COMMISSION STAFF WORKING DOCUMENT IMPACT ASSESSMENT REPORT Accompanying the document Proposal for a Regulation of the European Parliament and the Council establishing an EU Talent Pool
Date: 2023-11-15
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: foreign national, information system, job application, job vacancy, labour shortage, occupational migration, professional qualifications, recruitment, skilled worker, third country

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 15.11.2023  SWD(2023) 717 final  COMMISSION STAFF WORKING DOCUMENT  IMPACT ASSESSMENT REPORT  Accompanying the document Proposal for a Regulation of the European Parliament and the Council establishing an EU Talent Pool {COM(2023) 716 final} - {SEC(2023) 716 final} - {SWD(2023) 716 final} - {SWD(2023) 718 final}  
 
 
TABLE OF CONTENTS 
1.  BACKGROUND AND POLICY CONTEXT ...................................................................................... 4 

1.1. 

Policy and legal contexts ................................................................................................................... 4 

1.2.  Current challenges ............................................................................................................................. 5 

1.2.1 Demographic trends and skills and labour shortages in key sectors of the EU economy ............ 5 

1.2.2 Global supply and demand of skilled third-country nationals’ workers ....................................... 8 

1.2.3. Challenges related to migration management .........................................................................10 

2.  PROBLEM DEFINITION................................................................................................................... 11 

2.1 What is the problem? ............................................................................................................................. 11 

2.2. What are the problem drivers ............................................................................................................... 13 

2.2.1 Drivers outside of the scope of the EU Talent Pool initiative ......................................................13 

2.2.2 Drivers related to the employment aspects................................................................................13 

2.2.3 Drivers related to the migration aspects ....................................................................................19 

2.2.4 Who is affected by the identified problems and in what ways ..................................................23 

2.3 How will the problem evolve? .............................................................................................................. 23 

3.  WHY SHOULD THE EU ACT? ........................................................................................................ 25 

3.1 Legal basis ............................................................................................................................................. 25 

3.2. Subsidiarity: Necessity of EU action .................................................................................................... 25 

3.3. Subsidiarity: Added value of EU action ............................................................................................... 26 

3.4. Proportionality ...................................................................................................................................... 27 

4.  OBJECTIVES: WHAT IS TO BE ACHIEVED? ............................................................................... 28 

4.1 General objective (GO) ......................................................................................................................... 28 

4.2 Specific objectives (SOs) ...................................................................................................................... 28 

4.3. Consistency with other EU policies and with the Charter of fundamental rights ................................ 29 

5.  WHAT ARE THE AVAILABLE POLICY OPTIONS? .................................................................... 31 

5.1 What is the baseline from which options are assessed? ........................................................................ 31 

5.2 Description of the policy options .......................................................................................................... 33 

5.3. Options discarded at an early stage ...................................................................................................... 34 

5.4. Options retained for further in-depth assessment ................................................................................. 35 

5.4.1 Non-legislative options ...............................................................................................................35 

5.4.2 Legislative options ......................................................................................................................36 

6.  WHAT ARE THE IMPACTS OF THE POLICY OPTIONS? ........................................................... 44 

6.1 Policy Option 1 - Soft measures aiming at improving information provision and facilitating 
identification and matching (non-legislative option)................................................................................... 47 

6.2 Policy Option 2 - Developing an EU Talent Pool targeted to address labour market needs in key 
occupations (legislative option) ................................................................................................................... 52 

6.3 Policy Option 3 - Developing an EU Talent Pool as a fully demand-driven tool (legislative option) .. 59 

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7.  HOW DO THE OPTIONS COMPARE? ............................................................................................ 66 

8.  PREFERRED OPTION ....................................................................................................................... 69 

8.1 REFIT (simplification and improved efficiency) .................................................................................. 70 

8.2 One in, one out approach ....................................................................................................................... 70 

9.  HOW WILL ACTUAL IMPACTS BE MONITORED AND EVALUATED? ................................. 71 

ANNEX 1 PROCEDURAL INFORMATION ........................................................................................... 72 

ANNEX 2  STAKEHOLDER CONSULTATION ..................................................................................... 82 

ANNEX 3  WHO IS AFFECTED BY THE INITIATIVE AND HOW? ................................................. 121 

ANNEX 4  ANALYTICAL METHODS .................................................................................................. 132 

ANNEX 5  COMPETITIVENESS CHECK ............................................................................................. 143 

ANNEX 6 PROBLEM ASSESSMENT FROM A DEMOGRAPHIC PERSPECTIVE .......................... 147 

ANNEX 7  ASSESSMENT OF LABOUR AND SKILLS SHORTAGES IN THE EU .......................... 160 

ANNEX 8  MAPPING OF EXISTING INITIATIVES AT EU AND NATIONAL LEVEL ................... 195 

ANNEX 9 ANALYTICAL DESCRIPTION OF THE POLICY OPTIONS ............................................ 280 

ANNEX 10  ASSESMENT OF COST AND BENEFITS OF THE POLICY OPTIONS ........................ 301 

ANNEX 11  SME TEST ........................................................................................................................... 337 

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Glossary 

Term or acronym 

Meaning or definition 

Cedefop 

European  Centre  for  the  Development  of  Vocational 
Training  

EDC 

EMN 

EQF 

ESCO 

ESDE 

EU 

FRA 

GDP 

ICT 

IT  

ILO 

MS 

NCP 

NQF 

OECD 

PO  

SMEs 

Study 

TCN 

European Digital Credentials for learning 

European Migration Network 

European Qualifications Framework 

European  Classification 
Qualifications and Occupations 

of 

Skills  Competences, 

Employment and Social Developments 

European Union 

Fundamental Rights Agency 

Gross Domestic Product 

Information and communication technologies 

Information Technology 

International Labour Organisation 

Member State 

National Contact Points 

National Qualification Framework 

Organisation for Economic Co-operation and Development 

Policy Option 

Small and Medium Enterprises 

Study 
in  support  of  the 
development of an EU Talent Pool 

impact  assessment  on 

the 

Third-country  national:  a  third-country  national  is  any 
person who is not a citizen of the Union within the meaning 
of Article 20(1) of the TFEU 

TFEU 

the Charter 

Treaty on the Functionning of the European Union 

Charter of Fundamental Rights of the European Union 

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1.  BACKGROUND AND POLICY CONTEXT  

1.1. Policy and legal contexts 

Legal migration is an essential part of the comprehensive approach to migration set out in the 
New Pact on Migration and Asylum1. Effective legal pathways can contribute to the decrease 
of irregular migration and benefit our labour market. While Member States retain the right to 
determine  volumes  of  admission  for  people  coming  from  third  countries  to  work,  the  EU 
common  migration  policy  needs  to  reflect  the  integration  of  the  EU  economy  and  the 
interdependence of Member States’ labour markets. This is why, as the New Pact underlines, 
EU policies need to foster a level playing field between national labour markets as migration 
destinations. They should also help Member States using their EU membership as an asset in 
attracting talent. 
EU employers are facing structural labour and skills shortages in many professions2. The 
EU transition towards a green and digital economy creates high demand for specific skills 
in certain sectors and calls for restructuring our economies and labour markets3. In the context 
of the COVID-19 pandemic, it has also become clear that labour and skills shortages in the 
health sector need to be addressed4. All these demands for skills are further exacerbated by the 
prospect  of  an  ageing  population  and  a  shrinking  working-age  population,  ,  posing 
significant challenges for the EU and its Member States’ prosperity and competitiveness.  

The EU is addressing the labour and skills shortages through a comprehensive approach which 
includes  the  activation  of  the  inactive  EU  population,  reskilling  and  upskilling  of  the 
existing workforce5, and facilitation of intra-EU mobility. However, in view of the scale of the 
skills  challenges  ,  this  approach  is  not  sufficient.  Labour  migration  is  part  of  the  solution  to 
skills  shortages  and  some  Member  States  are  developing  talent  attraction  policies  to  this 
effect6. However, they are unable to achieve economies of scale when developing their policies 
and activities independently.  
At  the  EU  level,  both  the  European  Skills  Agenda  and  the  New  Pact  on  Migration  and 
Asylum  recognise  the  need  for  a  more  strategic  approach  to  legal  migration,  oriented 
towards  better  attracting  and  retaining  talent  to  foster  growth  and  innovation  potential  and 
channelling legal migration towards regions and occupations facing skills shortages.  

The  need  to  attract  the  necessary  skills  to  the  EU  was  also  mentioned  by  President  von  der 
Leyen in her 2022 State of the Union address7 where she also announced the European Year 
of Skills8, as well as an initiative on the recognition of qualifications of third country nationals 
as part of efforts to make Europe more attractive for skilled workers. 

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8  

COM(2020) 609 final.  
As  substantiated  by  the  lists  of  widespread  and  acute  shortage  occupations  contained  in  Eures  2022  report  on 
shortages and surplus occupations, see below, for more details: EURES-Labour Shortages report (europa.eu).  
The Green Deal Industrial Plan of 2023 acknowledges that the green transition will amplify demands for new skills 
at all levels. The Commission will consider how to combine a ‘Skills-first' approach, recognising actual skills, with 
existing  approaches  based  on  qualifications,  and  how  to  facilitate  access  of  third  country  nationals  to  EU  labour 
markets in priority sectors. 
The  COVID-19  pandemic  accentuated  long-standing  shortages  in  sectors  such  as  healthcare  and  ICT.  Eurofound, 
Tackling labour shortage in  EU Member States, 2021, p. 6. 
The European Skills Agenda launched in 2020 presented the EU objectives for upskilling and reskilling in the next 
five  years.  The  Skills  Agenda  also  foresees  the  activation  of  the  inactive  EU  pupolation  by  promoting  their 
integration into the labour market.  
See: Mapping of the existing intiatives in Annex 8. 
State of the Union 2022, available at https://state-of-the-union.ec.europa.eu/state-union-2022_en. 
Decision  (EU)  2023/936  of  the  European  Parliament  and  of  the  Council  of  10 May  2023  on  a  European  Year  of 
Skills. 

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To  ensure  that  the  EU  becomes  more  attractive  and  to  improve  the  overall  migration 
management, the Commission  adopted in  April  2022 the  Skills  and Talent Package9 which 
puts forward a set of initiatives to reach these goals. In particular, the Package announced the 
intention  to  establish  an  EU  Talent  Pool:  the  first  EU-wide  platform  aimed  at  facilitating 
international recruitment and providing job opportunities for third country nationals workers10 
at all skills levels11.  
The  idea  of  establishing  an  EU  Talent  Pool  was  strongly  supported  by  the  European 
Parliament  in  its  two  resolutions  on  the  legal  migration  policy  of  202112  as  well  as  by  the 
European  Economic  and  Social  Committee  and  the  European  Committee  of  the  Regions  in 
their  opinions  on  the  Skills  and  Talent  Package13.  The  importance  of  improving  migrants’ 
access to the EU labour market via matching tools was also mentioned during the Conference 
on the Future of Europe.14 In October 2022, the Commission launched the EU Talent Pool 
Pilot  to  facilitate  the  integration  of  people  fleeing  Ukraine  into  the  EU  labour  market15.  In 
parallel,  the  European  Commission  is  launching  Talent  Partnerships  with  specific  partner 
countries to boost international mobility and the development of talent in a mutually beneficial 
way, as part of a comprehensive approach to migration management. The EU Talent Pool may 
play a role in their implementation. 
By  making  the  EU  more  attractive  for  talent  from  abroad  and  filling  in  labour  and  skills 
shortages, the EU Talent Pool will directly contribute to the European Year of Skills and will 
be a key component of the Commission’s Package on talent mobility.16 

1.2. Current challenges 

1.2.1 Skills and labour shortages in key sectors of the EU economy   

EU  employers,  in  particular  SMEs,  are  facing  acute  and  structural  labour  and  skills 
shortages in many professions. The unmet demand for labour, as approximated by the job 
vacancy rate17, has more than doubled in less than a decade18. As Eurofound reports, in the last 
quarter of 2022, recruitment challenges experienced by EU employers have reached a record 

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European Commission, Communication, Attracting Skills and Talent to the EU, COM/2022/657 final. 
The EU Talent Pool was announced as as “the first EU-wide platform and matching tool to help make the EU more 
attractive for third country nationals and addressing the challenge of matching EU employers with the talent they are 
unable to find in the EU’s labour market”. 
Please note that the term ‘talent’ from abroad used throughout this text refers to the entire range of skills that might 
be needed by EU employers.  
The  European  Parliament  resolution  of  25  November  2021  with  recommendations  to  the  Commission  on  legal 
migration  policy  and  law  (2020/2255(INL); European  Parliament  resolution  of  20  May  2021  on  new  avenues  for 
legal labour migration (2020/2010(INI)). 
Opinion of European Economic and Social Committee on the Communication from the Commission to the European 
Parliament,  the  Council,  the  European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions  — 
Attracting skills and talent to the EU of 28 February 2023, EESC 2022/02745. Opinion of the European Committee 
of the Regions on legal migration: Attracting skills and talent to the EU, COR 2022/03942. 
Conference on the Future of Europe, Report on the final outcome, 2022, p. 85. 
Additional information on the EU Talent Pool Pilot is available at https://eures.ec.europa.eu/eu-talent-pool-pilot_en. 
This  Package  will  include  a  Communication  on  skills  and  talent  mobility,  a  Commission  recommendation  on  the 
recognition of qualifications of third country nationals, a proposal for a Regulation establishing an EU Talent Pool, 
and a proposal for a Council recommendation ‘Europe on the Move’ – learning mobility opportunities for everyone.  
There  is  no  agreed  methodology  to  identify  labour  shortages  in  the  EU,  and  different  sources  have  strengths  and 
weaknesses  in  order  to  identify  shortages.  Please,  refer  to  Annex  7  for  more  details  and  for  a  comprehensive 
approach how to identify critical occupational shortages, in line with the recommendations of the 2023 EU semester 
and the emphasis on the twin transition.  
Eurostat (jvs_q_nace2).  Additionally,  according  to  Eurofound  the  most  significant  shortages  are  in  Czechia, 
followed by Belgium, the Netherlands and Austria.  Eurofound (2023), Measures to tackle labour shortages: Lessons 
for future policy.  

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high19. In the EU Business and consumer surveys, 26% of company managers responsible for 
recruitment in industry reported that labour shortages were a factor limiting production, while 
the corresponding number was 30% in services and 31% in construction20. At the same time, 
85%  of  EU  firms  find  that  the  lack  of  available  staff  with  the  right  set  of  skills  is  a  factor 
hampering their investments21.   

in 

Across  the  EU,  the  labour  and  skills  shortages  concern  all  skill  levels  and  are  largely 
long-term  care22,  hospitality,  construction, 
concentrated 
manufacturing and services, transportation, information and communication technology 
(ICT) sectors23( a more granular analysis on specific shortage occupations, with more detailed 
information, is developed in Annex 7). 

the  healthcare  and 

Member  States  are  reporting  sectoral  differences  as  highlighted  by  the  Eurofound  study  in 
2021,  which  indicated  that  in  the  recovery  from  the  pandemic,  the  emphasis  on  digital  and 
climate-neutral  transitions  will  give  rise  to  new  shortages,  as  well  as  exacerbating  existing 
ones.24..  

Table 1 : Distribution of sectorial shortages across Member States 

Shortage Sectors 

Countries identifying the shortage sectors 

Manufacturing 

Construction 

Energy 

Transport 

Professional, 
activities 

Tourism 

Agriculture 

Education 

Bulgaria, Finaland, Poland, Sweden 

Cyprus, Ireland, Poland, Portugal 

Croatia,  Hungary,  Ireland,  Malta,  Portugal, 
Romania 

Poland, Portugal 

scientific 

and 

technical 

Cyprus, Denmark, Latvia, Lithuania 

Bulgaria 

Latvia 

Spain 

Reference: Eurofound Study (2021) Tackling Labour Shortages 

The Commission's 2023 Employment and Social Developments in Europe report25 shows that 
causes  of  labour  shortages  are  varied,  including  low  labour  market  participation  of  certain 
population  groups,  poor  working  conditions  in  occupations,  skill  mismatches  and  the 
implications of some tax and benefit systems. 

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21  

22  

23  

24  

25  

Eurofound (2023), Measures to tackle labour shortages: Lessons for future policy.  
ECFIN Business and Consumer Surveys (BCS). 
European  Investment  Bank,  2022/2023  Report,  EIB  investment  report  2022/2023  -  Publications  Office  of  the  EU 
(europa.eu). 
In healthcare and long-term care, Europe is lacking around 2 million workers, with up to 1 million new job openings 
for  health  associate  professionals  and  long-term  carers  expected  up  to  2030.  European  Commission,  Long-Term 
Care Report: Trends, challenges and opportunities in an ageing society, 2021. 
ECFIN  Business  and  Consumer  Surveys  (BCS);  Measures  to  tackle  labour  shortages:  Lessons  for  future  policy  | 
(europa.eu).  
Eurofound  (2021)  Tackling  labour  shortages  in  EU  Member  States,  p.  29,  Confront  with  Table  5,  sectors 
experiencing large vacancy rates across Member States, p. 22.  
2023 
Developments 
and 
https://ec.europa.eu/social/BlobServlet?docId=26989&langId=en.  

Employment 

available 

Europe 

report, 

Social 

at: 

in 

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In  addition,  the  prospect  of  an  ageing  population26  and  a  shrinking  working-age 
population27  pose  further  significant  pressure  for  the  EU  and  its  Member  States  ability  to 
effectively address such shortages.  

The  share  of  working-age  population  is  declining  while  the  share  of  older  population  is 
increasing,  resulting  in  a  large  number  of  people  leaving  the  labour  market  to  retire28  and 
increasing the demand for long-term care29. Thus, EU labour markets become increasingly 
tight,  with  insufficient  active  workforce  to  satisfy  employers’  needs30.  (a  more  detailed 
assessment of the demographic trends, including the differences in this regard among Member 
States, can be found in Annex 6). 

The transition towards a climate-neutral European economy under the Green Deal leads to 
additional demand for labour force and new ‘green skills’ within certain sectors (in particular 
the  construction,  energy,  manufacturing  and  transport)31.  Between  2015  and  2021,  labour 
shortages in key sectors for the green transition doubled and up to 1 million additional jobs are 
expected to exist by 2030.32 New skills will be also required for the digital transition of the 
European economy, which is already hampered by bottlenecks in this area33. 

Therefore,  notwithstanding  efforts  to  upskill  and  re-skill  the  EU  domestic  workforce,  to 
activate  the  inactive  and/or  vulnerable  EU  citizens  or  to  promote  intra-EU  mobility,  labour 
shortages are  expected  to  increase in  the EU, in view of the  projected  demographic trends 
and  other  structural  drivers  of  the  EU  workforce  transformation34.  These  shortages  have  the 
potential to limit EU growth, productivity, innovation, competitiveness and the EU’s ability to 
deliver on its climate and digital ambitions. 

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The share of population aged 65 and over is projected to grow to 32.5% by 2100 (the corresponding value in  2022 
was 21.2% and 17.8% in 2011), according to Population projections in the EU - Statistics Explained (europa.eu).  
The working age population, aged 15-64 is projected to fall from its 63.9% share in 2022 to only 54.4% by 2100 
(Eurostat PROJ_23NP Statistics | Eurostat (europa.eu)).   
According to Eurostat projections, the old-age dependency ratio which is the proportion between the population 65 
and over years-old and working age population – already at a very high 33.0 ration in 2022  – is projected to grow 
very  quickly  to  above  50  in  the  coming  decades  and  to  reach  59.7  ratio  by  2100. Eurostat  PROJ_23NP ; 
Eurostat, Demography 2023.  
Employment in the health and social sector has been growing rapidly in recent years in the EU27, from an overall 
number  of  workers  of  17.4  million  in  2008  to  21.7  million  in  2022,  representing  a  24,8%  increase  in  sectoral 
employment against the 3,8% total employment growth over the same period.  
Already in 2022, the employment rate of the EU 20-64-year-olds peaked at 75%, the highest share recorded since 
2009,  corresponding  to  193.5  million  of  employed  people,  bringing  the  EU  economy  as  a  whole  closer  to  full 
employment  with unemployment  rates  at historic  lows  and  recruitment  process  becoming  more difficult.  Eurostat, 
lfsi_emp_a and lfsa_ergan 
Eurofound, Measures to tackle labour shortages: Lessons for Future Policy, 2023. According to the narrow definition 
of  green  jobs  provided  by  Eurostat,  sectors  linked  to  the  green  transition  include  manufacturing,  construction, 
transportation and electricity, steam, gas and air conditioning. In the 2010-2020 period, employment in these sectors 
grew at a faster rate than the EU overall rate of employment, confirming the structural nature of the transformation 
of  the  EU  economy  beyond  cyclical  developments,  particularly  in  waste  management,  renewables  and  energy 
efficiency. Eurostat, 2023, 'Environmental economy — statistics on employment and growth'. 
European Commission, A Green Deal industrial Plan for the Net-Zero Age COM(2023) 62 final. 
The 2030 Digital Compass points to the need to have at least 20 million employed ICT specialists in the EU by 2030 
and  the  Digital  Economy  and  Society  Index  shows  that  the  EU  is  falling  short  of  achieving  this  target  (9  million 
employed in 2021). 
The  2023  European  Semester  exercise  shows  that  most  EU  Member  States  already  suffer  from  significant  and 
growing skills shortages, while low training provision could create bottleneck in strategic occupations related to the 
net zero economy in key sectors. See 2023 European Semester: Spring package (europa.eu). 
Employers’  difficulties  in  finding people  with  the  right  skills  are  also linked to  their  inability to attract  and  retain 
workers (e.g., due to poor working conditions or human resource management practices). However, a limited supply 
of  skilled  workers poses  challenges  for persistent  labour  shortages  in  fields  such  as  STEM  or  healthcare.  In other 
occupations,  especially  those  characterised  by  more  manual  skills  and  lower  literacy  challenges  in  attracting  and 
retaining workers play a more significant role.  For more details and recent analysis on labour shortages at the EU 
and  national  levels:  Labour  Market  Wage  Development,  2022  Chapter  3  and    2023  ESDE,  Chapter  2 
https://ec.europa.eu/social/BlobServlet?docId=26989&langId=en 

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Labour and skills shortages are a common European challenge. When comparing the average 
EU job vacancy rate at the end of 2022 with the same period in 2012 (in the last quarter of the 
year),  it  is  apparent  that  difficulties  to  fill  vacant  positions  have  gradually  worsened  in  all 
Member  States  over  a  decade.  However,  some  differences  among  Member  States  can  be 
identified35.  

Three groups of Member States can be identified. First, there is a group most severely affected. 
These countries have witnessed a steep increase in their job vacancy rate over the past decade. 
At end of 2022, the unmet demand for labour was most pronounced in Austria, with a vacancy 
rate of 4.6% compared to merely 1.5% in 2012. In both Belgium and the Netherlands, the rate 
was 4.5% in 2022 – up from 2% and 1.2% respectively. Similarly high numbers were recorded 
in Germany (4.4% in 2022 versus 2% in 2012) and the Czech Republic (4.2% in 2022 versus 
1% in 2012). 

A  second  group  (Cyprus,  Estonia,  Finland,  Hungary,  Italy,  Latvia,  Luxembourg,  Malta, 
Slovenia  and  Sweden)  is  experiencing  a  vacancy  rate  similar  to  the  EU  average  of  2.8%. 
Although none of these countries has a rate more than 1% below the EU average in 2022, they 
are all confronted with greater difficulties in filling vacant positions when compared to 2012.  

The  third  group  consists  of  Member  States  whose  job  vacancy  rate  remains  below  the  EU 
average,  hence  not  exceeding  1.8%  (Bulgaria,  Croatia,  Greece,  Ireland,  Poland,  Portugal, 
Slovakia,  Spain).  Nevertheless,  the  job  vacancy  rate  has  increased  considerably  in  some  of 
these  countries.  For  example,  it  has  more  than  doubled  in  Poland  (from  0.3%  to  0.9%)  and 
Lithuania (from 0.7% to 1.7%). It  even increased fivefold in Portugal, from 0.3% in 2012 to 
1.5% in 2022. 
In  addition,  the  2022  EURES  report36  has  shown  that  there  are  differences  among  Member 
States  in  terms  of  shortage  occupations.  Member  States  submitting  the  highest  number  of 
shortage occupations were Italy (205), the Netherlands (166), Belgium (164), Slovenia (107), 
Denmark (106), Estonia (97), France (77) and Finland (60). The situation varies according to 
the countries and regions, where certain occupations are affected more than others and could 
constitute a bottleneck on growth, depending on the economic specialisation of the region (for 
instance,  specialisation  of  territorial  economic  districts  in  specific  technologies  such  as 
mechatronics)  or  the  sectoral  composition  of  the  national  business  economy  (for  instance, 
small and medium-size countries have a less complex business economy than larger ones).  

1.2.2 Global supply and demand of skilled third-country nationals’ workers 

There is an upward trend in global mobility37. In 2020, 3.6% of the total world population 
(an estimated 281 million people) were living permanently outside their country of birth38, in 
comparison to 2.8% in 1990. In 2021, 16% of adults worldwide, corresponding approximately 
to 900 million people had aspirations to migrate permanently39. Future trends of international 
labour  migration  are  difficult  to  predict40.  However,  the  global  labour  market  is  likely  to 

35  
36  
37  

38  

39  
40  

Eurostat (job vacancy rate), https://ec.europa.eu/eurostat/databrowser//product/view/JVS_A_RATE_R2. 
EURES, 2022 labour shortage and surplus report, EURES-Labour Shortages report (europa.eu). 
The  estimated  global  stock  of  migrants    people  is  steadily  increasing,  according  to  the  criteria  established  by  the 
UNDESA: International Migrant Stock | Population Division (un.org). The annual  flows contributing to this stock 
are oscillatin, due to their volatile nature, relative to the  underlying mixed aspirations and motivations of people on 
the move at global level.  
JRC, Migration Megatrends, Increasing significance of migration | Knowledge for policy (europa.eu). 
JRC  produces  research  datasets  or  indicators  about  global  mobility  (based  on  air  traffic  data  or  Mobile  Network 
Operators derived indicators) without distinction of motivation or reasons for such mobility. 
Gallup, Nearly 900 Million Worldwide Wanted to Migrate in 2021 (gallup.com). 
European Commission, Strategic Foresight Report, 2023, pp. 9-10 2023 Strategic Foresight Report (europa.eu). 

8 

 
 
 
continue  to  absorbe  the  increasing  workforce  supply  for  various  reasons,  including  the 
global  demand  generated  by  the  shift  to  a  “knowledge  economy”  and  “net-zero  economy”41 
and ageing population of the developed countries.  
According to the OECD, the EU as a whole rates high on underlying factors of attractiveness 
to  skilled  third-country  nationals  (TCNs)42.  However,  it  appears  less  effective  compared  to 
other OECD countries in converting this attractiveness into actual numbers of TCNs coming 
to  work  into  the  EU43.  This  might  also  be  explained  by  the  differences  in  perceived 
attractiveness of specific Member States44. Even though several smaller EU Member States are 
rated high in objective analyses of attractiveness, third-country jobseekers rarely refer to these 
Member  States  as  preferred  destinations  for  migration45.  The  overall  fragmentation  and 
complexity of the EU migration framework also decreases its attractiveness in the eyes of the 
third-country jobseekers46. 
Also, in  contrast  to  other developed economies such as Canada, New Zealand and Australia, 
the EU has proven unable to attract migrants at all levels of the skills it needs47. 
The EU’s difficulty in attracting jobseekers from third countries is also linked to the fact that 
the EU is competing with other advanced economies in attracting the skills and talent that they 
need in view of the increasing labour shortages at all skills levels48. Canada and Australia are 
consistently  more  attractive,  than  the  EU  according  to  OECD  indicators49.  What  OECD 
analysis  shows  is  that  while  job-search  visas  and  labour  migration  policies  are  important 
components  to  attract  migration  for  employment  purposes,  additional  attractiveness  factors 
include the overall environment, such as the openness of respective societies toward migrants. 
In  this  respect,  Australia,  Canada  and  New  Zealand  have  built  a  significant  reputation  as 
countries that are open to economic migration. The high attractivness of these three countries 
for labour migration purposes is also apparent considering that they established “expression of 
interest”  (EOI)  systems  to  better  manage  migration  flows.  These  systems  allow  migrants 
willing to obtain a work permit to be registered in the respective national platform if they meet 
certain criteria (e.g. education, age and and work experience). Registered candidates are ranked 

41  

42  
43  
44  

45  

46  

47  

48  

49  

To  support  the  engagements  subscribed  under  the  2015  Paris  Treaty  Agreement,  the  global  green  economy  is 
expected to create up to 2030 18 million additional jobs worldwide, mainly as a result of the joint efforts in fighting 
climate change. ILO, Greening with jobs, World Employment and Social Outlook 2018; IOM, Migration in the 2030 
Agenda, 2017.  
e.g. welfare and health care system, level of wages and job opportunities. 
OECD, Index of Attractiveness, 2023 Talent Attractiveness 2023 – OECD. 
Some  large  and  well-known  Member  States  such  as  Germany,  Spain,  France  and  Italy  are  seen  as  relatively 
attractive  However,  despite  the  single  EU  Member  State  efforts  to  attract  and  retain  Third  Country  Nationals  for 
work-related purposes, they are relatively disadvantaged. 
Gallup, World Poll Nearly 900 Million Worldwide Wanted to Migrate in 2021 (gallup.com). The OECD Indicators 
of Talent Attractiveness 2023 scoreboard, reports a handful of smaller Member States in the top spots with regard to 
their  attractiveness  for  highly  educated  workers  including  Sweden,  Luxembourg,  the  Netherlands,  Denmark  and 
Ireland. 
The  2019  Legal  Migration  Fitness  Check  highlighted  a  number  of  reasons  contributing  to  the  decrease  in  EU 
attractiveness and linked to the overall fragmentation and complexity of the migration framework (e.g. in particular, 
perceived  higher  costs,  lack  of  transparent  information  on  admission  procedures  and  recognition  of  skills  and 
qualifications). 
Of all non-EU migrants coming to OECD countries, 48 % of low-educated migrants choose an EU destination and 
68  %  of  the  high-educated  ones  a  non-European  OECD  destination.  See:  Senne,  J.-N.  and  David,  A.,  General 
Context and Contribution of Labour Migration in Europe, OECD 2016. According to the OECD study, the EU is 
underachieving in the global competition for talent. Such a long-term trend assessment has been recently confirmed 
in relation to on-line search for jobs and vacancies (according to click data from Indeed Platform,Indeed Platform, 
Europe  is  struggling  to  establish  itself  as  a  top  destination of  jobseekers  looking  at opportunities  away  from  their 
country of birth). https://www.hiringlab.org/uk/blog/2023/08/22/foreign-workers-eu-shortage/ 
Canada  and  Australia,  recently, broadened  the notion  of  talent  that  they  want  to  attract  and  retain,  in  view  of  this 
exarcebated competition.  
OECD, Indicators of Talent Attractiveness, Talent Attractiveness 2023 - OECD. 

9 

 
 
 
using a point-based system and, on the basis of this ranking, they are selected and invited to 
apply for a permanent residence permit.  However, EOI systems are not necessarily compatible 
with the EU and its Member States legal constraints and current regulations as these systems 
are used to select migrants as a migration management tool50. 

1.2.3. Challenges related to migration management  

A well-managed and sustainable migration framework in the EU can only be achieved with 
a comprehensive approach, bringing together policy efforts in different areas of migration, as 
outlined in the New Pact on Migration and Asylum51. 
Irregular migration, approximated by irregular entries in the EU, constitutes only a small part 
of  the  overall  migration  towards  the  EU52.  Still,  in  2022,  around  330  000  illegal  border 
crossings were detected at the EU’s external border. This is the highest number since 2016 and 
an  increase  of  64%  from  the  previous  year53.  As  stated  by  Frontex,  faced  with  stringent 
requirements  for  legal  migration  to  Europe,  migrants  are  often  left  with  the  only  choice  to 
come to the EU irregularly54. In the medium term,demographic factors are likely to determine 
an increase of migratory pressure from Africa. However, what is not known, at this stage, is if 
this migratory pressure will develop mainly on the African continent or whether it will interest 
Europe due to geographical proximity and existing economic and migration ties55. 
There is some agreement among policy makers both at global56 and EU level57 that there is a 
link  between  enhancing  legal  pathways  and  reducing  irregular  migration,  although 
influenced also by other factors58. Research conducted by the United Nations demonstrates that 
in  the  absence  of  appropriate  avenues  for  safe  and  regular  migration  pathways,  irregular 
migration will increase, and the smuggling of migrants will continue to provide the most viable 
means  to  arrive  to  their  intended  countries  of  destination59.  Conversely,  providing  migrants 
with safe and secure access to entry and/or residence through regulated channels reduces their 
need  to  move  in  unsafe  and  irregular  circumstances,  involving  engagement  with  smuggling 

50  

51  
52  

53  

54  
55   
56  

57  

58  

59  

OECD, Building an EU Talent Pool, 2019,pp. 94-100 Additionally, the stricter the criteria the more limited the pool 
under consideration, as exemplified by Canada, Australia and New Zealand. 
COM(2020)609. 
The ratio between the irregular arrivals to the EU to the legal ones was approximately 1: 10 in 2022.  According to 
Frontex, there were approximately 330 000 detected illegal border crossings in 2022. During the same period there 
were 3.7 million first legal permits issue (data on first residence permits published by Eurostat on 4 August 2023, 
see: Database - Migration and asylum - Eurostat (europa.eu). 
After the pandemic-induced low in 2020, this was the second year in a row with a steep increase in the number of 
detected irregular entries.  EU’s external borders in 2022: Number of irregular border crossings highest since 2016 
(europa.eu). 
The Annual Risk Analysis 2022/23 of Frontex. Risk Analysis for 2022/2023 (europa.eu) 
JRC Report, Many more to come. Migration from and within Africa, 2018. 
Analysis  of  the  impact  that  the  availability  of  regular  channels  of  migration  has  on  reducing  demand  for  the 
smuggling  of  migrants’,  Working  Group  on  the  Smuggling  of  Migrants,  Conference  of  the  Parties  to  the  United 
Nations Convention against Transnational Organized Crime. 
The  European  Parliament  in  its  resolution  adopted  in  May  2021  found  that  “Enhancing  proper  legal  migration 
channels  would  help  to  reduce  irregular  migration,  undermine  the  business  model  of  criminal  smugglers,  reduce 
trafficking  in  human  beings  and labour  exploitation,  enhance  equal  opportunities  for  all  workers  and offer  a  legal 
path for those considering migrating to the Union”. See also the New Pact on Migration and Asylum. 
According to the Joint Research Centre, these factors include the broader political, socio-economic and demographic 
trends  in  countries  of  origin  and  destination,  as  well  as  migration  policies  and  broader  state  policies  such  labour 
market  regulations.  See:  Joint  Research  Centre,  What  relationship  is  there  between  irregular  and  irregular 
migration?, 2019. 
Analysis  of  the  impact  that  the  availability  of  regular  channels  of  migration  has  on  reducing  demand  for  the 
smuggling  of  migrants’,  Working  Group  on  the  Smuggling  of  Migrants,  Conference  of  the  Parties  to  the  United 
Nations Convention against Transnational Organized Crime. 

10 

 
 
 
 
networks  and  risks  of  human  trafficking  and  labour  exploitation60.  Additionally,  the  Joint 
Research Centre also  points out61 to this indirect relationship between legal and irregular 
migration: fostering legal migration channels may have a signalling effect for migrants who 
could be considering undertaking irregular migration journeys62. Providing legal channels for 
migration  could  also  facilitate  cooperation  with  third  countries  in  curbing  irregular 
migration and stepping up border management63. Opening legal channels can also contribute 
to developing human capital in countries of origin and provide some relief in sectoral niches 
of the destination countries’ economies. 
Consequently,  it  is  key  to  create  safe  and  effective  pathways  to  reduce  the  incentives  for 
irregular migration and to engage with third countries strategically on migration management, 
notably by establishing comprehensive, balanced and tailor-made partnerships64. At the same 
time,  in  order  to  reduce  irregular  migration,  studies  suggest65  that  a  series  of  additional 
accompanying  measures  should  be  considered,  for  instance  tackling  opportunities  for 
employment  in  the  informal  economy,  border  enforcement  measures,  and  resettlement 
opportunities for those in need of international protection. 

2.  PROBLEM DEFINITION 

2.1 What is the problem? 

Problem: Insufficient recruitment of third-country nationals through legal migration pathways 
to address EU labour and skills shortages 
The  EU  Talent  Pool  initiative  aims  to  tackle  insufficient  recruitment  of  third-country 
nationals  (TCNs)  through  legal  migration  pathways  to  address  labour  and  skills 
shortages in the European Union.  
As explained in Section 1.2.1, the overarching challenge in the EU is the increasing shortage 
of workforce and skills. Some differences exist in the Member States in terms of scale of the 
problem and sectors facing the most persistent shortages. However, overall all Member States 
experience  labour  and  skills  shortages  at  all  skills  levels  and,  therefore,  labour  and  skills 
shortages represent a common challenge requiring a European response.  
The EU’s approach to addressing these shortages relies firstly on activating resident inactive 
populations  as  well  as,  re-skilling  and  up-skilling  the  existing  workforce,  improving 
working  conditions,  addressing  gender  segregation,  and  fostering  labour  market  transitions 
across sectors and occupations  (see Section 4.3 for more details).  However, it takes  time  for 
such measures to have an actual effect on the labour market and on productivity. In addition, 
these  initiatives  may  not  be  sufficient  alone  to  fully  address  existing  and  future  labour 
shortages. At national level, Member States are also implementing  initiatives to this purpose. 
However, as acknowledged in the Decision of the European Parliament and of the Council on a 

60  

61  

62  

63  

64  
65  

Policy Brief "Mapping the Landscape of the Smuggling of Migrants" by the UN Network on Migration. Exploring 
the Links Between Enhancing Regular Pathways and Discouraging Irregular Migration, IOM, p.6. 
Joint Research Centre, What relationship is there between irregular and irregular migration?, 2019, on the basis of 
JRC Publications Repository - Datasets on Irregular Migration and Irregular Migrants in the EU (europa.eu). 
If  the  probability  of  legal  migration  becomes  more  realistic,  migrants  may  decide  to  invest  in  increasing  their 
chances to migrate through legal migration channels e.g. by acquiring new skills and learning new languages. 
A  good  example  of  this  phenomenon  could  be  also  the  German  Western  Balkans  Regulation,  which  aimed  to 
increase legal pathways during the so-called 2015 migration crisis. Under this new Regulation, more than 117,000 
work contracts were submitted and approved, and 44,093 applicants received work visas between 2015 and 2017.  
Joint Research Centre, What relationship is there between irregular and irregular migration?, 2019. 
Joint Research Centre, What relationship is there between irregular and irregular migration?, 2019. 

11 

 
 
 
European  Year  of  Skills,  Member  States’  public  and  private  investments  in  reskilling  and 
upskilling are still insufficient.66 
In addition,  current  intra-EU mobility67 is  stable  and EU mobile workers  across Europe are 
concentrated in a few occupations requiring low and medium skills, such as logistics and low-
skilled  jobs68.  Thus,  its  potential  to  fully  address  structural  labour  shortages  is  limited, 
especially considering that shortages are reported across all Member States, in a diverse range 
of sectors and at all skills levels.  

Therefore,  attracting talent from  outside of the EU is  key to  address  existing and future 
skills shortages which might not be sufficiently addressed by other initiatives, while reducing 
irregular  migration  pressure.  Certain  Member  States  already  recognise  the  importance  of 
labour migration as part of the policy solution and are developing talent attraction policies to 
this purpose. For instance, Germany has recently reformed its legislation and policies to attract 
workers  from  third  countries69.  These  initiatives  include  the  implementation  of  specific 
migration  schemes  and  fast-track  immigration  procedures  to  make  the  obtention  of  a  work 
permit  easier  and  faster70.  In  addition,  certain  Member  States  introduce  exclusions  from  the 
labour  market  test  for  occupations  suffering  the  most  persistent  shortages71.  However,  these 
facilitated migration schemes mainly focus on highly-skilled workers72 while labour shortages 
are  faced  at  all  skills  levels.  In  addition,  only  few  Member  States  put  in  place  dedicated  job 
matching  platforms  to  facilitate  international  recruitment  of  TCNs  residing  abroad73  (for  a 
more detailed explanation of existing initiatives in the Member States see also sub-driver 1.1). 
Notwithstanding,  these  initiatives  are  aimed  at  making  labour  migration  more  effective,in 
2022, 1.6 million of TCNs received first residence permits linked to employment74. While this 
constitutes a significant number, it only represents 42% of the first overall residence permits75 
(which suggests that the potential for labour migration to the EU is underutilised). In addition, 
this is still insufficient to meet the gaps of labour shortages in the EU considering that, for 
instance,  companies  reported  in  the  first  quarter  of  2023  around  3.7  million  job 
vacancies (excluding  data  from  Denmark,  France,  and  Italy)  of  which  2.8%  remained 
unfilled76. Extrapolating to the full EU27, the number of reported vacancies may be around 6.3 
million with corresponding 175.000 unfilled positions.  

66  

67  
68  

69  

70  
71  
72  
73  
74  

75  
76  

Proposal  for  a  Decision  of  the  European  Parliament  and  of  the  Council  on  a  European  Year  of  Skills  2023, 
COM/2022/526 final. 
Indicating labour mobility of the EU citizens and other legal residents across Member States.  
According  to  2022  annual  report  on  intra-EU  labour  mobility,  in  2020,  irrespective  of  the  COVID  pandemic,  the 
number  of  EU  mobile  workers  remained  stable  at  10.2  million  which  corresponds  to  3.3  %  of  the  overall  EU 
working population . In 2021, there are just over 1.7 million cross-border workers. Annual report on intra-EU labour 
mobility 2022 published - Employment, Social Affairs & Inclusion - European Commission (europa.eu). 
In order to address labour shortages in Germany, the Skilled Immigration Act is  in the process of being reformed. 
The new legislation will gradually come into force by June 2024 and  aims to facilitate the entry and residence of 
qualified skilled workers from third countries. 
For instance, Denmark, Finland, France, Germany, Malta, Ireland.  
For instance, Ireland, Croatia, Slovakia.  
Austria, Belgium, Croatia, Cyprus, Czechia, Denmark, Estonia, Finland, France, Germany, and Greece.  
For example, the BfA job portal (Germany). 
Preliminary data on first residence permits published by Eurostat: Nearly 3.7 million first residence permits issued in 
2022 - Products Eurostat News - Eurostat (europa.eu). This does not cover persons fleeing Ukraine due to Russia’s 
invasion (out of approximately 4 million who received temporary protection status, more than 1.5 million entered the 
labour market either as employed or as jobseekers in February 2023). 
Nearly 3.7 million first residence permits issued in 2022: Products Eurostat News - Eurostat (europa.eu) 
Eurostat (jvs_q_nace2). 

12 

 
 
 
2.2. What are the problem drivers 

2.2.1 Drivers outside of the scope of the EU Talent Pool initiative 

Several different drivers underly the identified problem. One of them lies outside of the scope 
of migration policy and could not be addressed by the EU Talent Pool initiative: the overall 
EU  attractiveness,  which  is  influenced  by  factors  outside  the  migration  and  recruitment 
framework77. This driver will not be analysed in this Report.  
Some  other  drivers/sub-drivers  fall  within  the  migration  and  employment  policies,  but  are 
addressed in full or in part by certain inter-related ongoing or envisaged EU initiatives78. 
The  analysis  of  drivers/sub-drivers  in  sections  below  covers  all  their  aspects  but  focuses  on 
those  that  are  addressed  by  the  EU  Talent  Pool.  The  drivers  and  sub-drivers  that  the  EU 
Talent  Pool  seeks  to  address  could  be  divided  into  two  groups:  1)  drivers  related  to  the 
employment aspects and 2) drivers related to the migration aspects.79  

Figure 2: Main problem and underlying drivers 

* Sub-drivers that will be only partially addressed by the EU Talent Pool are coloured with a diagonal stripes pattern.  

2.2.2 Drivers related to the employment aspects  

In order to apply for a visa or work permit to come to the EU to work, a TCN first needs to 
receive  a  job  offer  from  an  interested  EU  employer.  However,  there  are  several  barriers  in 
international  job  matching  and  understanding  skills  and  qualifications  of  TCNs  that  make 
hiring from abroad more challenging compared to recruitment within the EU.  

Problem driver 1: Cumbersome and ineffective international job matching 

77  
78  

79  

E.g. the living standards, the welfare and tax systems, the language spoken, the wage level, etc. 
Sub-driver  2.1:  Complex  and  ineffective  recognition  and  validation  procedures  in  the  Member  States,  sub-  driver 
3.1.Complex migration framework within the EU with cumbersome procedures often leading to irregular pathways; 
Driver 4: Inconsistent and fragmented cooperation with third countries on legal migration/migration management 
This duality results from the fact that, in general, the process leading to a TCN from outside the EU to undertake a 
job  in  a  Member  State  consists  of  two  stages:  i)  An  employer  and  an  TCN  find  each  other  and  a  TCN  needs  to 
receive a job offer (recruitment procedure); ii) once the TCN has been recruited, he/she applies for an employment-
related residence permit (immigration procedure).  

13 

 
 
 
 
 
 
 
Sub-driver 1.1.: Insufficient channels for and information on international recruitment  

As  confirmed  by  the  desk  research80,  as  well  as  by  the  survey  of  TCNs  carried  out  in  the 
context of a study supporting this Report (‘the Study’)81 and the feedback gathered within the 
Expert  Group  on  the  Views  of  Migrants82,  TCNs  encounter  difficulties  in  accessing  and 
understanding information  relevant  for international recruitment. This includes information 
about  job  opportunities83,  minimum  wages84  as  well  as  information  on  administrative 
procedures and living and working conditions in the Member States. Potential migrants need to 
navigate  through  fragmented  information  on  different  hiring  processes,  labour  laws  and 
profession-specific  requirements  in  different  Member  States.  This  may  prevent  TCNs  from 
looking  for  a  job  in  the  EU.  Based  on  the  survey  of  employers,  one  of  the  key  barriers  for 
international  recruitment  is  understanding  the  complex  rules  and  procedures  for  recruiting 
workers from outside the EU. This impacts SMEs more severely than bigger companies85. As 
confirmed  by  the  survey  in  the  context  of  the  Study,  EU  employers  face  challenges  as  the 
existing channels are not effective to attract a suitable pool of TCNs and do not facilitate their 
successful  recruitment,  and  lack  the  necessary  information  and  support  tools  geared  towards 
employers’ needs86.  

There  is  no  single  European  job  platform  with  vacancies  and  information  specifically 
directed  at  TCNs  living  outside  the  EU  that  aggregates  opportunities  from  across  the  EU. 
There  are  nevertheless  several  targeted  external  channels  or  platforms  that  TCNs  may  use87. 
However, all have different shortcomings in terms of the job opportunities and requirements 
presented, and the support they provide: 

•  National job boards: Mainly in the local language and tailored to domestic job seekers, 
they  do  not  provide  explicit  information  on  requirements  relevant  to  international 
applicants (such as language proficiency or administrative procedures for TCNs). 

•  International  job  search  portals:  While  aggregating  job  postings  from  Europe,  they 
may  lack  sufficient  listings  from  smaller  Member  States.  Moreover,  they  often  lack 
country-specific information and support tools on requirements and regulations. 

•  Social media and online job matching services: Platforms like LinkedIn, Upwork, and 
Freelancer are popular among highly skilled professionals, but they are not widespread 
among  low  to  medium  skilled  workers.  They  neither  offer  specific  information  or 
assistance tailored to TCNs. 

•  Recruitment agencies: While they are often used by skilled workers, their services may 
be too costly for those with lower earning potential. In addition, availability of private 
recruitment  agencies’  services  for  medium  and  low  skills  recruitment  is  rarer.  Also, 

80  
81  

82  

83  

84  
85  

86  

87  

Building the EU Talent Pool. A new approach to migration management for Europe, OECD, 2019. 
The Study reported that finding suitable job opportunities was a barrier for 43% of respondents, while 44% struggle 
to understand how to align with job requirements. 
The experts in this Group highlighted that TCNs often face a lack of support when seeking employment in the EU, in 
particular  due  to  the  absence  of  information  on  visa  procedures,  job  opportunities,  and  even  qualification 
recognition. 
In  the  survey  carried  out  in  the  context  of  the  Study,  finding  suitable  job  opportunities  was  a  barrier  for  43%  of 
respondents, while 44% struggle to understand how to align with job requirements. 
Building the EU Talent Pool. A new approach to migration management for Europe, OECD, 2019.  
Large companies often have an in-house department responsible for international recruitment (in-house expertise) or 
resources to request private recruitment agencies support. 
According to the majority of employers participating in the survey in the  context of the Study (61%), applications 
received  via  existing  recruitment  channels  are  often  unsuitable  for  the  job  requirements  and  39%  of  them  have 
difficulties in finding enough candidates from abroad. 
For further information on these channels and their specific limitations, see Annex 8. 

14 

 
 
 
employers  for  whom  international  recruitment  is  a  novelty  or  one-off  experience 
(which may be a case for many SMEs) may struggle to access such channels.  

•  Job fairs: International job fairs allowing employers and job-seekers to meet in person 
are costly and may be administratively burdensome when they involve authorization for 
foreign workers to travel to the event venue. As consequence, they are rare, and involve 
a limited number of participants. 

As mentioned above, some Member States are developing talent attraction policies to facilitate 
the  recruitment  of  TCNs  from  abroad  with  a  view  to  address  labour  and  skills  shortages. 
However, Member States’ approaches vary significantly and information on existing migration 
schemes is not always easily accessible and understandable for TCNs residing abroad. Several 
Member  States  do  not  have  in  place  official  portals  or  web  pages  specifically  designed  to 
support TCNs in the recruitment process.88  For instance, the official websites in Croatia and 
Slovakia provide basic information on available work permits while no specific information is 
available  on  employment  rules  or  recognition  of  qualifications  and  skills.  However,  no 
additional  relevant  information  for  the  purposes  of  international  recruitment  is  provided.  In 
absence  of  an  official  source  of  information,  TCNs  may  rely  on  websites  operated  by 
commercial  entities  or  non-governmental  organisations  offering  guidance  for  free.  However, 
the  accuracy  of  the  information  may  not  be  guaranteed  nor  regular  updates  on  existing  rules 
and procedure are ensured.   

Only  some  Member  States  have 
  dedicated  information  portals  in  place  providing 
comprehensive  guidance  specifically  targeting  TCNs  looking  for  job  opportunities  in  the 
Member State.89  These portals offer information in the national languages and in English90. In 
some cases, translations in additional languages are provided91. A limited number of Member 
States have developed dedicated job matching portals to facilitate international recruitment92. 
These portals provide additional functionalities to the simple information provision, including 
the possibility for jobseekers to create a profile and search for job vacancies. For instance, the 
German platform ‘Make it in Germany’93 provides extensive information on the labour market 
situation  and  professions  in  demand,  immigration  procedures  and  living  and  working 
conditions in the Member States. In addition, it offers to  employers the possibility to upload 
job vacancies.94   

Where  job  portals  dedicated  to  TCNs  already  exist  in  the  Member  States,  the  available 
functionalities vary significantly and certain components aimed at  facilitating the recruitment 
such as an automated matching tool are not always available95. In addition, in some Member 

88  
89  
90  

91  

92  

93  

94  

95  

Bulgaria, Croatia, Hungary, Ireland, Italy, Latvia, Ltihuania, Portugal, Romania, Slovakia. 
Austria, Belgium, Denmark, Estonia, Finland, France, Germany, Netherlands, Poland, Slovenia, Sweden. 
The majority of the websites provide information both in the national language and in English while onlyDenmark 
and Finland provide information only in English. 
For  example,  Germany  (Make  it  in  Germany  job  portal)  provides  information  in  German,  English,  Spanish  and 
French. 
Austria,  Belgium  (Flanders),  Czechia,  Denmark,  Estonia,  Finland,  Germany,  the  Netherlands,  Spain  (under 
development).  
The platform ‘Make it in Germany’ is dedicated to the recruitment of skilled workers who live abroad. Germany has 
established a second platform to facilitate the recruitment of international workers, the BfA job portal, which targets 
workers and skilled workers who live abroad. 
However,  jobseekers  profiles  are  not  available  on  the  platform.  Interested  jobseekers  can  directly  send  their 
application to the employers on the basis of the published job vacancies. 
Germany is the only Member State with a job portal dedicated to third-country nationals, the BfA job portal, with an 
automated  matching  tool.  In  terms  of  search  functionalities,  the  job  portals  implemented  by  Austria,  Denmark, 
Estonia,  Finland  and  the  Netherlands  only  have  a  minimal  number  of  such  filters,  usually  the  location  and  job 
category.  While  jobseekers  can  create  their  profile  on  the  job  portals  created  by  Czechia  and  Germany  (BfA  job 

15 

 
 
 
 
States  these  platforms  are  specifically  targeting  only  highly-skilled  workers.  In  addition,  the 
majority of these platforms have a limited uptake in terms of job vacancies posted or the job 
vacancies available are not exclusively for TCNs96. Overall, the lack of a harmonised approach 
in terms of services available to international recruitment together with the reduced visibility of 
existing  national  platforms  at  global  level  reduce  the  Member  States  ability  to  achieve 
economies of scale when developing talent attraction policies individually.  

The  majority  of  the  Member  States  consulted  in  the  context  of  this  initiative  confirmed  that 
difficulties  in  accessing  information  and  identifying  relevant  channels  for  recruitment 
constitute  a  barrier  to  international  recruitment.  The  majority  of  the  Member  States  also 
confirmed  the  absence  of  dedicated  job  matching  platforms  for  international  recruitment  at 
national level and acknowledged the potential added value of the EU Talent Pool which would 
ensure  clearer    provision  of  information  on  recruitment  rules  and  migration  schemes.97 
Member  States  already  having  in  place  similar  tools  also  recognised  the  potential  positive 
impact of this initiative in complementing existing national systems.  

Sub-driver 1.2: High costs of the international recruitment  
As reported by the OECD98 and associations representing employers participating in the survey 
carried out in the context of the Study99, employing TCNs involves significantly higher costs 
compared to domestic recruitment. 

For employers, these costs include: gathering additional information involved in international 
job-matching through intermediaries, filing relevant applications, administrative expenses such 
as  translating  their  job  postings  to  different  languages,  advertising  international  vacancies, 
verifying  the  authenticity  of  TCNs  official  documents100,  and  travel  or  accommodation 
expenses for interviewing in  other countries.  These costs can  be  substantial101, especially for 
hiring the highly-skilled workers102 and may act as a deterrent for employers.  

For TCNs, the main cost factors in the job search phase are linked to translations of necessary 
documents,  administrative  fees  (e.g.  for  apostilles)103,  and  fees  to  receive  support  from  an 
employment  agency  or  accessing  a  job  search  platform104.  Upon  being  selected,  further 
administrative  fees  (related  to  visa  and  work  permit  procedures)  will  arise,  which  can  be 

96  

97  

98  
99  
100  
101  

102  

103  

104  

portal),  the  creation  of  jobseeker  profiles  is  impossible  on  the  ones  established  by  Austria,  Denmark,  Estonia, 
Finland and the Netherlands. 
Austria  (1,800),  Belgium  (70),  Czechia  (200,000  but  not  exclusively  for  TCNs),  Denmark  (3,200),  Finland  (400), 
etc. 
Consultations conducted in the context of the EMN Talent Pool Working Group and the European Labour Migration 
Platform. See Annex 2 for more details.  
Building the EU Talent Pool. A new approach to migration management for Europe, OECD, 2019. 
See Annex 2 on Synopsis report. 
Costs related to recognition of qualifications and immigration procedures described in further sections of this Report. 
The  average  cost  to  employers  of  recruiting  a  TCNs  can  be  between  EUR  1  500  and  EUR  2  500  per  candidate 
(including immigration procedures, but excluding relocation costs).  This cost can rise to EUR 8 500-10 000 when 
adding services of international recruitment agencies. See: Chapter 6 of the ‘Study’. 
Estonia for instance, has set the level of grant funding it provides to companies to recruit one top specialist in the 
field of science and engineering at 3,000 EUR. See EMN, Ad hoc query 2020.2, Talent Attraction and International 
Recruitment of Third-Country Nationals.  
Certified translations may cost up to EUR 20 per page. Apostilles may be free of charge or cost very little in some 
places, but the fees can reach €30 or more per document in others. 
Applications  fees  vary  substantially  among  Member  States:  in  some  Member  States  the  application  fees  represent 
between  25-50%  of  the  monthly  earnings,  while  in  others  it  represents  between  10-24%.  The  average  cost  for 
submitting an application is around EUR 700, and the cost to obtain recognition of qualifications is on average EUR 
350.  Additional  costs  for  TCNs  come  from  translating  diplomas,  medical  certificates  and  travel  to  the  diplomatic 
missions to submit the application.  

16 

 
 
 
 
substantial105. Such different costs can easily add up to considerable amounts, thus preventing 
TCNs from considering international recruitment.106  
As  the  OECD  points  out107,  even  when  labour  shortages  or  skills  needs  are  significant,  such 
financial  burden  may  lead  firms  to  drop  plans  of  international  recruitment,  especially  SMEs 
that may lack sufficient resources to engage in such process.  Furthermore, TCNs who cannot 
afford such costs may resort to alternative routes, including irregular migration. 

Sub-driver 1.3: Risk of unfair recruitment  
Propensity of TCNs to move abroad for work can be impacted by the risk of unfair recruitment 
practices  (personal  biases).  A  main  factor  behind  TCNs’  perception  of  the  risk,  and  behind 
actual cases of exploitation is their limited knowledge of the rules and what exactly to expect 
from and during the procedures of recruitment, of the red flags to look for.108  

During  stakeholder  consultations,  International  Labour  Organisation  (ILO)  and 
the 
Fundamental  Rights  Agency  (FRA)  highlighted  compelling  evidence  that  the  recruitment  of 
third-country  workers  in  the  EU  often  involves  abusive  practices109.  The  ILO  has  also 
emphasised  that,  in  some  cases,  job  postings  lack  clear  minimum  specifications  for  working 
conditions  and  employment  terms.  Workers  applying  for  these  positions  lack  transparent 
descriptions  of  the  vacancies,  both  in  terms  of  working  standards  and  wages.  This  creates 
substantial  risks  in  terms  of  fair  recruitment.  While  the  situation  may  not  be  better  in  other 
countries around the world, such practices still cause reputational damage to the EU, and may 
impact the plans of many qualified TCNs to pursue job opportunities in the EU.  

Problem  driver  2:  Employers  and  TCNs  have  difficulties  to  understand  how  skills  and  
qualifications obtained in third countries correspond to those required at national level 

The  need  to  undergo  recognition  procedures  and  the  uncertainty  about  the  accuracy, 
quality and comparability of foreign qualifications constitutes one of the main disincentives 
for EU employers and TCNs to rely on international recruitment. As part of the Commission’s 
package on talent mobility, a Commission recommendation aimed at facilitating recognition 
of  qualifications  obtained  in  third  countries  is  planned.  It  will  directly  address  the  issue  of 
complexity and length of the recognition procedures (sub-driver 2.1). The  Communication on 
skills  and  talent  mobility  will  also  announce  operational  measures  to  build  trust  in 
qualifications  and  skills  gained  in  third  countries,  and  improve  information  provision  on 
recognition/validation  procedures  and  decisions.  The  EU  Talent  Pool  would  complement  the 
above  mentioned  recommendation  and  measures  by  improving  information  provision  and 
support in understanding foreign qualifications and access to the procedures (sub-driver 2.2).  

Sub-driver  2.1:  Complex  and  ineffective  recognition/validation  procedures  in  the  Member 
States 
Recognition  procedures  allow  TCNs  holding  foreign  qualifications  to  access  certain  jobs 
(recognition  of  professional  qualifications)110.  Formal  recognition  of  foreign  professional 

105  
106  

107  
108  
109  

110  

See section on Sub-driver 3.1. 
A 2023 survey conducted by the German Federal Ministry of Labour and Social Affairs identified that the third (out 
of  ten)  most  significant  barrier  to  TCNs  potentially  interested  in  working  in  Germany  was  insufficient  financial 
means to cover all costs. See: OECD (2023) Migration Data Brief No 9, July 2023. 
Building the EU Talent Pool. A new approach to migration management for Europe, OECD, 2019. 
https://www.migrationpolicy.org/sites/default/files/publications/LaborMigration-Recruitment_0.pdf  
These practices include the imposition of recruitment fees on workers (rather than employers), absence of contracts 
or contract substitution, and other related issues.  
Recognition procedure also allow access to further learning (academic recognition) in the Member States. 

17 

 
 
 
 
qualifications  is  a  pre-requisite to  perform a job  in  regulated professions.111 In non-regulated 
professions,  formal  recognition  of  foreign  professional  qualifications  is  not  mandatory,  but 
often  used  to  increase  employers’  trust  in  TCNs  qualifications  and  prevent  mismatches. 
However, as demonstrated in the 2019 Legal Migration Fitness check112, the process to obtain 
such recognition is often unpredictable, costly, burdensome and lengthy113. This complexity 
is exacerbated by the fact that this  subject is fully regulated by national  rules, that can differ 
from  one  Member  State  to  another  (there  is  no  EU  legislation)114.  Therefore,  recognition  of 
qualifications can be an important barrier to international recruitment for both employers and 
TCNs,  especially  when  it  is  a  pre-condition  to  access  the  labour  market.  This  was  also 
confirmed by the Member States’ representatives consulted in the context of the EMN Talent 
Pool  Working  Group  which  recognised  the  importance  of  clearer  and  more  understandable 
provision of information and tailored support on recognition of qualifications procedures. 

When formal recognition of foreign  qualifications is  not  required, employers and TCNs may 
opt  for  validation  procedures  to  obtain  a  non-binding  statement  of  equivalence  or 
comparability of the skills and qualifications.115 Validation of skills and qualifications plays an 
important  role  in  building  employers’  trust  in  TCN  candidates’  profiles  and  avoiding 
mismatches.116  However,  similarly  to  recognition  procedures,  validation  processes  can  differ 
from  one  Member  State  to  another  both  in  terms  of  rules  and  competent  actors.  Validation 
procedures also imply additional costs and time for employers, especially SMEs, and TCNs117.   

While  both  recognition  and  validation  procedures  are  important  for  guaranteeing  the 
genuineness and quality of a qualification, lengthy, opaque or burdensome procedures can act 
as a disincentive to both employers and TCNs. 

Sub-driver 2.2: Lack of transparency on comparability of skills and qualifications 

According  to  Expert  Group  on  the  Views  of  Migrants  and  the  Expert  Group  on  economic 
migration and social and economic partners, information and guidance supporting TCNs and 
employers  to  navigate  this  complex  framework  is  often  missing  and  difficult  to  access.  In 
addition,  employers  and  TCNs  might  opt  to  compare  foreign  skills  and  qualifications  by 

111  

112   

113  

114  

115  

116  

117  

Some  professions  are  regulated  at  EU  level  by  Directive  2005/36/EC  (e.g.  doctors,  nurses,  architects,  midwives). 
However, Member State may add more professions to the list foreseen by the Directive. 
Legal  Migration  Fitness  check,  SWD(2019)  1056  final:  feedback  to  the  call  for  evidence,  consultations  with  the 
European Training Foundation, SkillLab, EMN Talent Pool Working Group. 
The average fee of recognition procedures is of around EUR 150 per application and the duration of the procedure is 
of approximately 50 days. However, employers can incur in additional costs related to the translation or legalisation 
of  documents.  Source:  Consultation  activities  with  the  national  representatives  of  the  NARICs  Network, 
complemented by desk research. 
7  Member  States  have  ratified  the  UNESCO  Global  Convention  on  the  Recognition  of  Qualifications  concerning 
Higher Education. 
Validation  is  a  broad  concept  that  involves  processes  for  assessing  and  confirming  the  skills,  competencies  or 
knowledge  acquired  through  non-formal  or  informal  learning,  work  experience,  or  training.  The  purpose  of 
validation  is  to  recognise  and give  value  to  the  skills  and  competencies  that  individuals have gained  (also  outside 
formal  education  settings).  Employers  may  conduct  validation  procedures  internally  (especially  when  it  comes  to 
multinationals)  or  request  specific  certificates  or  assessment  of  comparability  via  national  stakeholders  (e.g. 
universities, relevant ministries). Contrary to validation, recognition refers to the process of formally acknowledging 
the validity and equivalence of educational degrees, diplomas, certificates, or qualifications obtained in one country 
by a competent authority in another country. 
While both  recognition  and  validation  procedures  are  important  for guaranteeing  the genuineness and quality  of  a 
qualification, lengthy, opaque or burdensome procedures can actas a disincentive to both employers and TCNs. 
The  costs  associated  with  those  validation  procedures  amount  to  an  average  of  EUR  140  per  application  and  an 
average time of around 70 days. There are however a number of countries that conduct validation procedures free of 
charge (such as the Netherlands and Slovenia). The costs associated with validation procedures were estimated based 
on inputs provided by national representatives of the National Academic Recognition Information Centres (NARIC) 
network and their websites. 

18 

 
 
 
themselves  instead  of  undergoing  the  cumbersome  recognition  and  validation  process. 
However,  this  exercise  is  quite  complex  as  employers  face  difficulties  in  understanding 
whether candidates from third countries have the right skills and qualifications to successfully 
perform a certain job. In addition, the lack of clarity on skills levels and qualifications required 
in the job vacancies constitutes a major risk of mismatches often leading to over qualification 
and, therefore, discouraging TCN from applying for a job in the EU118.  

Therefore,  transparency  and  comparability  of  skills  and  qualifications  obtained  in  third 
countries play an important role in the context of international job matching. At EU level, a 
number  of  initiatives  have  been  developed  to  ensure  more  transparency  and  better 
comparability of skills and qualifications: 

•  Europass  and  the  EU  Skills  Profile  Tool  for  third-country  nationals  offer  support  to 
TCNs  when  creating  a  profile.  This  support  also  benefits  employers  since  it  make  the 
candidate profile clearer and more understandable.  

•  The European Qualifications Framework (EQF) and National Qualification Framework 
(NQF),  as  well  as  the  multilingual  European  Classification  of  Skills  Competences, 
Qualifications  and  Occupations  (ESCO)  offer  better  understanding  of  skills  and 
qualifications. 

•  The  ENIC-NARIC  network  of  national  academic  recognition  centres  provide 

information, advice and recognition decisions. 

•  The European Digital Credentials for learning (EDC) allows for the building, issuing in 
a  digital  format,  storing,  sharing  and  verification  of  qualifications  and  other  credentials 
awarded  by  educational  and  training  organisations  to  be  understood  and  verified  in  all 
Member States.  

However, some of these transparency and comparability tools are not specifically conceived to 
support  employers  and  TCNs  during  the  recruitment  phase  but  rather  to  orient  national 
authorities  during  the  recognition  procedures.  In  addition,  some  of  them  are  not  easily 
accessible and understandable for interested individuals.  

2.2.3 Drivers related to the migration aspects 

Problem driver 3: Non-transparent and cumbersome immigration procedures 

The limited use of labour migration pathways to address the EU labour and skills shortages lies 
in  the  overall  fragmentation  of  the  migration  framework  which  results  in  complex  and 
cumbersome  procedures  difficult  to  understand  and  navigate  for  both  employers  and  TCNs. 
The lack of transparency on applicable rules exacerbates this complexity. Sub-driver 3.1 will 
not  be  tackled  by  the  initiative,  as  the  ongoing  revision  of  the  Single  Permit  Directive  will 
address challenges related to the complexity of the migration framework by making procedures 
easier and faster. By contrast, the EU Talent Pool initiative will directly address the sub-driver 
3.2 by improving transparency of migration rules and procedures. 

Sub- driver 3.1: Complex migration framework within the EU with cumbersome procedures  

The  framework  regulating  legal  pathways  for  work  in  the  EU  is  complex  and  fragmented, 
consisting of several sectorial EU Directives119, which coexist with various national rules and 

118  
119  

Consultations with the European Training Foundation. 
The Single Permit Directive lays down a single and simplified application procedure combining the authorisation to 
work and reside for workers from non-EU countries admitted under Member States’ national schemes. The EU Blue 
Card  Directive  covers  highly  qualified  workers.  The  Intra-Corporate  Transferees  Directive  sets  the  conditions  to 

19 

 
 
 
 
procedures. In this sense, admission criteria, procedures and documents to submit in order 
to  obtain a visa or permit  may vary across Member States120. In fact,  61% of employers and 
52%  of  TCNs  consider  difficulties  to  understand  employment  and  migration  procedures  as  a 
very  important  barrier  to  international  recruitment121.  Additionally,  heavily  bureaucratic 
procedures in some Member States have a disproportionate impact on SMEs122. Also, as the 
OECD points out, the fragmented migration system has limited the potential for employers to 
draw on the wider EU Internal Market as a key factor of attractiveness for TCNs123. 
Migration  procedures  are  also  often  lengthy  and  cumbersome.  The  average  length  of 
international  recruitment  process  is  4-6  months,  and  approximately  half  of  this  time  is 
dedicated  to  immigration  procedures124.  Most  Member  States  apply  labour  market  tests125, 
which creates an additional step in the recruitment of TCNs and further increases the length of 
the  procedures.  72%  of  employers  and  51%  of  TCNs  believe  the  entire  recruitment  and 
immigration  process  to  be  excessively  time-consuming126.  Lastly,  as  mentioned  above  (sub-
driver  1.2)  international  recruitment  implies  significantly  higher  costs  for  TCNs  and 
employers in comparison with domestic recruitment also due to administrative fees required to 
obtain a visa and work permit.127   
These findings were widely supported by various stakeholders consulted128. 

Sub-driver 3.2: Lack of transparency of migration rules and procedures  
The  EU  legal  migration  Directives  require  Member  States  to  provide  public  information  on 
conditions for admission and residence, and to grant TCNs and future employers - upon request - 
access  to  adequate  information  on  the  documents  required  for  making  a  complete 
application129. However, as concluded in the 2019 Legal Migration Fitness check, TCNs face 
difficulties  in  accessing  clear  information  and  guidance  on  migration  procedures  and 
personalised support. Rules on adequate access to information differ per Member State and 

120  

121  

122  
123  
124  
125  

126  
127  

128  

129  

enter and in the EU for an intra-corporate transfer (i.e., a posting from a company operating in a non-EU country in a 
branch in the EU). The Seasonal Workers Directive covers third-country nationals holding and authorisations for the 
purpose of seasonal work.  
All EU Directives are consistent in requiring the TCNs to submit proof of sufficient resources, sickness insurance in 
respect of all risks normally covered for nationals in the Member State concerned, adequate accommodation, and a 
valid  travel  document.  Additionally,  each  Directive  may  require  other  mandatory  documents.  The  three  main 
Directives  covering  specific  categories  of  TCNs  who  wish  to  migrate  for  the  purpose  of  work  require  as  an 
admission  condition  the  presentation  of  a  valid  work  contract  (Blue  Card  Directive,  Seasonal  Workers  Directive, 
Intra-corporate Transferees Directive), a binding job offer (Blue Card Directive, Seasonal Workers Directive) or a 
training agreement (intra-corporate trainees and trainees under the Student&Research Directive).  
See  the  Study,  figure  32,  p.  81.  Also  the  2019  Legal  Migration  Fitness  check  demonstrated  that  the  EU  legal 
migration  acquis  presents  a  number  substantial  differences  in  Member  States’  practices,  making  difficult  for 
employers and TCNs to correctly understand the applicable legal framework in the different Member States. 
Legal Migration Fitness Check, Public and stakeholder consultations, EU Synthesis Report, Annex 3Ai, p. 44. 
OECD, Building the EU Talent Pool. A new approach to migration management for Europe, 2019. 
See: Chapter 6 of the Study, p. 222 [to check the final version] 
The labour market test (LMT) is a mechanism used several Member States to ensure that TCNs are only admitted to 
apply for a given position when this position cannot be filled by a domestic or EU/EEA citizen worker (or legally 
residing  TCNs  enjoying  freedom  of  movement).   LMT  vary  significantly  across  Member  States  in  terms  of 
complexity, duration and cost. 
Surveys carried out in the context of the Study. 
The administrative fee for the application for a short-stay visa in Germany is EUR 80; while the fee for a standard 
residence permit is EUR 135, and a long-term residence permit for highly skilled workers is EUR 250. 
Economic  and  social  partners,  EMN  Talent  Pool  working  Group,  Public  Employment  Services,  Expert  Group  on 
Economic Migration, Focus group European Training Foundation, Cedefop, European Labour Authority 
Three Directives (Long Term Residence Directive, Family Reunification Directive and Blue Card Directive) lack an 
explicit obligation on Member States to provide information, while this is a specific requirement in the four more 
recent ones (Single Permit Directive, Seasonal Workers Directive, Intra-corporate transferee directive and Students 
and researchers directive).  

20 

 
 
 
per  migration  scheme.  Websites  of  some  Member  States130  providing  such  information  are 
difficult to navigate and require a certain level of computer knowledge, and the vast amount 
of  information  provided  by  authorities  online  is  often  too  technical,  incomplete,  outdated  or 
misleading131.  Member  States  consulted  in  the  context  of  this  initiative  identified  the 
difficulties  in  understanding  migration  procedures,  as  a  relevant  barrier  to  international 
recruitment and recognised the need for additional support in that regard.  
The  EU  Immigration  Portal  helps  interested  parties  by  offering  information  on  all  aspects 
related to migration to the European Union132. However, jobseekers and employers may not be 
aware of this information,  nor is  the Portal  fully customised to  individual  situations, or offer 
guidance to navigate successfully through the recruitment process. 
The lack of transparency and of clear and consistent information at EU level about migration 
procedures can function as a deterrent factor to potential migrants who consider moving to 
the  EU  for  work  purposes.  This  represents  an  obstacle  not  only  for  TCNs  but  also  for 
employers and in, particular SMEs, that lack sufficient means to rely on specialised agencies to 
provide assistance during the relevant procedures.   

Problem driver 4: Inconsistent and fragmented cooperation with third countries on legal 
migration/migration management  
There  is  a  significant  fragmentation  of  Member  States’  cooperation  with  third  countries  on 
labour migration. As a result, the EU as a whole is neither fully using its potential to attract the 
skills  needed  to  address  its  labour  shortages133,  nor  fully  exploiting  cooperation  on  labour 
migration  as  a  way  to  engage  with  key  partner  countries  strategically  on  migration 
management, notably by avoiding as much as possible the risk of brain drain. The EU Talent 
Pool  will  address  this driver only  indirectly and partially (see below sub-driver 4.1). The 
direct policy response to this driver is the development of Talent Partnerships at EU level134(as 
well as using the full potential of the EU Delegations and existing migration dialogues). The 
EU Talent Pool will support the implementation of the Talent Partnerships. 

Sub-driver 4.1:  Lack of coordination of Member States’ initiatives and agreements 
Due  to  the  increased  need  for  foreign  labour  force,  Member  States  are  multiplying  their 
negotiations of bilateral agreements and programmes with third countries. 17 Member States 
reported  having  more  than  120  bilateral  agreements,  programmes  and  projects  concerning 
labour migration with third countries135. The scope of these agreements varies136. 

This fragmentation prevents Member States from benefitting from economies of scale as 
regards,  for  instance,  training,  skills  validation  and  coordination  in  the  countries  of  origin, 
which  are  costly  and  time-consuming  initiatives137.  The  lack  of  coordination  among  Member 

130  

131  
132  
133  

134  

135  

136  

137  

Specific complications have been identified with finding information in Member States like BG, CY, LU, MT, PT, 
commission staff working document, Legal Migration Fitness check, SWD(2019) 1056 final, p. 313. 
Idem, p. 315. 
EU Immigration Portal (europa.eu). 
Lucas  Rasche  "The  EU’s  race  for  talent:  Common  challenge,  no  shared  response."  Jéacques  Delors  Policy  Brief, 
2023 
In  line  with  the  Skills  and  Talent  Package,  the  Commission  has  been  so  far  developing  Talent  Partnerships  with 
Tunisia, Morocco, Egypt, Bangladesh and Pakistan as part of the overall migration management cooperation. 
AT,  BE,  BG,  DE,  EE,  ES,  FI,  FR,  IE,  IT,  LT,  LU,  NL,  PT,  PL,  SI,  SK.  Data  coming  from  responses  from  20 
Member States to a specific EMN Ad-Hoc Query (2023) on existing bilateral agreements and programmes on legal 
migration between Member States and third countries. 
They  cover  e.g.  general  cooperation  on  legal  migration,  employment  and  access  to  job  markets,  management  of 
migratory flows, sectoral and seasonal limited labour migration, working holidays, etc. 
The importance of time and flexibility to build trust between the different stakeholders involved in the design and 
implementation  of  a  mobility  scheme  is  a  main  point  from the  lessons  learnt  from  the implementation  of the  first 
phase  of  pilot  projects  funded  by  the  EU  under  the  Mobility  Partnership  Facility  (‘MPF’).  ICMPD  -  MPF, 

21 

 
 
 
 
States’  initiatives  can  lead  to  the  proliferation  of  different  recruitment  activities138  and 
duplication of contacts with third countries’ relevant stakeholders.  Such fragmentation139  also 
prevents the EU from using the full extent of its negotiating potential vis-à-vis third countries 
in order to reach more favourable agreements as regards labour migration and other aspects of 
migration management140. 

Talent Partnerships, that the EU is currently developing, offer a framework for enhanced 
coordination  in  this  field.  They  combine  mobility  schemes  with  investments  in  skills 
development in partner countries as a way to help attract talent to the EU and foster deeper and 
mutually  beneficial  cooperation  on  migration  management  with  key  third  countries141. 
Investment in education and training help developping the pool of workers with relevant skills 
to the benefit of both destination countries and countries of origin142.  

Experience  with  past  and  ongoing  pilot  projects  on  legal  migration  have  demonstrated  the 
challenges  in  engaging  employers  in  such  schemes143.  Matching  TCNs  taking  part  to  Talent 
Partnerships  with  relevant  EU  employers  is  expected  to  remain  one  of  the  most  significant 
challenges  under  the  Talent  Partnerships.  The  EU  Talent  Pool  will  help  overcoming  this 
challenge, therefore indirectly and partially addressing this driver of the problem. For further 
information on the interplay between the EU Talent Pool and Talent Partnerships, see Annex 9.  

Sub-driver 4.2: Limited capacity of certain Member States to engage in migration cooperation 
with third countries  

Despite  the  labour  shortages  across  all  EU  Member  States,  several  Member  States  do  not 
engage in activities on labour migration with third countries. Certain Member States lack the 
administrative  and  resource  capacity  to  launch  dialogues  with  third  countries  on 
comprehensive migration partnerships on legal migration144. The experience with pilot projects 
has also shown that engaging EU employers in structured cooperation with third countries, as 

138  

139  

140  

141  

142  

143  

144  

“Partnerships  for  mobility  at  the  crossroads  -  Lessons  Learnt  From  18  Months  of  Implementation  of  EU  Pilot 
Projects on Legal Migration”, D. Stefanescu, Policy Brief, 2020.  
e.g.  different  matching  platforms  being  developed  to  ensure  the  recruitment  in  the  context  of  cooperation  with  a 
specific third country, or different events/job fares being organised. 
For  instance,  there  are  examples  where  several  Member  States  engage  on  the  same  or  similar  issues  with  third 
countries  without  coordination,  thus  not  using  economy  of  scale  (e.g.  Greece  signed  a  Memorandum  of 
Understanding on migration and mobility with Bangladesh  in 2022 and Italy is also currently negotiating an MoU 
with  Bangladesh;  France,  Spain,  Belgium  and  Portugal  signed  agreements  on  labour  migration  with  Morocco; 
France, Germany and Austria signed a comprehensive Migration and Mobility Partnership Agreement with India in 
2018, 2022 and 2023 respectively, whereas Finland is considering some formal engagements with India on labour 
migration). 
Many third countries are ready to improve their cooperation on readmission and the prevention of irregular migration 
against  the  prospect  of  more  and  better  legal  pathways  to  the  EU.  However,  the  lack  of  coordination  in  this  regard 
prevents  the  EU  to  exploit  the  full  potential  of  this  dynamic.  See  European  Court  of  Auditors,  “Special  Report  EU 
readmission cooperation with third countries: relevant actions yielded limited results”, 2021, paras. 63 ss.  
The EU is working now towards establishing the Taletnt Partnerships with: Morocco, Tunisia, Egypt, Bangladesh, 
Pakistan, Nigeria, Senegal. A list of additional countries for the launch of Talent Partnership negotiations is currently 
under consideration. 
Kate  Hooper,  “How  Can  Europe  deliver  on  potential  of  Talent  Partnerships?”,  Migration  Policy  Institute  Europe, 
December 2021, p.11.  
ICMPD - MPF, “Partnerships for mobility at the crossroads - Lessons Learnt From 18 Months of Implementation of 
EU Pilot Projects on Legal Migration”, D. Stefanescu, Policy Brief, 2020. 
e.g. Certain Member States do not have a diplomatic mission in each third country. For example, Lithuania does not 
have  such  a  mission  in  Nigeria,  although  Lithuanian  enterprises  are  involved  in  projects  on  labour  mobility. 
Moreover, the Commission has funded two technical support projects to support Belgium and Denmark capacity in 
attracting and retaining skilled workers (“Talent Hub: Supporting Copenhagen Capacity to strengthen retention  and 
EU-Mobility of skilled migrants through collaborative multi-country coordination on talent retention and circulation 
in  the  EU”,  “Improving  the  economic  migration  framework  to  attract  and  retain  qualified  talent  in  Flanders  and 
Wallonia”). 

22 

 
 
 
well as developing efficient recruitment mechanisms, requires time and efforts145. This results 
in  unstable  and  inconsistent  cooperation  based  on  sporadic  contacts  and  not  producing  long-
term results. This lack of capacity puts smaller Member States at a natural disadvantage in 
attracting  foreign  workers  compared  to  larger  labour  markets,  which  not  only  offer  more 
employment opportunities but also give migrants the chance to better match their qualifications 
with  vacancies,  thereby  avoid  working  in  less  attractive  and  underqualified  professions146. 
Moreover,  even  Member  States  with  sufficient  capacity  would  be  able  to  engage  with  more 
relevant partner countries if they could rely on the EU capacity to establish such cooperation.  

2.2.4 Who is affected by the identified problems and in what ways  

EU  employers  and  business  are  negatively  affected  as  they  face  limitations  and  excessive 
(administrative)  burdens  in  their  possibilities  to  hire  TCNs  and  address  EU  skills  shortages. 
SMEs  are  particularly  affected,  as  they  often  have  lower  attraction  potential  or  insufficient 
capacity to engage in international recruitment. 
Indirectly,  EU citizens  are also  negatively  affected as  international  recruitment  insufficiently 
contributes  to  tackling  skills  shortages,  demographic  ageing  and  the  increasing  old-age 
dependency ratio. This leads to a loss in public revenues and affects financial viability of the 
EU’s welfare systems (e.g. pension systems), and hinders the EU green and digital transition, 
which  has  a  direct  impact  on  the  EU  citizens.  They  are  also  adversely  affected  if  goods  and 
services are not available due to the unmet EU labour shortages. 
National,  regional  and  local  authorities  of  Member  States  are  negatively  affected  as  they 
have to apply complex existing rules and do not benefit from the economies of scale and join 
solutions. Additionally, since the potential of legal migration is not fully used in relations with 
third-countries within the context of the overall migration management, they may face higher 
migratory pressures.  
TCNs  are  negatively  affected  by  the  obstacles  to  job-matching,  international  recruitment, 
complexity  of  immigration  procedures  and  administrative  burden.  These  obstacles  may 
effectively  discourage  TCNs  from  applying  for  work  in  the  EU.  TCNs  also  risk  being 
overqualified  in  view  of  mismatches  and  lack  of  understanding  of  their  skills  and 
qualifications. 
Third  countries  are  negatively  affected,  as  they  are  losing  out  the  perspective  of  higher 
remittances and the potential for their citizens to be upskilled in the EU, with possibility to also 
contribute  to  labour  markets  of  countries  of  origin  (brain  gain),  for  example  with  regard  to 
circular migration147.  

2.3 How will the problem evolve? 

How would the problem evolve, all things being equal?  

As highlighted in Section 1.2.1. above, the EU will face increasing  labour and skills shortages 
linked  to  the  structural  drivers  of  the    transformation  of  the  EU  labour  market    further 
exacerbated  by  demographic  challenges.  The  working-age  population  (20-64)  is  projected  to 
shrink progressively, in the absence of off-setting trends. Without positive net migration from 

145  

146  
147  

ICMPD - MPF, “Partnerships for mobility at the crossroads - Lessons Learnt From 18 Months of Implementation of 
EU Pilot Projects on Legal Migration”, D. Stefanescu, Policy Brief, 2020.  
Rasche "The EU’s race for talent: Common challenge, no shared response." Jéacques Delors Policy Brief, 2023.  
Circular migration can be defined as a form of migration that is managed in a way allowing some degree of legal 
mobility  back  and  forth  between  two  countries.  See  Communication  from  the  Commission  to  the  European 
Parliament,  the  Council,  the  European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions  on 
circular  migration  and  mobility  partnerships  between  the  European  Union  and  third  countries,  COM/2007/0248 
final. 

