020, they were aligned 
to  integrate  elements  related  to  the  consequences  of  the  COVID-19  crisis,  the  green  and 
digital  transitions,  and  the  UN  Sustainable  Development  Goals.  In  2021  they  were  carried 
over, while adjusting the recitals to reflect the outcomes of the Porto Social Summit and the 
European Pillar of Social Rights Action Plan. In 2022, the guidelines were amended to align 
the text by retargeting of the narrative to the post-COVID 19 environment, bringing in more 
elements  related  to  fairness  in  the  green  transition,  reflecting  recent  policy  initiatives  and 
adding  policy  elements  of  particular  relevance  in  the  context  of  the  Russian  invasion  of 
Ukraine. In 2023, they are again carried over, while adjusting the recitals to reflect the new 
EU headline and national targets on jobs, skills and poverty reduction and recent initiatives. 

Along with the broad economic policy guidelines, the employment guidelines are presented 
as a Council Decision on guidelines for the employment policies of the Member States (Part 
II of the Integrated Guidelines) and provide the basis for country specific recommendations 
in the respective domains.  

The revised "Employment Guidelines" are the following:  

Guideline 5: Boosting the demand for labour  

Guideline  6:  Enhancing  labour  supply  and  improving  access  to  employment,  lifelong 
acquisition of skills and competences   

Guideline  7:  Enhancing  the  functioning  of  labour  markets  and  the  effectiveness  of  social 
dialogue  

Guideline  8:  Promoting  equal  opportunities  for  all,  fostering  social  inclusion  and  fighting 
poverty  

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2023/0173 (NLE) 

Proposal for a 

COUNCIL DECISION 

on guidelines for the employment policies of the Member States 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 148(2) thereof, 

Having regard to the proposal from the European Commission, 
Having regard to the opinion of the European Parliament (1), 
Having regard to the opinion of the European Economic and Social Committee (2), 

After consulting the Committee of the Regions, 
Having regard to the opinion of the Employment Committee (3) 

Whereas: 

(1)  Member States and the Union are to work towards developing a coordinated strategy 
for  employment  and  particularly  for  promoting  a  skilled,  trained  and  adaptable 
workforce,  as  well  as  labour  markets  that  are  future-oriented  and  responsive  to 
economic  change,  with  a  view  to  achieving  the  objectives  of  full  employment  and 
social  progress,  balanced  growth,  a  high  level  of  protection  and  improvement  of  the 
quality  of  the  environment  laid  down  in  Article  3  of  the  Treaty  on  European  Union 
(TEU).  Member  States  are  to  regard  promoting  employment  as  a  matter  of  common 
concern  and  are  to  coordinate  their  action  in  that  respect  within  the  Council,  taking 
into  account  national  practices  related  to  the  responsibilities  of  management  and 
labour.  

(2) 

(3) 

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The Union is to combat social exclusion and discrimination, and promote social justice 
and protection, equality between women and men, solidarity between generations and 
the protection of the rights of the child as laid down in Article 3 TEU. In defining and 
implementing its policies and activities, the Union is to take into account requirements 
linked  to  the  promotion  of  a  high  level  of  employment,  the  guarantee  of  adequate 
social  protection,  the  fight  against  poverty  and  social  exclusion,  a  high  level  of 
education and training and protection of human health as laid down in Article 9 of the 
Treaty on the Functioning of the European Union (TFEU). 

In  accordance  with  the  TFEU,  the  Union  has  developed  and  implemented  policy 
coordination  instruments  for  economic  and  employment  policies.  As  part  of  those 
instruments,  the  guidelines  for  the  employment  policies  of  the  Member  States  (the 
‘Guidelines’) set out in the Annex to Decision (EU) 2022/2296 (4), together with the 

Opinion of PM DATE 2023 (not yet published in the Official Journal). 
Opinion of PM DATE 2023 (not yet published in the Official Journal). 
Opinion of PM DATE 2023 (not yet published in the Official Journal). 
Council Decision (EU) 2022/2296 of 21 November 2022 on  guidelines for the employment policies of 
the Member States (OJ L 304, 24.11.2022, p. 67). 