23 

 
 
 
 
outside the EU, this decline would be even stronger and the increase in the old-age dependency 
ratio would also be more severe (see Annex 6). Moreover, an important number of regions (82 
accounting  for  approximately  30%  of  the  European  resident  population)  are  already 
experiencing or are facing the risk of falling into a talent development trap148. In addition, 69% 
of  EU  municipalities  declare  that  the  lack  of  green  skills  in  their  administration  is  a  factor 
slowing down their climate-related investments149. 
While  there  is  no  reliable  overview  of  how  labour  migration  flows  will  evolve  at  the  global 
level in the future, it is possible to model the evolution of the labour demand and supply at the 
EU aggregated level (on the basis of, respectively, Cedefop and Eurostat projections made in 
2023)150. Eurostat projections (EUROPOP2023 published in March 2023 by Eurostat) are, to 
this  day,  the  latest  Eurostat  population  projection,  including  several  net-migration  scenarios; 
they represent the official EU hypothesis on how the population size and structure of European 
countries (EU27 + 3 EFTA countries) would change, on the basis of a set of assumptions for 
future levels of fertility, mortality and migration. These projections foresee that as of 2035, the 
aggregated  EU population will start  to  decline  in  a significant  way, especially  in  current  EU 
Member States in the East, also depending on the development of the conflict in Ukraine and 
the geopolitical situation151. 
On  the  side  of  labour  demand,  Cedefop’s  2023  Skills  forecast  projects  that  the  need  for 
workers in the EU27 in cumulative terms - both new EU27 labour market entrants and TCNs 
– will result in approximately 68 million vacancies by 2030152. This concerns all skill levels 
and  covers  both  replacement  of  workers  leaving  the  labour  market  due  to  retirement  and 
additional jobs needed for the economy, including for the green and digital transition153. The 
breakdown of job openings and the relative level of skills projected by CEDEFOP is available 
in Annex 7. 
On the side of the future labour supply, young EU workers would not even be able to replace 
the  retiring  workers,  leaving  a  cumulative  gap  of  5.6-8.8  million  vacancies  by  2030154. 
According to the 2023 Employment and Social Developments (ESDE) report155, the maximum 

148  

149  
150  

151  
152  

153  
154  

155  

According to the Communication Harnessing Talent, 46 regions are already in a Talent Development Trap, defined 
as  decline  of  their  working-age  population  coupled  to  a  stagnant  number  of  people  with  tertiary  education. 
Additionally, 36 regions are at risk of falling into it. European Commission, Harnessing Talent in Europe’s regions, 
2023, p. 4. 
European Commission, Strategic Foresight Report, 2023, p. 10. 
In cumulative terms, the demand for highly educated workers - both new EU27 labour market entrants and TCNs – 
is projected to reach 38.9 million by 2030; while that of workers with medium levels of education 28.1 million, and 
1.1 million for workers with low educational attainment.  
Eurostat: Population projections - Population and demography - Eurostat (europa.eu). 
An essential aspect of the EUROPOP2023 methodology was that it had to address the likely bias to possible historic 
trend  analysis  techniques,  caused  by  the  very high influx  of  refugees  from  Ukraine under  temporary protection in 
2022. The Eurostat projections published in March 2023 are highly impacted by the exceptional year of 2022 with 
high share of temporarily displaced children. For this reason, it was assumed that by 2027, Member State migration 
patterns will gradually return to their 2013-2021 average (with smaller modification factors considered). From that 
point  onward,  the  migration  patterns  of  Member  States  will  converge  towards  each  other,  with  the  share  of 
immigrants received being fully proportionate to the population share of any given Member State. 
See section 1.2.1. 
According to Eurostat projections EUROPOP2023, the size of the young age cohort set to enter the workforce (e.g. 
25-year-olds) in the EU (so either within their own countries or as EU mobile workers) will remain below 5 million 
in their baseline projection for the foreseeable future each year. This amounts to 40 million cumulatively by 2030. 
The amount of 65-year-olds, who could proxy the number of persons leaving the labour force permanently, due to 
retirement,  is  projected  to  be  5.7-6.1  million  each  year,  up  to  2030,  thus  between  45.6-  48.8  million  by  2030 
cumulatively.  Accordingly,  the  EU  young  age  cohort,  cannot  guarantee  replacement  of  the  EU  old  age  cohort, 
leaving a gap of 5.6-8.8 million vacancies by 2030.  
The  2023  edition  of  the  review  “Employment  and  Social  Developments  in  Europe”  (ESDE)  is  dedicated  to 
addressing labour shortages and skills gaps in the EU, linked to the EU Year of Skills.  

24 

 
 
 
number of the inactive EU population that could be activated and join the EU labour market by 
2030 is around 50 million, in the best-case scenario. 
Therefore,  attracting  talent from outside  the EU will be  necessary to  fill  at  least  partially 
this gap and address the growing need for workers, in parallel to the initiatives aiming to tap 
the  unused  potential  of  the  EU  workforce.  The  estimated  gross  inflows of  TCNs156  coming 
for employment purposes, based on current  projections and net  migration scenarios provided 
by Eurostat, is expected to be about 400,000 per year, adding up to a cumulated 3.8 million 
by 2030157. This number, however, is still insufficient to fill the projected gap between labour 
demand and supply at the EU level.  
The  EU  is  less  effective  than  non-EU  OECD  countries  in  increasing  the  actual  number  of 
TCNs migrating for work158. Thus, it has been so far less able to tap the potential of increased 
global  mobility  as  labour  migration  is  expected  to  increase  together  with  mobility  resulting 
from the climate change. Therefore, without addressing the insufficient recruitment of TCNs, 
the EU as a whole will have additional difficulties in attracting workers of all skill levels. 
Without  EU  action  the  problems  and  drivers  identified  above  will  persist,  notably  
cumbersome  and  ineffective  job-matching,  difficulties  to  recognise  qualifications  and  skills 
obtained in third countries, as well as non-transparent and costly immigration procedures. They 
will continue to be factors deterring employers from filling the shortages through international 
recruitment  of TCNs  and preventing the talents  the EU needs  from  applying  for  a job  in  the 
EU. Moreover, high administrative costs and other barriers related to recruitment will continue 
to  affect  employers.  As  a  result,  there  will  be  a  high  risk  of  competition  between  Member 
States  in  attracting  workers, resulting  in  a lack of competitiveness  of the EU as a whole. An 
inconsistent and fragmented cooperation with third countries will prevent Member States from 
fully  exploiting  the  role  of  labour  mobility  in  the  overall  migration  management,  and 
benefiting  from  economies  of  scale  in  skills  development  and  validation,  as  well  as  in 
recruitment.  

3.  WHY SHOULD THE EU ACT? 

3.1 Legal basis 

The legal basis for Union action is Article 79(2) (a) TFUE. This provision gives the power to 
the  European  Parliament  and  the  Council,  acting  in  accordance  with  the  ordinary  legislative 
procedure  to  adopt  measures  in  the  area  of  the  conditions  of  entry  and  residence  of  third 
country nationals. 
The EU Talent Pool aims at facilitating international recruitment of TCNs residing abroad and 
wishing to  work in  the  EU. As finding  a job  and  obtaining  a job  offer is  a pre-condition  for 
TCNs  to  acquire  a  right  of  entry  and  residence  in  a  Member  State,  the  action  of  the  Union 
legislator  which  makes  it  easier  for  a  TCN  to  receive  a  job  offer  from  an  employer  in  a 
Member State, as is the case of the EU Talent Pool, allows the TCNs to fulfil this condition. 
The envisaged action of the Union legislator therefore falls within the area of the conditions of 
entry and residence of TCNs. 

3.2. Subsidiarity: Necessity of EU action 

The principle of subsidiarity applies since this is an area of shared competence. 

156  

157  
158  

On  the  basis  of  the  EUROPOP2023  projected  net  migration  and  on  the  share  of  first  residence  permits  given  for 
employment purposes in the period 2017-2021. 
Talent partnerships (europa.eu).  
See section 1.2. 

25 

 
 
 
As  demonstrated  in  this  Report,  all  Member  States  face  skills  and  labour  shortages  that  are 
expected  to  worsen  in  view  of  the  demographic  challenges  and  requirements  of  the  twin 
transition (green and digital). While Member States are already addressing these shortages by 
re-activating the domestic workforce and improving intra-EU mobility, these efforts might be 
insufficient to fully address existing and future shortages (See also Sections 2.1 and 5.1). For 
this  reason,  some  Member  States  already  recognised  the  key  role  of  legal  migration  and 
developed  talent  attraction  policies  which  include  specific  schemes  to  streamline  migration 
processes,  the  exclusion  from  the  labour  market  test  for  certain  shortage  occupations  and,  in 
few instances, international job matching platforms. However, as explained in Section 2.3, the 
expected number of TCNs arriving to the EU for labour migration purposes is expected to be 
insufficient in comparison with the expected labour demand.  
National  initiatives  and  policies  to  improve  international  recruitment  of  TCNs  are  widely 
fragmented and vary across Member States with regard to their scale of intervention. Although 
some digital platforms and talent attraction tools have been set up at national level, they 
exist in  only  a few Member States and are limited in  scope (e.g.  focusing mainly  on highly-
skilled workers), while the EU shortages  concern all skill  levels,  thus  not  addressing the  EU 
dimension of the issue (See sub-driver 1.1 and Annex 8). 
Overall,  the  lack  of  a  harmonised  approach  together  with  the  potentially  limited  visibility  of 
existing  national  platforms  at  the  global  level  reduce  the  Member  States’  ability  to  achieve 
economies  of  scale  when  developing  talent  attraction  policies  individually.  Therefore,  the 
insufficient recruitment of TCNs through existing labour migration channels to address EU 
labour  and  skills  shortages  cannot  be  addressed  sufficiently  by  individual  Member  States: 
Member States acting alone, especially smaller Member States with less visibility worldwide, 
may not be able to compete for TCNs workers. This aspect was also widely confirmed by the 
Member  States  in  the  context  of  the  targeted  consultations  conducted  during  which  the 
importance of addressing the problem at EU level was acknowledged159.  
A unified EU platform could help connect and bridge the gap between TCN labour supply and 
EU demand, thus attracting the foreign talent to a greater extent to what Member States acting 
alone would achieve. 

3.3. Subsidiarity: Added value of EU action 

The  EU  as  a  whole  is  more  attractive  for  TCNs  interested  in  migration  than  the  sum  of  its 
Member  States  individually.  The  EU  Talent  Pool,  as  one  EU-wide  job  matching  platform 
offering  also  transparent  information  on  immigration  and  recruitment  processes  as  well  as 
support services would improve the overall efficiency of labour migration management at 
EU  level  and  promote  the  EU  as  a  destination  for  foreign  workers.  Thanks  to  the 
economies  of  scale,  the  EU  would  be  better  equipped  to  compete  on  the  global  stage  in 
attracting foreign talent. This will ensure that a greater number of potential candidates with 
the right skills are encompassed, and the labour needs of employers in each Member State are 
better addressed. It would send a clear message to TCNs workers that the EU welcomes them 
in  it  labour  market,  while  providing  protection  against  unfair  recruitment.  All  this  will  help 
addressing labour and skills shortages across all the EU.  
This  initiative  would  not  replace  national  initiatives  and  platforms  in  the  context  of 
international  recruitment  nor  define  Member  States’  talent  attraction  policies.  In  addition,  as 
the EU Talent Pool does not constitute a new legal migration pathway, it would not affect the 
right of Member States to determine volumes of admission of third country nationals to their 

159  

Member  States  input  provided  during  the  meetings  of  the  EMN  Talent  Pool  Group  and  the  European  Labour 
Migration Platform.  

26 

 
 
 
territory nor their discretion in introducing labour market tests at national level. As a voluntary 
tool to facilitate international recruitment, the EU Talent Pool would offer additional support 
at  EU  level.  Hence,  Member  States  would  be  able  to  maintain  their  tools  in  place  and 
complement them with the new platform.  
Hence,  this  initiative  would  have  the  added  value  of  supporting  Member  States  that  are 
already developing talent attraction policies. Member States that do not have a similar tool 
in place would be able to use the EU Talent Pool instead of setting up their own. Overall, the 
EU  Talent  Pool  would  allow  to  attract  third  country  nationals’  workers  from  abroad  where 
labour  and  skills  shortages  in  the  Member  States  cannot  be  sufficiently  filled  otherwise.  In 
addition,  by  providing  an  EU-wide  platform  with  a  wider  range  of  tools  and  services  to 
facilitate  international  recruitment,  the  EU  Talent  Pool  would  ensure  more  visibility  of  EU 
employers’  job  vacancies  at  global  level  as  well  as  a  making  a  wider  pool  of  potential 
candidates available to EU businesses.  
In  particular,  Member  States  having  in  place  national  initiatives  or  specific  migration 
schemes  aimed  at  attracting  third  country  nationals  for  labour  purposes,  would  benefit  from 
the  EU  Talent  Pool  as  the  provision  of  online  information  and  the  support  of  the  National 
Contact  Point  would  make  these  initiatives  more  visible  at  global  level  and  improve  the 
understanding by third country nationals of relevant rules, hence facilitating their access to the 
procedures and making them more attractive.  
Member  States  applying  the  labour  market  test,  would  remain  free  to  continue  applying  it 
and  the  principle  of  preference  for  Union  citizens  would  be  fully  respected.  Member  States 
having in place national recruitment platforms or other online tools specifically targeted to 
international  recruitment  would  be  able  to  complement  them  with  the  EU  Talent  Pool  as 
technical interoperability with the national systems would be ensured. Interoperability with the 
nationals systems would avoid duplications and proliferation of tools. 
The  potential  added  value  of  the  EU  Talent  Pool  in  supporting  Member  States  to  address 
labour  and  skills  shortages  was  widely  acknowledged  by  the  Member  States  during  the 
targeted consultations. In particular, Member States having similar platforms already in place 
such  as  Germany  and  Spain,  welcomed  the  initiative  as  a  way  to  complement  their  current 
efforts on international recruitment. In that regard, the importance of ensuring interoperability 
with  the  national  systems  was  widely  stressed.  Overall,  Member  States  considered  that  the 
provision of information on existing rules and procedures at EU level via the EU Talent Pool 
would be particularly beneficial to address barriers to international recruitment, including with 
regard to procedures for the recognition of qualifications. In addition, smaller Member States 
stressed  the  importance  of  developing  an  EU-wide  platform  enhanching  their  visibility  at 
global level. Overall, the possibility for employers to access a wider pool of candidates from 
third countries was considered to provide relevant added value which could not be achieved by 
the Member States acting individually. 

3.4. Proportionality 

The Talent Pool would not constitute a new legal migration pathway. It would not affect the 
right  of  Member  States  to  determine  volumes  of  admission  of  TCNs  coming  from  third 
countries to their territory in order to seek work. If the objective of the initiative was to create 
an  EU  platform  for  the  selection  and  matching  of  candidates  with  the  EU  employers’ 
vacancies,  which  includes  also  processing  of  personal  data,  it  would  have  to  be  set  out  in  a 
Regulation. On the contrary, the initiative is limited to those aspects that Member States cannot 
achieve satisfactorily on their own, and where the Union is in a better position to act in view of 
achieving economies of scale. The EU Talent Pool leaves the scope for national job matching 
platform and tools, as it ensures that they are interoperable with it, so that they collectively act 
towards increasing international recruitment.  

27 

 
 
4.  OBJECTIVES: WHAT IS TO BE ACHIEVED? 

4.1 General objective (GO) 

Based  on  the  problem  analysis  and  the  EU's  existing  legal  framework  in  the  field  of  legal 
migration, the general policy objective of the EU Talent Pool initiative is: 

Supporting international recruitment of third-country nationals via legal pathways to address 
EU labour and skills shortages 

4.2 Specific objectives (SOs) 

The specific policy objectives are: 
1)  Ensuring more effective international job matching. This specific objective aims at making 
the TCNs seeking job opportunities in the EU and relevant job vacancies of EU employers 
easily identifiable and accessible. It also aims at making recruitment rules more transparent 
and  at  facilitating  the  matching  process  between  TCNs  and  employers. All  of  this  would 
contribute  to  the  general  objective  as  barriers  to  international  recruitment  would  be 
reduced; 

2)  Improving comparability of skills and qualifications obtained in third countries with those 
required  at  national  level.  This  specific  objective  aims  at  enhancing  employers’ 
understanding of TCNs’ skills and qualifications to better assess their ability to perform the 
job  identified  in  the  relevant  job  vacancies.  Similarly,  TCNs  would  be  able  to  better 
compare their skills and qualifications with the national ones.  A better understanding and 
improved comparability of skills and qualifications would be achieved by ensuring clearer 
information  on  recognition  and  validation  procedures  in  the  Member  States.  This  would 
facilitate access to the relevant procedures, support international recruitment of TCNs and 
mitigate the risk of mismatches; 

3)  Improving  understanding  and  access  to  the  migration  procedures.  This  specific  objective 
aims  at  making  information  on  migration  procedures  in  the  Member  States  clearer  and 
easier to access to TCNs and employers interested in international recruitment. Making the 
legal migration framework more understandable would facilitate access to  the procedures 
and, therefore, support international recruitment of TCNs via legal pathways; 

4)  Incentivising  cooperation  on  migration  with  third  countries,  including  in  the  context  of  a 
Talent  Partnership.  This  specific  objective  aims  at  making  cooperation  on  migration 
management with third countries more effective by providing a tool to implement mobility 
and skills development schemes in mutually beneficial way.  

These specific objectives are targeted to what is realistically achievable in the context of this 
initiative.  While  all  these  specific  objectives  are  measurable  over  time,  the  development  and 
operationalisation  of  the  initiative  would  require  some  time  and,  therefore,  it  would  not  be 
possible to immediately measure to what extent the EU Talent Pool achieved these objectives. 
In addition, given the voluntary nature of the EU Talent Pool,  Member States would be able to 
decide whether they are interested in participating. This initiative would be designed to attract 
the  highest  number  of  Member  States  and  it  was  widely  welcomed  by  the  Member  States 
consulted.  Therefore,  a  high  uptake  is  expected.  However,  a  gradual  progress  is  expected  as 
only  certain  Member  States  might  join  the  initiative  at  an  early  stage  with  other  expected  to 
join in the longer run once the EU Talent Pool is fully operational (for a detailed explanation of 
these assumptions see Section 6). Therefore, the achievement of the specific objectives would 
also be dependent on the higher or lower uptake of the initiative by the Member States.  

28 

 
 
 
 
 
Figure 3: Links between the problems and their drivers with the objectives 

* Sub-drivers that will be only partially addressed by the EU Talent Pool as it complements other initiatives are coloured with 
a diagonal stripes pattern.  

4.3.  Consistency  with  other  EU  policies  and  with  the  European  Charter  of 
Fundamental Rights  

The  EU  Talent  Pool  initiative  would  make  existing  rules  more  understandable  and  easy  to 
access  by  facilitating  access  to  information  on  the  existing  legal  migration  framework. 
Therefore, this initiative would improve the use of the EU legal migration Directives160.  
Equally, it  would  help implementing Talent Partnerships by providing a tool for effective 
job placements of TCNs participating in these partnerships, thus increasing effectiveness of the 
EU cooperation with third countries on legal migration and, as a consequence, of the overall 
migration management (a detailed description of the possible links between the two initiatives 
is  provided  in  Section  5).  While  the  EU  Talent  Pool  would  offer  a  tool  to  support  job 
placements  in  this  context,  it  would  not  constitute  the  only  way  to  implement  those 
partnerships. While synergies would be built between the two initiatives, they remain separate 
and Member States participating in a Talent Partnership would not be required to participate in 
the  EU  Talent  Pool  or  vice  versa.  The  EU  Talent  Pool  would  be  a  voluntary  tool  aimed  at 
supporting Member States’ international recruitment without replacing existing national tools 
or  talent  attraction  policies  just  as  participation  in  the  Talent  Partnerships  is  also  voluntary. 
This also applies to Member States participating in a Talent Partnership that will remain free to 
decide whether they want to participate in the EU Talent Pool.  

160  

By providing a job-matching platform it would allow TCNs to find a job offer in the EU- which is a requirement to 
be able to use the pathways provided by the EU legal migration directives to come to work in the EU. 

29 

 
 
 
 
 
 
 
Being open also to TCNs in need of international protection, the EU Talent Pool would be in 
line  with  the  Commission  Recommendation  on  promoting  complementary  pathwayas  for 
refugee to work in the EU161. 
Labour  and  skills  shortages  have  diverse  root  causes  requiring  a  wider  range  of  different 
solutions to sufficiently address them. Thus, the EU Talent Pool is part of a wider policy mix 
and  it  will  complement  EU  policy  initiatives  which  strive  to  address  labour  and  skills 
shortages in the EU (notably the European Skills Agenda), contributing to the achievement of 
the green and digital transition in the EU, like the Net Zero Industry Act and the Green Deal 
Industrial Plan. As part of a comprenshive policy solution this initiative would contribute to 
fill the remaining skills gaps that might not be sufficiently achieved by activating, upskilling 
and reskilling the domestic workforce and improving intra-EU mobility. 
As  an  initiative  under  the  European  Year  of  Skills,  the  EU  Talent  Pool  is  one  of  the  key 
components of the Commission’s Package on talent mobility which presents a set of mutually 
reinforcing actions to make the EU more attractive to talent and to promote mobility inside the 
EU. In particular, it would contribute to the effectiveness of the Commission Reccomendation 
on the recognition of qualifications of third country nationals which is adopted as part of this 
package.  By  providing  clearer  information  on  recognition  of  qualifications  procedures  in  the 
Member States, the EU Talent Pool would contribute to making the access to these procedures 
easier and faster.  
It is also in line with the EU policies aimed at deepening and upgrading the Single Market: 
as  stressed  in  the  Commission  Communication  "Upgrading  the  Single  Market:  more 
opportunities for people and business", Europe would benefit from attracting more innovators 
from the rest of the world.  
This initiative is consistent with the Charter of Fundamental Rights and enhances the right 
to  engage  in  work  and  choose  an  occupation  (Article  15),  fair  and  just  working  conditions 
(Article  31),  the  right  to  good  administration  (Article  41)162  and  non-discrimination  (Article 
21).  As  the  EU  Talent  Pool  requires  processing  of  personal  data,  it  would  need  to  take  into 
consideration the requirements under Articles 7 and 8 of the Charter (as interpreted in the case-
law  of  the  Court  of  Justice)  and  the  EU  data  protection  legislation,  namelythe  General  Data 
Protection  Regulation  Regulation  and  the  Data  Protection  Regulation  for  Union  institutions, 
bodies, offices and agencies163. 
The  proposed  policy  action  is  both  coherent  and  compatible  with  international  law,  in 
particular the UN Global Compact164. It also contributes to achieving some of the sustainable 
development  goals  (SDGs)  of  the  2030  Agenda  for  Sustainable  Development  (for  a  more 
detail description, see Section 6 and Annex 3).165 

161  

Commission  Recommendation  (EU)  2020/1364 of 23  September  2020 on  legal  pathways  to protection  in  the  EU: 
promoting resettlement, humanitarian admission and other complementary pathways. 
It would facilitate access to employment in the EU and limit administrative burden of multiple national procedures. 

162  
163            Regulation  (EU)  2016/679  of  the  European  Parliament  and  of  the  Council  of  27  April  2016  on  the  protection  of 
natural persons with regard to the processing of personal data and on the free movement of such data, and repealing 
Directive 95/46/EC (General Data Protection Regulation), OJ L 119, 4.5.2016, p. 1–88 ; Regulation (EU) 2018/1725 
of the European Parliament and of the Council of 23 October 2018 on the protection of natural persons with regard 
to the processing of personal data by the Union institutions, bodies, offices and agencies and on the free movement 
of such data, and repealing Regulation (EC) No 45/2001, OJ L 295, 21.11.2018, p. 39–98. 
Objective 5: Enhance availability and flexibility of pathways for regular migration; Objective 6: Facilitate  fair and 
ethical recruitment and safeguard conditions that ensure decent work; Objective 18: Invest in skills development and 
facilitate mutual recognition of skills, qualifications and competences. 
It contributes to achieve decent work and economic growth as well as to reduce inequality (SDGs 8 and 10). The 
initiative  is    expected  to  have  a  positive  impact  on  EU  business  and,  in  particular  SMEs  (SDG  9)  as  well  as  on 
developing countries (SDG 1). 

164  

165  

30 

 
 
 
5.  WHAT ARE THE AVAILABLE POLICY OPTIONS?  

5.1 What is the baseline from which options are assessed? 

Labour and skills shortages have diverse root causes requiring a wide range of different actions 
to  fully  address  them.  Several  initiatives  are  being  developed  at  EU  and  national  level  to 
reactivate,  upskill  and  reskill  domestic  workforce  and  improve  intra-EU  mobility.166 
Whilst it is clear that additional efforts need to be done through initiatives on activation to get 
more people into the labour market (22% of the working-age population remains still inactive), 
it is difficult to precisely predict the results of these initiatives and their evolution over time. In 
particular, it is complex to quantify  to which extent the EU domestic workforce will address 
labour and skills shortages. As mentioned in section 2.3, young EU workers would not even be 
able  to  replace  the  retiring  workers  and  according  to  the  Employment  and  Social 
Developments  (ESDE)167  report  the  maximum  inactive  population  that  could  be  available  in 
the EU labour market by 2030 is around 50 million, in the best-case scenario. Considering that, 
according  to  Cedefop,  the  expected  number  of  job  vacancies  in  the  EU  will  reach 
approximately 68 million cumulatively by 2030, the EU domestic workforce alone might not 
be  sufficient  to  fully  address  future  skills  and  labour  shortages,  even  taking  into  account  the 
impact of work automation in sectors affected by labour shortages, such as manufacturing, or 
the  possible  uses  of  Artificial  Intelligence  to  increase  productivity  and  to  supplement  skills. 
Although  approximate  and  based  on  different  assumptions  and  methodologies,  the  projected 
vacancies and the potential activation of domestic EU workforce are pointing a substantial gap 
between  supply  and  demand  of  labour,  in  the  foreseeable  future,  amounting  to  significant 
labour  shortages  which  cannot  be  addressed  by  domestic  labour  supply  only.  This  was  also 
confirmed in the Decision on the European Year of Skills and in the Skills and Talent Package 
where the key role of legal migration in contributing to address these shortages and filling the 
remaining gaps is acknowledged.  
Should no EU action be undertaken to solve the identified problem, the baseline scenario is the 
current status quo, which means that there is no EU-wide matching platform that facilitates 
international recruitment of third-country nationals residing abroad. 
Approaches  and  tools  on  talent  attraction  will  continue  to  vary  across  Member  States 
depending  on  their  different  capacities  and  mechanisms  established  at  national  level.  In 
addition,  smaller  Member  States  will  continue  to  face  challenges  in  attracting  TCNs  to  their 
labour market, with  fewer job  offers. The EU will  therefore not  benefit from  an  economy  of 
scale  in  attracting  talent  from  abroad  to  address  the  current  labour  shortages  and  future 
demand, which cannot be filled either by upskilling and reskilling the domestic workforce or 
by intra-EU mobility. 
At  EU  level,  the  EU  legal  migration  Directives  will  continue  to  provide  for  harmonised 
conditions  of  entry  and  residence  for  certain  categories  of  nationals  from  non-EU  countries, 

166  

167  

In particular, actions aimed at activating more people in the labour market included the Council Recommendation on 
Adequate  Minimum  Income  Ensuring  Active  Inclusion,  the  Council  Recommendation  on  A  Bridge  to  Job  – 
Reinforcing  Youth  Guarantuee,  the  Council  Reccommendation  on  long-term  unemployment,  the  Proposal  for  a 
Council  Reccommendation  on  developing  social  economy  framework  conditions  and 
the  Commission 
Recommendation  on  Effective  Active  Support  to  Employment.  Other  initiatives  were  developed  to  specifically 
address  skills  shortages  including  various  Council  Recommendations on vocational  education  and  training, digital 
skills, individual learning accounts, micro-credentials and the creation of a European Batteries Alliance Academy. 
Actions to improve labour working standards are also relevant in this context as poor working conditions are one of 
the causes of labour shortages in several occupations (e.g. the Directive on Minimum Wages). 
The  2023  edition  of  the  review  “Employment  and  Social  Developments  in  Europe”  (ESDE)  is  dedicated  to 
addressing labour shortages and skills gaps in the EU, linked to the EU Year of Skills. 

31 

 
 
 
including  for labour purposes.168  However,  without an EU job-matching  platform  that would 
underpin them, they would be less used than they could be169.  
The EU Immigration Portal will continue providing foreign nationals interested in moving to 
the  EU  with  both  a  general  overview  of  immigration  policy  in  the  EU  and  specific  practical 
information about national procedures and migration profiles.   
In addition, in October 2022 the EU Talent Pool Pilot was launched to support the integration 
into  the  labour  market  of  people  fleeing  the  war  in  Ukraine.  Under  this  Pilot  initiative, 
beneficiaries of temporary protection residing in a Member State are now able to register their 
CVs on the EURES platform  and seek job opportunities in another Member State.  While the 
EU Talent Pool Pilot is specifically conceived to facilitate integration in the labour market of 
beneficiaries of temporary protection already in the EU, the EU Talent Pool proper would be 
directed at attracting third-country nationals not already residing in the EU. Therefore, the two 
initiatives have a different logic and scope of application and the lessons learnt from the Pilot 
can be used for this initiative only to a limited extent. However, the Pilot experience shows the 
importance  of  conducting  an  extensive  awareness  campaign  in  order  to  reach  out  to  those 
TCNs  potentially  interested  in  using  the  tool.  In  addition,  the  relevant  role  of  the  Public 
Employment Services (PES) was equally confirmed. On the limitations linked to the use of the 
EURES platform see Section 5.3 on the options discarded at an early stage.   
There are also some existing or envisaged policy instruments that would partially mitigate the 
identified problem, by addressing some of its drivers: 
•  The recast Single Permit Directive, once in place will make the application procedure for 
the  single  permit  faster  and  easier,  thus  addressing  partially  the  issue  of  fragmented  and 
cumbersome migration procedures; 

•  Talent Partnerships are one of the key aspects of the external dimension of the New Pact 
on Migration and Asylum. They provide a flexible and strategic framework to strengthen 
cooperation  between  the  EU,  Member  States  and  key  partner  countries  and  to  boost 
international  labour mobility  and development  of talent  in  a mutually beneficial way. By 
pooling  efforts  of  the  EU  and  its  Member  States  and  supporting  actions  requiring 
considerable  investments  (e.g.  skills  development),  they  will  achieve  economies  of  scale 
and engage key partner countries strategically in all areas of migration management. The 
Commission is steering the development of Talent Partnerships with five partner countries 
(Egypt,  Morocco,  Tunisia,  Bangladesh  and  Pakistan).  France,  Germany,  Italy,  Portugal, 
Spain  and  Sweden  are  participating  in  at  least  one  Talent  Partnership.  Following  the 
launching Roundtables, these Talent Partnerships are now moving towards implementation, 
with concrete programmes and roadmaps being defined.   
Talent Partnerships will continue to grow in number and in scale, fostering cooperation 
with key partner countries on legal migration. It is estimated that by 2030 the EU will have 
Talent Partnerships  with  ten  third countries.  However, without an implementing  tool that 
supports  the  matching  of  EU  employers  with  TCNs  participating  in  Talent  Partnerships, 
realising  their  full  potential  will  be  more  difficult.  Depending  on  the  will  of  Member 

168   

169  

The Single Permit Directive lays down a single and simplified application procedure combining the authorisation to 
work and reside for workers from non-EU countries admitted under Member States’ national schemes. The EU Blue 
Card  Directive  covers  highly  qualified  workers.  The  Intra-Corporate  Transferees  Directive  sets  the  conditions  to 
enter  and  reside  in  the  EU  for  an  intra-corporate  transfer  (i.e.,  a  posting  from  a  company  operating  in  a  non-EU 
country  in  a  branch  in  the  EU).  The  Seasonal  Workers  Directive  covers  third-country  nationals  holding  and 
authorisations for the purpose of seasonal work. 
There  would  be  less  job  offers  that  are  necessary  elements  to  apply  for  residence  permits  under  the  EU  legal 
migration Directives. 

32 

 
 
 
States,  EU  Delegations  in  third  countries  could  play  a  stronger  role  in  coordinating  and 
multiplying EU efforts and initiatives on labour migration.  

•  Some existing profile building tools (e.g. Europass, the EU Skills Profile Tool for third-
country  nationals)  and  other  tools  enhancing  transparency  and  comparability  of 
qualifications (e.g. the EQF, the European Digital Credentials for Learning, ESCO, ENIC-
NARIC Network, etc.) will continue to offer support. However, as mentioned above, some 
of  these  transparency  and  comparability  tools  are  mainly  conceived  to  guide  national 
authorities  during  the  recognition  procedures.  Thus,  they  are  not  easily  accessible  and 
understandable for interested individuals; 

•  The EU Talent Pool would be a key component of the Commission’s package on talent 
mobility170 which is planned as part of the European Year of Skills. While the package will 
include  a  Commission  Recommendation  on  the  recognition  of  qualifications  of  third  country 
nationals  and  announce  operational  measures  to  achieve  easier  and  faster  recognition  of 
professional qualifications acquired in third countries. It will not, however, directly address 
the  Council 
other  challenges 
Recommendation on ‘Europe on the Move’ – learning mobility opportunities for everyone 
which is also part of this package will specifically promote mobility of learners as well as 
learning mobility from abroad. 

In  addition, 

international 

recruitment. 

related 

to 

5.2 Description of the policy options 

As  announced  in  the  New  Pact  on  Migration  and  Asylum  as  well  as  the  Skills  and  Talent 
Package,  the  EU  Talent  Pool  would  be  the  first  EU-wide  platform  aimed  at  facilitating 
international  recruitment.  This  defines  the  remit  of  the  current  policy  intervention.  For 
this  reason, all the policy options identified aim at establishing an EU Talent Pool, as the first 
EU-wide  platform  aimed  at  facilitating 
international  recruitment  and  providing 
opportunities for TCNs to work in areas which are of EU and Member States interest, notably 
by facilitating the matching between vacancies in the EU and TCNs workers from outside the 
EU.  Successful  matches  may  result  in  job  offers  that  serve  as  prerequisites  for  obtaining 
residence permits within any labour migration pathway to the EU. The Policy Options (POs) 
will also analyse how the EU Talent Pool could further simplify the recruitment processes, for 
example  by  improving  the  provision  of  information  and  offering  specific  support  services  to 
employers and TCNs. 
The  Policy  Options  range  from  non-legislative  (PO1)  to  legislative  actions  (PO2  and  PO3) 
either  partially  based  on  existing  frameworks  or  envisaging  stand-alone  legislative  solutions. 
With regard to the methodology, the POs are designed to cover the full spectrum of possible 
EU intervention while ensuring a balance between the need to attract TCNs to address labour 
shortages and the expected quality of these matches. For this purpose, the rationale underlying 
the elaboration of the POs is based on two criteria:  
1)  The  scale  of  the  intervention  ranging  from  a  more  targeted  approach  to  an  open  and 

2)  The 

of 

intensity 

wider/demand-driven action  (see scope of application in the POs description below); 
functionalities 
intervention  with 

and 
supporting/accompanying services available to facilitate the recruitment (PO1 with limited 
functionalities,  PO2  with  higher  functionalities  but  limited  in  terms  of  IT  solution,  PO3 
with  the  same  functionalities  as  in  PO2  and  sophisticated  IT  solution;  see,  for  instance, 
search and matching tools and personalised support described in the POs below). 

regard 

the 

to 

170  

This  Package  will  include  a  Communication  on  skills  and  talent  mobility,  a  proposal  for  a  Commission 
recommendation  on  the  recognition  of  qualifications  of  third  country  nationals,  a  legislative  proposal  for  an  EU 
Talent Pool, and a proposal for a Council recommendation ‘Europe on the Move’ – learning mobility opportunities 
for everyone.  

33 

 
 
 
To  ensure  clarity,  each  PO  is  organised  in  building  blocks  (e.g.  scope  of  application, 
governance,  IT  platform,  and  user  journey)  that  cover  specific  policy  measures  and 
alternatives. Some of the alternatives were not retained for further assessment, as described in 
Section  6.  The  detailed  description  of  the  POs  and  analytical  methods  used  is  described  in 
Annexes 4 and 9. 

5.3. Options discarded at an early stage 

The following PO was not retained for further in-depth assessment: 
Developing  an  EU  Talent  Pool  by  fully  extending  the  existing  EURES  network  for 
international recruitment purposes  
The EURES network/platform171 aims at supporting the recruitment of jobseekers for intra-EU 
mobility,  in  particular  by  matching  EU  mobile  workers172  interested  in  working  in  another 
Member States with job offers of EU employers. Given the similar objectives of the EU Talent 
Pool, the possibility to extend the scope of application of EURES network/platform to also 
facilitate the recruitment of TCNs  residing abroad was considered. The option was discarded 
as it was not legally feasible, due to the non-compatibility of the two legal bases (Articles 79 
and 46 of the Treaty on the Functioning of the European Union (TFEU) which fall under two 
different Titles of the TFEU173, and cannot be combined. 
Developing an EU Talent Pool open to TCNs already residing in the Member States 
An EU Talent Pool open to TCNs already residing in the Member States was discarded as it 
goes  beyond  the  objective  of  this  initiative  (designing  an  international  recruitment  tool  to 
improve  legal  migration  by  making  the  EU  more  attractive  for  TCNs  from  abroad).  TCNs 
legally residing in  the EU can either  rely  on  domestic labour market  activation  policies with 
the support of the Public Employment Services (PES) when looking for a job locally or rely on 
EURES, in case they can benefit from intra-EU mobility. Giving them in addition access to the 
EU  Talent  Pool  would  entail  the  risk  of  discrimination  with  regard  to  the  EU  citizens,  who 
would only have access to the EURES or PES services, as appropriate.  
Developing a mandatory EU Talent Pool for all Member States  
This  option  was  not  retained  for  further  assessment  due  to  political  feasibility.  The 
consultations with relevant stakeholders clearly showed the very low political acceptance of 
this alternative as it would impose on Member States the use of the EU Talent Pool platform to 
support  international  recruitment.  Member  States  consulted  on  the  initiative  during  the 
Labour  Migration  Platform  were  unanimously  and  strongly  against  the  development  of  a 
mandatory  platform.  Social  and  economic  partners  also  pointed  out  the  need  to  ensure  a 
flexible  tool  available  to  support  international  recruitment.  Moreover,  in  its  resolution174  the 
European  Parliament  called  for  establishing  an  EU  Talent  Pool,  while  recommending  that 
“the EU talent pool would serve as an optional tool that Member States could use to meet the 
demands  of  and  shortages  in  the  Member  States’  labour  markets  that  cannot  be  met  by  the 
domestic  workforce”.  Against  this  background,  it  seems  that  a  proposal  setting  out  a 
mandatory EU Talent Pool would not be supported. 

171  

172  
173  
174  

EURES is based on Regulation No. 2016/589, amended by Regulation 2019/1149 setting up the European Labour 
Authority  (ELA),  complemented  by  six  Commission  implementing  Decisions  covering  governance  and  matching 
related aspects. 
EU citizens or TCNs residing in a Member States and enjoying intra-EU mobility rights. 
Title IV (Freedom of persons, services and capital) and V (Area of Freedom, Security and Justice).  
European Parliament resolution of 25 November 2021 with recommendations to the Commission on legal migration 
policy and law (2020/2255(INL)) Texts adopted  - Legal migration policy  and law  - Thursday, 25 November 2021 
(europa.eu). 

34 

 
 
 
5.4. Options retained for further in-depth assessment 

5.4.1 Non-legislative options 

Option  1:  Soft  measures  aiming  at  improving  information  provision  and  facilitating 
identification and matching (non-legislative option)  
This  option  would  involve  non-legislative  actions  aimed  at  creating  a  repository  of  CVs  of 
TCNs  that  interested  employers  would  be  able  to  consult.  It  would  also  provide  for  further 
functionalities to improve transparency of immigration procedures. This option partially builds 
on  existing  EU  tools,  and  it  would  be  open  to  all  employers  and  TCNs  regardless  of  their 
occupations.  

Option  1:  Soft  measures  aiming  at  improving  information  provision  and  facilitating 
identification and matching   

Scope of application 

This PO would be open to all TCNs residing abroad and to all EU employers as it would not 
be targeting specific occupations of EU and national relevance.  

No  specific  measures  incentivising  cooperation  management  with  third  countries,  including  in 
the context of the Talent Partnerships. 

Governance 

National  Coordinators  designated 
the  practical 
implementation of the online portalin particular to facilitate the contact between employers and 
registered candidates (e.g. no registration of employers, and personalised support). 

the  Member  States  would  ensure 

in 

Key policy measures  

1)  Improving  the  EU 
Immigration Portal 

The EU Immigration Portal would be upgraded and modernised 
to  provide  more  accurate,  clearer,  user-friendly  and  updated 
information  on  immigration  and  recognition  procedures  at  EU  and 
national level. 

2) Organising job-
matching events 

3) Setting up an online 
portal with a catalogue 
of profiles  

Job-matching  events  would  be  organised  by  the  Commission  to 
make  the  matching  between  EU  employers  and  TCNs  easier  and 
faster. 
An  online  catalogue  of  profiles  would  be  set  up  via  a  Commission 
Recommendation  followed  by  intensive  discussion  and  cooperation 
between  Member  States  for  the  operational  development  of  the 
online  catalogue.175  The  necessary  arrangements,  provisions  on 
protection  of  personal  data,  would  need  to  be  provided  at  national 
level  by  interested  Member  States  in  compliance  with  the  EU  data 
protection acquis. 
This  option  would  envisage  the  development  of  an  online  portal 
where  TCNs  residing  abroad  would  be  able  to  register  their 
to 
profiles  would 
profiles.  Candidates’ 
pseudonymisation of personal data. Their personal data would only 

subject 

be 

175  

Given the nature of the instrument this Recommendation would have to be limited to defining the main features of 
the catalogue, the potential division of tasks and responsibilities, the purposes of processing of personal data and the 
user journey. 

35 

 
 
 
 
be visible to the National Coordinators which would be established 
in the interested Member States to facilitate the connection between 
interested  employers  and  candidates.The  catalogue  of  registered 
profiles  would  be  available  to  employers  established  in  the  EU.  A 
search  function  would  enable  employers  to  search  for  candidates’ 
profiles via filters.  

5.4.2 Legislative options 

The  legislative  options  would  lead  to  the  creation  of  an  online  platform  that  would  match 
profiles  of  TCNs  interested  in  migrating  to  the  EU  for  work,  with  vacancies  that  the  EU 
employers  cannot  fill  otherwise.  This  platform  would  also  provide  for  additional  services  to 
support international recruitment. The EU Talent Pool would be conceived, under both options, 
as a one-stop shop for TCNs, employers and national administrations. The criteria for selecting 
the candidates would depend on the target of the EU Talent Pool (either occupation-specific, 
focused on highly skilled workers or fully demand-driven). The technical IT solutions would 
also differ.  

Option 2: Developing an EU Talent Pool targeted to address labour market needs in key 
occupations (legislative option) 

This  legislative  option  would  envisage  the  adoption  of  a  new  legislative  act  (based  on 
Article 79(2)(a)  TFEU)  regulating  the  scope  of  application,  access  criteria,  governance, 
specific features/components and functioning of the EU Talent Pool.  

Option 2: Developing an EU Talent Pool  targeted to address  labour  market needs  in key 
occupations  

Scope of application 

The  EU  Talent  Pool  would  be  a  voluntary  system.  Only  interested  Member  States  would 
participate. As a voluntary tool to facilitate international recruitment, the EU Talent Pool would 
offer additional support at EU level. Hence, Member States would be able to maintain their tools 
in  place  and  complement  them  with  the  new  platform.  Similarly,  employers  and  third  country 
nationals  residing  abroad  remain  free  to  decide  whether  to  use  this  tool  for  international 
recruitment (using this tool would not be a pre-requisite to obtain a work permit as the EU Talent 
Pool  does  not  constitute  a  new  legal  pathway).  Only  employers  established  in  these  Member 
States  would  be  able  to  register  their  job  vacancies  on  the  portal  and  search  for  candidates. 
Registered TCNs would apply for job vacancies only in the participating Member States.  

Two alternatives of the targeted EU Talent Pool would be assessed: 
1) Alternative 1: The EU Talent Pool would be targeted only to certain occupations identified 
as  of  EU  and  national  relevance  suffering  from  unmet  structural  and  labour  skills  shortages. 
Therefore,  it  would  be  open  to  employers  and  TCNs  whose  vacancies  or  profiles, 
respectively, fall within the identified shortage occupations and respective skills needed for 
those occupations (which would vary from low, medium and highly skilled). Under this option, 
shortages occupations at all skills levels would be targeted by the EU Talent Pool.  
The identification of the targeted occupations would be based of a list of occupations of EU and 
national  relevance  prepared  by  the  Commission.  In  preparing  the  list  labour  Member  States 
needs  at  national  and  regional  level  will  be  taken  into  account.  In  particular,  the  National 
Contact Points will share a list of national shortage occupations with the Commission (including 
regional considerations  where relevant). The shortage occupations which are widespread in the 

36 

 
 
 
larger  number  of  Member  States  will  be  included  in  the  list  consolidated  by  the  Commission.  
Reports and data available at EU level on labour shortages in the Member States will  be taken 
into  account  when  consolidating  the  list  (e.g.  the  EURES  Report  on  labour  shortages  and 
Eurofound  annual  report). Once  the  most  relevant  shortage  occupations  in  the  Member  States 
have been identified, additional shortages occupations of EU relevance would be integrated in 
the consolidated list (for instance, shortage occupations foreseen in the long run and linked to the 
green  and  digital  transition  which  are  not  already  identified  by  the  Member  States).  These 
shortage occupations of EU strategic relevance would be linked to economic growth, innovation, 
and sustainability considerations as well as strategic migration management objectives (e.g. the 
occupations  identified  in  the  context  of  the  Talent  Partnerships  with  third  countries  would  be 
taken into account). The  list  would be constructed in  a  flexible way to  ensure that all Member 
States needs are adequately covered. Hence, the final consolidated list might cover a wide range 
of  shortage  occupations.  In  addition,  the  list  would  be  subject  to  periodic  revision  to  reflect 
evolving  labour  market  needs.  Relevant  stakeholders  and  industry  representatives  will  also  be 
consulted in the preparation of the consolidated list.   

2)  Alternative  2:  the  EU  Talent  Pool  would  only  target  highly  skilled  jobseekers  within  the 
meaning of the Blue Card Directive  and parallel national schemes for the highly skilled.  

This  PO  is  conceived  as  a  targeted  tool  to  incentivise  cooperation  on  migration  with  third 
countries,  notably  by  addressing  labour  market  needs  in  key  occupations  that  have  been 
identified in the context of Talent Partnerships. Hence, they follow a similar logic as set out in 
this  PO.  In  practice,  the  shortage  occupations  identified  as  of  relevance  in  the  context  of  the 
Talent  Partnerships  are  highly  likely  to  overlap  with  the  shortage  occupations  identified  in  the 
list  of  shortage  occupations  relevant  for  the  EU  Talent  Pool.  Therefore,  the  EU  Talent  Pool 
would  offer  an  effective  tool  to  also  support  the  implementation  of  Talent  Partnerships 
since they follow a similar approach. 
TCNs  who  participated  in  a  Talent  Partnership  would  be  registered  on  the  platform  and 
channelled to a job placement in the participating Member State. As in the context of a Talent 
Partnership third country nationals would receive support for skills development and, possibly, 
skills  validation  in  a  framework  agreed  between  participating  Member  States  and  partner 
countries, the skills developed or validated in this framework would be made visible  in the EU 
Talent Pool in the form of an ‘EU Talent Partnership Pass’. Once registered in the EU Talent 
Pool, the profiles holding this Pass would be  flagged as certified. For a certain period of time 
(e.g. 1 year), these profiles would only be accessible to employers established in a Member State 
participating  in  a  Talent  Partnership.  If  third  country  nationals  holding  the  Talent  Partnership 
Pass are not recruited in the context of a Talent Partnership after a certain period of time, their 
profiles would become available to all employers having a job vacancy in the EU Talent Pool. 
The  EU  Talent  Pool  would  not  constitute  the  only  way  to  implement  those  partnerships  and 
Member States participating in a Talent Partnership would not be required to use this tool for job 
placements as the existing labour pathways will still be available.  (For further details see Annex 
9). 

Governance 

This  PO  would  foresee  operational  synergies  with  the  existing  EURES  governance  model.  An 
EU  Talent  Pool  Secretariat  responsible  for  the  overall  management  would  be  established 
within the European Commission.  An EU Talent Pool  Steering Group  composed  of Member 
States’  representatives  from  the  immigration  and  employment  authorities  would  define 
operational  objectives  at  higher  political  level.  EU  Talent  Pool  National  Contact  Points 
(NCPs)  designated  by  each  participating  Member  State  would  deal  with  the  practical 
implementation  of  the  EU  Talent  Pool  at  national  level.  A  greater  involvement  of  the  national 

37 

 
 
 
authorities  is  expected  due  to  the  targeted  nature  of  this  PO.  In  particular,  NCPs  would  be 
required  to  contribute  in  the  identification  of  the  targeted  occupations  by  providing  a  list  of 
shortage occupations at national and regional (where applicable) level. National Contact Points 
would also be responsible for checking whether the job vacancy falls within the list of relevant 
occupations  (specific  tools  would  be  envisaged  to  support  in  this  process:  see  below  under 
registration).  In addition,  would provide tailored  support to  users  when online information  and 
standard guidance are not sufficient. (See below for more information on the role of NCPs).  
In  addition,  Liaison  offices  may  be  established  in  third  countries  with  which  the  Commission 
has launched Talent Partnerships to support the delivery of the ‘EU Talent Partnership Pass’ and 
the registration in the EU Talent Pool of TCNs who participated in the Talent Partnership. 

IT platform and interoperability  

This  PO would require the development  of an  IT  platform. The  platform  would bring together 
profiles  registered  by  job  seekers  from  outside  the  Union  and  job  vacancies  of  employers 
established  in  the  Member  States  participating  in  the  EU  Talent  Pool  and  falling  within  the 
shortage  occupations  identified  in  the  list  of  EU  and  national  relevance.  The  platform  would 
integrate specific features to facilitate the identification and matching as well as the provision of 
online  information  and  personalised  support  throughout  the  recruitment  process  before  starting 
the immigration procedures. Certain components of the EURES IT solution would be re-used 
such as the automatic matching tool and the interoperability (for a more detailed description of 
the IT components that would be re-used see Annex 9), while some new elements would need to 
be developed.  
Member States having in place national recruitment platforms or other online tools specifically 
targeted to international recruitment would be able to complement them with the EU Talent Pool 
as  technical  interoperability  with  the  national  systems  would  be  ensured  via  an  application 
programming  interface (API). Therefore, the competent  authorities in the Member States (such 
as  the  Public  Employment  Services)  would  be  able  to  accessjob  vacancies  and  jobseekers’ 
profiles  registered  in  the  national  and  EU  databases  in  one  go.  This  would  ensure  access  to  a 
wider pool of profiles while avoiding duplication and proliferation of platforms. The partial re-
use  of  the  EURES  IT  solution  under  this  PO  would  allow  to  re-use  the  already  existing 
interoperability structure and only small adaptations would be required.  

User journey 

1) Registration 

TCNs would be able to directly register their profiles on the EU Talent 
Pool  (via  Europass  profile  builder176  and  describing  their  skills  using 
ESCO).  
Employers’  job  vacancies  would  be  registered  by  the  NCPs  of  the 
relevant  Member  State.  The  possibility  of  exporting  job  vacancies  from 

176  

Which includes the possibility to upload documents certifying skills and qualifications. 

38 

 
 
 
 
2) Pre-screening 
and checks 

3) Safeguards for 
fair recruitment  

4) Search and 
matching 

5) Validation of 
candidates’ profiles 

existing  national  job  portals  as  well  as  other  IT  support  tools  would  be 
envisaged to support in this process. Only job vacancies falling within the 
targeted  occupations  and  open  for  the  recruitment  of  third  country 
nationals following the labour market test would be made available on the 
EU Talent Pool platform. 

As  this  PO  would  target  certain  occupations,  an  automated  pre-
screening  of  TCNs  would  allow  to  check  whether  the  skills  and 
qualifications  declared  in  the  profile  correspond  to  those  normally 
required to work in one of the targeted occupations. An IT automated tool 
would  be  developed  for  this  purpose.  These  checks  would  not  entail  an 
assessment  of  the  quality  and  authenticity  of  the  declared  skills  and 
qualifications.  
In case of the alternative option - focusing on highly skilled workers- pre-
screening  would  be  conducted  against  the  corresponding  job  vacancies 
targeting the highly-skilled, and therefore only profiles with high level of 
skills, corresponding to the requirements of the EU Blue Card Directive 
or national schemes for labour migration of highly-skilled workers, would 
feature in the system.  
The  additional  element  of  including  automated  ID  security  checks  on 
TCN’s profiles prior to the admission into the EU Talent Pool would be 
assessed. 
Employers using the EU Talent Pool  would be required to comply with 
the relevant European legislation and national labour standards  applying 
to  third-country  nationals  in  order  to  protect  them  against  unfair 
recruitment and inadequate working conditions. Employers’ access to the 
platform would be suspended and their job vacancies removed by the EU 
Talent  Pool  National  Contact  Points  in  case  a  breach  is  notified  by  the 
relevant national authorities.  

Once  admitted  in  the  EU  Talent  Pool,  employers  and  TCNs  would  be 
able to search for each other via filters and a semi-automatic matching 
tool  (the  already  existing  EURES  tools  would  be  re-used).  Employers 
would be able to contact candidates they are interested in. 

1) While information and guidance would be provided in the platform on 
existing  validation  procedures  in  the  Member  States177,  the  individual 
skills  would  not  be  validated  by  the  EU  Talent  Pool  platform  itself. 
However, by facilitating third country nationals’ access to information on 
the  relevant  recognition  and  validation  procedures  at  national  level  they 
would  have  more  clarity  on  the  different  requirements,  hence  making 
their  access  to  this  process  easier  and  faster.  In  particular,  the  targeted 
nature  this  PO  2  would  allow  to  ensure  more  specific  guidance  on 

177  

Validation  is  a  broad  concept  that  involves  processes  for  assessing  and  confirming  the  skills,  competencies  or 
knowledge  acquired  through  non-formal  or  informal  learning,  work  experience,  or  training.  The  purpose  of 
validation  is  to  recognise  and give  value  to  the  skills  and  competencies  that  individuals have gained  (also  outside 
formal  education  settings).  Employers  may  conduct  validation  procedures  internally  (especially  when  it  comes  to 
multinationals)  or  request  specific  certificates  or  assessment  of  comparability  via  national  stakeholders  (e.g. 
universities, relevant ministries). Contrary to validation, recognition refers to the process of formally acknowledging 
the validity and equivalence of educational degrees, diplomas, certificates, or qualifications obtained in one country 
by a competent authority in another country. 

39 

 
 
 
validation of skills required in the relevant occupations.   
2) The alternative of conducting a mandatory pre-admission validation 
of skills and qualifications at EU level of all registered profiles would 
also be assessed. Discarded, see below. 

Additional components 

Online information on recruitment, immigration procedures and existing 
labour pathways as well as recognition of qualifications and validation of 
skills obtained in third countries as well as living and working conditions 
would  be  available  on 
the 
understanding  of  existing  rules  in  the  different  Member  States  and 
facilitate access to procedures. To avoid excessive burden on the national 
authorities,  standard  guidance  and  FAQs  would  be  developed.  The  EU 
Talent Pool platform would also provide links with relevant transparency 
and comparability tools available at EU level, therefore, improving their 
visibility. 

the  platform.  This  would  facilitate 

to 

family  members’ 

in  particular  with  regard 

Upon  request  from  TCNs  and  employers  participating  in  the  EU  Talent 
Pool, the NCPs would provide personalised support and post-selection 
information  on  family 
assistance 
reunification  procedures  and 
rights; information 
available at national level to facilitate third-country nationals’ integration 
in  the  host  Member  State  such  as  language  courses,  vocational  training 
and  other  integration  measures;  and  where  available,  the  contact  details 
of organisations which offer post-recruitment assistance for third country 
nationals. 
In  order  to  ensure  that  the  number  of  requests  for  support  remain 
manageable, standard guidance and FAQs would be developed.   
Member  States  would  additionally  have  the  option  of  introducing  fast-
track immigration and recognition procedures and/or exclusion from 
the labour market test. 

Online information 

Personalised 
support  

Measures 
facilitating the 
recruitment 
process 

Policy measure discarded at an early stage 

The  mandatory  pre-admission  validation  of  skills  and  qualifications  of  all  TCNs  at  EU 
level by a third-party validator178 was not retained for further assessment due to political and 
practical feasibility considerations.  
First,  validation  procedures  are  currently  conducted  at  national  level  and  widely  differ  from 
one  Member  State  to  another  (see  Section  2.2.2).  Currently,  it  is  not  practically  and 
politically  feasible  to  harmonise  such  processes.  In  addition,  it  would  require  the 
identification  of  a  responsible  actor  at  EU  level  to  conduct  such  validation.  Existing  EU 
agencies could not be tasked with this new responsibility without requiring an extension of 
their  current  mandate.  Tasking  an  EU  agency  with  this  responsibility  or  establishing  a  new 

178  

This policy  measure  implies  that  a  profile of  a  TCN  cannot  be  visible  for  employers  in  the  EU  Talent  Pool,  until 
his/her  skills  and  qualifications  are  validated  by  an  EU  validator.    While  the  validation  of  all  candidates’  profiles 
prior  the  admission  would  ensure  the  development  of  a  highly  trusted  pool  of  candidates,  hence,  improving  the 
quality of matches. 

40 

 
 
 
 
 
 
entity in charge of validation of skills and qualifications at EU level would require  extensive 
resources.  

In  addition,  imposing  the  validation  of  all  profiles  prior  the  admission  into  the  pool  would 
appear  disproportionate  and  counterproductive  as  it  would  create  bottlenecks,  high  costs 
and long waiting times. As validation is not a mandatory requirement to obtain a work permit 
and it is not considered necessary by all employers, this solution would run against the need of 
ensuring a flexible tool to make international recruitment easier and faster. Also, only a limited 
number of candidates who have been successfully validated would be admitted to the platform 
entailing a smaller pool of candidates, restricting drastically the chance of successful matches. 

Option  3:  Developing  an    EU  Talent  Pool  as  a  fully  demand-driven  tool  (legislative 
option) 

As per PO2, this legislative option would envisage the adoption of a new legislative act (based 
on  Article 79(2)(a)  TFEU)  regulating  the  scope  of  application,  access  criteria,  governance, 
specific features/components and functioning of the EU Talent Pool.  

Option 3: Developing an EU Talent Pool as a fully demand-driven tool  

Scope of application 

The  EU  Talent  Pool  would  be  a  voluntary  system.  Only  interested  Member  States  would 
participate. As a voluntary tool to facilitate international recruitment, the EU Talent Pool would 
offer additional support at EU level. Similarly, employers and third country nationals residing 
abroad  remain  free  to  decide  whether  to  use  this  tool  for  international  recruitment  (using  this 
tool  would  not  be  a  pre-requisite  to  obtain  a  work  permit  as  the  EU  Talent  Pool  does  not 
constitue a new legal pathway). Only employers established in these Member States would be 
able  to  register  their  job  vacancies  on  the  portal  and  search  for  candidates.  Registered  TCNs 
would be able to apply for job vacancies only in the participating Member States. 
The  EU  Talent  Pool  would  be  open  to  all  TCNs  and  employers  regardless  of  their  skills, 
occupations, and available vacancies respectively. 
This  PO  is  conceived  as  a  completely  open  tool  to  address  labour  market  needs  following  a 
demand-driven approach. It is not built to target specific labour market needs nor strategically 
support  other  existing  initiatives  aimed  at  improving  cooperation  with  third  countries  such  as 
Talent  Partnerships  which  also  have  a  targeted  approach  focusing  on  certain  sectors.  For  this 
reason, while TCNs and employers from partner countries and Member States participating in a 
Talent Partnership would still be allowed to register in the EU Talent Pool, this PO would not 
foresee the platform as a tool to specifically implement the Talent Partnerships. Therefore, 
additional  facilitations  would  not  be  included,  and  the  EU  Talent  Pool  would  not  act  as  the 
preferred channel for job placements in this context.  

Governance 

Whilst not necessarily building on the EURES governance model, PO3 would still require the 
running  of  the  platform  at  EU  level  by  the  EU  Talent  Pool  Secretariat.  The  Steering  Group 
composed by Member State representatives from the immigration and employment authorities 
would define the overall strategic and operational objectives of the tool. As per PO2, National 
Contact  Points  (NCPs)  would  be  designated  in  the  Member  States.  However,  while  the 
involvement  of  the  Member  State  would  be  lower  due  to  its  open  and  fully  demand-driven 
nature  (e.g.  no  list  of  shortage  occupations  at  national  level),  a  greater  involvement  of  the 
National Contact Points would result from the higher number of users potentially requiring their 
support. This could also result in increased efforts linked to the monitoring activities. 
Lastly,  as  no  specific  link  with  Talent  Partnerships  would  be  required,  this  PO  would  not 

41 

 
 
envisage the establishment of Liaison offices in partner countries.   

IT platform and interoperability  

As per PO2, this PO would require the development of an IT platform bringing together profiles 
registered by job seekers from outside the Union and job vacancies of employers established in 
the  Member  States..  However,  under  this  PO,  a  completely  new  IT  solution  would  be 
developed  via  a  job-matching  system  that  is  fully  based  on  AI-based  algorithms  inspired  by 
existing  private  sector  platforms  (e.g.  including  cutting-edge  technologies  such  as  advanced 
language  programs,  AI-driven  algorithms,  and  an  enhanced  user  experience.  A  detailed 
description  of  these  IT  solutions,  and  their  functioning  is  provided  in  Annex  9).  EURES  IT 
components would not be re-used. A completely new IT solution is envisaged due to the wider 
scope  of  this  PO  which  would  cover  all  range  of  possible  occupations,  and  therefore  would 
require  cutting-edge  technologies  allowing  to  better  identify  and  match  job  vacancies  and 
profiles (e.g. such as advanced language programs, and AI driven algorithms) (see Annex 9 for 
a  more  detailed  description  of  the  IT  solution).  Interoperability  with  EURES,  national 
platforms and private platforms (e.g. LinkedIn) would be foreseen where possible. As under 
this  PO  a  completely  new  IT  solution  would  be  developed,  interoperability  with  the  national 
platforms  would  be  created  from  scratch  via  the  development  of  dedicated  application 
programming interfaces (APIs). As per PO2, interoperability with national systems would allow 
the  competent  authorities  in  the  Member  States  (such  as  the  Public  Employment  Services)  to 
access job vacancies and jobseekers’ profiles registered in the national and EU databases in one 
go. 

User journey 

1) Registration 

2) Pre-screening and 
checks 

3) Safeguards for fair 
recruitment  

4) Search and 
matching 

As per PO2, TCNs would be able to directly register their profiles 
on the EU Talent Pool.  
However,  in  contrast  with  PO2,  employers  would  be  allowed  to 
directly  register  their  vacancies  on  the  platform  without  any 
involvement  of  the  national  authorities  as  it  would  be  open  to  all 
occupations and, hence all type of job vacancies.. 
Provided  that  this  PO  would  be  open  to  all  occupations  and, 
therefore,  all  skills  would  be  potentially  relevant,  no  pre-screening 
of TCNs profiles is envisaged  
Under  this  PO,  three  alternatives  would  be  assessed:  i)  no  quality 
assurance  checks  on  employers,  ii)  employers  using  the  EU  Talent 
Pool  would  be  required  to  comply  with  the  relevant  European 
legislation  and  national  labour  standards  to  third-country  nationals’ 
protection  against  unfair  recruitment  and 
inadequate  working 
conditions (same as PO2); iii) employers profiles undergo automated 
quality assurance checks online (without human intervention). 
As  under  PO2,  the  search  via  filters  functionality  and  semi-
automatic  matching  tool  would  be  available.  However,  instead  of 

42 

 
 
 
re-using  the  existing  EURES  components,  new  tools  would  be 
developed.  

Additional components 

Online information 

Personalised support  

Same as PO2.  
Same as PO2. 

Measures facilitating 
the recruitment 
process 

introduce  fast-track 
Member  States  have  an  obligation 
immigration  and  recognition  procedures  and/or  exclusion  from 
the labour market test. 

to 

Table below provides an overview of the policy measures under each PO which were retained 
for further assessment under Section 5.4. Additional information is provided in Annex 9. 
Table 2: Detailed overview of the policy measures under each policy option  

POs building 
blocks 

PO1 

PO2 

PO3 

Legal instrument  Non-legislative 
Scope of 
application  

Voluntary for MS  

Regulation  
Voluntary for MS  

Regulation  
Voluntary for MS 

Open to all occupations   1) Targeted to occupations 

of EU and national 
relevance  
2) Targeted to highly 
skilled workers 
[alternative] 
Open to Talent Partnership 
with additional facilitations 

Open to Talent 
Partnerships without 
additional facilitations  
National Contact Points   Secretariat within EC; 

Governance 

IT platform 

New IT solution for 
catalogue of profiles 

Interoperability  No interoperability 

User-journey  
Registration  

Only TCNs (catalogue 
of profiles) 

Automated pre-
screening 
Safeguards for 
fair recruitment  

N/A 

No 

Steering Group; National 
Contact Points 

EURES IT solutions 
partially re-used, other IT 
components newly 
developped 
Automatically interoperable 
with EURES and national 
systems (only small 
adaptations) 

TCNs direct registration. 
Employers registered by 
NCPs. 
Yes 

Suspension access of 
employers and removal of 
job vacancies if breach with 
European legislation and 
national labour standards 

43 

Open to all occupations 

Open to Talent 
Partnerships without 
additional facilitations  
Similar to PO2 (not 
necessarily building on 
EURES and greater 
involvement of NCPs) 
New job-matching system 
with AI-based algorithms 
(inspired by private sector 
platforms) 
Interoperable with 
EURES, national systems 
and private platforms 
(new) 

TCNs and employers’ 
direct registration  

No 

1) No checks [discarded] 
2) Same as PO2  (with 
direct registration of 
employers) 
3) Direct registration of 
employers and automated 
checks [discarded] 

 
 
 
Search and 
matching  

Employers search via 
filters (no automatic 
matching tool) 

Validation of 
candidates’ 
profiles 

No 

Additional components 
Online 
information  

Yes (EU Immigration 
Portal) 

Personalised 
support 

Facilitation 
measures 

No 

No 

Same as PO2 but new 
search and automatic 
matching tools.  

No 

TCNs and employers 
search via filters and 
automatic matching tool 
(EURES tools re-used).   
1) TCNs’ profiles 
validation at national level 
upon request  
2) Mandatory for all at EU 
level [discarded] 

Yes  

Yes 

Same as PO2 

Yes 

Optional 

Mandatory 

A detailed description on how each option addresses the specific objectives is provided in the 
visual below on the overall intervention logic: 

6.  WHAT ARE THE IMPACTS OF THE POLICY OPTIONS? 
This  section  assesses  the  impact  of  the  POs  described  in  Section  5  and  retained  for  in  depth 
analysis  against  a  series  of  assessment  criteria  covering  specifically  effectiveness,  efficiency 
and  coherence.  The  selected  impacts  are  assessed  qualitatively  and,  where  possible, 
quantitatively.  

44 

 
 
 
 
 
 
A wide range of impact categories was then screened in order to identify the key impacts for 
detailed assessment taking into account the nature of the policy area, the identified problems, 
the objectives to be achieved, and the views of stakeholders and experts. The impact categories 
retained  are  economic  impacts,  social  and  fundamental  right  impacts  and  enviromental 
impacts.  

For the purpose of assessing the impact, and its intensity, of the POs compared with the status 
quo (baseline scenario179), the following scale is used: 

-3 
-2 
-1 
 0 
+1 
+2 
+3 

Significant negative impact/cost/loss 
Medium negative impact/cost/loss 
Small negative impact/cost/loss 
No impact 
Small positive impact/savings/gains 
Medium positive impact/savings/gains 
Significant positive impact/savings/gains 

The assessment of the POs is based on a number of key assumptions: 

1.  All the POs foresee the development of a voluntary EU Talent Pool giving Member States 
the possibility to decide whether they want to participate or not. Certain costs and impacts 
vary  depending  on  the  number  of  Member  States  participating.  In  order  to  provide  a 
clear  and  realistic  assessment,  uncertainties  linked  to  the  potential  uptake  of  the  initiative 
should  be  taken  into  account.  To  this  purpose  it  was  assumed  that  a  minimum  of  11 
Member  States  and  a  maximum  of  20  Member  States  would  participate  in  the  EU 
Talent  Pool.  A  range  of  costs  and  impacts  estimated  under  each  scenario  is  presented 
below in the assessment of each policy option. This assumption was based on a number of 
considerations.  Whilst  the  initiative  would  be  designed  to  be  attractive  as  many  Member 
States as possible, it is likely that their participation would be a gradual process with only 
some  Member  States  joining  in  the  first  years  of  operation  and  a  progressive  increase 
expected in the long run. The minimalistic scenario (with 11 Member States participating) 
was  built  taking  into  account  that  legal  migration  is  an  area  of  shared  competence  where 
Member  States  tend  to  be  cautious  to  engage  in  view  of  political  sensitivity  of  migration 
overall.  Consultations  also  demonstrated  that  some  Member  States  interested  in  the 
initiative would wait to see the first outcomes of the operation of the EU Talent Pool before 
deciding  to  formally  join.  Therefore,  it  was  assumed  that  Member  States  with  a  stronger 
interest  may  join  from  the  outset,  while  others  will  follow  after  2030.  In  the  long  run,  a 
higher uptake of the initiative is foreseen as demonstrated by the fact that the large majority 
of  Member  States  consulted  welcomed  the  initiative.  In  addition,  it  can  be  reasonably 
assumed that several  Member States will join in view of the pressing needs  related to  the 
challenging  demographic  situation  which  would  require  to  rely  on  legal  migration  to 
address  future skills  and labour shortages  that  cannot  be sufficiently addressed by  the EU 
domestic workforce.  

2.  In  order  to  assess  the  effectiveness  and  efficiency  of  each  PO,  the  number  of  potential 
users  (TCNs  and  employers)  of  the  platform  and  expected  successful  matches  by  2030  
was  estimated.  The  number  of  Member  States  participating  would  also  imply  a  different 
number  of  expected  successful  matches.  A  higher  uptake  of  the  initiative  by  the  Member 
States would result in a higher number of TCNs interested in registering their profiles in the 

179  

Rated "0" for the purposes of comparison, though it could have negative impacts, e.g. entailing losses of efficiency. 

45 

 
 
 
 
 
EU Talent Pool and, hence, in a higher number of successful matches. Therefore, ranges of 
expected  successful  matches  with  11  and  20  Member  States  participating  are  provided 
below.180 

Successful matches indicate the number of TCNs selected in the context of the EU Talent 
Pool and, therefore receiving and accepting a job offer made by an employer for a specific 
job vacancy181. The success rate of matches indicates the number of job offers received by 
TCNs  compared  to  the  number  of  TCNs  who  registered  their  profile  in  the  EU  Talent 
Pool182.  The  job  vacancies  fulfilment  rate  shows  the  percentage  of  job  vacancies  that 
entered the EU Talent Pool  and  were subsequently filled via this  platform  as  a result of a 
successful match.  

These  estimations  show  the  contribution  of  this  initiative  in  addressing  skills  and  labour 
shortages  and  form  the  basis  to  assess  the  economic  impacts  and  costs  of  the  initiative. 
Other non-quantifiable factors, such  as the quality of the profilesare taken into account  in 
the overall assessment of the POs described below. Thus, the effectiveness of each PO was 
analysed  ensuring  a  balance  between  the  quantity  of  matches  and  their  quality.  The  table 
below  provides  an  overview  of  the  mentioned  estimations  and  the  number  of  expected 
successful  matches  by  2030.  As  described  in  the  table  below,  the  number  of  TCNs 
interested in registering their profiles in the EU Talent Pool is expected to be lower under 
PO1 considering its reduced attractiveness due to the limited functionalities of the catalogue 
of  TCNs  profiles  envisaged  under  this  option  (e.g.  no  job  vacancies  available  online).  By 
contrast, under PO2 and PO3, the number of TCNs interested in registering is expected to 
be  higher  as  a  fully-fledged  EU  platform  facilitating  the  identification  and  matching  is 
expected to attract more users. However, due to the targeted nature of PO2 focusing only on 
certain occupations, a lower number of TCNs interested in registering is foreseen under this 
option in comparison with PO3. With regard to the expected success rate of matches, PO1 
ranks lower due to the lack of specific features to facilitate the matching. While under PO2 
and PO3 more matches are expected due to their specific components, a higher percentage 
of success it expected under PO2 as a result of the screening process allowing to limit the 
pool to only candidates relevant to the targeted occupations, hence ensuring better quality of 
the profiles.  

Table 3: Overview of estimated TCNs registering in the EU Talent Pool and the number of 
expected successful matches by 2030 

Expected successful matches 
[with 11 or 20 Member States 
participating] 

Expected Success rate of 
matches  
(≠ job placement rate) 

Expected job 
vacancies 
fulfillment rate 

POs 

PO1  

Expected TCNs in 
interested in registering 
their profile  
[with 11 or 20 Member 
States participating] 
3 338 900 – 3 503 400 

PO2 

3 729 000 – 3 893 500 

271 000 – 282 500 

7% 

16 500 – 17 300 

0,5% 

0,05% 

15% 

180  

181  

182  

Under the maximalistic scenario envisaging the participation of 20 Member States, it is expected that the information 
campaign would result in an higher number of TCNs interested in registering on the EU Talent Pool (5% more than 
in case of 11 Member States participating). See Annex 4 for a detailed description of this estimation. 
After  receiving  a job  offer,  TCNs  have  to  apply for  a  work  permit  in  the Member  State.  Therefore,  the  estimated 
number of successful matches is not equivalent to the number of TCNs obtaining a work permit as the subsequent 
immigration procedure depends on the assessment of the national authorities. However, the discrepancy between the 
number of successful matches and the number of work permits issued is not expected to be significant. 
The  success  rate  of  matches  is  not  equivalent  to  the  rate  of  job placement  as  TCNs  would need  to  obtain  a  work 
permit in the Member State to be able to start working in a specific position.  

46 

 
 
 
 
PO3 

4 437 000 – 4 601 500 

279 000 – 296 000 

6% 

7% 

The following methodology was used to identify the number of TCNs potentially interested 
in registering their profiles:  

1) The current number of TCNs profiles available in the EUROPASS database was used as a 
basis  to  identify  the  level  of  interest  of  jobseekers  from  third  countries  that  are  seeking 
employment opportunities in the EU183.  

2) As labour migration is projected to grow by 2030184 (and, therefore also the number of 
potentially interested TCNs), this number was adjusted in line with the past observed trends 
in labour migration over the last 7 years185. 

3)  Other  factors  linked  to  the  attractiveness  of  this  initiative  and,  therefore,  increasing  the 
number of TCNs potentially interested were also considered (e.g. results of awareness-raising 
campaigns specifically promoting the EU Talent Pool). These factors are linked to the specific 
features and nature of each option. Hence, the final number of TCNs interested in registering in 
the EU Talent Pool vary depending on the policy option.  

The  number  of  expected  succesfull  matches  was  also  based  on  a  number  of  assumptions.  In 
particular, a reduction of 1% of TCNs profiles was considered as profiles registered on online 
platforms are often incomplete, fake or lacking relevant information.  An additional reduction 
of registered profiles was applied to PO2 as a result of the automated pre-screening as certain 
profiles would be screened out as not relevant for the targeted occupations. On this basis, the 
number  of  successful  matches  was  calculated  by  taking  into  account  the  different  selection 
rates under each option.186  

A detailed explanation of the assumptions is provided in Annex 4. 

6.1 Policy Option 1 - Soft measures aiming at improving information provision and 

facilitating identification and matching (non-legislative option) 

Assessment 
Criteria 
Relevance and effectiveness in achieving the objectives 

Rate  Assessment 

183  

184  

185  

186  

Almost 1 300 000 CVs of TCNs were registered in EUROPASS in mid-2023. It was considered that investing time 
and  efforts  in  creating  a  profile  on  EUROPASS  would  indicate  genuine  interest  in  pursuing  professional 
opportunities within the EU job market. In addition, it shows a certain level of IT skills which are equivalent to those 
that would be required to create a profile on the EU Talent Pool platform. 
Number of TCNs from abroad potentially interested in seeking job opportunities in the EU by 2030 was estimated to 
be  approximately  3  290  000.  According  to  EUROPOP2023  projected  net  migration  and  on  the  share  of  first 
residence permits given for employment purposes in the period 2017-2021, the estimated inflows of TCNs coming 
for employment purposes is expected to be about 400.000 per year, adding up to a cumulated 3.8 million by 2030. 
This number was extrapolated on the basis of the number of legal permits issued for employment purposes in 2015-
2022. The observed increase in labour migration over the last 7 years corresponded to a 2.64 multiplier, applied over 
the next 7 years, cumulatively, up to 2030.  
A different selection rate was identified on the basis the expected quality of the profiles which would imply greater 
chances  to  satisfy  employers’  needs  (PO1:  0,5%;  PO2:  7%;  PO3:  6%).  These  rates  were  built  on  the  basis  of 
evidence gathered in the context of the study to inform the Impact Assessment conducted by the external contractor. 
The share of jobseekers finding employment thanks to the involvement of Public Employment Services in their job 
search  averages  at  around  7%  according  to  inputs  from  Commission  Services.  Systematic  publicly  available  data 
regarding these rates across industries in the European Union are lacking. However, the limited data sources from 
both Europe and other regions suggest that the share of jobseekers which obtain a job offer following the selection 
process is to be below 5%. 

47 

 
 
 
 
SO 1 (ensuring 
more effective 
international job 
matching) 

SO 2 (improving 
comparability of 
skills and 
qualifications 
obtained in third 
countries with 
those required at 
national level) 
SO 3 (improving 
understanding and 
access of 
immigration 
procedures) 
SO 4 (incentivising 
cooperation on 
migration with 
third countries as 
part of a Talent 
Partnership) 
Economic impacts 

Impact on growth 
and 
competitiveness 
[SGD 8] 

+1 

+1 

+ 2 

0 

+1 

Impact on SMEs 
[SDG 8 and 9] 

+1 

Estimated additional successful matches (on top of baseline): 
16 500 – 17 300 (for 11 to 20 Member States participating).  
The  organisation  of  job-matching  events  and  catalogue  of 
profiles  of  TCNs’  profiles  would  facilitate  the  identification  of 
potential candidates. However, due to the use of a non-legislative 
instrument  such  as  a  Commission  Recommendation 
the 
catalogue  of  profiles  would  have 
limited  functionalities. 
Therefore, this PO would achieve SO1 only  to  a limited extent. 
In  addition,  in  view  of  a  limited  number  of  successful  matches, 
this PO would have only a small positive impact on achieving the 
SO1.  
Against the baseline, PO1 would provide online information on 
recognition and validation procedures in the Member States, 
facilitating  access  to  procedures.  However,  in  view  of  a  lack  of 
additional  personalised  support  and  skills  and  profiling  and 
comparability tools, PO1 positive impact  on achieving SO2 is  s 
limited.  

Compared with  the baseline, this PO would better contribute to 
making  information  provision  on  immigration  procedures  more 
understandable  through  the  improved  EU  Immigration  Portal. 
However,  additional  personalised  support  by  National  Contact 
Points would not be available.  
This  PO  has  no  impact  on  achievement  of  SO4.  While  being 
open  to  all  TCNs  notwithstanding  their  origin  country,  this  PO 
would  not  foresee  the  platform  as  a  tool  to  specifically 
implement the Talent Partnerships.  

Compared  with  the  baseline,  a  marginal  positive  economic 
impact  would  stem  from  the  international  recruitment  of 
relatively  small  number  of  TCNs  residing  abroad  to  address 
skills  and  labour  shortages  that  cannot  be  filled  by  domestic 
workforce.  Thus,  TCNs  workers  would  only  marginally 
counteract  the  ageing  of  the  EU  population.  The  expected 
positive  impact  on  the  GDP  is  of  around  EUR  235  –  260 
million  (with  11  to  20    Member  States  participating)  and  a 
minimal impact on public finances is expected. 
Any  specific  support  to  international  recruitment  would  be 
particularly  beneficial  for  SMEs.  This  PO  would  marginally 
benefit  SMEs  by  facilitating  the  identification  of  potential 
candidates and partially supporting their matching (e.g. via job-
matching  events  and  catalogue  of  profiles)  as  well  as  providing 
online information on immigration and recognition procedures. 
However,  this  PO  would  only  have  a  limited  impact  as  no 
specific tool would be included to further facilitate the matching 
and its quality  (e.g. no  automatic matching  tool,  pre-screening), 
and  no  personalised  guidance  would  be  ensured.  The  limited 
pool  of  candidates  would  also  reduce  the  chances  to  recruit 

48 

 
 
Impact on 
innovation and 
research  

0/+1 

internationally. 

The  expected,  whilst  small,  increase  of  TCNs  workers  would 
have  a  positive  impact  on  companies’  capacity  to  conduct 
research  and  would  benefit  the  EU’s  overall  capacity  for 
innovation and research. However, due to the limited coverage 
of this PO the recruitment of TCNs benefitting innovation and 
research would be marginal.  

Social and fundamental rights impacts 

Impact on EU 
citizens 

+1 

Impact on business 
and employers 

+1 

Impact on third 
country nationals 

+1 

Impact on third 
countries 

+1 

Environmental impacts 

Limited increase in the number of TCNs workers is not expected 
to  entail  any  costs  or  disadvantages  for  EU  citizens  vis-à-vis 
the  status  quo.  Similarly,  the  potential  displacement  effect  on 
EU  workers  is  expected  to  be  limited.  This  PO  would  have  a 
positive  impact  on  social  cohesion  as  it  is  not  expected  to 
increase social tension or a negative perception of migration.  
This  PO  would  have  a  positive  impact  on  business  and 
employers  as  they  will  have  an  easier,  quicker,  and  potentially 
wider,  access  to  labour  resources  from  third  countries.  This  PO 
would    involve  processing  of  personal  data.  In  the  absence  of 
Union legislative act, necessary data protection provisions should 
be adopted at national leveltaking into account the requirements 
of the EU data protection acquis.  
There would be a small positive impact for TCNs because their 
possibilities  to  find  a  job  in  the  EU  and  being  recruited  would 
increase.  Overall,  this  PO  would  have  a  positive  impact  on 
social  cohesion  as  it  will  contribute  to  TCNs’  labour  market 
participation and create a sense of interdependence with the local 
population. With regard to the fundamental rights impacts, this 
PO would enact the right to choose an occupation and engage in 
work [Article 15 of the Charter, and SDG 16]. As per impacts on 
the  protection  of  personal  data  of  jobseekers  would  be  similar 
to those described above (impacts on employers and businesses). 
On  the  other  hand,  protection  against  the  risk  of  unfair 
recruitment and exploitative working conditions would not be 
adequately  ensured  as  no  checks  on  employers  would  be 
conducted. 
This PO would have an impact on third countries as facilitating 
international  recruitment  and,  therefore,  making  the  EU  more 
attractive,  third  countries  may  face  the  risk  brain  drain. 
However,  the  increase  of  TCNs  moving  to  the  EU  would  be 
small  in  comparison,  making  this  impact  limited.  At  the  same 
time, this PO is expected to have a marginal positive impact on 
remittances.  

0 

As this PO would not target  specific sectors linked to the green 
transition and the number of successful matches is expected to be 
low, this PO would have negligible environmental impact.  

Efficiency 

49 

 
 
  
 
 
 
Administrative costs187 
This  PO  envisages  the  improvement  of  the  EU  Immigration 
Portal,  the  organisation  of  job-matching  events  as  well  as  the 
setting up of an online portal with a catalogue of profiles. There 
would also be costs related to the governance structure.  

An  overview  of  the  costs  estimated  under  this  PO  is  provided 
below.  Where  costs  vary  depending  on  the  number  of  Member 
States participating, a range of costs is provided to cover the two 
  11  or  20  Member  States  participating, 
scenarios  with 
respectively. 
the  assumptions 
underlying  these  calculations  is  provided  in  Annex  4  while  the 
explanation of estimation of costs is provided in Annex 10).  

(A  detailed  description  of 

This PO would entail:  

1) One-off costs for the IT development (2026-2027):  

Under  this  PO,  costs  for  IT  developments  are  linked  to  the 
improvement  of  the  EU  Immigration  Portal,  the  advertising  of 
the    job-matching  events,  and  the  development  of  an  online 
portal  with  a  catalogue  of  profiles.  The  latter  would  entail 
relatively  low  costs  in  view  of  a  less  sophisticated  IT  solution 
and  the  absence  of  additional  IT  tools  such  as  the  automatic 
matching  function.  The  development  of  these  IT  components 
would require two years.  

-  Costs for the Commission: EUR 4 069 883 – 4 085 644 (with 

11 to  20 Member States participating)  

-  Cost  for  the  Member  States:  No  costs  are  envisaged  for 

Member States.  

2) Recurrent yearly human resources costs (2026-2030188):  

This PO would entail additional staff at EU level to improve the 
EU Immigration Portal (coordinating with National Coordinators 
in  the  Member  States  and  reviewing  information  they  provided 
on  national  procedures).  Human  resources  would  also  be 
required  to  organise  the  job-matching  events  and  managing  the 
online portal with a catalogue of profiles.    