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broad guidelines for the economic policies of the Member States and of the Union set 
out in Council Recommendation (EU) 2015/1184 (5), form the Integrated Guidelines. 
They  are  to  guide  policy  implementation  in  the  Member  States  and  in  the  Union, 
reflecting  the  interdependence  between  the  Member  States.  The  resulting  set  of 
coordinated  European  and  national  policies  and  reforms  are  to  constitute  an 
appropriate  overall  sustainable  economic,  employment  and  social  policy  mix,  which 
should achieve positive spill-over effects for labour markets and society at large, and 
effectively respond to medium- and longer-term  challenges as well as the impacts of 
crises such as the COVID-19 pandemic and more recently Russia’s war of aggression 
against Ukraine and the rising cost of living. 

In  order  to  enhance  economic  and  social  progress,  support  the  green  and  digital 
transitions, strengthen the EU industrial base, and achieve inclusive, competitive and 
resilient labour markets in the Union, Member States should address labour and skills 
shortages  and  promote  quality  education, 
training,  future-oriented  vocational 
education  and  training,  and  life-long  upskilling  and  reskilling,  as  well  as  effective 
active labour market policies and improved career opportunities by strengthening the 
links  between  the  education  system  and  the  labour  market  and  recognising  skills, 
knowledge and competences acquired through non-formal and informal learning. 

The  Guidelines  are  consistent  with  the  Stability  and  Growth  Pact,  existing  Union 
legislation  and  various  Union  initiatives,  including  Council  Recommendations  of 
14 June  2021  (6),  29  November  2021  (7),  5th  April  2022  (8),  16  June  2022  (9), 
28 November  2022  (10),  8  December  2022  (11)  and  of  30  January  2023  (12), 
Commission  Recommendation  of  4  March  2021  (13),  Council  Resolution  of 
26 February  2021  (14),  Commission  Communications  on  building  an  economy  that 
works for people: an action plan for the social economy (15), on the Digital Education 

Council  Recommendation  (EU) 2015/1184  of 14 July 2015  on  broad  guidelines  for  the  economic 
policies of the Member States and of the European Union (OJ L 192, 18.7.2015, p. 27). 
Council  Recommendation  of 14 June 2021  establishing  a  European  Child  Guarantee  (OJ  L 223, 
22.6.2021, p. 14). 
Council Recommendation of 29 November 2021 on blended learning approaches for high-quality and 
inclusive primary and secondary education (OJ C 504, 14.12.2021, p. 21). 
Council Recommendation of 5 April 2022 on building bridges for effective European higher education 
cooperation (OJ C 160, 13.4.2022, p.1).) 
Council  Recommendation  of  16  June  2022  on  a  European  approach  to  micro-credentials  for  lifelong 
learning and employability (OJ C 243, 27.6.2022, p. 10), Council Recommendation of 16 June 2022 on 
individual learning accounts (OJ C 243, 27.6.2022, p. 26), Council Recommendation of 16 June 2022 
on  ensuring  a  fair  transition  towards  climate  neutrality  (OJ  C  243,  27.6.2022,  p.  35)  and  Council 
Recommendation of 16 June 2022 on learning for the green transition and sustainable development (OJ 
C 243, 27.6.2022, p. 1). 
Council  Recommendation  of  28  November  2022  on  Pathways  to  School  Success  and  replacing  the 
Council  Recommendation  of  28  June  2011  on  policies  to  reduce  early  school  leaving  (OJ  C  469, 
9.12.2022, p. 1). 
Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care (OJ 
C  476,  15.12.2022,  p.  1)  and  Council  Recommendation  of  8  December  2022  on  early  childhood 
education and care: the Barcelona targets for 2030 (OJ C 484, 20.12.2022, p. 1).  
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion 
(OJ C 41, 3.2.2023, p.1). 
Commission  Recommendation  (EU) 2021/402  of 4 March 2021  on  an  effective  active  support  to 
employment following the COVID-19 crisis (EASE) (OJ L 80, 8.3.2021, p. 1). 
Council  Resolution  on  a  strategic  framework  for  European  cooperation  in  education  and  training 
towards the European Education Area and beyond (2021-2030) (OJ C 66, 26.2.2021, p. 1). 
COM(2021) 778 final.  