Administrative 
costs and 
cost/benefit 
effectiveness 

+1 

Practical or 
technical feasibility  

National Coordinators would be appointed in the Member States. 
They  would  be 
relevant 
information to be uploaded on the EU Immigration Portal as well 
as facilitating the matching between employers and jobseekers in 
the context of the online catalogue of profiles. 

for  providing 

responsible 

the 

-  Costs for the Commission: EUR 707 000 (11 FTEs) 
-  Costs  for  the  Member  States  National  Coordinators  (to  be 
covered  by  AMIF):  EUR  1  683  000  –  3  060  000  (11  –  20 

187  

188  

With regard to Costs after 2027, they  are indicative and do not prejudge the available budget for this initiative under 
the MFF 2028-2034. 
Idem. 

50 

 
 
 
 
 
 
  
FTEs with 11 to  20 Member States participating). 

3)  Recurrent  yearly  costs  for  other  activities  and  IT 
maintenance (after 2027)189:  

-  Costs  for  the  Commission:  EUR  1  362  000  (for  the 
organisation of the job matching events) and EUR 1 009 633 
–  1  017  514  (for  IT  maintenance  with  11  to  20  Member 
States participating). 

-  Costs for the Member States: No other costs are foreseen for 

the Member States. 

Benefits 

•  Direct benefits 

This PO would entail cost savings which are difficult to quantify 
in monetary terms as linked to the time saved by employers and 
TCNs throughout the entire recruitment process due to the easier 
identification  of  candidates  (via  job-matching  events  and  the 
online catalogue of profiles) and the provision of information on 
immigration  procedures  the  EU  Immigration  Portal.  However, 
these costs savings are expected to be relatively small due to the 
limited functionalities foreseen under this PO (e.g. no automatic 
matching 
the  National 
Coordinators). No opportunity costs are expected under this PO.  

tool,  no  personalised  support  by 

•  Indirect benefits 

Indirect  benefits  are  also  foreseen  under  this  option.  These 
benefits  include  the  increased  GDP  resulting  from  a  higher 
number  of  TCNs  working  in  the  EU.  This  would  also  result  in 
additional fiscal contributions as well as in increased remittances 
for  third  countries.  (A  detailed  explanation  of  the  indirect 
benefits  is  provided  in  Annex  10).  Different  ranges  of  indirect 
benefits  are  provided  below  according  on  whether  11  or  20 
Member States participate in the initiative. 

-  Additional GDP: EUR 235 – 260 million 
-  Additional fiscal contributions: EUR 56 – 59 million  
-  Additional  remittances  to  third  countries:  EUR  44  –  46 

million 

Practical and technical feasibility  

Developing  an  online  catalogue  of  profiles  under  this  PO  via  a 
Commission  Reccomandation  would  require  a  number  of 
technical, legal and practical efforts for the Commission and the 
Member 
and 
disproportionate  in  comparison  with  the  benefits  and  limited 
results expected under this PO.  

cumbersome 

excessively 

States 

being 

189  

Idem. 

51 

 
 
 
 
 
 
Coherence with other EU policies 

In line with other EU policies, the New Pact on Migration and Asylum and, in particular the 
Skills and Talent Package. It contributes to the European Year of Skills, and it is a key 
component of the Package on talent mobility. It is broadly consistent with EU economic and 
social policies, and it contribute to the Skills Agenda and the Pact for Skills, the Net Zero 
Industry Act and the Green Deal Industrial Plan.  
Overall assessment 
The PO will address the general problem only to a very limited extend. It would not inventivise 
cooperation with third countries (SO4), while the other SOs would only partially be addressed 
due to the limited coverage of this PO in terms of potential users and the relatively low expected 
successful matches. The quality of candidates profiles and matches would be limited due to the 
lack of specific measures (no personalised support or automated matching tool). Economic and 
social impacts will be small and positive, while the costs are expected to be relatively low.  

6.2 Policy Option 2 - Developing an EU Talent Pool targeted to address labour market 

needs in key occupations (legislative option) 

Assessment 
Criteria 
Relevance and effectiveness in achieving the objectives 

Assessment 

Rate 

SO 1 (ensuring more 
effective 
international job 
matching) 

+3 

SO 2 (improving 
comparability of 
skills and 
qualifications 
obtained in third 
countries with those 
required at national 
level) 

+2 

to 

Estimated  additional  successful  matches  (on  top  of 
baseline): 271 000 – 282 500 (for 11 to 20 Member States 
participating) 
PO2 would significantly improve the identification of EU 
employers and TCNs. The matching would be facilitated 
via  the  search  by  filters  and  an  automatic  matching  tool. 
Personalised  guidance  and  support  by  NCPs  as  well  as 
online  information  would  constitute  additional  support. 
These components would not only facilitate the matches but 
also ensure a better quality. The screening of candidates’ 
profiles  would  further  contribute 
the  quality  of 
matching.The  alternative  of  targeting  only  highly  skilled 
workers would have the advantage of making the screening 
process more agile as requirements migrants need to meet to 
qualify as highly skilled are clearly defined either in the EU 
Blue  Card  Directive  or  corresponding  national 
laws. 
However,  this  alternative  would  not  allow  to  effectively 
address  labour  shortages  which  also  exists  for  medium  and 
low skills. 
PO2  would  better  facilitate  access  to  procedures  thanks  to 
information  on  recognition  and  validation 
online 
procedures  in  the  Member  States  as  well  as  personalised 
guidance  by  the  NCPs.  In  addition,  the  integration  of 
existing  skills  profiling  and  comparability  tools  (e.g. 
Europass, ESCO) in the candidates’ profiles creation would 
make  it  easier  for  employers  to  understand  skills  and 
qualifications  and  compare  them  with  those  required  at 
skills  and 
national 
qualifications  would  result  in  a  higher  success  rate  and 
quality of matches. 

level.  Better  understanding  of 

52 

 
 
 
+3 

+2 

SO 3 (improving 
understanding and 
access of 
immigration 
procedures) 

SO 4 (incentivising 
cooperation on 
migration with third 
countries as part of a 
Talent Partnership) 

Economic impacts 

Impact on growth 
and competitiveness 
[SGD 8] 

+2 

Impact on SMEs 
[SDG 8 and 9] 

+2 

Impact on innovation 
and research  

+2 

to 

tool 

this  context  with  employers  established 

This PO would significantly contribute to facilitating access 
to  immigration  procedures  through  provision  of  better 
online  information  and  personalised  support  by  NCPs 
allowing  TCNs  and  employers  to  better  identify  the 
procedure applicable to their cases.   
PO2  would  support  the  implementation  of  the  Talent 
Partnerships  by  providing  a 
the 
recruitment of TCNs who participated in activities organised 
in 
the 
participating Member States.  Liaison Offices in the partner 
countries  would  be  established  to  further  support  the 
the  candidates’  profiles.  Additional 
registration  of 
facilitations  such  as  the  issuance  of  a  ‘Talent  Partnership 
pass’ would  allow to  flag profiles validated in  this  context, 
therefore contributing to facilitate matches and ensure better 
quality.  All  this  will  have  a  medium  positive  impact  on 
incentivising cooperation with third countries in the context 
of Talent Partnerships. 

facilitate 

in 

A  medium  positive  economic  impact  would  accrue  from 
the  international  recruitment  of  a  higher,  whilst  small, 
number of TCNs residing abroad to address skills and labour 
shortages at all skills levels that cannot be filled by domestic 
workforce.  Thus,  TCNs  workers  would  marginally 
counteracts  the  ageing  of  EU  population.  In  addition,  this 
PO  would  ensure  better  quality  recruitment  to  avoid 
mismatches  and  over-qualification 
(via  pre-screening, 
matching 
tool  and  personalised  support).  This  would 
further benefit EU productivity and economic gains. This 
PO  is  expected  to  have  a  positive  impact  on  the  GDP 
through  additional  wages  (around  EUR  3.8  –  4.2  billion 
with  11  to20  Member  States  participating)  and  minimal 
impact on public finances.   
Specific  support  to  international  recruitment  would  be 
particularly beneficial for SMEs as they are likely to bear 
a disproportionate burden when hiring TCNs in comparison 
to large enterprises due to more limited resources. Increased 
possibilities  to  recruit  TCNs  would  boost  SMEs  growth 
perspectives.  This  PO  would    provide  medium  positive 
benefits  to  SMEs  as  it  would  entail  a  wide  pool  of 
tools  facilitating  the  matching, 
candidates,  specific 
personalised  guidance  by  the  NCPs  as  well  as  online 
information  provision  on  recruitment,  immigration  and 
recognition  procedures.  In addition,  by providing a focused 
pool of pre-screened candidates better quality recruitment 
would  be  ensured  (see  Annex  on  SMEs  test).  At  the  same 
time, a subset of SMEs that want to fill in job vacancies in 
occupations that are not  of EU or national relevance would 
not be able to use the EU Talent Pool.  
This PO would result in a moderate increase in the number 
of  skilled  TCNs  workers  thanks  to  the  higher  rate  of 

53 

 
 
successful  matches  and  the  focused  nature  of  this  PO 
targeting  occupations  of  EU  and  national  relevance 
(including those relevant for R&D, especially  in  relation  to 
the  green  and  digital  transition),  this  PO  would  have  a 
medium positive impact on companies’ capacity to conduct 
R&D.  
Social and fundamental rights impacts 

Impact on EU 
citizens 

+2 

Impact on business 
and employers 

+2 

Impact on third 
country nationals 

+2 

recruited 

This  PO  would  result  in  a  moderate  increase  in  the 
number of TCNs workers. Therefore, it is not expected to 
entail particular costs or disadvantages for EU citizens vis-à-
vis the status quo and the potential displacement effect on 
EU  workers  is  expected  to  be  limited.  Considering  the 
limited  migration  increase,  this  PO  would  have  a  positive 
impact on social cohesion as it is not expected to increase 
social  tension  or  a  negative  perception  of  migration.  In 
addition, ensuring protection against unfair recruitment is 
expected  to  reduce  downward  pressure  on  wages  resulting 
from exploitation and social dumping practices. The targeted 
approach  would  ensure  complementarity  of  skills  (TCNs 
would  be 
in  occupations  where  domestic 
workforce is insufficient), that may also result in a positive 
impact on wages.  
This PO would have a medium positive impact on business 
and employers as they would have an easier, quicker, and 
wider,  access  to  labour  resources  from  third  countries, 
provided  that  they  seek  workers  in  occupations  of  the  EU 
and  national  relevance.  In  addition,  better  quality  of 
matches  would  be  ensured  via  specific 
tools  and 
personalised support. This PO would involve processing of 
personal  data  of  employers  as  the  as  those  data  of 
employers  who  are  natural  persons  or  data  of  employers’ 
representatives  by 
the 
Commission.  The  proposed  measures  must  therefore  be 
based on Union a legislative act in compliance with the EU 
data protection acquis.  
This  PO  has  a  medium  positive  impact  on  TCNs,  as  it 
increases  their  chances  to  find  a  job  and  offers  higher 
success  rate  in  job  matching.  The  integration  of  skills 
profiling  and  matching  tools  would  avoid  mismatches  and 
over-qualification  of  TCNs.  Overall,  this  PO  would  have  a 
positive  impact  on  social  cohesion  as  it  will  contribute  to 
TCNs’  labour  market  participation  and  create  a  sense  of 
interdependence  with  the  local  population.  With  regard  to 
the  fundamental  rights  impacts,  this  PO  would  enact  the 
right  to  choose  an  occupation  and  engage  in  work  [Article 
15  of  the  Charter,  and  SDG  16]  as  well  as  the  right  to  fair 
and just working  conditions [Article 31 of the Charter] and 
non-discrimination  (Articles  21  of  the  Charter)].  This  PO 
would have a great positive impact on protection of TCNs 
against  discrimination, 
job  quality  and  working 
conditions  standards  [SDG  8  and  10]  as  it  would  reduce 

interested  Member  States  and 

54 

 
 
  
risk  of  unfair 

through  appropriate 
recruitment 
the 
safeguards.  The    impacts  on  protection  of  jobseekers’ 
personal  data  would  be  similar  to  those  described  above 
(impact  on  employers  and  businesses).  The  option  of 
conducting  also  ID  security  checks  during  the  screening  of 
the candidates’ profiles  would not appear to be a necessary 
and  proportionate  measure  considering  that  security  checks 
are  in  any  event  conducted  at  a  later  staged  during  the 
immigration  procedure,  hence  entailing  a  duplication  of 
these checks. 
In  view  of  facilitating  international  recruitment  to  the  EU, 
third countries may face the risk of brain drain. However, 
the increase of TCNs moving to the EU would be moderate 
in comparison with the baseline, making this impact limited. 
Due to the specificlink with Talent Partnerships, the risk of 
brain  drain  would  be  mitigated  under  this  PO  for  matches 
conducted  in  this  context,  as  Talent  Partnerships  are 
developed in a mutual beneficial way and relevant sectors as 
selected in common agreement with the partner country. The 
targeted  nature  of  this  PO,  focusing  only  to  specific 
occupations would further limit the risk of brain drain. This 
PO is expected to have a positive impact on remittances.  

This PO would target sectors and occupations which are 
linked to the green transition. Focused advertising among 
TCNs  and  concentrating  the  EU  Talent  Pool  resources  on 
facilitating recruitment of TCNs in those occupations, would 
result  in  increased  number  of  “green”  occupations  being 
filled  by  TCNs.  Thus,  this  PO  would  have  a  medium 
positive  impact  on  the  EU  transition  toward  a  green 
economy and therefore, a positive environmental impact.   

Administrative costs190 

This PO envisages development of an IT platform bringing 
together profiles of jobseekers from  third  countries and job 
vacancies  of  EU  employer.  The  platform  would  integrate 
specific features to facilitate the identification and matching 
as well as the provision of information and support relevant 
for  international  recruitment  procedures.  The  development 
of  a  new  IT  platform  would  generate  important  costs  that 
would  nevertheless  be  decreased  by  re-using  some  of  the 
existing EURES IT components. There would also be costs 
related to the governance structure.  

An  overview  of  the  costs  estimated  under  this  PO  is 

Impacts on third 
countries 

+2 

Environmental impacts 

+2 

+3 

Efficiency 

Administrative costs 
and cost/benefit 
effectiveness 

Practical or technical 
feasibility  

190  

With regard to the costs after 2027, they are indicative and do not  prejudge the available budget for this initiative 
under the MFF 2028-2034. 

55 

 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
provided below. Where costs vary depending on the number 
of Member States participating a range of costs is provided 
to  cover  the  two  scenarios  with  11  or  20  Member  States 
participating,  respectively.  (A  detailed  description  of  the 
assumptions  underlying  these  calculations  is  provided  in 
Annex  4  while  the  explanation  of  estimation  of  costs  in 
Annex 10).  

This PO would entail:  

1) One-off costs for the IT development (2026-2027):  

Under this PO, IT  costs are linked to  the development  of a 
new IT platform by partially re-using certain IT components 
of EURES. The vast majority of the IT costs is envisaged at 
EU  level  for  the  development  of  the  relevant  infrastructure 
which includes, for instance, the core system, the creation of 
the  pre-screening  tool,  the  creation  of  a  database  for  TCNs 
profiles  as  well  as  relevant  adaptations  of  the  EURES 
components  (e.g.  automatic  matching  tool).  Some  marginal 
costs for making the national systems interoperable with the 
EU Talent Pool are also foreseen for the Member States.    

-  Costs for the Commission to develop the EU Talent Pool 
IT platform: EUR 6 722 056 – 6 804 539 (with 11 to  20 
Member States participating)  

-  Funding costs for interoperability of the Member States’ 
national  systems  with  the  EU  Talent  Pool  IT  Platform: 
EUR  2  672  400  –  4  175  625  (with  11  to    20  Member 
States participating) (for the Commission) 

2) Recurrent yearly human resources costs191:  

This PO would entail additional staff at EU level as the EU 
Talent  Pool  Secretariat  would  be  established  within  the 
Commission.  The  Secretariat  would  be  in  charge  of  the 
development  and  management  of  the  EU  Talent  Pool  IT 
platform, the coordination with the National Contact Points, 
the preparation of the communication strategy and trainings 
as well as the monitoring activities. 

National Contact Points would be designated in the Member 
States  as  from  2026  and  would  be  responsible  for  the 
practical  implementation  of  the  EU  Talent  Pool  at  national 
level, including with regard to the identification of shortage 
occupations at national level and the registration of relevant 
job vacancies in the platform.   

Moreover, in  view of the link with  the Talent Partnerships, 
dedicated  Liaison  Offices  could  be  established  by  the 
Member  States  in  the  partner  countries  to  support  the 
registration of third country nationals’ profiles as well as the 

191  

Idem. 

56 

 
 
 
issuance of the Talent Partnership Pass (after 2027). 

-  Costs  for  the  Commission:  EUR  1  903  000    (13  FTEs) 

(10 FTEs until 2027, 3 FTEs after 2027). 

-  Costs for the Member States: EUR 8 000 000 – 14 600 
000 for the National Contact Points (33 – 66 FTEs with 
11 to  20 Member States  participating)  and  EUR 1 440 
000  for  the  Liaison  Officers  (20  FTEs  for  10  Talent 
Partnerships). (to be covered by AMIF) 

3)  Recurrent  yearly  costs  for  other  activities  and  IT 
maintenance192:  

-  Costs for the Commission: EUR 1 906 255 – 1 947 497 
(with  11  to    20  Member  States  participating)  for 
activities  linked  to  the  coordination  with  the  NCPs,  the 
preparation  of  trainings,  communication  activities  and 
the  provision  of  online  information  as  well  as  EUR  3 
732  5000  –  3  813  299  (with  11  to    20  Member  States 
participating) for IT maintenance (as from 2028). 

-  Costs  for  the  Member  States  (as  from  2028):  EUR  348 
075 – 543 867 for IT maintenance at national level (with 
11 to 20 Member States participating).  

Benefits 

•  Direct benefits 

This PO would entail cost savings for employers and TCNs 
mainly  linked  to  the  time  and  efforts  saved  throughout  the 
entire recruitment process (difficult to quantify in monetary 
terms).193 The focused nature of this PO (only pre-screening 
candidates) and the link with Talent Partnerships will further 
contribute  to  making  easier  and  faster  successful  matches. 
The  possibility  for  Member  State  to  introduce  facilitation 
measures  (e.g.  fast  track  procedures,  exclusion  labour 
market  test)  for  those  recruited  via  the  EU  Talent  Pool, 
would make procedure faster.  

Overall,  putting  such  a  tool  at  employers’  disposal  would 
offer them an alternative to costly external support (e.g. via 
recruitment  agencies,  social  media  and  private  recruitment 
platform).  This  would  be  particularly  beneficial  for  SMEs. 
In  particular,  as  the  new  platform  would  be  free  of  charge, 
employers  would  be  able  to  save  costs  normally  linked  to 
the recruitment process as they do not need to pay additional 
money to  publish their vacancies online or request  external 
support  of  recruitment  agencies.  This  would  result  in  costs 

192  
193  

Idem. 
The  wider  and  easily  accessible  pool  of  candidates  and  job  vacancies  would  streamline  the  identification  phase. 
Personalised support and specific tools (e.g. standardised registration format via Europass, automatic matching tools, 
filters) would make the matching faster by significantly increasing the chances to find suitable candidates and job 
opportunities. Provision of information in the one-stop-shop would also support in this regard. 

57 

 
 
 
saving  for  employers  amounting  to  EUR  150-400  per  job 
vacancy (EUR 74 500 000 – 77 700 000 total savings across 
EU  employers  considering  the  total  number  of  excpected 
successful  matches  via  the  EU  Talent  Pool  with  11  to  20 
Member States participating). 

Apart  from  the  non-quantifiable  time-saving  mentioned 
above, this PO foresees the possibility for Member States to 
introduce fast-track immigration and recognition procedures 
to  streamline  the  recruitment  process.  On  this  basis  it  is 
possible  to  quantify  additional  opportunity  costs  associated 
to  this  PO(additional  wages  and  revenue  gain  for  using  the 
EU Talent Pool): (EUR 11 500 per employer and EUR 3 750 
per  TCN  using  the  EU  Talent  Pool.194    .  (A  detailed 
assessment is provided in Annex 10) 

•  Indirect benefits 

Indirect  benefits  are  also  foreseen  under  this  option.  These 
benefits  include  the  increased  GDP  resulting  from  a  higher 
number of TCNs working in the EU. This would also result 
in  additional  fiscal  contributions  as  well  as  in  increased 
remittances  for  third  countries.  (A  detailed  explanation  of 
the  indirect  benefits  is  provided  in  Annex  10).  Different 
ranges of indirect  benefits  are provided below according  to 
whether 11 or 20 Member States participate in the initiative. 

-  Additional GDP: EUR 3.855 – 4.255 billion 
-  Additional  fiscal  contributions:  EUR  918  -  957 

million  

-  Additional remittances to third countries: EUR 712 - 

748 million 

Practical and technical feasibility 

No  practical  or  technical  difficulty  is  to  be  expected  as 
certain  elements  of  the  EURES  IT  solution  would  be  re-
used,  therefore,  simplifying  the  development  of  the  IT 
platform. 

Coherence with other EU policies 
In line with  other EU policies, the New Pact  on Migration and Asylum, and, in  particular the 
Skills and Talent Package. As this PO would become a tool to implement Talent Partnerships it 
would be particularly beneficial to improving their effectiveness. It contributes to the European 
Year  of  Skills,  and  it  is  a  key  component  of  the  Package  on  talent  mobility.  It  is  broadly 
consistent with EU economic and social policies, and it contributes to the Skills Agenda and the 
Pact for Skills, the Net Zero Industry Act and the Green Deal Industrial Plan. 
Overall assessment 
Overall,  this  PO  will  achieve  all  the  SOs  to  a  great  extent,  contributing  positively  to  the 
achievement  of the general  objective of supporting  international  recruitment  of TCNs to  meet 
the  EU  skills  and  labour  shortages.  The  potential  users  (employers  and  TCNs)  would  be 

194  

It was assumed that all Member States might introduce these measures.     

58 

 
 
 
relevant for occupations of EU and national relevance where domestic workforce is insufficient. 
Thus, this PO would focus on the actual labour market needs where workers from outside the 
EU is required. Concentrating the EU Talent Pool tools and efforts on targeted occupations of 
the EU and national relevance would increase number of successful job  matches, including in 
the  areas  key  for  the  digital  and  green  transition.  This  would  have  a  positive  environmental 
impact, as more “green” occupations are expected to be filled in. Economic and social impacts, 
including impact on employers and SMEs, are considerd to be medium positive.  Efficiency is 
high,  in  view  of  a  very  good  costs/benefits  ratio,  partially  in  view  of  the  re-use  of  certain 
EURES  components.  By  supporting  the  implementation  of  the  Talent  Partnerships,  this  PO 
would  incentivise  cooperation  with  third  countries  on  migration  management  very  well  and 
positively impact third countries. 

6.3 Policy Option 3 - Developing an EU Talent Pool as a fully demand-driven tool 

(legislative option) 

Assessment Criteria 
Relevance and effectiveness in achieving the objectives 

Rate  Assessment 

SO 1 (ensuring more 
effective international 
job matching) 

+3 

SO 2 (improving 
comparability of skills 
and qualifications 
obtained in third 
countries with those 
required at national 
level) 
SO 3 (improving 
understanding and 
access of immigration 
procedures) 

+2 

+3 

Estimated  additional  successful  matches  (on  top  of 
baseline):  279  000  –  296  000  (for  11  to20  Member  States 
participating) 

PO3  would  significantly  improve  the  identification  of  EU 
employers  and  TCNs  workers  by  providing  a  pool  of  job 
vacancies  and  candidates.  The  matching  would  be 
facilitated  via  search  filters  functions  and  an  automatic 
matching  tool.  Personalised  guidance  and  support  by 
National  Contact  Points  as  well  as  online  information  on 
recruitment  rules  would  constitute  additional  support  in  that 
regard.  These  components  would  not  only  facilitate  the 
matching but also ensure better quality. As TCNs would be 
reassured  about  the  quality  of  the  job  in    terms  of  standards 
on  working  conditions  thanks  to  quality  assurance  checks, 
more  TCNs  would  register  in  the  EU  Talent  Pool,  which 
would  positively  impact  the  number  of  matches.  However, 
the  open  nature  of  this  PO  and  the  lack  of  a  screening  of 
candidates’ profiles would entail lower quality of matches in 
comparison with PO2. 
Same assessment as per PO2 (see above)  

Same assessment as per PO2 (see above) 

59 

 
 
 
 
 
SO 4 (incentivising 
cooperation on 
migration with third 
countries as part of a 
Talent Partnership) 

0 

Economic impacts 

Impact  on  growth  and 
competitiveness 
[SGD 8] 

+2 

Impact on SMEs 
[SDG 8 and 9] 

+2 

Impact  on 
and research  

innovation 

+2 

to 

target  specific 

This  PO  has  no  impact  on  achievement  of  SO4.  This  PO  is 
conceived  as  completely  open  tool  to  address  labour  market 
needs  following  a  demand-driven  approach.  Therefore,  it  is 
not  built 
labour  market  needs  nor 
strategically  support  other  existing  initiatives  such  as  Talent 
Partneships which also have a targeted approach focusing on 
certain 
all  TCNs 
notwithstanding  their  origin  country,  this  PO  would  not 
foresee  the  platform  as  a  tool  to  specifically  implement  the 
Talent Partnerships. 

sectors.  While  being  open 

to 

A medium positive economic impact would accrue from the 
international recruitment of a higher, whilst small, number of 
TCNs  residing  abroad  to  address  skills  and  labour  shortages 
at  all  skills  levels  that  cannot  be  filled  by  the  domestic 
workforce.  TCNs  workers  would  marginally  counteracts  the 
ageing of the EU population. This PO would partially ensure 
better  quality  recruitment  to  avoid  mismatches  and  over-
qualification (matching tools and personalised support). This 
would  further  benefit  EU  productivity  and  economic 
gains. However, the open nature of this initiative and the lack 
of a pre-screening on candidates would entail a lower impact 
on  the  quality  of  matches.  This  PO  is  expected  to  have  a 
higher  positive  impact  on  GDP  through  additional  wages 
(around EUR 3.9 – 4.4 billion with 11 to 22 Member States 
participating) and on public finances.   

Specific  support  to  international  recruitment  would  be 
particularly beneficial for SMEs as they are likely to bear a 
disproportionate burden when hiring  TCNs in  comparison  to 
large  enterprises  due  to  more  limited  resources.  Increased 
possibilities  to  recruit  TCNs  would  boost  SMEs  growth 
perspectives.  This  PO  would  largely  benefit  SMEs  as  it 
would  entail  a  wide  pool  of  easily  accessible  candidates, 
specific  tools  facilitating  the  matching  (e.g.  filters  and 
automatic  matching  tool),  personalised  guidance  by  the 
National  Contact  Points  as  well  as  online  information 
immigration  and  recognition 
provision  on  recruitment, 
procedures.  However,  the  positive  impact  of  the  higher 
number of candidates would be reduced by the lower rate of 
successful  and  quality  matches  in  view  of  the  lack  of  pre-
screening.  On  the  other  hand,  allowing  employers  to  fill  job 
vacancies  from  all  occupations  would  entail  more  flexibility 
and a wider coverage of potential candidates for SMEs.  
Compared  with  the  baseline,  the  moderately  increased 
number  of  skilled  TCNs  workers  would  have  a  limited 
positive  impact  on  companies’  capacity  to  conduct  R&D. 
The impact on the EU’s overall capacity for innovation and 
research  would  be  moderate  and  largely  dependent  on  the 
type of companies making use of the tool. 

Social and fundamental rights impacts 

60 

 
 
Impact on EU citizens 

+2 

Impact  on  business  and 
employers 

+2 

Impact on third country 
nationals 

+2 

interested  Member  States  and 

This PO would result in a moderate increase in the number 
of  TCNs  workers.  Therefore,  it  is  not  expected  to  entail 
particular costs or disadvantages for EU citizens vis-à-vis the 
status  quo  and  the  potential  displacement  effect  on  EU 
workers  is  expected  to  be  limited.  Considering  the  limited 
migration increase, this PO would have a positive impact on 
social cohesion as it is not expected to increase social tension 
or  a  negative  perception  of  migration.  In  addition,  ensuring 
protection against unfair recruitment is expected to reduce 
downward pressure on wages resulting from exploitation and 
social dumping practices.  
This  PO  would  have  a  positive  impact  on  business  and 
employers  as  facilitated 
international  recruitments  will 
provide  them  with  easier,  quicker,  and  wider,  access  to 
labour  resources  from  third  countries  (whilst  with  a  lower 
success rate compared with PO2). In addition, better quality 
of  matches  would  be  ensured  via  specific  tools  and 
personalised  support.  This  PO  would  involve  processing  of 
personal  data  of  employers  as  personal  data  of  employers 
those  of  employers’ 
who  are  natural  persons  or 
representatives  by 
the 
Commission. The proposed measures must therefore be based 
on  a  Union  legislative  act  in  compliance  with  the  EU  data 
protection  acquis, 
the  principles  of  purpose 
limitation,  data  minimisation,  storage  limitation  and  data 
security.  
There  would  be  a  positive  impact  for  TCNs  because  their 
possibilities  to  find  a  job  in  the  EU  and  be  recruited  would 
increase.  The  integration  of  skills  profiling  and  matching 
tools  as  well  as  quality  checks  on  employers  would  avoid 
mismatches and over-qualification of TCNs. Overall, this PO 
would  have  a  positive  impact  on  social  cohesion  as  it  will 
contribute to TCNs’ labour market participation and create a 
sense  of  interdependence  with  the  local  population.  With 
regard  to  the  fundamental  rights  impacts,  this  PO  would 
enact  the  right  to  choose  an  occupation  and  engage  in  work 
[Article 15 of the Charter, and SDG 16] as well as the right to 
fair  and  just  working  conditions  [Article  31  of  the  Charter] 
and non-discrimination (Articles 21 of the Charter)]. This PO 
would  have  a  great  positive  impact  on  protection  of  TCNs 
job  quality  and  working 
against  discrimination, 
conditions standards [SDG 8 and 10] as it would reduce the 
risk of unfair recruitment  via  quality assurances checks on 
employers.  By  contrast,  the  alternative  of  not  conducting 
quality  assurance  checks  on  employers  following  their 
registration,  would  have  a  negative  impact  on  TCNs  as  it 
would  not  mitigate  the  risk  of  the  unfair  recruitment.  The 
impacts  on  the  protection  of  personal  data  are  similar  to 
those described above (impact on employers and business) 

including 

61 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
Impact on third 
countries 

0/+1 

impact 

This  PO  would  have  an  impact  on  third  countries  as 
facilitating  international  recruitment  and,  therefore,  making 
the  EU  more  attractive,  third  countries  may  face  the  risk 
brain  drain.  However,  the  increase  of  TCNs  moving  to  the 
EU would be small in comparison with the baseline, making 
this 
link  with  Talent 
Partnerships is envisaged, no specific mitigation to the risk of 
brain drain is expected with the relevant partner countries. In 
addition,  the  open  nature  of  this  initiative,  potentially 
attracting TCNs in all occupations, would entail a greater risk 
of brain drain in third countries. This PO is expected to have a 
positive impact on remittances.  

limited.  As  no  special 

Environmental impacts 

Efficiency 

+1 

As this PO would not be targeted to specific sectors linked to 
the green transition it is not expected to have particularly 
significant environmental impacts.  

Administrative costs195 
This  PO  envisages  the  development  of  an  IT  platform 
bringing  together  profiles  of  jobseekers  from  third  countries 
and  job  vacancies  of  EU  employers.  The  platform  would 
integrate  specific  features  to  facilitate  the  identification  and 
matching as well as the provision of information and support 
relevant  for  international  recruitment  procedures.  This  PO 
would  involve  significant  costs  in  view  of    the  development 
of a completely new IT platform without re-using EURES IT 
components.  The  mandatory  introduction  of  facilitation 
measures (e.g. fast-track immigration procedures) would also 
entail  higher  costs.  There  wouldalso  be  costs  related  to  the 
governance structure.  
An overview of the costs estimated under this PO is provided 
below.  Where  costs  vary  depending  on  the  number  of 
Member  States  participating,  a  range  of  costs  is  provided  to 
cover  the  two  scenarios  with  11  or  20  Member  States 
participating,  respectively.  (A  detailed  description  of  the 
assumptions  underlying  these  calculations  is  provided  in 
Annex  4  while  the  explanation  of  estimation  of  costs  in 
Annex 10).  
1) One-off costs for the IT development (2026-2027):  
Under  this  PO,  IT  costs  are  linked  to  the  development  of  a 
new  IT  platform  without  re-using  EURES  IT  components. 
The new job-matching system would be developed using AI-
based algorithms inspired by existing private sector platforms 

Administrative costs 
and cost/benefit 
effectiveness 

Practical or technical 
feasibility  

195  

Costs after 2027 are indicative and do not prejudge the available budget for this initiative under the MFF 2028-2034. 

62 

 
 
 
 
 
 
  
 
 
 
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
(e.g.  including  cutting-edge  technologies  such  as  advanced 
language  programs,  AI-driven  algorithms,  and  an  enhanced 
user experience). Hence, important costs are envisaged under 
this PO with regard to the IT development.  
The vast majority of the IT costs is envisaged at EU level for 
the development of the relevant infrastructure which includes, 
for  instance,  the  core  system,  the  creation  of  the  screening 
and  matching  tool,  and  the  creation  of  a  database  for  TCNs 
profiles. Some marginal costs for making the national systems 
interoperable  with  the  EU  Talent  Pool  are  also  foreseen  for 
the Member States.    
-  Costs for the Commission: EUR 10 275 409 – 10 647 243 

(with 11 to 20 Member States participating)  

-  Funding  for  interoperability  of  the  Member  States’ 
relevant  national  systems  with  the  EU  Talent  Pool  IT 
Platform  :  EUR  7  748  000  –  12  106  250  (with  11  to  20 
Member States participating) (to be covered by AMIF). 

2) Recurrent yearly human resources costs196:  
As per PO2, this PO would entail additional staff at EU level 
as the EU Talent Pool Secretariat would be established within 
the  Commission.  The  Secretariat  would  be  in  charge  of  the 
development  and  management  of  the  EU  Talent  Pool  IT 
platform,  the  coordination  with  the  National  Contact  Points, 
the  preparation  of  the  communication  strategy  and  trainings 
as well as the monitoring activities. 
National Contact Points would  be designated in the Member 
States  as  from  2026  and  would  be  responsible  for  the 
practical  implementation  of  the  EU  Talent  Pool  at  national 
level.  In  particular,  a  great  involvement  of  the  National 
Contact Points would result from the higher number of users 
(employers and TCNs) potentially requiring their support. 
-  Costs for the Commission: EUR 1 903 000 (13 FTEs)  
-  Costs for the Member States’ National Contact Points (to 
be covered by AMIF): EUR  17 600 000 – 32 000 000 for 
the National Contact Points (55 – 100 FTEs with 11 to 20 
Member States participating).  

3)  Recurrent  yearly  costs  for  other  activities  and  IT 
maintenance197:  
-  Costs  for  the  Commission:  EUR  4  924  600  –  5  797  000 
(with 11 to  20 Member States participating) for activities 
linked to the coordination with the NCPs, the preparation 
of  trainings,  communication  activities  and  the  provision 

196  
197  

Idem. 
Idem. 

63 

 
 
 
of online information as well as EUR 3 562 401 – 3 748 
318  (with  11  to    20  Member  States  participating)  for  IT 
mantainance.  

-  Costs for the Member States: EUR 1 016 925 – 1 588 945 
for  IT  maintenance  at  national  level  (with  11  to  20 
Member  States  participating).  Additional  costs 
for 
Member  States  would  result  from  the  implementation  of 
the  obligation  to  set  up  fast-track  immigration  and 
recognition procedures, amounting to:  

Fast-track immigration procedures198:  
EUR 47 430 000 – 50 320 000 (with 11 to 20 Member States 
participating) 

Fast-track recognition procedures: 
EUR 16 740 000 – 17 760 000 (with 11 to 20 Member States 
participating). 
Benefits 

•  Direct benefits 

 As per PO2, this PO would entail cost savings for employers 
and  TCNs  mainly  linked  to  the  time  and  efforts  saved 
throughout the entire recruitment process (difficult to quantify 
in  monetary  terms).199  The  open  nature  of  this  PO  entails  a 
larger  number  of  registered  candidates  which  would  make 
more complex the identification and matching in comparison 
with PO2.  
As  per  PO2,  putting  such  a  tool  at  the  employers’  disposal 
would  offer  them  an  alternative  to  costly  external  support 
(e.g.  via  recruitment  agencies,  social  media  and  private 
recruitment  platform).  This  would  be  particularly  beneficial 
for SMEs. In particular, as the new platform would be free of 
charge employers would be able to save costs normally linked 
to  the  recruitment  process  as  they  do  not  need  to  pay 
additional money to publish their vacancies online or request 
external support of recruitment agencies. This would result in 
costs  saving  for  employers  amounting  to  EUR  150-400  per 
job  vacancy  (EUR    76  725  000  –  81  400  000  total  savings 
across  EU  employers  with  11  –  20  Member  States 
participating) 
Apart  from  non-quantifiable  time  savings  mentioned  above, 
this  PO  foresees  the  obligation  for  Member  States  to 

198  

199  

Estimations of fast-track procedures were based on the current practices in Member States that  implement them. A 
detailed explanation on how thses costs where estimated is provided in Annex 10.  
A single, wider and easily accessible pool of candidates and job vacancies would streamline the identification phase. 
Personalised support and specific tools (e.g. standardised registration format via Europass, automatic matching tools, 
filters) would make the matching faster by significantly increasing the chances to find suitable candidates and job 
opportunities. Provision of information in one-stop-shop would also support in this regard. 

64 

 
 
 
introduce  fast-track  immigration  and  recognition  procedures 
to streamline the recruitment process.  
On  this  basis  opportunity  costs  associated  to  this  PO  were 
quantified  (additional  wages  and  revenue  gain  for  using  the 
EU Talent Pool): EUR 11 500 per employer and EUR 3 750 
per TCN using the EU Talent Pool.200 (A detailed assessment 
is provided in Annex 10). 

•  Indirect benefits 

Indirect  benefits  are  also  foreseen  under  this  option.  These 
benefits  include  the  increased  GDP  resulting  from  a  higher 
number of TCNs working in the EU. This would also result in 
additional  fiscal  contributions  as  well  as  in  increased 
remittances for third countries. (A detailed explanation of the 
indirect benefits is provided in Annex 10). Different ranges of 
indirect benefits are provided below according to whether 11 
or 20 Member States participate in the initiative. 
Additional GDP: EUR 3.968 – 4.458 billion 
Additional fiscal contributions: EUR 945 million – 1 billion  
Additional remittances to third countries: EUR 739 - 784 
million 

Practical and technical feasibility 
With  regard  to  the  practical  or  technical  feasibility,  the 
alternative envisaging automated quality assurance checks on 
employers via new IT solutions would entail a high degree of 
complexity going beyond what is considered proportional. As 
employers  should  be  screened  against  national  legislation 
standards,  this  solution  would  require  the  development  of 
several  different  screening  formats  considering  that  each 
Member  State  has  different  rules  on  standard  working 
conditions  which  also  vary  depending  on  the  specific 
occupations. 

Coherence with other EU policies 
In line with other EU policies, the New Pact on Migration and Asylum and the Skills and Talent 
Package. It contributes to the European Year of Skills and it is a key component of the Package 
on  talent  mobility.  It  is  broadly  consistent  with  EU  economic  and  social  policies,  and  it 
contributes to the Skills Agenda and the Pact for Skills, the  Net Zero Industry Act and the Green 
Deal Industrial Plan. 

Overall assessment 

200  

Considering  that  279  000  –  296  000  successful  matches  are  expected  under  this  PO,  the  maximum  total  gain  in 
wages would reach around EUR 1 074 886 000 – 1 140 380 000 for TCNs and EUR 3 224 658 000 – 3 421 143 000 
revenue gain for employers. 

65 

 
 
 
 
 
Overall, this PO will achieve the general objective to an important  extent, while not addressing 
the  issue  of  incentivising  cooperation  with  third  countries.  The  coverage  of  potential  users 
registering on the platform and expected successful matches would be relatively high in view of 
the open nature of this PO. However, while this PO would potentially address labour and skills 
shortages  to  a  greater  extent,  the  open  approach  is  expected  to  provide  with  lower  quality  of 
candidates’ profiles (resources would not be focused on assessing and targeting specific profiles). 
Economic  and  social  impacts,  including  impact  on  employers  and  SMEs  is  medium  positive. 
Efficiency  is  low  as  the  costs/benefits  ratio  between  developing  a  costly  and  totally  new  IT 
system compared to the estimated number of additional job-matches, is not very positive.  

7.  HOW DO THE OPTIONS COMPARE? 
The table below provides an overview of the ratings of the impacts of each Policy Options, on 
a score from -3 to +3 (-3 indicating the most negative impact, +3 indicating the most positive 
impact). While these ratings allow for a comparison between options, the various ratings for a 
particular option cannot be cumulated since there is no objective basis to weigh one assessment 
criterion over another. 

Table 4: How do the options compare? 

Baseline  PO1 

PO2 

PO3 

Effectiveness  
Relevance and effectiveness in achieving the objectives 
0 
SO1  
0/+1 
SO2 
0/+1 
SO3 
0 
SO4 
Economic impacts 
Impact on growth and competitiveness 
Impact on SMEs 
Impact on innovation and research 
Social and fundamental rights impacts 

0 
0 
0 

- 
- 
- 
- 

Impact on EU citizens 
Impact on business and employers 
Impact on third country nationals 
Impact on third countries 

Environmental impacts 

Efficiency 

-  Administrative  costs  and  cost/benefit 

effectiveness 

-  Practical of technical feasibility 

EFFECTIVENESS 

0 
0 
0/+1 
0 

0 

0 

+1 
+1 
+2 
0 

+1 
+1 
0/+1 

+1 
+1 
+1 
+1 

0 

+1 

+3 
+2 
+3 
+2 

+2 
+2 
+2 

+2 
+2 
+2 
+2 

+2 

+3 

+3 
+2 
+3 
0 

+2 
+2 
+2 

+2 
+2 
+2 
+1 

+1 

+1 

In terms of effectiveness in achieving the objectives, PO2 and PO3 are equally effective with 
regard  to  the  achievement  of  SOs  1,  2  and  3,  having  either  a  significantly  or  moderately 
positive  impact  on  facilitating  different  aspects  of  international  recruitment.  Although  PO3, 
covering all occupations, is expected to result slightly more matches than PO2, the open nature 
of  this  PO  would  have  a  moderate  adverse  effect  on  the  overall  quality  of  the  matches  in 
comparison  to  PO2.  Concentrating  tools  and  personalised  support  on  occupations  of  the  EU 
66 

 
 
 
 
 
 
and national relevance under PO2 would guarantee the highest concentration of matches in the 
key areas for the EU twin transition and future prosperity as well as the strategic labour market 
needs  relevant  for  the  Member  States.  At  the  same  time  a  subset  of  employers  whose  job 
vacancies are not of the EU and national relevance would not be able to  use the Talent Pool 
under PO2. Lastly, PO2 is the only PO that would incentivise cooperation on migration with 
third  countries  (SO3),  by  providing  a  platform  supporting  effective  implementation  of  the 
Talent  Partnerships  that,  in  turn,  would  better  engage  key  partner  countries  on  migration 
management. PO1 is the least effective in view of its limited scale and functionalities that can 
be developed by using a non-legislative instrument. 
In terms of economic impacts, PO1 is estimated to have a small positive impact, in view of its 
limited coverage. PO2 and PO3 would both have a comparable medium positive impact but for 
different  reasons.  Both  POs  would  guarantee  to  employers,  in  particular  SMEs,  access  to  a 
wider pool  of  candidates, tools facilitating recruitment,  information  and personalised support 
that  would  result  in  an  increased  number  of  recruitments.  However,  in  comparison  to  PO2, 
PO3 would have a slightly higher number of matches which would result in additional wages. 
As a result, PO3 is estimated to have an higher contributibution to GDP than PO2. PO3. On the 
other hand, PO2, in  view of its  targeted nature, would guarantee  better  quality  of  candidates 
whose  profile  is  more  aligned  with  priorities  of  Member  States  labour  migration  system  and 
the EU strategic interests like the twin transition and future prospeirty.  
As  regards  social  and  fundamental  rights  impacts,  PO1  would  have  small  positive  social 
impacts.  Both  PO2 and PO3 would  have medium  positive impact  on employers, EU citizens 
and  TCNs.  They  would  increase  moderately  the  number  of  TCNs  that  could  fill  in  the  EU 
skills  and  shortages  that  employers  are  facing,  while  not  increasing  substantially  the  risk  of 
displacement of the EU citizens and positively impacting social cohesion. Both PO2 and PO3 
are  also  equal  in  terms  of  reducing  the  risk  of  unfair  recruitment.  PO  2  has  nevertheless  the 
highest positive impact on third countries given its link with Talent Partnerships.  
With regard to  environmental impacts, PO2 scores the highest  among  the assessed POs  as it 
focuses on sectors and occupations of the EU and national relevance, hence also those linked 
to the green transition. Targeted advertising and concentrating the EU Talent Pool resources on 
facilitating  recruitment  of  TCNs  in  those  occupations,  would  increase  number  of  “green” 
occupations being filled by TCNs. Despite the fact that PO3 would result in higher number of 
matches  in  absolute  terms,  its  lack  of  focus  would  not  necessarily  increase  the  number  of 
“green” occupations filled by TCNs. 

EFFICIENCY  

In terms of efficiency, PO2 guarantees the best cost/benefits ratio. In terms of governance costs 
at  the  EU  level,  PO2  and  PO3  are  comparable.  By  contrast,  the  costs  for  national 
administrations are higher under PO3 as more staff would be needed in the NCPs in view of 
the  EU  Talent  Pool  open  to  all  sectors  and  for  the  migration  authorities  to  implement 
mandatory fast-track migration procedures. In terms of IT costs, PO3 generates more costs as it 
entails establishing a completely new IT system.  As for PO1, it generates the lowest costs in 
view of its limited scale and non-availability of advanced functionalities foreseen in PO2 and 
PO3. At the same time, its also entails relatively small cost savings for employers and TCNs. 
In addition, developing an online catalogue of profiles via a non-legislative instrument would 
require  a  number  of  technical,  legal  and  practical  efforts  which  are  disproportionate  in 
comparison with the limited benefits envisaged under this PO. As for costs savings, EU Talent 
Pool under each POs would be free for users. Employers and business would be able to benefit 
from  time  savings  linked  to  the  the  time  and  efforts  saved  throughout  the  entire  recruitment 
process  (difficult to  quantify).  Opportunity  costs are  also  associated with both  PO2 and PO3 
(additional  wages  and  revenue  gain  for  using  the  Talent  Pool).  In  addition,  indirect  benefits 
67 

 
 
linked to the additional GDP, fiscal contributions and increased remittances for third countries 
are  foreseen  under  each  option.  As  those  benefits  result  from  the  higher  number  of  TCNs 
working  in  the EU,  they vary under  each policy  option according to  the  number of expected 
successful matches. The table below provides an overview of how the different policy options 
compare in terms of costs/benefits analysis. 
Table  5:  Overview  of  how  the  different  policy  options  compare  in  terms  of  costs/benefits 
analysis 

Costs  

Citizens  Business  Administrations  EC 

PO1 

n/a 

n/a 

PO2 

n/a 

n/a 

Recurrent:  
EUR 1 683 000 
–  
3 060 000 

Recurrent: 
EUR 9 788 075 
–  16 583 867 

One-off: 
EUR 2 672 400 
–  4 175 625 

Recurrent:  
EUR 3 078 
633 – 3 
086 514 

One-off:  
EUR 4 069 
883 – 4 
085 644 

Recurrent:  
EUR 7 332 
755 – 7 
947 497 

One-off: 
EUR 6 722 
056 –  6 
804 539 

Benefits 

Direct 

Time savings (non-
quantifiable): the time 
and efforts saved 
throughout the entire 
recruitment process 

Indirect 

GDP: EUR 235-260 
million 

Opportunity costs: n/a  Fiscal contribution: 
EUR 56-59 million 

Remittances: EUR 
44-46 million 

GDP: EUR 3.855-
4.255 billion 

Fiscal contribution: 
EUR 918-957 million 

Cost-savings: n/a 

Time savings (non-
quantifiable): the time 
and efforts saved 
throughout the entire 
recruitment process 

Opportunity costs: 
o  For employers: 
EUR 3 132 195 
000 – 3 265 111 
000 

o  For TCNs: EUR 1 
044 065 000 – 1 
088 370 000 

PO3 

n/a 

n/a 

Recurrent:  

EUR 82 786 925 
– 101 588 945 

One-off: 
EUR 7 748 000 
– 12 106 250 

Cost-savings: EUR 74 
500 000 – 77 700 000 

Remittances: EUR 
712-748 million 

GDP: EUR 3.968-
4.458 billion 

Fiscal contribution: 
EUR 945 million – 1 
billion 

Recurrent: 
EUR 10 
390 001 – 
11 448 318 

One-off: 
EUR 10 
275 409 – 
10 647 243 

Time savings (non-
quantifiable) : the time 
and efforts saved 
throughout the entire 
recruitment process 

Opportunity costs:  
o  For employers: 
EUR 3 224 658 
000 – 3 421 143 
000 

o  For TCNs: EUR 1 
074 886 000 – 1 
140 380 000 

Cost-savings: EUR 76 
725 000-81 400 000 

Remittances: EUR 
739-784 million 

COHERENCE 

68 

 
 
 
 
All three POs would be in line with both EU migration as well as social and economic policies. 
They would contribute to the European Year of Skills as a key component of the package  on 
talent mobility. 

8.  PREFERRED OPTION  
After  the  assessment  of  the  impacts,  effectiveness  and  efficiency  of  the  POs,  as  well  as 
stakeholders’  acceptance  the  preferred  option  is  PO2.  This  option  is  the  one  that  the  most 
effectively  addresses  the  problem  drivers  as  well  as  the  associated  costs  and  impacts,  and 
achieves the objectives of the initiative in the best way. This option is the most economically 
convenient to reach the objectives of this initiative. 
The  preferred  option  notably  includes  the  development  of  a  voluntary  tool  for  interested 
Member States with a targeted approach focusing on certain occupations of EU and national 
relevance  with  specific  facilitations  for  Talent Partnerships.  The  EU Talent  Pool  platform 
would  integrate  specific  tools  to  facilitate  the  identification  and  matching,  while  benefitting 
from re-using of certain EURES IT components. The visual below provides an overview of the 
functioning of the preferred PO. 

Figure 4: Overview of the functioning of the preferred policy option  

*  The  boxes  in  grey  indicate  the  governance  structure,  those  in  blue  the  user  journey  while  the  orange  identify  the  main 
functionalities of the tool.  

The targeted nature of this PO would allow to develop a strategic approach to the EU labour 
market needs. The identification of occupations of EU and national relevance would enable to 
specifically target occupations suffering from structural labour and skills shortages where there 
is an actual need to attract TCNs from abroad. This PO would allow to address shortages at all 
skills levels. The list of relevant occupations would be identified on the basis of the national 
shortages  occupations  lists  hence  taking  into  account  Member  States’  national,  and  regional 
specific needs. Therefore, the preferred policy option would have a particularly positive impact 

69 

 
 
 
 
 
 
 
 
 
on  strategic  sectors  suffering  from  structural  shortages  such  as  the  healthcare  sector  and 
sectors linked to the green and digital transition.  
The voluntary approach would provide a tool facilitating international recruitment at disposal 
of  interested  Member  States.  This  initiative  does  not  aim  at  imposing  any  obligation  on 
Member  States  nor  orienting  their  talent  attraction  policies  but  rather  offering  additional 
support  at  EU  level  as  this  would  not  be  achieved  effectively  by  the  Member  States 
individually.201  Hence,  Member  States  would  be  able  to  maintain  their  tools  in  place  and 
complement  them  with  the  new  platform.  The  preferred  option  would  be  particularly 
beneficial  for  Member  States  suffering  from  the  greatest  labour  and  skills  shortages  and 
having a declining working age population. 
In addition,  the targeted nature of this initiative requiring a  pre-screening of the candidates’ 
profiles, would allow to achieve the general objective to a greater extent. In particular, while 
contributing  to  addressing labour and skills  shortages the  preferred  option would provide for 
quality profiles, therefore favouring quality of profiles over quantity.202  
Making  the  EU  Talent  Pool  the  tool  for  job  placements  in  the  context  of  the  Talent 
Partnerships  would  facilitate  the  implementation  of  this  initiative  and,  hence,  indirectly 
contribute  to  the  overall  migration  management  by  incentivising  cooperation  with  third 
countries on migration.  
Overall the preferred PO would benefit employers and TCNs as it would make international 
recruitment faster, easier and more effective. Those benefits are mainly linked to time-savings 
across the various steps of the recruitment process. In addition, as cost savings for employers 
would result from the fact that the new platform would be free to use for business. A detailed 
description of the benefits for employers and TCNs is provided in Annexes 3 and 10.  
While this PO would imply costs linked to the development and management of the platform 
both  at  EU  and  national  level,  re-using  certain  IT  elements  of  EURES  would  allow  higher 
saving in terms of resources. In addition, synergies with EURES would allow to build on the 
well- established expertise of this network on recruitment procedures.  
The  use  of  a  legislative  option  would  allow  to  include  appropriate  safeguards  and  ensure 
transparency  and  accountability  on  fundamental  rights  protection,  in  particular  with 
regard  to  protection  of  personal  data  and  the  risk  of  exploitative  working  conditions.  This  is 
particularly important considering the specific risk of vulnerability when TCNs are concerned.  

8.1 REFIT (simplification and improved efficiency) 

The preferred option is not expected to result in any simplification of a regulatory burden.  

8.2 One in, one out approach  

The  ‘one  in,  one  out’  approach  refers  to  the  principle  whereby  each  legislative  proposal 
creating new burdens should relieve people and businesses of an equivalent existing burden at 
EU  level  in  the  same  policy  area.  The  preferred  option  is  not  expected  have  any  new  or 
removed administrative burden on businesses and citizens.  

201  

202  

Member States acting alone, may not be able to compete internationally for third-country workers. This is even more 
apparent for smaller Member States facing greater difficulties in attracting TCNs from abroad due to their limited 
visibility, and resource limitations. 
The use of profile building (e.g. Europass) and automatic matching tools coupled with the personalised assistance by 
the  NCPs  would  further  go  in  this  direction.  Similarly,  the  preferred  option  would  mitigate  the  risk  of  unfair 
recruitment  and  avoid  mismatches  and  overqualification.  While  these  tools  are  also  included  under  PO3,  the 
targeted nature of PO2 would allow to  better focus resources and expertise to ensure  better quality of matches 
therefore building employers and TCNs trust on the tool and making it more effective (e.g. better support NCPs and 
more precise automatic matching tool). 

70 

 
 
 
9.  HOW WILL ACTUAL IMPACTS BE MONITORED AND EVALUATED? 
The actual impacts of the preferred option will be monitored and evaluated against the specific 
objectives. Indicators will be defined in the legislative act foreseen according to the preferred 
option.  Data  will  be  collected  using  a  wide  range  of  sources  including  already  existing  ones 
(e.g. Eurostat, Cedefop). Existing sources and databases would allow to monitor current trends 
in  relation  to  the  labour  market  situation  and  migration  flows.  A  clear  understanding  of  the 
actual labour market needs and TCNs workers would enable to efficiently adapt the EU Talent 
Pool over time (e.g. modifying the list of occupations of EU and national relevance). New data 
will  be  collected  via  the  new  IT  platform  as  well  as  information  provided  by  the  National 
Contact  Points  (e.g.  number  of  registered  CVs  and  job  vacancies,  successful  matches,  etc). 
This  would  allow  to  monitor  the  effectiveness  and  success  of  the  initiative  in  achieving  the 
specific objectives.  
The following table presents a series of headline indicators that could be used to measure the 
achievement of each of the objectives under the preferred option.  

Table 6: Indicators to measure the achievement of the specific objectives 

Objective 

Indicators  

Data sources  

GO  

1. No. of unfilled vacancies by occupation in each MS 

SO 1  

SO 2  

SO 3  

SO 4  

2. No. of visa and work permits issues for employment purposes 
3. No. of TCNs registered to the EU Talent Pool 
4. Percentage of TCNs registered successfully pre-screened 
1. Length of the recruitment procedure via the EU Talent Pool  
2. Facilitation measures in place in the Member States 
3. Percentage of successful matches  
1. Usefulness of online information provision on recognition procedures 

2. No jobseekers and employers that obtained personalised support by 
NCPs on recognition procedures 
1. Usefulness of online information provision on immigration procedures 

2.  No  jobseekers  and  employers  that  obtained  personalised  support  by 
NCPs on immigration procedures 
1. No. of MS and third countries involved in Talent Partnerships 
2. No of TCNs participating in the Talent Partnerships 
3. No. of registered TCNs in the context of a Talent Partnership 

4. No of successful matches in the context of a Talent Partnership 

1. EURES Report, Cedefop Skills 
forecast, Eurofound Report  

2.  Eurostat and Europop 
3. Data extracted from the platform  
4. Data extracted from the platform 
1. Survey to users 
2. Information from NCPs 
1. Survey to users and NCPs 
1.  Data  on  usage  online  information 
extracted the platform 
2. Survey to users 

1.  Data  on  usage  online  information 
extracted from the platform  
2. Survey to users 

1. National authorities 
2. National authorities  
3. Liaison officers 

4.  Survey  to  TCNs  registered  in  the 
context of a Talent Partnerships 

71 

 
 
 
 
 
ANNEX 1 
PROCEDURAL INFORMATION 

1. 

Identification of the lead DG:  

DG  Migration  and  Home  Affairs  (DG  HOME)  is  the  lead  DG  with  DG  for  Employment, 
Social Affairs and Inclusion (DG EMPL) associated to the initiative. 

2. 

Organisation and timing 

The  New  Pact  on  Migration  and  Asylum  of  23  September  2020203  committed  to  ‘further 
explore  an  EU  Talent  Pool  for  third-country  skilled  workers  which  could  operate  as  an  EU-
wide platform for international recruitment’.  

The  Skills  and  Talent Package204  launched  in  April  2022,  sets  out  a  new  approach  to  legal 
migration aimed at attracting and retaining talent to foster growth and innovation. The Package 
includes  a  number  of  proposals  to  develop  an  ambitious  and  sustainable  EU  legal  migration 
policy.  As  part  of  these  proposals,  the  Commission  announced  the  development  of  an  EU 
Talent Pool.  

The  Commission  launched  the  EU  Talent  Pool  Pilot205  in  October  2022  to  help  integrate 
people fleeing Ukraine into the EU labour market. The EU Talent Pool will take into account 
the lessons learned from this Pilot.  

The need to attract the right skills to the EU was also mentioned by President von der Leyen in 
her 2022 State of  the Union206  where the European Year of Skills207 was announced as an 
opportunity to make Europe more attractive for skilled workers. 

The  EU  Talent  Pool  will  contribute  to  the  European  Year  of  Skills  and  will  be  a  key 
component  of  the  initiative  included  in  the  European  Commission’s  Package  on  talent 
mobility (Commission’s work programme for 2023208). 

The Call for evidence209 providing an overview of the initiative and envisaged policy options 
was published on 16 of February 2023 and remained open for feedback until 16 March 2023 (a 
detailed assessment of the feedback received is provided in Annex 2). 

The  Impact  Assessment  report  (IA  report)  is  based  on  a  number  of  studies  and  existing 
literature, reports and background research. A study from an external contractor was launched 
in March 2023 to inform the IA report. 

In addition, extensive targeted consultations were conducted in the context of this initiative 
between March and June 2023.  

Previous consultations were also taken into account in the preparation of the IA report.  

In particular, the input collected during the Public consultation on legal migration carried out 
in  2020 was  considered210. In addition,  extensive consultations were conducted with  relevant 

203  
204  
205  
206 
207 

208  
209  

COM(2020)609 final. 
COM/2022/657 final. 
https://eures.ec.europa.eu/eu-talent-pool-pilot_en. 
https://state-of-the-union.ec.europa.eu/state-union-2022_en. 
Proposal  for  a  Decision  of  the  European  Parliament  and  of  the  Council  on  a  European  Year  of  Skills  2023, 
COM/2022/526 final https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52022PC0526. 
COM(2022)548 final.  
EU Talent Pool (europa.eu). 

72 

 
 
 
 
stakeholders in the context of the OECD feasibility study on the Talent Pool211, finalised in 
June 2022, and the preparatory work to the Skills and Talent Package. 

The  EU  Talent  Pool  was  also  recently    assessed  in  the  European  Economic  and  Social 
Committee  (EESC) and the  European Committee of the Regions  (CoR)’s opinions on the 
Skills  and  Talent  Package.212  In  addition,  recommendations  on  the  EU  Talent  Pool  were 
included in the two resolutions on legal migration of the European Parliament213.  

Inter-Service Steering Group 

The Inter-service Steering Group (ISG) was set up by the Secretariat-General to assist in the 
preparation  of  the  initiative  as  part  of  the  wider  Package  on  talent  mobility.  A  specific 
subgroup  on  the  EU  Talent  Pool  was  created.  The  representatives  of  the  following 
Directorates-General  participated  in  the  ISG  work:  BUDG,  CNECT,  COMM,  EAC,  ECFIN, 
EEAS,  EMPL,  ESTAT,  GROW,  JUST,  JRC,  INTPA,  MOVE,  NEAR,  REFORM,  REGIO, 
RTD,  SANTE,  TRADE,  SG  and  the  Legal  Service.  The  ISG  met  two  times,  on  18  January 
2023 and 15 June 2023. Written consultations within the ISG were conducted three times (on 
the Inception and Final report of the external contractor as well as on the IA report).  

The first ISG meeting of 18 January 2023214 introduced the policy initiative and the expected 
timeline.  A  presentation  of  the  Call  for  Evidence,  Consultation  Strategy  and  Terms  of 
Reference  was  provided.  The  presentation  highlighted  the  main  problems  and  challenges 
identified as well as the corresponding objectives that the initiative aims to achieve.  

The second ISG on 15 June 2023215 meeting reported on the progress of the preparation of the 
abovementioned  package,  to  be  adopted  in  the  context  of  the  European  Year  of  Skills.  The 
interim report of the study feeding into the Impact Assessment was presented, followed by a 
tour  de  table  to  discuss  the  main  comments.  Participants  were  given  the  possibility  to  share 
written comments in a later stage.  

In addition, the ISG participants were consulted five times:  

210  

211  

212  

213  

214  

215  

The public consultation was launched in the framework of the New Pact on Migration and Asylum on 23 September 
2020, and was open until 30 December. This public consultation aimed to identify areas where the EU framework on 
legal migration could be further improved, including through possible new legislation. It also covered the EU Talent 
Pool.  In  particular,  questions  relevant  for  the  establishment  of  an  EU  Talent  Pool  were  included  (4  out  of  13 
questions). Questions concerned the identification of occupations in which the EU will mostly need to recruit third-
country  nationals  in  the  coming  years,  the  main  objectives  the  EU  Talent  Pool  should  achieve  and  possible 
admission  criteria  to  the  EU  Talent  Pool,  with  a  final  open  question  on  how  to  improve  the  EU  legal  migration 
policy. The consultation also allowed participants to submit a position paper. 
An EU Talent Pool - OECD. The consultations conducted in the framework of the OECD feasibility study included 
relevant  public  and  private  sector  actors,  at  the  European,  national  and  regional  level,  as  well  as  academics  and 
experts. Public sector actors included relevant ministries, regional entities, national talent attraction initiatives, and 
employment  services.  Private  sector  actors  included  employer  representatives,  multinational  enterprises,  unions, 
recruitment agencies. European Commission services, competent EU agencies and entities managing or contributing 
to European existing pools were also consulted. 
EESC Opinion on Legal Migration –Skills and Talent Package, SOC/733, 26 October 2022 and  CoRs Opinion on 
Legal Migration – Attracting Skills and Talent to the EU, CIVEX-VII/0171 December 2022. 
European Parliament resolution of 20 May 2021 on new avenues for legal labour migration and European Parliament 
resolution  of  25  November  2021  with  recommendations  to  the  Commission  on  legal  migration  policy  and  law 
(2020/2255(INL)).  
Participants: SG, HOME, EMPL, GROW, RTD, SANTE, MOVE, INTPA, BUDG, SJ, REFORM, NEAR, TRADE, 
ECFIN, ESTAT, EAC. 
Participants: SG, HOME, EMPL, GROW, RTD, SANTE, MOVE, INTPA, BUDG, SJ, REFORM, NEAR, TRADE, 
ECFIN, ESTAT, CNECT, EAC, EEAS, JRC, JUST. 

73 

 
 
 
-  Following  the  ISG  meeting  of  18  January  2023,  ISG  representatives  were  invited  to 
provide written comments on the Call for Evidence and Consultation Strategy, and the 
Terms of Reference for the study supporting the Impact Assessment;  

-  On 27 March 2023, the Inception Report submitted by the contractor was shared with 

the ISG representatives and they were invited to provide comments; 

-  On  5  June  2023,  the  Interim  Report  submitted  by  the  external  contractor  was  shared 

with ISG representatives and they were invited to provide written comments; 

-  On  4  August  2023,  the  ISG  representatives  were  consulted  in  writing  on  the  Final 

Report submitted by the external contractor; 

-  On  28  August  2023,  the  finalised  IA  report  was  shared  to  the  ISG  for  written 

contributions prior submission to the RSB. 

Bilateral meetings with other Commission services 

Furthermore,  DG  HOME  has  held  a  number  of  bilateral  meetings  with  several  Commission 
services including with DG EMPL, LS, GROW, SG and SJ. As DG EMPL is associated to the 
initiative, recurrent bilateral meetings between DG HOME and DG EMPL were organised to 
ensure close cooperation in the preparation of the initiative.  

On 5 May 2023, a joint meeting with HOME, SG, LS, EMPL, GROW, EAC and BUDG, was 
organised to discuss key aspects for the design of the initiative.  

External meetings and consultations 

The  initiative  touches  upon  different  policy  areas  including,  migration,  employment  and 
recognition  of  qualifications  related  aspects.  Therefore,  extensive  consultations  were 
conducted with a wide range of stakeholders and experts from different backgrounds. Meetings 
and  ad-hoc  consultations  with  EU  institutions  and  agencies,  international  organisation, 
Member States, expert groups, high-level groups, think tanks, and civil society were organised. 
A full overview of the consultations conducted is available in Annex 2.  

3. 

Consultation of the Regulatory Scrutiny Board 

On 8 September 2023, Directorate-General for Migration and Home Affairs submitted the draft 
Impact  Assessment  to  the  Regulatory  Scrutiny  Board,  which  examined  the  draft  Impact 
Assessment on 27 September 2023 The Board issued a positive opinion with reservations on 
28 September 2023. The Board pointed to a number of elements of the impact assessment that 
the  main  recommendations  for 
should  be  addressed.  The 
improvement, and how they have been addressed in this Impact Assessment report. 

table  below  summarises 

Main 
recommendations 
for improvement 

1. Better describe 
the expected 
practical 
functioning of the 
EU Talent Pool 
platform, in 
particular with 
regard to its links 

Modifications in the IA report  

•  The  description  of  the  policy  options  has  been  improved  by 
the  practical 
providing  further  details  and  clarifications  on 
functioning of the EU Talent Pool platform, in particular with regard 
to the voluntary nature of the tool, the identification of the targeted 
occupations,  the  role  of  the  national  authorities,  the  platform’s  IT 
components  and  its  interoperability  with  the  national  systems,  the 
registration,  the  screening  and  the  validation  of  jobseekers  profiles 
as well as the personalised support provided by the National Contact 

74 

 
 
with the Talent 
Partnerships.  

2. Clarify the 
assumptions 
behind the gradual 
participation of the 
interested Member 
States.  

3. Better highlight 
the EU added 
value of the EU 
Talent Pool 
platform and how 
it would provide 
support to Member 
States, including 
with regard to 
interoperability of 
the EU Talent Pool 
with the national 
systems. 

Points.  

•  The  interlinks  between  the  EU  Talent  Pool  and  the  Talent 
Partnerships  has  been  clarified  in  the  report.  To  this  purpose, 
additional background information on the current state of play of the 
Talent  Partnerships  has  been  included.  In  addition,  it  was  further 
explained how the EU Talent Pool would articulate with the Talent 
Partnerships and which specific features are foreseen to this end. It 
was clarified that the EU Talent Pool would not constitute the only 
way  to  implement  the  Talent  Partnerships  and  Member  States 
participating  in  a  Talent  Partnership  would  not  be  required  to  use 
this tool for job placements.  

• 

• 

A detailed explanation of the expected uptake of the initiative by 
the Member States has been included in the report. In particular, it 
was  clarify  that  while  the  initiative  would  be  designed  to  be 
attractive as many Member States as possible, it is likely that their 
participation would be a gradual process with only some Member 
States  joining  in  the  first  years  of  operation  and  a  progressive 
increase  expected  in  the  long  run.  The  assumptions  behind  this 
consideration have been clarified in the report further information 
on the consultations with Member States was included.  
In  order  to  provide  a  clear  and  realistic  assessment  of  costs  and 
impacts which are dependent on the uptake of the initiative it was 
assumed that a minimum of 11 Member States and a maximum of 
20  Member  States  would  participate  in  the  EU  Talent  Pool.  A 
range of costs and impacts estimated under each scenario has been 
included in the assessment of each policy option. 

•  The added value of the EU Talent Pool vis à vis existing initiatives 
national and EU level aimed at addressing labour shortages has been 
clarified  and  explained  in  more  detailed  in  the  report.  To  this 
purpose a better overview of the similar initiatives at national level 
was provided. It was clarified that the EU Talent Pool would address 
remaining  gaps  where  domestic  workforce  is  insufficient  to  fully 
address labour and skills shortages.  
In  addition,  it  has  been  clarified  the  EU  Talent  Pool  would 
complement  existing  initiatives  at  national  level  by  offering 
additional support at EU level. Hence, Member States would be able 
to maintain their tools in place and complement them with the new 
platform.  The  interlinks  between  the  EU  Talent  Pool  and  national 
their 
initiatives  has  been  clarified  also  with 
interoperability.  

regard 

to 

• 

•  Further  information  on  the  consultations  conducted  with  the 
Member  States  has  been  included  as  the  added  value  of  the  EU 
Talent  Pool  in  supporting  Member  States  to  address  labour  and 
skills shortages was widely acknowledged by the Member States. 

4. Clarify how the 
list of occupations 
targeted by the EU 
Talent Pool is 

•  A  more  detailed  explanation  on  the  identification  of  the  list  of 
shortage occupations of Union relevance targeted by the EU Talent 
Pool  has  been  included  in  the  report.  In  particular,  the  role  of  the 
Member States and the relevant of shortage occupations identified at 

75 

 
 
established.  

national level was clarified.  

5. Describe the 
specific objectives 
in SMARTer 
terms.  

6. Better present 
the costs and 
benefits of all 
options in the main 
report and provide 
further explanation 
and evidence for 
the estimates and 
the assumptions 
and their potential 
evolution, 
including as 
regards to Member 
States 
participation.  

7. Provide a clearer 
overview of all 
impacts, costs and 
benefits of all 
options.  

•  A  clearer  description  of  the  specific  objectives  according  to  the 
SMART  terms  has  been  included  in  the  report.  In  particular,  the 
objectives  have  been  further  specified  in  more  concrete  terms,  the 
links  with  the  general  objective  has  been  clarified  and  additional 
explanations  have  been  incorporated  on  how  the  fact  that  they  are 
realistically achievable, and time bound.  

•  A  detailed  overview  of  the  costs  and  direct  and  indirect  benefits 
under each policy option has been incorporated in the main report as 
well as in the Annex.  

•  Additional  explanation  of  the  basis  for  these  calculations  and  the 
validation by the consulted stakeholders has been included together 
with more detailed breakdown of costs.  

•  As  mentioned  above,  ranges  of  costs  and  benefits  have  been 
introduced to better clarify their variations depending on the number 
of  Member  States  participating  in  the  initiatives  and  provide  a 
clearer overview of the expected evolution.  

•  A  clearer  comparison  of  all  impacts,  costs  and  benefits  under  each 
option  has  been  included  in  the  main  report  to  provide  a  better 
assessment of each policy option’s effectiveness. Such an overview 
of  how  the  different  policy  options  compared  in  terms  of 
costs/benefits  analysis  has  been  included  in  form  of  a  table  in  the 
main  report.  A  more  detailed  assessment  has  been  incorporated  in 
the Annex.  

4. 

External consultant 

An external contractor (RAMBOLL) has assisted DG HOME by conducting a study to support 
the work on the Impact Assessment report. The call for proposals/tenders (?) for the study was 
launched on 26 January 2023, two substantive bids were evaluated in February, leading to the 
award decision in March 2023. Due to the tight timeframe the contractor and DG HOME have 
worked on the same substance in parallel. The kick-off meeting for the study took place on 16 
March 2023, an inception report was delivered on 24 March 2023 and a draft interim report on 
4 April 2023. The final report for the first reviews cycles was submitted on 4 August 2023.  

The  table  below  provides  a  clear  overview  progress  of  the  study  to  support  the  impact 
assessment:  

Meeting/Deliverable 

Proposed date/deadline 

Call for proposal 

26 January 2023 

First  meeting 
the 
Evaluation Committee on the 
bids for the study  

of 

22 February 2023 

76 

 
 
Second  meeting 
the 
Evaluation Committee on the 
bids for the study 

of 

28 February 2023 

Award  decision  and  contract 
signature 

8 March 2023 

Kick-off meeting 

Inception report  

16 March 2023 

24 March 2023 

Inception report meeting  

4 April 2023 

Inception report for 
acceptance  

7 April 2023  

Interim report for review 

2 June  

Interim report meeting  

15 June 2023  

Interim 
acceptance  

report 

for 

28 June 2023 

Final  report  for  the  first 
review cycle  

4 August 2023  

Final  report  for  the  review 
for the second review cycle  

5 September 2023  

Final report for acceptance 

18 October 2023 

Contract end date 

8 November 2023 

Evidence and Sources 

The  impact  assessment  was  supported  by  a  wide  variety  of  sources  and  evidence  collected 
through  desk  research,  a  comprehensive  literature  review,  inter-service  cooperation,  expert 
consultations  and  focused  group  discussions.  The  Impact  Assessment  Report  draws  on 
numerical  estimates  and  calculations,  as  well  as  qualitative  material  such  as  expert  opinions. 
The following list represents an indicative selection, but by no means an exhaustive list of the 
wide range of internal and publicly available sources used216: 

•  European Migration Network (EMN), Report  -  The application of quotas in  EU Member 
States as a measure for managing labour migration from third countries EMN Inform - The 
application  of  quotas  in  EU  Member  States  as  a  measure  for  managing  labour  migration 
from 
http://ec.europa.eu/dgs/home-affairs/what-we-
do/networks/european_migration_network/reports/docs/emn-studies/emn-
informs/emn_inform_application_of_quotas_en_version_final.pdf 

countries, 

(2013), 

third 

216  

Where  explicitly  used,  this  material  is  referenced  in  the  Impact  Assessment  report.  In  other  cases  it  served  as 
background material. 

77 

 
 
 
 
•  European  Migration  Network  (EMN),  Study  -    Admitting  Third-country  National  for 
https://ec.europa.eu/home-

Business 
affairs/sites/homeaffairs/files/whatwe-
do/networks/european_migration_network/reports/docs/emnstudies/emn_study_admitting_
third_country_nationals_for_business_purposes_synthesi s_report_04may2015.pdf   

Purposes, 

(2015) 

•  European Migration Network (EMN), Synthesis Report for the EMN Focused Study, Determining 
Labour Shortages  and  the Need  for  Labour Migration  from Third Countries in  the  EU,  (2015), 
https://ec.europa.eu/home-affairs/sites/homeaffairs/files/what-
wedo/networks/european_migration_network/reports/docs/emnstudies/emn_labour_shortages_synt
hesis__final.pdf   

•  European  Migration  Network  (EMN),  Ad  Hoc  Query  on  Labour  Market  Test,  (2021), 

202117_ad-hoc_query_on_labour_market_test.pdf (europa.eu)  

EU 

•  European  Commission,  Legal  Migration  Fitness  Check  Legal  migration  fitness  check 

(europa.eu). 

•  European  Commission,  A  Green  Deal 

the  Net-Zero  Age 
Communication:  A  Green  Deal  Industrial  Plan  for  the  Net-Zero  Age  |  European 
Commission (europa.eu) 

Industrial  Plan 

for 

•  European  Commission,  Harnessing  Talent  in  Europe’s  Regions,  harnessing-talents-

regions_en.pdf (europa.eu) 

•  European  Parliamentary  Research  Service,  European  added  value  of  EU  legal  migration 
(2021),  https://www.ceps.eu/wp-

policy  and 
content/uploads/2021/09/EPRS_STUD_European-added-value-of-EU-legal-migration-
policyand- law.pdf; 

law,  European  Union,  Brussels, 

UN/IMO 

•  UNDESA, Policy Brief on international migration, undesa_pd_2022_pb_146.pdf 

•  UNDESA,  International  Migrant  Stock  2020,  Dataset  International  Migrant  Stock  | 

Population Division (un.org) 

• 

IMO, Facts  and  Figures, Global  Data and Research  Migration Data  and  Research  |  IOM, 
UN Migration 

OECD 

•  OECD/EU,  Recruiting 

Immigrant  workers  –  Europe 

(2016),  https://www.oecd-

ilibrary.org/social-issues-migration-health/recruiting-immigrant-workers-europe-
2016_9789264257290-en  

•  OECD, The Community Preference Principle in Labour Migration Policy in the European 

Union, (2016), https://doi.org/10.1787/5jlwxbzcfsq6-en. 

•  OECD, Making Integration Work: Assessment and Recognition of Foreign Qualifications, 
https://www.oecd.org/publications/making-integration-work-assessment-and-

(2017), 
recognition-of-foreign-qualifications-9789264278271-en.htm 

•  OECD, Assessing the role of migration in European labour force growth by 2030, (2018), 

https://doi.org/10.1787/6953a8ba-en  

78 

 
 
•  OECD/EU,  Building  an  EU  Talent  Pool,  (2019),  https://www.oecd-ilibrary.org/social-

issues-migration-health/building-an-eu-talent-pool_6ea982a0-en   

•  OECD, The Expression of Interest Model: What Lessons for Migration Management in the 
EU  and  elsewhere,  (2019),  https://www.oecd.org/migration/mig/migration-policy-debates-
18.pdf  

•  OECD,  How  do  OECD  countries  compare  in  their  attractiveness  for  talented  migrants, 

(2019), migration-policy-debates-19.pdf (oecd.org)  

•  OECD,  Measuring  and  assessing  talent  attractiveness  in  OECD  countries,  (2019), 
https://www.oecd-ilibrary.org/social-issues-migration-health/measuring-and-assessing-
talent-attractiveness-in-oecd-countries_b4e677ca-en  

•  OECD policy brief, How to make Labour Migration Management Future-Ready?,  (2020) 

https://www.oecd.org/migration/mig/migration-policy-debates-21.pdf 

•  OECD/EU,  Feasibility  Study  on  the  Development  of  an  EU  Talent  Pool,  (2022),  
https://www.oecd.org/migration/mig/Report-Feasibility-Study-on-the-Development-of-an-
EU-Talent-Pool-2022.pdf 

•  OECD,  Talent  Attractiveness 

in  OECD  countries:  policy  brief  (2023),  Talent 
Attractiveness 2023 - OECD – Policy Brief: What is the best country for global talents in 
the OECD?: [Title] (oecd.org) 

Academic articles 

•  Abbritti,  M.  Consolo,  A.  Labour  market  skills,  endogenous  productivity  and  business 
cycles (2022) ECB working paper 2651 Labour market skills, endogenous productivity and 
business cycles (europa.eu) 

•  Botelho,  V.  Foroni,  C.  Renzetti,  A.  Labour  at  Risk  (2023)  ECB  working  paper  2840 

Labour at risk (europa.eu) 

•  Gallup,  World  Poll  on  migration  intentions  and  aspirations  (2023)  Nearly  900  Million 

Worldwide Wanted to Migrate in 2021 (gallup.com)  

•  Gürtzgen,  N.  et  al.,  Does  online  search  improve  the  match  quality  of  new  hires?,  (2021) 

https://ftp.iza.org/dp14031.pdf. 

•  Judes,  A.  The  EU  is  not  as  attractive  to  foreign  jobseekers  as  other  large  markets,  as 
interest in working abroad recovers, Indeed Hiring Lab (2023) Despite the EU’s Efforts at 
Attracting Foreign Workers, They’d Still Rather Go Elsewhere  - Indeed Hiring Lab UK I 
Ireland 

•  Navarra, C. and M. Fernandes, Legal migration policy and law: European added value 

assessment, (2021), 
https://www.europarl.europa.eu/RegData/etudes/STUD/2021/694211/EPRS_STU(2021)69
421 1_EN.pdf 

•  Rasche, L., The EU Talent Pool An Opportunity for Skills-based Pathways to Protection, 

(2021), Hertie School, Jacques Delors Centre, (2021), https://hertieschoolf4e6  

Studies – Labour and skills shortages 

•  CEDEFOP,  The  green  employment  and  skills  transformation.  Insights  from  a  European 

Green Deal skills forecast scenario, Luxembourg: Publications Office, 2021 

79 

 
 
•  Eurofound, Changing labour markets - How to prevent a mismatch between skills and jobs 

in times of transition - Background paper, Eurofound, Dublin, 2023 

•  European Commission, European Semester Spring Package (2023) 

•  CEDEFOP, The Green Employment and Skills Transformation (2021) 

•  ESDE, Employment and Social Developments in Europe (2023) 

•  LMWD, Labour Market and Wage Developments (2022) 

•  EUROFOUND,  Business  not  as  usual:  How  EU  companies  adapted  to  the  COVID-19 

pandemic (2021) 

•  EUROFOUND, Tackling Labour Shortage in EU Member States (2021) 

•  EUROFOUND, Measures to Tackle Labour Shortages: Lessons for future policy (2023) 

•  EIB, 2022/2023 Investment Report (2023) based on latest available data 

•  ECFIN, Monthly and Quarterly Business and Consumer Surveys (July 2023) 

•  ELA, 2022 EURES report on Labour shortages and surpluses (2023) 

•  ELA, 2022 Annual report on intra-EU labour mobility (2023) based on latest available data 

(2021/2020) 

Studies - Labour migration and labour market inclusion 

•  Ecotec Research and Consulting Limited, Admission  of Third-country Nationals  for Paid 
the  European 
Employment  or  Self-employed  Activity,  Study  commissioned  by 
Commission  DG  Justice  and  Home  Affairs,  (2001),  Luxembourg:  Publications  Office  of 
the  European  Union,  ISBN  92-894-1689-0.  https://op.europa.eu/en/publication-detail/-
/publication/dac11f6b-e978-4502-8156-0b9e52911a23  

• 

International  Organization  for  Migration  (IOM),  Labour  Market  Inclusion  of  the  Less 
Skilled Migrants in the European Union, Platonova., A. and Urso, G., (Eds.), International 
Organization 
Migration: 
https://publications.iom.int/system/files/pdf/labour_market_inclusion_in_eu.pdf  

Brussels, 

for 

(2012),   

•  European  Commission,  Study  on  Obstacles  to  Recognition  of  Skills  and  Qualifications, 
Study  for  DG  for  Employment,  Social  Affairs  and  Inclusion,  (2017),  Luxembourg: 
10.2767/351242. 
European 
Publications 
https://op.europa.eu/en/publication-detail/-/publication/156689fd-e922-11e6-ad7c-
01aa75ed71a1  

Union, 

Office 

doi: 

the 

of 

•  European  Commission,  Study  on  the  movement  of  skilled  labour:  final  report,  (2018), 

https://doi.org/10.2767/378144. 

•  European Commission, John McGrath, European Network of Public Employment Services, 
(2019), 

PES 
https://ec.europa.eu/social/main.jsp?catId=89&furtherNews=yes&newsId=9458&langId=e
n 

Shortages, 

Strategies 

Activities 

Skill 

and 

on 

•  JRC, Foreign Degrees, Region of Birth and Under-utilisation of Tertiary Education in the 

EU, (2020), 

80 

 
 
https://ec.europa.eu/jrc/en/publication/foreign-degrees-region-birth-and-under-utilisation-
tertiary-education-eu 

•  European  Commission,  Molnár,  T.,  J.  Krekó  and  Á.  Scharle,  The  role  of  PES  in  talent 
recruitment  from  third  countries  -  Publications  Office  of  the  EU,  (2020),  European 
Commission, Brussels, https://doi.org/10.2767/972207. 

•  European Commission, European  Network of Public Employment Services, Future skills, 
career  guidance  and  lifelong  learning  in  PES,  (2022),  https://op.europa.eu/en/publication-
detail/-/publication/fa6af00f-eb86-11ec-a534-01aa75ed71a1/language-e.  

•  BusinessEurope, Analytical Note, Understanding shortage occupations and the potential of 
(2022), 

third 
https://www.businesseurope.eu/publications/understanding-shortage-occupations-and-
potential-third-country-migration-helping 

employers’  needs, 

country  migration 

in  helping 

address 

to 

•  Vandeplas, A., Vanyolos, I., Vigani, M., Vogel, L., The Possible Implications of the Green 
Transition  for the EU Labour Market,  European Economy  Discussion Paper 176, (2022), 
https://economy-finance.ec.europa.eu/publications/possible-implications-green-transition-
eu-labour-market_en. 