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Action Plan 2021-2027 (16) on the Strategy for the Rights of Persons with Disabilities 
2021-2030  (17),  on  the  Disability  Employment  Package  (18),  on  a  European  Care 
Strategy  (19),  on  A  Green  Deal  Industrial  Plan  for  the  Net-Zero  Age  (20),  on 
strengthening  social  dialogue  in  the  European  Union  (21),  on  Better  assessing  the 
distributional impact of Member States’ policies (22), Decision (EU) 2021/2316 of the 
European  Parliament  and  of  the  Council  (23),  Directives  of  the  European  Parliament 
and  of  the  Council  of  19  October  2022  (24),  of  23  November  2022  (25),  and  of  May 
2023 (26), Decision of the European Parliament and the Council on a European Year of 
Skills  2023  (27),  Commission  Communication  and  the  proposal  for  a  Council 
Recommendation  on  social  economy  framework  conditions  (28)  and  Commission 
proposals on the Economic Governance Review of April 26th 2023. 

The  European  Semester  combines  the  different  instruments  in  an  overarching 
framework  for  integrated  multilateral  coordination  and  surveillance  of  economic  and 
employment  policies  within  the  Union.  While  pursuing  environmental  sustainability, 
productivity, fairness and macroeconomic stability, the European Semester integrates 
the  principles  of  the  European  Pillar  of  Social  Rights  and  of  its  monitoring  tool,  the 
Social  Scoreboard,  and  provides  for  strong  engagement  with  social  partners,  civil 
society  and  other  stakeholders.  It  supports 
the  Sustainable 
Development  Goals.  The  Union’s  and  Member  States’  economic  and  employment 
policies  should  go  hand  in  hand  with  Europe’s  fair  transition  to  a  climate  neutral, 
environmentally  sustainable  and  digital  economy,  improve  competitiveness,  ensure 
adequate  working  conditions,  foster  innovation,  promote  social  justice  and  equal 
opportunities  and upward socio-economic convergence, as well as tackle inequalities 
and regional disparities. 

the  delivery  of 

transition,  a 

further  shift 

towards  energy 

Climate  change  and  other  environment-related  challenges,  the  need  to  ensure  a  fair 
green 
independence,  enhanced 
competitiveness of net-zero industries and the need to secure Europe’s open strategic 
autonomy,  as well as digitalisation, artificial intelligence, an increase in  teleworking, 
the  platform  economy  and  demographic  change,  are  deeply  transforming  European 
economies  and  societies.  The  Union  and  its  Member  States  are  to  work  together  to 
effectively  and  proactively  address  those  structural  developments  and  adapt  existing 
systems  as  needed,  recognising  the  close  interdependence  of  the  Member  States’ 

COM(2020) 624 final 
COM(2021) 101 final.  
Disability  Employment  Package  to  improve  labour  market  outcomes  for  persons  with  disabilities  - 
Employment, Social Affairs & Inclusion - European Commission (europa.eu) 
COM(2022) 440 final. 
COM(2023) 62 final. 
COM(2023) 38 and 40 final.  
COM(2022) 494 final. 
Decision  (EU)  2021/2316  of the  European  Parliament  and  of  the  Council  of  22  December  2021  on a 
European Year of Youth (2022) (OJ L 462, 28.12.2021, p. 1). 
Directive  (EU)  2022/2041  of  the  European  Parliament  and  of  the  Council  of  19  October  2022  on 
adequate minimum wages in the European Union (OJ L 275, 25.10.2022, p. 33). 
Directive  of  the  European  Parliament  and  of  the  Council  (EU)  2022/2381  of  23  November  2022  on 
improving  the  gender  balance  among  directors  of  listed  companies  and  related  measures  (OJ  L  315, 
7.12.2022, p. 44). 
Directive  of  the  European  Parliament  and  of  the  Council  [(EU)  2023/……  of  ….]  to  strengthen  the 
application of the principle of equal pay for equal work or work of equal value.  
Decision (EU) 2023/936 of the European Parliament and of the Council of 10 May 2023 on a European 
Year of Skills (OJ L 125, 11.5.2023, p. 1) 
… 