•  Kiss, A., Morandini, M.C., Turrini, A., Vandeplas, A.: Slack & Tightness: Making Sense 
of  Post  COVID-19  Labour  Market  Developments  in  the  EU,  European  Economy 
Discussion  Paper  178,  (2022),  https://economy-finance.ec.europa.eu/system/files/2022-
12/dp178_en.pdf.  

•  European  Commission,  Strategic  Foresight  Report,  2023,  pp.  8-9  2023,  2023  Strategic 

Foresight Report (europa.eu) 

Position Papers 

•  BusinessEurope, 

for 
https://www.businesseurope.eu/publications/businesseurope-recommendations-eu-talent-
pool-0; 

Recommendations 

Talent 

Pool, 

EU 

an 

(2021), 

•  ETUC,  Position  on  the  European  Commission  ‘Skills  and  Talent  Package’,  (2022), 
https://www.etuc.org/en/document/adopted-position-etuc-position-european-commission-
skills-and-talent-package; 

•  Hotrec,  Legal  migration  package:  one  step 

to  fight 

labour  shortages,  (2022), 

Legal_migration_package-One-step-to-fight-labour-shortages.pdf (hotrec.eu) 

81 

 
 
 
 
ANNEX 2  
STAKEHOLDER CONSULTATION 

1. Consultation strategy 

The objective of the Member States’ and stakeholders’ consultation was to collect their views 
on the establishment of an EU Talent Pool. In particular, targeted consultations offered them 
the  opportunity  to  inform  the  Impact  Assessment  and,  including  with  regard  to  the 
development  of  policy  options  addressing  the  problems  identified.  Consultations  covered  a 
number  of  elements  relevant  to  the  initiative,  in  particular  issues  related  to  international 
recruitment  and  labour  and  skills  shortages  including  the  recognition  of  professional 
qualifications  of  third  country  nationals,  as  well  as  the  scope  of  application,  governance  and 
possible functionalities of the future EU Talent Pool.  

The consultations sought to collect inputs pertaining to:  

(1) objective data, information, and evidence to feed into the Impact Assessment; 

(2) views on the issues at stake and suggested EU involvement, as well as opinions, ideas and 
concerns about possible solutions and impacts.  

In  preparing  the  initiative,  Commission  services  carried  out  an  initial  mapping  of  primary 
stakeholders, which include: (i) EU institutions and agencies; (ii) relevant authorities in the EU 
Member States; (iii) networks of NGOs working at the EU level; (iv) subject-matter experts; 
(v) economic and social  partners; (vi) trade unions;  (vii) international  organisations and (vii) 
employers’ associations. 

Over  the  course  of  the  consultation  process,  Commission  services  used a  variety  of  methods 
and forms of consultation, which included:   

•  Targeted  consultations  with  stakeholders  both  independently  and  as  part  of  the  study 
that  supported  the  development  of  this  Impact  Assessment  (e.g.  specific  dedicated 
meetings  with  target  groups,  based  on  discussion  papers/questionnaires  and  bilateral 
meetings with interested parties); 

•  An opportunity for all interested parties to provide feedback on the Call for Evidence 

via the Commission’s ‘Have your say’ platform. 

A study to inform the Impact Assessment was commissioned to an external contractor by the 
Commission’s Directorate-General for Migration and Home Affairs (DG HOME). Additional 
consultations and targeted surveys were conducted in this context. Detailed information on the 
study is provided in Annex 1.  

In  addition,  previous  consultations  were  also  taken  into  account  in  the  preparation  of  the 
Impact Assessment:  

•  A  Public  consultation  on  the  future  of  legal  migration  was  launched  in  the 
framework of the New Pact on Migration and Asylum on 23 September 2020, and was 
open until 30 December. This public consultation aimed to identify areas where the EU 
framework  on  legal  migration  could  be  further  improved,  including  through  possible 

82 

 
 
 
new legislation. It also covered the EU Talent Pool. In particular, questions relevant for 
the establishment of an EU Talent Pool were included (4 out of 13 questions).217 

•  Extensive consultations were conducted with relevant stakeholders in the context of the 
OECD  feasibility  study  on  the  Talent  Pool218,  finalised  in  June  2022.  The 
consultations  conducted  in  the  framework  of  the  OECD  feasibility  study  included 
relevant public and private sector actors, at the European, national, and regional level, 
as  well  as  academics  and  experts.  Public  sector  actors  included  relevant  ministries, 
regional entities, national talent attraction initiatives, and employment services. Private 
sector  actors  included  employer  representatives,  multinational  enterprises,  unions, 
recruitment  agencies.  European  Commission  services,  competent  EU  agencies  and 
entities managing or contributing to European existing pools were also consulted.  

• 

In  the  framework  of  the  preparation  of  the  Skills  and  Talent  Package,  targeted 
consultations,  including  on  the  Talent  Pool,  were  organised  with  Member  States, 
including  Public Employment Services, and expert groups working  migration  related 
aspects.  

In light of the consultations already conducted, no dedicated public consultation took place in 
the framework of this impact assessment. 

To ensure a comprehensive assessment of this initiative targeted consultations were organised 
in the first half of 2023. These consultations covered more technical questions compared to the 
ones included in the public consultation and the OECD feasibility study.  

This  synopsis  report  presents  a  succinct  overview  and  the  conclusions  of  the  consultations 
undertaken in relation to the Impact Assessment on the EU Talent Pool. The main results are 
summarised  below  and,  where  appropriate,  referenced  and  taken  into  account  in  the  Impact 
Assessment report.  

2. Overview of the consultations 

2.1 Call for Evidence 

The Call for Evidence providing a detailed explanation of the planned initiative was published 
on 16 February 2023 (in all EU languages) on the website ‘Have Your Say’. It remained open 
for feedback until  16 March 2023.  A total  of 45 stakeholders, including networks, umbrella 
organisations,  economic  and  social  partners,  local  and  regional  authorities  in  the  Member 
States as well as EU citizens contributed evidence. 

217  

218  

Questions  concerned  the  identification  of  occupations  in  which  the  EU  will  mostly  need  to  recruit  third-country 
nationals in the coming years, the main objectives the EU Talent Pool should achieve and possible admission criteria 
to the EU Talent Pool, with a final open question on how to improve the EU legal migration policy. Respondents 
considered that health professionals were the top shortage occupation (77% of responses) ; followed by personal care 
workers (68% of responses), agricultural, forestry and fishery labourers (58%) and information and communications 
technology professionals (51%). To the question on the main objectives, of the four measures proposed, respondents 
rated highly the following objectives:  "Helping retain highly skilled third-country nationals already legally residing 
in  the  EU"  (76%  favourability),  "Addressing  the  existing  barriers  to  international  recruitment"  and  "Involving 
employers  in  labour  migration  schemes"  (both  with  75%  favourability).  Regarding  the  question  on  possible 
admission  criteria,  a  majority of respondents  agreed  that  the  EU should introduce  rules  allowing  the  admission of 
third-country workers without a concrete job offer, permitting them to search for a job subject to certain conditions 
(60%  of  responses).  Concerning  the  question  related  to  the  improvement  of  the  EU  legal  migration  policy, 
respondents  suggested  to  enhance  the  information  on  legal  pathways,  systems  to  recognise  professional 
qualifications and validate professional skills acquired, and the support in the exchange of good practices. 
The OECD feasibility study covered the assessment of three possible scenarios for the development of the EU Talent 
Pool as well as the cost-benefit analysis for each version. The study assessed in detail the possible legal framework, 
governance, scope of application as well as functionalities of the future EU Talent Pool. 

83 

 
 
 
including  non-profit  organizations, 

trade  unions,  regional 
Overall,  21  stakeholders, 
governments,  and  EU  citizens,  expressed  their  support  for 
the  development  and 
implementation  of  the  EU  Talent  Pool.  The  potential  added  value  of  the  initiative  in 
addressing  labour  and  skills  shortages  by  facilitating  international  recruitment  was 
acknowledged.  Among  those  supporting  the  initiative,  the  majority  of  the  stakeholders 
favoured  the  two  legislative  options  and  in  particular  the  development  of  a  voluntary  tool 
targeted  to  certain  occupations  of  EU  and  national  relevance.    Several  stakeholders 
stressed the need of ensure appropriate protection of third country nationals against the risk 
of unfair recruitment and exploitative working conditions. The need of ensuring protection of 
personal  data  in  developing  such  tool  was  also  mentioned.  The  importance  of  building  on 
existing  recruitment  tools  at  EU  and  national  level  was  highlighted,  in  particular  with 
regard  to  the  need  of  ensuring  interoperability.  The  involvement  of  economic  and  social 
partners,  especially  trade  unions  and  national  and  local  authorities  in  the  design  and 
implementation  of  the  initiative  was  recommended.  Conversely,  24  stakeholders  (all  EU 
citizens) did not endorse adopting the EU Talent Pool.  

A detailed summary of the feedbacks received is provided below in Section 3.1. An extensive 
overview of the position of the economic and social partners is provided in Section 3.3. 

2.2 Targeted consultations conducted by the Commission  

Between March and June 2023, the Commission organised extensive targeted consultations to 
inform the Impact Assessment on the EU Talent Pool. These consultations were conducted by 
organising  bilateral  meetings  and  focus  groups.  A  discussion  document  with  a  questionnaire 
was shared with the participants of each consultation activity in order to allow them to provide 
written contribution if deemed necessary. Additional stakeholders were consulted in writing.  

The table below provides an overview of the consultation’s activities organised (both meetings 
and written consultations).  

The outcome of the consultations is summarised in Section 3.3. 

Consultation 
activity 

Meetings 

Short description 

European Qualifications 
Framework Advisory 
Group 

This  meeting  took  place  on  1  March  2023.  The  Commission 
presented  the  EU  Talent  Pool  initiative,  and  participants  were 
invited to express their views with regard to the scope and main 
features of the Talent Pool.  

Group of Coordinators 
on Recognition of 
Qualifications 

Advisers for European 
Public Employment 
Services (AFEPAs) 

the  EU  Talent  Pool 

This  meeting  was  held  on  8  March  2023.  The  Commission 
presented 
the  Member  States 
representatives  and  invited  them  to  express  their  views  on  key 
aspects of the initiative, in particular those related to recognition 
of qualifications obtained in third countries.   

to 

This meeting took place on 10 March 2023. During the meeting, 
the  Commission  consulted  the  Public  Employment  Services 
representatives from the Member States on the key elements for 
the  design  of  the  EU  Talent  Pool,  including  international 
recruitment and labour shortages related aspects. 

EMN Talent Pool 

This  meeting  was  held  on  21  March  2023.  The  group  was 

84 

 
 
Working Group   

Resettlement Network - 
Roundtable on 
Complementary 
Pathways 

Meeting with SkillLab 

together  Member  States  representatives  from 

established in April 2022 within the EMN framework to support 
the development of the EU Talent Pool and the pilot initiative. It 
brings 
the 
immigration  and  employment  authorities  as  well  as  economic 
and social partners. In its first phase, the group mainly focused 
on the development of the EU Talent Pool Pilot. Following the 
launch  of  the  Pilot  in  October  2022,  the  Commission  has 
resumed  its  discussions  on  the  development  of  the  EU  Talent 
Pool proper. In view of the new initiative, an ad hoc meeting on 
the  EU  Talent  Pool  proper  development  was  already  held  in 
November  2022  to  provide  participants  with  preliminary 
information  on  the  envisaged  proposal.  The  roundtable  of  21 
March 2023 focused on number of key aspects for the design of 
the  EU  Talent  Pool  (scope  of  application,  pre-screening  and 
functionalities,  and 
validation  process,  components  and 
governance  structure).  Economic  and  social  partners  were  also 
consulted in this context. 

The meeting was held on 23 March 2023. DG HOME presented 
the  EU  Talent  Pool  and  potential  synergies  that  could  be 
explored  with  complementary  pathways.  Participants  (Member 
States  representatives,  international  organisations  (IOM  and 
UNHCR)  and  NGOs)  shared  their  experience  with  recruitment 
of  people  in  need  of  international  protection  and  displaced  in 
third-countries.  

The meeting was held on 31 March 2023. SkillLab is a software 
company based in Amsterdam, established in 2018, with a focus 
on  supporting  marginalized  job  seekers  in  entering  the  job 
market  and  creating  social  impact.  They  address  market 
challenges such as recognizing skills for migrants and refugees, 
limited 
lack  of 
interconnected  platforms  for  skilled  mobility.  SkillLab  shared 
valuable  insights  on  the  market  challenges  and  provided  a 
comprehensive  overview  of 
the 
functionalities  of  their  tool,  information  relevant  for  the 
development of an EU Talent Pool. 

information,  and 

labour  market 

company 

their 

and 

the 

Focus group with the 
European Training 
Foundation (ETF), 
Cedefop, and European 
Labour Authority (ELA) 

This focus group was held on 21 April 2023. The meeting aimed 
at consulting ETF, Cedefop, and ELA on the development of an 
EU Talent Pool on the basis of their expertise on several aspects 
including,  recruitment  processes,  labour  and  skill  shortages, 
transparency  and  comparability  of  qualifications  obtained  in 
third countries.  

European Council of 
Refugees and Exiles 
(ECRE) 

Expert Group on the 
Views of Migrants 

The  meeting  was  held  on  24  April  2023.  The  Commission 
presented  the  EU  Talent  Pool  initiative  and  participants  were 
consulted  on  the  main  components  of  the  EU  Talent  Pool  as 
well as its potential contribution to complementary pathways.  

The meeting was held on 27 April 2023.  The Expert Group on 
the views of migrants is composed of 24 experts, most of whom 
have  a  migrant  background,  and  selected  on  the  basis  of  their 

85 

 
 
 
Consultations with the 
European Labour 
authority (ELA) 

experience  in  the  field  of  migration,  integration  and  asylum  or 
as  representatives  of  organisations  representing  the  interest  of 
migrants  at  local,  national  or  EU  level.  The  experts  were 
consulted on the amin aspects of the initiative, in particular with 
regard to the added value for third country nationals’ interest in 
working in the EU.  

the  EURES  network 

Several meetings were organised with ELA given its experience 
intra-EU 
in  managing 
recruitment.  In  view  of  ELA’s  expertise  on  the  recruitment 
processes, 
level 
implementation,  the  authority  was  extensively  consulted  to 
design the governance and main functionalities of the initiatives, 
as well as to estimate potential costs.  

the  matching  platform 

and  national 

facilitating 

Expert Group on 
Economic Migration 
(EGEM) 

This  meeting  took  place  on  4  May  2023.  The  Commission 
presented  the  EU  Talent  Pool,  and  participants  were  invited  to 
share their perspectives on several issues related to international 
recruitment  and  labour  shortages  as  well  as  immigration 
procedures in the Member States. Economic and social partners 
were also consulted in this context.  

IOM Private Sector 
Consultation on the EU 
Talent Pool  

This  meeting  was  held  on  15  May  2023,  and  it  aimed  at 
discussing the current labour and skills shortages in the EU and 
the  EU  Talent  Pool  initiative  together  with  actors  from  the 
private sector.  

Meeting with the 
International Labour 
Organisation (ILO) 

NARICs Network 
Meeting 

The  Commission  consulted  with  the  ILO  on  25  May  2023,  on 
key  aspects  for  the  design  of  the  EU  Talent  Pool,  including 
labour 
recognition  of 
fair 
qualifications and skills.  

recruitment,  and 

shortages, 

This  meeting  took  place  on  25  May  2023.  The  Commission 
presented  the  initiative  of  the  EU  Talent  Pool,  consulting  the 
ENIC-NARICs  Network  on  their  role  and  responsibilities  on 
recognition  and  validations  of  skills  and  qualifications  in  the 
Member  States  as  well  as  best  practices.  The  NARIC  Network 
was also consulted in the context of a targeted survey conducted 
by the external contractor.  

Strategic Dialogue with 
Civil Society 
Organisations  

The  meeting  was  held  on  30  May  2023.  Civil  society 
organisations were consulted on the initiative and provided their 
views on relevant aspects including the provision of information 
and support to third country nationals in the recruitment process. 

EU Legal migration 
Practitioners’ Network  

This meeting was held on 31 May 2023. This expert group is an 
EU-level network of practitioners in the field of legal migration 
composed  of  associations  of  legal  practitioners  and  individual 
experts  from  EU  Member  States  applying  the  legal  migration 
acquis. The European Commission presented the proposal for an 
EU  Talent  Pool  and  participants  provided  feedback  to  the 
initiative.  The  study  team  joined  the  meeting  and  collected 
information on the views of participants.    

86 

 
 
European Labour 
Migration Platform 

Dedicated  hearing  with 
Social Partners 

Written consultations 

The European Labour Migration Platform meeting was held on 
21-22  June  2023 
to  specifically  consult  Member  States 
representatives  from  employment  and  migration  authorities  on 
the  EU  Talent  Pool  initiative.  The  two-day  meeting  covered 
several aspects ranging from the governance structure, the scope 
of  application  of  the  initiatives,  the  role  of  the  national 
authorities  and  immigration  procedures  as  well  as  the  links  of 
the EU Talent Pool with Talent Partnerships and complementary 
pathways. 

The meeting was held on 29 June 2023. Given their key role in 
the  policies  covered  by  the  initiative,  social  partners  were 
extensively consulted on the main components of the EU Talent 
Pool.  

Council Employment 
Committee (EMCO) 

The Committee was consulted in writing on the key elements of 
the initiative and its added value in addressing labour shortages. 

European  Union  Agency 
for  Fundamental  Rights 
(FRA) 

The FRA was invited to share its views on key elements of the 
initiative,  in  particular  with  regard  to  third  country  nationals’ 
fundamental  rights  protection  as  well  as  protection  of  personal 
data processed by the EU Talent Pool.  

2.3. Consultations conducted by the external contractor in the context of the study 

2.3.1 Surveys to employers and third country nationals  

1. Survey to employers 

The  external  contractor  conducting  the  study  to  inform  the  Impact  Assessment  conducted  a 
survey  to  employers.  The  purpose  of  the  survey  with  EU  employers  was  to  assess  the  main 
challenges  faced  by  employers  in  international  recruitment.  It  also  allowed  to  assess  their 
potential interest to participate in the EU Talent Pool. Employers provided their views on the 
main elements to design the policy options.  

The survey targeted companies or company branches based in 10 Member States.  Small and 
medium  enterprises,  as  well  as  large  enterprises  were  covered.  The  table  below  presents  an 
overview of the respondents to the survey.  

Country 

No. of 
respondents 

% 

Estonia 

Finland 

France 

Germany 

4 

7 

15 

15 

Size of the 
company  

(n. of 
employees) 

Less than 10 

10-49 

4% 

7% 

14% 

50-249 

14% 

250 or more 

87 

No. of 
respondents 

% 

7 

22 

35 

40 

7% 

21% 

34% 

38% 

 
 
Greece 

Italy 

Lithuania 

Netherlands 

Poland 

Spain 

Total  

1 

13 

3 

15 

10 

12 

1% 

Total  

104 

100% 

13% 

3% 

14% 

10% 

12% 

104 

100% 

2. Survey to third country nationals 

The  external  contractor  conducting  the  study  to  inform  the  Impact  Assessment  conducted  a 
survey to third country nationals. The purpose of the survey to third-country nationals (TCNs) 
was  two-fold:  (1)  to  assess  the  barriers  faced  by  TCNs  in  international  recruitment,  thus 
feeding in the problem definition; and (2) to assess the specific features of the EU Talent Pool 
to design the policy options. TCNs residing outside the EU as well as TCNs already residing in 
the Member States were consulted.  

The questionnaire was structured around the following topics: attitude to move (only for TCNs 
residing  in  third  countries),  barriers  to  employment  in  the  EU,  and  relevance  of  the  EU 
initiative.  

The  external  contractor  selected  certain  third  countries  for  the  survey  to  TCNs  based  on  the 
size  of  the  skilled  migrant  population  (also  considering  Blue  Card  holders’  origin)  and  the 
specific relationship with the EU (i.e., the country is a candidate country for joining the EU, 
the country participates to a Talent Partnership, or is an EU Neighbourhood country). For the 
survey  to  TCNs  already  located  in  the  EU,  four  Member  States  were  covered:  Belgium  (2), 
Denmark (1), Estonia (7) and Sweden (11).   

TCN in source country 

  TCN in the EU 

National
ity  

United 
Kingdom 

Albania 

Morocco 

Banglade
sh 

Pakistan 

Turkey 

No. of 
responde
nts 

91 

102 

99 

97 

101 

99 

% 

  National

ity 

11% 

13% 

12% 

  United 

Kingdom 

  Russia 

  Pakistan 

12% 

Turkey 

13% 

12% 

  Argentin

a 

  China 

  Colombi

Canada 

83 

10% 

a 

88 

No. of 
responde
nts 

6 

4 

1 

1 

1 

1 

1 

% 

29% 

19% 

5% 

5% 

5% 

5% 

5% 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Other 
<2% 

Total  

36 

808 

4% 

100
% 

India 

Nigeria 

  Philippin

es 

  United 
States 

  Uganda 

  North 

Macedon
ia 

1 

1 

1 

1 

1 

1 

Total  

21 

5% 

5% 

5% 

5% 

5% 

5% 

100
% 

2.3.2 Ad-hoc data surveys  

The external contractor conducting the study to inform the Impact Assessment also ran two ad-
hoc  surveys.  The  purpose  of  ad-hoc  surveys  was  to  gather  targeted  inputs  from  selected 
relevant stakeholders.  

The  first  one  targeted  EURES  National  Coordination  Offices  (NCOs)  and  aimed  at 
gathering more information on the staff and budget allocation across NCOs activities. This was 
necessary  to  provide  a  baseline  for  estimations  on  the  potential  costs  associated  with  the 
creation of National Contact Points under the EU Talent Pool framework.  

The second survey targeted national representatives of the NARIC network. The aim of this 
mini  survey  was  to  gather  inputs  and  information  on  validation  and  recognition  procedures 
across Member States and associated costs and length.  

Stakeholder category 

Stakeholder type 

No. of respondents 

Representatives  in  the 
Member States 

EURES NCOs 

NARIC 
representatives  

national 

20  

14219  

2.3.3 Broad stakeholder survey  

The  purpose  of  the  broad  stakeholder  survey  was  to  gather  insights  on  the  views  of 
stakeholders on the problem and its drivers, and to collect cost data and stakeholder views on 
the impact of the policy measures and options and the potential magnitude for the assessment 
of impacts. The survey was disseminated to all stakeholders by the study team. The survey was 
distributed to 166 stakeholders, out of which 20 stakeholders (mainly associations) were also 
asked  to  distribute  the  survey  to  other  relevant  stakeholders  and  colleagues  (snowballing 

219 Including three NARICs for Belgium. 

89 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
technique). The table below provides an overview of the types of stakeholders who responded 
to the survey past the profiling section of the questionnaire. 

Stakeholder type 

No. of respondents 

Stakeholder 
category 

Public bodies: 
International level 

Public bodies: 
National level 

International level public body 

National level network  

National level public body 

Local level public body 

Private sector  

Private sector organisation  

Civil society / 
representative 
organisations   

Non-governmental  organisation  / 
civil 
or 
organisation 

network 

society 

Business association 

EU level network 

Trade union 

Other  

Academia / research institution 

Other220 

Total  

A detailed summary is provided in Section 3.3. 

3. Summary results of the consultations  

3.1 Feedbacks to the Call for Evidence 

Organisation 

Short description 

2 

2 

23 

1 

5 

14 

2 

1 

2 

3 

2 

57 

EPSU 
Service Union) 

(European  Public 

The federation did not fully support the EU Talent Pool in its 
current form due to a number of elements and advocates for: i) 
the  involvement  of  social  partners  and  trade  union  in  the 
governances  structure  and  their  consultation  in  the  design  of 
the initiative; ii) an enhanced role of the trade unions due to 
the  particular  risk  of  labour  exploitation  and  discriminations 
faced by migrant workers; iii) a broader approach on the causes 
and solutions to labour shortages as they are not necessarily 
related  to  the  lack  of  skilled  workers  (e.g  labour  shortages  in 
healthcare are mainly due to poor pay and working conditions 
and years of underinvestment, as was revealed by the Covid-19 
pandemic). 

220  

One lawyer and one judge in the area of migration and asylum.  

90 

 
 
 
Ceemet 

DGB (German Trade 
Union Confederation) 

EDF (European Disability 
Forum) 

Region Västerbotten 

the  Commission´s  analysis  on 

The  organisation  supports  the  initiative  of  adopting  an  EU 
Talent  Pool  via  legislative  action  as  this  will  facilitate  the 
recruitment  of  skilled  workers  from  abroad  in  a  targeted 
manner,  to  address  labour  shortages  and  support  the  EU’s 
transition towards a green and digital economy. Ceemet agrees 
with 
the  challenges  to 
international  recruitment.  Ceemet  is  in  favour  of  the  two 
legislative  alternatives.  Targeting  the  EU  Talent  Pool  to 
certain  occupations  and  having  a  voluntary  system  is 
considered  the  best  option  in  the  short  term.  While  an  open 
Talent  Pool  would  be  the  optimal  solution  in  the  long  run. 
Ceemet  also  welcomes  the  possibility  of  upgrading  and 
modernizing the EU immigration portal and organising job 
matching  events.  Interoperability  with  existing  systems 
should be ensured.  

The  DGB  advocates  for  a  holistic  and  differentiated  approach 
to  the  problem  of  skills  shortages.  For  this  reason,  skills  and 
labour shortages should be addressed in the first place through 
qualification  and  improvement  of  working  conditions.  In 
addition,  considering  existing  national  platform  and  EURES, 
the Commission should assess the added value of the initiative. 
The confederation supports the adoption of an EU Talent Pool 
targeted  to  certain  occupations  and  having  a  voluntary 
nature. However,  protection of third  country  nationals  and 
quality of job should be ensured (national contact points play a 
central  role  in  monitoring  employers  and  job  vacancies).  In 
addition, interoperability with existing systems and platforms 
at EU and national level should be granted.  

The  organisation  supports  the  adoption  of  a  fully  self-
standing  and  mandatory  EU  Talent  Pool  for  all  labour 
migration  purposes.  This  is  seen  as  a  valuable  chance  for  the 
EU  to  enhance  its  employment  rates  among  individuals  with 
disabilities  while  simultaneously  improving  the  accessibility 
and inclusivity of the EU international recruitment procedures, 
legal migration processes, and the overall labour market for all 
workers. The platform should include the following measures: 
1. Ensure equal treatment of persons with disabilities and apply 
EU standards; 2. Ensure the recognition of the disability status 
and  eligibility  for  support  of  skilled  workers  with  disabilities 
when  being  recruited  via  the  EU  Talent  Pool.  3.  Promote 
gender  equality  and  diversity  when  recruiting  skilled  workers 
from outside the EU (e.g. skilled workers with disabilities that 
are  particularly  prone  to  exclusion  from  the  labour  market, 
including  women  with  disabilities,  people  with  disabilities  of 
ethnic minorities, such as Roma, etc). 

Region Västerbotten supports the adoption of the EU Talent 
Pool, which is expected to streamline international recruitment, 
addressing  critical  challenges  such  as  demographic  shifts  and 
skill  scarcities  in  Northern  Sweden.  With  some  of  Europe’s 

91 

 
 
FH  (Danish  Trade  Union 
Confederation) 

Region Jämtland 
Härjedalen 

ETUC 
Union Confederation) 

(European  Trade 

HIAS Europe 

lowest  unemployment  rates,  local  hiring  to  meet  labour 
demands is limited due to the existing employment of the local 
populace.  Therefore,  an  EU  Talent  Pool  would  help  in 
collaboratively 
retaining  and  attracting  skilled  workers, 
meeting the diverse skill demands in Northern Sweden. 

The  confederation  supports  the  adoption  of  the  EU  Talent 
Pool, and the need to facilitate international recruitment as long 
as it happens in areas where labour shortages exist and national 
rules on third country nationals’ recruitment are complied with. 
Equal  treatment  with  regard  to  working  conditions  should  be 
ensured.  

Region Jämtland Härjedalen supports the adoption of an EU 
Talent  Pool,  as  companies  and  organisations  operating  in  the 
region  have identified the lack of  relevant  skills  as one of the 
key barriers to growth.  

The ETUC remains highly critical on the development of the 
EU  Talent  Pool  as  it  is  considered  as  based  on  labour 
migration models designed for employers. However, the ETUC 
welcomes  the  call  for  evidence  for  further  assessment.  ETUC 
highlighted the importance of ensuring appropriate governance 
and  accountability,  including  the 
involvement  of  trade 
unions. The importance of ensuring migrant workers’ access 
to  decent  and  good  quality  jobs  based  on  the  principle  of 
equal  treatment  was  mentioned.  The  Talent  Pool  may 
support  the  implementation  of  the  Talent  Partnerships. 
However,  it  needs  to  be  carefully  designed.  In  addition,  the 
in  ensuring 
Talent  Pool  could  play  a 
transparency  and  access  to  information  to  employers  and 
third  country  nationals.  Appropriate  support  and  measures  to 
avoid the risk of unfair recruitment should be in place. The 
Talent Pool should consider the validation and recognition of 
skills  and  qualifications,  which  is  a  practical  barrier  that 
migrant workers experience. Workers’ skills and qualifications 
should  be  valued,  assessed  and  swiftly  recognised,  as 
necessary,  whether  or  not  documentation  is  available.  The 
ETUC is on the view that the Talent Pool should be open to all 
workers,  across  sectors  and  skills  levels,  and  in  a  non-
discriminatory manner. Data protection considerations should 
be taken into consideration.  

relevant 

role 

HIAS Europe supports the establishment of an EU Talent Pool 
as  a  constructive  approach  to  collaborating  with  partner 
countries  on  migration  management.  It  is  essential  that  the 
Talent  Pool  initiative  provides  effective  legal  migration 
pathways 
via 
complementary  labour  pathways.  The  initiative  should  also 
encompass  information  dissemination  and  outreach  to  refugee 
and asylum seeking communities, efforts to  develop  their soft 
and technical  skills,  and suitable preparation  for the interview 

refugees 

seekers 

asylum 

and 

for 

92 

 
 
PICUM (Platform for 
International Cooperation 
on Undocumented 
Migrants) 

NSPA  (Northern  Sparsely 
Populated Areas) 

Municipality of Luleå 

Unión Profesional 

Eurocities 

and  recruitment  process.  On  the  EU  side,  employers  must  be 
well-informed  about  existing  complementary  pathways.  The 
initiative  could  improve  recognition  of  qualifications  in  the 
Member States. The Talent Pool initiative should be a tool for 
mutually beneficial cooperation with partner countries.  

The  stakeholder  supports  the  establishment  of  an  EU  Talent 
Pool, underlining that regardless of the chosen policy approach 
for  its  implementation,  it  is  crucial  for  the  Talent  Pool  to 
minimise  administrative  burden  for  prospective  workers, 
foster ethical recruitment practices, and involve a wide array of 
stakeholders,  including  civil  society  organisations,  in  its 
formulation. The Talent Pool should become a reliable and up 
to  date  source  access  to  information  for  migrant  workers.  It 
should not  only  promote ethical recruitment  but  also  ensure 
access  to  decent  and  dignified  working  conditions.  The 
initiative should be open to all candidates, across sectors and 
skills  levels,  and  in  a  non-discriminatory  manner.  Protection 
of personal data should be ensured.  

The organisation supports the adoption of the EU Talent Pool; 
however, it recommends that the initiative is open to unskilled 
jobs  as  well,  recognising  the  necessity  for  a  comprehensive 
workforce solution. Additionally, it emphasises the importance 
of  respecting  the  specificities  of  each  EU  Member  State, 
aligning  with  other  EU 
and  minimising 
administrative  complexities.  The  aim  is  to  ensure  that  the 
process  of  connecting  TCNs  with  vacancies  in  EU  Member 
States remains as transparent as possible. 

initiatives, 

The Municipality supports the creation of the EU Talent Pool, 
as it holds the potential to address the prevalent skills shortage 
in  the  Nordic  regions.  The  Municipality  also  emphasises  the 
urgency  of  finding  a  solution  and  underscores  the  importance 
of  making  the  Talent  Pool  accessible  to  various  skill  levels. 
Additionally,  it  highlights  the  significance  of  integrating  the 
expertise  and  initiatives  of  European  local  and  regional 
authorities into the execution of the Talent Pool.  

The organisation supports the establishment of the EU Talent 
Pool;  however,  it  underlines  the  need  for  active  engagement 
with  professional  organisations  and  the  establishment  of 
effective  procedures  for  recognition  of  qualifications  of 
TCNs.  

The  organisation  supports  the  creation  of  an  EU  Talent  Pool 
aimed  at  establishing  a  digital  platform  connecting  proficient 
TCNs with EU employers. They advocate for the participation 
of  cities  and  emphasise  the  importance  of  aligning  the  Talent 
Pool with local labour market needs. Cities therefore need to 
be involved as key stakeholders in the implementation of the 
EU  Talent  Pool.  Lastly,  the  initiative  should  be  open  to  all 

93 

 
 
Hotrec 

Fundación para la 
Innovación, Investigación, 
Formación y el Desarrollo 
Comunitario 

The Swedish Trade Union 
Confederation 

WKÖ  (Austrian  Chamber 
of Commerce) 

skills levels. 

The association supports the adoption of the EU Talent Pool, 
particularly  through  the  legislative  options.  In  particular,  it 
supports the voluntary nature of the system They also call for 
inclusion of low and medium-skilled individuals, considering 
diverse needs in sectors like hospitality. The EU Talent Pool 
should  be  user  friendly  and  non-bureaucratic.  It  should  be 
business oriented, as the end users will be both employers and 
potential workers. Hotrec considers positive that the EU Talent 
Pool  would  be  linked  with  Talent  Partnerships.  Hotrec, 
welcomes the development of a new IT solution rather than re-
using  EURES.  The  EU  Talent  Pool  should 
include 
administrative  processes  to  pre-screening  candidates;  the 
validation  of  candidates’  skills  and  qualifications  and 
interoperability with other international recruitment tools and 
national platforms. 

The organisation supports the adoption of the EU Talent Pool, 
however  it  emphasises  the  importance  of  addressing  existing 
challenges and inequalities within the talent pool concept, such 
as  regularisation  of  migrants  already  present  in  the  EU, 
streamlining  title  recognition  processes,  and  fighting  against 
wage gaps and discrimination. 

The confederation supports the establishment of the EU Talent 
Pool, contingent upon labour immigration from third countries 
being  in  response  to  existing  labour  shortages.  Additionally, 
the host Member State should ensure that migrant workers are 
adequately protected in the labour markets against exploitative 
working conditions. The success of the EU Talent Pool hinges 
on  forging  strong  partnerships  with  trade  unions,  verifying 
qualifications,  and  effectively  addressing  labour  shortages,  all 
while  preventing  exploitation,  unauthorised  labour  migration, 
and  minimizing  negative  impacts  on  sending  countries  due  to 
brain drain. 

WKÖ  (Austrian  Chamber  of  Commerce)  supports  the  EU 
Talent  Pool,  as  it  is  urgently  needed  to  address  increasing 
labour  shortages  in  Austria  and  Europe,  promoting  a  robust 
European  workforce  and  attracting  international  specialists. 
WKÖ  envisions  the  Talent  Pool  as  a  seamless  platform 
connecting  employers, 
jobseekers,  and  public  entities, 
streamlining  access  to  skilled  workers.  Restricting  the  EU 
Talent  Pool  to  shortage  occupations  should  only  be  limited 
to  the  initial  phase  while  remaining  open  in  a  later  stage. 
WKO  supports  the  non-legislative  option  as  the  legislative 
alternatives would take too long. WKO is in favour of ensuring 
a  link  with  Talent  Partnerships  as  well  as  facilitations  of 
recognition of skills and qualifications. . 

94 

 
 
Autonomous Region of 
Friuli Venezia Giulia  

Government of Canary 
Islands 

EU citizen 

EU citizen  

EU citizen 

EU citizen 

EU citizen 

The  Region  supports  the  development  of  an  EU  Talent  Pool, 
favouring  the  option  of  a  targeted  approach  having  a 
voluntary  nature.  This  mechanism  is  seen  as  supportive, 
integrating established practices such as the EURES network to 
address  shortages  at  national,  regional,  and  specific  interest 
levels.  It  enhances  coordination  among  regional  and  local 
authorities.  The  stakeholder  believes  this  regulated  but  non-
mandatory  mechanism  offers  a  coordinated  approach  to 
effectively  address  shortages,  improve  job  placement,  and 
enhance  replicability  and  sustainability.  The  stakeholders 
favour links with the Talent Partnerships.  

This  stakeholder  emphasizes  the  need  to  consider  regional 
contexts in the development of an EU Talent Pool, and tailor its 
implementation  accordingly.  While  the  Talent  Pool  offers 
strategic benefits, it must align with each area's specific socio-
economic  and  cultural  factors.  The  focus  should  be  on 
sectors  like  green  and  digital  transition,  while  ensuring 
transparent 
opportunities 
monitoring. Incorporating successful models, clear definitions, 
and  assessing  local  workforce  potential  are  vital  for  its 
effectiveness. 

local  population  and 

the 

for 

This EU citizen supports the EU Talent Pool, which facilitates 
the  search  and  recruitment  of  skilled  workers  from  non-EEA 
countries.  The  individual  emphasises  the  significance  of 
addressing the shortage of skilled workers across EU Member 
States through a centralised pool, making the process of finding 
workers  more  efficient  and  less  bureaucratic.  The  EU  citizen 
finds  the  Talent  Pool  valuable  for  quickly  and  seamlessly 
sourcing skilled workers. 

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool, asserting that it would potentially lead to attracting cheap 
labour  to  the  EU,  resulting  in  low  wages  and  potentially 
contributing to wage dumping 

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool,  as  she  believes  that  there  are  sufficient  skilled  workers 
within  the  EU  who  could  be  relocated  to  regions  where  their 
skills are most needed.  

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool.  

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool because they believe that the EU already has a sufficient 
number  of  educated  individuals  for  the  available  jobs,  and 
these opportunities should be prioritised for EU citizens. They 
express  concerns  about  administrative  costs,  potential 
exploitation  of  non-EU  workers,  and  the  need  to  uphold  EU 
principles of equality for all residents. The citizen suggests that 
the initiative should focus on improving the quality of life for 

95 

 
 
EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU citizen 

EU  citizens  and  consider  labour  and  talent  imports  only  as  a 
last resort when qualified EU candidates cannot be found. They 
also propose the idea of introducing quotas for labour imports 
and promoting training programs for EU citizens to fill deficit 
jobs. 

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool, holding that as long as the rate of unemployed people in 
Europe  does  not  reach  0%,  there  will  be  no  valid  reasons  to 
bring workers from abroad. 

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  hold  that  each  EU  Member  State  has  different 
needs and may find tailored solutions for their own country.  

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  believe  that  there  are  already  sufficient  skilled 
individuals within the EU. 

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  believe  that  third  countries  should  not  benefit 
from solutions provided by the EU.  

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool.  

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool. 

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool. 

This  EU citizen is  not in favour  of developing  an EU Talent 
Pool,  as  they  believe  that  national  governments  should  be 
addressing labour shortages by themselves without intervention 
from the EU.  

This  EU  citizen  is  concerned  that  an  EU  Talent  Pool  could 
potentially  lead  to  the  erosion  of  EU  borders  with  third 
countries. 

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  believe  that  there  are  already  sufficient  skilled 
individuals within the EU. 

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  deem  that  it  would  overburden  Member  States 
and increase costs.  

This  EU  citizen  does  not  support  the  adoption  of  an  EU 
Talent  Pool,  as  they  hold  that  efforts  should  be  concentrated 
first and foremost on satisfying the basic needs of the nationals 
from EU Member States.  

EU citizen 

This  EU  citizen  does  not  support  the  adoption  of  an  EU 

96 

 
 
EU citizen 

Eu citizen 

EU citizen 

Talent Pool as they do not support any form of immigration.  

This  EU  citizen  does  not  support  the  adoption  of  an  EU 
Talent Pool as they believe that the skill assessment is biased.  

This EU citizen is in favour of an EU Talent Pool to the extent 
that immigration laws are fully complied with.  

This  EU  citizen  is  not  in  favour  of  adopting  an  EU  Talent 
Pool,  as  they  believe  that  there  are  already  sufficient  skilled 
individuals within the EU. 

3.2. Outcome of the targeted consultations 

European Qualifications Framework Advisory Group  

During  this  meeting,  the  Commission  put  forward  the  EU  Talent  Pool  to  Member  States 
representatives.  The  discussion  covered  a  range  of  topics  from  difficulties  in  ensuring 
labour  matching,  the  barriers  for  EU  employers  in  identifying  the  right  candidates,  to 
information  on  skills  and 
lack  of  transparency  and 
complex  comparability  and 
qualifications.  Participants  acknowledged  the  value  of  creating  an  EU  Talent  Pool  to 
facilitate  international  recruitment,  particularly  for  SMEs  lacking  the  means  to  attract 
skilled. 

Group of Coordinators on Recognition of Qualifications 

During this meeting, Member States representatives provided their views on the EU Talent 
Pool initiative, in particular with regard to the initiative potential in facilitating recognition 
of qualifications obtained in third countries. SE, RO noted the lack of legislation on third 
country  qualifications  in  some  countries  as  a  particular  barrier.  SE,  RO  highlighted  the 
important  role  of  ENIC-NARIC  in  providing  information  on  recognition  and  assisting 
competent authorities. SE also asked how the future platform would be managed and what 
would  be  expected  from  Member  States.  RO  mentioned  that  the  EQF  and  ECTS  credit 
systems can play a potential role in enabling recognition. CY described that the pilot Talent 
Pool had led to a number of placements, but that further consultation would be necessary to 
extend it further. LT asked for clarification on how DG GROW would be involved in the 
initiative,  asked  how  SMEs  would  be  supported  and  questioned  if  the  proposal  can  be 
agreed within the current political cycle before elections next year. COM assured attendees 
of a co-ordinated approach by all relevant DGs in the initiative. Management of the Talent 
Pool is still under consideration and may be modelled on governance of EURES and will 
avoid creating additional burdens for Member States. 

Advisers for European Public Employment Services (AFEPAs) 

In the context of the AFEPAs meeting, Public Employment Services in the Member States 
were  also  invited  to  share  their  views  on  the  EU  Talent  Pool  initiative.  The  intervening 
representatives  welcomed  the  initiative  overall  as  an  important  tool  to  address  existing 
labour  shortages  (e.g.  DE,  HR,  NL,  ES).  According  to  certain  PES,  the  EU  Talent  Pool 
should  be  limited  to  specific  sectors  and  occupations  (e.g.  NL).  The  majority  of  the 
participants stressed the importance of involving PES in the governance of the EU Talent 

97 

 
 
 
 
Pool  giving their well-established expertise on  recruitment,  in  particular  on the matching. 
On the other hand, PES also flagged that EURES is a different tool and directed to intra-EU 
mobility.  However,  the  potential  added  value  of  ensuring  synergies  among  the  two 
instruments  and,  if  feasible  merge  them,  was  acknowledged.  The  need  of  trying  first  to 
address  labour  shortages  via  domestic  workforce  was  also  mentioned  (PL).  The  role  of 
recognition of qualifications to obtain work permits in certain Member States was stressed. 
PES  could  also  play  a  role  in  that  regard  (SE).  Following  the  meeting,  several  Public 
Employment  Services  provided  additional  details  on  their  views  through  written 
contributions.  

EMN Talent Pool Working Group    

As part of the targeted consultations envisaged for the preparation of the EU Talent Pool 
legislative  proposal,  the  7th  EMN  Talent  Pool  Group  meeting  was  held  on  21  March 
2023. The group brings together Member States’ representatives from the immigration 
and employment authorities as well as economic and social partners.  

The roundtable focused on number of key aspects for the design of the EU Talent Pool 
(scope of application, pre-screening and validation process, components and functionalities, 
and governance structure). Participants actively engaged in the discussion and the meeting 
represented  a  fruitful  opportunity  to  collect  Member  States’  views  on  the  ongoing 
initiative. 

Overall, Member States and economic and social partners welcomed the proposal and 
its objective to attract talent from abroad.  

All  Member  States  intervening  agreed  on  the  EU  Talent  Pool  potential  added  value  in 
addressing the main challenges linked to  international  recruitment  (e.g. language barriers, 
lack  of  guidance  and  information,  lengthy  and  complicated  procedures,  etc.).  Member 
States  identified  as  major  challenges  linked  to  international  recruitment  the  language 
barriers,  lack  of  guidance  and  information  provision  on  recruitment  and  immigration 
procedures,  lengthy  and  complicated  procedures,  employers’  lack  of  experience  in 
international  recruitment,  the  risk  of  unethical  recruitment  as  well  as  difficulties  in 
identifying the right candidate and validating and recognising skills and qualifications. 
For  smaller  Member  States  it  was  highlighted,  in  particular,  their  limited  visibility  in  the 
global labour market and the lack of resources to invest on international recruitment (LT). 
All  Member  States  intervening  agreed  on  the  EU  Talent  Pool  potential  added  value  in 
addressing these challenges.   

The  establishment  of  an  EU  Talent  Pool  based  on  the  voluntary  participation  of  the 
Member States was considered as the preferred option for all participants intervening.  

Several  Member  States  highlighted  the  need  of  developing  a  flexible  instrument  able  to 
adapt to the national specificities with regard to international recruitment and immigration 
procedures  (AT,  BE,  EL,  HR,  IT).  This  flexibility  should  also  be  reflected  in  the 
governance structure. The need to involve the Public Employment Services at national 
level  was  repeatedly  stressed  (AT,  BE,  HR,  SE).  The  importance  of  ensuring 
interoperability with national systems was reiterated by several participants. 

All  Member  States  intervening  supported  the  idea  of  targeting  the  EU  Talent  Pool  to 
specific  sectors  and  occupations  and  building  on  existing  EURES  components.  The 
possibility to link the EU Talent Pool with  Talent Partnerships was also supported. The 
possibility  to  further  extend  the  scope  of  application  in  a  later  stage  was  also  mentioned 

98 

 
 
 
(EL,  HR,  PL).  Some  participants  stressed  the  particular  relevance  of  the  EU  Talent  Pool 
would have in facilitating recruitment of low and medium skilled workers (in comparison 
with  high  skilled  workers  that  are  normally  recruited  by  other  channels  (AT,  HR). 
Similarly,  the  specific  added  value  for  SMEs  which  often  lack  of  adequate  expertise  and 
channels for international recruitment was also mentioned (BE, Eurochambres). 

It  was  widely  agreed  that  the  validation  process  of  candidates’  skills  and  qualifications 
would constitute an important added value for the EU Talent Pool.  

The possibility to link the EU Talent Pool with Talent Partnerships was welcomed (FI, 
PL). However, it was clarified that the EU Talent Pool scope of application should not be 
limited to Talent Partnerships. 

Economic and social partners also  welcomed the initiative  and the Commission multi-
stakeholders’  approach.  It  was  pointed  out  the  importance  of  involving  them  both  in  the 
design and in the governance of the EU Talent Pool due to their expertise at national level 
on  labour  shortages  and  existing  recruitment  practices.  The  need  of  ensuring  ethical 
recruitment  was  stressed  by  ETUC  and  FI  agreed  it  would  represent  a  relevant  added 
value for the EU Talent Pool (FI). 

Resettlement Network  

During  the  Resettlement  Network  meeting  with  the  European  Union  Agency  for  Asylum 
(EUAA),  the  EU  Talent  Pool  initiative  was  presented.  The  consultations  focused  in 
particular  on  its  possible  synergies  with 
labour  complementary  pathways.  All 
participants  welcomed  the  possibility  to  open  the  EU  Talent  Pool  to  displaced  people  in 
need of international protection and having the right skills.  

Talent  Beyond  Boundaries  noted  that  the  limited  awareness  that  employers  have  about 
international  recruitment  as  an  option  for  people  in  need  of  international  protection 
constitute  a  barrier  together  with  the  mistrust  that  refugees  have  on  labour  mobility. 
Processing  times  and  difficulties  refugees  might  face  in  accessing  the  request  documents 
create additional difficulties. Therefore, it was recommended to invest into awareness and 
education  and  incentives  for  employers  and  refugees  to  consider  labour  complementary 
pathways.  It  was  also  suggested  to  ensure  stronger  cooperation  with  businesses.  The  EU 
Talent Pool could offer an added value in this regard by facilitating the identification and 
providing  personalised  assistance  to  people  in  need  of  international  protection  by  taking 
into account their specific situation.   

UNHCR  emphasised  that,  while  an  initiative  like  the  EU  Talent  Pool  holds  promise,  its 
success  hinges  on  its  ability  to  address  the  unique  challenges  faced  by  refugees.  It  was 
flagged  that  several  refugees  may  need  pre-departure  preparation.  Refugees  often  lack 
access  to  vital  documentation  and  encounter  obstacles  when  verifying  language  skills, 
especially  within  a  platform  tailored  to  Western  standards.  To  truly  be  effective,  the 
UNHCR advised that the EU Talent Pool should not rely solely on conventional proof of 
qualifications,  as  alternatives  like  the  European  Refugee  Qualification  passports  or 
Duolingo  English  tests  could  be  more  inclusive.  Additionally,  in  view  of  the  financial 
realities that refugees face, including difficulties in opening bank accounts and meeting visa 
requirements due to limited funds, should be factored into the initiative's design. Seamless 
integration with existing systems, where feasible, were deemed to be essential to provide a 
holistic  solution.  Furthermore,  the  UNHCR  suggested  that  the  EU  Talent  Pool  should  be 
forward-thinking  and  consider  remote  working  opportunities,  ensuring  that  necessary 

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resources  and  conditions  are  in  place  for  these  arrangements  to  truly  benefit  refugees 
seeking employment integration.  

IOM noted that the EU Talent Pool added value could stem from having a central pool with 
several  layers  of  quality  assurance  and  validation  of  employers  and  candidates  with  the 
benefit  of 
the  matching.  Capacity  building  options  would  be 
necessary. Additional information is provided in the written contribution.  

facilitating 

Meeting with SkillLab 

During  the  meeting  with  the  software  company  SkillLab,  the  European  Commission, 
together with the study team, discussed the EU Talent Pool initiative. SkillLab, established 
in  2018,  is  a  technology-driven  company  focusing  on  aiding  marginalised  job  seekers, 
using  artificial  intelligence  and  simulation  for  interviews.  They  acknowledged  market 
challenges  including  skills  mapping,  recognition  difficulties,  lack  of  labour  market 
information,  and  coordination  issues  among  stakeholders.  The  meeting  addressed  key 
discussion  points,  such  as  the  development  of  an  IT  platform  for  the  EU  Talent  Pool, 
utilising the ESCO taxonomy for skill matching, and collaborating with existing platforms 
like EURES. The pricing model and stakeholders' involvement in system design were also 
discussed. SkillLab's  involvement in  a comprehensive career guidance platform for Saudi 
Arabia was mentioned, which may be similar to the development of a platform for the EU 
Talent Pool.  

Focus group with the European Training Foundation (ETF), Cedefop, and European 
Labour Authority (ELA) 

During  this  focus  group,  range  of  stakeholders  shared  their  insights  on  the  potential 
establishment of an EU Talent Pool. The ELA acknowledged current inadequacies of intra-
EU  mobility  in  fully  addressing  labour  shortages  and  underscored  the  importance  of 
defining "talents." They raised concerns about variations in immigration procedures across 
countries  and  emphasized  the  value  of  the  EURES  network  in  this  context.  The  ETF 
expressed  favourable  views  on  the  Talent  Pool  concept  while  also  suggesting  a 
consideration of how existing solutions could complement it. They highlighted brain drain 
and brain waste as crucial aspects to be factored in.  Cedefop also showed support for the 
Talent  Pool  initiative,  focusing  on  the  inclusion  of  third-country  nationals  in  need  of 
protection.  They  stressed  the  significance  of  going  beyond  mere  platform  creation  and 
incorporating  dynamic  training,  language  support,  and  skill  recognition.  They  also  noted 
that  formal  qualification  recognition  might  not  be  as  critical  as  trust-building  and  pre-
screening/validation processes. The European Commission offered insights into studies on 
international  recruitment  challenges  and  addressed  the  scope  of  the  initiative,  matching 
platform functionalities, and governance aspects. Trust and user-friendliness were central in 
their  considerations.  The  ETF  and  Cedefop  stressed  transparent  communication  as  a  key 
element  in  overcoming  barriers  in  international  recruitment.  Both  also  highlighted  the 
importance  of  involving  diverse  stakeholders  in  designing  the  system,  emphasizing  a 
collaborative  approach.  Overall,  the  discussions  revolved  around  ensuring  effectiveness, 
inclusivity,  and  user-centricity  in  the  development  of  the  EU  Talent  Pool.  Written 
contributions were also shared following the meeting. 

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Expert Group on the Views of Migrants  

Following the presentation of the initiative, participants expressed their views. Overall, the 
participants  welcomed  the  EU  Talent  Pool  initiative  and  its  potential  added  value  in 
facilitating international  recruitment  and making use of third country nationals’ skills  and 
talent. However, it was also emphasised the need of ensuring access and integration into 
the labour marked of third country nationals already residing in the Member States (e.g. 
undocumented migrants). This should also cover actions aimed at facilitating recognition 
and validation of skills and qualifications as well as up-skilling and re-skilling migrants 
in the Member States. With regard to the EU Talent Pool added value, participants stressed, 
in  particular,  the  crucial  role  this  tool  could  play  on  enhancing  migrants’  protection 
against  unethical  recruitment  and  exploitative  working  conditions  as  well  as  the 
recognition  and  validation  of  skills  obtained  in  third  countries.  Several  participants 
highlighted the importance of allowing third country nationals who participated in the EU 
Talent  Pool  to  bring  their  family  members  and  ensuring  adequate  support  following  the 
arrival  including  via  access  to  education,  social  benefits,  health  care.  The  possibility  to 
open the EU Talent Pool to displaced people in need of international protection was also 
welcomed. However, it was stressed the need to ensure adequate support measures tailored 
to  the  specific  needs  of  this  group  (e.g.  specific  support  in  case  they  lack  of  travel 
documents  and  qualifications,  facilitating  the  access  to  the  platform,  etc.).  Specific 
measures should also be considered for migrants’ women given their specific situation of 
vulnerability.  It  was  also  noted  that  to  make  the  EU  Talent  Pool  a  successful  tool  an 
extensive  awareness  campaign  should  be  conducted  both  in  the  Member  States  (for  EU 
employers) and in third countries. In addition, support services allowing effective access to 
the  platform  should  be  provided  in  third  countries  where  third-country  nationals  face 
difficulties in accessing the internet. 

Consultations with the European Labour Authority (ELA) 

ELA welcomed the initiative and considered that EU Talent Pool initiative may effectively 
address  labour  shortages  and  enhance  international  recruitment.  They  recognised  the 
persistent  structural  shortages  across  sectors  and  countries,  acknowledging  that  although 
intra-country and intra-EU mobility could  help, it  might not suffice. ELA emphasised the 
need  for  a  tool  to  attract  skilled  labour  from  third  countries  to  mitigate  labour  market 
imbalances.  ELA  underlined  the  importance  of  practical  and  updated  information  for 
third-country jobseekers regarding living conditions, work, and settling in the EU, as well 
as  the  challenges  faced  by  SMEs  in  navigating  complex  recruitment  processes.  They 
emphasised  the  necessity  of  avoiding  duplication  with  existing  tools  and  promoting 
synergies. ELA showcased readiness to support the identification of relevant sectors and 
qualifications, leveraging existing obligations and data sources. Moreover, they highlighted 
the  role  of  social  partners  and  called  for  interoperability  with  existing  systems  like 
EURES to streamline the EU Talent Pool's implementation.  

ELA was also consulted in writing on more specific aspects relevant for the design of the 
policy options including, estimated costs for governance of the EURES system, information 
on current IT solutions and practical functioning of the EURES platform.  

Expert Group on Economic Migration (EGEM)  

The EGEM meeting discussed the scope of the EU Talent Pool, emphasising inclusivity for 

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various  categories  such  as  highly  skilled,  seasonal  workers,  foreign  students,  jobseekers, 
and displaced persons. Displaced individuals, a significant global talent pool, face limited 
access to formal employment due to barriers. The EU acknowledged their potential through 
projects  like  the  Displaced  Talent  for  Europe  (DT4E),  aiming  to  integrate  them  into  the 
labour  market.  In  terms  of  implementing  an  EU  Talent  Pool,  skills  recognition  was 
highlighted,  with  a  recommendation  to  adopt  a  flexible  approach  that  acknowledges  non-
formal paths. Additionally, a proposal was made to develop an EU Sector Shortage List to 
address evolving skills needs, allowing skilled workers from various occupations to register 
their interest. A user-friendly registration process, light-touch verification, and a network of 
contact points were suggested to provide better integration support within the context of the 
EU Talent Pool. The focus extended beyond attracting and migrating talent to also retaining 
and  integrating  it.  The  recommendation  was  to  build  upon  existing  tools  and  develop  an 
open EU Talent Pool.  

Fragomen  and  Talent  Beyond  Boundaries  supported  the  EU  Talent  Pool  development.  It 
should  be  employer-led  with  inclusive  parameters  designed  to  attract  diverse  talent  from 
around  the  world,  including  from  within  refugee  and  displaced  communities.  It  was 
recommended to establish an inclusive candidate pool, create an “EU Sector Shortage List” 
which  is  business  and  employer-led.  In  addition,  a  light  touch  verification  process  for 
candidates  and  employers  should  be  considered.  A  network  of  contact  points  supporting 
candidates and employers should be established together with efficient outreach strategies 
to  promote  the  EU  Talent  Pool.  It  was  also  recommended  to  build  on  existing  EU  and 
national  tools  to  engage  as  many  State  actors  as  possible,  regardless  of  the  legislative 
vehicle. 

IOM Private Sector Consultation on the EU Talent Pool 

During  the  IOM  Private  Sector  consultation  on  the  EU  Talent  Pool,  a  variety  of 
stakeholders  shared  their  perspectives.  Eurochambers  presented  survey  results  on 
recruitment challenges and advocated for integration with EUTP, emphasising the need for 
user-friendly  tools,  interoperability  with  EURES,  and  additional  screening  for  employers. 
Link2Europe discussed labour shortages and the difficulty of filling vacancies in Belgium, 
underscoring  the  necessity  of  a  broad  scope,  simplified  procedures,  expedited  language 
learning,  and  the  creation  of  a  European  list  of  potential  jobs.  BusinessEurope  stressed 
administrative  barriers  and  shortages  across  sectors,  proposing  pre-screening  based  on 
skills,  interoperability  with  existing  platforms,  and  collaboration  with  talent  partnerships. 
CSREurope  underscored  the  significance  of  cultural  diversity,  inclusion,  and  ethical 
recruitment  for  attractiveness  and  fairness.  Additionally,  Responsible  Business  Alliance 
offered  insights  into  existing  standards  and  capacity-building  efforts  to  protect  third-
country  nationals.  International  Organisation  of  Employers  highlighted  cooperation  with 
ILO and IOM on fair recruitment practices.  

Meeting with the International Labour Organisation (ILO) 

During  the  meeting  with  ILO  on  the  possible  adoption  of  an  EU  Talent  Pool,  the 
organisation  emphasised  the  existence  of  research  on  labour  shortages  and  underlying 
causes, referring to ILO studies and demographic trends. The concept of fair recruitment 
based  on  ILO  conventions  was  highlighted,  advocating  for  the  term  "fair"  due  to  its 
negotiated nature. Examples from Canada's employer registration processes were provided 
as  operational  insights.  ILO  expressed  the  importance  of  transparency,  equivalence 
statements, and validation of skills and qualifications in the context of the EU Talent Pool, 

102 

 
 
 
while  clarifying  that  it  is  not  a  qualifications  recognition  mechanism.  The  potential  for  a 
database  of  matched  people  with  recognition  decisions  was  raised.  The  significance  of 
partnerships, initiatives, and mobility partnerships for specific sectors and origin countries 
was  underlined.  The  challenges  posed  by  governance,  the  care  economy,  and  regulated 
professions were mentioned. 

The  ILO  was  also  invited  to  submit  a  written  contribution  further  expressing  the 
organisations’ views on many aspects  of the EU Talent Pool.  The ILO acknowledged the 
potential  value  of  the  EU  Talent  Pool  initiative  in  addressing  labour  shortages  and 
facilitating international recruitment. In particular, ILO stressed that greening economies 
require  new  jobs  and  related  new  skills.  However,  it  emphasised  that  successful 
implementation depended on collaborative efforts with key stakeholders and adaptation 
to  specific  socio-economic  contexts.  The  involvement  of  labour  ministries,  government 
agencies,  workers'  and  employers'  organisations  were  deemed  crucial  for  effective  labour 
migration policy design.  Several  successful programs  were mentioned as a source of best 
practices  in  terms  of  up-skilling,  language  training,  and  strategic  skills  recognition.  ILO 
recommended  to  build  protection  against  unfair  recruitment  on  International  Labour 
Standards  and  ILO  General  Principles  and  Operational  Guidelines  for  Fair  Recruitment.  
Regarding openness to TCNs, the ILO underscored the need for a balanced approach across 
skill levels, cautioning against excessive emphasis on temporariness. The ILO also pointed 
out that inadequate skills matching could lead to precarious work arrangements and hinder 
overall economic growth. ILO acknowledged the importance of promoting  trade unions’ 
effective  participation  in  policy  discussions  and  monitoring  of  recruitment  processes  as 
well as in labour migration governance 

NARICs Network Meeting  

The meeting of the NARIC network, which comprises countries participating in Erasmus+, 
involved 31 participants. For the development of an EU Talent Pool, it was highlighted that 
the  role  of  pre-screening  at  the  EU  level,  while  contingent  on  employer  verification, 
remains to be determined for added value. It was highlighted that challenges often arise in 
recognising  non-formal  education,  unlike  formal  education  with  established  frameworks. 
Participants  also  stressed  that  regulated  professions  demand  more  robust  recognition 
mechanisms, as seen with mandatory recognition in these cases. Additionally, recognition 
serves  purposes  beyond  job  placement,  such  as  legal  stay  (e.g.,  Norway's  regulated 
professions).  For  an  EU  Talent  Pool  to  work  effectively,  starting  with  a  small-scale 
approach for easier management was suggested for initial implementation. 

EU Legal Migration Practitioners’ Network 

 During  the  meeting,  participants  identify  as  a  relevant  challenge  to  international 
recruitment  the length  of immigration procedures  and the high costs on employers and 
TCNs for obtaining a visa and travel arrangements. In addition, it was notated that labour 
market  tests  are  present  in  some  Member  States  but  there  are  also  some  exceptions 
applying.    It  was  noted  that  recruitment  agencies  are  increasing  their  role  in  this 
framework. Recognition  of  qualifications  was  also  flagged  as  an  important  barrier  to 
international recruitment.  

The need of ensuring  adequate protection to  TCNs to  avoid  the risk of exploitation  and 
human  trafficking  was  raises.  A  right  balance  between  guarantees  and  facilitation  for 

103 

 
 
 
 
employers  should  be  ensured.    Participants  welcomed  the  creation  of  potential  synergies 
with Talent Partnerships.  

Strategic Dialogue with Civil Society Organisations 

During the meeting Civil Society Organisations expressed their views on the initiative and 
highlighted  in  particular  the  following  points.  A  broad  range  of  stakeholders,  including 
civil society organisations should be consulted in the design of the initiative. It is important 
to provide the correct information to the migrant workers, they should be made aware of 
their  rights  such  as  social  security  and  protection.  Particular  attention  should  be  paid  in 
defining  the  critical  shortages  sectors  and  all  labour  market  needs,  including  those  at 
local  level  should  be  considered.  The  long-term  care  sector  could  be  one  of  the  priority 
sectors. It is important to take into account the current workforce and if the shortages can be 
covered by national and intra-EU mobility. The EU Talent Pool should be open to all third 
country nationals and flexible in defining the admission criteria. It should also provide an 
inclusive approach to consider candidates with disabilities. Assistance services to support 
third  country  nationals  should  be  included  and  particular  focus  should  be  ensured  on  the 
standards in terms of working conditions also to deter undeclared work. It is important to 
clearly  identify  who  will  be  allowed  to  input  the  vacancies  and  the  role  of  the  national 
authorities.  Civil  society  organisations  could  participate  at  EU  and  national  level 
notably  to  provide  information  to  migrants  on  working  conditions  and  rights,  as  well  as 
assistance,  if  needed.  They  could  also  assist  in  defining  procedures  to  ensure  ethical 
recruitment  practices.  Recruitment  via  the  EU  Talent  Pool  should  be  linked  to  improved 
and simplified immigration procedures. 

European Labour Migration Platform Meeting 

On  21-22  June,  the  European  Commission  held  the  second  meeting  of  the  Labour 
Migration  Platform,  an  initiative  of  the  Skills  and  Talent  package  aimed  at  better 
understanding  common  issues  and  strengthening  coordination/complementarity  in 
employment  and  migration  policies. This  second  meeting  of  the  Platform  focused on  the 
upcoming  EU  Talent  Pool  initiative  (adoption  planned  for  early  autumn)  and  gathered 
representatives of Member States’ migration and employment sectors representatives, 
European  Social  and  Economic  Partners  as  well  as  relevant  stakeholders  active  in 
labour migration.   

Member States expressed interest in the initiative and recognised its added value.  

The  meeting  confirmed  Member  State’  unanimous  preference  for  a  voluntary 
participation to the EU Talent Pool and overall support for the EU Talent Pool focused on 
sectors  facing  labour  shortages  both  at  EU  and  national  levels  (with  a  few  Member 
States referring also to regional shortages) and re-using elements of EURES. 

The need for a flexible, responsive, and user-friendly system was highlighted. To do so, 
the EU Talent Pool should ensure interoperability with already existing IT solutions for 
talent attractiveness at national level. 

Governance of the EU Talent Pool should be multi-layered, involving stakeholders at the 
EU and national level. 

Member  States  were  against  the  idea  of  modifying  their  national  procedures  by 

104 

 
 
 
 
introducing obligatory fast-track immigration procedures to candidates admitted to the 
EU Talent Pool.  

Some  Member  States  acknowledged  the  added-value  of  creating  synergies  between  the 
Talent  Partnerships  and  the  EU  Talent  Pool  but  questions  were  raised  about  different 
objectives  between  the  Talent  Pool  and  Talent  Partnerships  and  whether  it  was  yet 
sufficiently clear how the Talent Partnerships will work. 

The  issue  of  complementary  pathways  and  potential  synergies  with  the  EU  Talent  Pool 
was relatively  new  for  the  majority  of  Member  States.  Only  five  Member  States  took  the 
floor and presented different  views and the expressed views do not  allow us  to  draw  any 
conclusions. The Commission needs to  continue its advocacy to  different  stakeholders on 
the issue of complementary pathways. 

ETUC expressed constructive criticism of the EU Talent Pool and interests of migrant 
workers.  It  also  stressed  the  importance  of  human  rights-based  labour  mobility  and 
opposed  restrictions  based  on  skills  or  sectors.  ETUC  advocated  for  governance, 
accountability,  and  sectorial  social  dialogue.  The  EU  Talent  Pool  should  focus on  fair 
recruitment practices, sustainable employment conditions, validation of qualifications, 
and access to information and worker protections.  

BusinessEurope considered attracting talent from abroad as crucial, with the EU Talent 
Pool  playing  a  key  role,  but  there  are  some  challenges  that  employers  face  that  this 
initiative will not be able to address. As such it supports a legislative framework for the 
Talent  Pool.  It  could  support  for  starting  with  specific  sectors  and  having  easy  entry 
criteria as well as a support system for employers and job seekers. Business Europe calls 
also for the flexibility, the use of available labour market intelligence, involvement of 
employers,  trade  unions,  and  dedicated  sub-groups  within  the  Labour  Migration 
Platform for effective governance.  

Dedicated hearing social partners 

Participants acknowledged the added value of the initiative and welcomed the fact that it is 
open  to  all  Member  States  on  a  voluntary  basis  (e.g.  BusinessEurope,  SMEunited,  SGI 
Europe, BDA).  It  also  stressed the importance of developing a  user friendly  and simple 
system which is not too cumbersome (e.g. BusinessEurope, SGI Europe). They supported 
the  sectoral  approach  focusing  on  sectors  where  shortages  are  most  important  (e.g. 
BusinessEurope, SGI Europe, EFBWW). Cross-industry, sectoral and national level social 
partners should be involved. Participants (e.g. ETUC, DGB, EPSU) advocated for ensuring 
that  adequate  working conditions  and  remuneration  are  granted  to  migrants.  Protection 
of personal data should also be ensured. The importance of ensuring access to the labour 
market  to  third  country  nationals  already  in  the  Member  States  was  also  mentioned  (e.g. 
CGT). 

European Union Agency for Fundamental Rights (FRA)  

In  its  written  contribution,  the  FRA  expressed  support  for  the  EU  Talent  Pool  as  a 
valuable  initiative  aimed  at  addressing  labour  shortages  and  facilitating  international 
recruitment. The EU Talent Pool added value would be to decrease irregular migration and 
smuggling by introducing new legal pathways for migrating to the EU; improved working 
conditions  for  third-country  nationals;  quicker  and  smoother  recognition  of  qualification 

105 

 
 
 
 
and the possibility to address labour shortages in the EU through legal migration channels.  

A number of recommendations were put forward. The EU Talent Pool should be open to all 
third-country nationals residing outside as well as inside the EU (regardless of their country 
of origin). In FRA’s view, the EU Talent Pool should also cover low and medium-skilled 
workers.  In  addition,  the  need  to  facilitate  recognition  of  professional  qualifications  was 
flagged  and  a  number  of  recommendations  to  improve  it  were  put  forward.  It  was  also 
highlighted that many occupations in shortage are often characterised by low pay and poor 
working  conditions.   It  is  important  to  make these jobs  more attractive by improving pay 
and working conditions.  

In  addition,  particular  attention  should  be  paid  in  preventing  and  addressing  labour 
exploitation  in  the  context  of  international  recruitment  of  third-country  workers.  The  EU 
Talent Pool should be designed so that procedures and requirements to come to the EU to 
work are not overly cumbersome and expensive. The digital interface should be accessible 
and  easy  to  understand  for  third-country  nationals.  It  is  crucial  to  open  the  talent  pool  to 
people in need of international protection.  

Offering a legal pathway through the talent pool would reduce the risk of migrants resorting 
to  smugglers  or  illegal  networks  and  go  on  unseaworthy  and  dangerous  boat  journeys. 
Concerns  have  been  raised  on  the  risk  of  ‘brain  drain’  affecting  countries  of  origin  and 
education  of  applicants  from  non-EU  countries.  FRA  reported  a  number  of  examples  to 
address this risk in the context of the EU Talent Pool.   

From a fundamental rights point of view, FRA suggests integrating specific safeguards in 
the  EU  Talent  Platform,  such  employers  vetting  procedure  and  accurate,  timely  and 
accessible information, during the recruitment process and prior to signing an employment 
contract.  This  would  entail  information  provided  by  a  competent  authority  (national 
authorities,  employment  advisers,  etc.)  on  conditions  for  obtaining  a  work  permit,  labour 
right and existing safeguards against exploitation.  

Given  the  sensitivity  of  the  personal  data  that  will  be  included  in  the  database  and  the 
fundamental  rights  risks  that  may  result  from  storing  such  data  in  an  online  accessible 
database and analysing the data through an algorithm.  

International Organization for Migration (IOM) 

In  its  written  contribution,  the  IOM  expressed  support  for  the  EU  Talent  Pool.  The 
establishment of the EU Talent Pool represents an important step towards the fulfilment of 
the 2030 Sustainable Development Goal. The adoption of the EU Talent Pool provides an 
opportunity  for  the  EU  and  its  Member  States  engaged  in  this  initiative to  strengthen  the 
implementation  of  laws  and  regulations  to  promote  fair  and  ethical  recruitment  in 
compliance with international standards. 

The  EU  Talent  Pool  should  promote  skills-based  migration  that  relies  on  genuine 
partnerships  and  contributes  to  sustainable  development  for  all.  Strong  partnerships  with 
third  countries  are  a  precondition  of  effective  skills-based  migration  schemes.  Such 
partnerships  guarantee  that  both  the  needs  and  advantages  for  all  parties  are  duly 
considered,  making  such  schemes  truly  mutually  beneficial.  This  calls  for  enhanced 
coherence  between  the  internal  and  external  dimensions  of  migration  management  and 
strengthened development cooperation policies. This consideration seems to be at the core 
of the EU Talent Partnerships, to which the EU Talent Pool will connect.  

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The  EU  Talent  Pool  should  be  based  on  multistakeholder  collaboration  and  accurate  and 
forward-looking evidence on present and future skills needs. 

The  EU  Talent  Pool  should  target  all  skill  levels  and  be  open  to  different  categories  of 
applicants. The EU Talent Pool should be widely accessible for employers and prospective 
migrant workers. Extensive investment in communication efforts will be necessary to build 
trust  and  ensure  that  the  platform  is  known  and accessible  to  its  end  users.  Pre-screening 
processes of candidates’ profiles embedded in the EU Talent Pool must be transparent and 
comprehensive to abide by the principle of non-discrimination and equal opportunity.  

The EU Talent Pool should foster ethical recruitment and the protection of migrant workers 
in line with international standards. This requires screening and vetting of vacancies based 
on internationally recognized ethical  recruitment principles  and standards. The EU Talent 
Pool  could  embed  specific  eligibility  criteria  for  employers  and  features  allowing  for  the 
screening and vetting of vacancies based on internationally recognized ethical recruitment 
principles  and  standards,  such  as  those  outlined  in  the  Montreal  Recommendations  on 
Recruitment  and  IOM’s  International  Recruitment  Integrity  System  (IRIS)  Standard. 
Eligibility  criteria  for  the  registration  of  recruiters,  employment  agencies,  employers  and 
employer associations could introduce a multi-layered but streamlined verification process 
including: a) documentation such as licenses13 , b) an "ethical pledge", in the form of terms 
that  outline  a  legally  binding  commitment  to  uphold  ethical  recruitment  and  international 
labour  standards,  consequences  in  case  of  non-compliance  (e.g.  sanctions,  fines)  and  the 
relevant monitoring system; and c) a capacity building component consisting, for example, 
in the completion of mandatory (online) self-training in order to complete registration. 

3.3 Economic and social partners views on the initiative 

Economic  and  social  partners  were  consulted  on  multiple  occasions  during  the  targeted 
consultations  on  the  EU  Talent  Pool.  In  particular,  they  participated  to  several  meetings, 
including  the  EMN  Talent  Pool  Working  Group,  the  Expert  Group  on  Economic  Migration, 
IOM Private Sector Consultation as well as the European Labour Migration Platform.  

In addition, a dedicated hearing with social partners was organised on 29 June 2023.  

Overall,  economic  and  social  partners  supported  the  initiative  as  a  tool  facilitating 
international  recruitment  whilst  some  criticism  was  voiced  by  ETUC.  All  the  economic  and 
social partners favoured the development of a voluntary systems. While the need for a flexible 
tool,  demand  driven  (based  on  actual  labour  need)  and  open  to  all  skills  levels  was 
acknowledged,  the  majority  of  the  economic  and  social  partners  suggested  to  have  a  more 
targeted approach (limiting the tool to certain sectors and occupations) in the first stage with 
the aim of expanding the scope over time.    

All  economic  and  social  partners  advocated  for  their  involvement  in  the  design  of  the 
initiative and in its implementation.  

Economic and social partners acknowledged the EU Talent Pool  potential  to  partially reduce 
existing barriers to international recruitment, including slow and complex recognition and 
immigration  procedures.  In  addition,  the  EU  Talent  Pool  could  have  an  added  value  in 
providing  clear  information  and  guidance  on  these  processes.  The  need  to  ensure  TCNs 
protection  against  unfair  recruitment  and  exploitative  working  conditions  was  stressed 
(ETUC) 

107 

 
 
Position  papers  on  providing  a  detail  assessment  of  the  initiative  were  submitted.  A  detailed 
overview of economic and social partners views is provided in the table below.  

Economic and social partners  

BusinessEurope 

Eurochambers 

SMEUnited 

BusinessEurope considers that the EU Talent Pool should be a 
voluntary  instrument.  It  recommends  to:  i)  bring  forward  a 
proposal  for  an  EU  talent  pool  that  helps  member  states  and 
employers  to  address  their  skills  needs,  complementing  the 
need  to  increase  employment  participation  of  member  state 
nationals  and  make  good  use  of  intra-EU  labour  mobility,  ii) 
build  on  the  relevant  existing  EU  bodies  and  tools,  iii) 
Explore a fresh approach to the role of labour market tests by 
improving  coordination  and  mutual  learning  opportunities 
among member states, iv) put in place the direct referencing of 
third  country  qualifications,  to  the  European  Qualifications 
Framework – EQF.  

The  EU  Talent  Pool  should  be  demand-driven,  ensuring  the 
appropriate involvement of member states, economic and social 
partners, and employers. As a first step, it would be useful to 
focus  on  those  groups  for  whom  the  EU  already  has  a  legal 
migration  scheme  in  place,  such  as  the  EU  Blue  Card. 
Nevertheless,  the ultimate goal  will be to  connect  a future EU 
talent pool with EU and national legal migration schemes. 

The  EU  Talent  Pool  could  be  particularly  beneficial  for 
SMEs  given  their  limited  experience  and  resources  to  embark 
in  international  recruitment  procedures.  With  regard  to  the 
screening process it was confirmed that it would be important 
at  some  point  to  verify  the  candidates.  Eurochambers  also 
stressed  the  importance  to  link  the  EU  Talent  Pool  with 
EURES. In terms of the scope, Eurochambers agrees  with the 
step-by-step  approach  and  to  have  a  tool  that  is  easily  used 
information 
and  clearly  defined.  The 
campaigns  both  in  the  EU  and  in  third  countries  was 
emphasised  and  it  was  noted  that  the  lack  of  knowledge  of 
these types of initiatives can be a barrier of the effective use of 
it.  

importance  of 

is 

SMEUnited 
in  favour  of  a  voluntary  system.  The 
deployment  of  the  EU  Talent  Pool  should  be  incremental, 
starting with specific sectors facing shortages and then enlarged 
to other sectors, with the objective to include all sectors as soon 
as  possible.  The  EU  Talent  Pool  should  be  demand-driven 
based  on  the  real  needs  of  the  labour  market.  The  governance 
of  the  EU  Talent  Pool  should  involve  the  EU  cross-industry 
social  partners.  The  initiative  should  be  designed  the  EU 
Talent  Pool  as  a  tool  able  to  support  SMEs.  Labour  market 
the  matching  process. 
intelligence 
Recognition  of  skills  and  qualification  systems  should  be 
transparent,  trustworthy,  and  easy  to  understand  by  SME 
employers.  Social  partners  and  SME  organisations  should 

tools  should 

inform 

108 

 
 
Ceemet 

ETUC 

Hotrec 

be  involved  in  the  design  and  in  the  governance.  The  key 
functions  of  the  EU  Talent  Pool  should  be  CVs  registration, 
automatic matching tool, employers vetting procedures, support 
services  and  provision  of  information.  Concerning  employers 
vetting procedures, they should not be burdensome for SMEs. 

the  Commission´s  analysis  on 

The  organisation  supports  the  initiative  of  adopting  an  EU 
Talent  Pool  via  legislative  action  as  this  will  facilitate  the 
recruitment  of  skilled  workers  from  abroad  in  a  targeted 
manner,  to  address  labour  shortages  and  support  the  EU’s 
transition towards a green and digital economy. Ceemet agrees 
the  challenges  to 
with 
international  recruitment.  Ceemet  is  in  favour  of  the  two 
legislative  alternatives.  Targeting  the  EU  Talent  Pool  to 
certain  occupations  and  having  a  voluntary  system  is 
considered  the  best  option  in  the  short  term.  While  an  open 
Talent  Pool  would  be  the  optimal  solution  in  the  long  run. 
Ceemet  also  welcomes  the  possibility  of  upgrading  and 
modernizing the EU immigration portal and organising job 
matching  events.  Interoperability  with  existing  systems 
should be ensured. 

The ETUC remains highly critical on the development of the 
EU  Talent  Pool  as  it  is  considered  as  based  on  labour 
migration models designed for employers. However, the ETUC 
welcomes  the  call  for  evidence  for  further  assessment.  ETUC 
highlighted the importance of ensuring appropriate governance 
and accountability, including the involvement of trade unions. 
The  importance  of  ensuring  migrant  workers’  access  to 
decent and good quality jobs based on the principle of equal 
treatment  was  mentioned.  The  Talent  Pool  may  support  the 
implementation  of  the  Talent  Partnerships.  However,  it 
needs  to  be  carefully  designed.  In  addition,  the  Talent  Pool 
could play a relevant role in ensuring transparency and access 
to  information  to  employers  and  third  country  nationals. 
Appropriate support and measures to avoid the risk of unfair 
recruitment  should  be  in  place.  The  Talent  Pool  should 
the  validation  and  recognition  of  skills  and 
consider 
qualifications, which is a practical barrier that migrant workers 
experience. Workers’ skills and qualifications should be valued, 
assessed  and  swiftly  recognised,  as  necessary,  whether  or  not 
documentation is  available. The ETUC is  on the view that the 
Talent Pool should be open to all workers, across sectors and 
skills  levels,  and  in  a  non-discriminatory  manner.  Data 
protection considerations should be taken into consideration. 

The association  supports the adoption of the EU Talent Pool, 
particularly  through  the  legislative  options.  In  particular,  it 
supports the voluntary nature of the system They also call for 
inclusion of low and medium-skilled individuals, considering 
diverse needs in sectors like hospitality. The  EU Talent Pool 
should  be  user  friendly  and  non-bureaucratic.  It  should  be 

109 

 
 
DGB  (German  Trade 
Union Confederation) 

business oriented, as the end users will be both employers and 
potential workers. Hotrec considers positive that the EU Talent 
Pool  would  be  linked  with  Talent  Partnerships.  Hotrec, 
welcomes the development of a new IT solution rather than re-
include 
using  EURES.  The  EU  Talent  Pool 
administrative  processes  to  pre-screening  candidates;  the 
validation  of  candidates’  skills  and  qualifications  and 
interoperability with other international  recruitment tools and 
national platforms. 

should 

The  DGB  advocates  for  a  holistic  and  differentiated  approach 
to  the  problem  of  skills  shortages.  For  this  reason,  skills  and 
labour shortages should be addressed in the first place through 
qualification  and  improvement  of  working  conditions.  In 
addition,  considering  existing  national  platform  and  EURES, 
the Commission should assess the added value of the initiative. 
The confederation supports the adoption of an EU Talent Pool 
targeted  to  certain  occupations  and  having  a  voluntary 
nature.  However,  protection  of  third  country  nationals  and 
quality of job should be ensured (national contact points play a 
central  role  in  monitoring  employers  and  job  vacancies).  In 
addition, interoperability with existing systems and platforms 
at EU and national level should be granted. 

3.4 Results of the surveys to employers and third country nationals 

Problem drivers  

With  regard  to  problem  driver  1,  TCNs  residing  in  third  countries  highlighted  the  non-
transparency  information  regarding  job  opportunities  in  the  EU  as  well  as  the  rules  and 
requirements  for  seizing  these  opportunities  seem  to  represent  the  main  reasons  why  some 
TCNs have never searched for a job in the EU. Finding suitable job opportunities is a barrier 
for 43% of respondents, while 44% struggle to understand how to align with job requirements. 

Differently, based on the survey with employers, key barriers for employers are related to the 
access to suitable candidates (i.e. too many unsuitable applications) and understanding the 
complex  rules  and  procedures  for  hiring  from  outside  the  EU.  When  it  comes  to  the 
recruitment channels / tools, the results of the survey with employers shows that LinkedIn and 
other social media are used as the main external channel for recruitment of TCNs, while PES 
services seem to have very limited success among employers.  

How  often  do  you  use  the  following  external  channels  for  recruitment  from  outside  the 
European Union?  

110 

 
 
When it comes to internal channels used by employers to publish vacancies, most employers 
said that they publish vacancies on their website. Similarly, during the interview conducted for 
this study, one interviewee  representing the interests of SMEs pointed out  that SMEs do not 
always publish vacancies online and that PES could potentially support more in this.  

With  regard  to  Problem  driver  2,  the  survey  with  employers  shows  that  61%  of  respondents 
found it difficult to understand the complex rules and procedures for hiring from outside 
the EU.  

How important are the following barriers to recruiting from outside the European Union?  

Half of the respondents to the survey with employers indicated that the immigration process 
and its duration takes too long and that this constitutes an important barrier. For the duration 
of the full recruitment process, some respondents provided estimations of the duration from the 
vacancy  notice  to  signing  the  contract:  6.4  weeks  for  candidates  from  the  same  country;  9.8 
weeks for candidates from within the EU; 14.4 weeks for candidates from outside the EU. In 
terms  of  recruitment  costs,  a  majority  of  respondents  (75%)  consider  that  recruitment  of 
employees  from  outside  the  EU  to  be  more  costly  than  recruitment  of  foreign  EU  nationals, 
111 

 
 
 
 
 
 
 
 
 
while this difference is not so striking when comparing the costs between the recruitment of a 
co-national  and  an  EU  national.  For  one  third  of  the  respondents,  typically,  costs  to  recruit 
non-EU nationals are 30% higher. 

Another  dimension  of  this  problem  driver  is  the  fragmented  and  complex  migration 
framework  within  the  EU.  Member  States  have  different  procedures  for  immigration  and 
often  times  these  are  complex  for  candidates.  The  figure  below  presents  that  nearly  half  of 
TCNs  respondents  consulted  find  it  difficult  to  understand  complex  employment  and 
immigration procedures. Moreover, TCNs recognised the potential risk of their work permit or 
visa application being rejected. 

How important are the following barriers to finding a job in the European Union?  

In regard to Problem driver 3, the primary concern among employers seems to revolve around 
the reliability of candidates' CVs and profiles, which was identified as a substantial hurdle 
by  38%  of  the  participants.  Around  one-third  of  the  sample  found  it  challenging  to  compare 
both  professional  and  educational  qualifications  with  those  from  their  home  country. 
Moreover,  approximately  one-third  of  the  respondents  harboured  doubts  regarding  the 
legitimacy  of  documents  submitted  by  candidates  as  evidence  of  their  professional  or 
educational  background.  There  is  a  general  perception  that  the  recognition  procedure  can  be 
unsuccessful  when  coming  to  TCNs’  qualifications.  This  risk  is  perceived  as  an  important 
barrier by 45% of employers and by 40% of TCNs. 

Policy measures  

In  terms  of  policy  measures,  some  measures  were  received  more  positively  by  different 
stakeholders. Results of the survey with TCNs show that 36% of respondents who are TCNs 
residing in third countries said that they would register their profile and search for job postings 
on  the  EU  Talent  Pool.  More  than  half  of  the  respondents  who  are  TCNs  residing  in  third 
countries said that they appreciate faster administration procedures (on work permit, visa etc.), 
while the same amount of people considered that receiving advice on the rules and process of 
living  and  working  in  the  EU  would  increase  their  likelihood  of  registering  on  the  platform. 
Similarly, for TCNs already living in the EU, faster administrative procedures remain the most 
appreciated features (64% of respondents), as well as companies having access to their profile 
and that employers are subject to quality assurance checks. 

In  the  survey  with  employers,  17%  of  respondents  considered  it  very  likely  that  they  will 
publish jobs through an EU Talent Pool. Rather consistent with the findings from TCNs, the 
most  useful  features  of  the  EU  Talent  Pool  for  employers  are  the  fast-track  administrative 
procedures for selected candidates (70% of respondents), access of immigration authorities to 

112 

 
 
 
candidate profiles (69%), and that only the candidates with the required profiles can apply to 
vacancies (68%). Differences between larger employers and SMEs were identified in relation 
to some policy measures (Error! Reference source not found.).   

To  what  extent  the  following  features  would  change  the  likelihood  of  registering  on  the 
platform? 

3.5 Results of the ad hoc surveys 

Ad-hoc survey to EURES NCOs 

The ad-hoc questionnaire was  shared with  EURES NCOs via ELA with  the aim to  precisely 
quantify  the  current  costs  of  the  national  EURES  governance  structure  and  activities 
(excluding those related to IT development and the EURES portal). Those estimates have been 
used as a baseline to adjust the estimated costs for the governance of the Talent Pool under the 
different options. In total 20 EURES NCOs responded to the survey.   

The survey comprised two questions on the total number of EURES staff and budget and on 
the  disaggregation  of  resources  across  the  different  activities  conducted  by  NCOs.  The 
outcomes of these questions have been aggregated in the table below. 

Questions 

Staff and budget 

Results 

What  is  the  total  number  of 
EURES staff (in FTEs) in your 
country for the latest available 
year?   

is 

the 

total  EURES 
What 
budget  (in  EUR) 
in  your 
country for the latest available 

On average NCOs have around 27 total staff (in FTEs), 
out  of  which  23  advisers,  and  4  NCO  staff.  Several 
NCOs involve also other categories of staff, such as line 
managers  (4  NCOs)  and  external  experts  including  IT 
experts  (5  NCOs).  Those  other  categories  of  staff 
average to around 6 per NCO.  

On  average  NCOs  have  around  EUR  1  200  000  of 
budget for staff and activities. 

113 

4.404.604.805.005.205.405.605.806.006.20Sharing of job postings between the EU Talent Pool and national job portalsOnly candidates with required profiles can apply to your job postings (e.g.qualifications, language proficiency...)Candidates self-declare that the information they provide in their profiles iscorrect and accurateCandidates are required to submit supporting documents during the profilecreationAuthenticity and correctness of supporting documents submitted by thecandidate is verified by an external validatorA semi-automatic matching tool provides a shortlist of candidates who match jobrequirements (structured data)An automatic matching tool provides a ranked shortlist of candidates, alsoprocessing CVs and documents (unstructured data)Fast-track administrative procedures for selected candidatesQuality checks of employers when registering (legal compliance, bankruptcy)Large firmsSMEs 
 
 
year?   

Disaggregation of resources by activities221  

How many resources (in terms 
of time) are used for the main 
(non-IT-related) activities 
your national EURES 
undertake? 

How many resources (in terms 
of budget) are used for the 
main (non-IT-related) 
activities your national 
EURES undertake? 

involved 

in 
Around  70%  of  staff  resources  are 
conducting  activities  of  matching  and  recruitment  and 
information  provision  (with  the  latter  accounting  for 
slightly more than the former). A smaller share (around 
10%)  is  invested  in  post-recruitment  services.  As  the 
number of NCOs able to provide disaggregated data was 
limited (only 9 out of 20 respondents), estimates should 
be considered with caution. To substantiate the findings, 
we  triangulated  them  with  estimates  resulting  from  the 
ex-post EURES evaluation; our estimates are in line with 
those in the evaluation. 

The largest share of the budget (more than 30%) is used 
for  staff  costs.  A  relatively  large  share  (around  5%)  is 
instead  used  for  activities  related 
information 
provision.  As  the  number  of  NCOs  able  to  provide 
disaggregated  data  was  very  limited  (10  responses 
overall  and  only  4  more  completed),  those  estimates 
should be considered with caution.222 

to 

Ad-hoc survey to NARICs national representatives 

The ad-hoc questionnaire was shared with national representative of the NARIC network via 
Commission  Services  with  the  aim  to  better  understand  the  competencies,  responsibilities, 
procedures and costs for the recognition and validation of qualifications and skills, as well as 
understand  the  organisation  of  other  linked  recognition  services  at  national  level.  This 
information  has  been  used  in  the  calculation  of  costs  and  cost-savings  when  it  comes  to 
validation and recognition procedures. In total 14 NARICs responded to the survey.  

The survey comprised four main areas: i) recognition of qualifications for academic purposes, 
ii)  recognition  of  qualifications  for  academic  professions,  iii)  statement  of  comparability  and 
iv)  statistics  on  the  recognition  of  diplomas  and  professional  qualifications.  Outcomes  are 
presented in the table below. As the response rate was rather limited, outcomes from the survey 
were  complemented  with  desk  research  on  missing  Member  States.  Average  costs  and  time 
required for recognition and validation procedures presented in the report come from the final 
compilation of information on recognition and validation procedures. 

Questions 

Results 

i) 

Recognition of qualifications for academic purposes 

221  

222  

The  number  of  NCOs  that  were  able  to  provide  the  breakdown  is  lower  than  the  total  number  of  respondents.  In 
particular,  only  9  NCOs  (out  of  the  total  20  respondents)  was  able  to  provide  the  breakdown  in  terms  of  time 
invested  in  each  activity  and  only  10  NCOs  provided  the  breakdown  in  terms  of  budget  invested  (4  of  which 
provided more completed responses).  
In this case, estimates cannot be triangulated with outcomes of the ex-post EURES evaluation as the latter did not 
provide figures on budget disaggregation across activities. European Commission (2021). Study supporting the ex-
post EURES evaluation and the second biennial EURES report, Contract VC/2019/0854. 

114 

 
 
 
Does the NARIC in your country 
process requests for recognition 
of qualifications obtained in 
third countries for academic 
purposes? 

•  33% do with issuance of legally binding decision 

•  40% do not, but issue comparability statements 

•  20% do not, as NARIC is only information centre 

•  7% did not respond 

What is the average time (in 
calendar days) taken from the 
submission of an application 
(receipt of all documents) for the 
recognition of qualifications for 
academic purposes awarded in 
third countries to a decision 
(excluding any appeals)? 

What is the cost (fee) of an 
application for the recognition 
of qualifications for academic 
purposes obtained in third 
countries? (cost in euro or 
national currency). 

On  average  it  takes  around  40  days  for  the  recognition  of 
qualifications for academic purposes 

On  average  it  costs  around  EUR  140  (in  fees)  per 
application  for 
the  recognition  of  qualifications  for 
academic purposes, while it is free for 57% of respondents 
(14%  provided  no  response  or  the  question  was  not 
applicable for them). 

ii) 

Recognition of qualifications for regulated professions 

Does the NARIC in your country 
process  requests  for  recognition 
of  professional  qualifications 
acquired in third countries? 

What is the average time (in 
calendar days) taken from the 
submission of an application 
(receipt of all documents) for the 
recognition of professional 
qualifications obtained in third 
countries to a decision 
(excluding any appeals)? 

What is the cost (fee) of an 
application for the recognition 
of professional qualifications 
obtained in third countries? 
(cost in euro or national 
currency). 

•  25% do with issuance of a legally binding decision 

•  10%  do  not,  as  they  deal  only  with  recognition  for 

academic purposes 

•  40%  do  not,  as  requests  are  processed  by  relevant 

competent authority 

•  25% do not but support with information provision. 

On  average  it  takes  around  90  days  for  the  recognition  of 
professional qualifications. 

for 

On  average  it  costs  around  EUR  135  (in  fees)  per 
application 
professional 
qualifications, while it is free for 21% of respondents (50% 
provided no response or the question was not applicable for 
them). 

recognition 

the 

of 

iii) 

Statement of comparability  

115 

 
 
 
 
Does the NARIC in your country 
issue statements of 
comparability for academic and 
professional qualifications as 
well as non-formal learning 
obtained in third countries? 

•  8% do, with costs attached 

•  15% do, but only for academic purposes 

•  8% do, but only for professional purposes 

•  23% do, for academic and professional purposes 

What is the average time (in 
calendar days) taken from the 
submission of an application 
(receipt of all documents) for the 
validation of professional 
qualifications obtained in third 
countries to a decision 
(excluding any appeals)? 

What is the cost (fee) of an 
application for the validation of 
professional qualifications 
obtained in third countries? 
(cost in euro or national 
currency). 

Other aspects 

•  46% do not 

On  average  it  takes  around  140  days  for  the  issuance  of 
comparability statements. 

On  average  it  costs  around  EUR  170  (in  fees)  for  the 
issuance of comparability statements, while it is free for 7% 
of respondents (78% provided no response or the question 
was not applicable for them). 

•  Main  types  of  supporting  documents  required  for  the 
statement  of  comparability  include  ID  card  (or  other 
proof  of  identity),  certificate  of  citizenship,  diploma(s), 
transcript/diploma 
learning  outcomes, 
curriculum  vitae, proof  of residency/work permit  in  the 
host country. 

supplement, 

•  60% require those documents to be provided in English 
and/or the Member States’ official language, while 13% 
do not have this requirement (27% provided no response 
or the question was not applicable for them). 

•  50% require the translation to be carried out by a sworn 
and  certified  translator,  while  31%  do  not  have  this 
requirement (19% provided no response or the question 
was not applicable for them). 

•  7%  require  those  documents  (or  some  of  them)  to  be 
legalised, while 71% do not have this requirement (22% 
provided no response or the question was not applicable 
for them). 

•  Checks  for  authenticity  of  those  documents  include 
online verification of information (e.g., via databases of 
HEIs  or  Ministries  of  education;  contacting  institutions 
or awarding bodies), technical checks (e.g., examination 
of  original  documents 
tampering; 
comparison  of  documents  against  known  fraudulent 
examples),  use  of  databases  such  as  SCAN  D  and  Q-

signs  of 

for 

116 

 
 
ENTRY to identify potential fraud or cooperating within 
the  ENIC-NARIC  network  to  share  information  and 
request support. 

iv) 

Statistics on the recognition of diplomas and professional qualifications 

8  000  on  average  (57%  provided  no  response  or  the 
question was not applicable for them). 

2 700 (57% provided no response or the question was not 
applicable for them). 

7 400 (87% provided no response or the question was not 
applicable for them). 

How many applications did you 
receive in 2022 for the 
recognitions of qualifications for 
academic purposes obtained in 
third countries? 

How many applications did you 
(or other competent authorities) 
receive in 2022 for the 
recognition of professional 
qualifications acquired in third 
countries? 

How many statements of 
comparability were issues in 
2022 for academic and 
professionals’ qualifications 
obtained in third countries? 
How many were issued for non-
formal learning (if applicable). 

3.6 Results of the broad survey 

The broad stakeholder survey provided insights into various topics, including the overarching 
problem,  the  underlying  problem  drivers,  and  views  on  the  proposed  policy  options  and 
measures.  The  following  paragraphs  extract  the  most  relevant  inputs  from  the  broad 
stakeholder survey. 

Overarching problem 

The  impact  assessment  study  identified  one  problem,  as  a  result  of  participation  in 
consultations organised by the European Commission: insufficient recruitment of third-country 
nationals via legal migration pathways to address EU labour and skills shortages. The figure 
below presents the results from the broad stakeholder survey when respondents were asked to 
what  extent  an  EU  Talent  Pool  will  address  this  overarching  problem.  Four  problem  drivers 
were developed to further explain the underlying causes to this overall problem. 

Considering the overall problem mentioned above, to what extent do you believe that an EU 
Talent Pool (EUTP) would address this problem in the future?  

117 

 
 
 
Most respondents substantiated their answer to this question. One widespread reason that was 
mentioned by the stakeholders who identified that the EU Talent Pool can address the above-
mentioned  problem  ‘to  a  certain  extent’  or  ‘to  a  small  extent’  was  primarily  due  to  the 
complexity of the problem at stake, stemming from the differences in terms of recognition of 
qualifications  and  skills,  immigration  regimes,  and  other  areas  that  make  it  difficult  to  use 
existing  legal  migration  pathways.  One  respondent  (national  public  body)  detailed  that  the 
possibilities that the initiative to address the overarching problem depend on the way that the 
EU Talent Pool will be constructed.  

Problem drivers 

Based  on  the  overarching  problem  mentioned  above,  a  series  of  problem  drivers  were 
developed to explain what are the main factors that contribute to the insufficient recruitment of 
TCNs via legal migration pathways to address EU labour and skills shortages. In relation to the 
development of the identified problem drivers in the absence of an EU Talent Pool, a majority 
of respondents from the broad stakeholder survey believed that without an EU Talent Pool, the 
problem drivers may worsen significantly, worsen to a small extent or stay the same, with very 
few answers pointing to an improvement of the problem drivers through existing measures.  

Problem  driver  1  refers  to  the  cumbersome  and  ineffective  international  job  matching.  The 
broad stakeholder survey shows that 48 out of 55 respondents believed that an EU Talent Pool 
would address  the issue  of cumbersome  and ineffective international  job  matching  to  a large 
extent or to a certain extent. Respondents to the broad stakeholder survey pointed out that the 
costs  of  international  recruitment  are  high,  with  associations  representing  employers  stating 
that many employers tell them that employing TCNs relates to significantly higher costs than 
employing someone from within the country223. Also, part of the broad stakeholder survey, the 
risk  of  unfair  recruitment  was  brought  up  by  many  respondents  who  are  non-governmental 
organisations  when  detailing  their  answers  to  different  questions,  identifying  that  existing 
methods  such  as  PES  and  private  platforms  are  not  effective  in  terms  of  avoiding  unfair 
recruitment.  

223  

The same respondent mentioned that in the case of employing someone in a occupation facing shortages, the costs 
pay off after a short time of the contract duration.  

118 

 
 
 
 
Problem driver 2 identifies that employers and TCNs have difficulties to understand how skills 
and  qualifications  obtained  in  third  countries  correspond  to  those  required  at  national  level. 
Results of the broad stakeholder survey show that 42 out of 55 respondents stated that an EU 
Talent Pool would address this problem driver to a large extent or to a certain extent. Part of 
answers  to  open-ended  questions,  several  respondents  made  references  to  the  differences  in 
approaches to recognition of skills and qualifications differ from country to country. 

Problem  driver  3  refers  to  the  non-transparent,  cumbersome,  and  costly  immigration 
procedures. The broad stakeholder survey shows that 42 respondents out of a total of 55 who 
responded to the question believe that an EU Talent Pool would address this problem driver to 
a large extent or to a certain extent.  

Proposed policy options and policy measures  

In the broad stakeholder survey, Policy Option 3 (“Developing an open EU Talent Pool for all 
occupations  with  a  modernised  matching  platform  inspired  by  other  initiatives  in  the  private 
sector  (legislative)”  ranked  as  the  most  effective  policy  option  in  the  view  of  respondents, 
while Policy Option 2 (“Developing a focused EU Talent Pool building on certain components 
of EURES and targeted to specific occupations (legislative)” was ranked lower.   

Due  to  the  number  of  policy  measures  and  the  amount  of  information  collected,  we  will 
summarise the views of respondents to the broad stakeholder survey, by each cluster of policy 
measures:  

An  interest  in  having  governance  through  a  combination  of  national  level  actors  and  with  a 
proper coordination at EU level. Respondents considered that costs could be higher for having 
an  EU  level  coordinating  body  and  national  level  offices  because  of  staff  and  IT  costs 
necessary,  thus  more  resources  will  be  needed  at  both  levels  and  double  work  should  be 
avoided, therefore coordination between the different levels is essential. 

For  the  scope  of  application  of  an  EU  Talent  Pool,  respondents  pointed  out  to  political 
implications involved in a voluntary or mandatory initiative for Member States to participate, 
while  targeting  specific  sectors  /  occupations  was  received  as  both  limiting  in  terms  of  the 
candidates to be accepted, but also as a measure that could lead to a faster and more efficient 
process of recruitment. 

In relation to the interoperability of the EU Talent Pool with EURES, with national platforms, 
and / or private platforms, most respondents considered that these costs would rather increase 
for existing  platforms due to  the need to  adapt  to  the EU Talent Pool,  whereas benefits  may 
come for candidates and employers. The costs of integrating other existing systems into the EU 
Talent Pool will largely depend on the types of platforms and the functionalities used by the 
EU initiative. 

Results  on  the  measures  targeting  quality  assurance  checks  of  employers  pointed  out  that 
existing  checks  are  still  not  the  most  effective  for  fair  recruitment,  therefore  other  ways  to 
improve fairness and avoid exploitation of workers are still necessary. 

For the registration of job vacancies, if employers have to register the vacancies in the Talent 
Pool, this entails higher costs. 

When  registering  candidate  profiles,  results  show  that  having  the  necessary  tools  to 
standardise the process of collecting information from candidates would also mean a reduced 
burden  for  employers,  but  additional  need  to  understand  the  system  might  be  necessary  for 
TCNs. 

119 

 
 
In relation to the pre-screening of candidates, some respondents considered that it depends on 
what  pre-screening  criteria  is  used  and  that  there  should  be  no  room  for  bias,  but  that  pre-
screening  may  generally  be  useful  because  it  may  limit  the  pool  to  the  candidates  who  fit 
proper qualifications needed in a specific Member State. 

For  the  validation  of  candidates,  some  respondents  pointed  out  that  employers  may 
experience  higher  costs  in  the  case  of  the  self-declared  information  from  candidates,  as  the 
information may not be accurate. 

For  policy  measures  targeting  searching  and  matching,  several  respondents  considered  that 
automation of this process and simplification in this respect is favourable to a manual matching 
in order to decrease costs. 

In  the  case  of  the  policy  measures  addressing  transparency  and  comparability  tools, 
introducing a correspondence grid for automatic issuance of the equivalence was particularly 
seen  as  costly  and  difficult  to  implement  for  an  EU  Talent  Pool.  For  the  other  measures, 
respondents found it difficult to estimate costs. 

The measures for recruitment facilitation were received with positive feedback, as the costs 
could be lower for both employer and candidates, but that national institutions may not agree 
on  these  measures.  One  respondent  pointed  out  potential  inequalities  between  countries 
stemming  from  the  voluntary  EU  Talent  Pool  and  fast-track  procedures,  because  candidates 
may prefer countries where they could benefit from fast-tracking. 

In terms of specific support services, participants to the survey indicated that an increase in 
costs  would  affect  the  stakeholders  who  will  provide  the  support  services,  depending  on  the 
type. For proposed measures in the area of user experience, results show that respondents did 
not  see  a  large  difference  between  the  costs  entailed  by  different  measures;  however,  user-
friendliness was highlighted as important for the development of each measure. 

For proposed measures in the area of user experience, results show that respondents did not 
see  a  large  difference  between  the  costs  entailed  by  different  measures;  however,  user-
friendliness was highlighted as important for the development of each measure. 

120 

 
 
 
 
ANNEX 3  
WHO IS AFFECTED BY THE INITIATIVE AND HOW? 

1. Practical implications of the initiative 

The preferred option (PO2) would have positive impacts on most target groups. In particular, 
there would be significant positive impacts for EU employers and business as well as third-
country nationals willing to work in the EU. Given the targeted nature of the preferred option, 
it would be particularly beneficial for EU business and employers working in strategic sectors 
suffering  from  structural  shortages  such  as  the  healthcare  sector  and  sectors  linked  to  the 
green  and  digital  transition.  In  addition,  the  preferred  option  is  not  expected  to  have 
particularly negative impacts on EU citizens. 

While  envisaging  certain  additional  costs  for  the  public  administrations,  national,  regional 
and  local  authorities  of  Member  States  would  benefit  from  this  initiative  as  offering  an 
additional  tool  to  foster  talent  attraction  to  address  labour  shortages,  since  Member  States 
acting alone, especially smaller Member States, may not be able to compete internationally 
for skilled third-country workers (global race for talent). Therefore, the preferred option would 
be particularly beneficial for those Member States suffering from the highest labour and skills 
shortages with a declining working age population.  

The table below provides an overview of the impacts of this initiative on each target group: 

Who  is  affected  by  the 
initiative 

Business and employers 

How the target group is affected by the initiative 

This  PO  would  have  a  particularly  positive  impact  on  EU 
international 
business  and  employers  as  by  facilitating 
recruitment  they  will  have  an  easier,  quicker,  and  wider, 
access  to  labour  resources  from  third  countries.  In  addition, 
better  quality  of  matches  would  be  ensured  via  specific  tools 
and personalised support.  

rules  on 

recruitment  and 

The  envisaged  support  to  international  recruitment  would  be 
particularly  beneficial  for  SMEs  as  they  are  likely  to  bear  a 
disproportionate  burden  when  hiring  TCNs  in  comparison  to 
large  enterprises  due  to  more  limited  resources  (e.g.  limited 
understanding  of 
immigration 
procedures,  lack  of  in-house  support,  lack  for  resources  to  rely 
on  recruitment  agencies,  etc.).    In  particular,  this  PO  would 
largely  benefit  SMEs  as  it  would  entail  a  wide  pool  of 
candidates  easily  accessible,  specific  tools  facilitating  the 
tool), 
matching 
personalised  guidance  by  the  National  Contact  Points  as  well 
as  online  information 
  on  recruitment,  immigration  and 
recognition procedures. In addition, by providing a focused pool 
of pre-screening candidates and the integration of skills profiling 
and  comparability  tools  (e.g.  Europass  and  ESCO),  better 
quality  recruitment  would  be  ensured  (see  Annex  on  SMEs 
test).  

filters  and  automatic  matching 

(e.g. 

Overall,  the  increased  numbers  of  TCNs  workers  SMEs  would 
be able to recruit would boost their growth perspectives.  

121 

 
 
 
 
 
 
 
 
 
The  due  to  its  targeted  nature  focusing  on  addressing  specific 
shortages in occupations of EU and national relevance, this PO 
would be particularly beneficial for EU business and employers 
working in strategic sectors suffering from structural shortages 
such as the healthcare sector and sectors linked to the green 
and  digital  transition.    In  addition,  the  preferred  PO  would 
have a positive impact  on companies’  capacity for innovation 
and  research  as  it  would  facilitate  international  recruitment  of 
skilled third country nationals in this field.  

This  PO  would  involve  processing  of  personal  data,  which 
would  be  retained  and  accessed  via  the  IT  platform.  Thus,  this 
PO would need to ensure that the proposed measures are based 
on  a  legislative  act  which  is  in  compliance  with  the  EU  data 
protection acquis, including the principles of purpose limitation, 
data minimisation, storage limitation and data security.  

The  preferred  PO  would  result  in  a  moderate  increase  in  the 
number of TCNs workers. In addition, the entry of new TCNs 
workers  would  be  subject  to  the  control  of  Member  States  via 
labour market tests. Therefore, this PO is not expected to entail 
particular  costs  or  disadvantages  for  EU  citizens  vis-à-vis  the 
status  quo  and  the  potential  displacement  effect  on  EU 
workers is expected to be limited.  

Considering the limited increase in the migration rates (?) , this 
PO would have a positive impact on social cohesion as it is not 
expected  to  increase  social  tensions  or  negative  perceptions  of 
migration. TCNs will be perceived as contributing to addressing 
labour shortages and increasing the overall economic prosperity. 
In  addition,  a  well-balanced  labour  market  with  workers  from 
various  backgrounds  can  promote  knowledge  exchange  and 
cultural understanding, which are essential elements of building 
social cohesion in multicultural societies. 

In  addition,  ensuring  protection  against  unfair  recruitment 
and  working  conditions  (via  quality  assurance  checks  on 
employers) is  expected to  reduce downward pressure on wages 
resulting from exploitation and social dumping practices (and as 
a  result  benefitting  wider  workforces).  The  positive  outcomes 
would  include  fairer  salary  and  employers  investing  in  fair 
working  conditions,  which  may  increase  labour  productivity  in 
the medium to long run. The targeted approach of this PO would 
ensure  complementarity  of  skills  (TCNs  would  be  recruited  in 
occupations where domestic workforce is insufficient), that may 
also result in a positive impact on wages. 

The  preferred  PO  would  have  a  positive  impact  for  TCNs 
because of improved career opportunities, as their possibilities to 
find  a  job  in  the  EU  and  being  recruited  would  increase.  Their 
understanding  of 
immigration  procedures  would  also  be 
improved via the EU  Immigration Portal.  In particular, this PO 
would have a higher positive impact on TCNs as it would ensure 

122 

EU citizens 

Third-country nationals 

 
 
 
a  high  rate  of  successful  matches  and  their  quality.  The 
integration  of  skills  profiling  and  matching  tools  as  well  as 
quality checks on employers would avoid mismatches and over-
qualification of TCNs.  

it  will  contribute 

Overall,  this  PO  would  have  a  positive  impact  on  social 
cohesion  as 
labour  market 
participation  and  create  a  sense  of  interdependence  with  the 
local  population.  In  addition,  match  skilled  migrants  with 
meaningful  job  opportunities  can  lead  to  reduced  social 
disparities. 

to  TCNs’ 

With regard to the fundamental rights impacts, this PO would 
enact  the  right  to  choose  an  occupation  and  engage  in  work 
[Article 15 of the Charter, and SDG 16] as  well as  the right to 
fair and just working conditions [Article 31 of the Charter] and 
non-discrimination (Articles 21 of the Charter)]. This PO would 
have  a  great  positive  impact  on  protection  of  TCNs  against 
discrimination, 
job  quality  and  working  conditions 
standards [SDG 8 and 10] as it would reduce the risk of unfair 
recruitment  and  exploitative  working  conditionsas  appropriate 
safeguards against the unfair recruitment would be enusured. .  

This PO would involve processing of personal data as those data 
would  be  retained  and  accessed  via  the  IT  platform.  Thus,  this 
PO would need to ensure that the proposed measures are based 
on  a  legislative  act  which  is  in  compliance  with  the  EU  data 
protection acquis, including the principles of purpose limitation, 
data minimisation, storage limitation and data security. 

The  preferred  option  would  foresee  the  development  of  a 
voluntary  system  to  which  only  interested  Member  States 
might  decide  to  participate.  Therefore,  no  disproportionate 
burden on the national  authorities is  expected under this PO as 
the EU Talent Pool would rather offer a supporting tool for the 
public  administrations 
international 
recruitment.  This  tool  would  not  replace  existing  national 
platforms  or  talent  attraction  policies  but  rather  complement 
them.  The  majority  of  Member  States  lacking  international 
recruitment tools would particularly benefit from  this initiative. 
This  is  even more apparent  for  smaller Member States facing 
greater  difficulties  in  attracting  TCNs  from  abroad  due  to  their 
limited visibility, and resources.  Therefore, the preferred option 
would  be  particularly  beneficial  for  those  Member  States 

the  context  of 

in 

123 

National, regional and 
local authorities of 
Member States 

 
 
suffering from the greatest labour and skills shortages. 

By  increasing  the  number  of  migrants  workers  coming  to 
address labour and skills shortages in the EU labour markets this 
PO  would  be  particularly  beneficial  for  Member  States 
suffering from the greatest labour and skills shortages224 with a 
declining working age population. 

Certain rural and peripherical regions with net emigration and 
limited  talent  attraction are  the  most  negatively  affected  by  the 
current  situation  and  therefore,  would  particularly  benefit  from 
this initiative. They are sending regions with regard to intra-EU 
labour  mobility,  and  currently  they  are  not  attractive  for  TCNs 
due  to  relatively  low  wages,  small  scale  of  the  relevant  local 
labour  market, 
limited  knowledge  and 
issues, 
information,  also  because  of  the  lack  of  existing  TCN  social 
networks.225 

language 

When  Member  States  decide  to  participate  in  the  initiative, 
certain  while  limited  administrative  adjustments  would  be 
required.  In  particular,  Member  States  would  have  to  set  up  a 
governance structure at national level by designating National 
Contact  Points  responsible  for  the  practical  implementation  of 
the  EU  Talent  Pool.  Therefore,  additional  while  limited  new 
responsibilities  would  be  attached  to  the  national  authorities. 
This  would  imply  higher  cost  (whilst  limited)  for  the  public 
administrations.  However,    s  certain  components  of  EURES 
would  be  re-used,  the  preferred  option  would  require  only 
limited adaptations to the current IT systems at national level to 
ensure interoperability with the EU Talent Pool platform  

This PO would have an impact on third countries as facilitating 
international  recruitment  and,  therefore,  making  the  EU  more 
attractive,  third  countries  may  face  the  risk  brain  drain. 
However,  the  increase  of  TCNs  moving  to  the  EU  would  be 
small  in  comparison  with  the  baseline,  making  this  impact 
limited.  Due  to  the  special  link  with Talent  Partnerships,  the 
risk of brain drain would be mitigated under this PO for matches 
conducted  in  this  context  given  that  Talent  Partnerships  are 
developed  in  a  mutual  beneficial  way  and  relevant  sectors  as 
selected  in  common  agreement  with  the  partner  country.  In 

Third countries 

224  

225  

For  instance,  4.7 %  of  jobs  in  Belgium,  the  Netherlands  and  Austria  were  vacant  in  the  first  quarter  of  2023,  the 
highest value in the EU, followed by Germany (4.1 %). Eurofound distinguishes between three groups of Member 
States in relation to their job vacancy rates: countries with very high levels of labour shortages with strong increases 
in the past decade (Austria, Belgium, Czechia, Germany and the Netherlands); countries in line with the EU average 
(Cyprus,  Estonia,  Finland,  Hungary,  Italy, Latvia,  Luxembourg, Malta,  Slovenia  and  Sweden);  and  countries  with 
lower  and  only  slowly  increasing  job  vacancy  rates,  typically  with  high  levels  of  unemployment  and  informal 
employment (Bulgaria, Croatia, Greece, Ireland, Lithuania, Poland, Portugal, Romania, Slovakia and Spain). 
Peripheral regions such as Sardinia or Sicily in Italy and Rurall regions such as Lapland in Finland or in the EU are 
more affected by a shrinking working-age population than others, losing also young people when they move to study 
or employment elsewhere. The share of people in the EU living in a shrinking region will increase from 34% in 2020 
to 45% in 2030 and 51% in 2040. (Eurostat EUROPOP2019 disaggregated at NUT3 level). European Commission 
Communication, Harnessing Talent in Europe’s regions, p. 5. 

124 

 
 
 
addition, the targeted nature of this PO, focusing only to specific 
occupations would further limit the risk of brain drain in third 
countries.  

This PO is expected to have a positive impact on remittances. 
Protection  from  unfair  recruitment  and  exploitative  working 
conditions via checks on employers would also positively affect 
remittances. 

2. Summary of costs and benefits 

The tables below present the estimated costs and benefits associated with the preferred option 
(PO2). Benefits are mainly in the form cost savings for the users of the platform (TCNs and 
employers). However, it is important to note that benefits resulting from the preferred options 
are difficult to monetise as they are partially linked to time savings for employers and TCNs 
during the recruitment processes. A detailed overview of  quantifiable cost-savings (monetary 
and in terms of time) associated with the steps of the recruitment process is available in Annex 
10.  

On the other hand, costs were mainly identified for national authorities and include both one-
off and recurring costs (see Annex 10 for a detailed description). 

A detailed explanation of the assumptions and calculations underlying the estimated costs and 
benefits is provided in Annexes 4 and 10.  

As  some  costs  and  benefits  vary  depending  on  the  number  of  Member  States  participating 
difference  ranges  are  provided  below  depending  on  whether  11  or  20  Member  States 
participating in the EU Talent Pool. 

I. Overview of Benefits (total for all provisions) – Preferred Option 

Description 

Amount 

Comments 

Direct benefits 

Simplification of 
international 
recruitment 
procedures for 
employers (e.g. 
easier and faster 
identification and 
matching) 

EUR 150 – 400 (per employer)  

EUR 74 271 000 – 77 687 5000 (for 
20  Member 
11 
States 
or 
all 
(average 
participating) 
employers  participating  in  the  EU 
Talent Pool) 

for 

The  costs  associated  with  international 
recruitment  are  normally  borne  by 
employers  (between  EUR  1  500  and 
EUR 2 500 per candidate. EUR 8 500-
10  000 
is  support  of  recruitment 
agencies).  

As  the  new  platform  would  be  free  to 
use  for  business,  and  especially  SMEs, 
cost savings for employers would result 
from  the  fact  that  they  do  not  need  to 
pay  additional  money  to  publish  their 
vacancies  online  or 
to 
external support services. 

recurring 

125 

 
 
 
 
 
n.a. (not quantifiable savings) 

EUR 11 500 (per employer) 

EUR 3 132 195 000 – 3 265 111 000  
(for  11  or  20  Member  States 
participating) 
employers 
participating in the EU Talent Pool) 

(all 

126 

to 

the 

these 

linked 

linked 

effective 

steps  of 

the 
entire 

the  various 

and 
of  TCNs 

Apart  from  direct  costs  savings,  the 
preferred  policy  option  would  result  in 
quicker 
more 
residing 
recruitment 
abroad.  Benefits  related  to  employers 
to  time-savings 
are  mainly 
across 
the 
recruitment  process  (e.g.  provision  of 
information  and  personalised  support, 
tools  and 
matching  and  searching 
possibility 
fast-track 
include 
time 
procedures).  However, 
savings  are  not  quantifiable  (see 
Annex  10).    Cost  savings  would  be 
time  saved 
to 
mainly 
throughout 
recruitment 
process.  Overall    shorter  recruitment 
procedures  would  mean  that  the  third-
country workers would commence their 
job  sooner, which in  turn could  lead to 
more efficiency on the labour market in 
terms  of  greater  job  matching  and 
shortages  filled,  as  well  as  potential 
increases in business productivity. This 
will  also  result  in  fiscal  benefits  in 
terms  of  tax  contributions.  In  addition, 
the  preferred  PO  would  ensure  better 
quality  of  matches  and  profiles,  thus 
further 
businesses 
productivity  and  growth.  The  preferred 
option  has  also  an  important  added 
value  in  reducing  the  barrier  of  entries 
for  companies  that  cannot  otherwise 
allocate 
to 
international 
recruitment,  especially 
among  Small  and  Medium  Enterprises 
(SMEs). (See annex on SMEs test). 

benefitting 

resources 

financial 

foresees 
for  Member  States 

A  part  from  non  quantifiable  savings, 
the 
the  preferred  option 
possibility 
to 
introduce fast-track procedures. If those 
measures are introduced by all Member 
the  preferred  option  would 
States, 
reduce 
for 
the 
international  recruitment  by  around  3.5 
months while increasing the chances of 
successful  matches.  Thus,  this  option 
has  a  relatively  strong  financial  impact 
costs 
in 

time  needed 

opportunity 

terms 

total 

of 

 
 
 
(additional  revenue  when  conducting 
international 
the 
Talent Pool). 

recruitment  with 

As  described  above  with  regard  to  the 
employers,  TCNs  would  benefit  from 
time-savings across the various steps of 
to 
the  recruitment  process  (access 
single  platform 
find  vacancies, 
to 
information provision and support etc.). 
However,  these  time  savings  are  not 
quantifiable.  In  addition,  protection 
against  unfair  recruitment  and  working 
conditions under the preferred option is 
expected  result  in  fairer  payment  and 
conditions,  which  may 
working 
increase 
the 
medium to long run. 

labour  productivity 

in 

foresees 
for  Member  States 

A  part  from  non  quantifiable  savings, 
the 
the  preferred  option 
possibility 
to 
introduce fast-track procedures. If those 
measures are introduced by all Member 
the  preferred  option  would 
States, 
reduce 
for 
the 
international  recruitment  by  around  3.5 
months while increasing the chances of 
successful  matches. 
terms  of 
opportunity  costs  this  would  result  in 
additional  wages  stemming  from  the 
use of the EU Talent Pool.   

time  needed 

total 

In 

Member  States  would  benefit  from 
additional  GDP  resulting  from 
the 
higher  number  of  TCNs  working  and 
residing in the Member States. 

Public  finances  of  theMember  States 
would 
fiscal 
contribution  of  the  additional  TCNs 
working  in  the  Member  State  as  result 

benefit 

from 

net 

n.a. (not quantifiable) 

Simplification of 
international 
recruitment 
procedures for 
TCNs (e.g. easier 
and faster 
identification and 
matching) 

EUR 3 750 (per TCNs) 

EUR 1 044 065 000 – 1 088 370 000 
(for  11  or  20  Member  States 
(for  all  TCNs 
participating) 
recruited via the EU Talent Pool) 

Indirect benefits 

Increase in GDP   EUR 3.855 – 4.255 billion (for 11 or 

20 Member States participating) 

Increase  in  fiscal 
contribution 
of 
TCNs 

EUR  918  957  million  (for  11  or  20 
Member States participating) 

127 

 
 
 
 
 
benefits, 

of  this  initiative.  This  covers  not  only 
all types of cash benefits received at the 
individual  or  household  level,  such  as 
unemployment 
family 
benefits,  and  pensions,  but  this  also 
includes  the  monetary  value  of  in-kind 
benefits  that  individuals  receive  for 
health, social housing and education. In 
general,  welfare  expenditures  in  favour 
of  EU  nationals  are  higher;  i.e.,  EU 
nationals  tend  to  benefit  more  from 
public expenditures than migrants.  The 
preferred  option  will  benefit  concerned 
Member States, accordingly, depending 
on  their  participation  to  the  EU  Talent 
Pool. 

The  economies  of  third  countries  will 
benefit from additional remittances sent 
by TCNs coming to work within the EU 
as  a  result  of  the  successful  matches 
provided by the EU Talent Pool. 

This  estimate  must  be 
taken  with 
caution because it is based on a world-
the  patterns  of 
wide  sample  and 
remittances  may  vary 
remarkably 
across continents and type of migrants. 

Indirect benefits 

Additional 
remittances to 
third countries 

EUR 712 – 748 billion (for 11 or 20 
Member States participating) 

II. Overview of costs – Preferred option 

Citizens/Consumers   Businesses 

Administrations 

EC 

One-off  Recurrent  One-

off 

Recurre
nt 

One-off  Recurrent  One-off 

n/a 

n/a 

n/a 

n/a 

PO 2  

Direct 
costs 

EUR  2 
672  400 
– EUR 4 
175 625  

EUR 9 788 
075  –  16 
583 
867 
(including 
governance 
and 
IT 
maintenanc
e)   

6 
EUR 
722  056 
–  6  804 
539    (IT 
platform 
develop
ment) 

Recurre
nt 

EUR  7 
332 
755 – 7 
947 
497 
(includi
ng, 
staff, 
IT 
mainte
nance 

128 

 
 
 
 
 
 
 
and 
other 
costs)  

Indirect 
costs 

n/a 

A detailed assessment of the costs associated to the preferred option is provided in Annex 10. 

With  regard  to  table  III  below,  no  new  or  removed  administrative  burden  on  businesses  and 
citizens is expected under the preferred option. 

3. Relevant Sustainable Development Goals 

This  section  describes  the  expected  impacts  of  the  most  relevant  Sustainable  Development 
Goals (SDG) identified in the impact assessment. 

IV. Overview of relevant Sustainable Development Goals – Preferred Option 

129 

 
 
 
 
 
 
Relevant SDG 

SDG1 – No poverty  

Expected progress towards 
the Goal 

Comments 

impact 

positive 

A 
in 
addressing  inequalities  and 
distribution  of  incomes  is 
expected  as  TCNs  would 
access better quality jobs. In 
addition,  higher  remittances 
in 
are 
third 
expected.  

countries 

SDG 8 – Decent work and 
economic growth  

from 

A  positive  economic  impact 
would  accrue 
the 
international  recruitment  of 
to 
TCNs  residing  abroad 
labour 
address  skills  and 
shortages. 
this 
Thus, 
initiative  would  benefit  the 
and 
productivity 
EU 
economic gains.  

bear 

support 

to 
Specific 
recruitment 
international 
would 
particularly 
be 
beneficial  for  SMEs  as  they 
are 
a 
to 
likely 
burden 
disproportionate 
when 
in 
large 
comparison 
to  more 
enterprises  due 
limited 
The 
increased  numbers  of  TCNs 
workers  SMEs  are  able  to 
their 
recruit  would  boost 
growth perspectives. 

hiring  TCNs 

resources 

to 

be 

considered 

To 
in 
conjunction  with  SDG  10 
below.  

This initiative would entail a 
wide  pool  of  candidates 
easily  accessible,  specific 
tools 
the 
facilitating 
matching  (e.g.  filters  and 
tool), 
automatic  matching 
personalised guidance by the 
National  Contact  Points  as 
well  as  online  information 
provision  on 
recruitment, 
immigration and recognition 
procedures.  In  addition,  by 
providing  a  focused  pool  of 
candidates 
pre-screening 
better  quality 
recruitment 
would be ensured 

TCNs  workers  would  be 
protected  against  the  risk  of 
and 
recruitment 
unfair 
adequate working conditions 
and 
in 
line  with  EU 
international 
standards 
would  be  ensured.  The 
preferred 
options  would 
have  a  positive  impact  on 
employment  protection 
in 
terms quality of work. 

employers’ 

The  development  of  an  EU-
platform 
wide  matching 
job 
where 
vacancies  are  registered  by 
the  National  Contact  Points 
in the Member States would 
ensure that quality assurance 
checks on employers and job 
vacancies  are  adequately 
conducted  (see  also  SDG 
10) 

130 

 
 
 
 
SDG 9 – Industry 
innovation and 
infrastructure  

SDG 10 – Reduced 
inequalities 

this 

By  facilitating  international 
initiative 
recruitment, 
would  have 
a  positive 
impact  on  EU  companies’ 
capacity to conduct R&D. 

in  conjunction  with 

See 
SDGs 1 and 10. 

A  positive 
overall 
innovation and research. 

impact  EU’s 
for 

capacity 

In  addition,  as  mentioned 
under  SDG  8,  a  particularly 
positive  impact  is  expected 
for SMEs.  

against 
Better  protection 
discrimination 
is  expected 
from  this  initiative  as  non-
discriminatory  criteria  for 
the  candidates  would  be 
ensured 
the  matching 
process.  In  addition,  quality 
job  vacancies 
checks  on 
ensure  protection 
would 
against 
discriminatory 
practices. 

in 

131 

 
 
 
 
 
ANNEX 4  
ANALYTICAL METHODS 

This Annex provides an overview of the key assumptions on the basis of which the assessment 
of costs and benefits under each policy option is conducted (see Annex 10). These assumptions 
are based on the methodology used by an external contractor in the impact assessment study 
commissioned by DG HOME in preparation of this impact assessment.  

1.  KEY ASSUMTIONS FOR THE ASSESSMENT OF THE POLICY OPTIONS  

The assessment of the policy options, including their effectiveness and efficiency, is based on 
following estimations:  

a)  Number of Member States participating in the initiative; 
b)  Number of potential users (TCNs and employers) of the EU Talent Pool by 2030; 
c)  Number of successful matches via the EU Talent Pool. 

The  key  assumptions  and  methodological  choices  underlying  these  estimations  are  described 
below. 

1.1 Number of Member States participating in the initiative 

All the POs foresee the development of a voluntary EU Talent Pool leaving Member States 
the  possibility  to  decide  whether  they  want  to  participate.  Certain  costs  and  impacts  vary 
depending  on  the  number  of  Member  States  participating.  In  order  to  provide  a  clear  and 
realistic  assessment,  uncertainties  linked  to  the  potential  uptake  of  the  initiative  should  be 
taken into account. To this purpose it was assumed that a minimum of 11 Member States and 
a maximum of 20 Member States would participate in the EU Talent Pool. A range of costs 
and  impacts  estimated  under  each  scenario  is  presented  below  in  the  assessment  of  each 
policy option.  

This  assumption  was  based  on  a  number  of  considerations.  Whilst  the  initiative  would  be 
designed to be attractive as many Member States as possible, it is likely that their participation 
would  be  a  gradual  process  with  only  some  Member  States  joining  in  the  first  years  of 
operation and a progressive increase expected in the long run. The minimalistic scenario (with 
11 Member States participating) was built taking into account that legal migration is an area of 
share  competences  where  Member  States  tend  to  be  cautious  to  engage  in  view  of  political 
sensitivity  of  migration  overall.  Consultations  also  demonstrated  that  some  Member  States 
interested  in  the  initiative  would  wait  to  see  the  first  outcomes  of  the  operation  of  the  EU 
Talent  Pool  before  deciding  to  formally  join.  Therefore,  it  was  assumed  that  Member  States 
with  a  stronger  interest  may  join  from  the  outset,  while  others  will  follow  after  2030.  In  the 
long run, a higher uptake of the initiative is foreseen as demonstrated by the fact that the large 
majority of Member States consulted welcomed the initiative. In addition, it can be reasonably 
assumed  that  several  Member  States  will  join  in  view  of  the  pressing  needs  related  to  the 
challenging  demographic situation which would require to  rely  on legal  migration to  address 
and future skills and labour shortages that cannot be sufficiently addressed by the EU domestic 
workforce.   

The number of Member States participating would also imply a different number of expected 
successful matches stemming from the EU Talent Pool. An higher uptake of the initiative by 
the  Member  States  would  result  in  a  higher  number  of  TCNs  interested  in  registering  their 
profiles  in  the  EU  Talent  Pool  and,  hence,  in  a  higher  number  of  successful  matches. 
Therefore, ranges of expected successful matches with 11 and 20 Member States participating 
are provided below. Assumptions linked to the higher attractiveness of the EU Talent Pool in 
132 

 
 
  
case of a higher number of Member States participating are explained below (Section 1.2 point 
2)).  

1.2 Estimated number of potential TCNs interested in using the EU Talent Pool 

The  estimation  of  the  number  of  TCNs  from  abroad  potentially  interested  in  seeking  job 
opportunities  in  the EU by 2030 provides an indication of the number of TCNs potentially 
interested in using the EU Talent Pool. 

1)  Baseline:  Number  of  TCNs  from  abroad  potentially  interested  in  seeking  job 
opportunities in the EU by 2030 

The baseline for the estimation of the number of expected TCNs using the EU Talent Pool is 
based on a hypothetical  model taking into account two factors: the number of TCNs profiles 
available  in  mid-2023  in  the  EUROPASS  database  and  the  projected  trends  in  the  legal 
migration to the EU by 2030. 

1.A) Number of TCNs profiles available in the EUROPASS database 

The estimation of the number of TCNs profiles in the EU Talent Pool was based on the current 
number  of  TCNs  profiles  available  in  the  EUROPASS  database.226  The  number  of  TCNs 
who registered a profile on EUROPASS and created a CV was used as a proxy to estimate the 
number  of  TCNs  potentially  interested  in using  the  EU  Talent  Pool. This  number  shows 
the  level  of  interest  of  TCNs  jobseekers  to  seek  employment  opportunities  in  the  EU.  The 
rationale  behind  this  methodological  choice  was  based  on  the  fact  that  investing  time  and 
efforts in creating a profile and preparing a CV on EUROPASS indicates genuine interest in 
pursuing professional opportunities within the EU job market. In addition, it shows  a certain 
level of IT skills which are equivalent to those that would be required to create a profile on the 
EU Talent Pool platform.  

Almost 1 300 000 CVs of TCNs were registered in EUROPASS in mid-2023227 

1.B) The projected trend in the legal migration by 2030 

The number of TCNs profiles registered in  EUROPASS is a static picture of the situation in 
mid-2023.  According  to  the  baseline  scenario,  labour  migration  is  projected  to  grow  in 
2030228 (and, therefore also the number of potentially interested TCNs). Therefore, the stock of 
registered  profiles  in  EUROPASS  is  adjusted  in  line  with  the  estimated  trends  in  labour 
migration  (extrapolated  on  the  basis  of  the  number  of  legal  permits  issued  for  employment 

226  

227  

228  

While  the  number  of  Europass  profiles  of  TCNs  also  includes  profiles  of  TCNs  living  in  the  EU,  there  are  many 
TCNs that seeking employment in the EU without creating a Europass  profile. Hence, we consider that both these 
factors will balance themselves out and the number of Europass TCN profiles is the conservative proxy. 
Approximately 1 300 000 TCNs profiles were registered in EUROPASS in May 2023. See EUROPASS website and 
statistics. 
According  to  EUROPOP2023  projected  net  migration  and  on  the  share  of  first  residence  permits  given  for 
employment purposes in the period 2017-2021, the estimated inflows of TCNs coming for employment purposes is 
expected to be about 400.000 per year, adding up to a cumulated 3.8 million by 2030. 

133 

 
 
 
 
 
 
purposes  in  2015-2022),  resulting  in  a  multiplier  factor  of  2,64  to  be  applied  up  to  2030 
reflectig the past trend of the last 7 years 229. 

Number of TCNs from abroad potentially interested in seeking job opportunities in the EU  
by 2030 

1.246.136 x 2,64 = 3 290 000 (approximated) 

Therefore,  the  number  of  TCNs  profiles  in  EUROPASS  adjusted  with  the  labour  migration 
projections in 2030 formed the basis for the expected number of interested TCNs in registering 
in the EU Talent Pool.  

2) Attractiveness factors of the EU Talent Pool compared to the baseline 

In order to estimate how many TCNs are likely to register in the EU Talent Pool, the additional 
factors have to be taken into account on top of the baseline:  

•  Awareness Campaigns worldwide would promote the EU Talent Pool and increase the 
number of TCNs outside of the EU interested in using the Talent Pool compared to the 
baseline. According to the survey carried out by the contractor of the study supporting 
the Impact Assessment Report, 28% of TCNs that have never applied for a job in the 
EU  would  be  interested  in  using  the  EU  Talent  Pool230.  On  this  basis,  taking  into 
account  different  models  of  the  Talent  Pools  under  each  POs,  it  is  estimated  that  the 
awareness campaign would increase the number of TCNs using the EU Talent Pool by 
+1% of the baseline for PO1, +10% for PO2 and +30% for PO3 (under the scenario of 
11  Member  States  participating)  231    A  30  %  increase  was  assumed    for  PO3  on the 
basis of the results of the survey mentioned above.232 In particular it is estimated that 
information  campaigns  under  PO3  would  have  the  highest  impact  as  it  opened  to  all 
occupations  and,  therefore,  is  expected  to  be  more  attractive  for  TCNs.  PO2  is  also 
expected to have a high impact, provided that similar features as those envisaged under 
PO3  are  foreseen.  However,  in  view  of  its  targeted  nature  focusing  only  on  certain 

229  

230  

231  

232  

The  projection of past  increase  in  the  issuance of  legal  permits  for  employment purposes over the  next 7 years  is 
used as a measure of the trends in the interest to search and apply for a job vacancy in the EU. This trend is a proxy 
as Eurostat data harmonising statistics on total applications for legal permits and the share of rejected applications in 
respect of successful applications for all types of permits are not available yet. As the EU Talent Pool is essentially a 
tool for facilitating matching of demand and supply of labour, only the legal permits for employment purposes were 
taken into account in the period between 2015 and 2022, resulting in the 2.64 multiplier factor. 
The  survey  was  used  as  proxy  for  identifying  the  potential  information  campaign  effect.  The  fact  that  28%  of 
respondents would be interested in participating to the initiative when it includes EU job postings is an indicator that 
the  information  they  received  on  the  initiative  was  relevant  and  would  have  triggered  an  action  from  their  side 
(registering in the EU Talent Pool). Therefore, this is an indication of the potential increase in interested participants 
that raising awareness of the initiative would generate. 
PO3  is open  and  covers  all occupations,  hence  it  is  expected to be  the  most  attractive  for  TCNs.  PO1 is  the  least 
attractive  for  them  in  terms  of  functionalities  (as  it  is  a  repository  of  anonymized  CVs  without  a  matching  tool) 
offers  and  perspectives  of  the  successful  employment.  PO2  is  much  more  attractive  than  PO1  but  in  view  of  its 
targeted nature that would cover only some shortage occupations, it will attract a smaller number of additional TCNs 
than PO3. 
The  30%  increase  of  interested TCNs  was  also  based  on  the  results  of  the  stakeholders’  survey conducted  by  the 
external contractor in 8 third countries with 880 TCNs participants. 28% of TCNs in origin countries responded that 
their likelihood to register to a portal that offers the search of job postings is very high (i.e. 10 on a scale from 1 to 
10). Additionally, almost 45% of respondents indicated that having a matching tool that recommends job postings 
matching their profile would strongly increase their likelihood of registering (i.e., 6-7 on a scale from 1 to 7). Those 
results significantly indicate a preference among TCNs in third countries for PO2 and, especially PO3, as both offer 
the  possibility  of  searching  across  job  openings  and  the  inclusion  of  matching  tools  (more  sophisticated  and 
automated under PO3).   

134 

 
 
 
 
occupations, it is assumed that the EU Talent Pool would attract  a smaller number of 
TCNs in comparison with PO3. Therefore, the effect was assumed to be 10 percentage 
points lower than for PO3 (i.e., 20%). PO1 is the least attractive option for TCNs due to 
its  limited  functionalities  (e.g.  no  matching  tool  and  list  of  job  vacancies  available). 
Therefore a 1% increase was assumed under this policy option.  

In  addition,  the higher uptake of the initiative by the Member States would  make the 
EU  Talent  Pool  more  attractive  for  TCNs  interested  in  working  in  the  EU.  The 
increased attractiveness is explained by the fact that TCNs would be able to search for 
job vacancies in more Member States and the number of job vancies available on the 
EU Talent Pool would be higher given the higher number of employers allowed to use 
the  tool.  Therefore,  under  the  scenario  envisaging  the  participation  of  20  Member 
States, it is expected that the information campaign would have more positive results 
and  an  additional  5%  of  TCNs  would  be  interested  in  registering  on  the  EU  Talent 
Pool. 

• 

It is also estimated that some potential irregular migrants would decide to use the EU 
Talent Pool instead of using illegal channels to migrate to the EU. It is estimated that 1 
% of such migrants for PO1, 5% for PO2 and 10% for PO3 will decide to use the EU 
Talent Pool.233  

•  Additionally,  the  operational  link  with  the  Talent  Partnerships  under  PO2  is 
assumed  to  have  a  relevant  positive  effect  on  registration  numbers  since  all  TCNs 
participating in Talent Partnerships will be directly registered on the EU Talent Pool by 
the Liaison Officers.234  

As  shown  in  the  table  below,  all  these  elements  were  used  to  estimate  the  number  of  TCNs 
potentially interested in registering their profiles on the EU Talent Pool platform. The different 
ranges indicated below refer to the two scenarios with  11 or 20 Member States participating. 

POs 

Baseline  of 
TCNs 
interested 
in 
registering 
the 
profiles235 

Attractiveness factors of the EUTP 

additional  TCNs  interested  in  registering  on  top  of  the 
baseline  in  view  of  the  establishment  of  the  EU  Talent 
Pool 

of 

Nr 
additional 
TCNs 
attracted 
following  the 
global 
awareness 
campaigns236 

of 

potential 
Nr 
irregular  migrants 
that  decide  to  use 
instead  of 
EUTP 
irregular 
migration237 

TCNs taking 
part  in  the 
Talent 
Partnerships 

TCNs 
Expected 
in 
interested 
registering  the  profile 
the 
(summary 
baseline 
+ 
attractiveness factors) 

of 

233  

234  

235  

236  

Irregular  migrants  are  estimated  as  10%  of  expected  regular  flows  (on  the  basis  of  the  ratio  of  1:10  between  the 
illegal border crossings to the EU detected by Frontex and the first residence permits in 2022). It is expected that 
there will be 16 million of legal migrants for all purposes by 2030. 
The  number  of  people  trained  under  10  Talent  Partnerships  will  be  registered  in  the  Talent  Pool.  10  Talent 
Partnerships would involve around 30 000 (assuming an average of 3000 individuals trained and obtaining the Talent 
Partnership PASS, per country). 
Baseline: Number of EUROPASS CVs of TCNs in 2023 x 2.64 (projected labour migration trend extrapolated on the 
basis of the number of legal permits issued for employment purposes between 2015 and 2022) 
It is estimated that the awareness campaigns will increase the number of TCNs interested in registering in the Talent 
Pool compared to the baseline (1% increase for PO1, 10% for PO2, and 30% for PO3). As for PO2, in all countries 
apart from the Talent Partnership countries, the increase will be 10%.  

135 

 
 
 
 
 
PO1238 

3 290 000 

PO2 

3 290 000 

PO3 

3 290 000 

32 900  - 197 
400 

1%  -  6%  of 
the baseline 

329  000  – 
493 500 

10% - 15% of 
the baseline 

9  870  000    - 
1 151 500 

30% - 35% of 
the baseline 

16 000 

N/A 

3 338 900 – 3 503 400 

1%  of  the  irregular 
migration flows 

80 000 

30 000 

3 729 000 – 3 893 500 

5%  of  the  irregular 
migration flows 

TCNs 
participating  in 
10 
Talent 
Partnerships 

160 000 

N/A 

4 437 000 – 4 601 500 

10%  of  the  irregular 
migration flows 

1.3 Estimated number of potential TCNs in the EU Talent Pool 

Following  the  registration,  the  completeness  of  candidates’  profiles  is  checked.  Several 
profiles  registered  on  online  platforms  are  often  incomplete,  fake  or  lacking  relevant 
information requested in the profile form. In order to avoid the EU Talent Pool being feed in 
with  incomplete  and  unusable  profiles,  completeness  checks  would  include  basic  automatic 
data cleaning (e.g. incomplete information, suspicious content detection, repetitive information 
detection,  format  verification,  etc).  Therefore,  those  checks  would  detect  any  relevant 
inconsistency in the data (e.g. fields were filled in with random letters to be able to be accepted 
to the platform). This is estimated to lead to a reduction of 1% of the registered profiles under 
all POs.  

While under PO1 and PO3, registered TCNs are automatically admitted into the pool following 
the  completeness  checks,  PO2  foresees  in  addition  an  automated  pre-screening  of  TCNs 
profiles  based  on  the  occupations  targeted  by  the  initiative.  Therefore,  under  PO2  it  was 
estimated that 35% of the registered profiles are expected to be screened out as the skills and 
qualifications declared by the candidate do not correspond to those required to work in one of 
the occupations targeted by the EU Talent Pool. This means that, 65% of registered profiles are 
expected  to  successfully  pass  the  pre-screening.239  By  contrast,  no  pre-screening  is  foreseen 
under PO1 and PO3.  

237  

238  

239  

It is estimated that in view of the establishment of the EU Talent Pool, some potential irregular migrants will decide 
to use the Talent Pool to get to the EU legally instead of taking an irregular route.  It is estimated that for PO1 it 
would be 1% of such potential irregular migrants, for PO2 5% and for PO3 10% of projected irregular migrants. It is 
assumed that the number of irregular migrants to legal migrants is 1:10 (on the basis of the 2022 ratio). 
PO1  is  a package of non-legislative  measures  around  repository of  CVs  on  the  model  of  EuroAxess,  with  limited 
search functionalities. 
The pre-screening entails the exclusion of potentially interested TCNs to work in occupations that are not targeted by 
the EU Talent Pool. The estimate rate of potentially interested TCNs that would be successfully pre-screened on the 
basis of the relevant occupations, was based on the fact that around 50% of current jobs for TCNs are in occupations 
that  may  not  be  included  under  PO2.  This  is  based  on  the  current  distribution  of  labour  migrants  across  different 
occupations which would reflect the potential distribution of expected profiles in the EU Talent Pool (based on the 
Labour Force Survey ad-hoc module 2021). However, it is assumed that the pre-screening rate would be lower than 
50%  as  a  large  number  of  TCNs  registering  in  the  platform  would  be  interested  in  working  in  the  occupations 
targeted  by  the  EU  Talent  Pool as  a  resulted  of  the information campaigns  that  would  specifically  focus  on  those 
occupations and would be aimed at attracting TCNs working in these occupations. 

136 

 
 
 
 
 
 
 
The  table  shows  the  numbers  of  estimated  TCNs  profiles  in  the  EU  Talent  Pool  under  each 
policy  options  for  each  step.  The  different  ranges  indicated  below  refer  to  the  two  scenarios 
with  11 or 20 Member States participating. 

POs  Expected 

TCNs 
interested 
in 
registering  the 
profile * 

Checks  on 
completion 
of profiles 

Expected  CVs 
after  checks  on 
profiles 
completion  

Pre-
screening  

Expected  CVs  in 
the platform  

PO1   3  338  900  –  3 
503 400 

- 1% 

3  305  500  –  3 
468 366 

n/a 

PO2 

PO3 

3  729  000  –  3 
893 500 

- 1% 

3  692  000  –  3 
854 865** 

- 35% 

4  437  000  –  4 
601 500 

- 1% 

4  293  000  –  4 
555 485 

n/a 

3 305 500 – 3 468 
366 

2 410 000 – 2 516 
165** 

4 293 000 - 4 555 
485 

* These estimations already include the effects of information campaigns and irregular migration flows (which raise expected 
registrations for each policy option) and interlinkages with Talent Partnership (which raise expected registrations for PO2). 

** Checks on completion of profiles and pre-screening is not applied to the 30 000 TCNs coming via Talent Partnerships. 

1.4 Estimated number of potential job vacancies registered in the EU Talent Pool 

To  estimate  the  number  of  employers  interested  to  publish  their  job  vacancies,  it  was 
considered the number of job openings projected by Cedefop for the year of 2030.240  

These job openings stem from both expected additional job creation, due to the transformation 
of the EU economy up to 2030, coupled with the need of replacing existing workforce existing 
the  labour  market  due  to  the  ageing  demographics.  The  estimated  maximum  potential  job 
openings  for  an  EU-wide  platform  available  under  the  different  options  are  presented  in  the 
table below. The share of job vacancies potentially open to TCNs was estimated on the basis of 
the existing distribution of employed TCNs in the EU, on the basis of the 2021 ad hoc module 
on migrants of the Labour Force Survey (2021 LFS) at ISCO 2-digit level. 

It  is  important  to  note  (as  explained in  Section 1.1)  that the potential uptake of the initiative 
was  identified  by  defining  a  range  of  participating  Member  States  (11  or  20  Member  States 
participating. As only employers established in participating Member States would be able to 
use the EU Talent Pool,  the number  of expected job  vacancies would vary depending  on the 
number  of  Member  States  participating.  A  higher  number  of  Member  States  participating  in 
the  EU  Talent  Pool  would  result  in  a  higher  number  of  employers  able  to  register  their  job 
vacancies  on  the  platform.  Therefore,  different  ranges  of  job  vacancies  registered  in  the 
platform  are  identified  below  considering  the  two  scenarios  of  11  and  20  Member  States 
participating.  

240  

Cedefop  skills  forecast.  However,  only  a  share  of  the  total  job  openings  was  considered  in  order  to  reflect  the 
potential number of job openings for TCNs. The share was estimated by considering the current percentage of TCN 
workers  out  of  total  EU  workforce  (i.e.,  5%  according  to  Eurostat,  labour  force  statistics,  custom  extraction)  and 
adjusting  it  to  2030  (i.e.,  increasing  this  share  to  7.5%  to  consider  current  population  and  migration  trends.  This 
entails that 7.5% of the total job openings was considered as potential job vacancies to be included in the EU Talent 
Pool.  

137 

 
 
 
 
In addition, as mentioned above, under PO2 (limited only to certain occupations), the number 
of  job  opening  was  further  restricted  to  reflect  the  targeted  approach.241  This  explains  why, 
under PO1 and PO3 having an open approach (hence not targeting only certain occupations), 
the number of estimated job vacancies available in the EU Talent Pool is higher.  

The  table  below  provides  an  overview  of  expected  job  openings  to  be  registered  in  the  EU 
Talent Pool by 2030 under the each option. Ranges are provided in case of participation of 11 
or 20 Member States. These figures represent the maximum potential stock of vacancies which 
could be registered up to 2030, but at the difference of TCN jobseekers there is not proxy such 
as profiles registered in the Europass dataset242.  

PO 

Estimated job openings for TCNS registered on the EU Talent Pool 

PO1 

PO2 
PO3 

3 830 000 – 5 100 000 

1 720 000 – 2 300 000 
3 830 000 – 5 100 000 

1.4 Estimated number of successful matches via the EU Talent Pool 

Once the number of potential users in the EU Talent Pool is estimated (the supply side being 
represented by the TCNs jobseekers and the demand of labour by the employers), the expected 
successful  matches  need  to  be  calculated  in  order  to  determine  the  potential  impacts  of  the 
initiative.  

Successful matches indicate the number TCNs selected in the context of the EU Talent Pool 
and,  therefore  receiving  and  accepting  a  job  offer  made  by  an  employer  for  a  specific  job 
vacancy. 

The recruitment process encompasses the identification of potential candidates in the platform 
via the search by filters functionality as well as the automatic matching tool which shows a list 
of suitable candidates.  It also includes the interviewing and skills testing phase. A successful 
match between an  employer and  a candidate is,  therefore, the outcome of this process.  After 
receiving a job offer, TCNs have to apply for a work permit in the Member States. Therefore, 
the estimated number of successful matches is not equivalent to the number of TCNs obtaining 
a  work  permit  as  the  subsequent  immigration  procedure  depends  on  the  assessment  of  the 
national  authorities  which  might  include  additional  requirements  to  the  simple  job  offer  (job 

241  

Only  job  openings  of  the  13  ISCO  2-digit  level  occupations  identified  as  of  EU  and  national  relevance,  thereby 
covering those occupations for which projected available workforce is insufficient. 13 ISCO occupations of strategic 
relevance  were  identified.  These  occupations  were  selected  based  on  ELA's  list  of  widespread  and  persistent 
shortages, complemented with inputs from Commission Services. ELA shortages report (2023) presents occupations 
at  ISCO  4-digit  level,  as  used  under  the  problem  definition  and  for  the  baseline.  However,  data  on  employment 
levels of migrants and job openings is not available at this level of disaggregation. Therefore, the 4-digit occupations 
suffering from shortages were aggregated at 2-digit level, leading to a certain approximation to our estimation. The 
list  includes :  21  –  science  and  engineering  professionals,  22  –  health  professionals,  24  –  business  administration 
professionals, 25 – information and communications technology professionals, 31- science and engineering associate 
professionals, 51 – personal service workers, 53 – personal care workers, 71 – building and related trades workers 
excluding  electricians,  72  –  metal  machinery  and  related  trades  workers,  74  –  electrical  and  electronic  trades 
workers,  75  –  food processing  wood  working garment  and  other craft  and  related  trades,  83  – drivers  and  mobile 
plant operators, 91 – cleaners and helpers. Commission Services’ inputs were also considered when drawing this list 
to  include  occupations  that  have  not  been  in  widespread  shortage  in  previous  years  but  are  likely  to  grow  in 
importance for the transition due to their active role in the acceleration of greening activities. 

138 

 
 
 
 
 
placement).  However,  the  discrepancy  between  the  number  of  successful  matches  and  the 
number of issued work permits is not expected to be significant.  

The success rate of matches indicates the number of job offers received by TCNs compared to 
the number of expected TCNs interested in registering their profile in the EU Talent Pool. 

The  success  rate  of  matches  was  estimated  to  calculate  the  number  of  successful  matches. 
Under  each  PO,  a  different  selection  rate  was  identified243  on  the  basis  the  expected 
quality of the profiles which would imply greater chances to satisfy employers’ needs. 

1)  Under  PO1  a  selection  rate  of  0,5%  was  assumed  considering  the  added  value  of  the 
initiative in facilitating international matching compared with current situation (the baseline). 
However, this selection rate is lower compared with the other POs due to the limited tools and 
supports measures available under this option.  

2) Under PO2 a selection rate of 7% was assumed. This is the highest rate (compared with the 
other  POs)  due  to  the  expected  better  quality  of  candidates’  profiles  arising  from  the  pre-
screening  process,  the  inclusion  of  TCNs  profiles  certified  in  the  context  of  the  Talent 
Partnerships as well as IT tools and support services facilitating the matching. 

243  

243  

243  

243  

https://www.jobvite.com/blog/recruiting-funnel/; 

These rates were built on the basis of evidence gathered in the context of the study to inform the Impact Assessment 
conducted  by  the  external  contractor.  This  evidence  was  gathered  through  literature  review,  desk  research  and 
interviews with relevant stakeholders active in the field of international recruitment. The share of jobseekers finding 
employment  thanks  to  the  involvement  of  Public  Employment  Services  in  their  job  search  averages  at  around 7% 
according  to  inputs  from  Commission  Services.  Systematic  publicly  available  data  regarding  these  rates  across 
industries in the European Union are lacking. However, the limited data sources from both Europe and other regions 
suggest  that  the  share  of  jobseekers  which  obtain  a  job  offer  following  the  selection  process  is  to  be  below  5%. 
Notably,  sources  such  as  Jobvite,  propose  a  rate  ranging  between  1%  and  2%.  See  for 
instance, 
https://ideal.com/recruiting-metrics/; 
https://zety.com/blog/hr-
statistics. Additionally, while context matters, stakeholders consulted by the contractor in the context of this study 
have indicated that around 80-90% of the CVs received will be screened out as not matching the requirements of the 
job.      
The  selection  rate  refers  to  the  proportion  of  the  admitted  profiles  that  will  be  successfully  matched  with  job 
vacancies  under  each  policy  option.  In  other  words,  it  indicates  the  percentage  of  profiles  that  employers  are 
expected to select from the total pool of admitted candidates for potential job offers. Systematic publicly available 
data regarding selection rates across industries in the European Union are lacking. However, insights gathered from 
consultation activities conducted by the contractor indicate that among 100 received CVs for a position, only around 
30%  are  typically  shortlisted  for  deeper  consideration  following  pre-screening.  Furthermore,  sources  such  as 
CareePlug observe an average interview-to-hire ratio of 48%, indicating that a significant portion of candidates who 
have passed the pre-screening phase reaching the interview stage successfully secure job offers. This rate diverges 
across sectors, with cleaning services having a rate of approximately 27%, compared to significantly higher rates of 
75% and 56% in the retail and. 
These selection rates were built on the basis of evidence gathered in the context of the study to inform the Impact 
Assessment  conducted  by  the  external  contractor.  This  evidence  was  gathered  through  literature  review,  desk 
research and interviews with relevant stakeholders active in the field of international recruitment.  
The highest selection rate was assumed for PO2 (i.e., 11%) due to the expected better quality of candidates’ profiles 
arising from the pre-screening, the possibility for employers to request to TCNs the validation of their profiles via 
procedures at national level and IT tools and the support services available to facilitate the matching. Additionally, a 
higher selection rate (of 30%) was estimated for TCNs profiles certified in the context of the Talent Partnerships, as 
those  will  entail  trained  TCNs  who  have  obtained  the  Talent  Partnership  PASS.  The  lowest  selection  rate  was 
assumed  for  PO1,  considering  the  more  limited  value  added  of  the  initiative  in  facilitating  international  matching 
relative to the two legislative options. An intermediary rate was assumed for PO3 as it entails certain elements that 
ensure the quality of the profiles (e.g., IT tools, support services available) but no pre-screening and no operational 
link  with  Talent  Partnerships.Lever,  ERE,  and  SHRM  propose  a  selection  rate  ranging  between  1%  and  2%.  
Notably,  sources  such  as  Jobvite,  Lever,  ERE,  and  SHRM  propose  a  rate  ranging  between  1%  and  2%.  See  for 
https://www.jobvite.com/blog/recruiting-funnel/; 
instance, 
https://zety.com/blog/hr-statistics.  Additionally,  while  context  matters,  stakeholders  consulted  by  the  contractor  in 
the context of this study have indicated that around 80-90% of the CVs received will be screened out as not matching 
the requirements of the job.      

https://ideal.com/recruiting-metrics/; 

139 

 
 
 
3) Under PO3 a selection rate of 6% was assumed. It represents an intermediate rate between 
PO1  and  PO2  due  to  the  fact  that  only  certain  elements  ensuring  the  quality  of  profiles  are 
envisaged. On the one hand, IT tools such as the automatic matching tool as well as support 
services  are  available  as  under  PO2.  More  sophisticated  IT  tools  would  be  used,  therefore, 
ensuring  a  better  quality  of  potential  matches  (e.g.  automatic  matching  tool).  On  the  other 
hand, candidates registering in the platform do not undergo a pre-screening process and there is 
no direct link with Talent Partnerships.  

In  addition,  the  estimation  of  the  selection  rate  was  also  included  to  clarify  the  number  of 
successful  matches  compared  to  the  number  of  expected  CVs  on  the  platform  following  the 
completions checks and the pre-screening.  

Therefore, the selection rate indicates the number of job offers received by TCNs compared to 
the number of expected CVs in the platform. 

It  was  estimated  by  determining  the  share  of  the  TCNs  profiles  registered  in  the  EU  Talent 
Pool that will be selected by the employers244. Under each PO, a different selection rate was 
identified245 on the basis of the expected quality of the profiles which would imply greater 
chances to satisfying employers’ needs.246  

The steps described above are visually represented by the figure below.  

244  

245  

246  

The  selection  rate  refers  to  the  proportion  of  the  admitted  profiles  that  will  be  successfully  matched  with  job 
vacancies  under  each  policy  option.  In  other  words,  it  indicates  the  percentage  of  profiles  that  employers  are 
expected to select from the total pool of admitted candidates for potential job offers. Systematic publicly available 
data regarding selection rates across industries in the European Union are lacking. However, insights gathered from 
consultation activities conducted by the contractor indicate that among 100 received CVs for a position, only around 
30%  are  typically  shortlisted  for  deeper  consideration  following  pre-screening.  Furthermore,  sources  such  as 
CareePlug observe an average interview-to-hire ratio of 48%, indicating that a significant portion of candidates who 
have passed the pre-screening phase reaching the interview stage successfully secure job offers. This rate diverges 
across sectors, with cleaning services having a rate of approximately 27%, compared to significantly higher rates of 
75% and 56% in the retail and. 
These selection rates were built on the basis of evidence gathered in the context of the study to inform the Impact 
Assessment  conducted  by  the  external  contractor.  This  evidence  was  gathered  through  literature  review,  desk 
research and interviews with relevant stakeholders active in the field of international recruitment.  
The highest selection rate was assumed for PO2 (i.e., 11%) due to the expected better quality of candidates’ profiles 
arising from the pre-screening, the possibility for employers to  request to TCNs the validation of their profiles via 
procedures at national level and IT tools and the support services available to facilitate the matching. Additionally, a 
higher selection rate (of 30%) was estimated for TCNs profiles certified in the context of the Talent Partnerships, as 
those  will  entail  trained  TCNs  who  have  obtained  the  Talent  Partnership  PASS.  The  lowest  selection  rate  was 
assumed  for  PO1,  considering  the  more  limited  value  added  of  the  initiative  in  facilitating  international  matching 
relative to the two legislative options. An intermediary rate was assumed for PO3 as it entails certain elements that 
ensure the quality of the profiles (e.g., IT tools, support services available) but no pre-screening and no operational 
link with Talent Partnerships. 

140 

 
 
 
The table below presents the expected number of successful matches: 

POs 

Expected 
TCNs 
interested  in 
registering 
their 
profiles* 

Expected  CVs 
after  checks  on 
profile 
completion 

Expected  CVs 
the platform 

in 

Select
ion 
rate 
247 

Expected 
successful 
matches 

PO1 

3 338 900 – 3 
503 - 400 

-1% 

PO2 

3 699 000 – 3 
863 500 

-1% 

N/A 

3 
305 
500  –  3 
468 366 

3 
662 
000  –  3 
324 865 

Pre-
screenin
g: -35% 

3 
305 
500  –  3 
468 366 

2 
380 
000  –  2 
486 165 

0,5% 

16  500  – 
17 300 

11% 

261  000  – 
273 500 

30 000 

N/A 

30 000 

N/A 

3 0000 

30% 

9 000 

Succes
s  rate 
of 
match
es248 

(≠  job 
place
ment 
rate) 

0,5% 

in 

taking 
the 

TCNs 
part 
Talent 
Partnerships 

247  
248  

Number of matches compared to the number of expected CVs on the platform. 
Number of matches compared to the number of expected TCNs interested in registering their profile. 

141 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Tot for PO2:  

N/A 

N/A 

 N/A 

3 729 000 – 3 
893 500 

410 
2 
000  –  2 
516 165 

N/A 

Tot 
PO2: 

for 

7% 

271  000  – 
282 500 

PO3 

4 437 000 – 4 
601 500 

-1% 

N/A 

4 
293 
000  –  4 
555 485 

4 
293 
000  –  4 
555 485 

6,5% 

279  000  – 
296 000 

6% 

* This number reflect the expected CVs in the platform after accounting for attractiveness factors and selective steps. 

The  assessment  of  socio-economic  impacts,  costs  and  cost-savings  presented  in  Annex  10  is 
based on these estimations. 

142 

 
 
 
 
 
 
ANNEX 5  
COMPETITIVENESS CHECK 

1. Overview of impacts on Competitiveness 

The  table  below  provides  an  overview  of  the  expected  impacts  of  the  preferred  option  on 
competitiveness.  

Dimensions of competitiveness 

Impact of the initiative 

Cost and price competitiveness 

International competitiveness 

Capacity to innovate 

SME competitiveness 

0 

0 

+ 

++  

References 
to  sub-
sections  of  the  main 
report or annexes 

n.a. 

n.a. 

n.a. 

SME test Annex 

2. Syntetic assessment  

In general terms, it can be assumed that competitiveness gains from the EU Talent Pool will 
initially  accrue  to  the  economies,  sectors  and  companies  of  the  participating  Member  States 
(assumed to be a subgroup of the current EU membership). Competitiveness gains will spread 
gradually, mostly a the company level, as other Member States will join in a later stage. In  the 
best-case  scenario  in  relation  to  Member  State  participation,  it  is  reasonable  to  expect    an 
evolution  according  to  a    logistical  curve  (S-shaped)  due  to  the  uncertain  time-dependent 
process  of  voluntary  adhesion  by  member  States  to  the  EU  Talent  Pool  with  minimum 
participation  (and  effects)  at  the  beginning  and  an  exponential  increase  in  a  short  amount  of 
time, consequentely reaching a high-level plateau of participation rather quickly. In the initial 
phase,  the  critical  core  of  participant  Member  States,  more  concerned  by  the  difficulties  of 
insufficient  international  recruitment  of  third-country  national  workers,  will  reap  most  of  the 
benefits  in  terms  of  competitiveness  and  capacity  to  innovate.  These  effects  will  gradually 
spread as the number of sectors and businesses serviced by the EU Talent Pool will increase. 

The preferred option envisages the development of an EU-wide platform aimed at facilitating 
international  recruitment  and  providing  opportunities  for  TCNs  to  work  in  areas  of  EU  and 
Member States strategic  interest.  By adopting a focused and targeted approach, the preferred 
option is catering to the needs of competitiveness of the EU as a whole in the context of the 
twin  transition  to  the  EU  Digital  and  Net-zero  economy,  addressing  increasing  difficulties 
experienced by European companies in filling their vacancies in many sectors. The preferred 
options  would  entail  additional  help  and  support  throughout  the  recruitment  process  for 
companies, catering to  the needs  of SMEs which are disproportionately  disadvantaged in  the 
process  of  international  recruitment  in  respect  of  larger  companies.  Additionally,  awareness-
raising  activitites  towards  to  targeted    third-country  workers  and  entrepreneurs  that  the  EU 
welcomes  them  to  sustain  economic  growth  and  competitiveness  would  indirectly  help  the 
efforts of SMEs to raise interest from potential candidates.  

The EU Talent Pool is likely to have a positive impact on capacity to innovate via additional 
recruitment of workers from third countries, in particular addressing labour and skills shortages 
increase  EU  businesses’ 
experienced  by  SMEs.  Recruitment 

from  abroad  could 

143 

 
 
 
 
competitiveness  and  capacity  to  innovate  also  for  large  companies,  as  their  needs  are  rather 
specialised.    However,  aside  from  demand  driven  by  labour  and  skill  shortages,  SME 
recruitment of migrant workers is found to be driven by owner-managerial values, as well as 
the  perceived  skill  level  and  necessity  of  migrant  labour.249  Research  shows  that  the  career 
experience  of  migrant  SME  owner-managers  influence  their  behaviour  in  recruiting  and 
retaining international staff: a more positive experience of a TCN SME manager is associated 
with a greater likelihood of them recruiting other third country nationals, in turn. 250 Moreover, 
research  shows  that  the  career  experience  of  migrant  SME  owner-managers  influence  their 
behaviour in recruiting and retaining international staff: a more positive experience of a TCN 
SME  manager  is  associated  with  a  greater  likelihood  of  them  recruiting  other  third  country 
nationals, in turn.251  

In general, small firms may also be less likely to take a risk in hiring unknown candidates if 
recruitment costs are high and sponsorship requirements are complex. A previous review of the 
availaible  schemes  in  the    EU  suggests  that  some  labour  migration  channels  favour  larger 
firms, with a few OECD countries having labour migration instruments specifically targeting 
or favouring SMEs.252  

Additional  competitiveness  analysis  can  be  provided  when  looking  at  the  three  main  macro-
sectors  that  are  generally  suffering  from  labour  shortages  in  most  Member  States  (Green, 
Health and ICT sectors) and that are more likely to benefit by the operations of the EU wide-
platform.253 

Green sector: Broadly speaking, green SMEs can contribute to the protection of the climate, 
environment and biodiversity in various ways. Some are “green performers” – SMEs focusing 
on  reducing  the  environmental  footprint  via  resource-efficient  processes  –  while  others  are 
“green  innovators”  –  SMEs  focusing  on  producing  green  products  and  services  (e.g., 
renewable  energy).254  Greening  production  processes  or  designing  and  producing  green 
products generally requires a workforce with specific and specialised skills and expertise.255 

250  

251  

252  
253  

254  

255  

Lähdesmäki, Merja and Suutari, Timo, 'Good workers, good firms? Rural SMEs legitimising immigrant workforce', 
Journal of Rural Studies, Vol. 77, 2020, pp. 1-10. 
Crowley-Henry,  Marian,  O'Connor,  Edward  P  and  Suarez-Bilbao,  Blanca,  'What  goes  around  comes  around. 
Exploring how skilled migrant founder–managers of SMEs recruit and retain international talent', Journal of Global 
Mobility: The Home of Expatriate Management Research, Vol. 9, 2, 2021, pp. 145-165. 
Ibidem. 
As information on occupations and firm size is not available at EU level, we rely on literature and sectoral statistics 
from  Eurostat  when  available.  We  considered  three  main  macro-sectors  (green,  ICT  and  health)  that  are  most 
suffering  from  shortages  according  to  the  above-mentioned  list.  For  instance,  occupations  relevant  for  the  green 
sector and identified as of strategic relevance include: 31- science and engineering associate professionals and 21 – 
science  and  engineering  professionals.  Those  relevant  for  the  ICT  sector  and  identified  as  of  strategic  relevance 
include: 21 – science and engineering professionals, 25 – information and communications technology professionals, 
31- science and engineering associate professionals, 71 – building and related trades workers excluding electricians, 
72  –  metal  machinery  and  related  trades  workers,  74  –  electrical  and  electronic  trades  workers,  83  –  drivers  and 
mobile  plant  operators.  Those  relevant  for  the  health  sector  and  identified  as  of  strategic  relevance  include:  22  – 
health professionals, 51 – personal service workers, 53 – personal care workers. 
OECD,  SMEs:  Key  Drivers  of  Green  and  Inclusive  Growth,  Issue  Paper  in:  Inclusive  solutions  for  the  green 
transition, 2018. 
In  this  regard,  the  Flash  Eurobarometer  498  defines  a  “green  job”  as  “one  that  directly  deals  with  information, 
technologies,  or  materials  that  preserves  or  restores  environmental  quality.  This  requires  specialised  skills, 
knowledge,  training,  or  experience  …”.  European  Commission,  Annual  Report  on  European  SMEs  2021/2022, 
SMEs and environmental sustainability, Background document, 2022. 