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economies  and  labour  markets,  and  related  policies.  This  requires  coordinated, 
ambitious  and  effective  policy  action  at  both  Union  and  national  levels  while 
recognising the role of social partners, in accordance with the TFEU and the Union’s 
provisions on economic governance, taking into account the European Pillar of Social 
Rights.  Such  policy  action  should  encompass  a  boost  in  sustainable  investment,  a 
renewed commitment to appropriately sequenced reforms that enhance sustainable and 
inclusive  economic  growth,  the  creation  of  quality  jobs,  productivity,  adequate 
working  conditions,  social  and 
territorial  cohesion,  upward  socio-economic 
convergence,  resilience  and  the  exercise  of  fiscal  responsibility.  As  shown  in  the 
Council  Recommendation  of  16  June  2022  on  learning  for  the  green  transition  and 
sustainable  development, 
training  dimension 
systematically  into  other  policies  related  to  the  green  transition  and  sustainable 
development  in  a  lifelong  perspective  can  support  the  implementation  of  those 
policies.  Support should be provided from existing Union funding programmes,  and 
in 
by 
Regulation (EU) 2021/241 of the European Parliament and of the Council (29) and the 
cohesion  policy  funds,  including  the  European  Social  Fund  Plus  established  by 
Regulation (EU) 2021/1057 of the European Parliament and of the Council (30) and the 
European Regional Development Fund governed by Regulation (EU) 2021/1058 of the 
European  Parliament  and  of  the  Council  (31),  as  well  as  the  Just  Transition  Fund 
established  by  Regulation  (EU)  2021/1056  of  the  European  Parliament  and  of  the 
Council (32). Policy action should combine supply- and demand-side measures, while 
taking into account their economic, environmental, employment and social impacts. 

the  education  and 

and  Resilience 

the  Recovery 

established 

integrating 

particular 

Facility 

(8) 

The  European  Pillar  of  Social  Rights,  proclaimed  by  the  European  Parliament,  the 
Council  and  the  Commission  in  November  2017  (33),  sets  out  twenty  principles  and 
rights  to  support  well-functioning  and  fair  labour  markets  and  welfare  systems, 
structured  around  three  categories:  equal  opportunities  and  access  to  the  labour 
market,  fair  working  conditions,  and  social  protection  and  inclusion.  The  principles 
and  rights  give  strategic  direction  to  the  Union,  making  sure  that  the  transitions  to 
climate-neutrality  and  environmental  sustainability,  digitalisation  and  demographic 
change are socially fair and just and preserve territorial cohesion. The European Pillar 
of  Social  Rights,  with  its  accompanying  Social  Scoreboard,  constitutes  a  reference 
framework to  monitor the employment and social  performance of Member States, to 
drive reforms and investments at national, regional and local level and to reconcile the 
‘social’  and  the  ‘market’  in  today’s  modern  economy,  including  by  promoting  the 
social  economy.  On  4  March  2021,  the  Commission  put  forward  an  Action  Plan  for 
the  implementation  of  the  European  Pillar  of  Social  Rights  (the  ‘Action  Plan’), 
including  ambitious  yet  realistic  EU  headline  targets  on  employment,  skills  and 
poverty  reduction  and  complementary  sub-targets  for  2030,  as  well  as  the  revised 
Social Scoreboard. 