144 

 
 
 
 
As  Europe  witnesses  a  growing  number  of  green  performers  and  innovators,  the  demand  for 
technical  skills  in  this  field  is  on  the  rise.  Eurobarometer  surveys  on  this  topic  reveal  that  a 
significant portion of SMEs, more than half of the approximately 13 000 SMEs respondents, 
have  already  invested  or  plan  to  invest  in  emissions  reduction  and  climate  change 
mitigation.256 Additionally, more than two-thirds of SMEs (around 9 000) are already actively 
engaged  in  resource  efficiency  activities,  primarily  cantered  around  waste  reduction  and 
energy conservation.257  

This surge in green initiatives is propelled by the ambitious objectives of the European Green 
Deal, which foresees a reduction in net greenhouse gas emissions by at least 55% by 2030 and 
zero net emissions by 2050. Within the Green Deal, the Green Deal Industrial Plan fosters an 
environment conducive to scaling up the production of net-zero technologies and products to 
meet  Europe's  climate  targets.  Following  these  efforts,  the  value  of  EU’s  net-zero  start-ups 
ecosystem  in  2021  doubled  since  2020  and  reached  over  EUR  100  billion.  In  addition,  the 
number  of  green  jobs  in  the  European  economy  is  growing;  it  went  from  an  estimated  3.2 
million in 2000 up to 4.5 million in 2019.258 

However, the transition towards a more sustainable and green economy necessitates expertise 
and skills that may not be readily available in the EU. In this regard, four in ten SMEs (39%) 
face challenges in transitioning to more environmentally sustainable business practices due to 
skills  shortages.259 Similarly,  23% of SMEs (around 3 000 out  of 13 000) report that a main 
barrier  to  undertaking  resource-efficiency  actions  is  the  lack  of  specific  environmental 
expertise.260  Those  numbers  indicate  a  high  potential  pool  of  SMEs,  across  all  sectors,  that 
would benefit from the Talent Pool (including under the Preferred Option). 

ICT sector: The number of SMEs in the ICT sector261 is around 1 240 000, making up around 
99%  of  the  total  number  of  enterprises  in  the  sector.262  This  represents  a  very  large  sectoral 
base  for  the  potential  uptake  of  the  Talent  Pool  under  the  targeted  approach  of  PO2. 
Additionally, as it is the case for green skills, also digital skills are cross-cutting across sectors, 
entailing  that  SMEs  not  necessarily  operating  in  the  ICT  sector  may  require  workers  with 
strong digital expertise and knowledge. Indeed, the green transition is highly interlinked with 
the  digital  revolution,  in  that  digitalisation  offers  SMEs  the  potential  to  become  more 
productive and reduce their environmental impact.263 However, a large share of SMEs reports 
not having enough human resources, also in terms of skills and expertise, to take advantage of 
the digital transition. Indeed, among SMEs with very limited digitalisation, or that have not yet 
digitalised  any  of  their  activities,  90%  indicated  the  lack  of  required  skills  as  a  main  cause. 
Even  if  less  problematic,  the  lack  of  required  skills  plays  a  role  also  in  the  digitalisation 

256  

257  

258  

259  

260  

261  
262  
263  

European  Commission,  Annual  Report  on  European  SMEs  2021/2022,  SMEs  and  environmental  sustainability, 
Background document, 2022. 
European Commission, Flash Eurobarometer 498: SMEs, green markets and resource efficiency, 2021. The number 
of SMEs respondents is around 13 000 SMEs. 
More  information  available  here :  https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/european-
green-deal/green-deal-industrial-plan_en  
Flash Eurobarometer 529 on European Year of Skills : Skills shortages, recruitment and retention strategies in small 
and medium-sized enterprises. The number of SMEs respondents is around 13 000 SMEs. 
European Commission, Flash Eurobarometer 498: SMEs, green markets and resource efficiency, 2021. The number 
of SMEs respondents is around 13 000 SMEs. 
NACE code J. 
Eurostat, Structural Business Statistics, code: SBS_SC_OVW. 
European  Commission,  Annual  Report  on  European  SMEs  2021/2022,  SMEs  and  environmental  sustainability, 
Background document, 2022. 

145 

 
 
 
strategy of SMEs with very or more extensive digitalisation, as indicated by more than 30% of 
those.264  

Health  sector:  The  number  of  SMEs  in  the  health  sector265  is  around  2  130  000,  which 
represents around 99% of the entire totality of the enterprises in the sector.266 As for the ICT 
sector,  this  also  entails  a  very  large  sectoral  base  for  potential  uptake  from  SMEs  of  the  EU 
Talent  Pool  initiative  under  PO2.  Disaggregating  this  number  across  the  different  subsectors 
show  that  the  majority  of  SMEs  in  the  sector  are  concentrated  among  Medical  and  dental 
practices  activities  (44%)  and  Other  human  health  activities  (48%),  which  can  include 
activities for human health not performed by hospitals or by medical doctors or dentists (e.g., 
midwives, physiotherapists or other paramedical practitioners, medical massage, et cetera).  

Overall, the increasing number of SMEs taking actions to navigate the twin green and digital 
transition  and  the  high  number  of  SMEs  operating  in  the  health  and  ICT  sectors  suggests  a 
high (and growing) potential demand for specialised skills and expertise in those fields. In this 
context, while a limited scope of the Talent Pool may restrict registration to certain sectors and 
occupations,  a  considerable  number  of  SMEs  will  still  directly  benefit  within  the  strategic 
sectors that will likely be part of the initiative, or will indirectly benefit from the recruitment of 
critical skills and expertise (e.g., digital skills or green skills) via the EU-wide platform. These 
direct and indirect perspective indicate a substantial  number of potential  beneficiaries among 
SMEs, which will benefit from the expected successful matches. 

264  

265  
266  

Survey of SME Associations, European Commission, Annual Report on European SMEs 2020/2021: Digitalisation 
of SMEs, 2021. 
NACE code Q. 
Eurostat, Structural Business Statistics, code: SBS_SC_OVW. 

146 

 
 
 
 
ANNEX 6 
PROBLEM ASSESSMENT FROM A DEMOGRAPHIC PERSPECTIVE 

1. 

Demography and Migration 

EU Member States, as other parts of the world, will be affected by  deep-seated demographic 
changes in the next decades. This will affect the capacity of economic growth, sustainability of 
social security systems as well as the EU attractiveness at global level.  

The charts and tables below present the main elements of the demographic changes forecasted 
in the EU and highlight the potential contribution of migration to attenuate their impacts in the 
long run. This concerns in particular the size of the general population and share of working-
age population; as  well  as the old-age dependency ratio, taking into account  the share of the 
population aged 65 and over in respect of the working-age population (15-64 year-olds). As far 
as this annex is concerned, likely trends of population size and its age structure are presented, 
followed by a discussion on working age-population and old-age dependency ratio. 

To highlight the role of migration in attenuating the impact of the ageing population, the latest 
population projections released by Eurostat267, are broken down under different alternatives: 

a) baseline scenario - produced based on 'main input dataset';  

b) low migration scenario; 

c) high migration scenario; 

d)  no  net  migration  scenario  – obtained  by  assuming  that  the  component  of  international  net 
migration268 equals zero (see methodological box below). 

For  the  purposes  of  this  Impact  Assessment,  migration  scenarios  to  and  from  the  European 
Union were built on the basis of Eurostat EUROPOP2023 projections269. See Box 1 below. 

Box  1:  Forecasting  population  developments  with  or  without  the  contribution  of 
international migration  

Population projections are “what-if” scenarios that aim to show hypothetical developments of 
the population size and structure. These projections are deterministic projections based on a set 
of assumptions for future levels of fertility, mortality, and migration. 

EUROPOP2023  population  projections  are  a  'Convergence  Trends'  scenario  that  includes 
short-term  (nowcasting),  medium-term  (trend)  and  long-term  (convergence)  components 
released by Eurostat on 30 March 2023. This exercise takes in account the impact of COVID-
19 pandemic as well as  the impact  of the mass  influx of displaced persons as a result of the 

267  
268  

269  

Database - Population and demography - Eurostat (europa.eu)  
Due to the limited reliability of emigration and immigration statistics in many EU Member States, it is preferable to 
calculate  net  migration  as  the  difference  between  population  change  and  natural  change  between  two  dates.  It  is 
called  "net  migration  (including statistical  adjustment)"  as  it  includes  other  changes  which  cannot  be  attributed  to 
births, deaths, immigration or emigration between that time period. 
Presentation  available  at:  Population  projections  -  Population  and  demography  -  Eurostat  (europa.eu)  and  main 
results  available  at:  EU’s  population  projected  to  drop  by  6%  by  2100  -  Products  Eurostat  News  -  Eurostat 
(europa.eu) as well as Young people projected to be 15% of EU’s population by 2050  - Products Eurostat News - 
Eurostat (europa.eu) 

147 

 
 
 
 
Russian military aggression against Ukraine. 

Computations are based on cohort-component method with 1st January 2022 base population, 
disaggregated by sex and age. Data on population, live births and deaths used as input data in 
EUROPOP2023  round  are  official  statistics  provided  by  the  national  statistical  authorities  to 
Eurostat  in  the  frame  of  annual  demographic  data  collection.  Migration  flows  have  been 
measured in terms of net migration (including statistical adjustment) and computed as residual 
from the annual demographic balance.  

The  'main  input  dataset'  includes  the  2022  base-population  and  the  assumptions  for  fertility, 
mortality  and  international  net  migration  (including  statistical  adjustment),  and  defines  the 
frame of main scenario for producing the population projections. Four variants ('no-migration 
variant', 'reduced-migration variant', 'higher-fertility variant' and 'lower-fertility variant') were 
obtained  by  modifying  one  of  the  modelled  component  while  the  other  components  of  the 
'main input dataset' were maintained constant.  

The data used in this annex mainly refer to the 'main scenario' (produced based on 'main input 
dataset') in comparison to the 'no-migration scenario' - obtained by considering the component 
of  international  net  migration  equals  zero.  It  should  be  noted  that  Eurostat  also  publishes 
statistics for a "reduced migration scenario" and an “enhanced migration scenario”, considering 
that  the  component  of  international  net  migration270  is  reduced  or  increased  by  a  third  in 
respect of the baseline scenario. 

In Europop2023, "net migration (including statistical adjustment)"  is a general estimation 
of  the  net  migration  based  on  the  difference  between  population  change  and  natural  change 
between  two  dates  (including  other  changes  which  cannot  be  attributed  to  births,  deaths, 
immigration or emigration between that time period). 

One  of  the  implications  is  that,  for  a  given  Member  State,  net  migration  is  the  result  (apart 
from so-called "statistical adjustment") of the difference, in a given year, between immigration 
flows and emigration flows with the rest of the world. Flows to and from other EU Member 
States  are  therefore  also  included  into  this  net  migration  definition,  and  not  only  migration 
flows from outside the EU. However, this is not the case when using the EU-27 aggregate as 
net  migration  refers  then  only  to  the  differences  between  immigration  flows  and  emigration 
flows outside of the EU.  

As  shown  in  the  table  below,  the  net  migration  assumed  by  Eurostat  in  the  main  scenario 
would  be  positive  over  the  entire  period  and  will  be  the  only  component  contributing  to  the 
EU-27 population  growth.  It  is  projected to  be almost  constant,  on average 1.2 million,  over 
the  entire  projection  horizon,  apart  from  the  2022-2027  period  where  it  is  expected  to  be 
negative,  due  to  the  expiration  of  the  Temporary  Protection  Directive  and  the  progressive 
return of beneficiaries of Temporary protection to their country of origin.  

Source for the box: Eurostat, Europop2023, International net migration by age and sex [proj_23nanmig] Metadata available 

270  

Due to the limited reliability of emigration and immigration statistics in many EU Member States, it is preferable to 
calculate  net  migration  as  the  difference  between  population  change  and  natural  change  between  two  dates.  It  is 
called  "net  migration  (including statistical  adjustment)"  as  it  includes  other  changes  which  cannot  be  attributed  to 
births, deaths, immigration or emigration between that time period. Please note that net migration includes statistical 
adjustment. 

148 

 
 
 
at: EUROPOP2023 - Population projections at national level (2022-2100) (proj_23n) (europa.eu) 

1.1 Forecasted developments of population in the EU-27 

Eurostat’s EUROPOP 2023 baseline projection depicts a scenario where the population of the 
EU27  is  expected  to  start  its  long-term  decrease,  after  the  recent  turbulences  due  to  the 
COVID-19 pandemic271 and the outbreak of war in Ukraine272. In the near future, the EU-27 
population is projected to plateau at around 453 million inhabitants and slowly start to enter a 
long-term decline from 2027 onwards.  

Under  an  alternative  ‘low  migration’  scenario,  where  the  projected  baseline  net  migration  is 
reduced by a third, the EU population is projected however to decrease significantly, by 0.9% 
(3.8 million) between 2023 and 2030, and by 1.8% (8.0 million) in a scenario when there is no 
net  migration.  Under  a  theoretical    ‘high  migration’  scenario,  where  projected  immigration 
figures  from  outside  the  EU  are  increased  by  a  third  for  the  purpose  the  exercise,  Eurostat’s 
model projects an increase in the EU27’s population by 1.5% (6.5 million). 

Figure 1: Population: Eurostat projections (different scenarios) up to 2030, EU27 

Source: Population on 1st of January [TPS00001__custom_7062984], Population on 1st January by age, sex and 
type of projection [PROJ_23NP__custom_6678661] 

At the Member State level, the EUROPOP2023 projections highlight significant differences in 
demographic  trajectories.  The  baseline  projection  shows  population  increases  by  2030  in  14 
countries (AT, BE, CY, DE, DK, ES, FI, FR, IE, LU, MT, NL, SE, SI), with Malta (+14%), 
Luxembourg (+12%) and Ireland (+5%) growing the most thanks to large-scale immigration, 
while  13  countries  (BG,  CZ,  EE,  EL,  HR,  HU,  IT,  LT,  LV,  PL,  PT,  RO,  SK)  would  lose 

271  

272  

After a 2-year consecutive decline in population, due to the impact of the COVID-19 epidemic, the EU population 
increased in 2022, mainly due to positive net migration, also partly due to the mass influx of displaced persons from 
Ukraine. EU population increases again after two years decrease - Products Eurostat News - Eurostat (europa.eu) 
On 30 June 2023, approximately 4 million of non-EU citizens were granted a temporary protection status in the EU, 
on  the  basis  of  the  Council  Implementing  Decision  2022/382  of  4  March  2022.  30  June  2023:  4.07  million  with 
temporary protection - Products Eurostat News - Eurostat (europa.eu) 

149 

 
 
 
 
population. The largest relative population decreases are projected for Latvia (-7%), Bulgaria 
(-5%), Lithuania, Romania, Croatia and Greece (-4% each). 

Figure 2: Population projections up to 2030, by Member State (baseline projection; 2023 = 100%) 

Source: Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

As  shown  by  the  figure  3  below  which  combines  projections  and  statistics  provided  by 
Eurostat,  projected population trends tend to be more negative in Member States with lower 
GDP per  capita figures.  This  highlights a twin  challenge due to  demographic challenges and 
lower prosperity, which are unrelated but they are reinforcing each other. However, the close 
fit between projected population  trends (mainly driven from  natality and mortality  rates) and 
GDP per capita also shows the tightness of correlation across Member States in the European 
Union with only a few outliers (notably Malta, Luxembourg, Ireland) leaving little variability 
in this respect: prospective negative population growth is coupled with lower prosperity, which 
means  that  countries  with  more  need  to  catch  up  in  terms  of  GDP  per  capita  are  also  facing 
more severe demographic decline in relative terms.  

150 

 
 
 
 
 
 
Figure 3: Population projections up to 2030 vs. GDP per capita (2022), by Member State                          
(baseline projection; 2023 = 100%)

Source:  Population  on  1st  January  by  age,  sex  and  type  of  projection  [PROJ_23NP__custom_6678661],  GDP 
per capita in PPS [NAMA_10_PC__custom_7073439] 

Moving  from  the  general  population  trends,  the  aggregated  projected  decline  in  the  EU27 
shows  very  different  demographic  trends  across  Member  States  in  the  labour  market.  In 
fact,  the  working-age  population  is  projected  to  increase  between  2022  and  2075  in  four 
Member  States  (Malta,  Luxembourg,  Sweden  and  Ireland),  while  declining  by  less  than 
10%  only  in  another  eight  countries.  The  former  group  of  Member  States  tends  to  have  a 
higher  GDP  per  capita  than  those  at  the  bottom  of  the  chart.  Seven  Member  States,  all 
with relatively low GDP per capita, are in addition expected to see declines in their working-
age population of at leaset 30% the coming five decades, according to the baseline population 
projections of Eurostat, adding to the challenge of catching up with other Member States.  

At the same time, this projected population decrease is  coupled  with  a general ageing  of the 
EU27’s population, which has been on-going for many years and will accelerate in the future, 
according  to  EUROPOP2023  projections.  The  share  of  population  aged  65  and  over  is 
projected to grow to 23.7% by 2030 (the corresponding value in 2022 was 21.2%), while the 
proportion of persons aged 80 and over will grow from 6.1% to 6.9%. The share of children 
below the age of 15 is projected to decline from 15.0% to 14.1%, and the share of working age 
population, aged 15-64, is projected to fall from its 63.9% share in 2022 to 62.2% by 2030. 

151 

 
 
 
Figure 4: Population broken down by age group, EU27, baseline projection (percentage) 

Source: Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

1.2 Projected working-age (15-64-year olds) population in the EU-27  

The  decline  of  the  share  of  the  working-age  population  leads  to  a  corresponding  decline  in 
absolute  numbers,  which  is  appearing  already  in  the  projections  by  2030  but  is  expected  to 
accelerate afterwards. The EUROPOP23 baseline scenario projects – under the assumption that 
exceptional  immigration  levels  driven  to  a  large  extent  by  the  war  in  Ukraine  will  gradually 
return to the historic average by 2027  - that the number will drop by 1.3% (corresponding to 
3.7  million  persons)  by  2030.  The  lower  migration  and  no  net  migration  scenarios  involve 
more pronounced drops of 2.7% (-7.6 million) and 3.8% (-10.8 million), respectively. The size 
of  the  working-age  population  is  projected  to  slightly  increase  under  the  higher  migration 
scenario, by 0.1% (+0.3 million persons) by 2030. 

It is to be noted again that the temporary increase of EU27 population until 2024 is due to the 
unusually high number of people fleeing the war in Ukraine that have recently arrived in the 
Union - and is modelled according to the methodology used by Eurostat (See methodological 
box below) which only gradually reabsorb 2022 outlier figures until 2027 (when the projection 
arrives  back  at  long-term  historic  averages).  The  sudden  increase  in  the  2022  statistics  is 
coming  predominantly  from  the  sudden  influx  of  people  who  did  not  primarily  come  for 
employment reasons, and/or might not want to reside in the EU in the long term: consequently, 
they will not necessarily integrate into the labour market. 

Figure 5: Working-age population (15-64), EU27 (2022=100%) 

152 

 
 
 
Source : Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

The  projected  decline  in  the  EU27  masks  very  different  demographic  trends  across  Member 
States. Working-age population is in fact projected to increase between 2022 and 2030 in 12 
Member  States  (MT,  LU,  IE,  SE,  CZ,  CY,  ES,  EE,  BE,  FI,  NL,  FR).  Seven  Member  States 
(BG, RO, PT, LT, EL, HR, LV), all with relatively low GDP per capita, are however projected 
to  see  declines  in  their  working-age  population  of  5%  or  more,  according  to  the  baseline 
population projections of Eurostat. 

Figure 6: Change in working-age population (2022-2030), baseline projection, by Member State 

Source : Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

At the level of NUTS3 regions, the working-age population is projected to continue shrinking 
mostly in predominantly rural areas in Eurostat’s earlier EUROPOP2019 projections (the latest 

153 

 
 
 
 
for  which  figures  at  NUTS3  level  have  been  published273).  In  the  contrary,  working-age 
population  is  shrinking  the  least  in  predominantly  urban  regions.  The  latter  have  somewhat 
younger populations and are attracting more immigration. Although the regional breakdown is 
not  available for the EUROPOP2023 projection at  the time of the baseline analysis,  is  likely 
that this long-term pattern has remained stable. It is also to be noted that, in 2022, the share of 
working age population as a percentage of total population was already slightly lower in rural 
and intermediate regions than in urban regions. 

Bearing in mind that potential economic growth is the sum over employment and productivity 
growth,  the  declining  working-age  population  may  have  implications  for  the  EU's  long-term 
growth prospects. Without additional migration from third countries and substantial progress in 
terms of higher employment rates, the pressure to generate ever higher productivity gains will 
be  immense274.  Based  on  these  considerations,  several  analyses  concluded  that  targeted 
migration  should  be  part  of  a  broader  policy  concept  to  maintain  the  EU's  growth  potential 
through the decades to come275. 

1.3 Projected old-age dependency 

The  shrinking  working-age  population  will  continue  to  put  more  and  more  pressure  on  the 
EU’s pension and social protection systems in the long run. The challenge can be seen in the 
high  and increasing  old-age dependency ratios in  Europe:  this  indicator is  a key measure for 
the sustainability of social security and economic dependency, defined as the ratio between the 
number of persons 65 and over (i.e. the age when they generally become, or have traditionally 
become,  economically  inactive)  per  100  working-age  persons  (15  to  64  years),  expressed  as 
percentage.276 

As presented in the figure below, the old-age dependency ratio – already at a very high 33.0 in 
2022 (by international comparison) – is projected to grow quickly in the coming years, to 38.0 
by 2030 under the baseline scenario. The lower migration scenario projects a 38.5 dependency 
ratio by 2030, and the no net migration scenario 39.0. 

273  

274  

275  

276  

Note that the EU- and national-level figures in the 2019 Eurostat population projection differ from those in the latest 
2023 projection, primarily due to volatility in migration scenarios. 
Peschner,  J.  and  Fotakis,  C.  (2013),  Growth  potential  of  EU  human  resources  and  policy  implications  for  future 
economic growth, European Commission, DG EMPL, Working Paper 3/2013. 
European  Commission,  ESDE  2015,  Chapter  "  Mobility  and  Migration  in  the  EU:  Opportunities  and  Challenges" 
and ESDE 2023, “Reducing labour and skills shortages through migration”, pp. 128-129. 
The indicator can be calculated using other age ranges as well, e.g. 20-64, where the lower bound is more accurately 
grasping the average age for persons to become economically active, considering the spread of tertiary education. 

154 

 
 
 
 
 
 
 
 
 
 
 
Figure 7: Old-age dependency ratio (population 65+ vs. 15-64 years), EU27 

Source : Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

In some countries - and in rural regions especially – the problem will likely be more pressing 
of what is suggested by looking at the EU aggregated level.  

By 2030, the old-age dependency ratio is projected to surpass 40.0 in 6 Member States (PT, IT, 
EL,  HR,  FI,  DE),  while  remaining  below  30.0  only  in  4  (MT,  CY,  IE,  LU).  The  projected 
situation shows a somewhat different picture in respect of the starting positions of each country 
in 2022. This is to a large extent a consequence of the chosen projection methodology used by 
Eurostat which assumes that the distribution of migration flows between Member States (net 
migration)  will  approximate  over  time  their  share  of  the  EU27  population.  If  net  migration 
ratios will markedly differ between countries in the future, driven by factors such as persisting 
differences  in  GDP,  the  pull  effect  of  existing  social  networks,  language  etc.,  the  actual 
ranking of countries by old-age ratio reached in 2030 can turn out differently. 

Figure 8: Old-age dependency ratio (population 65 years or over to population 15 to 64 years) by Member State 

155 

 
 
 
Source : Population on 1st January by age, sex and type of projection [PROJ_23NP__custom_6678661] 

The various indicators provided above all lead to the same conclusion: ageing will be a major 
challenge for the EU-27 as the general population and the working-age population will decline, 
the  latter  both  in  absolute  terms  and  as  a  share  of  the  total  population.  The  positive  net 
migration  assumed  by  Eurostat  in  their  projections  will  not  prevent  these  demographic 
developments  to  happen;  however,  it  could  contribute  to  attenuating  their  impacts.  The 
methodological box below provides a synthetic view of the various indicators. 

2. Migration 

Future trends (both in terms of stocks and flows) of international labour migration are difficult 
to predict277; Nonetheless, already on-going megatrends are likely to be confirmed in the near 
and medium-term future, at least by 2030278. For instance, the global competition for talent has 
increased over the past decade due to the higher demand for labour supply from developed and 
emerging countries linked to the ageing population and shrinking workforce detailed above for 
the EU.  

At  the  global  level,  the  world  is  becoming  more  migratory279.  The  share  of  the  total  world 
population living permanently outside the country of birth has increased over the last decades 
from 2.8% in 1990 to 3.6 % in 2020 (an estimated 281 million people were living outside their 

277 

278  
279  

As they are dependent on the business cycle and volatile geopolitical conditions as well as occurrence of natural and 
man-made  disasters,  including  displacement  of  populations  induced  by  climate  change.  European  Commission, 
Strategic Foresight Report, 2023, pp. 8-9 2023 Strategic Foresight Report (europa.eu). 
JRC, Migration Megatrends, Increasing significance of migration | Knowledge for policy (europa.eu). 
A  more  migratory  world  means  that  the  volume,  diversity,  geographical  scope,  and  overall  complexity  of 
international migration have increased as part of globalization processes. Migration has globalized in particular from 
a destination country perspective, such as OECD countries, with migrants from an increasingly diverse array of non-
European-origin  countries  concentrating  in  a  shrinking  pool  of  prime  destination  countries.  The  global  migration 
map  has  thus  become  more  skewed.  Rather  than  refuting  the  globalization  of  migration  hypothesis,  this  seems  to 
reflect the asymmetric nature of globalization processes in general. Hein de Haas, Mathias Czaika, The Bloablization 
of Migration: Has the World Become more migratory ?, International Migration Review, 2014,  The Globalization of 
Migration:  Has  the  World  Become  More  Migratory?  -  Czaika  -  2014  -  International  Migration  Review  -  Wiley 
Online Library. 

156 

 
 
 
 
country of birth)280. This  results from  several  factors, including  better access  to  good quality 
education281 and the globalisation of the economy282. Moreover, in 2021, according to Gallup 
World Poll, 16% of adults worldwide, corresponding approximately to 900 million people had 
aspirations  to  migrate  permanently283.  This  historical  upwards  trend  of  increased  global 
mobility is expected to continue and to intensify, even if prediction of directions and flows of 
displaced people is difficult to foresee due to unpredictability of conflicts and wars as well as 
man-made and natural disasters, including climate change consequences. 

In  terms  of  expected  evolution  of  migration  towards  the  EU,  immigration  of  third-country 
nationals  is  discussed  (2.1),  followed  by  immigration  of  working  age  third-country  nationals 
(2.2) and, finally, immigration for employment purposes (2.3). 

2.1 Immigration of third country nationals in the EU 

The  projection  for  the  inflow  of  TCNs  had  to  be  calculated  from  the  EUROPOP2023  net 
migration  dataset.  Eurostat  does  not  disclose  modelled  immigration  and  emigration  figures 
separately, as these are less robust than the net migration projection. The calculation was using 
the  published  Eurostat  method  for  developing  migration-related  scenarios  The  ’higher 
migration’-scenario assumes an increase by 1/3 in the immigration of third country nationals.  

A further essential  aspect  of the EUROPOP2023 methodology  was that it  had to  address  the 
likely  bias  to  possible  historic  trend  analysis  techniques,  caused  by  the  very  high  influx  of 
refugees  from  Ukraine  under  temporary  protection  in  2022.  For  this  reason,  it  was  assumed 
that  by  2027,  Member  State  migration  patterns  will  gradually  return  to  their  2013-2021 
average (with smaller modification factors considered). From that point onward, the migration 
patterns  of  Member  States  will  converge  towards  each  other,  with  the  share  of  immigrants 
received being fully proportionate to the population share of the given Member State by 2100. 

On this  basis, the annual  immigration of TCNs is projected by Eurostat to be reverting from 
exceptional levels to about 1.8 million in 2027 and remain close to that level in the 2027-2030 
period as well. 

Figure 1: Projected annual immigration of third-country nationals (2023-2030), EU27 

280  

281  

282  

283  

UNDESA, Policy Brief 146 UN DESA Policy Brief No. 146: Why safe, orderly and regular migration matters for 
sustainable development | Department of Economic and Social Affairs 
As  the  population  of  well-educated  workers  is  growing  in  many  countries  around  the  world,  access  to  quality 
education  has  become  increasingly  available.  Technical  and  vocational  training  as  well  as  tertiaries  education  is 
becoming  more  accessible,  in  emerging  and  developing  countries.  This  has  led  to  an  increase  in  the  number  of 
medium-  and  high-skilled  workers  entering  the  global  talent  pool,  including  in  sectors  and  occupations  with 
persistent  labour  and  skills  shortages  in  Europe.  UNDESA  Policy  Brief  152  UN  DESA  Policy  Brief  No.  152: 
Population,  education  and  sustainable  development:  interlinkages  and  select  policy  implications  |  Department  of 
Economic and Social Affairs 
Businesses  are  increasingly  operating  in  a  global  environment.  Global  supply  chains,  advances  in  technology  and 
communication  capabilities,  the  spread  of  English  as  the  language  of  global  communication  contributed  to  make 
international  recruitment  easier.  The  impact  of increased  automation of  work,  Artificial  intelligence  developments 
and remote and nomad working patterns are still to work out. 
Gallup, Nearly 900 Million Worldwide Wanted to Migrate in 2021 (gallup.com). See also UNDESA, Policy Brief 
153 UN DESA Policy Brief No. 153: India overtakes China as the world’s most populous country | Department of 
Economic and Social Affairs 

157 

 
 
 
Source: Assumptions for net migration by age, sex and type of projection 

2.2 Immigration of working age third country nationals in the EU 

Most of the TCN immigrants will be of working age. Immigrants are, on average, considerably 
younger than the  EU population  as a whole. This applies both  to  historic data, sourced from 
Eurostat,  and  EUROPOP2023  projections.  The  share  of  working-age  persons  is  very  high 
among TCNs immigrants, above 80% (in the projection, the share is below 80% only for 2023, 
where the model is still highly impacted by the exceptional year of 2022 with a sudden arrival 
of temporarily displaced children arriving from Ukraine). In comparison, the share of working-
age persons in the EU population as a whole (which already includes TCN migrants arriving in 
earlier years) is only 63.9%. 

Figure  2:  Projected  immigration  of  third-country  nationals  (2023-2030),  by  age  group,  EU27  (percentage) 

Source: Assumptions for net migration by age, sex and type of projection 

158 

 
 
 
 
2.3 Immigration for employment purposes 

The  likely  evolution  of  projected  TCN  immigration  by  main  reason  -  family,  education, 
employment  and  other  reasons  -  was  done  by  building  on  the  breakdown  of  first  residence 
permits  by  main  reason284,  separately  per  Member  State.  Consistently,  to  the  extent 
possible285, with the approach behind EUROPOP2023, it was assumed that between 2023 and 
2027, all countries will maintain their historic breakdown for the 5-year period between 2017 
and  2021.  From  2028  onwards,  all  individual  breakdowns  by  Member  State  will  converge 
towards  the  grand  EU27  average.  This  method  does  not  account  for  possible  EU-wide  or 
country-specific trends between 2013-2021 that could continue in the future. 

According to this estimation method, the number of TCN migrants under the EUROPOP2023 
baseline scenario who would arrive for employment purposes will be around 400,000 per year, 
after the expected expiration of the temporary protection directive in 2025. 

Figure 3: Projected immigration of third-country nationals (2023-2030), by main reason of permit, EU27 

Source:  Assumptions  for  net  migration  by  age,  sex  and  type  of  projection, First permits by  reason,  age,  sex  and  citizenship 
[MIGR_RESFAS__custom_6828377] 

An  essential  question  is  what  share  of  projected  TCN  immigrants,  irrespectively  of  the 
breakdown of (first) residence permits, are likely to ultimately seek employment. For instance, 
TCNs who obtained their residence permit for family reasons – which could be an easier route 
for some – may be trying  to  apply  for jobs  and pursue a corresponding permit  later; persons 
who  came  for  education  purposes  can  stay  and  work  (it  is  generally  allowed  to  pursue 

284  
285  

This is not entirely consistent with recorded immigration figures for various reasons. 
There  was  no historic  first  residence  permits  data  available  at  Eurostat  for the outlier year  of  2022,  from  which  a 
gradual return to the long-term average by 2027 could have been calculated. 

159 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
employment  for  1  year  after  finishing  their  studies);  and  TCNs  can  in  general  change  their 
immigration status permit later. 

To  remain  realistic  with  the  projections,  this  baseline  scenario  only  account  for  numbers  of 
TCNs projected to come with an EU Single Permit, currently under renegotiation, extrapolated  
on  the  basis  of  the  share  of  first  residence  permits  given  for  employment  purposes. 
Accordingly,  the  EUROPOP2023  baseline  projection  and  above-described  modelling  of  the 
split by main reason, the number of TCNs who come to the EU27 for employment purposes is 
projected  to  be  about  400,000  per  year,  for  a  cumulated  total  of  3.8  million  by  2030.  This 
figure  only  concerns  gross  immigration  legal  entry  for  employment  purposes  and  does  not 
account for TCNs who will subsequently emigrate from the EU27, either back to their country 
of birth or to a third country, without prejudging of the capacity to retain talent attracted in the 
first place to the EU. 

Figure  4:  Projected  number  of  third-country  nationals  arriving  for  employment  (2023-2030),  annual  and 
cumulative, EU27 

Source:  Assumptions  for  net  migration  by  age,  sex  and  type  of  projection, First permits by  reason,  age,  sex  and  citizenship 
[MIGR_RESFAS__custom_6828377] 

ANNEX 7  
ASSESSMENT OF LABOUR AND SKILLS SHORTAGES IN THE EU 

1.   Methodology and definitions  

1.1 Definition of labour and skills shortages 

The  terminology  around  “labour  and/or  skill  shortage”  is  not  always  standardised  or 
universally  agreed  upon,  in  terms  of  definitions.  Moreover,  in  practice,  measuring  labour 
shortages  is  difficult,  especially  at  a  detailed  and  operational  level,  given  also  the 
transformation and evolution of the labour market (see box on definitions and methodologies 
below).  More  broadly,  while  labour  shortages  refer  to  hiring  difficulties  when  attracting  any 
staff, meaning an objective limit to the workforce available to employers, skill shortage refers 
to a situation when employers face difficulties to find specific skills and/or competences in the 
pool  of  their  existing  or  prospective  staff  given  their  business  needs.  Accordingly,  labour 
shortages  occur  when  the  demand  for  workers  qualified  in  a  particular  area  of  the  labour 
market exceeds the supply of those workers. This can arise for a variety of interrelated reasons, 

160 

 
 
 
 
such  as  insufficient  labour  supply  in  certain  segments  of  the  labour  market  or  in  certain 
geographical  locations  (quantitative  shortages),  or  a  discrepancy  between  the  skills  and 
qualifications  sought  by  employers  and  those  held  by  individuals  seeking  employment 
(qualitative  shortages).  To  successfully  fill  a  vacancy,  people  with  the  right  skills  and 
qualifications must be in the right place at the right time and must be willing to work under the 
conditions  offered.  Accordingly,  individuals  seeking  employment  must  have  adequate 
information about the requirements, working conditions, and availability of vacant positions286. 

Determinants and categories of labour and skills "shortages" 

When  individual  employers  cannot  find  the  workers  they  need  to  fill  open  vacancies,  labour 
shortages occur. Labour shortages refer to a situation in which labour demand exceeds labour 
supply.  However,  a  distinction  should  be  made  between  quantitative  and  qualitative  labour 
shortages.  

In  case  of  a  quantitative  labour  shortage,  there  is  an  absolute  lack  of  workers  in  the  labour 
market. Labour demand is larger than labour supply, resulting in a large share of difficult-to-
fill vacancies and a low unemployment rate. Quantitative shortages can be caused by increased 
demand  for  specific  goods  or  services  or  economic  growth  more  generally.  The  insufficient 
supply  of  labour  can  be  caused  by  a  decline  in  the  working  age  population  due  to  ageing  or 
emigration  or  by  a  decrease  in  participation  rates  due  to  early  retirement  or  the  inactivity  of 
certain groups. 

In  case  of  a  qualitative  labour  shortage,  labour  demand  and  labour  supply  are  roughly  in 
equilibrium (balanced), but a large share of unfilled vacancies and a high unemployment rate 
exist  simultaneously.  This  signals  a  qualitative  mismatch  between  supply  and  demand.  A 
common  cause  is  skill  mismatch,  either  because  there  are  not  enough  graduates  with  the 
necessary skills to fill open vacancies, or because skill requirements have changed or because 
job requirements by employers do not fit with the competences of jobseekers and graduates. 

Qualitative shortages can also be caused by a mismatch between the preferences of jobseekers 
and the characteristics of the open vacancies. This occurs when jobseekers do not want to fill a 
vacancy  because  of  the  working  conditions  offered  or  because  the  sector  is  seen  as 
unattractive.  Moreover,  the  lack  of  sufficient  and  correct  labour  market  information  for  both 
employers and jobseekers can also contribute to qualitative shortages. 

However, it should be noted that a labour shortage is always relative in the sense that it refers 
to labour demand in excess of labour supply of people willing to work at a particular wage and 
under  particular  working  conditions  at  a  particular  place  and  point  in  time.  Offering  better 
wages and working conditions can thus be effective at resolving shortages in certain sectors.  

One  also  finds  the  distinction  between  cyclical  and  structural  drivers  of  shortages.  Skills 
mismatches will always exist as a part of the frictional dynamics of the labour market and due 
to  the  business  cycles  (i.e.,  cyclical  labour  shortages).  However,  persistent  or  structural 
shortages can be detrimental to economic recovery and growth. Some structural changes, such 
as  the  adoption  of  new  technologies,  may  increase  the  demand  for  certain  skills  that  are  not 
available  in  the  labour  market  in  the  short  run,  creating  skills  shortages  even  when 

286  

ESDE, 2023, chapter 2, section 1. 

161 

 
 
 
unemployment  is  high.  Therefore,  one  of  the  main  challenges  faced  by  policy  makers  is 
identifying  real,  structural  labour  shortages,  which  cannot  be  met  by  the  local  labour  force 
even  if  the  labour  market  is  functioning  well  or  measures  are  taken  to  improve  it,  e.g.,  by 
supporting labour matching or by investing in education and training. 

Objective labour market information, such as vacancy rates, unemployment rates, and changes 
in wage rates can be extremely useful but, in many countries, data on detailed occupations are 
not  necessarily  available.  In  practice,  measuring  occupational  groups’  shortages  is  also 
difficult.  Notably,  there  is  no  harmonisation  of  benchmarking  used  to  identify  a  shortage 
and/or  surplus  across  countries  or  regions  involved  in  the  EURES  exercise,  so  there  is  no 
common definition of what can be considered as a labour shortages. Using interviews has its 
limitations  and  bias,  but  it  provides  at  least  a  recurrent  and  flexible  way  for  identifying 
occupational shortages at a more detailed level.  

Source:  based  on  European  Parliament,  Labour  Market  Shortages  in  the  European  Union 
(2015); European Migration Network, Determining labour shortages and the need for labour 
migration  from  third  countries  in  the  EU  (2015);  OECD/EU,  Matching  economic  migration 
with labour market needs (2014) 

1.2. Data sources on current and expected skills shortages in the EU 

There  is  no  universally  agreed  methodology  on  how  to  measure  sectoral  or  occupational 
shortages  in  the  EU,  which  could  function  as  an  operational  tool  to  identify  professional 
profiles  in  short  supply.  Eurostat  identifies  three  main  approaches  to  capturing  skills  in 
statistics:  indirect  measurement  (mainly  through  qualifications  and  occupations),  direct 
measurement (testing and job vacancy data) and self-reporting.  

On the one hand, labour shortages can be tracked through self-reporting, such as DG ECFIN’s 
Business  and  Consumer  Surveys  (BCS)  which  collect  quarterly  survey  data  asking 
employers  whether  labour  is  a  major  factor  limiting  their  production,  which  refer  to  self-
reported difficulties in the recruitment process and therefore having a subjective element. On 
the other hand, direct  measurement  via vacancy  statistics collected by Eurostat  shed light  on 
the labour demand in sectors that are outside the scope of the BCS. However, the drawback of 
vacancy statistics is that they show the demand for labour, without comprising the supply side 
and  do  not  distinguish  whether  high  job  vacancy  rates  in  a  sector  are  driven  by  different 
underlying causes such as high turnover or by labour shortages287. Moreover, data availability 
is limited: EU level data are not available before 2012; data for the full set of NACE sectors 
are not available; as there are missing data for agriculture, forestry and fishing, water supply, 
public administration and defence, and compulsory social security and finally, data for human 
health and social work activities, and arts, entertainment and recreation data are only available 
and  shown  for  20  countries  in  the  Euro  area.  Both  approaches  provide  information  on 
relatively broad aggregated sectors, making them less relevant for the identification of related 
qualifications or skills required to fill occupational shortages, which is indirect measurement. 

287  

Another major drawback of vacancy statistics collected by Eurostat is that the pool of vacancies used to calculate the 
vacancy rate is not harmonised across Member States, as some Member States use internal firm vacancies as basis 
whereas this information is not used in other Member States. 

162 

 
 
 
A third approach uses information collected by in the context of the EURES report288 by the 
European  Labour  Authority  (ELA)  on  occupational  classifications  and  identifies  labour 
shortages  across  occupations  by  Member  States.  The  analysis  is  based  on  a  questionnaire 
circulated  to  National  Coordination  Offices  (NCOs).  Answers  to  the  questionnaire  represent 
the primary source for labour market imbalances as presented in this report. Additional sources 
used  are  data  extracted  from  the  European  Labour  Force  (LFS)  database;  and  detailed 
CEDEFOP forecasts. Therefore, the analysis makes use of national data sources, which were 
utilised by NCOs to identify regional differences. Each NCO provides a list of shortages and 
surpluses in their country based on the data in 4-digit ISCO ’08 occupation codes. Out of 436 
ISCO  4-digit  level  occupations,  there  are  identified  35  widespread  shortage  occupations. 
Despite  certain  limitations289,  this  third  methodology  allows  to  provide  information  about 
labour shortages at the most disaggregated occupational level. Given the objective of the EU 
Talent Pool initiative to identify occupations with high demand for workforce, this approach is 
considered to be the most relevant for the mapping of labour shortages and will be developed 
accordingly.  Building  on  the  information  on  shortages  from  ELA  as  well  as  the  2023  ESDE 
Chapter  2  and  Commission  internal  analysis  on  labour  and  skills  shortages  shortage 
occupations at the EU level that persist over the medium term (2017-2022290, at ISCO 4-digit 
level), the methodology considered for the purpose of the EU Talent Pool initiative considers 
those occupations that were indicated at least twice, including at least once since the onset of 
the  pandemic.  A  list  of  occupations  identified  in  such  a  way  can  be  found  at  the  end  of  the 
section 2.2. 

1.3 Literature review 

Apart from the definition and methodology used, the assessment of labour and skills shortages 
outlined  below  is  based  on  a  literature  review,  with  few  recent  key  studies  at  EU  level 
mentioned below:  

•  European Commission, European Semester Spring Package (2023) 

•  European Commission, Towards a Job-Rich Recovery COM(2012)173 

•  CEDEFOP, Skills Shortages and Gaps (2015) 

•  CEDEFOP, Insights into skills shortages and skill mismatch (2018) 

•  CEDEFOP, The Green Employment and Skills Transformation (2021) 

•  CEDEFOP, Skills Forecast up to 2030 (2023) 

•  ESDE, Employment and Social Developments in Europe (2023) 

•  LMWD, Labour Market and Wage Developments (2022) 

288  
289  

290 

Based on Article 30 of EURES Regulation (EU) 2016/589. 
The  shortcomings  include:  variation  in  the  geographical  scope  of  the  exercise  across  years;  different  reference 
periods  covered  in  the  same  reporting year;  different  sources  used  by the PES  when  reporting  shortages  (i.e.  PES 
administrative data, national occupation forecasts, occupation barometer, PES survey only, combination of different 
sources); the selection criterion for identifying widespread shortages varies from year to year. 
Before this period, data is only available at ISCO 3-digit level. 

163 

 
 
 
•  EUROFOUND, Business not as usual: How EU companies adapted to the COVID-19 

pandemic (2021) 

•  EUROFOUND, Tackling Labour Shortage in EU Member States (2021) 

•  EUROFOUND,  Measures  to  Tackle  Labour  Shortages:  Lessons  for  future  policy 

(2023) 

•  EIB, 2022/2023 Investment Report (2023) based on latest available data 

•  ECFIN, Monthly and Quarterly Business and Consumer Surveys (July 2023) 

•  ELA, 2022 EURES report on Labour shortages and surpluses (2023) 

•  ELA, 2022 Annual report on intra-EU labour mobility (2023) based on latest available 

data (2021/2020) 

Against  this  background,  the  section  below  aims  at  summarising  briefly  the  main  data  and 
knowledge on current and future skills shortages present in the EU.  

2. Labour and skills shortages in the EU 

Labour  shortages  are  a  common  challenge  for  EU  member  states.  Shortages  in  key  strategic 
sectors for the green and digital transition are a risk for attaining common initiatives agreed at 
the  European  level,  such  as  the  EU  industrial  strategy,  or  common  objective,  such  as  the 
competitiveness  of  the  EU  economy  as  a  whole.    Notwithstanding  the  need  to  upskill  and 
reskill the existing EU workforce as well as activate the inactive population in working age, all 
of which is highlighted by the current 2023 EU Year of Skills, the EU lacks a common EU-
level  tool  to  attract  and  retain  workers  from  third  countries,  at  all  skill  levels,  as  part  of  a 
strategic  labour  migration  policy  living  up  to  common  European  challenges,  such  as  for 
instance the relative lack of attractiveness of the EU and of its Member States291.  

2.1 Labour shortages in the EU labour markets 

This  section starts  with  the historical  dynamics of the headline indicator  of labour shortages, 
namely  the  Job  Vacancy  Rate  published  by  Eurostat  (2.1.1),  to  move  to  labour  market 
imbalances (at sectoral and occupational level of analysis) as reported by EU companies and 
Public  Employment  Services  (2.1.2)  and  to  conclude  on  the  forecasting  of  labour  and  skills 
shortages performed by CEDEFOP (2.1.3). 

2.1.1 A steadily increasing job vacancy rate 
In  the  EU,  after  the  COVID-19  induced  temporary  turbulence  in  labour  markets;  labour 
shortages rebounded sharply in line with previous occupational and sectoral patterns pre-2020 
as the economy  and the labour market recovered and even increased in the period leading to 
the  outbreak  of  the  conflict  in  Ukraine,  in  early  2022292.  Taking  a  longer  perspective,  not 
merely  linked  to  the  business  cycle,  the  unmet  demand  for  labour,  as  measured  by  the  job 
vacancy rate in the EU, had been steadily rising since 2012, when economic activity started to 

291  
292  

OECD, Attractiveness Index, 2023. 
European Commission, ESDE, 2023, p. 14. 

164 

 
 
 
recover  from  the  global  financial  crisis  of  2009-2010293.  After  COVID-19  turbulence,  the 
vacancy rate reached levels much higher than before the lockdowns: the overall vacancy rate 
stood  a  3%  in  the  first  quarter  of  2023,  more  than  doubling  from  the  2010-2015  period, 
including in sectors relevant to the transition to climate neutrality (to be detailed below).294  

Figure 1: Job vacancy rates in the business economy, EU27 (quarterly data) 

Source: Eurostat (jvs_q_nace2)  

In terms of geographic patterns, as showed by the figure below, Q1 2023 job vacancy rates in 
the  business  economy  were  especially  high  in  Belgium,  Austria,  the  Netherlands,  Germany, 
Czechia  and  Sweden,  while  moderate  in  Bulgaria,  Spain,  Poland  and  Romania.  While  the 
pressure  on  labour  supply  is  the  largest  in  countries  with  the  fastest-shrinking  working  age 
population  –  explained  by  low  past  birth  rates  and  negative  or  insignificant  net  migration 
(examples are Bulgaria, Croatia, Italy, Latvia, Poland, Romania) – job vacancy rates tend to be 
lower in these Member States, suggesting that the current imbalances on the labour market are 
structural  and  rather  demand-led.  Eurofound  distinguishes  between  three  groups  of  Member 
States:  countries  with  very  high  levels  of  labour  shortages  with  strong  increases  in  the  past 
decade (Austria, Belgium, Czechia, Germany and the Netherlands); countries in line with the 
EU  average  (Cyprus,  Estonia,  Finland,  Hungary,  Italy,  Latvia,  Luxembourg,  Malta,  Slovenia 
and Sweden); and countries with lower and only slowly increasing job vacancy rates, typically 
with  high  levels  of  unemployment  and  informal  employment  (Bulgaria,  Croatia,  Greece, 
Ireland, Lithuania, Poland, Portugal, Romania, Slovakia and Spain). 

Figure 2: Job vacancy rates in the business economy, by Member State (2023 Q1) 

293  

294  

European  Commission,  Towards  a  Job-Rich  Recovery,  COM(2012)173  plotted  a  strategy  to  reach  75%  of  20-64 
years  old  in  employment  as  a  target  of  the  2020  Strategy.  With  a  2-year  delay,  also  due  to  the  turbulence  of  the 
COVID-19 pandemic the employment rate dropped to 72% in 2020, rebounded to 73% in 2021, and reached 75%  in 
2022. EU's employment rate peaks at 75% in 2022 - Products Eurostat News - Eurostat (europa.eu). 
https://ec.europa.eu/eurostat/databrowser//product/view/JVS_A_RATE_R2 During the entire 2022, the vacancy rate 
was  markedly  higher  even  than  vacancy  rates  of  the  tight  labour  market  from  before  the  Covid  outbreak,  by  0.6 
percentage points. 

165 

 
 
 
 
 
 
Source: Eurostat (jvs_q_nace2)  

Serious labour shortages are also clearly evident at the sectoral level. As of the first quarter of 
2023,  job  vacancy  rates  were  especially  high  in  administrative  and  support  service  activities 
(4.6%), accommodation and food service activities (4.2%), construction (3.7%), professional, 
scientific and technical activities (3.6%), and information and communication (3.5%). On the 
other hand, sectors that experience lower levels of unmet demand for labour include: financial 
and  insurance  activities  (1.9%),  electricity,  gas,  steam  and  air  conditioning  supply  (1.8%), 
water supply; sewerage, waste management and remediation activities (1.8%), and mining and 
quarrying (1.7%).295 

2.1.2 Current imbalances in the labour market 

As mentioned before, the tightness of the EU-27 labour markets296 has increased substantially 
in  2022,  compared  to  the  pre-COVID-19  crisis  period,  as  the  pandemic  exacerbated  labour 
shortages  in  some  sectors  and  occupations  (for  example  healthcare,  social  care  and  ICT 
services297). Subsequently, in 2023, unemployment reached a historically low point compared 
to  the  number  of  vacancies298.  Labour  markets  are  tighter  in  some  Member  States  than  in 

295  

296  

297  
298  

activity 

-  quarterly  data 

(from  2001  onwards) 

statistics  by  NACE  Rev.  2 

Job  vacancy 
[JVS_Q_NACE2__custom_6683579] 
As  measured  by  the  Labour  market  slack  indicator  which  measures  the  unmet  supply  of  employment,  which  has 
several different components, more or less substantial according to the country. According to Eurostat, in 2022, the 
labour market slack was highest in Spain (21.3 % of the extended labour force), followed by Italy (19.5 %), Greece 
(18.5 %), Sweden (16.1 %) and Finland (15.1 %). By contrast, Czechia (3.0 %), Malta (4.4 %) and Poland (4.9 %) 
registered the lowest levels of labour market slack Labour market slack - employment supply and demand mismatch 
- Statistics Explained (europa.eu).  
Eurofound, Business not as Usual (2021). 
According to the 2022 Labour Market and Wage Developments, job creation brought unemployment to an all-time 
low and a sharp increase in job vacancies, leading to unfilled labour demand. p. 8. Additionally, the labour market 
slack,  comprising  not  only  unemployed,  but  also  the  part-time  workers  who  want  to  work  more,  people  who  are 
available to work but do not look for work, and people who are looking for work but are not immediately available, 
also decreased. p. 83 Labour market and wage developments in Europe - Publications Office of the EU (europa.eu). 

166 

 
 
 
 
others299,  highlighting  that  labour  demand  and  supply  are  not  balanced  across  Member 
States300. For instance, skills mismatches are being highlighted in some Member States: Spain, 
Greece and Italy301, whereas for the EU the overqualification rate was 22% in 2022302. Some 
regions in the EU are more affected by a shrinking working-age population than others, with 
rural areas losing the most population. Eurostat projections indicate that the share of people in 
the EU living  in  a region,  whose population  is  shrinking,  will increase from  34% in  2020 to 
45%  in  2030  and  51%  in  2040303.  82  EU  regions  accounting  for  30%  of  the  European 
population are facing or risking a talent development trap, meaning a decline of their working-
age population and a stagnant number of people with tertiary education.304  

Within  Member  States  and  regions,  sector  and  occupation  specific  labour  shortages  do 
already occur. Therefore,  quantitative labour shortages in  some parts of the EU economy 
are expected grow in the medium-term, as incipient demographic trends leading to an ageing 
population  and  shrinking  workforce  will  take  hold305.  According  to  Eurofound,  in  the  last 
quarter of 2022, the proportion of managers reporting that labour shortage was a factor limiting 
production in the industry, services and construction sectors were 26%, 30% and 31%. 

According to the European Investment Bank, in 2022, 85% of EU companies found that lack 
of available staff with the right set of skills is an additional factor hampering investments. In 
2021, approximately 63% of EU companies experienced difficulties to recruit ICT specialists, 
with large companies reporting more-hard-to-fill vacancies306. In most of the cases (51.3%) the 
lack  of  applications  was  the  difficulty  for  recruiting  ICT  specialists’  positions  most  often 
reported by companies in 2021. By 2030, the target of the EU Digital Compass is to have 20 
million of employed ICT specialists to accompany the transition to a digital economy. Only 9 

299  

300  

301  
302  

303  

304  
305  

306  

The  EU  employment  rate  peaked  at  75%  in  2022,  for  the  age  group  20-54-year-olds.  For  comparison,  the 
employment  rated  dropped  to  72%  in  2020,  due  to  the  COVID-19  pandemic.  The  countries  with  the  highest 
employment rate, above 80%, were the Netherlands, Sweden, Czech Republic, Estonia, Hungary and Germany. EU's 
employment rate peaks at 75% in 2022 - Products Eurostat News - Eurostat (europa.eu) 
The EU economy grew by 3.5% in real terms in 2022. In the EU, in 2022, employment rates were at a record high at 
74.6%  with  213.7  million  people  employed  and  unemployment  rates  at  a  historic  low  at  6.2%.  As  evidenced  by 
different  labour  market  participation  rates,  labour  markets  in  some  Member  States  are  close  to  almost  full 
employment  (ESDE,  2023).  And  yet  intra-EU  mobility  is  not  sufficient  or  balanced  across  all  different  levels  of 
skills Intra-EU mobility Report (2023)  
European Commission, Labour market and Wage Development, Annual Review 2022, p. 83 
Overqualification  refers  to  “vertical”  skills  mismatch,  when  people  with  tertiary  education  are  employed  in 
occupations that do not require such a high level of education. Among the EU countries, the “vertical” mismatch was 
highest  in  Spain  (36%),  Greece  and  Cyprus  (each  32%).  EU's  employment  rate  peaks  at  75%  in  2022  -  Products 
Eurostat  News  -  Eurostat  (europa.eu)  Using  EU  Labour  Force  Survey  (EU-LFS)  data,  Eurostat  monitors  both 
"vertical"  and  "horizontal"  skill  mismatch.  "Vertical"  measures  focus  on  discrepancies  between  educational 
attainment  levels  (ISCED  2011  1-digit)  and  occupations  (ISCO  2008  1-digit).  "Horizontal"  measures  focus  on 
misalignments  between  the  educational  field  of  the  highest  level  of  education  attained  (ISCED-1999  fields  of 
education and training) and occupations (ISCO 2008 3-digit). 
Relative peripheral geographical position, availability of transport and digital infrastructure and lack of attractiveness 
are among the reasons which contribute to the intertwined  emigration and depopulation trends of certain regions, in 
the  EU,  especially  among young  people  who  emigrate  for  study and  work-related  reasons.  European  Commission 
Communication, Harnessing Talent in Europe’s regions, 17 January 2023. 
European Commission Communication, Harnessing Talent in Europe’s regions, 17 January 2023. 
For  instance,  in  Germany,  the  Institute  for  Employment  Research  (affiliated  to  the  Federal  Employment  Agency), 
estimated  in  2021  that  the  German  labour  market  will  need  to  recruit  from  abroad  approximately  400000  skilled 
workers annually to offset the incipient labour shortages, with number being potentially even higher due to the war 
in Ukraine. In Germany, the highest number of workers is required in the social work sector, followed by healthcare 
and  nursing  staff  as  well  as  electricians  and  heating  and  air  conditioning  technicians.  Software  engineers  are  also 
very much in demand.  Projektion des Erwerbspersonenpotenzials bis 2060  - Demografische Entwicklung lässt das 
Arbeitskräfteangebot stark schrumpfen (iab.de). 
Eurostat, isoc_ske_itrcrn2. 

167 

 
 
 
million were employed in 2021307, whereas the demand for ICT work doubled between 2011 
and 2021308. Therefore, current labour shortages in this sector are likely to become even more 
pressing.  WHO  estimates  a  projected  shortfall  of  workers  in  the  healthcare  sector,  at  the 
global level, of approximately 10 million health workers, where labour shortages are predicted 
to  be  most  severe  in  low-  and  lower-middle  income  countries309.  Labour  shortages  have 
doubled also in sectors considered key for the green transition between 2015 and 2021310. 
For the EU, it is estimated that the green transition could lead to the creation of between 1 and 
2.5 million additional jobs by 2030311, increasing the demand for staff namely in sectors such 
as construction, renewable energy and electricity, manufacturing of electric goods312 

On the basis of the analysis of several past EURES reports on labour shortages and surpluses, 
the  most  frequently  reported  labour  shortages  since  2017  are  in  healthcare,  software, 
engineering,  mechanics  and  building  trade  occupations.  Unsurprisingly,  sectors  such  as 
construction,  healthcare,  and  STEM  (science,  technology,  engineering,  and  mathematics), 
particularly  ICT  (Information  and  Communications  Technology),  were  among  the  most 
affected in 2022. These shortages will likely increase with the projected decline in the working 
age  population  from  265  million  in  2022  to  258  million  by  2030313,  moving  closer  to  a 
quantitative labour shortage scenario and therefore having a persistent and structural nature. 

Throughout  Europe,  according  to  the  2022  EURES  report314,  there  are  hundreds  of  labour 
shortages  at  the  level  of  4-digit  ISCO  08  nomenclature.  Some  of  them  are  niche  shortages 
(being reported by only one country or a small number of countries). However, 38 occupations 
were identified as most common (being reported by at least 11 countries) and among them the 
following  occupational  groups  were  identified:  metal,  machinery  and  related  trade  workers, 
welders,  concrete  placers  and  finishers,  science  and  engineers  as  well  as  ICT  professionals. 
Among  the  most  severe  shortages  were  identified:  bricklayers  and  related  workers,  building 
and related electricians, carpenters and joiners, plumbers and pipe fitters, heavy truck and lorry 
drivers and nursing professionals. 

307  
308  

309  
310  

311  

312  

313  
314  

Eurostat, Our progress towards the EU’s Digital Decade targets - Produkte Eurostat Aktuell - Eurostat (europa.eu). 
As of today, the impact of recent advancements in the Artificial Intelligence (AI) field remains unclear both in terms 
of labour market development but also labour market shortages. Given this uncertainty, this report keeps a neutral 
stance  on  the  likely  consequences  of  the  AI,  both  in  terms  of  productivity  but  also  labour  demand  as  a  result  of 
employers’ decisions. 
WHO, Health workforce (who.int). 
According to the narrow definition of green jobs provided by Eurostat (Employment in the environmental goods and 
services sectors). These sectors include manufacturing, construction, transportation and electricity, steam, gas and air 
conditioning. Commission, A Green Deal industrial Plan for the Net-Zero Age, COM(2023)62. 
The  employment  consequences  of  the  green  transition  need  to  take  into  account  not  only  the  sectors  directly 
concerned by enhanced greening activities, such as the construction sector, but also indirectly affected sectors, such 
as manufacturing. Moreover, the estimated employment impacts depend on underlying assumptions about by proper 
employment and adequate educational policies. ESDE, 2023, pp. 51-54. 
Cedefop, The green employment and skills transformation; Eurofound Fit for 55 Employment Forecasts; Asikanen et 
al. The future of jobs is green. 
Annex 6, Problem assessed by a Demographic perspective. 
A  statistical  relationship  could  not  be  found  between  the  numbers  employed  in  a  country  and  the  number  of 
identified shortage occupations reported in the country. Labour shortages report 2022 - EURES | European Labour 
Authority (europa.eu), pp. 18-22. 

168 

 
 
 
 
 
 
Table 1: Shortage occupations most often reported by PES, 2022 

Occupation 

Number of countries 
reporting the occupation 
as a shortage 

Percentage of countries who 
ranked shortage as ‘high 
magnitude’ 

Bricklayers and related workers 

Carpenters and joiners 

Heavy truck and lorry drivers 

Metal working machine tool 
setters and operators 

Nursing professionals 

Plumbers and pipe fitters 

Building and related electricians 

Welders and flame cutters 

Concrete placers, concrete 
finishers and related workers 

Sheet metal workers 

Floor layers and tile setters 

Software developers 

Cooks 

Building construction labourers 

Electrical mechanics and fitters 

Applications programmers 

Generalist medical practitioners 

Bus and tram drivers 

Motor vehicle mechanics and 
repairers 

Specialist medical practitioners 

Software and applications 
developers and analysts not 
elsewhere classified 

Earthmoving and related plant 
operators 

Waiters 

19 

18 

18 

18 

18 

18 

18 

17 

17 

16 

16 

15 

15 

15 

15 

15 

14 

14 

14 

14 

14 

14 

13 

169 

57% 

38% 

73% 

50% 

54% 

38% 

40% 

54% 

62% 

44% 

36% 

58% 

55% 

38% 

22% 

64% 

55% 

50% 

33% 

55% 

58% 

44% 

44% 

 
 
Occupation 

Number of countries 
reporting the occupation 
as a shortage 

Percentage of countries who 
ranked shortage as ‘high 
magnitude’ 

Early childhood educators 

Structural metal preparers and 
erectors 

Painters and related workers 

Agricultural and industrial 
machinery mechanics and 
repairers 

Bakers, pastry-cooks and 
confectionery makers 

Systems analysts 

Butchers, fishmongers and 
related food preparers 

Health care assistants 

Cleaners and helpers in offices, 
hotels and other establishments 

Electrical engineering 
technicians 

Psychologists 

Plasterers 

Civil engineers 

Physiotherapists 

Roofers 

Source: European Labour Authority 

13 

13 

13 

12 

12 

12 

12 

12 

12 

12 

11 

11 

11 

11 

11 

43% 

33% 

63% 

67% 

25% 

56% 

38% 

60% 

63% 

63% 

75% 

25% 

57% 

40% 

78% 

Moreover, the presence of occupations surpluses, according to the 2022 EURES report315, also 
points  to  the  emergence  of  labour  market  imbalances,  in  the  context  of  major  drivers  of 
change, which include, but are not limited to, rapid diffusion of new digital  technologies, the 
ageing  of  the  European  population  and  the  transition  to  a  climate-neutral  economy.  The 
Annual Report on Intra-EU Labour Mobility 2022316 analysed the transformation of EU labour 
market between 1999 and 2017. The report highlights a clear pattern of change, showing major 
increases  in  employment  levels  in  health  and  social  services,  professional  services,  financial 
services,  ICT  &  business  services,  and  retail  &  hospitality.  Together,  these  five  sectors 

315  
316  

Labour shortages report 2022 - EURES | European Labour Authority (europa.eu) 
https://op.europa.eu/en/publication-detail/-/publication/00ed7c30-dd96-11ed-a05c-01aa75ed71a1/language-en  

170 

 
 
 
accounted  for  almost  two-thirds  of  the  total  increase  in  jobs  over  this  time  frame.  The 
employment  growth  within  health  and  social  care  services  alone  accounted  for  almost  the 
entire net growth observed over this period (+1 921 400 employed persons), due largely to the 
ageing European population leading to increased demand for healthcare professionals and care 
workers  to  provide  support  to  the  elderly  with  their  daily  activities  such  as  personal  care  or 
mentoring. Other sectors which showed large increases were professional services e.g., legal or 
accounting services (with 586,200 additional persons employed), retail & hospitality (225 900) 
as well as ICT & business services (207 100). On the other hand, there were some industries 
which  experienced  decreases  in  their  employment  levels  between  1999  and  2017.  These 
include sectors such as manufacturing (-764 300) and agriculture (-353 000). These decreases 
in employment levels can be mainly attributed to labour-replacing technological advancements 
coupled with the effects of globalisation - i.e. increasing international competition - resulting in 
a reshaping of global production chains. 

2.1.3 Consensus on future expected labour and skills shortages 

Labour shortages are expected to persist in both high-skills and low-skills occupations, driven 
by  the  creation  of  additional  jobs  and  the  need  to  replace  workers  who  retire317.  In  such  a 
context, labour shortages are not a novel challenge. However, limited supply of specialized as 
well  as  generalist  workers  is  increasing  its  gravity.  Recent  studies  conducted  by  Eurofound 
confirm  that existing  labour shortages are likely  to  persist in  Europe for  years to  come, with 
demographic trends being one of the major underlying trends, but not the only one.318 

Additionally, in relation to the European Green Deal, Cedefop launched a foresight exercise on 
skills  related  to  4  sectors:  smart  and  green  cities,  waste  management,  agri-food  and  circular 
economy319  up  to  2030  and  beyond.  The  construction  sector,  which  plays  a  pivotal  role  in 
achieving the green transition, the shift to energy-efficient buildings will require workers to be 
more aware of eco-friendly materials and technologies. By 2030, an estimated 3 to 4 million 
construction workers in various occupations such as heat pump boiler installers, carpenters and 
joiners, bricklayers,  and technicians will require training on energy efficiency and renewable 
energy  sources.  The  green  transition  is  expected  to  shift  the  sectoral  composition  of 
employment  in  the  EU  from  polluting  to  ‘cleaner’  sectors  and  boost  employment  in  some 
supporting  services,  albeit  to  a  limited  extent.  ICT-related  professions  play  key  role  in  the 
transition towards neutrality too. According to assessment carried out by sectoral stakeholders, 
sectors  such  as  renewable  energy  or  automotive  manufacturing  are  experiencing  increased 
demand for digital competences and knowledge, such as big data and data analytics or software 
development.320 

Integration of skills relevant to the green transition in the broader national strategies addressing 
skills challenges to address labour shortages and fairness in the transition is mandated by the 

317  
318  

319  
320  

to 

tackle 

(2023),  Measures 

labour  shortages:  Lessons 

ESDE, 2023, p. 15. 
Eurofound 
https://www.eurofound.europa.eu/publications/report/2023/measures-to-tackle-labour-shortages-lessons-for-future-
policy  This  report  builds  on the findings  of  the  Eurofound  study “Tackling  Labour  Shortages” published  in 2021, 
which mapped the scale, scope and nature of labour shortages in the EU Member States. The earlier report explored 
the drivers of shortage and developed a categorisation of measures adopted in different Member States to address the 
most important shortages at sectoral, occupational and geographical levels. 
CEDEFOP, The Green Employment and Skills Transformation (2021), p. 30. 
Strategic Blueprint project for the automotive sector DRIVES  or initiatives under the Pact for Skills. 

future  policy.  Available  at: 

for 

171 

 
 
 
Council Recommendation on ensuring a fair transition to climate neutrality.321. On this basis, 
the 2023 European Semester Spring package states: “the development and acquisition of skills 
and competences  relevant  for the green transition is  becoming more pressing. It  is  becoming 
increasingly  important  to  ensure  that  all  workers,  in  particular  those  in  sectors  and  regions 
more  affected  by  the  green  transition,  can  benefit  from  the  employment  gains  of  a  net-zero 
economy.  Vocational  and  technical  profiles  will  be  particularly  sought  after  considering  the 
accelerated energy transition and technological transformation in the context of the EU Green 
Deal Industrial Plan. Member States face significant and growing labour shortages, while 
low  training  provision  in  key  sectors  could  furthermore  exacerbate  bottlenecks  in  the 
transition  to  a  net-zero  economy.  The  challenge  can  be  even  stronger  in  some  peripheral, 
economically stagnant  or affected  regions322. In this context, it is  crucial that Member States 
support  the  anticipation,  acquisition  and  provision  of  skills  for  the  green  economy,  as 
highlighted in the CSRs to all Member States and in line with the Council Recommendation on 
ensuring  a  fair  transition  towards  climate  neutrality,  to  match  labour  market  needs  and  offer 
equal opportunities for all. Promoting  training for public sector workers at all levels (including 
local  administration)  would  also  accelerate  investments  and  reforms  necessary  for  the  green 
transition323.  However,  additional  up-skilling  and  re-skilling  measures,  while  also  fighting 
against gender segregation in the labour market as well promoting higher female participation 
to  the  labour  market324,  need  time  to  be  effective,  not  only  because  of  implementation  and 
deployment  of  initiative  overcoming  ingrained  cultural  and  resistances  in  many  countries. 
Therefore, tackling the current skills shortages by relying on these measures alone is not going 
to produce immediate results325.  

To  measure  future  labour  shortages,  2023  Cedefop  skills  forecast,  taking  into  account 
expansion demand, replacement demand and labour market imbalances, provides a high-level 
analysis, ranging from weak to strong shortages.326 For more details, see below section 2.3. 

2.2 Bottleneck occupations critical for the twin transition 

In the context of the twin transition strategy adopted at the European level, several sectors play 
a  prominent  role  for  structural  transformation  to  happen  successfully  on  the  ground327.  The 

321  

322  

323  

324  
325  

326  
327  

On  16  June  2022 Member  States  unanimously  adopted  the  Council  Recommendation on  ensuring a  fair  transition 
towards climate neutrality ((2022/C 243/04 ). The Recommendation invites Member States to adopt measures which 
address the employment and social aspects of climate, energy and environmental policies. The Commission proposal 
was accompanied by a Staff Working Document (https://ec.europa.eu/social/BlobServlet?docId=25029&langId=en) 
that provides an overview and discussion of the available analytical evidence underpinning the recommended policy 
interventions,  building  on  the  analyses  presented  in  relevant  impact  assessment  reports  accompanying  the  2030 
Climate Target Plan and the various initiatives of the ‘Fit for 55’ package. 
See  Communication  on  Harnessing  Talent  for  Europe’s  regions, 2023  for definition  of  talent  trap  and  example of 
rural and/or peripheral regions across all Member States. 
EIB, 2022/2023 Investment Report (2023) states that nearly seven in ten municipalities report problems with access 
to environmental and climate assessment skills, while about six in ten report a lack of engineering or digital skills to 
deliver their investment programme. 
ESDE, 2023 p. 15-16. 
Analogy  from  business  practices  shows  that  corporate  internal  training  is  not  able  to  fill  all  internal  needs  in 
alignment with their growth and production objectives; As a consequence, companies of all sizes tend to resort to 
external recruitment (either on international or domestic labour market) when confronted with urgent and significant 
labour  or  skills  shortages.  Based  on  a  survey,  4  in  10  EU  employers  had  difficulty  finding  people  with  the  right 
skills,  in  the  domestic  labour  market,  even  though  unemployment  rates  peaked  CEDEFOP,  Insights  into  skills 
shortages and skill mismatch, 2018. 
ESDE, 2023 pp; 48-49. 
Eurofound,  Measures  to  Tackle  Labour  Shortages:  Lessons  for  future  policy,  pp.  3-11  Measures  to  tackle  labour 
shortages: Lessons fot future policy (europa.eu). 

172 

 
 
 
energy  crisis  and  the  need  for  accelerating  the  energy  transition  have  amplified  labour  and 
skills  shortages  and  magnified  the  recruitment  needs  for  key  sectors  to  decarbonise  the  EU 
economy. In particular, digital skills are of transversal nature and affect many EU sectors, the 
green  jobs’  skills  and  related  skills  mismatch  affect  primarily  a  limited  number  of  sectors. 
Evidence  from  sectoral  studies  and  macroeconomic  projections  indicates  that  some  sectors 
linked  to  energy,  manufacturing,  construction,  transportation,  water  and  waste  management 
and ICT will be more affected than others given their contribution to advancement on energy, 
digital and other relevant targets set out under the Green Deal. The sectoral and occupational 
impact  of  the  green  transition,  in  other  words,  is  more  heterogenous  than  that  of  the  digital 
transition which is relevant for almost all sectors and occupations and therefore the digital one 
has more widespread and cross-sectoral labour market impacts. 

At  a  lower  level  of  detail,  the  ESCO  classification  allows  for  defining  the  relevant  green 
skills328 needed to make the green transition happen on the ground329. By cross-referencing the 
ESCO  taxonomy  with  the  list  of  occupational  shortages  provided  by  the  EURES  labour 
shortages and surplus report (codified at  ISCO-08 4-digit taxonomy) it is possible to identify 
occupational  shortages  (for  which  at  least  one  country  reported  a  shortage).  The  mapping  of 
such occupational shortages is made available in the context of the 2023 European Semester, 
which constitutes the basis for defining country-specific analysis in this field, as a result of the 
horizontal CSR on skills for the green transition as follows: “Step up policy efforts aimed at 
the  provision  and  acquisition  of  skills  and  competences  needed  for  the  green  transition.” 
addressed to all Member States in July 2023. In short, skills shortages are a contributing factor 
for  bottleneck  occupations.  Among  occupational  groups  there  are  clear  differences  between 
how  employers  work  to  mitigate  their  recruitment  difficulties.  While  recruitment  abroad  is 
relatively  common  among  health  professionals,  it  is  less  used  to  recruit  science  and 
engineering professionals. Among the skilled manual occupations, employers mainly cope by 
providing  training  and  development  to  existing  staff,  and  to  a  limited  degree  on  labour 
mobility330. 

The evidence points to targeted structural shortages at the EU level, in relation to the twin 
transitions (see case studies below for IT and Green transitions) or healthcare and care sectors 
(see case studies), which should be a priority for EU-level policies as they relate to EU-level 
targets and objectives such as the Digital Decade, FitFor55 initiative and the Green Industrial 
Plan.  When  trends  differ  between  countries,  in  terms  of  national  labour  or  skills  shortages, 
mobility  can  offer  a  good  opportunity  for  reducing  bottlenecks.  This  concerns  especially 
occupational groups within the top 5 at 2-digit level. International recruitment schemes could 
add value in this respect, but they should be narrowly defined, preferably at ISCO 4-digit level 
(or  even  more  specific).  For  instance,  ICT  professionals,  one  of  the  top  5  bottleneck 
occupational groups, schemes should be oriented to occupations within the 4-digit groups such 
as  Software  developers  and  Systems  analysts,  which  are  both  within  the  top  20  bottleneck 
vacancies at 4-digit level. 

328  
329  

330  

Green Skills and Knowledge - Labelling ESCO.pdf (europa.eu). 
ESCO  classification,  which  is  labour-market  related,  has  identified  green  skills  and  knowledge  concepts: 
https://esco.ec.europa.eu/en/news/green-skills-and-knowledge-concepts-labelling-esco-classification. 
CEDEFOP, Skill shortages and gaps in European enterprises, 2015, pp. 7-8. 

173 

 
 
 
Occupations  with  shortages  relevant  for  the  green  transition  reported  in  the  most  Member 
States are bricklayers and related workers (19 MS), plumbers and pipe fitters, carpenters and 
joiners,  building  and  related  electricians,  metal  working  machine  tool  setters  and  operators, 
heavy truck and lorry drivers (18); and concrete placers, concrete finishers and related workers 
(17  MS).  These  occupations  are  particularly  relevant  in  the  construction  sector  to  increase 
energy efficiency, to reduce energy consumption in existing buildings or to install alternative 
sources  of  energy  (electricians,  plumbers)  and  to  build  the  new  necessary  infrastructure 
(bricklayers,  concrete  placers).  Concerning  the  digital  transition,  the  occupations  with  most 
frequently recorded shortages in Member States are software developers; web and multimedia 
developers; applications programmers; and software and applications developers and analysts 
not elsewhere classified. These professions also play a key role in the transformation towards 
net-zero, as the development of alternative sources of energy (such as offshore energy) relies 
on data storage and software development.  

Additionally,  there  is  a  number  of  occupations  that  were  not  in  widespread  shortage  in  the 
previous years but are likely to grow in importance for the transition in the future due to their 
active role in the acceleration of greening of activities. These are identified based on a review 
of sectoral sources and are colour coded in yellow in the table below. Overall, the following 
occupational  groups (43) have been identified as  critical  occupations  at  EU level  and should 
therefore  also  inform  the discussion for which targeted recruitment  through labour migration 
would be beneficial331: 

Table on  Critical occupation at the EU level (ISCO-08)332 

2142 

2151 

2211 

2212 

2221 

2411 

2511 

2512 

2513 

2514 

2519 

3113 

Civil engineers 

Electrical engineers 

Generalist medical practitioners  

Specialist medical practitioners  

Nursing professionals 

Accountants 

Systems analysts 

Software developers 

Web and multimedia developers 

Applications programmers 

Software  and  applications  developers  and  analysts  not  elsewhere 
classified 

Electrical engineering technicians 

331  
332  

ESDE, 2023, pp. 128-130. 
This table is based on information provided by several previous EURES reports identifying occupational shortages 
(ISCO-8) that are not exhaustive for the green and digital transition. 

174 

 
 
 
 
3221 

5120 

5131 

5321 

7112 

7114 

7115 

7121 

7123 

7126 

7127 

7212 

7213 

7214 

7223 

7231 

7233 

7411 

7412 

7511 

8331 

8332 

9112 

3119 

2143 

2133 

2145 

2144 

3115 

Nursing associate professionals 

Cooks 

Waiters 

Health care assistants 

Bricklayers and related workers 

Concrete placers, concrete finishers and related workers 

Carpenters and joiners 

Roofers 

Plasterers 

Plumbers and pipe fitters 

Air conditioning and refrigeration mechanics 

Welders and flamecutters 

Sheet-metal workers 

Structural-metal preparers and erectors 

Metal working machine tool setters and operators 

Motor vehicle mechanics and repairers 

Agricultural and industrial machinery mechanics and repairers 

Building and related electricians 

Electrical mechanics and fitters 

Butchers, fishmongers and related food preparers 

Bus and tram drivers 

Heavy truck and lorry drivers 

Cleaners and helpers in offices, hotels and other establishments 

Physical  and  engineering  science 
classified 

technicians  not  elsewhere 

Environmental engineers  

environmental protection professionals 

Chemical engineers  

Mechanical engineers  

Mechanical engineering technicians  

175 

 
 
2141 

3119 

Process engineers 

Process engineering technicians  

Legend:  Highlighted  in  green  are  occupations  relevant  to  the  twin  transition  with  already  observed  widespread  shortages 
today.  Highlighted  in  yellow  are  the  occupations  that  are  not  yet  in  shortage  but  are  of  growing  importance  to  the  twin 
transition. 

2.3 Current and future employment needs by occupation and qualification levels 

The  European  Centre  for  the  Development  of  Vocational  Training  (Cedefop)  is  monitoring 
current  and  forecasting  future  skills  in  Europe,  by  looking  at  the  supply,  demand  and 
matching  of  skills  at  the  sectoral  and  occupational  group  level333.  As  clarified  in  the 
previous  section,  an  overall  balance  between  aggregate  labour  supply  and  demand  can  hide 
quantitative and qualitative labour and skill shortages. The latter may be caused by matching 
frictions, geographical barriers to mobility, or asymmetric information between employers and 
workers334. In particular, structural labour and skills shortages lay in sudden changes linked to 
the new economy needs335. 

The employment growth within health and social care services alone accounted for almost the 
entire net growth observed over this period (+1 921 400 employed persons), due largely to the 
ageing European population leading to increased demand for healthcare professionals and care 
workers  to  provide  support  to  the  elderly  with  their  daily  activities  such  as  personal  care  or 
mentoring.  Other  industrial  sectors  which  showed  large  increases  were  professional  services 
e.g.,  legal  or  accounting  services  (with  586  200  additional  persons  employed),  retail  & 
hospitality (225 900) as well as ICT & business services (207 100).  

On  the  other  hand,  there  were  some  industries  which  experienced  decreases  in  their 
employment levels between 1999 and 2017. These include sectors such as manufacturing (-764 
300  jobs)  and  agriculture  (-353  000).  These  decreases  in  employment  levels  can  be  mainly 
attributed  to  labour-replacing  technological  advancements  coupled  with  the  effects  of 
globalisation  -  i.e.  increasing  international  competition  -  resulting  in  a  reshaping  of  global 
production chains with the outsourcing of production and jobs to other countries.  

Cedefop’s  Skills-OVATE  dataset  (updated  to  2022)336  provides  detailed  quantitative 
information  on  professions  and  skills  employers  demand  based  on  online  job  advertisements 
(OJAs) in European countries. Note that this dataset, in turn, is biased towards sectors with a 
high share of online recruitment. According to OVATE, the occupations most sought after in 
online ads are office associate professionals; ICT professionals; office professionals; technical 
labourers; sales workers as well as researchers & engineers. 

333  
334  

335  

Skills Forecast | CEDEFOP (europa.eu) 
European Commission (2012a), “The Skill Mismatch Challenge in Europe”, Employment and Social Developments 
in Europe 2012. 
The Annual Report on Intra-EU Labour Mobility 2022 analysed the transformation of EU’s labour market between 
1999 and 2017 at the level of occupations. The report highlights a clear pattern of change, showing major increases 
in employment levels in health and social services, professional services, financial services, ICT & business services, 
and retail & hospitality. Together, these five sectors accounted for almost two-thirds of the total increase in jobs over 
this time frame.  

336            https://www.cedefop.europa.eu/en/tools/skills-intelligence/skills-online-job advertisements?country=EU27_2020&year=2022#3  

176 

 
 
 
 
 
Table 3: Share of occupations sought in online job ads in 2022, EU27 (percentage) 

Occupational group 

Share 

Occupations 

Professionals 

26.36 

ICT professionals 

Office professionals 

Share 
within 
group 

30.54 

26.74 

Researchers & engineers 

22.25 

Health professionals 

Legal & social 
professionals 

7.85 

7.66 

Teaching professionals 

4.95 

Office associate 
professionals 

51.19 

Associate professionals 

18.77 

Share 
overall 

8.05 

7.05 

5.87 

2.07 

2.02 

1.30 

9.61 

Science & engineering 
technicians 

Legal & social associate 
professionals 

Health associate 
professionals 

ICT technicians 

Service and sales workers  11.56 

Sales workers 

25.53 

4.79 

9.34 

1.75 

7.99 

1.50 

5.94 

50.81 

Personal service workers 

28.23 

Care workers 

Protection workers 

Clerks 

10.36 

Accounting clerks 

Other support clerks 

Customer clerks 

Office clerks 

Elementary workers 

9.32 

Technical labourers 

17.24 

3.73 

33.66 

25.87 

25.42 

15.05 

66.77 

Cleaners and helpers 

17.2 

Food preparation helpers 

9.25 

Other elementary workers  5.09 

177 

1.11 

5.87 

3.26 

1.99 

0.43 

3.49 

2.68 

2.63 

1.56 

6.22 

1.60 

0.86 

0.47 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Occupational group 

Share 

Occupations 

Share 
within 
group 

Share 
overall 

Agricultural labourers 

1.36 

Street services workers 

0.33 

Managers 

8.76 

Business managers 

Trades workers 

8.42 

Operators and assemblers  6.3 

Technical managers 

Hospitality & retail 
managers 

CEOs, officials & 
legislators 

Metal & machinery 
workers 

Electroengineering 
workers 

Construction workers 

Other manufacturing 
workers 

Handicraft & printing 
workers 

Drivers & vehicle 
operators 

Machine & plant 
operators 

0.13 

0.03 

4.83 

1.79 

1.22 

55.1 

20.44 

13.91 

10.55 

0.92 

37.86 

3.19 

24.62 

2.07 

20.77 

14.47 

1.75 

1.22 

2.28 

0.19 

44.08 

2.78 

39.48 

2.49 

Farm and related workers  0.15 

Farm and related workers  100.00 

0.15 

Assemblers 

16.44 

1.04 

Source: Skills-OVATE 

These  structural  shortages  in  a  given  sector  or  occupation  can  generally  be  attributed  to  (i) 
unattractive pay and working conditions, including a stressful environment, or low prestige, or 
(ii)  to  mismatches  with  the  local  working  force,  if  the  required  qualifications  and  skills  are 
simply not available for given medium and high-skilled occupations. 

Cedefop’s  2018  survey,  presented  in  their  publication  “Insights  into  skill  shortages  and  skill 
mismatch”337,  found  that  4  in  10  EU  employers  had  difficulty  finding  people  with  the  right 

337  

https://www.cedefop.europa.eu/en/publications/3075 

178 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
skills,  even  though  unemployment  rates  peaked338.  The  fast  pace  of  digitalisation,  the  rapid 
obsolescence  of  technological  skills  leads  to  significant  structural  shortages  in  digital  and 
technological skills in general, encompassing many sectors and occupations. 

With regard to transversal skills, Cedefop found in its publication “Skills forecast: trends and 
challenges  to  2030”339  that  digital  skills  and  transversal  skills  such  as  communication, 
problem-solving  and  critical  thinking  will  be  in  high  demand.  High-level  cognitive  and 
analytical skills will also be more and more important for the future of work.  

Traditional  vocational  skills  such  as  those  required  in  the  construction  and  automotive 
industries  will remain in  demand in  the EU. The publication also  highlights that transferable 
skills will become more important, as well as demand for workers who can work effectively in 
interdisciplinary  teams.  Finally,  transversal  skills  such  as  creativity,  flexibility  and  an 
entrepreneurial spirit will be essential in the future job market. 

For  the  future,  in  terms  of  labour  and  skills  needs  of  the  EU27  economy,  Cedefop  recently 
published the 2023 Skills Forecast, providing projections on labour and skills needs in the EU 
economy,  based on Cedefop dataset  of Skills  Panorama in  the EU. The  2023 Skills  Forecast 
gives a forward projection up to 2030 of the size and composition of the population and labour 
force  (based  on  Eurostat),  as  well  as  employment  by  sector  (2-digit  NACE),  occupation  (2-
digit  ISCO)  and  level  of  educational  attainment  (three  levels:  low,  medium  and  high)  – 
together with modelled replacement labour demand and the number of open positions.  

The  model  of  future  employment  levels  is  building  on  historic  trends  in  employment  data 
(LFS) and additional economic projections. 

The  main  indicator  in  the  Cedefop  dataset  for  quantifying  future  labour  and  skills  needs  in 
terms  of  the  EU  workforce  already  existing  in  given  sectors  or  given  occupations  is  ‘job 
openings’.  This  indicator  measures  the  need  for  labour  inflow  (into  the  EU,  which  can  be 
broken  down  by  Member  State,  sector  or  occupation)  to  reach  the  projected  employment 
numbers  for  the  EU  or  that  specific  sub-group.  This  is  calculated  as  the  sum  of  ‘expansion 
demand’ (which compares the projected employment level in the actual year and the preceding 
year)  and  ‘replacement  demand’  explained  by  the  number  of  employed  persons  leaving  the 
labour force permanently or temporarily340, or emigrate.  In other words, this  is  equal  to  the 
number  of  workers  who  need  to  flow  into  the  EU,  MS,  sector  or  occupation  to  occupy  the 
vacancies only to maintain employment at the level of the preceding year. 

According to the 2023 Skills Forecast, there will be an annual need of 8.2-8.9 million persons. 
For  comparison,  the  size  of  a  young  age  cohort  that  is  set  to  enter  the  labour  force  (e.g.  25-
year-olds)  according  to  EUROPOP2023  will  remain  below  5  million  in  their  baseline 
projection in theEU27. The amount of 65-year-olds, who could proxy the number of persons 
leaving the labour force permanently, due to retirement, is projected to be 5.7-6.1 million each 
year,  up  to  2030.  Accordingly,  the  young  age  cohort,  numbering  less  than  5  million,  cannot 

338  

339  
340  

Relationship  with  unemployment  is  complex,  as  employers  who  do  not  increase  wages  in  the  face  of  shortages 
indicate  that  they  expect  to  find  a  candidate  at  the  current  wage  and  labour  conditions.  Shortages  are  therefore 
relative to the terms offered, as wage levels might be the reason why students and jobseekers do not to opt for a field 
of study or job which could reduce the shortage. https://www.cedefop.europa.eu/en/publications/3075 
https://www.cedefop.europa.eu/en/publications/3077 
The main reason for permanently leaving the labour force is retirement; the reasons for leaving it temporary may be 
parental leave, study leave etc. 

179 

 
 
 
fully fill the vacancies of the old age cohort permanently leaving the labour force (even if those 
who left it temporarily return).  

Overall, the cumulative job openings – which will be filled partly by a new EU27 age cohort, 
and partly by third country nationals - are projected to amount to 68.2 million by 2030. 

Figure 3: Projected job openings (2022-2030), annual and cumulative, EU27

Source: Cedefop 2023 Skills Forecast 

Breaking  down  this  projection  by  level  of  education,  the  Skills  Forecast  suggests  that  the 
additional  need  for  worker  inflow  will  mostly  concern  persons  with  high  educational 
attainment levels (4.7-5.0 million per year), and in second place those with medium education 
levels  (3.4-3.7  million  per  year).  Additional  inflows  of  workers  with  only  low  educational 
attainment levels will barely be necessary according to Cedefop’s dataset (this is explained by 
the  relatively  low  initial  share  of  employed  persons  with  low  education  in  the  labour  force 
already in 2013 as well as in 2023 and by a significant decline in future demand). Already in 
2013, there were more low-educated workers in the EU than jobs at that level, suggesting an 
over-supply  of  low-skilled  workers.  The  reverse  is  true  for  jobs  requiring  medium-level 
qualifications, while at higher level, supply and demand were more or less in line341. 

341  

Cedefop (2014b), “Projected Labour Market Imbalances in Europe: Policy Challenges in Meeting the Europe 2020 
Employment  Targets”,  in  OECD-EC  (2014),  Matching  Economic  Migration  with  Labour  Market  Needs,  OECD 
Publishing, Paris, http://dx.doi.org/10.1787/9789264216501-en 

180 

 
 
 
 
 
 
 
 
 
 
 
Figure 4: Projected job openings by level of qualification (2022-2030), EU27 

Source: Cedefop 2023 Skills Forecast 

In cumulative terms, the demand for highly educated workers - both new EU27 labour market 
entrants  and  TCNs  –  is  projected  to  reach  38.9  million  by  2030;  while  that  of  workers  with 
medium  levels  of  education  28.1  million,  and  only  1.1  million  for  workers  with  low 
educational attainment. 

Figure 5: Job openings by level of qualification (2022-2030), cumulative, EU27 

Source: Cedefop 2023 Skills Forecast 

The  highest  need  -  in  terms  of  absolute  numbers  -  for  replacement  of  old  workers  and 
recruitment  of  new  workers,  broken  down  by  ISCO  1-digit  level,  is  projected  to  be  in  the 
category of Professionals, with a need for 18.2 million workers projected until 2030, followed 
by Technicians and associate professionals (12.2 million), and Service and sales workers (10.4 
million). 

181 

 
 
 
 
 
 
Figure 6: Job openings by occupation (2022-2030), cumulative, EU27 

Source: Cedefop 2023 Skills Forecast 

The  relative  significance  of  the  need  for  highly  educated  workers  will  be  the  highest  in  the 
category of Legislators, senior officials and managers (in practice, this category is  dominated 
by managers), Professionals, and Technicians and associate professionals, as well as Clerks. 

Figure 7: Job openings by occupation and level of qualification (2022-2030) cumulative EU27 

Source: Cedefop 2023 Skills Forecast 

The  breakdown  of  job  openings  by  2-digit  ISCO  categories  shows  the  highest  numbers  for 
Business  and  administration  associate  professionals  (4.8  million  by  2030),  Teaching 
professionals  (4.1  million),  Business  and  administration  professionals  (3.8  million),  Sales 

182 

 
 
 
 
workers (3.5 million) and Personal service workers (3.5 million). However, unfilled vacancies 
in  some  occupations,  such  as  teaching  professionals,  are  less  likely  to  be  filled  by  TCN 
workers in  many Member States, as the  recruitment  is  subject  to  linguistic tests  for ensuring 
mastery of the official languages taught in the educational system. 

Figure 8: Job openings by detailed occupation (2-digit) (2022-2030), cumulative, EU27 

Source: Cedefop 2023 Skills Forecast 

The table below gives detailed projections on the need for workers in occupations at ISCO 2-
digit level, broken down by educational attainment. 

183 

 
 
 
 
 
Table 4: Job openings by detailed occupation (2-digit) and level of qualification (2022-2030) cumulative, EU27 

ISCO  Occupation (2-digit) 

Low 

Medium  High 

Total 

11 

12 

13 

14 

21 

22 

23 

24 

25 

26 

31 

32 

33 

34 

35 

41 

42 

43 

44 

Chief executives, senior officials 
and legislators 

Administrative and commercial 
managers 

Production and specialised 
services managers 

Hospitality, retail and other 
services managers 

Science and engineering 
professionals 

11,835 

137,467 

541,379 

690,681 

4,109 

144,497 

791,076 

939,685 

1,764 

186,049 

1,375,597 

1,563,410 

25,653 

195,209 

430,963 

651,825 

12,232 

302,909 

2,675,643 

2,990,784 

Health professionals 

6,147 

330,690 

2,596,812 

2,933,647 

Teaching professionals 

15,141 

428,347 

3,675,576 

4,119,063 

Business and administration 
professionals 

Information and 
communications technology 
professionals 

Legal, social and cultural 
professionals 

Science and engineering 
associate professionals 

15,494 

451,126 

3,288,378 

3,754,999 

4,641 

200,946 

1,497,371 

1,702,956 

8,575 

155,369 

2,507,260 

2,671,202 

17,870 

941,197 

1,687,497 

2,646,566 

Health associate professionals 

66,571 

1,058,784  1,174,014 

2,299,365 

Business and administration 
associate professionals 

Legal, social, cultural and 
related associate professionals 

Information and 
communications technicians 

-19,218 

1,445,376  3,399,616 

4,825,774 

17,149 

608,561 

1,225,019 

1,850,730 

112 

160,663 

398,260 

559,032 

General and keyboard clerks 

29,377 

1,029,353  1,079,898 

2,138,628 

Customer services clerks 

37,707 

616,587 

902,159 

1,556,452 

Numerical and material 
recording clerks 

-40,057 

512,735 

713,592 

1,186,267 

Other clerical support workers 

-22,930 

50,116 

164,303 

191,489 

184 

 
 
51 

52 

53 

54 

61 

62 

63 

71 

72 

73 

74 

75 

81 

82 

83 

91 

92 

93 

94 

95 

96 

Personal service workers 

81,919 

2,144,914  1,226,738 

3,453,571 

Sales workers 

-80,550 

2,017,114  1,606,451 

3,543,017 

Personal care workers 

30,022 

1,616,114  814,423 

2,460,558 

Protective services workers 

-39,028 

551,867 

429,149 

941,987 

Market-oriented skilled 
agricultural workers 

Market-oriented skilled forestry, 
fishery and hunting workers 

Subsistence farmers, fishers, 
hunters and gatherers 

Building and related trades 
workers, excluding electricians 

Metal, machinery and related 
trades workers 

-87,021 

453,664 

474,193 

840,838 

-9,290 

32,177 

36,180 

59,069 

-104,606 

-19,869 

2,333 

-122,139 

157,634 

1,666,067  561,753 

2,385,453 

46,758 

1,488,933  433,971 

1,969,660 

Handicraft and printing workers 

1,283 

118,897 

99,030 

219,214 

Electrical and electronic trades 
workers 

Food processing, wood working, 
garment and other craft and 
related trades 

Stationary plant and machine 
operators 

9,112 

593,130 

301,926 

904,169 

-55,076 

594,275 

297,193 

836,392 

24,638 

1,052,092  342,001 

1,418,731 

Assemblers 

116,457 

494,525 

108,033 

719,014 

Drivers and mobile plant 
operators 

126,892 

2,187,900  643,388 

2,958,178 

Cleaners and helpers 

191,496 

1,989,407  641,583 

2,822,486 

Agricultural, forestry and fishery 
labourers 

Labourers in mining, 
construction, manufacturing and 
transport 

13,808 

234,519 

79,236 

327,562 

281,499 

1,061,373  387,037 

1,729,908 

Food preparation assistants 

67,165 

352,202 

157,664 

577,034 

Street and related sales and 
service workers 

Refuse workers and other 

18,162 

28,221 

2,792 

49,173 

148,154 

517,851 

171,608 

837,611 

185 

 
 
elementary workers 

Source: Cedefop 2023 Skills Forecast 

3. Sector-specific analysis for strategic skills and labour needs: White (healthcare), Grey 
(ICT) and Green Transition Jobs342 

3.1. Healthcare and social care sectors 

The healthcare sector is one of the most important in the European Union, providing essential 
services  to  an  increasingly  ageing  population  (See  Annex    on  Demographic  Developments). 
From  a  sectoral  perspective,  healthcare  services  are  primarily  grouped  under  the  NACE 
division ‘Human health activities’ (NACE code 86), which is broken down into three groups: 
hospital activities, medical and dental practice activities, and other human health activities.343 
But  human  health-related  activities  are  also  found  in  NACE  division  87  ‘Residential  care 
activities’.  At  the  highest  NACE  level,  human  health  is  grouped  together  with  social  care 
(Section  Q:  Human  health  and  social  work  activities,  which  also  covers  division  88  ‘Social 
work activities without accommodation’), and this is the level at which Cedefop publishes its 
sector forecasts, as well as corresponding to the relevant ESCO sector category.344 

Employment  in  the  health  and  social  sector  has  been  growing  rapidly  in  recent  years  in  the 
EU27, from an overall number of workers of 17.4 million in 2008 to 21.7 million in 2022 (in 
Cedefop 2023 Skills Forecast dataset345 the corresponding figure is 22.3 million). This marks 
an increase of 24.8% over this period, far surpassing the 3.8% total employment growth, and 
putting  the  health  and  social  care  sector  third  out  of  19  high-level  sectors  in  terms  of 
employment  growth  rates346,  but  first  in  absolute  terms.  Consequently,  the  share  of  NACE 
section Q in total employment has grown from 9.1% to 11.0%347 

Figure 9   Employment in health and social care, by detailed economic activity, EU27 (1,000 persons) 

342  

343  

344  
345  
346  
347  

Already in 2012, CEDEFOP organised an Employment Policy Conference identifying Healthcare and Social Care, 
Information and Technology Sector as well as the not yet well-identified as providing the backbone of new jobs for 
Europe. This section is prolonging the perspective and analysis presented in the 2012 Annual Growth Survey and the 
Communication “Towards a job-rich Recovery”. COM(2012)173.   
This  category  includes  e.g.  the  activities  of  midwives,  non-hospital  nurses  (e.g.  visiting  nurses  under  the  aegis  of 
various health programmes), physiotherapists or other paramedical professionals. 
https://esco.ec.europa.eu/nb/node/210 
https://www.cedefop.europa.eu/en/projects/skills-forecast/dataset 
After J ‘Information and communication’ and M ‘Professional, scientific and technical activities’. 
Source: Eurostat (LFSA_EGAN22D). 

186 

 
 
 
 
Source: Eurostat (LFSA_EGAN22D) 

All  three  NACE  divisions  in  health  and  social  care  have  recorded  steady  increases  in 
employment numbers, with the exception of residential care, which saw a significant outflow 
of workers at  the outbreak of the Covid  epidemic, although employment numbers are on the 
rise  again.  Employment  in  human  health  activities  has  increased  by  19.0%  to  10.5  million 
(12.7 million in Cedefop’s 2023 Skills Forecast), in residential care by 21.4% to 3.4 million, 
and in social work without accommodation – involving, among others, non-residential care for 
the elderly and child day-care activities – by 45.5% to 3.5 million.348 The significance of the 
sector,  in  terms  of  number  of  workers,  is  especially  large  in  Denmark,  the  Netherlands, 
Finland, Sweden and Belgium – and the lowest in Romania, Cyprus and Bulgaria. 

Figure 10 Employment in health and social care in 2022, by Member State (as percentage of total employment) 

Source: Eurostat (LFSA_EGAN22D) 

At  the  occupational  level,  the  main  relevant  categories  with  regard  to  health  care  are 
occupational  groups  22  ‘Health  professionals’  and  32  ‘Health  associate  professionals’  in  the 
ISCO  classification.  These  are  not  exclusively  occupations  related  to  human  health  care,  as 
they  include  veterinarians  and  veterinary  assistants,  but  they  are  the  categories  for  which 
Cedefop has employment and job openings forecasts. The subdivision of the groups is given in 
the table below. 

Table 5: Classification of main occupational groups in health care 

Code  /  Sub-major 
group 

22 
professionals 

Health 

Minor group 

Unit group 

Medical doctors 

Generalist medical practitioners 

Specialist medical practitioners 

348  

The latter ranks 6th out of 85 NACE divisions in terms of employment growth rates between 2008 and 2022. 

187 

 
 
 
 
Code  /  Sub-major 
group 

Minor group 

Unit group 

Nursing 
professionals 

and 

midwifery 

Nursing professionals 

Midwifery professionals 

Traditional  and  complementary 
medicine professionals 

Traditional  and  complementary 
medicine professionals 

Paramedical practitioners 

Paramedical practitioners 

Veterinarians 

Veterinarians 

Other health professionals 

Dentists 

Pharmacists 

Environmental  and  occupational 
health and hygiene professionals 

Physiotherapists 

Dieticians and nutritionists 

Audiologists 
therapists 

Optometrists 
opticians 

and 

speech 

and  ophthalmic 

Health 
elsewhere classified 

professionals 

not 

32 Health 
associated 
professionals 

Medical 
technicians 

and 

pharmaceutical 

Medical  imaging  and  therapeutic 
equipment technicians 

Medical and pathology laboratory 
technicians 

Pharmaceutical  technicians  and 
assistants 

Medical  and  dental  prosthetic 
technicians 

Nursing associate professionals 

Midwifery 
professionals 

associate 

Nursing  and  midwifery  associate 
professionals 

Traditional  and  complementary 
medicine associate professionals 

Traditional  and  complementary 
medicine associate professionals 

Veterinary 
assistants 

technicians 

and 

Veterinary 
assistants 

technicians 

and 

188 

 
 
Code  /  Sub-major 
group 

Minor group 

Unit group 

associate 

Dental assistants and therapists 

Medical 
information technicians 

records 

and  health 

Community health workers 

Dispensing opticians 

Physiotherapy 
assistants 

technicians  and 

Medical assistants 

Environmental  and  occupational 
health inspectors and associates 

Ambulance workers 

Health  associate  professionals 
not elsewhere classified 

Figure  11:  Occupational  groups  in  NACE  section  Q 
‘Health and social care’ in 2022, EU27 (percentage) 

Other 
professionals 

health 

Source: ISCO 

In addition, the human health and social care 
sector also  employs psychologists and social 
work professionals (from ISCO minor group 
263);  social  work  associate  professionals 
(341);  child  care  workers  (531);  as  well  as 
health  care  assistants,  home-based  and  other 
personal  care  workers  (532).  These  relevant 
occupations however only form smaller parts 
of  their  ISCO  sub-major  group  for  which 
Cedefop  modelled  labour  market  trends, 
hence  specific  forecasts  are  not  available  to 
add  to  the  projections  for  sub-major  groups 
22 and 32. 

These  two  groups  account  for  a  modest 
majority  of  all  employment  in  the  relevant 
NACE section Q. Professionals and associate 
professionals  together  accounted  for  60.6% 
of  workers  in  the  sector,  although  this 
number also includes an unknown number of 
medical 
and  workers  with 
qualifications  not  linked  closely  to  human 
health  care,  such  as  legal  and  ICT  professionals.  The  sector  also  employs  a  large  number 
(22.4%) of service and sales workers (this category includes, among others: non-medical care 
personnel,  facility  caretakers,  cooks),  workers  in  elementary  occupations  (6.4%)  and  clerical 
support workers (5.7%). On the other hand, health professionals and associate professionals are 
189 

Source: Eurostat (LFSA_EISN2) 

teachers 

 
 
 
also  employed  in  significant  numbers  in  other  service  sectors,  such  as  trade  (mostly 
pharmacies) or public administration. 

In  2022,  around  6.0  million  health  professionals  (29.2%  more  than  in  2011)  and  6.2  million 
health  associate  professionals  (20.6%  more)  were  employed  in  the  EU27,  according  to  LFS 
data.  The  corresponding  estimates  in  Cedefop’s  2023  Skills  Forecast  are  6.2  million  and  6.5 
million, respectively.  

Figure 12: Employment of health professionals and associate professionals, EU27 (1,000 persons) 

Source: Eurostat (LFSA_EGAI2D) 

Ageing  has  a  very  considerable  effect  on  the  sector,  not  only  in  terms  of  the  healthcare 
demand, but  also  on healthcare services supply.  The ageing  process  has  been rapid  in  recent 
years:  the  proportion  of  50-64  year  old  workers  in  health  and  social  care  sectors  has  grown 
from 26.7% in 2008 to 33.6% in 2022. The proportion of workers who are at least 65 years old 
grew from 1.1% to 3.9%. 

Figure 13: Age structure of health professionals and associate professionals, EU27 (percentage) 

Source: Eurostat (LFSA_EGAI2D) 

190 

 
 
 
 
The labour market in the health and social care sector has an exceptionally strong gender bias: 
women  make  up  78%  of  the  labour  force.  In  more  detail,  the  share  of  women  among  the 
employed in social work without accommodation (NACE division 88) and in residential care 
(87) was 82% in 2022, while in the human health sector (86) it was 76%, putting these three 
sectors 1st, 2nd and 4th among 82 NACE divisions.349 The highest share of female labour in the 
sector is found in Latvia, Estonia, Lithuania, Finland, Slovakia and Portugal (84% or more).350 

Eurofound  (2023)  highlights  that  despite  the  growth  in  employment  in  these  sectors,  current 
forecasts predict a persistent shortage of labour in the medium and long term. The shortage of 
healthcare workforce is a global phenomenon, with WHO predicting a shortfall of around 10 
million workers by 2030.351 The permanence of labour shortages in the sector reflects, on the 
one hand, challenges related to an ever increasing demand from an ageing population, and  on 
the  other  hand  problems  with  the  supply  as  the  existing  workforce  is  ageing,  suffers  skills 
shortages and mismatches, and as the wages and working conditions make many occupations 
in  the  sector  unattractive.  In  recent  years  the  COVID-19  pandemic  has  also  aggravated  the 
situation, putting an enormous strain on healthcare workers and leading many to quit. 

Eurofound (2021, p. 28) provides the following list of shortage sectors linked to the transition 
to a climate-neutral economy: 

Sectors 

Manufacturing 

Construction 

Energy 

Transport 

Professional, 
activities 

Tourism 

Agriculture 

Education 

Countries identifying the shortage sectors 

Bulgaria, Finland, Poland, Sweden 

Cyprus, Ireland, Poland, Portugal 

Croatia,  Hungary,  Ireland,  Malta,  Portugal, 
Romania 

Poland, Portugal 

scientific 

and 

technical 

Cyprus, Denmark, Latvia, Lithuania 

Bulgaria 

Latvia 

Spain 

ELA  in  its  2021  Labour  Shortages  Report  has  pointed  out  severe  shortages  among  nursing 
professionals  and  general  practitioners.  Even  though  the  number  of  doctors  per  capita  in 
Europe has increased over the past decade, the share of GPs has declined. This shortage of GPs 
is  linked  among  others  to  relatively  lower  incomes  as  compared  to  specialist  doctors. 
Especially certain rural areas which lack a modern health infrastructure, have poorer working 
conditions  and are generally less attractive to  live in  face severe shortages (including  that of 

349  
350  
351  

https://ec.europa.eu/eurostat/databrowser/view/LFSA_EGAN22D__custom_6684246/default/table?lang=en  
https://ec.europa.eu/eurostat/databrowser/view/LFSA_EGAN22D__custom_6684261/default/table?lang=en 
WHO  (World  Health  Organization)  (2022),  Health  and  care  workforce  in  Europe:  Time  to  act.  Available  at: 
https://www.who.int/europe/publications/i/item/9789289058339  

191 

 
 
 
general  paediatricians)  and  the  sector  has  difficulties  with  recruiting  candidates  with  the 
appropriate skills352. 

3.2 ICT sector and Digital transition 

The skills dimension to the digital transition of the European economy concerns two different 
domains: (i) digital skills among the widest groups of the population, who could be employed 
in  different    sectors  and  different  occupations,  as  a  form  of  horizontal  skill,  helping  them 
participate  successfully  in  the  labour  market  via  employability  and  job  security;  and  (ii) 
specific and higher-level digital skills required for ICT-related research and innovation and the 
digital transition of given sectors, or specific technologies or companies within these sectors. 

For  the  first  domain,  research  shows  that  basic  digital  skills  can  be  linked  to  higher  wages 
Even  for  those  with  low  levels  of  educational  attainment.353  Higher  digital  skills  of  the 
workforce also contribute to increased innovation and productivity in companies. 

At  the  same  time,  as  pointed  out  in  Eurofound  (2013),  Europeans  are  lagging  behind  other 
developed  countries  in  this  area.  Romania  has  the  highest  percentage  (25%)  of  adults  with 
limited  or  no  overall  digital  skills,  while  the  Netherlands  has  the  lowest  (1%),  according  to 
Eurostat’s ICT survey. Remote working, with its significance increasing, and having received a 
strong  boost  during  Covid  lockdowns,  requires  the  use  of  digital  tools  for  managing  and 
monitoring workers.354 Working in companies who introduced robots and automation, AI, also 
puts  demands  for  at  least  basic  digital  skills  of  all  workers.  Cedefop’s  2021  European  Skills 
and  Jobs  Survey  has  found  that  87%  of  EU  jobs  require  at  least  basic  digital  skills.  Out  of 
these,  52%  have  low  skills  demands,  32%  have  moderate  demands,  and  17%  have  high 
demands.  

Regarding the second domain, Eurofound (2023) reiterates that skills shortages in the EU are 
currently  particularly  acute  in  sectors  that  require  advanced  digital  skills,  such  as  the  ICT 
sector. The sector has shown impressive growth rates in recent years, which could have been 
growing even faster if enough qualified personnel would have been available. Job vacancy data 
shows that the job vacancy rate in the ICT sector is high and has increased between 2014 and 
2022 in all European countries, except for Croatia, Greece and Ireland. The increase was very 
high in Belgium (5.1 percentage points), the Netherlands (4.6 pp) and Austria (4.0 pp). At the 
cross-sectoral  level,  in  2022, 6% of European businesses had vacancies that were difficult  to 
fill due to the need for ICT specialist skills, marking an increase of 3.4 percentage points from 
2014. The study cites the forecast according to which even at the current employment growth 
rates – i.e. filled vacancies - the EU is still likely to be short of the 20 million experts needed in 
key ICT-related areas such as cybersecurity and data analysis in 2030.355 

352  

353  

354  

355  

on 

and 

shortages 

(2021),  Report 

surpluses:  November 

ELA 
labour 
https://www.ela.europa.eu/en/media/725  
OECD  (2016),  Innovating  education  and  educating  for  innovation:  The  power  of  digital  technologies  and  skills. 
Available  at:  https://www.oecd.org/education/innovating-education-and-educating-for-innovation-9789264265097-
en.htm  
Eurofound  (2022d),  The  rise  in  telework:  Impact  on  working  conditions  and  regulations.  Available  at: 
https://www.eurofound.europa.eu/publications/report/2022/the-rise-in-telework-impact-on-working-conditions-and-
regulations. 
European  Commission  (2021b),  2030  digital  compass:  The  European  way  for  the  digital  decade.  Available  at: 
https://eufordigital.eu/library/2030-digital-compass-the-european-way-for-the-digital-decade/  

2021.  Available 

at: 

192 

 
 
 
 
3.3. Green skills and jobs for the transition to Net-zero Economy 

The green transition is forecasted to impact the aggregated level of employment at the EU level 
to a relatively small extent only. Between 1 and 2.5 million additional jobs are estimated to be 
created  by  2030  by  a  fully-fledged  green  transition356.  Up  to  over  460  000  additional  direct 
jobs could be crated in the manufacture of net-zero technologies only. Further additional jobs 
could be created indirectly, in the deployment of the net-zero technologies. For instance, 100 
000  jobs  may  be  created  by  2030  in  the  deployment  of  solar  photovoltaics  and  wind 
technologies  only357.  Eurofound’s  Future  of  Manufacturing  in  Europe  project  has  estimated 
that employment in the EU would grow by 0.5% by 2030 if it met its objectives under the Paris 
Climate Agreement. Eurofound also estimates that the net effect of Fit for 55, the action plan 
to cut GHG by 55%, would be only 0.1% on total employment. On the other hand, Cedefop’s 
2021 study on green employment predicts that if the European Green Deal emissions target is 
met, there would be an increase of 1.2% in employment, corresponding to around 2.5 million 
jobs by 2030.358 

The  planned  transition  towards  a  climate-neutral  European  economy  under  the  Green  Deal, 
which involves ambitious objectives for cutting net greenhouse gas emissions, leads however 
to certain more significant sectoral employment shifts, as well as new demand for 'green skills’ 
within sectors.  

The green transition is anticipated to lead to a transformation in the employment structure, with 
net  job  creation,  resulting  from  employment  increases  in  sectors  related  to  greening  the 
economy and employment decreases in carbon-intensive sectors. Consequently, it is expected 
that job creation will be unevenly distributed, with construction and other primary and utility 
sectors,  as  well  as  those  manufacturing  low-carbon  goods  and  technologies,  likely  to  be 
positively  affected359  by  the  greatest  employment  increases.  The  table  below  presents  the 
NACE  sectors  where  sector  shift  effects  are  forecasted  for  employment  in  Cedefop's  'The 
green employment and skills transformation (2020-2021)' study. 

Table 6 NACE sectors with the largest relative forecasted increase or decrease in employment by 2030, EU27  
Employment Increase 

Employment decrease 

Water supply & waste management 

Rubber/non-metallic mineral products 

Construction 

Mining and quarrying 

Wholesale and retail trade 

Gas, steam & air conditioning 

Administrative and support services 

Coke and refined petroleum 

Electricity 

Basic metals & metal products 

Source: Cedefop 

356  
357  
358  

359  

ESDE 2023, p. 15. 
ESDE 2023, p. 53. 
Cedefop  (2021),  The  green  employment  and  skills  transformation:  Insights  from  a  European  Green  Deal  skills 
forecast scenario. 
Sectors related to agriculture and renewable energy are likely to see significant green job expansion. Asikainen et al. 
The future of jobs is green , JRC 2021. 

193 

 
 
 
 
 
At the occupational level, an increased need for new skills is anticipated within sectors, either 
through the creation of new ‘green jobs’ or in the greening of existing ones. While there is no 
universally agreed-upon method for classifying jobs as green, the EU has an officially agreed 
definition,  based  either  on  the  output  of  the  job,  or  the  process  involved.  Under  the 
methodology,360 jobs are considered 'green' if they are connected with firms or industries that 
create  outputs  in  the  form  of  goods  or  services  which  are  either  environmental  or  relatively 
environmentally friendly. Relevant work is ongoing as strengthening of the evidence base and 
measurability  of  key  concepts  in  the  green  economy  as  follow-up  action  to  the  Council 
Recommendation on ensuring a fair transition to climate neutrality, including a  concept of ‘a 
green job’.361 

A classification methodology used by Eurofound is based on a study by Erich Dierdorff et al., 
who identify four types of green occupations.362 

Table 7: Categorisation of greening jobs (Dierdorff) 

Category 

Description 

No-greening 

Occupations with limited or no impact of greening. 

New and emergent 

Enhanced skills 

Increased demand 

Source: Eurofound (2023) 

New and emerging occupations that do not exist in ISCO-08 and 
are  classified  in  one  of  the  old  codes,  despite  having  new 
characteristics; these might require separate classification. 

Existing  occupations  that  will  potentially  require  changes  in 
tasks,  skills  and  knowledge  as  a  result  of  the  transition  to  a 
carbon-neutral  economy,  although  the  essential  purpose  of  the 
occupation remains unchanged. 

Existing occupations that will not require changes in tasks, skills 
and knowledge but will potentially see increased demand due to 
the transition to a carbon-neutral economy. 

Data  from  the  2021  Eurofound  European  Working  Conditions  Telephone  Survey  (EWCTS) 
suggests that almost  65% of European workers  are  employed in  occupations  that will not  be 
affected, or only to a small extent, from the green transition (‘no-greening’). On the other hand, 
about 10% of the workforce works in new and emergent occupations, and close to 15% are in 
two  latter  categories,  in  jobs  that  will  require  enhanced  skills  or  in  sectors  that  are  likely 
benefit from increased demand363.  

360  

361  

362  

363  

It  should  be  noted  that  while  this  methodology  has  been  commonly  used  as  the  literature  on  the  green  economy, 
there  are  limitations  regarding  its  transferability  to  the  European  labour  market,  cross-country  measurability  and 
sectoral scope. Eurofound (2023). 
ESDE,  2023,  p.  5  See  for  more  details  on  harmonization  of  taxonomies:  Green  Skills  and  Knowledge  Concepts: 
Labelling  the  ESCO  classification  |  ESCO  (europa.eu)  being  used  to  lead  to  harmonized  and  coherent 
recommendations to Member States in the framework of the European Semester. 
Dierdorff,  E.  C.,  et  al.  (2009),  Greening  of  the  world  of  work:  Implications  for  O*NET®-SOC  and  new  and 
emerging occupations. Available at: https://www.onetcenter.org/reports/Green.html   
https://www.eurofound.europa.eu/surveys/2021/european-working-conditions-telephone-survey-2021  

194 

 
 
 
 
 
ANNEX 8  
MAPPING OF EXISTING INITIATIVES AT EU AND NATIONAL LEVEL 

1. Relevant initiatives at EU level 

European cooperation network of employment services (EURES) 

•  EURES  is  a  European  cooperation  network  of  employment  services,  designed  to 
facilitate  the  free  movement  of  workers.  The  following  services  are  offered  via  the 
EURES Job Mobility Portal:  

•  Access to basic information on the portal, job-application and CV database and EURES 

network.  

•  Support  to  workers  with  the  provision  of  information  and  guidance  on  job 
opportunities.  This  includes  general  information  on  living  and  working  conditions  in 
the country of destination, assistance to draw up job applications and CVs. 

•  Support  to  employers  with  the  provision  of  information  related  to  recruitment  from 
another  Member  State  as  well  as  of  assistance  in  the  formulation  of  individual  job 
requirements in a job vacancy.  

•  Post-recruitment  assistance such as training on intercultural  communication, language 

courses and support with integration. 

•  Facilitated  access 

to 

information  on 

taxation,  employment  contracts,  pension 

entitlement, health insurance, social security, and active labour market measures. 

•  Support  services  in  cross-border  regions  to  provide  workers  and  employers  with 

information relating specific situation of frontier.  

•  Access  to  analysis  on  labour  shortages  and  surpluses  on  national  and  sectoral  labour 

markets.  

Table below details the functionalities of EURES platform.  

Tool 

Short description 

Matching 
tool  

Find a job. It is a search functionality for job seekers where multiple filters can 
be  applied  (occupation,  sector,  language  of  the  job  vacancy,  work  schedule, 
education  level,  work  experience,  contract  type,  extra  benefits).  The  search 
interface is available in the 25 EEA languages. Job vacancies are published by 
employers through a EURES Employment Service partner. 

Find  candidates.  The  engine  search  allows  pre-screened  employers  with 
specific  access  rights  to  find candidates  and see  their CVs by using keywords 
and  applying  filters  (language  skill,  occupation,  skills).  To  fine  tune  the 
research,  employers  can  further  search  candidates  according  to  their  location, 
contract  type,  duration,  and  education  level.  The  functionality  automatically 
proposes  CV  lists  of  candidates  matching  the  selected  filters.  Search  profiles 
can be saved and shared and an option to receive regular updates on candidates 
can be activated.  

195 

 
 
 
My EURES  My  Candidates.    Pre-screened  employers  with  specific  access  rights  can  save 
multiple candidates in a repository of the platform. They can download or print 
the  CVs  proposed  by  the  search  engine  and  send  candidates  enquire.  The 
function allows to be automatically notified when new candidates matching the 
criteria appear.  

My  Jobs.  This  section  allows  job  seekers  to  view  the  enquired  received  from 
different  companies.  Enquires  are  also  notified  by  email.  In  this  section,  job 
seekers  can  also  set  up  different  search  profiles  what  will  allow  them  to  be 
notified about new job vacancies matching their search criteria.  

My CV. Job seekers can create their online CV in different languages. The CV 
creator  is  composed  of  several  sections  –  work  experience,  education  and 
training, skills. Further, there is the desired employments section to describe the 
ideal  job  features  such  as  the  location,  contract  type  and  other  employment 
aspects. CV can be published so that they can be searchable by employers for 
12 weeks (extendable). Europass users can send their Europass CV to EURES.  

Hints and 
tips 

For  jobseekers.  This  section  is  for  jobseekers  with  higher  qualifications 
(students,  graduates,  teachers  and  researchers).  It  contains  hints  to  find 
information on practical and legal aspects of mobility, job application, selection 
process (tests, interviews) and to settle in a new country. 

For  employers.  The  section  makes  available  three  check  lists  to  support 
employers in the hiring processes for workers from other countries. The check 
lists  entail  to  steps  before  recruiting  workers  (legal  requirements,  working 
permits,  practical  arrangements, 
the  process 
(presenting  the  services  offered  by  EURES  portal  to  employers)  and  after 
having  hired  a  worker  from  abroad  (integration  of  workers,  conditions  at 
workplace). 

language  barriers),  during 

Other 
information  

Living and working section. Practical information and facts about labour market 
trend in each country in Europe are available.  

Labour  market  information.  Every  year  a  report  on  labour  shortages  and 
surpluses  is  published  on  the  platform.  The  report  gathers  data  collected  by 
Member States on their national labour markets. In addition, other information 
on  labour  market  is  available  for  each  country  in  dedicated  pages  of  the 
platform  (Short  overview  of  the  labour  market,  Where  are  the  available  jobs 
and Where are the available workers) 

Guidance 
and 
support  

EURES  advisers.  The  platform  offers  a  network  of  advisers  to  provide 
information  required  by  job  seekers  and  employers  through  personal  contacts. 
Currently  there  are  900  EURES  advisers  across  Europe  that  have  developed 
practical,  legal  and  administrative  expertise  in  relation  to  mobility  at  national 
and cross-border levels. There is a search form to find them in each country or 
cross-border region.  

Skills  and  careers.  Employers  can  explore  learning  opportunities  for  their 
employees  to  acquire  new  skills  and  learn  about  staff  education  and  training 

196 

 
 
opportunities throughout Europe 

Another channel for matching employers with jobseekers from within the 31 members of the 
EU and the EEA (including Switzerland) are European Job Days364, an initiative organised by 
EURES and the European Commission, which seeks to promote and enhance labour mobility 
within  the  EURES  countries.  The  events  –  which  are  typically  sector-specific  -  provide 
jobseekers  with  direct  access  to  employers  (large  enterprises  and  SMEs,  private  and  public) 
from other countries, and providing general and practical information on both the opportunities 
and  challenges  associated  with  such  mobility.  Employers  are  encouraged  to  advertise  their 
vacancies  in  order  to  attract  potential  talented  individuals  from  across  Europe  and  can 
interview  or  chat  with  interested  jobseekers  who  register.  Through  this  initiative,  jobseekers 
can listen to presentations both on site and on the internet, and have access to tailored services, 
such as CV workshops  and participating EURES Advisors. Interested jobseekers who do not 
ask for an interview can still express their interest in a specific company. In the latter case, the 
employers will gain access to their profile and CV. Altogether, 11 events have taken place in 
2023 until May, bringing together from a dozen to over 100 employers and from 20-30 to over 
600  vacancies  at  the  end  of  May  2023  almost  7,000  employers  and  637  info  points  were 
registered in the database. 

EURAXESS 

EURAXESS365 is a pan-European network supported by the European Commission, dedicated 
to  assisting  researchers  in  moving  and  working  throughout  Europe.  It  seeks  to  promote 
international  collaboration  between  scientists  and  institutions,  create  and  strengthen  the 
collaborative  potential  of  science,  technology,  and  innovation,  and  enhance  research 
infrastructure in Europe. 

One  of  the  main  objectives  of  EURAXESS  is  to  support  the  recruitment  of  highly  qualified 
research and innovation personnel involving mobility across borders - including the facilitation 
of  access  to  the  labour  market  for  highly  qualified  individuals  from  outside  Europe. 
EURAXESS  provides  a  wide  range  of  services  through  its  website  including  guidance  on 
visas/residence permits applications, job submission system which enables direct contact with 
companies/institutions offering job opportunities in different countries across Europe, access to 
dedicated  scholarship  databases  for  funding  relocation  projects  related  directly  or  indirectly 
related  to  research  activities  within  Europe    as  well  as  assistance  in  finding  accommodation 
following  recruitment  campaigns  or  during  stays  abroad.  Researchers  can  also  find  guidance 
material  on  tax  issues,  relevant  for  relocating  individuals  as  well  as  national  regulations 
dealing with such topics as intellectual property rights or protection of privacy.  

Information resources like conferences, publications journals, databases and networks are also 
made  available  on  the  EURAXESS  website.  Moreover,  EURAXESS  offers  online  self-
assessment  tools  aiming  to  match  individuals’  interest  with  organisations  providing  suitable 
working  environments  and  also  serves  the  purpose  of  giving  advice  on  how  best  to  prepare 
successful grant applications aimed at realising researcher mobility ambitions. 

The platform functionalities are detailed in the table below. 

364  
365  

https://europeanjobdays.eu/en  
https://euraxess.ec.europa.eu/   

197 

 
 
 
Tool  

Short description 

Search tools   Search  for  jobs.  Through  this  function,  researchers  can  look  for  job 
opportunities  filtering  by  country,  European  Research  Programme  (H2020, 
Marie Skłodowska-Curie Actions) and research field.  

International 
networking  

Search  for  hosting.  Users  can  search  for  hosting  opportunities  as  postdoctoral 
fellowships  candidates  according  to  the  country  and  the  European  research 
programme.  

Search  for  research  talent.  Research  organisations  and  universities  can  post 
jobs to recruit and look through CVs. 

Euraxess  Worldwide.  It  is  a  tool  supporting  researchers  working  outside  of 
Europe what want to explore and develop careers in Europe. The network aims 
at  fostering  scientific  collaboration  and  attract  talent  to  Europe.  There  are 
dedicated teams in different countries and regions (Africa, Singapore, Thailand, 
Indonesia, Malaysia, Vietnam, Australia, New Zealand, Latin America, China, 
India, Japan, Korea and North America). Euraxess Worldwide organises events 
–  live  and  virtual  –  and  shares  information  on  the  latest  developments  and 
opportunities  in  Europe  for  studying,  working  and  progressing  a  scientific 
career.  

Career 
development  

Career  Orientation  tool.  The  tool  helps  researchers  to  plan  upskilling  path, 
define their career goals and navigate across career options. Young researchers 
can  consult  a  career  handbook  and  can  access  to  the  offer  to  virtual  webinars 
and training. 

Pipers Project Career Kit. It is a collection of external learning resources in the 
topics  of  entrepreneurial  skills,  information  literacy,  disciplinary  working, 
leadership skills, managing a research career, professional development, public 
engagement, researcher self-assessment, market exploitation of research results 
and  working  with  industry.  The  resources  include  different  type  of  material 
(training,  articles  case  studies)  benefitting  trainers  and  people  in  charge  of 
training researcher. 

Mentoring  Programme  ‘Shape  the  future  of  a  Researcher  coming  to  Europe’. 
This programme aims at fostering the cooperation in the research field as well 
as  international  mobility  by  offering  the  opportunity  to  mentor  early-stage 
researchers.  The  programme  allows  early-stage  researchers  coming  from  third 
countries  to  get  support  by  highly  skilled  researchers  for  what  regards  career 
counselling, publication and presentations, networking, funding opportunities… 

Information 
and 
assistance  

Pensions for Researcher. The web pages links to country specific information 
on pension systems. Information regards state pensions as well as occupational 
pensions.  The  page  hosts  one  dedicated  section  on  pension  arrangements  at 
European level such as the Pan-European Pension Fund for researcher366. 

366  

https://www.resaver.eu/   

198 

 
 
 
Search  for  information.  Researchers  can  retrieve  information  on  three  main 
macro  themes:  leaving  Europe,  Living  Europe  and  Working  in  Europe.  As 
further  specification,  they  can  filter  the  information  according  to  the  different 
areas of the three topics (for instance, accommodation, entry conditions, visas, 
health insurance, intellectual property rights…). 

National portals. The web page provides the link to access to national Euraxess 
Centres and find practical information about specific country context.  

EUROPASS 

Following the implementation of the new Decision in 2018367, the Europass framework turned 
into a more integrated offer of tools and services not only for skills and qualifications but also 
for  lifelong  learning  and  career  management.  The  new  platform  is  now  a  digital  web-based 
interface  where  users  can  access  various  tools  and  services.  In  particular,  job  seekers  and 
learners  can  store  personal  information  on  their  skills,  learning  achievements,  work 
experiences  or  track  their  job  applications.  Employers  can  rely  on  tools  and  information  to 
understand  skills  and  qualifications  of  job  applicants  and  staff.  Similarly,  education  and 
training providers are offered with a set of tools on lifelong learning and career development.  

Table below details the Europass offer.  

Tool 

Europass 
Portfolio  

Short description 

e-

•  Europass profile where users can organise and present their personal 
information  on  skills,  qualifications,  learning  and  work  experience. 
Users can rely on ESCO classification or use free text to fill relevant 
fields (i.e. occupation or position held).  

•  CV  creator  /  editor.  Europass  CV  is  a  common  template  that 
structures and presents an individual's skills and competencies, work 
experience, education, and training when they wish to apply for jobs. 
The template is available in 30 languages.  The template is designed 
to  be  competence  focused,  transparent  and  easy  to  navigate  for 
employers.  Its  ultimately  aim  is  to  encourage  a  portfolio-based 
approach to present one's competencies and experience. 

•  The  library  is  a  repository  where  users  can  allocate  all  the  relevant 
documents  on  their  qualification  and  work  experience  (diplomas, 
reference letters…). 

•  My  Application  is  the  function  allowing  the  tracking  of  job 
applications  submitted.  Users  can  indicate  the  title  and  type  of 
opportunities  as  well  as  the  contact  information  of  employers. 
Applications can be updated and downloaded. 

Templates 

and  •  Cover  letter.  Users  can  create,  store,  and  share  cover  letters  in  29 

367  

https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32018D0646  

199 

 
 
 
 
Tool 

Short description 

documents  

languages. The cover letter can be attached to the CVs when sharing 
it  with  potential  employers.  A  variety  of  different  cover  letter 
templates  are  available,  which  users  can  modify,  adjust  visually  or 
content-wise and tailor to vacancies. 

to 

increase 

•  Diploma  Supplement.  The  Diploma  Supplement  is  a  document  that 
transparency  and  mutual  understanding  of 
aims 
qualifications  within  the  European  Higher  Education  Area.  The 
Diploma  Supplement  is  a  document  attached  to  a  higher  education 
diploma  issued  by  the  competent  authorities  or  bodies,  in  order  to 
make it easier for third persons – particularly in another country – to 
understand  the  learning  outcomes  acquired  by  the  holder  of  the 
qualification, as well as the nature, level, context, content and status 
of the education and training completed, and skills acquired. It uses a 
common  terminology  based  on  the  ECTS  and  EQF  and  it  includes 
personal  information about  users’  education  and learning outcomes. 
This  document  is  not  a  Europass  document  (it  is  managed  by  the 
European Commission, the Council of Europe and UNESCO, and the 
template  is  the  result  of  the  2018  Ministerial  Agreement  of  the 
Higher Education Ministers of the European Higher Education Area) 
but  has  been  included  in  the  Europass  framework  since  2004.  The 
document  is  not  automatically  available  on  the  Europass  platform, 
and it needs to be uploaded to the platform by users once they obtain 
the higher education diploma and Diploma Supplement attached to it. 

•  Certificate  Supplement.  The  Certificate  Supplement  is  a  document 
attached  to  a  vocational  education  and  training  or  professional 
certificate issued by the competent authorities or bodies, in order to 
make it easier for third persons – particularly in another country – to 
understand  the  learning  outcomes  acquired  by  the  holder  of  the 
qualification, as well as the nature, level, context, content and status 
of  the  education  and  training  completed,  and  skills  acquired.  The 
Certificate  Supplement  is  a  document  that  describes  the  VET 
qualification  systematically  and  transparently.  It  is  based  on  a 
standard  template  and  framework  applied  in  all  Europass  countries. 
To obtain the Europass Certificate Supplement, users can search for 
the  vocational  qualification  in  a  national  database  or  obtain  it  from 
the institution providing the vocational education and training. 

•  Europass Mobility is a document that presents the knowledge, skills 
or  qualifications  obtained  when  undergoing  education,  training,  or 
volunteering  abroad.  Individuals  can  receive  documents  about  their 
experience  abroad  from  authorised  organisations,  after  a  mobility 
experience.  Sending  organisations  need  to  contact  the  National 
Europass  Centre  in  their  country  to  register  the  mobility  and  later 
issue the document. 

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Tool 

Short description 

Transparency and 
comparison of 
qualifications 

•  European Digital Credentials for Learning (EDCs) is a standard for 
digital credentials in the field of learning as well as a service to issue, 
sign,  verify,  store,  and  share  these  credentials.  EDCs  can  be 
certificates  that  record  education  and  training,  qualifications  and 
other  learning  outcomes  in  a  digital  format.  They  are  awarded 
following  formal,  non-formal  or  informal  learning  and  they  can 
describe any type of learning (e.g., activities such as classes attended, 
assessments such as projects, achievements such as skills developed, 
professional entitlements such as the registration as a medical doctor 
and  qualifications  such  as  a  university  degree  or  a  Vocational 
Education and Training  certificate)). Using the EDCs,  organisations 
can issue the certificates and can validate their learning opportunities. 
The Qualifications Dataset  Register  (QDR) underpins  and feeds the 
Accreditation  Database  against  which  the  accredited  credentials  are 
verified.  

•  European  Qualification  Framework.  Europass  platform  is  the  main 
repository of European Qualification Framework (EQF). The EQF is 
an  8-level,  learning  outcomes-based  framework  for  all  types  of 
qualifications  that  serves  as  a  translation  tool  between  different 
national  qualifications  frameworks.  This  framework  helps  improve 
transparency, comparability and portability of people’s qualifications 
and  makes  it  possible  to  compare  qualifications  from  different 
countries  and  institutions.  Europass  platform  for  EQF  includes 
information on EQF and National Qualifications Frameworks (NQF) 
and  referencing  to  EQF.  It  has  links  to  the  national  qualification 
databases  and  the  latest  updates  on  countries  referencing  or 
comparing to the EQF.  

•  Comparison  tool.  Users  can  find  information  on  what  types  of 
qualifications  are included in  national  frameworks referenced to  the 
EQF and compare qualifications levels between two EQF countries. 

Other tools for 
presenting personal 
information  

•  My Interest. Users can identify and list their goals and interests. This 
element also allows them to identify their volunteering interests or if 
they want to move across Europe or participating countries. Europass 
uses this information, to suggest work and educational opportunities. 

•  My Skills. The tool is designed for users and helps them to have an 
overview of their skills.  The information  in  My  Skills  is be used to 
suggest  customised job  and course opportunities. Through this tool, 
Europass encourages the user to reflect on their skills and think about 
future steps for learning or working. 

Career 
management tools  

•  Digital skills self-assessment test. The tool is created to support users 
in assessing and documenting their digital skills. Users can complete 
a  questionnaire  on  their  digital  skills  and  receive  a  personalised 

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Tool 

Short description 

report on their skills. The report helps users to understand their skills 
and see how they can improve them. 

•  Find  a  job.  This  section  is  powered  by  EURES  and  is  used  as  a 
search  engine  for  EURES  vacancies.  Only  the  vacancies  posted  on 
EURES  are  visible  in  the  job  search.  The  tool  also  provides 
information materials and guidance to end-users on how to search for 
the  right  job,  plan  their  career.  This  tool  is  created  to  support  the 
mobility for employment in the EU. 

•  Europass Skills Intelligence tool. It is a functionality on the platform 
providing  information  on  skills  that  are  relevant  to  the  current  and 
future  labour  market  needs  as  well  as  corresponding  learning 
opportunities.  The  tool  contributes  to  guidance  and  counselling, 
recruitment processes, provision of education and training and career 
paths.  Users  can  search  for  occupations  in  highest  demand  in  the 
European Union and the related skills needed. 

•  Find  a  course.  The  Europass  platform  allows  users  to  search  for 
education  and  training  opportunities  via  a  search  engine.  The 
platform hosts information on learning opportunities that can lead to 
a  qualification  (EQF  levels  1-8)  or  that  are  relevant  for  the  labour 
market.  Information  is  transmitted  by  Europass  countries  (via 
Euroguidance  Centres,  the  National  Europass  Centres  or  any  other 
relevant  organisation  appointed  at  national  level),  however,  not  all 
countries  are  sharing  information  at  this  stage.  Users  are  able  to 
retrieve  information  about  available  learning  opportunities  through 
their profile or the Europass main page. Logged in users can receive 
suggestions  on  learning  opportunities  matching  the  skills  and 
interests expressed. In addition, Europass has a dedicated section on 
“Learn in Europe” which presents a list of contacts in organisations 
in  each  of  37  participating  countries  that  can  provide  detailed 
information to users on learning opportunities in their country. 

Information  

Source: elaboration of the contractor (2023) 

EUROPEAN DIGITAL CREDENTIALS FOR LEARNING  

The  European  Digital  Credentials  for  learning  (EDCs)  is  a  standard  for  tamper-evident 
electronic  documents  that  allows  providers  of  credentials  to  describe  and  show  the  achieved 
learning  outcomes  (knowledge,  skills)  of  learners.  The  European  Digital  Credentials  for 
learning  are  documents  signed  with  an  electronic  seal  (as  defined  under  the  eIDAS 
Regulation).  The  EDCs  can  describe  and  certify  qualifications,  activities  (for  example  non-
formal learning events), transcripts of records and entitlements. This initiative stems from the 

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Digital  Education  Action  Plan368  (Action  3)  which  provide  a  framework  for  issuing  digitally 
certified qualification  and validating digitally  acquired skills.  Their main purpose is  to apply 
for job positions or for further education and training.  

The digitally signed credentials (DSC) technical framework allows the qualification documents 
awarded by educational and training organisations to be understood and verified in all Member 
States.  This  also  creates  a  system  in  which  digitally  verified  certificates  and  credentials  are 
issued, sealed, stored, shared, and verified under the same framework. This was not intended to 
replace  quality  assurance  or  certification  practices  at  the  national  level,  but  rather  offer  a 
technical  solution  to  facilitate  the  exchange  of  these  documents  throughout  the  EU  and 
reinforce the trust in digital documents by fighting against fraud. 

The main components of a digitally signed credential are:  
•  The credential, i.e. a documented statement containing claims made about a person – in this 
case  the  credential  is  about  learning  and  describes  the  skills  and/or  learning  outcomes 
acquired by an individual through a formal, non-formal or informal learning context, 

•  A digital signature (e-seal) that certifies the origin and integrity of the document and which 

is the source of trust, 

•  The European Learning Model which allows for interoperability of learning opportunities, 
qualifications  and  credentials  in  Europe  and  support  fast  track  to  credential  recognition. 
European  Learning  Model  is  aligned  with  the  “Verifiable  Credential”  standards  which  is 
the international standard for the envelope around the credential. 

The main functions of the DSC Framework are: 

• 

Issuing  a  digitally  signed  credential  to  the  learner.  The  awarding  body  can  build  then 
credential  in  the  European  Digital  Credentials  Infrastructure,  then  upload  the  list  of 
recipients,  then  seal  and  finally  send  the  credentials,  which  will  issue  tamper-evident 
digitally  signed  credentials.  This  would  replace  the  current  model  of  an  awarding  body 
sending credentials to a specialised print-shop for secure printing and issuing. 

•  Storing the digital certificate after having been issued (storage is available on the Europass 
e-Portfolio  in  the  EDCs-wallet  or  other  compatible  platforms  or  wallets).  The  credentials 
can  be  sent  to  the  owner  or  directly  deposited  into  their  EDCs-wallets.  Credentials  are 
securely stored according to the digital wallet retention period. This is a change compared 
with the current paper storage method. 

•  Sharing the digital certificate with employers and other organisations, such as an education 
and training provider or a recognition centre. The credential owner can share a link from 
their  EDCs-wallet.  The  current  paper-based  model  consists  of  requesting  a  new  certified 
paper copy of the credential to be sent to the requester. 

•  Verifying  the  authenticity  of  the  digital  certificate  and  the  accreditation  of  the  awarding 
body.  In  case  of  accredited  credentials,  the  EDCs  accreditation  database  automatically 
verifies  the  accreditation  of  the  awarding  body.  All  EDC  credentials  are  automatically 

368  

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE 
EUROPEAN  ECONOMIC  AND  SOCIAL  COMMITTEE  AND  THE  COMMITTEE  OF  THE  REGIONS  on  the 
Digital Education Action Plan. Available at: EUR-Lex - 52018DC0022 - EN - EUR-Lex (europa.eu) 

203 

 
 
 
verified every time they are accessed in the EDCs-viewer to check their format, the validity 
of the e-seal, and the validity of the credential. If the credential has been tampered with, the 
checks  would fail. This  can replace the administratively  burdensome paper-based version 
of contacting awarding bodies to ensure authentic credentials and matched identity with the 
owner. 

EU SKILLS PROFILE TOOL FOR THIRD COUNTRY NATIONALS 

The EU Skills Profile Tool for Third Country Nationals369 was developed by DG Employment, 
Social Affairs and Inclusion as part of the New Skills Agenda for Europe (EU-Skills, 2016).  

The  tool  is  a  multilingual,  free  of  charge  online  editor  that  helps  to  map  out  an  individual’s 
profile of skills, qualifications, and work experiences, this allowing for more transparency. It 
serves  as  the  basis  to  issue  personalised  advice  for  further  steps  towards  labour  market 
integration (e.g. a referral to authorities dealing with the recognition of diplomas, validation of 
skills, language or other training, or employment support). The filled profile can be imported to 
the Europass platform. 

It was developed for use by organisations offering assistance to Third Country Nationals but is 
available for everyone on the website. The tool can be used by: 

•  Organisations  working  with  third  country  nationals  (national  authorities  responsible  for 
reception  and  integration  of  refugees,  reception  centres,  employment  assistance  services, 
social services, NGOs…) that can use the tool in an interview situation to get to know the 
individuals, their skills, qualifications and experiences and to give personalised advice on 
further services.  

•  Third  country  nationals  that  wish  to  map  their  qualifications,  skills  and  experiences,  this 
facilitating their contact with local authorities, education and training providers and for job 
seeking.  

The tool is available in all EU and EEA languages and in Arabis, Farsi, Pashto, Sorani, Somali, 
Tigrinya and Ukrainian. It is also possible to see two languages at the same time on one screen 
this  facilitating  the  communication  between  the  organisations  assisting  the  third  country 
nationals and the third country nationals.  

The tool is not intended as a recognition or authentication tool. 

The tool can be adapted to the organisation’s specific needs for example by adding or hiding 
questions  and  sections  from  the  questionnaire;  exporting  the  excel  and  modifying  the  open 
source.   

EUROPEAN QUALIFICATIONS FRAMEWORK (EQF) 

The European Qualifications Framework (EQF) for lifelong learning was established through a 
Recommendation of the European Parliament and the Council in 2008 and revised in 2017370. 

369  
370  

https://ec.europa.eu/migrantskills/#/  
COUNCIL RECOMMENDATION of 22 May 2017 on the European Qualifications Framework for lifelong learning 
and  repealing  the  recommendation  of  the  European  Parliament  and  of  the  Council  of  23  April  2008  on  the 
establishment  of  the  European  Qualifications  Framework  for  lifelong  learning.  Available  at:  https://eur-
lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32017H0615(01). 

204 

 
 
 
The  purpose  of  the  European  Qualifications  Framework  for  lifelong  learning  (EQF)  is  to 
improve the transparency, comparability and portability  of people's qualifications. The wider 
impact  of  the  EQF  is  seen  in  supporting  employability,  mobility  and  social  integration  of 
workers  and  learners,  supporting  lifelong  learning  and  activating  modernisation  of  education 
and training systems. 

EQF  is  an  8-level  learning  outcomes-based  framework  which  serves  as  a  translation  tool 
between  different  national  qualifications  frameworks371.  Essentially,  it  helps  employers, 
education  and  training  providers,  credential  evaluators,  workers,  and  learners  in  different 
countries  to  easily  understand  end  users’  levels  and  types  of  skills  and  qualifications  by 
creating a common reference framework for qualifications in Europe. The EQF is designed to 
cover  all  types  and  levels  of  qualifications  (higher  education,  VET,  general  education,  adult 
learning  including)  including  the  ones  awarded  by  private  sector  organisations,  international 
organisations  or  NGOs.  The  fact  that  the  EQF  is  based  on  learning  outcomes  implies  that  a 
qualification is described to reflect what holders are expected to know, understand and apply 
after completing a learning path.  

The  links  to  the  national  qualification  frameworks  are  built  through  a  referencing  process 
where members of the EQF link their national frameworks to the EQF. In practical terms, they 
have prepared detailed referencing reports that follow the 10 EQF referring criteria (Annex III 
of the 2017 EQF Recommendation). In addition, EQF members are invited to: 

•  Publish information and include reference to EQF levels on qualifications documents. 

•  Promote links between credit systems and national qualifications frameworks. 

•  Encourage  the  use  of  EQF  by  stakeholders  and  to  coordinate  with  the  EQF  National 

Contact Points. 

All  EU  Member  States,  except  Spain,  has  referenced  to  the  EQF.  In  addition,  10  other 
countries  (EEA  countries,  candidate  countries)  have  referenced  to  the  EQF372.  In  the  EQF 
Recommendation  2017373,  Members  States  have  been  invited  to  explore  possibilities  for  the 
developing  criteria  and  procedures  to  enable  the  comparison  of  third  countries’  national  and 
regional qualification frameworks with the EQF. First comparison pilots have been conducted 
with  Ukraine  and  Cabo  Verde.  A  pilot  with  Southern  African  Development  Community 
(SADEC)  is  starting  in  2023.  In  the  past  years,  comparison  and  benchmarking  pilots  were 
conducted also with some advanced qualifications frameworks as the Australian Qualifications 
Framework (AQF), the New Zealand Qualifications Framework (NZQF) and the Hong Kong 
Qualifications Framework (HKQF). 

Europass  hosts  the  EQF  on  its  platform.  It  stores  and  make  available  the  information  on  the 
referencing reports and provides the EQF comparability tool. Synergies of EQF and Europass 
is  seen  also  with  the  interconnection  of  national  databases  on  learning  opportunities  and 
national qualifications registers. A dedicated EQF-Europass working group works to develop 

371  

372  

373  

The European Qualifications Framework (EQF) | Europass. (n.d.). [Government]. European Commission. Retrieved 
August 9, 2022, from https://europa.eu/europass/en/european-qualifications-framework-eqf 
Iceland,  Liechtenstein,  Norway, Albania,  North Macedonia,  Montenegro,  Serbia, Türkiye,  Bosnia  &  Herzegovina, 
Kosovo and Switzerland.  
https://op.europa.eu/en/publication-detail/-/publication/ceead970-518f-11e7-a5ca-01aa75ed71a1/language-en 

205 

 
 
 
methodology  and  guidance  on  creating  short  descriptions  of  learning  outcomes  based  on 
qualifications  to  be  used  in  databases  and  registers  and  thus  helping  the  openness  and 
transparency of qualifications. 

2.2. ENIC-NARIC network  

The ENIC-NARIC network brings together the European Network of  Information  Centres in 
the European Region (ENIC) and the National Academic Recognition Information Centres in 
the  European  Union  (NARIC),  fostering  the  collaboration  in  55  countries  in  the  field  of 
academic recognition of qualifications.  

The  ENIC  network  operates  under  the  Lisbon  Recognition  Convention374  which  is  the  legal 
instrument regulating recognition of higher education qualifications from abroad across Europe 
and  North  American  regions.  The  NARIC  network  comprises  all  countries  participating  in 
Erasmus+.  Depending  on  a  country’s  status,  therefore,  they  will  refer  to  their  recognition 
centre as an ENIC-NARIC, a NARIC or an ENIC. The European Commission is secretariat of 
the  NARIC  network,  while  the  Council  of  Europe  and  UNESCO  are  co-secretariats  of  the 
ENIC network. 

The network provides information on recognition to: 

• 

Individuals  wishing  to  study  /  work  abroad.  Information  regards  in  particular  the 
procedures to have academic / professional qualifications evaluated; 

•  Credential  evaluators  regarding  recognition  tools.  The  network  has  developed  projects, 
tools  and 
foster  mobility  and  enhance 
internationalisation  of  higher  education.  These  cover  automatic  recognition,  databases  on 
higher education systems and qualifications, academic recognition and quality assurance; 

recognition, 

instruments 

facilitate 

to 

•  Higher education institutions. In particular, the network provides information on academic 
recognition  procedures,  educational  systems  at  national  level,  qualification  frameworks, 
quality assurance and joint programmes and degrees; 

•  Employers.  Three  types  of  information  are  provided:  information  on  candidate’s 
(regulated  and  non-regulated 
recognition  procedures 

qualification,  professional 
professions) and recognition tools. 

LISBON RECOGNITION CONVENTION 

The  Lisbon  Recognition  Convention,  also  known  as  the  Convention  on  the  Recognition  of 
Qualifications concerning Higher Education in the European Region, is an international treaty 
adopted  in  Lisbon,  Portugal,  in  1997.  It  is  aimed  at  promoting  the  mutual  recognition  of 
academic qualifications among the countries in the European region. 

The  Lisbon  Recognition  Convention  is  a  collaborative  effort  between  the  Council  of  Europe 
and UNESCO. Its primary purpose is to create a unified legal framework at the European level 
for  the  recognition  of  academic  qualifications  and  to  eventually  replace  six  previous 
conventions that had been adopted by either the Council of Europe or UNESCO. 

374  

Convention  on  the  Recognition  of  Qualifications  concerning  Higher  Education  in  the  European  Region  (ETS  No. 
165). 

206 

 
 
 
The  main  goal  of  the  Lisbon  Recognition  Convention  is  to  facilitate  academic  mobility  and 
ensure  that  qualifications  obtained  in  one  country  are  recognised  and  accepted  by  other 
countries  in  the  region.  This  recognition  is  essential  for  students,  graduates,  and  academic 
professionals seeking to study, work, or pursue further education in different countries. 

The  Convention  sets  out  principles  and  guidelines  for  the  recognition  of  qualifications  at  all 
levels of higher education, including degrees, diplomas, and certificates. It emphasizes fair and 
transparent recognition procedures and the use of comparable criteria to evaluate qualifications 
from different educational systems. The principles are: 

•  Fairness: The recognition process should be fair and impartial, providing an equal and non-
discriminatory  treatment  to  all  individuals  regardless  of  their  nationality  or  country  of 
origin; 

•  Transparency:  The  recognition  procedures  and  criteria  should  be  transparent  and  easily 
institutions,  and 

accessible  to  all  stakeholders,  including  individuals,  educational 
employers; 

•  Reasonable Timeframe: The recognition process should be completed within a reasonable 
timeframe, allowing individuals to access their rights and benefits without undue delay; 

•  Substantial  Equivalence:  The  recognition  decision  should  be  based  on  the  principle  of 
substantial  equivalence,  meaning  that  a  qualification  granted  in  one  Party  should  be 
recognised  as  having  the  same  or  equivalent  level  of  education  and  academic  value  in 
another Party; 

•  Burden of Proof: The burden of proof lies with the educational institution or authority in 
the host country to demonstrate that the qualification in question is substantially different 
from its own national qualifications; 

•  Single  Application  Procedure:  The  Convention  promotes  the  use  of  a  single  application 
procedure  for  recognition,  allowing  individuals  to  apply  for  recognition  in  one  place  and 
have their qualifications recognised across the European Region; 

•  Avoidance  of  Discrimination:  The  Convention  emphasizes  the  avoidance  of  any  form  of 
discrimination in the recognition process, ensuring that individuals are not subject to unjust 
treatment based on their nationality, ethnicity, gender, or any other characteristic; 

•  Use  of  Comparability  Information:  Parties  are  encouraged 

to  use  comparability 
information,  such  as  national  or  regional  qualifications  frameworks,  to  facilitate  the 
recognition of qualifications; 

•  Use  of  Information  Centres:  Parties  are  encouraged  to  establish  National  Information 
Centres (NICs) and participate in the European Network of National  Information Centres 
(ENIC Network) to provide information and guidance on recognition matters. 

Under  the  Lisbon  Recognition  Convention,  the  responsibilities  for  recognition  lie  with  the 
competent  authorities  of  each  participating  country.  These  authorities  are  responsible  for 
assessing  foreign  qualifications  and  determining  their  equivalence  to  qualifications  in  their 
own country. The main objective of the Convention is to simplify and streamline the process of 
recognizing qualifications obtained in  one country (Party) by other  countries (Parties) within 
the  Convention.  It  emphasizes  that  recognition  requests  should  be  handled  fairly  and  in  a 

207 

 
 
timely manner. Qualifications can only be refused recognition if they are significantly different 
from  the  qualifications  of  the  host  country.  The  burden  of  proof  lies  with  the  educational 
institution of the host country to demonstrate substantial differences. 

To  ensure  effective  implementation  and  oversight  of  the  Convention,  two  bodies  have  been 
established: the Committee of the Convention on the Recognition of Qualifications concerning 
Higher Education in the European Region and the European Network of National Information 
Centres on Academic Mobility and Recognition (ENIC Network). 

The Committee is responsible for promoting and overseeing the application of the Convention. 
The  Committee  can  adopt  recommendations,  declarations,  protocols,  and  models  of  good 
practice  to  guide  the  competent  authorities  of  the  Parties.  It  also  seeks  the  opinion  of  the 
second  body,  the  European  Network  of  National  Information  Centres  on  Academic  Mobility 
and Recognition (ENIC Network), before making decisions. 

The ENIC Network is tasked with supporting and facilitating the practical implementation of 
the  Convention  by  the  competent  national  authorities.  It  serves  as  a  network  of  information 
centres  that  assist  in  recognizing  academic  qualifications  and  promoting  academic  mobility 
within the European Region. 

EUROPEAN  SKILLS,  COMPETENCES,  QUALIFICATIONS  AND  OCCUPATIONS 
CLASSIFICATION (ESCO) 

The  ESCO  is  the  multilingual  classification  of  European  Skills,  Competences,  and 
Occupations,  launched  in  2017  by  the  European  Commission.  It  identifies  and  categorises 
skills,  competences  and  occupations  relevant  for  the  labour  market,  it  provides  multilingual 
information or labour market services as well as training programs and curricula. 

Regarding  the  occupations,  the  classification  is  organised  in  hierarchical  relationship,  and  it 
maps to ISCO classification. More in detail, each occupation is mapped to one ISCO-08 code. 
An explanation of the occupation is also provided together with the related knowledge, skills 
and competences. In ESCO classification there are now 3008 occupations mapped.  

On skills, ESCO envisage different concepts. These are knowledge, skills, attitudes and values 
and  languages  skills  and  knowledge.  It  also  indicates  the  reusability  level:  cross-sectoral, 
occupation-specific, sector-specific, transversal and the status (obsolete or released). 

On  the  qualification,  ESCO  supports  the  description  of  learning  outcomes  of  a  qualification 
and  enhances  personalised/  digital  career  guidance  services.  Is  also  can  be  used  for  the 
validation of informal and non-formal learning.  

The classification is used on a voluntary basis and can support a better link between education 
and employment. In particular, it is used in the framework of: 

•  Job-matching  and  job-searching  services:  PES,  talent  acquisition  agencies,  human 
resources  consulting  but  also  private  companies  for  rolling  out  their  own  job  matching 
tools; 

•  Career  development  and  learning  management:  qualification  authorities,  universities, 

training providers; 

•  Statistics and big data analysis of labour market. 

208 

 
 
ESCO classification can be downloaded or retrieved through the ESCO Application Program 
Interface (API) which is a software component facilitating the interaction with other software 
component.  

ESCO is a complementary tool to the EQF as it offers a standardises terminology to describe 
and  compare  learning  outcome  descriptions.  To  this  end,  awarding  bodies  and  national 
authorities select the relevant ESCO knowledge, skills and competence concepts, this allowing 
automatically understands learning outcomes without replacing or translating.  

In July 2018, ESCO terminology became the standard for data exchange in EURES and it is 
the standard used to develop the skills-based matching tool on the portal. EURES countries had 
to map their national classifications to ESCO – or alternatively adopt directly ESCO – and then 
use  ESCO  codes  to  present  job  vacancies  and  CVs.  According  to  the  ESCO  2021  annual 
report375, 21 out of 31 EURES countries had completed the implementation of ESCO. 

ESCO  is  also  used  with  the  Europass  framework  and  integrated  in  several  elements  of  the 
Europass platform (ePortfolio, CV editor, My Skills, My Interest).  

SKILLS-OVATE 

Skills-OVATE is  a project  promoted  by Cedefop and Eurostat that analysis online vacancies 
with the objective to provide information on the jobs and skills most in demand in the labour 
market.  The  analysis  covers 28 European countries and is  based on different  type of sources 
for  collecting  online  job  advertisements  (OJAs)  these  including  private  job  portals,  public 
employment service portals, recruitment agencies, online newspaper and corporate websites.  

The  information  extracted  are  analysed  against  international  classifications:  ISCO-08  for 
occupation, NACE for sectors and NUTS-w for regions. 

The information provided regards: 

•  Online  job  markets.  Three  dashboards  are  available:  one  showing  the  information  by 
occupation and country; one shows differences in demand for occupations across countries 
(i.e.  the  share  of  selected  occupation  on  the  total  number  of  OJAs);  one  displays  job 
vacancies by sector. There is  an additional tool to compare data in  a customised way, by 
selecting different filters (countries, regions, occupations, sectors). Two additional types of 
information can be filtered: contract types and working hours offered; 

•  Skills  insights.  Information  on  skills  is  available  at  the  level  of  occupation,  sector  and 

country. The dashboard shows how skill demand develops over time; 

•  Occupation insights. The information provided relates to the skills requested in a selected 
occupation,  the  type  of  contracts  and  working  hours  offered  by  employers  in  different 
countries,  a  general  overview  of  the  job  vacancies  as  well  as  occupation  trends  over  the 
time; 

•  Sector  insight.  The  dashboard  shows  the  demand  for  occupation  (ISCO  2-digit)  across 
sectors  and  countries;  skills  and  occupation  requested  across  sectors;  evolution  over  the 
time; 

375  

Annual reports | Esco (europa.eu) 

209 

 
 
 
•  Region insights. Information on the difference in demand for occupations across regions is 

available together with the most demanded skills, also across sectors, and the trends. 

EU TALENT POOL PILOT  

The  EU  Talent  Pool  Pilot  is  an  online  job-searching  tool  for  individuals  fleeing  the  war  in 
Ukraine  who  are  seeking  employment  in  the  EU.  It  helps  identify  and  map  their  skills  and 
connects them with EU employers. The pilot is intended to facilitate labour market integration 
for beneficiaries of temporary protection or adequate protection under national law, providing 
them  with  more  financial  independence,  better  integration,  and  preserving  their  skills  for 
Ukraine's future reconstruction.  

The  initiative  is  implemented  through  the  EURES  portal,  which  brings  together  national 
employment offices, private agencies, and employers across the EU.  

Jobseekers can publish their CVs on the portal, seek advice from EURES advisers, and browse 
vacancies. Employers can access the profiles of jobseekers and offer them jobs.  

While  the  pilot  initially  involved  countries  like  Finland,  Lithuania,  Poland,  Spain,  Czechia, 
Cyprus, Croatia and Slovakia, participation by EU member states is voluntary. Jobseekers can 
use the EU Talent Pool Pilot to find jobs in EU countries even if their country is not formally 
participating  in  the  initiative.  However,  there  may  be  limitations  in  accessing  additional 
services offered by national administrations in non-participating countries.  

Jobseekers can go home to Ukraine for short periods without losing their temporary protection 
status. If they find jobs in different EU countries, they need to inform the respective authorities 
to  register  for  temporary  protection  in  the  new  member  state.  Employers  willing  to  hire 
jobseekers benefiting from temporary protection from another member state can help them in 
the process by providing support and a willingness to employ them. 

1.  Relevant initiatives at national level 

AUSTRIA 

Key 
measures 
and 
schemes  

Job  Seeker  Visa:  For  very  highly  qualified  workers  (people  over  the  point 
threshold  of  65)376  it  is  possible  to  apply  for  a  Job  Seeker  permit  that  lasts  6 
months. When finding a job offer, they can apply to the RWR card. 

RWR (Red-White-Red) card and the RWR plus card: residence titles issued to 
very  skilled  workers  and  workers  with  skills  that  match  regional  shortage 
occupations. 

•  RWR  card:  If  applicants  can  find  a  job  that  matches  their  skills,  they  can 
apply  for an RWR  card. The prerequisite is  to  have a binding job  offer.  The 
duration of this permit is 2 years and is limited to working in the job through 
which the permit was granted or limited to self-employment.  

•  RWR card plus is a residence permit that offers unrestricted access to labour 

376  

Point  criteria:  https://www.migration.gv.at/en/types-of-immigration/permanent-immigration/very-highly-qualified-
workers/ 

210 

 
 
  
 
AUSTRIA 

market and fixed-term settlement. Holders of the RWR card can apply for this 
visa after 21 months of work within the last 24 months. People that have been 
in Austria for five years and have B1-level German language skills can apply 
for  a  long-term  resident  EU  permit  that  grants  unlimited  settlement  and 
unrestricted access to the Austrian labour market. 

Groups that can qualify for the RWR card:  Very Highly Qualified Workers. 
Skilled  Workers  in  Shortage  Occupations,  Other  Key  Workers,  Graduates  from 
Austrian  Universities  and  Colleges  of  Higher  Education,  Regular  Workers  in 
Tourism,  Agriculture  and  Forestry,  Self-employed  Key  Workers,  Start-up 
Founders. 

• 

Issued based on quotas 

•  Access to the RWR card is granted based on a point system:  

o  Threshold:  

65 points for very highly qualified workers 

50 points for skilled workers in shortage occupation and other key workers 

o  In 2019 amendments were introduced to this system. 1) Proficiency 
in  English  was  added as a criterion, 2) More weight was given to 
occupational  experience  and  less  to  age  (age  was  deemed  as  a 
discriminatory  and  unconstitutional  criterion),  3)  Threshold  for 
“very highly qualified” workers (i.e. mechanical engineering, data 
processing  engineers,  business  engineers,  and  physicians)  was 
lowered to 65 to facilitate admission to these types of workers.  

•  Can be issued regionally, to ensure the supply of workers matches the needs of 

the local labour market. 

• 

In  2019  an  amendment  came  into  force  to  reduce  some  of  the  bureaucratic 
obstacles  in  the  application  process,  including  an  adjustment  to  the  required 
minimum salary and eliminating the requirement of proof of accommodation, 
however, it is not sure if the amendment will be enacted.  

Seasonal workers: 

Temporary work permits: six months (9 months under certain conditions)  

Short-term employment: 6 weeks 

Quotas: The federal Minister of Labour and Economy may set quotas to regulate 
the  employment  of  seasonal  workers.  These  quotas  may  exceed  by  20%  during 
seasonal spikes as long as it does not pass the yearly quotas.  

In 2019 these quotas were: 

o  4,000 employment permits 

211 

 
 
AUSTRIA 

o  60 short-term employments in harvesting.   

o  1,263 for time-limited employment in tourism,  

o  2,727 for time-limited employment in agriculture and forestry. 

o  288 workers employed in harvesting.  

Intra-corporate  Transfers  (ICT):  Key  workers  temporarily  employed  in  a 
branch in Austria of their company may have a residence and employment permit 
in Austria.  

Au Pairs: It is possible for foreigners between the age of 18 and 28 to join a host 
family to get a permit to help with childcare and easy household tasks. 

New measures: 

•  ID card for displaced people: Since April 2023 people from Ukraine with an 

ID card for displaced people can take any employment without a permit. 

Strategies to tackle skilled labour shortage:  

•  Collaboration  with  countries  of  origin  of  migrant  workers:  The  Austrian 
Business Agency, the main actor at the federal level in attracting international 
companies and workers, has been set in charge of addressing the shortage of 
skilled  workers.    The  agency  has  stablished  agreements  to  recruit  workers 
from other EU Member States. 

•  Austrian dual-training apprenticeship system: This is a strategy where the 
Austrian  government  provides  apprenticeships  and  language  courses  in  the 
country  of  origin  of  migrants  and  after  completion,  internships  in  Austrian 
cities.    A  pilot  of  this  strategy  has  been  implemented  in  Spain  and  in  the 
future, it might be implemented in Serbia.  

Job 
portals 
/ 
platform  

The Austrian Business Agency - WORK in AUSTRIA – manages a platform with 
all relevant information about working, staying and living in Austria. In addition, 
the platform has a section dedicated to job postings where it is possible to search 
and filter by industry, field, type of contract (full time, part time etc…) and region. 

Labour 
Market 
test377 

Body responsible: the Austrian Public Employment Service (AMS) 

Procedure:  The  AMS  verifies  that  no  member  of  the  Austrian  Labour  market 
could fill the vacancy. The employer applies to the AMS for the LMT in case it is 
required. AMS as a PES may however have a registered domestic or EU worker in 
its  database  who  is  suitable  for  the  position.  The  employer  has  to  justify  its 
decision  not  to  accept  the  application  from  EU  candidates,  explaining  why  they 
are not suitable to fill the vacancy. 

377  

https://www.bmeia.gv.at/fileadmin/user_upload/Vertretungen/Teheran/Dokumente/02_Info-RWR-Card_en.pdf 

212 

 
 
 
AUSTRIA 

Mandatory: “Other Key workers” and applicants for EU blue card. 

in  shortage 
Exceptions:  Very  highly  qualified  workers,  skilled  workers 
occupations,  and  Graduates  of  universities  and  colleges  of  higher  education  in 
Austria. 

Referenc
es 

EMN National Report 2021 

EMN Country Factsheet 2021 

Summary of European Migration Network Ad-Hoc Query No. 2021.17 

https://www.enic-naric.net/page-Austria  

https://www.cedefop.europa.eu/en/tools/european-database-on-validation-of-non-
formal-and-informal-learning 

Federal  Ministry  Republic  of  Austria.  (n.d.).  Federal  Government‘s  Official 
Information  Website  on  Migration  to  Austria.  Retrieved  June  7,  2023,  from 
https://www.migration.gv.at/en/welcome/?no_cache=1 

Criteria-based  immigration  to  Austria.  Federal  Ministry  Republic  of  Austria. 
Affairs. 
European 
https://www.bmeia.gv.at/fileadmin/user_upload/Vertretungen/Teheran/Dokument
e/02_Info-RWR-Card_en.pdf 

International 

and 

Types 
https://www.migration.gv.at/en/types-of-immigration/  

immigration. 

Living 

of 

and  Working 

in 

Austria. 

BELGIUM 

Key 
measures 
and 
schemes  

 Highly qualified workers 

•  Conditions:  Holding  a  degree  of  higher  education,  have  concluded  an 
employment  contract  for  at  least  one  year,  and  having  a  job  offer  with  a 
salary equal to the average gross annual salary (In Flanders it is 80% of the 
average gross annual salary for people under 30 or working as a nurse).  

•  Duration: 2 periods of 4 years, except in the Brussels-Capital region where 

it can be renewed indefinitely. 

•  After  5  years  of  uninterrupted  legal  stay  in  Belgium  you  can  apply  for  an 

EU long-term residence status 

•  There are more flexible provisions for workers with a profession for which 

there is a shortage of qualified staff.  

Intra-corporate transferees:  

Recent changes made it possible for third-country nationals to apply for an ICT 
single permit. To qualify for this, permit the employee must have been working 

213 

 
 
 
  
BELGIUM 

for the company for 3 months (or 6 months for managers and specialist in the 
Brussels Capital Region. 

Seasonal workers:  

During  the  covid-19  crisis,  some  measures  were  taken  to  respond  to  the 
shortage  of  seasonal  workers  in  the  agriculture  and  horticulture  sector.  These 
measures  facilitated  the  stay  of  seasonal  workers  already  in  Belgium  by  for 
instance  allowing  them  to  work  more  days  per  year  or  to  move  to  a  different 
company. 

Low and medium-skilled workers:  

Wallonia: Occupations in the shortage list (list of 10 occupations) do not need 
to pass a labour market test to hire third-country national workers.  

Type of permits:  

Single  permit:  This  permit  is  valid  for  the  duration  of  the  contract  through 
which this permit was obtained, and it can be renewed. After 5 years of living 
and  working  with  a  single  permit,  highly  qualified  workers  can  apply  for  a 
single permit with unlimited duration. 

•  Procedure:  employer  needs  to  apply  for  a  work  permit  on  behalf  of  the 
employee through the  department  of economic migration of the region  the 
employer  is  based  (Flanders,  Wallonia,  Brussels  Capital  Region  or  the 
German-speaking  community).  Freelancers  or  people  wanting  to  start  a 
business in Belgium need to apply for a professional card directly. 

• 

It is now only possible to apply for this permit while in Belgium when in the 
country  for  a  legal  short  stay  or  a  stay  as  a  student  or  researcher,  other 
applicants have to return to their country to apply for a single permit.  

•  Electronic applications for single permits are now made through email, with 

the intention of easing the procedure.  

Work permit: valid for a maximum of 90 days 

Bilateral labour agreements: an international labour agreement is no longer a 
requisite for single permits or work permits subject to a labour market test. 