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Regulation  (EU)  2021/241  of  the  European  Parliament  and  of  the  Council  of  12  February  2021 
establishing the Recovery and Resilience Facility (OJ L 57, 18.2.2021, p. 17). 
Regulation (EU) 2021/1057 of the European Parliament and of the Council of 24 June 2021 establishing 
the  European  Social  Fund  Plus  (ESF+)  and  repealing  Regulation  (EU)  No 1296/2013  (OJ  L 231, 
30.6.2021, p. 21). 
Regulation  (EU)  2021/1058  of  the  European  Parliament  and  of  the  Council  of  24  June  2021  on  the 
European Regional Development Fund and on the Cohesion Fund (OJ L 231 30.6.2021, p. 60). 
Regulation (EU) 2021/1056 of the European Parliament and of the Council of 24 June 2021 establishing 
the Just Transition Fund (OJ L 231, 30.6.2021, p. 1). 
Interinstitutional Proclamation on the European Pillar of Social Rights (OJ C 428, 13.12.2017, p. 10). 

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(9) 

As recognised by the Heads of State or Government  at the 8 May 2021 Porto Social 
Summit,  the  implementation  of  the  European  Pillar  of  Social  Rights  will  strengthen 
the  Union’s  drive  towards  a  digital,  green  and  fair  transition  and  contribute  to 
achieving  upward  social  and  economic  convergence  and  addressing  demographic 
challenges.  They  stressed  that  the  social  dimension,  social  dialogue  and  the  active 
involvement  of  social  partners  are  at  the  core  of  a  highly  competitive  social  market 
economy  and  welcomed  the  new  Union  headline  targets.  They  affirmed  their 
determination, as established by the European Council’s Strategic Agenda 2019-2024, 
to  continue  deepening  the  implementation  of  the  European  Pillar  of  Social  Rights  at 
Union  and  national  levels,  with  due  regard  for  respective  competences  and  the 
principles of subsidiarity and proportionality.  Lastly, they stressed the importance of 
closely  following,  including  at  the  highest  level,  the  progress  achieved  towards  the 
implementation of the European Pillar of Social Rights and the Union headline targets 
for 2030. 

(10)  The EU headline targets for 2030 on employment (at least 78 % of the population aged 
20-64 should be in employment), skills (at least 60 % of all adults should participate in 
training every year) and poverty reduction (at least 15 million fewer people at risk of 
poverty  or  social  exclusion,  including  five  million  children),  welcomed  by  the  EU 
Leaders in Porto and by the June 2021 European Council, will help, together with the 
Social  Scoreboard,  in  monitoring  progress  towards  the  implementation  of  the 
principles  of  the  European  Pillar  of  Social  Rights  as  part  of  the  policy  coordination 
framework in the European Semester. In addition, the Porto Social Commitment called 
on Member States to set ambitious national  targets  which, taking due account  of the 
starting  position  of  each  country,  should  constitute  an  adequate  contribution  to  the 
achievement  of  the  Union  headline  targets  for  2030.  Between  September  2021  and 
June  2022,  at  the  invitation  of  the  Commission,  Member  States  came  forward  with 
their national targets. At the June 2022 EPSCO, Ministers stressed the importance of 
closely following the progress achieved towards the implementation of the European 
Pillar of Social Rights and the EU headline targets for 2030. Against this background, 
the national targets are now covered in the Joint Employment Report 2023, and will be 
further integrated in the Semester monitoring tools.  In addition, the EPSCO advisory 
bodies have finalised Key Messages to inform the Semester debate at the June EPSCO 
on  a  possible  framework  to  strengthen  the  assessment  and  monitoring  of  risks  to 
upward social convergence in the Union. 

(11)  Following the Russian invasion of Ukraine, the European Council, in its conclusions 
of 24 February 2022, condemned Russia’s actions, which seek to undermine European 
and global security and stability, and expressed solidarity  with the Ukrainian people, 
underlining the violation of international law and the principles of the United Nations 
Charter.  In  the  current  context,  temporary  protection,  as  granted  by  Council 
Implementing  Decision  (EU)  2022/382  (34)  activating  Directive  2001/55/EC,    offers 
quick  and  effective  assistance  in  European  countries  to  displaced  people  fleeing  the 
Russian  war  of  agression  against  Ukraine  and  allows  them  to  enjoy  minimum  rights 
across  the  Union  that  offer  an  adequate  level  of  protection.  By  participating  in 
Europe’s  labour  markets,  persons  displaced  from  Ukraine  can  contribute  to 
strengthening  the  Union’s  economy  and  help  support  their  country  and  people  at 
home.  In  the  future,  the  acquired  experience  and  skills  can  contribute  to  rebuilding 

34 

Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass 
influx of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and 
having the effect of introducing temporary protection (OJ L 71, 4.3.2022, p. 1). 

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Ukraine. For unaccompanied children and teenagers, temporary protection confers the 
right to legal guardianship and access to childhood education and care. Member States 
should involve social partners in the design, implementation and evaluation of policy 
measures  aimed  at  addressing  the  employment  and  skills  challenges,  including  the 
recognition  of  qualifications,  stemming  from  the  Russia’s  war  of  aggression  against 
Ukraine. Social partners play a key role in mitigating the impact of the war in terms of 
preserving employment and production. 

(12)  Reforms  to  the  labour  market,  including  national  wage-setting  mechanisms,  should 
respect national practices of social dialogue and the autonomy of the social partners, 
with  a  view  to  providing  fair  wages  that  enable  a  decent  standard  of  living  and 
sustainable  growth  and  upward  socio-economic  convergence.  They  should  allow  for 
the  necessary  opportunity  for  a  broad  consideration  of  socioeconomic  factors, 
including improvements in sustainability, competitiveness, innovation, the creation of 
quality  jobs,  working  conditions,  in-work  poverty,  education,  training  and  skills, 
public health, social protection and inclusion, as well as real incomes. In  that regard, 
the  Recovery  and  Resilience  Facility  and  other  Union  funds  are  supporting  Member 
States  in  implementing  reforms  and  investments  that  are  in  line  with  the  Union’s 
priorities,  making  European  economies  and  societies  more  sustainable,  resilient  and 
better  prepared  for  the  green  and  digital  transitions  in  the  changing  context  that  has 
followed  after  the  COVID-19  pandemic.  Russia’s  war  of  aggression  against  Ukraine 
has further aggravated pre-existing socio-economic challenges. Member States and the 
Union  should  continue  to  ensure  that  the  social,  employment  and  economic  impacts 
are mitigated and that transitions are socially fair and just, also in light of the fact that 
increased open strategic autonomy and an accelerated green transition will help reduce 
the dependence on imports of energy and other strategic products and technologies, in 
particular from Russia. Strengthening resilience and pursuing an inclusive and resilient 
society  in  which  people  are  protected  and  empowered  to  anticipate  and  manage 
change,  and  in  which  they  can  actively  participate  in  society  and  the  economy,  are 
essential.  

A coherent set of active labour market policies, consisting of  temporary and targeted 
hiring  and  transition  incentives,  skills  policies  including  learning  for  the  green 
transition  and  sustainable  development  and  targeted,  effective  and  adaptable 
employment  services,  is  needed  to  support  labour  market  transitions,  also  in  light  of 
the  green  and  digital  transformations,  as  highlighted  inter  alia  in  Commission 
Recommendation (EU) 2021/402and in Council Recommendation of 16 June 2022 on 
ensuring  a  fair  transition  towards  climate  neutrality.  Decent  working  conditions, 
including occupational  health and safety, and both  the physical  and mental  health of 
workers should be ensured. 

(13)  Discrimination  in  all  its  forms  should  be  tackled,  gender  equality  ensured  and 
employment of young people supported. Equal access and opportunities for all should 
be  ensured  and  poverty  and  social  exclusion,  in  particular  that  of  children,  persons 
with disabilities and the Roma people, should be reduced, in particular by ensuring an 
effective  functioning  of  labour  markets  and  adequate  and  inclusive  social  protection 
systems, as set out in Council Recommendation of 8 November 2019 and the Council 
Recommendation  of  30  January  2023  on  adequate  minimum  income  ensuring  active 
inclusion  (35),  and  by  removing  barriers  to  inclusive  and  future-oriented  education, 
through 
training, 

labour-market  participation, 

learning  and 

including 

lifelong 

35 

Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion 
(OJ C 41, 3.2.2023, p.1). 

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7 

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investments  in  early  childhood  education  and  care,  in  line  with  the  European  Child 
Guarantee  and  the  Council  Recommendation  on  early  childhood  education  and  care: 
the Barcelona targets for 2030, and in digital and green skills, in line with the Digital 
Education  Action  Plan  and  the  Council  Recommendation  on  learning  for  the  green 
transition  and  sustainable  development,  as  well  as  the  Council  Recommendation  on 
Pathways  for  School  Success.  Timely  and  equal  access  to  affordable  high-quality 
long-term  care,  in  line  with  the  Council  Recommendation  on  access  to  affordable 
high-quality  long-term  care,  and  healthcare  services,  including  prevention  and 
healthcare promotion, are particularly relevant, also in light of  potential future health 
risks and in a context of ageing societies. The potential of persons with disabilities to 
contribute to  economic  growth and social development should be further realised, in 
line  with  the  Strategy  for  the  Rights  of  Persons  with  Disabilities  (36),  which  invited 
Member  States  to  set  up  employment  and  adult  learning  targets  for  persons  with 
disabilities.  New  technologies  and  evolving  workplaces  throughout  the  Union  allow 
for  more  flexible  work  organisation  as  well  as  improved  productivity  and  work-life 
balance,  whilst  contributing  to  the  EU’s  green  commitments.  They  also  bring  new 
challenges  to  labour  markets,  which  affect  people’s  working  conditions,  health  and 
safety at work and access to social protection. Member States should ensure that new 
forms  of  work  organisation  translate  into  quality  jobs  and  healthy  workplaces, 
maintaining  established  labour  and  social  rights  and  strengthening  Europe’s  social 
model. 

(14)  The 

Integrated  Guidelines  should  serve  as  a  basis 

for  country-specific 
recommendations that the Council may address to Member States. Member States are 
to  make  full  use  of  their  REACT-EU  resources  established  by  Regulation  (EU) 
2020/2221  of  the  European  Parliament  and  of  the  Council  (37),  which  reinforces  the 
2014-2020  cohesion  policy  funds  and  the  Fund  for  European  Aid  to  the  Most 
Deprived  (FEAD)  until  2023.  Due  to  the  current  Ukrainian  crisis,  Regulation  (EU) 
2020/2221  has  been  further  complemented  by  Regulation  (EU)  2022/562  of  the 
European  Parliament  and  of  the  Council  (38),  as  well  as  by  a  further  amendment  to 
Regulation  (EU)  2021/1060  of  the  European  Parliament  and  of  the  Council  (39) 
concerning increased pre-financing for REACT-EU, and by a new unit cost in order to 
help  accelerate  the  integration  of  people  leaving  Ukraine  and  entering  the  Union  as 
provided  for  in  Regulation  (EU)  2022/613  of  the  European  Parliament  and  of  the 
Council (40).  

36 
37 

38 

39 

40 

COM(2021) 101 final.  
Regulation  (EU) 2020/2221  of  the  European Parliament  and  of  the  Council  of 23 December 2020 
amending  Regulation  (EU)  No 1303/2013  as  regards  additional  resources  and  implementing 
arrangements to provide assistance for fostering crisis repair in the context of the COVID-19 pandemic 
and  its  social  consequences  and  for  preparing  a  green,  digital  and  resilient  recovery  of  the  economy 
(REACT-EU) (OJ L 437, 28.12.2020, p. 30). 
Regulation  (EU)  2022/562  of  the  European  Parliament  and  of  the  Council  of  6  April  2022  amending 
regulations (EU) No 1303/2013 and (EU) No 223/2014 as regards Cohesion’s Action for Refugees in 
Europe (CARE) (OJ L 109, 8.4.2022, p. 1). 
Regulation  (EU)  2021/1060  of  the  European  Parliament  and  of  the  Council  of  24  June  2021  laying 
down  common  provisions  on  the  European  Regional  Development  Fund,  the  European  Social  Fund 
Plus,  the  Cohesion  Fund,  the  Just  Transition  Fund  and  the  European  Maritime,  Fisheries  and 
Aquaculture Fund and financial rules for those and for the Asylum, Migration and Integration Fund, the 
Internal  Security  Fund  and  the  Instrument  for  Financial  Support  for  Border  Management  and  Visa 
Policy (OJ L 231, 30.6.2021, p. 159). 
Regulation (EU) 2022/613 of the European Parliament and of the Council of 12 April 2022 amending 
Regulations  (EU)  No  1303/2013  and  (EU)  No  223/2014  as  regards  increased  pre-financing  from 
REACT-EU resources and the establishment of a unit cost (OJ L 115, 13.4.2022, p. 38). 

EN 

8 

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In addition, for the 2021-2027 programming period, Member States should make full 
use of the European Social Fund Plus, the European Regional Development Fund, the 
Recovery and Resilience Facility and other Union funds, including the Just Transition 
Fund  as  well  as  the  InvestEU  established  by  Regulation  (EU)  2021/523  of  the 
European Parliament and of the Council (41), to foster quality employment and social 
investments, to fight poverty and social exclusion, to combat discrimination, to ensure 
accessibility  and  inclusion,  and  to  promote  upskilling  and  reskilling  opportunities  of 
the  workforce,  lifelong  learning  and  high-quality  education  and  training  for  all, 
including digital literacy and skills in order to empower them with the knowledge and 
qualifications  required  for  a  digital  and  green  economy.  Member  States  are  also  to 
make full use of the European Globalisation Adjustment Fund for Displaced Workers 
established  by  Regulation (EU) 2021/691  of  the  European Parliament  and  of  the 
Council42 to support workers made redundant as a result of major restructuring events, 
such as the COVID-19 pandemic, socioeconomic transformations that are the result of 
more  global  trends,  and  technological  and  environmental  changes.  While  the 
Integrated Guidelines are addressed to Member States and the Union, they should be 
implemented  in  partnership  with  all  national,  regional  and  local  authorities,  closely 
involving  parliaments,  as  well  as  the  social  partners  and  representatives  of  civil 
society. 

(15)  The Employment Committee and the Social Protection Committee are to monitor how 
the  relevant  policies  are  implemented  in  light  of  the  guidelines  for  employment 
policies,  in  line  with  their  respective  Treaty-based  mandates.  Those  committees  and 
other Council preparatory bodies involved in the coordination of economic and social 
policies  are  to  work  closely  together.  Policy  dialogue  between  the  European 
Parliament,  the  Council  and  the  Commission  should  be  maintained,  in  particular  as 
regards the guidelines for the employment policies of the Member States. 

(16)  The Social Protection Committee was consulted, 

HAS ADOPTED THIS DECISION:  

Article 1 

The guidelines for the employment policies of the Member States , as set out in the Annex to 
Council Decision (EU) 2022/2296, are maintained for 2023 and shall be taken into account by 
the Member States in their employment policies and reform programmes. 

41 

42 

Regulation  (EU) 2021/523  of  the  European Parliament  and  of  the  Council  of 24 March 2021 
establishing the InvestEU Programme and amending Regulation (EU) 2015/1017 (OJ L 107, 26.3.2021, 
p. 30). 
Regulation  (EU) 2021/691  of  the  European Parliament  and  of  the  Council  of 28 April 2021  on  the 
European Globalisation Adjustment Fund for Displaced Workers (EGF) and repealing Regulation (EU) 
No 1309/2013 (OJ L 153, 3.5.2021, p. 48). 

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Article 2 

This Decision is addressed to the Member States. 

Done at Brussels, 

For the Council 
The President 

EN 

10 

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