Labour 
Market test 

Responsible  body:  Regional  Employment  Services  (VDAB  for  Flanders, 
ACTIRIS  for  Brussels,  and  FOREM  for  Wallonia).  These  bodies  are 
responsible  for  assessing  the  labor  market  conditions  and  job  vacancies  to 
ensure that there are no suitable local candidates available before employers can 
recruit foreign workers. 

The LMT is required for issuing the Single Permit. 

Exemptions:  

214 

 
 
  
BELGIUM 

•  Highly skilled workers: Professional workers who possess specific skills or 
qualifications  that  are  in  high  demand  in  the  Belgian  labor  market  (Blue 
Card holders) 

• 

Intra-company transferees: Employees who are transferred from a company 
outside Belgium to a branch, subsidiary, or affiliated entity in Belgium. 

•  Researchers  and  scientific  personnel:  Individuals  who  are  engaged  in 
scientific  research  or  who  hold  research  positions  at  recognised  research 
institutions. 

•  Certain  specialised  technicians:  Workers  who  possess  specific  technical 
skills  that are needed in  Belgium  and are not  readily  available in  the local 
labor market. 

•  Executives, 

senior  managers,  and  corporate  officers:  High-level 

management personnel who hold key positions in a company. 

References  Belgium  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  7,  2023,  from    https://immigration-portal.ec.europa.eu/belgium-highly-
qualified-worker_en 

Coming  to  work  in  Belgium  |  Belgium.be.  Official  information  and  services 
(n.d.). 
from 
https://www.belgium.be/en/work/coming_to_work_in_belgium 

Retrieved 

2023, 

June 

7, 

EMN National Report 2019 

BULGARIA 

Key 
measures 
and 
schemes  

To  migrate  to  Bulgaria  as  a  highly  qualified  worker  it  is  necessary  to  have  a 
long-term visa and an EU Blue card. 

•  EU Blue Card  

Highly  qualified  professionals  are  defined  as  people  with  the  necessary 
competencies  for  a  job.  The  qualification  has  to  be  certified  by  a  competent 
higher education authority and the training must have lasted at least 3 years.  

Procedure:  Employer  must  apply  for  an  EU  Blue  Card  with  a  proof  that  the 
Gross wage in the contract is at least 1.5 times higher than the average salary in 
Bulgaria.  If  applicant  has  been  working  for  at  least  18  months  in  another  EU 
country while holding an EU Blue Card, the applicant can apply for a Blue Card 
in Bulgaria within one month of their arrival. 

Duration:  This  permit  is  valid  for  the  duration  of  the  contract  plus  3  months 
without exceeding 4 years and it is renewable.  

On  January  25,  2023,  was  promulgated  an  Act  to  Amend  and  Supplement  the 
Labor Migration and Labor Mobility ruling the entry and residence of citizens of 

215 

 
 
 
 
  
countries  outside  the  EU  on  the  territory  of  the  for  the  purposes  of  highly 
qualified employment. The main change concerns the expansion of the range of 
persons  entitled  to  apply  for  an  EU  Blue  Card.  The  option  to  prove  higher 
professional  skills  relevant  to  the  position  has  been  added,  as  an  alternative  to 
the requirement of acquired higher education. Other easing measures concern the 
possibility to submit application electronically, the shortening of deadlines in the 
course of the procedure, the simplification of the procedure to change employer. 
In  addition,  the  conditions  for  holders  of  a  Blue  Card  issued  in  another  EU 
country  to  move  to  Bulgaria  has  been  also  streamlined  and  the  validity  of  the 
Blue Card was extended from 4 to 5 years.  

Permit as an employed worker 

To work as an employed worker in Bulgaria as a non-EU citizen applicants must 
obtain:  

•  a single/work permit 

•  a visa "type D" issued to foreigners who wish to settle for a long term or 

permanently 

•  a residence permit (not applicable in case of a single permit). 

Quotas:  the  number  of  non-EU  citizens  cannot  exceed  20%  of  the  average 
number  of  Bulgarian/EEA/Swiss  citizens  in  the  previous  12  months  and  those 
non-EU citizens already residing in Bulgaria on a long-term basis and who are 
hired by the employer during the previous 12 months. 

Procedure:  First  the  employer  must  apply  for  a  single  permit  through  the 
Employment  Agency’s  relevant  local  Directorate  “Employment  Office”.  This 
permit gives the right to reside in Bulgaria and work (labour market is limited to 
the job through which the permit is granted). 

Duration: valid for a maximum of one year, renewable for a maximum of up to 
three years.  

Single residence and work permit: An electronic process has been set in place 
for coordinating the applications for residence and work permits. 

•  Intra-corporate  transferees:  for  employees  (managers,  specialists  or 
trainee) working at a company outside the EU who are being transferred to a 
branch in Bulgaria. To qualify for this permit the employee must have been 
working at the company for a certain time period: managers and specialists – 
12 months; trainees – 6 months.  

Duration: 3 years for managers and specialists and 1 year for trainees.  

•  Seasonal employment – up to 90 days 

No need for work permit.  

•  Seasonal employment – 90 days to maximum 9 months 

Procedure:  first  the  employer  applies  for  an  approval  at  the  central 

216 

 
 
administration  of  the  employment  agency.  The  permit  is  specific  to  the 
economic  sector:  HORECA  and  Agriculture.  If  necessary,  applicant  must  also 
apply to a visa “type D’ to enter Bulgaria. Once in Bulgaria, worker must obtain 
a residence permit from the Migration Directorate.  

Conditions:  Employer  must  pay  for  the  travel  cost  from  country  of  origin  to 
Bulgaria  and  the  return  trip.  Furthermore,  the  employer  has  the  obligation  of 
providing housing through the duration of the contract.  

Rights: A seasonal worker can apply for a permission to change employer at the 
Employment Agency without having to leave Bulgaria.  

•  Self-employed worker 

Procedure:  First, applicant must apply for a self-employment permit. To obtain 
this permit the applicant must submit to the employment Agency a detailed plan 
of  activities  for  the  term  of  the  permit.  This  plan  should  assess  economic  and 
social  impact  of  the  activity.    Second,  once  the  self-employment  permit  is 
approved, applicant must apply for a visa “type D” to enter Bulgaria. Third, once 
in  Bulgaria  worker  must  apply  for  a  residence  permit  from  the  Migration 
Directorate. 

Labour 
market 
test 

Responsible body: Employment Agency (Migration Directorate of MoI) 

The LMT is mandatory for the permit as an employed worker  

The employer must show that: 

•  he/she has actively searched for a suitable candidate for the past 15 days 

• 

there  are  no  Bulgarian/EEA/Swiss  nationals  or  long-term  residing  in 
Bulgaria non-EU workers matching the required profile 

• 

there is no possibility of training existing personnel. 

Exempted from a labour market test are the cases where the worker is: 

•  hired under the terms of an international  agreement,  to  which Bulgaria is  a 

party 

•  a  guest-professor,  lector  or  teacher  in  Bulgarian  higher  or  secondary 
education  entity,  approved  by  the  relevant  academic  boards  or  Regional 
Inspectorates of the Ministry of Education and Science 

•  a  professional  sportsman  or  trainer,  approved  by  the  relevant  Bulgarian 

sports federations or unions 

•  an actor-performer, approved by the Ministry of Culture 

217 

 
 
 
References  http://workinbulgaria.net/work-in-bulgaria/non-eu-citizen/blue-card/ 

Bulgaria  -  Employed  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved  June  7, 
2023, 
https://immigration-portal.ec.europa.eu/bulgaria-employed-
worker_en 

from 

Bulgaria  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  7,  2023,  from    https://immigration-portal.ec.europa.eu/bulgaria-highly-
qualified-
worker_en#:~:text=You%20may%20also%20come%20to,one%20month%20of
%20your%20arrival. 

Bulgaria  -  Seasonal  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved  June  7, 
2023, from https://immigration-portal.ec.europa.eu/bulgaria-seasonal-worker_en 

Bulgaria - Self-employed worker. (n.d.). EU Immigration Portal. Retrieved June 
7,  2023,  from  https://immigration-portal.ec.europa.eu/bulgaria-self-employed-
worker_en 

EMN National Report 2017 

https://ceelegalmatters.com/bulgaria/22528-changes-in-the-regime-for-
admission-of-citizens-of-third-countries-for-the-purposes-of-highly-qualified-
employment-in-bulgaria 

CROATIA 
Key measures 
and schemes  

Labour Market 
Test 

Employed worker 
Non-EU citizens may work as an employed worker in Croatia on the basis 
of  a  residence  and  work  permit  or  a  work  registration  certificate.    The 
permit is limited to the work through which the permit was obtained.  
Procedure:  the  application  can  be  done  by  the  employer  when  a  labour 
market  test  or  an  opinion  from  the  Croatian  Employment  Service  is 
required  for  the  permit.  For  a  work  permit  that  does  not  need  a  labour 
market  test  or  an  opinion  from  the  Croatian  Employment  service,  the 
application can be done  by either the employer or the applicant (with an 
employment contract). 
Since 2020 annual quotas have been abolished. Now this permit is granted 
based on a labor market test. 
Highly qualified worker – EU Blue Card 
Duration:  duration  of  the  contract  plus  3  months  with  a  maximum 
duration of two years. It is possible to prolong the permit.  
Seasonal worker  
Procedure: Application can be made by applicant or employer 
Duration: maximum 6 months within a period of 1 year. 
Responsible body:  Croatian Employment Service 
Procedure: The LMT is mandatory for the Employed worker permit. The 
Croatian  Employment  Service  analyses  if  in  the  register  of  unemployed 
persons  in  the  Republic  of  Croatia  there  are  people  who  meet  the 
requirement  of  the  employer.  If  no  available  person  in  the  register,  then 
the employer may request the opinion regional employment office on “the 

218 

 
 
  
 
CROATIA 

References 

CYPRUS 

Key 
measures 
and 
schemes  

employment possibilities of third-country nationals”.   
An employer may receive a favourable opinion if:  
•  They  carry  out  an  economic  activity  registered  in  the  Republic  of 

Croatia 

•  They  have  no  income  tax  debt  or  debt  for  mandatory  insurance 

• 

contributions. 
In the last six months, they have had at least one full-time employee 
who  is  a  national  of  the  Republic  of  Croatia,  EEA  or  Swiss 
Confederation  employed  for  an  indefinite  period  of  time  in  the 
Republic of Croatia. Furthermore, the total number of employees who 
are  citizens  of  the  Republic  of  Croatia  or  citizens  o  EEA  member 
states  or  the  Swiss  confederation  at  the  place  of  employment  should 
be at least ¼ of the total number of employees.  

They have not been finally convicted of criminal offences in the  field of 
labour relations and social insurance. 
Exemptions: high demand professions that are published on the website 
of the Croatian Employment Service.  
Government of the Republic of Croatia. (n.d.). Work of foreign nationals - 
gov.hr.  e-Citizens.  Retrieved  June  7,  2023,  from  https://gov.hr/en/work-
of-foreign-nationals/1214 
Croatia  -  Employed  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  7,  2023, 
from  https://immigration-portal.ec.europa.eu/croatia-
employed-worker_en 
Croatia  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
7, 
portal.ec.europa.eu/croatia-highly-qualified-worker_en 
Croatia - Seasonal worker. (n.d.). EU Immigration Portal. Retrieved June 
7,  2023,  from  https://immigration-portal.ec.europa.eu/croatia-seasonal-
worker_en 
EMN National Report 2020 

2023, 

from 

June 

Employed worker 

Requisites:  entry  permit  for  the  purpose  of  employment  and  a  temporary 
residence and employment permit.  

Conditions: Permit is tied to the employer through which the permit is granted. 
The employee has the right to change up to 3 employers within the same sector 
and  occupation  (except  for  domestic  workers  who  can  transfer  to  farming  and 
agriculture).  For  this  change,  the  former  employer  must  issue  a  release 
agreement and hold an approval from the Labour Department.  

Procedure:  The  employer  first  applies  to  the  District  Labour  Offices  of  the 
Ministry  of  Labour  and  Social  Insurance  with  a  job  vacancy.  A  labour  market 
test is carried and if the vacancy is not filled by a local or European worker, the 

219 

 
 
 
  
CYPRUS 

employer may apply for an entry and resident permit for a non-EU national.  

Employer obligations: The employer must provide accommodation and a bank 
guarantee in case the employee is repatriated.  

Duration:  maximum  4  years.  There  are  sectors  excepted  from  this  time 
limitation:  farming  and  agriculture,  domestic  work,  specialty  cooks  and  chefs, 
priests, and tourists’ representatives.  

Highly qualified worker 

Requisites: residence and employment permit. 

Highly skilled workers can be employed under the following categories: 

•  Executive directors: minimum salary for this category is around $3,872. The 
maximum employees under this category in an eligible company is 5 (unless 
otherwise justified). 

•  Middle-management  staff,  executive  staff  and  other  key  personnel:  
minimum  salary  for  this  category  is  around  $1,936.  Maximum  employees 
under this category in an eligible company is 10 (unless otherwise justified). 

Conditions:  Permit  is  tied to  a specific employer but  changes of employer are 
possible with a release paper or termination letter. 

Procedure:  an  application  for  the  residence  and  employment  permit  must  be 
submitted  to  the  Civil  Registry  and  Migration  Department.  A  contract  of 
employment is  required for the application. The  decision to  grant  the permit  is 
taken by the Director of this department after consultation with other authorities. 

Duration: Permits are issued for maximum 2 years but there is no restriction for 
the total residence period for highly skilled employees. 

Seasonal workers 

Requisites:  an  entry  permit  for  the  purpose  of  employment  and  a  temporary 
residence and employment permit.  

Conditions:  Permit  is  tied to  a specific employer but  changes of employer are 
possible with a release paper or according to a decision after investigation of a 
labour dispute. 

Duration:  permits  granted  for  up  to  four  months,  extendable  by  a  further  four 
months.  

Procedure:  employer  applies  to  the  District  Labour  Offices  of  the  Ministry  of 
Labour  and  Social  insurance  with  a  job  vacancy  and  a  labour  market  test  is 
carried.  If  the  vacancy  is  not  filled  after  the  labour  market  test,  employer  may 
apply for an entry permit. 

Employer obligations:  The employer must provide accommodation and a bank 

220 

 
 
CYPRUS 

Labor 
market 
test  

guarantee in case the employee is repatriated. 

Responsible body: Employment Services of District Labour Offices 

Mandatory for the employed worker permit. 

Procedure:  the  interested  company/employer  needs  to  publish  in  the  daily 
newspapers  the  available  position  via  the  Employment  Services  of  District 
Labour  Offices.  In  case  where  there  are  no  Cypriot  or  European  citizens 
available  and  capable  to  fill  the  specific  positions,  the  employer  submits  the 
special  application  form  for  employment  of  foreign  workers  duly  completed 
together with any other necessary documents. 

References  Civil 

Registry 

and 

Migration 

Department 

web 

site: 

http://www.moi.gov.cy/moi/crmd/crmd.nsf/home_en/home_en?openform# 

Cyprus  -  Employed  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved  June  14, 
2023, from https://immigration-portal.ec.europa.eu/cyprus-employed-worker_en 

Cyprus - Highly-qualified worker. (n.d.). EU Immigration Portal. Retrieved June 
14,  2023,  from  https://immigration-portal.ec.europa.eu/cyprus-highly-qualified-
worker_en 

Cyprus  -  Intra-corporate  transferee  (ICT).  (n.d.).  EU  Immigration  Portal. 
Retrieved  June  14,  2023,  from  https://immigration-portal.ec.europa.eu/cyprus-
intra-corporate-transferee-ict_en 

Cyprus  -  Seasonal  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved  June  14, 
2023, from https://immigration-portal.ec.europa.eu/cyprus-seasonal-worker_en 

EMN National Report 2017 

CZECHIA 

Key  measures 
and schemes  

The Highly Skilled Employee Programme:  

Designed  for  companies  employing  highly  skilled  workers  from  third 
countries. 

Occupations included:  professions in the main classes 1 through 3 in the 
CZ-ISCO  job  classification.  These  include  managers,  specialists,  and 
technical  and  expert  workers.  In  2021,  applications  mainly  came  from 
nationals of Ukraine, Russian Federation, China and India. 

The Simplified Employee Card 

It aims to expedite the process of hiring highly skilled foreign workers in 
occupations  experiencing  severe  labor  shortages.  Professions  where  the 
simplified  process  is  applicable  are  IT  specialists,  healthcare  workers 
(doctors,  nurses),  engineers,  and  other  fields  where  there  is  a  significant 

221 

 
 
 
  
CZECHIA 

Labour market 
test 

shortage of qualified employees in the Czech labor market 

The Skilled Employee Programme: 

Designed  for  companies  employing  medium-skilled  to  low-skilled 
employees from third countries. 

Occupations included: professions in the main classes 4 through 8 in the 
CZ-ISCO  job  classification,  such  as  drivers,  welders,  seamstresses, 
butchers,  assembly  workers,  workers  in  automotive  and  chemical 
industries, etc. 

Agencies  responsible:  Business  representation  in  the  CR  and  the 
CzechInvest agency. 

Main  source  countries  (selected):  Ukraine,  the  Philippines,  Belarus, 
Serbia, Montenegro, Moldova, Mongolia, India, and Kazakhstan. 

Annual capacity: 50,000 persons (with quotas set by country). 

The  Special  Work  Visa  for  Citizens  of  Ukraine  Working  in 
Agriculture, Food Industry or Forestry Programme 

Designed for employers seeking low-skilled and non-skilled 

workers from Ukraine. 

Occupations included: Professions in the main classes 4 through 9 in the 
CZ-ISCO  job  classification)  in  the  sectors  stated  in  the  name  of  the 
Programme. 

Annual capacity: 1,500 persons 

*Program set to end at the end of 2022 

Internship: 

Designed  for  third-country  nationals  who  are  sent  by  foreign  employers 
to  Czech  legal  entities  (typically  manufacturing  corporations)  or  natural 
persons with the aim of improving their skills and qualifications 

       Time of the visa: Maximum 6 months 

Responsible body: Regional Employment offices 

Procedure: as job vacancies are announced to the Employment Office, if 
a suitable candidate (within CZ or from other EU member states) cannot 
be  found  within  thirty  days,  the  position  is  entered  into  the  Central 
Records  of  Vacant  Employment  Positions  where  the  position  can  be 
offered to TCNs. 

Exemptions: There are no exception categories  

References 

Ministry of Industry and trade website: https://www.mpo.cz/en/ 

222 

 
 
 
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EMN National Report 2021 

EMN Country Factsheet 2021 

Summary of European Migration Network Ad-Hoc Query No. 2021.17 

https://bnt.eu/wp-content/uploads/2021/03/flyer_cizinci_en.pdf  

DENMARK 

Key measures 
and schemes  

Fast-track scheme 

For  individuals  who  already  have  a  job  offer  from  a  Danish  company 
certified  by  the  Danish  Agency  for  International  Recruitment  and 
Integration.  This  is  a  scheme  for  certified  companies  that  makes  the 
process of recruiting third-country nationals faster and more flexible. The 
permit  is  linked  to  the  job  through  which  the  permit  is  granted.  When 
losing this job it is possible to apply for a job-seeking permit under certain 
conditions.  When  changing  the  job,  the  applicant  must  submit  a  new 
application for a residence and work permit. 

Procedure:  the  employer  (with  a  power  of  attorney  granted  by  the 
employee) takes care of the application. To be eligible for this procedure, 
the employee must meet the conditions for one of the tracks. 

Pay limit track.  

A dedicated track to apply for a residence and work permit for individuals 
with offers for jobs with an income of at least 465,000 DKK per year. 

Duration:  Maximum  4  years  or  for  the  duration  of  employment.  The 
applicant also receives a 6-month job seeking a permit to look for a new 
job.  

Supplementary pay Limit track 

A dedicated track to apply for a residence and work permit for individuals 
with offers for jobs with an income of at least 375,000 DKK per year. 

Duration:  Maximum 5 years or for the duration of employment 

Positive Lists Scheme 

Targets highly educated and highly skilled workers in sectors with labour 
shortages. The list is created based on labour market monitoring and it is 
updated twice a year.  

Procedure: Part of the application is filled by the employer and another 
by the employee. 

Duration:  for  the  period  of  employment,  maximum  4  years  with  the 

223 

 
 
 
  
DENMARK 

possibility of renewing if the contract is longer. 

Special individual qualifications scheme 

For  applicants  with  special  qualifications  specifically  linked  to  the 
applicant.  Applicants  can  fall  under  the  categories  of  1)  performer  or 
artist, 2) athlete or coach, or 3) specialised chef.  There are some specific 
requirements for the different categories.  

Procedure: Part of the application is filled by the employer and another 
by the employee. 

Duration: Permit is given for a validity of 1 year at a time for the first 2 
years  (limited  by  the  length  of  the  contract).  After,  the  permit  can  be 
granted a maximum of 2 years and after 4 years, valid for a maximum of 3 
years at a time. 

Herdsmen and farm managers 

For  applicants  who  have  been  offered  an  employment  in  Denmark  as  a 
herdsman or farm manager in agriculture. This  permit cannot be granted 
for  work  as  a  farm  worker  or  mink  farm  hand  nor  for  managing  within 
horticulture or forestry.  

Condition:  Residence  permit  is  linked  to  the  job  through  which  permit 
was  granted.  Applicant  must  not  work  in  other  positions  than  the  one 
stated I the permit. 

Procedure: Part of the application is filled by the employer and another 
by the employee. 

Duration: residence and work permit valid for a maximum of 4 years at a 
time. 

Other schemes for specific situations/professions 

•  Trainees 

•  Researchers/Employed PhDs 

•  Workers on drilling rigs or ships 

•  Sideline employment (for applicants with a residence permit based 

on a job that wish to take a sideline job) 

Job portals  

  -  National 
Workindenmark  (https://www.workindenmark.dk/about) 
employment  service  connecting  international  job  seekers  with  Danish 
companies.  They  provide  information  and  digital  self-service  tools  to 
facilitate the hiring process for both parties. 

Labor Market 
Test 

NA 

224 

 
 
DENMARK 

References 

ESTONIA 

Key measures 
and schemes  

You want to apply for a work permit. (n.d.). New to Denmark. Retrieved 
https://nyidanmark.dk/en-GB/You-want-to-
14, 
June 
apply/Work 

2023, 

from 

https://visaguide.world/europe/denmark-visa/long-stay/work-visa/  

Employed worker 

Requisites:  a  temporary  residence  permit  for  employment  or  registering 
for short-term employment. 

Procedures: Applicants can request a residence permit, and this must be 
in  person  at  a  foreign  representation  of  the  Republic  of  Estonia.  The 
employer  has  the  obligation  to  contact  the  Estonian  Unemployment 
Insurance Fund to obtain permission and consent; except for certain work 
categories (see below).  

Conditions: the temporary residence permit can be refused if the annual 
immigration  quotas  are  filled.  It  is  also  a  condition  that  the  salary  is  at 
least  equal  to  the  most  recent  annual  average  gross  monthly  salary.  The 
permit for employment sets out the conditions under which the employee 
is allowed to work, and any changes should be reported to the Police and 
Border Guard Board. 

Duration:  granted  for  a  maximum  of  2  years  and  renewable  for  a  five-
year period. There is a 90-day period given when the carrier of this permit 
becomes  unemployed  (except  if  the  reason  for  the  termination  of  the 
contract is economic). 

Highly qualified worker – Top specialist 

Third  country  nationals  with  an  appropriate  professional  training  or 
experience for employment  

Requisites: Residence permit for employment 

Procedures: As an employer worker, but the permission of the Estonian 
Unemployment Insurance Fund is not necessary. 

Conditions:  Salary  for  this  category  should  be  at  least  50%  higher  than 
the  latest  annual  average  wages  in  Estonia.  There  are  also  a  number  of 
requirements the company should comply with to employ a Top specialist 
(e.g.  65,000  euros  of  equity  capital,  minimal  sales  revenue  of  200,000 
euros per year, etc…). 

A new action plan for Work in Estonia was approved by the government 
in February 2022 to attract skilled workers in the field of ICT and natural 

225 

 
 
 
  
ESTONIA 

sciences.  The  plan  was  developed  by  Enterprise  Estonia,  the  Estonian 
national  foundation  (sihtasutus)  which  aims  to  develop  economy  of 
Estonia. The plan set a goal of 3000 of skilled workers by 2025. 

Seasonal workers 

Requisites:  being  registered  for  short-term  employment  and  obtaining  a 
short-term or long-term (D) visa. 

Procedures: Employer needs to submit the registration for the short-term 
employment  for  seasonal  work  to  the  Police  and  Border  Guard. 
Application is made at the Police and Border Guard services if applicant 
has  legal  grounds  to  arrive  to  Estonia  or  at  the  Estonian  embassy  or 
consulate if applicant needs a visa to enter Estonia. 

Duration:  maximum  270  days  withing  365  consecutive  days.  Permit 
cannot be extended If the maximum period is reached. 

Conditions:  Salary  must  ensure  subsistence.  The  work  activity  must  be 
listed as an activity dependent upon season by the Government of Estonia: 

•  Crop and animal production, hunting and related service activities 

•  Fishing and aquaculture 

•  Forestry and logging 

•  Accommodation service activities 

•  Food and beverage service activities 

•  Food production 

•  Manufacture of soft drinks 

Quotas for work-related residence permits by industries for the year 
2022:  

300 in manufacturing industry 

200 in construction sector 

100 in transport and storage sector 

20 for entrepreneurship 

23 for employment in creative activities 

26 for employment in the professional activities related to sports 

5 residence permits on the basis of a treaty 

637  residence  permits  on  general  grounds  for  employment  and 
entrepreneurship. 

226 

 
 
ESTONIA 

Labor Market 
Test 

*Quota is subject to exemptions in some industries (e.g., ICT specialists). 

Responsible body: Estonian Unemployment Insurance Fund 

Procedure: 

•  The employer is required to advertise the job position in the Estonian 
Unemployment  Insurance  Fund  (EUIF)  job  portal  for  at  least  30 
calendar  days.  The  job  advertisement  should  be  in  the  Estonian 
language and meet specific requirements set by the EUIF. 

•  Once the application period ends, the employer evaluates the received 
applications  and  determines  whether 
local 
candidates available for the job position. If there are no qualified local 
candidates, the employer may proceed with the labor market test. 

there  are  suitable 

•  The EUIF reviews takes a decision on whether to grant a labor market 
test permit. This permit allows the employer to proceed with hiring a 
foreign worker. 

•  After  obtaining  the  labor  market  test  permit,  the  employer  prepares 
and  applies  for  a  residence  permit  on  behalf  of  the  foreign  worker. 
This  application  is  processed  by  the  Police  and  Border  Guard  Board 
(PPA) in Estonia. 

Exemptions: 

Religious workers, accredited journalists, teachers, academic staff, artists, 
sportsmen,  coaches,  referees,  sports  officials,  posted  workers,  people 
performing  managerial  or  supervisory  functions  of  a  legal  person 
registered  in  Estonia,  people  with  higher  education  acquired  in  Estonia, 
and employment with a start-up. 

References 

EMN National Report 2021 

Estonia  -  Employed  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  15,  2023,  from  https://immigration-portal.ec.europa.eu/estonia-
employed-worker_en 

Estonia  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal. 
https://immigration-
2023, 
15, 
Retrieved 
portal.ec.europa.eu/estonia-highly-qualified-worker_en 

from 

June 

Estonia - Seasonal worker. (n.d.). EU Immigration Portal. Retrieved June 
15,  2023,  from  https://immigration-portal.ec.europa.eu/estonia-seasonal-
worker_en 

Important  information  for  registering  short-term  employment.  (n.d.). 
Retrieved 
from 
https://www2.politsei.ee/en/teenused/working-in-estonia/registration-of-
short-term-employment/oluline-info-luhiajalise-tootamise-

2023, 

June 

15, 

227 

 
 
ESTONIA 

registreerijale.dot#hooajatoo 

Temporary  residence  permit  for  employment.  (n.d.).  Retrieved  June  15, 
2023, 
https://www2.politsei.ee/en/teenused/residence-
permit/tahtajaline-elamisluba/tootamiseks/index.dot 

from 

https://www.njordlaw.com/njord-estonia-new-immigration-quota-has-
been-introduced-apply-residence-permits 

https://estonianworld.com/business/the-estonian-government-sets-the-
2023-immigration-quota-at-1307/  

FINLAND 

Key measures 
and schemes  

There  are  different  residence  permit  applications  for  different  types  of 
work. If there is no specific residence permit application the scheme to 
use is the one for employed workers. 

There is also a fast-track service to get a residence permit in two weeks. 
Applicants can use this scheme if moving to Finland to work: 

•  As specialists 

•  As  a  specialist  or  manager  with  an  Internal  transfer  within  a 

company residence permit 

• 

In top or middle management of a company 

•  With and EU Blue Card 

•  As a start-up entrepreneur.  

Employed worker 

Requisites: residence permit for employed person. 

Procedures:  The  application  is  done  by  the  employee.  First,  the 
applicant  applies  for  a  permit  through  the  e-service  “Enter  Finland”. 
After,  the  application  continues  at  a  Finnish  diplomatic  mission  or 
consulate. Granting of the permit is subjected to a labour market test and 
analysis of workforce needs. 

Duration: normally granted for one year. 

Conditions:  In  general,  Permit  is  granted  for  a  particular  professional 
sector,  and  it  is  possible  to  change  jobs  within  this  sector.  There  are 
some cases in which the permit may be limited to a particular employer. 

Work categories that do not need a residence permit: 

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FINLAND 

The following employees will not need a residence permit: 

• 

Interpreters,  teachers,  experts  or  sports  working  in  Finland  for 
less than 3 months. 

•  Artists or sports professionals or their assistants who working in 

Finland for less than 3 months. 

•  Sailors  working  on  a  vessel  operating  in  international  waters  or 

sailing mainly between foreign ports. 

•  Permanent  employees  of  a  company  based  in  another  EU/EEA 
country  who  perform  temporary  procurement  or  subcontract 
work  in  Finland  as  long  as  they  have  valid  permits  in  the  other 
country. 

•  Forest berry pickers working in Finland for a maximum period of 

90 days. 

Highly qualified worker 

Requisites: residence permit for specialists (or an Eu Blue Card). 

Procedures:    The  application  is  done  by  the  employee.  First,  the 
applicant  applies  for  a  permit  through  the  e-service  “Enter  Finland”. 
After,  the  application  continues  at  a  Finnish  diplomatic  mission  or 
consulate.  Granting  of  the  permit  is  based  on  an  evaluation  of  1)  the 
requirements of the work, 2) means of support, and 3) other grounds for 
rejection (e.g. threat to public policy, public security, etc…). 

Duration: (For a specialist) permit first issued for two years and when 
renewed for maximum four years. 

Conditions:  In  general,  Permit  is  granted  for  a  particular  professional 
sector,  and  it  is  possible  to  change  jobs  within  this  sector.  There  are 
some cases in which the permit may be limited to a particular employer. 

International service provider 

For  a  stay  of  3  months or  less.  Under  certain  conditions,  the  employee 
might need to apply for a residence permit even for a stay of 90 days or 
less. 

Categories: Business visitors for the establishment, Short-term business 
visitors, Contractual service suppliers, independent professionals. 

*Investors:  There  not  a  specific  visa  scheme  for  investment  activity. 
Investors  must  apply  for  a  residence  permit  according  to  their  field  of 
business. 

Seasonal worker 

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FINLAND 

Permit intended for work in certain areas of agriculture and tourism that 
is  done  at  certain  times  of  the  year.  Employees  with  this  permit  are 
mostly employed in gardens, greenhouses, berry farms and forest berry-
picking  companies.    A  recent  change  in  this  work  category  is  that 
employers can now notify the Finnish Immigration Service of more than 
one seasonal employee at a time. 

Requisites:  

For less than 3 months: 

For applicants that need a visa to enter Finland: seasonal work visa 
(to submit by applicant at the Finnish diplomatic mission or consulate in 
country of origin). 

For  applicants  that  do  not  need  a  visa  to  enter  Finland:  seasonal 
work  certificate  (to  submit  by  applicant  at  the  Finnish  Immigration 
Service). 

For 3 to 9 months: 

Applicants  must  apply  for  a  seasonal  work  permit  (to  submit  by 
applicant via the e-service “Enter Finland” and finalize it at the Finnish 
diplomatic mission or consulate in the country of origin). 

For 6-9 months: 

Permit processed in two stages: 

•  The  Employment  and  Economic  Development  Office  makes  a 
preliminary  decision  considering  the  labour  force  availability  in 
Finland or withing the EU/EEA (labour market test) and conditions 
of employer and employee. 

•  Final decision is taken by the Finnish Immigration Service. 

Duration: maximum 9 months  

Conditions:  permit  is  tied  to  the  employer  referred  in  the  certificate  or 
residence permit. 

Other work visa categories 

Categories  exempted  from  applying  for  a  residence  permit  for  an 
employed person or for the entrepreneur permit:  

•  Research work  completed in Finland:  specific scheme for people 
that  completed  research  work  in  Finland  and  have  a  job,  pursue  a 
trade or engage in business activities in Finland.  

•  Degree completed in Finland: specific scheme for people that have 
studied a degree in Finland and have a job, pursue a trade or engage 

230 

 
 
FINLAND 

in business activities in Finland.  

Job Seeking permit: Scheme for applicants that had a residence permit 
for studies or research within the last 5 years and want to look for work 
or start a business in Finland. The maximum duration of this permit is 2 
years. 

Sector specific visa schemes: 

•  Employee of a religious community 

•  Work in the field of culture or arts 

•  Work in the field of mass media 

•  Athlete, coach or trainer 

•  Consultant 

•  Visiting teacher, lecturer or instructor 

•  Delivery of a machine or a system 

Other categories: 

•  Working holiday 

•  Au pair 

•  Volunteering visa 

• 

• 

Internship visa 

Intra/inter corporate transfer 

•  Preparation of a company’s arrival in Finland and supervision 

of orders 

•  Top and middle management 

• 

• 

International organisations and cooperation between states 

Intergovernmental agreement 

Projects related to work migration 

Research on labour migration by the government 

•  The  government  published  a  report  on  a  fast-acting  measure  to 
ensure the availability of skilled labour where they analysed causes 
of labour shortage and outline potential solutions.  
In  2021  the  Ministry  of  Economic  Affairs  and  Employment  started 
its participation in a research project to find out how to make Finland 

• 

231 

 
 
 
FINLAND 

Labor Market 
Test 

References 

more attractive among international experts.  

Talent Boost Project:  National project to attract international talent and 
increase labour migration to Finland. 

Roadmap  for  education-based  and  work-based  migration  2035:  a 
long-term action plan to double the number of specialists, entrepreneurs, 
researchers,  and  triple  the  number  of  students  migrating  to  Finland. 
Some  of  the  measures  in  this  plan  include  making  the  immigration 
process easy. 

Project  to  speed  up  and  streamline  the  processing  of  work-based 
and residence permits.  The goal  by 2023 is  to  issue these permits for 
students  within  a  month  and  for  specialists,  and  start-up  entrepreneurs 
(and their families) within two weeks. 

Responsible body: Immigration Service  

Exemptions : occupations in shortage 

About  the  service.  (2023,  February  6).  Job  Market  Finland.  Retrieved 
June 15, 2023, from https://tyomarkkinatori.fi/en/info/about-the-service 

About  us  -  Work  in  Finland.  (n.d.).  Retrieved  June  15,  2023,  from 
https://www.workinfinland.com/en/about-us/ 

EMN National Report 2021 

Finland 
https://immigration-portal.ec.europa.eu/finland-employed-worker_en 

-  Employed  worker. 

Immigration  Portal. 

(n.d.).  EU 

Finland  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
portal.ec.europa.eu/finland-highly-qualified-worker_en 

2023, 

from 

June 

15, 

Finland  -  International  service  provider.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
portal.ec.europa.eu/finland-international-service-provider_en 

2023, 

from 

June 

15, 

Finland  -  Seasonal  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  15,  2023,  from  https://immigration-portal.ec.europa.eu/finland-
seasonal-worker_en 

Finland  -  Self-employed  worker.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
15, 
portal.ec.europa.eu/finland-self-employed-worker_en 

2023, 

from 

June 

Open  jobs  -  Work  in  Finland.  (n.d.).  Retrieved  June  15,  2023,  from 
https://www.workinfinland.com/en/open-jobs/ 

Residence  permits  on  the  basis  of  work.  (n.d.).  Website  of  the  Finnish 
from 
Immigration 

Retrieved 

Service. 

2023, 

June 

15, 

232 

 
 
FINLAND 

FRANCE 

Key  measures 
and schemes  

https://migri.fi/en/coming-to-finland-for-work/applications 

Employed workers 

Requisites: Work permit and residence permit  

Procedure:  Candidates  with  a  permanent  contract  (CDI)  and  a  fixed-
term  contract  (CDD)  must  have  their  contract  approved  by  the 
competent department for foreign labour. It is the employer that applies 
for  the  work  permit.  Once  approved  they  can  apply  for  a  residence 
permit  in  the  French  consulate  in  their  country  of  origin.  If  the 
employment  contract  does  not  exceed  or  is  equal  to  90  days  and  is 
related  to  a  list  of  activities378,  applicant  may  be  exempted  from 
requesting an authorization to work. 

Duration depends on the duration of the employment contract:  

•  A short-stay visa with a maximum validity of 90 days in a period of 

180 days.  

•  A  long  stay  visa  equivalent  to  12  months  maximum  with  the 
statement  “salarié”  for  permanent  employment  contracts  and 
“travailleur temporaire” for fixed-term contracts. 

Conditions: The employment situation (based on a labour market test) 
may be invoked to refuse issuance of a work permit, except for jobs in 
high demand included in the list of the shortage occupation issued at 
the  national  level  by  the  French  authorities.  There  are  also  bilateral 
agreements (e.g. with Benin, Congo, Gabon, etc..) that modify the list 
of jobs that can be filled by nationals from these countries. 

Talented workers  

Categories: qualified or highly qualified worker, innovative employer, 
researcher  or  responsible  for  a  higher  education  organization,  intra-
corporate  transferee,  performer,  artist,  author,  and  worker  with  a 
national or international reputation. 

Requisites:  a  “passport  talent”  residence  permit  (with  the  mention 
“EU Blue Card” for highly qualified employees).  

Procedure:  If  legally  residing  in  France  applicants  can  apply  two 
months  before  their  permit  expires.  If  the  applicant  resides  outside 
France,  they  must  apply  for  a  long-stay  visa  in  a  French  consulate  in 

378  

https://france-visas.gouv.fr/en/salaried-employment  

233 

 
 
 
  
 
FRANCE 

their country of origin. Application for a “Talent passport” is initiated 
on  the  official  France-visas  website.  Applicant  must  certify  their 
the  applicant  may  vary 
qualifications.  Documents  required  for 
depending on the category of the area of talent. 

Duration: minimum stay o 3 months and granted for up to 4 years and 
it is renewable.  

Conditions:  Third-country  nationals  can  be  issued  a  “passport  talent” 
if:  

1)  They  are  a  highly  qualified  employee  in  an  innovative  enterprise 

being transferred to a branch in France. 

2)  They are nationally or internationally recognised in an activity they 

are engaged in France. 

3)  If they are engaged in creative or artistic work.  

*This type of permit is not subjected to a labour market test.  

Seasonal workers 

Granted  for  seasonal  workers  in  the  areas  such  as  agriculture  and 
tourism.  

Requisites:  seasonal  worker  permit,  a  multi-year  residence  permit 
bearing the statement “seasonal  worker” and a long-stay visa with the 
statement “seasonal worker”.  

Procedure: Employer applies for a work permit to the French authority 
responsible  for  foreign  labour.  This  permit  is  subjected  to  a  Labour 
market test. 

Duration: Issued for a period of 3 years and it is renewable. Workers 
cannot  work  for  more  than  6  months  within  a  consecutive  12-month 
period. They must maintain their habitual residence outside France. 

Conditions: Workers may take different successive contracts provided 
they  do  not  exceed  the  limit  of  6  months  worked  within  a  12-month 
period. However, all employers will have to request a work permit.  

Exceptions:  There  are  certain  exceptions  to  the  requirements  for  this 
permit  stablished  by  bilateral  agreements  signed  between  France  and 
some  non-EU  countries  (e.g.  the  Franco-Algerian  Agreement).  These 
agreements simplify the recruitment procedure. 

International service providers 

Requisites depend on the duration of the stay: 

•  For  stays  of  90  or  less  days  within  a  6-month  period:  a  short  stay 

234 

 
 
FRANCE 

visa is necessary but not a residence permit.  

•  For stays over 90 days: a long-term visa.  

*Depending on the category, other required documentation may vary. 

Categories:  Business  visitors  for  establishment  purposes,  Short-term 
business  visitors  (period  of  90  days  or  less  in  6  months),  Contractual 
service suppliers 

Categories  exempted  from  applying  for  a  work  permit:    Business 
visitors  for  establishment  purposes  (BVEPs),  Short-term  business 
visitors,  

Young workers 

There are special and more favourable provisions for young employees 
from countries with a bilateral agreement with France. 

Requisites: Work permit and a long-stay visa 

Procedure:  Employer  starts  a  work  permit  application  and  applicant 
continues it at  the delegation of the "Direction de l'Office Français  de 
l'Immigration et de l'Intégration" in their country of origin. 

Conditions:  to  be  eligible  for  this  permit  the  country  of  origin  of  the 
applicant  must  have  a  signed  agreement  with  France.  Applicant  must 
also  have  already  work  experience  and  meet  the  age  conditions 
indicated in the agreement.  

Other  visa  schemes  with  specific  conditions  according 
professions 

to 

Language assistant  

Foreign language reader/ teacher / repeater  

Modelling  

Medical profession  

Airline crew 

Professional internships (paid) 

Associate intern doctor or pharmacist 

Nursing internship 

Observer internship 

Updates on key measures and migration schemes (2021) 

The government is taking a general strategy to simplify and reform the 
employment of foreign  workers. Some of the changes implemented in 

235 

 
 
FRANCE 

2021 are: 

•  Work permit requests are now only done online. 

•  The list of jobs and employment open to third-country nationals 

was updated. 

•  The situation of employment or the absence of prior job search 
of candidates already present in the employment market is not 
anymore,  an  obstacle  to  request  a  work  permit  for  a  third-
country  national  in  an  occupation  included  in  the  list  of  jobs 
facing recruitment difficulties. 

Work permits 

•  There  are  20  categories  of  foreign  nationals  exempted  from 

work permits.  

•  Procedure:  request  is  made  by  the  employer  to  recruit  the 

employee under one of the contract categories. 

•  Type of permit and associated type of contract: 

o  Employee residence permit: Permanent contract (CDI) 

o  Temporary  worker 
contract (CDD) 

residence  permit:  Fixed-term 

o  Seasonal residence permit: Seasonal contract 

Bilateral labour migration agreements 

•  A  bilateral  agreement  with  India  for  migration  and  mobility 
to  develop 
two  countries.  The  purpose 

between 
cooperation and fight illegal immigration. 

the 

is 

•  A  bilateral  agreement  with  Peru  and  Ecuador  to  implement  a 
“working  holiday”  programme.  This  is  a  programme  designed 
for  people  between  18  and  30  for  a  maximum  stay  of  122 
months  to  be  in  France  for  a  holiday  with  the  possibility  of 
working.  France  has  this  type  of  programme  with  around  15 
countries.  

A bilateral agreement with Kenya to promote mobility and exchange of 
skills and talents. 

Responsible body: Pole Emploi 

Required for employed workers permit and for seasonal workers. 

Exemptions:  applicants  of  passport  talent;  categories  exempted  under 
international agreements 

236 

Labour  Market 
Test  

 
 
FRANCE 

References 

EMN National Report 2021 

France  -  Employed  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  21,  2023,  from  https://immigration-portal.ec.europa.eu/france-
employed-worker_en 

France  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal. 
https://immigration-portal.ec.europa.eu/france-highly-qualified-
worker_en 

France  -  International  service provider.  (n.d.). EU  Immigration Portal. 
Retrieved 
https://immigration-
portal.ec.europa.eu/france-international-service-provider_en 

2023, 

from 

June 

21, 

France  -  Seasonal  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  21,  2023,  from  https://immigration-portal.ec.europa.eu/france-
seasonal-worker_en 

French  Government.  (n.d.).  Visa  For  Professional  Purpose.  Retrieved 
June  21,  2023, 
from  https://france-visas.gouv.fr/en/web/france-
visas/professional-purpose 

GERMANY 

Key measures 
and schemes  

Efforts to facilitate work immigration. 

Skilled migration 

Since  2012,  there  have  been  efforts  to  facilitate  immigration  for 
academic highly skilled workers. In 2013 these efforts were extended to 
include  non-academic  workers  with  professional  qualifications  in 
understaffed occupations. Some elements of this strategy are:   

•  Recognition legislation: Legislation to improve the assessment and 
recognition  of  professional  qualifications  obtained  abroad  entered 
into effect in 2012. These changes in legislation have had a positive 
effect on the employment and income rate of immigrants. However, 
further  improvement  is  needed.  The  new  skilled  labour  strategy  of 
the  federal  government  points  out  that,  compared  to  the  overall 
population, immigrants are more likely to have jobs below their skill 
level.  

•  The Skilled Immigration Act: One of the most important changes 
introduced  by  this  act  is  the  concept  of  “skilled  worker”  which 
unifies  under  one  category  applicants  with  vocational  training  and 
university  graduates.  This  also  includes  changes  to  reduce  the 
administrative  procedure  before  the  arrival  of  skilled  workers  to 
Germany  as  well  as  for  trainees  and  those  wishing  to  complete  a 

237 

 
 
 
  
GERMANY 

qualification.  This act also eliminated shortages as a determinant for 
the entry of skilled workers. 

Immigration of low-qualified workers 

There  are  still  limited  opportunities  for  low-qualified  workers  to 
immigrate to Germany. Some of the instruments recently introduced are:  

•  Western Balkans Regulations: Introduced in 2016, new regulations 
opened a migration channel to Germany for people from the Western 
Balkans  (i.e.  Albania,  Bosnia  and  Herzegovina,  Kosovo,  North 
Macedonia,  Montenegro  and  Serbia).  This  regulation  also  makes  it 
possible for people in these countries to migrate with a job offer and 
without the need to prove their qualification or language skills. Until 
2023, there is an annual quota of 25,000 workers.  According to the 
government’s  coalition  agreement  and  new  skilled  labour  strategy, 
the Regulation is to be made permanent. Although this policy seems 
to have positive outcomes, the long wait for visas is criticised.  

•  Bilateral recruitment agreements for seasonal workers: Germany 
has  this  type  of  agreement  with  Georgia  and  Moldova.  The 
agreement with Georgia is in place since 2020 Georgia for seasonal 
migrants in the agricultural sector to stay for 90 days within a 180-
day  period.  The  number  of  permits  granted  under  this  scheme  is 
5,000  (as  of  2023),  but  far  fewer  seasonal  workers  migrated  to 
Germany. The agreement with Moldova was concluded in 2021 for 
the harvest season of 2022. 

Recent Development and Reform efforts 

In 2021, Germany’s coalition government announces a shift in German 
migration and integration policy. Some of the intended key shifts are: 

• 

Introducing  an  “opportunity  card”  based  on  points  to  facilitate 
access to the German labour market for skilled workers even without 
a  job  offer.  This  would  introduce  a  supply-oriented  pillar  to  the 
mainly demand-oriented labour migration system. 

•  Expanding the EU Blue Card to non-academic occupations 

•  Removing time limits in existing labour migration. 

•  Speeding up visa processes  

•  Lowering obstacles to recognition of qualifications. 

Some  of  the  advances  on  these  objectives  are  for  example  the  new 
white papers on skilled labour immigration that stipulates legislative 
changes  to  simplify  recruitment  and  entry  of  workers  from  third 
countries.  

238 

 
 
GERMANY 

General information for visa schemes 

•  Procedure  for  visa  application:  First,  the  applicant  applies  for  a 
visa  to  enter  Germany  (except  for  nationals  from  some  countries), 
upon arrival,  the  applicant  applies  for the  relevant  residence permit 
based on the type of work they intend to pursue. 

•  Approval  from  the  German  Federal  Employment  Agency  is  a 
process  where  this  agency  evaluates  if  the  employment  conditions 
such  as  salary  and  working  hours  are  comparable  to  those  of 
domestic employees. 

Visa schemes 

Qualified professionals 

Requirements: Residence permit for taking up qualified employment. 

Conditions:  Applicants  must  have  a  job  offer  in  Germany  or  an 
employment  contract  according  to  their  qualifications.  Approval  for 
employment  by  the  Federal  Employment  Agency  is  required.  Any  job 
changes during the first two years of employment must be approved by 
the German Foreigner Authority 

Duration:  issued  for  a  maximum  of  4  years.  For  shorter  working 
periods the permit is issued for the duration of the contract. After 4 years 
applicants may be entitled to a settlement permit (permanent residence 
title). 

Highly skilled worker 

Requirements: EU Blue Card 

Conditions:    Applicant  must  have  a  job  offer  in  Germany  or  an 
employment contract with a minimum salary of at least EUR 58,400 or 
EUR 45,552 for STEM professions (as of 2023). Applicant must have a 
recognize/comparable  academic  degree.  Approval  for  employment  by 
the Federal Employment Agency is required. 

Duration: issued for the duration of the work contract and an additional 
3 months (maximum 4 years). Extending the validity of the EU Card is 
possible. After 33 months (or 21 moths with proof of minimum level of 
German  language  skills)  applicants  may  be  entitled  to  a  settlement 
permit (permanent residence title). 

IT Professionals 

Scheme  to  facilitate  work  visa  applications  for  IT  professionals  with  a 
job offer. 

Possible  residence  permits:  Residence  permit 
for  qualified 
employment,  Blue  Card  EU,  Residence  permit  for  other  employment 

239 

 
 
GERMANY 

(for applicants with at least 3 years of work experience). 

Jobseekers 

For  jobseekers  with  vocational  or  academic  training  recognised  in 
Germany.  Holders  of  this  permit  may  work  on  trial  for  up  to  10  hours 
per week. 

Requirements: visa for the purpose of looking for a job 

Conditions:  For  applicants  with  vocational  training  proof  of  German 
language  skills  is  a  requisite  (at  least  level  B1).  Applicants  must  show 
proof of being able to cover costs of living. 

Duration: may be issued for up to  6 months without the possibility of 
extension.  It  is  possible  to  re-apply  for  this  permit  once  applicant  has 
spent  an  equal  duration  abroad  as  the  time  spent  in  Germany  while 
seeking employment. 

Recognition of qualification 

Scheme  for  applicants  with  qualifications  not  fully  recognised  by  the 
competent authorities due to some qualifications missing. Third country 
nationals registered in a qualification programme in Germany to acquire 
the  missing  skills  may  apply  for  this  permit.    For  applicants  in 
unregulated professions, it is also  possible to  acquire the missing skills 
by  working  as  a  skilled  worker  in  the  intended  profession  (no  time 
restriction); a job offer and training plan is needed.  

Requirements:    Residence  permit  for  the  purpose  of  recognition  of 
foreign professional qualifications. 

Conditions: To apply, applicants need a recognition certificate, A2 level 
of  German  language  skills,  proof  of  enrolment  in  a  qualifying  training 
program,  and  proof  of  financial  means.  It  is  possible  to  work  while 
completing the qualification programme (for up to 10 hours).  

Duration:  issued  for  up  to  18  months.  Under  certain  conditions  it  is 
possible to extend the permit for 6 more months (e.g. to retake an exam). 

Seasonal workers 

Most seasonal workers in Germany are from EU countries, thus there is 
little need for workers from third counties.  There are some agreements 
with  specific  conditions  for  seasonal  migration  for  workers  from 
Georgia and Moldova. 

Other schemes by profession: 

•  Professional drivers 

•  Artists 

240 

 
 
GERMANY 

•  Language teachers 

•  Athletes and coaches 

Labor market 
test 

Responsible  body:  Federal  Employment  Agency  (Bundesagentur  für 
Arbeit) 

Procedure:  Germany  generally  required  a  labor  market  test,  known  as 
Vorrangprüfung, for non-EU workers applying for work permits. 

•  The  employer  must  advertise  the  job  vacancy  in  Germany's  public 
job portal and/or other suitable platforms for a specific duration. The 
advertisement  should  provide  sufficient  details  about  the  position 
and its requirements 

•  After the job advertisement, a waiting period of usually four weeks 
is observed to allow local or EU candidates to apply for the position. 
During  this  time,  the  Federal  Employment  Agency  (Bundesagentur 
für Arbeit) assesses whether there are suitable local or EU candidates 
available for the job. 

•  The Employment Agency evaluates the applications received during 
the  waiting  period.  They  assess  whether  there  are  any  local  or  EU 
candidates who meet the job requirements and could  potentially fill 
the  position.  If  suitable  candidates  are  found,  the  labor  market  test 
may result in the rejection of the non-EU worker's application. 

•  The  Employment  Agency  informs  the  employer  of  the  outcome  of 
the labor market test. If no suitable local or EU candidates are found, 
the  employer  can  proceed  with  the  employment  of  the  non-EU 
worker. 

Exemptions: 

•  Highly  skilled  workers  with  recognised  qualifications,  such  as 
professionals  in  the  fields  of  science,  technology,  engineering,  and 
mathematics (STEM). 

• 

• 

Individuals with specific job offers meeting certain salary thresholds. 

Individuals  applying  for  the  EU  Blue  Card,  which  is  a  work  and 
residence permit for highly qualified professionals. 

References 

EMN National Report 2017   

Types of visa. (2023, May 3). Make It in Germany. Retrieved June 22, 
2023, from https://www.make-it-in-germany.com/en/visa-residence/types  

Germany  -  Seasonal  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 

241 

 
 
 
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GREECE 

Key measures 
and schemes  

June  22,  2023,  from  https://immigration-portal.ec.europa.eu/germany-
seasonal-worker_en 

Angenendt, S., Knapp, N., & Kipp, D. (2023). Germany is Looking for 
Foreign  Labour  How  to  make  recruitment  development-orientated, 
Papers. 
sustainable 
https://doi.org/10.18449/2023RP03 

Research 

SWP 

fair. 

and 

General procedure 

In  general,  to  start  the  visa  procedure,  the  applicant  must  find  an 
employer who contacts the competent agency to invite the employee to 
the  country.  Procedures  based  on  invitation  are  dependent  on  the 
quotas set every two years by region and specialty jobs. These quotas 
may increase up to 10% to meet any contingencies. 

Legal documents allowing work migration: 

a) Visa with the right to work  

b) Residence permits with right to work. 

c) Certificate of submission of supporting documents for the issue of a 
residence permit with the right to work. 

Employed worker 

Requisites: a national visa for employment and a residence permit for 
employment. 

Procedure:  employers  apply  to  the  Decentralised  Administration  of 
their place of residence. Remuneration in the contract must amount to 
at  least  that  of  an  unskilled  worker  and  a  tax  certificate  as  proof  of 
ability  to  pay  this  salary.  This  permit  may  only  be  granted  if  the 
specialization is included in the quotas list and the number of allowed 
permits  has  not  yet  been  covered.  Application  of  the  permit  is  then 
continued by the employee. 

Duration:  minimum  one  year,  first  granted  permit  is  valid  for  two 
years and can be renewed for three years.  

Conditions: It is possible to change employment during the validity of 
the  initial  residence  permit  as  long  as  work  remains  in  the  same 
specialization for which the permit was issued. 

An employment contract is not necessary or the renewal of a residence 
permit. For permit renewal, the applicant must have completed all the 
tax  obligations,  to  have  a  minimum  number  of  wages  at  the  relevant 

242 

 
 
 
  
GREECE 

insurance organization and to have a valid health insurance certificate. 

Highly qualified worker 

Requisites: EU blue card 

Procedure: same procedure of volumes of admission as for employed 
workers. 

Duration: valid for 2 years. For shorter contracts, the EU Blue Card 
corresponds to the duration of the contract plus three months. A new 
application for an EU blue card is necessary for renewal. 

Conditions:  duration  of  the  contract  must  be  for  at  least  a  year; 
remuneration  should  be  50%  higher  than  the  average  cross  annual 
remuneration  in  Greece.  For  regulated  professions  all  relevant 
prerequisites must be fulfilled. For unregulated professions, applicant 
must  prove  high-specialised  professional  qualifications.  Quotas  for 
this permit also apply. Unemployment is not a reason for withdrawing 
the EU Blue Card except if the period of unemployment exceeds three 
months.  

Seasonal worker 

General procedure: the employer must start the application with the 
Residence Permit Offices of the Decentralised Administration with the 
territorial  jurisdiction  of  the  place  of  work.  If  the  employer  does  not 
fulfil  all  their  legal  obligations  (e.g.  social  security,  taxation,  labour 
rights,  employment  conditions,  etc..)  seasonal  work  visa  may  not  be 
granted or revoked. There is a maximum number of permits for third-
country nationals issued every year. 

Seasonal work in the agricultural and livestock sector. 

Duration: can be issued for working up to 9 months in a period of 12 
months. Can be extended for up to 5 years. 

Conditions: The employer must provide the employee with a suitable 
accommodation  that  satisfies  the  health  and  safety  standards.  If  rent 
must  be  paid  by  the  employee,  the  employer  should  provide  a  rental 
agreement.  The amount  of rent  is proportional  to the worker’s salary 
and  quality  of  accommodation.  If  seasonal  worker  has  their  own 
accommodation,  employer  must  provide  the  agency  of  Decentralised 
Administration proof of this  

Seasonal work for fishermen 

Duration:  This  permit  may  be  issued  for  a  maximum  of  11  months, 
limited  exclusively  to  the  specific  employment  through  which  the 
permit is granted. 

243 

 
 
GREECE 

Other cases 

Visas  to  work for a short period of time may also be  issued to third-
country  nationals  providing  a  service,  leaders  of  organised  tourism 
groups (tour leaders), athletes, coaches, and others. 

Self-employment worker 

Work  permits  for  applicants  wanting  to  invest  in  Greece  or  for  the 
purpose of independent activities. 

Requirements: a visa 

Conditions: among other documents, applicants must include in their 
application a business plan and proof of financial resources of at least 
250,000 euros in capital. 

Duration:  for  independent  economic  activities  it  is  granted  for  2 
years. For investment activities it is granted for three years. 

Labor Market 
test 

Responsible  body:  Greek  Manpower  Employment  Organization 
(OAED) 

Requested for employed worker permit  

Exemptions: 

-  High-demand professions or occupations where there is a shortage 
of  qualified  local  or  EU  candidates  (healthcare,  information 
technology,  engineering,  construction,  hospitality  and  tourism, 
agriculture, and other sectors of strategic importance to the Greek 
economy). 

References 

EMN National Report 2019 

Greece  -  Employed worker.  (n.d.). EU  Immigration  Portal.  Retrieved 
June  21,  2023,  from  https://immigration-portal.ec.europa.eu/greece-
employed-worker_en 

Greece  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
portal.ec.europa.eu/greece-highly-qualified-worker_en 

2023, 

from 

June 

21, 

Greece  -  Self-employed  worker.  (n.d.).  EU  Immigration  Portal. 
Retrieved 
https://immigration-
portal.ec.europa.eu/greece-self-employed-worker_en 

2023, 

from 

June 

21, 

Ministry  of  Labour  and  Social  Affairs.  (n.d.).  Legislative  framework 
for  the  access  of  third-country  nationals  to  the  labour  market  for 
seasonal 
from 
https://ypergasias.gov.gr/en/brexit-2/legislative-framework-for-the-
access-of-third-country-nationals-to-the-labour-market-for-seasonal-

Retrieved 

work. 

2023, 

June 

21, 

244 

 
 
GREECE 

work/ 

Ministry of Labour and Social Affairs. (n.d.). Work for third country 
nationals 
from 
https://ypergasias.gov.gr/en/labour-relations/individual-employment-
relations/work-for-third-country-nationals-in-greece/ 

in  Greece  Retrieved 

2023, 

June 

21, 

HUNGARY 

Key 
measure
s and 
schemes  

General terms and procedures 

General single application procedure 

This procedure applies if the purpose of stay is:  

•  Pursuing gainful employment 

•  Being employed as a highly skilled worker holding EU Blue Card 

•  Being employed while staying in Hungary as a family member of a non-EU 

national 

•  Being employed while holding a residence permit issued for humanitarian 

reasons 

Application  for  a  single  permit  can  be  done  at  the  Hungarian  embassy  or 
consulate  in  country  of  origin  or  from  Hungary  in  case  applicant  is  legally 
residing  in  Hungary.  The  regional  directorate  of  the  immigration  authority  in 
Hungary  assesses  the  application  considering  the  opinion  the  competent 
employment  centre.  A  labour  market  test  is  conducted  (unless  exceptions 
apply) by the competent branch office of the employment centre.  

General work permit procedure 

When a single application does not apply, the employer has to submit a work 
permit application to the competent employment centre through a standardised 
form. Unless exceptions apply, issuing this permit depends on a labour market 
test. Once the work permit has been obtained, the applicant needs a residence 
permit and a visa to enter to Hungary (unless exempt from this requirement). In 
the  case  of  a  preferred  employer,  application  to  the  residence  permit  may  be 
done by the employer as well.  

Duration:  issued  for  maximum  2  years,  renewable  for  the  same  period 

245 

 
 
 
  
HUNGARY 

occasionally. 

*There are some exemptions from work permit obligations (e.g. directors of a 
branch  office,  diplomatic  staff,  employees  in  an  international  organization 
established under an international convention, etc..379) 

Preferred employer 

Preferred employers are defined as follows: 

•  An  employer  has  signed  a  strategic  partnership  agreement  with  the 

Government 

•  Any employer that plans to employ in Hungary a third-country national 
from  a  country  neighbouring  Hungary  in  any  of  the  professions 
provided for in a communication by the Hungarian Minister responsible 
for employment 

•  Any employer listed in the register of qualified employment agencies 

•  Any  employer  who  implements  an  investment  project  of  preferential 

status for national economy considerations 

Preferred  employers  may  initiate  (with  the  consent  of  the  employee)  the 
following procedures:  

•  Residence permit for the purpose of employment, 

•  EU Blue Card 

•  The  issue  or  extension  of  a  residence  permit  for  the  purpose  of  intra-

corporate transfer, 

•  Application  for  residence  permit  for  the  family  members  of  these 

foreign nationals 

Visa schemes 

Job search  

Applicants of this permit are eligible if a) they have completed research activity 
in Hungary or b) if they have successfully completed their studies in Hungary. 
They  can  use  this  permit  to  search  for  a  job  or  to  set  up  a  business,  these 
activities must correspond to the level of studies completed. 

Requirement: job-searching permit 

Procedure:  the  applicant  can  initiate  the  procedure  online  through  the 
electronic platform of the immigration authority. 

379  

Full list is set out in Government Decree No. 445/2013. (XI. 28.). 

246 

 
 
 
HUNGARY 

Duration: may be issued for up to 9 months and may not be extended. 

Employment  

Applicants  of  this  permit  are  eligible  if  a)  their  purpose  of  residence  is  to 
perform  work  for  or  under  the  direction  and/or  supervision  of  others,  for 
remuneration,  under  an  employment  relationship;  or  b)  they  perform  work  as 
the owner or executive officer of a for-profit business association, co-operative 
society or some other legal entity, in addition to the work actually performed in 
that capacity. 

Requirement:    a  single  permit  or  if  single  application  procedure  does  not 
apply, a work permit (unless exempt) and a residence permit or long-stay visa. 

Single application procedure or work permit procedure 

Duration: issued for maximum 2 years and may be extended for an additional 
two years at a time.  

Conditions:  Permit  is  tied  to  the  specific  employer  through  which  permit  is 
granted. In case of unemployment a new application for a residence permit has 
to be introduced.  

EU Blue Card 

Requirements: EU Blue Card 

Single application procedure or work permit procedure 

Conditions:  The government is entitled to set the maximum number of non-
EU citizens who can be employed with an EU Blue Card in Hungary at any one 
time. Permit is tied to the specific employer through which permit is granted. In 
case  of  unemployment  a  new  application  for  a  residence  permit  has  to  be 
introduced.  

Duration:    issued  for  at  least  one  year  and  four  years  maximum.  For  shorter 
contracts,  the  EU  Blue  Card  corresponds  to  the  duration  of  the  contract  plus 
three months. A new application for an EU blue card is necessary for renewal. 
Permit may be extended by four additional years at a time. 

Seasonal employment 

In Hungary seasonal employment covers work in cultivation of plants, animal 
husbandry and fishing, 

Requirements:  seasonal  work  permit  and  a  seasonal  employment  long-stay 
visa. 

Single application procedure  

Conditions:    Permit  is  tied  to  the  specific  employer  through  which  permit  is 
granted. In case of unemployment a new application for a residence permit has 

247 

 
 
HUNGARY 

to be introduced. 

Labor 
market 
Test 

Referen
ces 

Duration: issued for maximum 6 months and may be  extended by maximum 6 
additional months within a 12-month period. 

Responsible body: Hungarian Labor Office (Munkaügyi Központ) 

Employers  carry  out  a  labour  market  test,  advertising  the  position  with  the 
Hungarian labour office for 15 to 60 days. 

Hungary - Employed worker. (n.d.). EU Immigration Portal. Retrieved June 22, 
2023, 
https://immigration-portal.ec.europa.eu/hungary-employed-
worker_en 

from 

Hungary  -  Highly-qualified  worker.  (n.d.).  EU  Immigration  Portal.  Retrieved 
June  22,  2023,  from  https://immigration-portal.ec.europa.eu/hungary-highly-
qualified-worker_en 

Hungary - Seasonal worker. (n.d.). EU Immigration Portal. https://immigration-
portal.ec.europa.eu/hungary-seasonal-worker_en 

National  Directorate-General  for  Aliens  Policing.  (2022,  December  30). 
Information  for  preferred  employers.  Retrieved  June  22,  2023,  from 
http://oif.gov.hu/index.php?option=com_k2&view=item&layout=item&id=124
5&Itemid=1808&lang=en 

National  Directorate-General  for  Aliens  Policing.  (2023,  February  17). 
Residence  Permit  for  the  Purpose  of  Job-searching  or  Entrepreneurship. 
from 
Retrieved 
http://oif.gov.hu/index.php?option=com_k2&view=item&layout=item&id=123
2&Itemid=1798&lang=en 

2023, 

June 

21, 

National  Directorate-General  for  Aliens  Policing.  (2023a,  January  17). 
Residence  Permit  for  the  Purpose  of  Employment.  Retrieved  June  22,  2023, 
from 
http://oif.gov.hu/index.php?option=com_k2&view=item&layout=item&id=62
&Itemid=816&lang=en 

National Directorate-General for Aliens Policing. (2023a, January 4). EU Blue 
from 
Card. 
http://oif.gov.hu/index.php?option=com_k2&view=item&layout=item&id=58
&Itemid=812&lang=en 

Retrieved 

2023, 

June 

22, 

National  Directorate-General  for  Aliens  Policing.  (2023c,  January  17). 
Residence Permit for the Purpose of Seasonal Employment. Retrieved June 22, 
2023, 
from 
http://oif.gov.hu/index.php?option=com_k2&view=item&layout=item&id=69
&Itemid=823&lang=en 

248 

 
 
 
IRELAND 

Key measures 
and schemes  

Ireland has nine employment permit types that cover a wide variety of 
labour migrants. 

Critical Skills Employment Permit (CSEP): an employment permit 
aimed at attracting highly skilled workers critical to growing Ireland’s 
economy  as  determined  by  high  demand,  high  skill,  and  significant 
shortage of supply in the Irish labour market 

•  Eligible  occupations  are  determined  by  analysis  by  the  Expert 
Group  on  Future  Skills  Needs  and  are  published  to  the  Critical 
Skills Occupations List 

•  Some professions within the Critical Skills Occupations List have 

quotas 

•  No Labour Market Needs Test needed for these occupations 

•  Dependants,  recognised  partners,  or  spouses  of  Critical  Skills 
Employment Permits are allowed to also apply for an employment 
permit  through  the  Dependant/Partner/Spouse  Employment 
Permit (DPS EP) 

General  Employment  Permit  (GEP): 
intended  for  all  other 
occupations  that  are  not  covered  in  the  Critical  Skills  Employment 
Permit (CSEP) 

• 

In  most  cases  requires  a  Labour  Market  Needs  Test  on  the  Irish 
and EEA labour market 

•  Further  criteria  exist  on  annual  remuneration  and  the  prospective 

employees’ qualifications. 

The  Ineligible  Occupations  List  (IOL):  There  also  exists  an 
occupation list for which employment permits are not granted. These 
are generally lower skilled occupations  for which there  are sufficient 
resources within Ireland or the European Economic Area (EEA).  

Intra-Company  Transfer  Employment  Permit  (Intra-CT  EP): 
aimed at facilitating the mobility of staff of international companies 

•  The  following  types  of  employees  are  allowed  to  apply  senior 
management,  key  personnel,  and  personnel  participating  in  a 
training programme 

Contract for Services Employment Permit: a scheme for non-EEA 
employees  to  work  for  a  foreign  firm  which  has  won  a  contract  to 
provide services to an Irish entity 

•  At  least  50%  of  the  employees  of  the  foreign  firm  must  be  EEA 

249 

 
 
  
 
IRELAND 

nationals 

• 

In  most  cases  requires  a  Labour  Market  Needs  Test  on  the  Irish 
and EEA labour market 

Reactivation  Employment  Permit:  for  foreign  nationals  who  have 
had their employment permit taken away from them through no fault 
of their own (for workers who have received difficult or abusive work 
circumstances, or their employer has ceased operations) 

Sport  and  Cultural  Employment  Permit  (S&C  EP):  aimed  at 
foreign nationals with specialised skills in sports and culture 

Internship  Employment  Permit:  allows  for  students  of  foreign 
institutions to work under an internship in Ireland 

•  The internship must be in respect to an occupation on the Critical 
Skills Occupations List and the course of study must be concerned 
with the skills shortages identified 

•  The  internship  must  be  a  requirement  for  the  completion  of  that 

course of study 

Exchange  Agreement  Employment  Permit  (EAEP):  aimed  at 
facilitating  the  employment  of  foreign  nationals  in  accordance  to 
prescribed  agreements  or  other  international  agreements  to  which 
Ireland is a party 

•  The  agreements  are:  AIESEC,  IAESTE,  Fulbright  Programme, 
Exchange  between  St  Josephs’  University  Philadelphia  and 
University  College  Cork  in  conjunction  with  Bord  Bia,  and  the 
Vulcanus in Europe Programme 

Further, a supplementary labour migration scheme was introduced by 
the Department of Justice and the Department of Enterprise, Trade and 
Employment  to  cater  to  specific  situations  that  are  not  supported  by 
the current employment permit legislation 

Atypical Working Scheme (AWS): a short-term working permit (15 
to  90  days)  for  highly  skilled  employment,  mostly  granted  in  the 
medical sector, pharma, and biomedical manufacturing. 

•  Can  be  applied  to  situations  of  greater  than  90  days  for  certain 

occupations 

Finally, Ireland does not participate in the EU Blue Card program. 

Labor Market 
Needs Test  

•  Required for the General Employment Permit and the Contract for 

Services Employment Permit 

•  The vacancy is advertised on the Department of Social Protection 

250 

 
 
IRELAND 

Employment Services and the EURES portal for 4 weeks 

•  Exemptions: applicants for the Critical Skills Employment Permit 

50:50 Rule: requires employers to have sourced at least 50% of their 
staff from Ireland or the EEA 

•  Applies  in  all  situations  except  for  start-up  companies  with 
recommendations  from  either  IDA  Ireland  or  Enterprise 
Ireland  or  if  the  prospective  employee  will  be  the  sole 
employee of the employer 

References 

https://enterprise.gov.ie/en/what-we-do/workplace-and-
skills/employment-permits/permit-types/ 

2020 EMN National Report 

https://www.irishimmigration.ie/coming-to-work-in-ireland/what-are-
my-work-visa-options/applying-for-a-long-stay-employment-
visa/atypical-working-scheme/ 

https://enterprise.gov.ie/en/publications/publication-files/review-of-
economic-migration-policy.pdf 

https://www.qqi.ie/what-we-do/the-qualifications-system/national-
academic-recognition-information-centre 

https://home-affairs.ec.europa.eu/system/files/2021-09/202117_ad-
hoc_query_on_labour_market_test.pdf 

ITALY 

Key measures 
and schemes  

The entry for non-EU workers into Italy is subject to quotas (Article 21 
of  the  Consolidated  Law)  established  in  the  periodic  decrees  (usually 
annual),  the  so-called  'decreto  flussi'.  The  quota  system  is  not  targeted 
with regards the skills 

Entry for non-seasonal employment and for self-employment  

Quota  (20  000  according  to  the  Decree  2021)  are  reserved  for 
employment  in  the  following  sectors:  road  haulage,  construction  and 
tourism sectors for citizens of countries that have signed or are about to 
sign cooperation agreements on migration matters. Of which: 

•  Around  85%  of  these  are  reserved  to  citizens  of  the  following 
countries: Albania, Algeria, Bangladesh, Bosnia  - Herzegovina, 
Korea  (Albania,  Algeria,  Bangladesh,  Bosnia  -  Herzegovina, 
Korea  (Republic  of  Korea),  Ivory  Coast,  Egypt,  El  Salvador, 
Ethiopia,  Philippines,  Gambia,  Ghana,  Japan,  Guatemala,  India, 
Kosovo,  Mali,  Morocco,  Mauritius,  Moldova,  Montenegro, 

251 

 
 
 
  
ITALY 

Niger, Nigeria, Pakistan, Republic of North Macedonia, Senegal, 
Serbia, Sri Lanka, Sudan, Tunisia, Ukraine. 

•  Around 15% remains available for the hiring of citizens of other 
countries  with  which  cooperation  agreements  on  migration  will 
enter into force in the coming year. 

•  N=100  quotas  are  reserved  for  foreign  workers  who  have 
completed training  and  education programs  in  their countries of 
origin 

•  N=100  quotas  reserved  for  foreign  workers  of  Italian  origin  on 
the  part  of  at  least  one  of  the  parents  up  to  the  third  degree  of 
direct line of ancestry, residing in Venezuela. 

•  N=500  quotas  reserved  for  self-employed  workers  belonging  to 

the following categories: 

o  entrepreneurs  who  carry  out  activities  of  interest  to  the 
Italian  economy  which involve the use of own resources 
of no less than 500,000 euros, as well as the creation of at 
least three new jobs 

o  freelancers  attributable  to  supervised  or  unregulated 
professions  but  representative  at  national  level  and 
included in the lists of y the Public Administration 

o  holders of company shares or with control positions 

o  artists  with  high 

and  well-known  professional 

qualifications, engaged by public or private bodies 

o  foreign citizens for the establishment of "innovative start-
up"  companies  pursuant  to  law  221/2012,  in  favour  of 
which  an  employment  relationship  of  an  independent 
nature with the company is attributable.  

Entry for seasonal employment  

Quotas  (N=42  000  according  to  the  last  decree)  for  seasonal  work  are 
reserved  for  the  following  nationalities:  Albania,  Algeria,  Bangladesh, 
Bosnia-Herzegovina, Korea (Republic of Korea), Ivory Coast, Egypt, El 
Salvador,  Ethiopia,  Philippines,  Gambia,  Ghana,  Japan,  Guatemala, 
India, Kosovo, Mali, Morocco, Mauritius, Moldova, Montenegro, Niger, 
Nigeria,  Pakistan,  Republic  of  North  Macedonia,  Senegal,  Serbia,  Sri 
Lanka, Sudan, Tunisia, Ukraine. 

Of  these,  around  33%  are  reserved  to  agriculture  sector  where  the 
application  for  the  work  permit  is  done  by  organisations  representing 
employers in the agricultural sector. 

252 

 
 
ITALY 

Categories of workers excluded from the cap are: 

•  Posted  workers:  a  work  visa  can  be  issued  when  a  worker  is 
assigned to work at an Italian company for a fixed period of time 
(maximum  of  five  years),  but  remains  on  the  payroll  of  the 
foreign  company  (e.g.  INTRA  COMPANY  TRANSFERS  or 
workers assigned pursuant to a service agreement) 

•  Highly skilled workers: those who have a three-year University 
diploma, are offered a minimum one-year contract and a salary of 
not less €25,000/year can be hired directly in Italy and obtain the 
Blue Card permit.  

Employers must present a proposal for a residence contract to the One-
Stop-Shop-for-Immigration.  When  the  employer's  proposal  is  accepted, 
the  One-Stop-Shop  For  Immigration  will  communicate  the  decision  to 
the Italian embassy in the applicant’s country of origin and the visa will 
be issued.  

Labour Market 
Test 

Responsible body: Commission for Employment 

Procedure:  

•  The employer must demonstrate that no suitable candidates from the 
EU  or  EEA  are  available  to  fill  the  position.  This  is  usually  done 
through  advertising  the  job  vacancy  on  national  job  boards  and  in 
newspapers. 

•  Once  it  is  established  that  no  suitable  EU/EEA  candidates  are 
available, the employer must apply for the release of a "Nulla Osta" 
(authorization)  from  the  Immigration  Office  ("Sportello  Unico  per 
l'Immigrazione") or relevant regional office. 

•  Documentation:  Employers  are 

to  submit  various 
documents  along  with  the  application,  including  the  employment 
contract, proof of advertising efforts, and company information. 

required 

•  The  "Commission  for  Employment"  reviews  the  application  and 
assesses whether the employer has met the required conditions. If the 
Commission believes the job can be filled by an EU/EEA candidate, 
the application may be rejected. 

• 

If the Nulla Osta is granted, the non-EU citizen can apply for a work 
visa at the Italian Embassy or Consulate in their home country. 

Exemptions: 

•  Researchers, scientists, professors 

• 

Intra-corporate transferees 

253 

 
 
 
ITALY 

•  Seasonal workers  

•  Candidates covered by international agreements 

References 

https://immigration-portal.ec.europa.eu/italy-highly-qualified-worker_en 

https://www.lavoro.gov.it/temi-e-priorita/immigrazione/focus-
on/ingresso-e-soggiorno-per-lavoro-in-italia/pagine/ingresso-e-
soggiorno-per-lavoro-in-italia 

https://link.springer.com/chapter/10.1007/978-3-031-26002-5_10 

LATVIA 

Key 
measures 
and 
schemes  

Work  Permits:  TCNs  generally  need  a  work  permit  to  work  in  Latvia.  The 
work  permit  is  issued  by  the  Office  of  Citizenship  and  Migration  Affairs 
(OCMA) and is granted based on the  employer's application and labour market 
considerations. 

•  Residence permit with the right to work – Applies to most jobseekers 

o  Length: 5 years 

o  Criteria: 

▪  Contract from a Latvian employer 

▪ 

Invitation submitted by the employer to OCMA 

▪  3 years of work or education experience 

•  Long  term  D  visa  for  work  –  No  residence  permit,  can  be  applied  for 

later 

o  Length: 1 year 

o  Criteria: 

▪  Contract from a Latvian employer 

▪ 

Invitation submitted by the employer to OCMA 

▪  3  years  of  work  experience  in  the  profession  you  have  a 

contract in 

European Blue Card: The European Blue Card is a work and residence permit 
issued  to  highly  skilled  non-EU  nationals.  It  is  intended  to  facilitate  the 
migration of professionals to the EU, including Latvia. To be eligible, applicants 
must  meet  specific  criteria,  such  as  having  a  valid  employment  contract  and 
meeting certain salary thresholds. 

•  Length: 5 years 

254 

 
 
 
  
LATVIA 

•  Criteria: 

o  Contract from a Latvian employer 

o  Invitation submitted by the employer to OCMA 

o  5 years of work experience in the industry or 3 years of academic 

experience in the industry 

Highly  Qualified  Specialists:  To  attract  skilled  professionals  from  outside  the 
EU,  Latvia  has  implemented  a  scheme  for  Highly  Qualified  Specialists.  This 
scheme allows employers to hire non-EU nationals in certain fields, such as IT, 
engineering,  and  research,  under  simplified  procedures.  These  professions  are 
chosen based on shortages in the labour force. 

Seasonal Workers: A seasonal work permit scheme exists for non-EU nationals 
who  wish  to  work  in  seasonal  industries,  such  as  agriculture,  horticulture,  and 
tourism. These permits are usually granted for a limited duration (6 months). 

Intra-Corporate  Transfers:  Latvia,  like  other  EU  member  states,  allows  for 
intra-corporate  transfers  within  multinational  companies.  This  scheme  enables 
employees  to  be  transferred  from  a  company's  non-EU  branch  to  its  branch  in 
Latvia without the need for a separate work permit. 

Labor 
Market 
Test 

Responsible body: State Employment Agency (SEA) 

Procedure: 

The  employer  has  to  register  the  vacancy  with  the  State  Employment  Agency 
(SEA);  The  recruitment  procedure  can  be  initiated  if  the  vacancy  has  not  been 
filled within 10 working days. 

Exemptions:  

artists,  composers,  sportsmen/coaches,  teachers  and  university  professors, 
potential EU Blue Card holders 

Referenc
es 

https://www.lm.gov.lv/en/employers?utm_source=https%3A%2F%2Fwww.goo
gle.com%2F 

https://investinlatvia.org/assets/upload/Relocation%20Guide-web.pdf 

https://www.em.gov.lv/en/article/government-supports-application-simplified-
conditions-attraction-highly-qualified-foreign-
professionals?utm_source=https%3A%2F%2Fwww.google.com%2F 

https://www.pmlp.gov.lv/sites/pmlp/files/pmlp2_eng_11.pdf 

LITHUANIA 

Key measures 

National  Visa  (D):  granted  usually  for  foreigners  who  arrive  to  work, 

255 

 
 
 
 
LITHUANIA 

and schemes  

study conduct scientific research or to engage in legal activities 

•  Maximum  duration  of  1  year  and  the  worker  cannot  be  self-

employed or change employers 

Residence  permit  in  Lithuania:  granted  for  longer-stay  foreigners  on 
the basis of employment 

• 

Issued for 1-3 years and the employee can be self-employed 

Not  only  is  a  foreigner  required  to  obtain  a  work  permit,  but  also  a 
decision  on  the  compliance  of  foreign  work  with  labour  market  needs, 
and  a  monthly  salary  not  less  than  the  last  published  average  monthly 
gross  salary  in  the  national  economy.  The  decision  on  compliance 
requires  the  vacancy  to  be  given  first  priority  to  Lithuanian  and  EU 
citizens  or  foreigners  with  a  permanent  residence  in  Lithuania.  If  there 
are  no  applicants,  compliance  is  given.  The  decision  of  compliance  or 
work permit is not required in specific instances: 

• 

If  the  profession  is  included  in  the  list  of  professions  for  which 
there is a shortage of workers. These professions include quotas. 
Once  the  quota  has  been  depleted  the  foreigner  must  obtain  a 
work permit. 

• 

If the salary is three times the average monthly gross wages 

•  Trainees and interns 

•  Remote work in Lithuania for a company operating in Lithuania 

There exist several other labour migration scenarios for which there are 
specialised permit requirements: 

•  High  skilled  workers  –  EU  Blue  Card:  Lithuania  introduces  no 
additional specific rules except for the period of validity which is 
3 years 

•  Permanent  employee  of  an  EU  company  conducting  temporary 

work in Lithuania 

•  Students  who  have  completed  their  studies  in  Lithuania  and 

intend to begin working in Lithuania 

• 

Intra-corporate transferees 

•  Teachers 

•  Researchers 

256 

 
 
  
LITHUANIA 

Job platform:  

Work  in  Lithuania380  –  Initiative  aimed  at  encouraging  highly-skilled 
professionals  from  abroad  to  establish  their  professional  lives  in 
Lithuania.  It  is  a job  platform  that provides guidance to  employers and 
future employees.  

Labor Market 
Test: 

Responsible body: Lithuanian Labor Exchange (Lietuvos darbo birža) 

The  Labour  Market  Test  does  exist  but  only  for  non-highly  skilled 
vacancies and vacancies not on the list of professions for which there is a 
shortage of workers. 

•  All such vacancies must first be registered with the Employment 

Service 

• 

If after 5 days no suitable applicant is found within the EEA, the 
employer may apply for a decision from the Employment Service 
on  whether  a  foreign  national  would  correspond  to  the  labour 
market needs. 

The  Employment  Service  posts  all  job  vacancies  on  the  EURES  portal 
unless explicitly asked not to by the employer 

Exemptions: 

•  Highly Skilled Workers 

• 

Intra-Corporate Transferees 

•  Researchers and Scientists 

• 

International Agreements 

References 

https://home-affairs.ec.europa.eu/system/files/2021-09/202117_ad-
hoc_query_on_labour_market_test.pdf 

https://www.startuplithuania.com/entry-to-lithuania/ 

https://www.renkuosilietuva.lt/en/work-in-lithuania/ 

https://www.migracija.lt/noriu-gauti/pakeisti-leidima-laikinai-gyventi 

https://www.renkuosilietuva.lt/en/permanent-residence-permit/ 

https://immigration-portal.ec.europa.eu/blue-card/lithuania_en 

380  

https://workinlithuania.com/about-us/ 

257 

 
 
 
 
 
 
 
LUXEMBOURG 

Key measures 
and schemes  

TCNs  who  would  like  to  work  in  Luxembourg  are  required  to  apply 
for a long stay (D) visa on the basis of their planned activity. These are 
detailed  below  with  the  specific  criteria  for  each  scenario  when 
relevant. 

•  Salaried worker 
•  Self-employed worker 

o  Proof of required qualifications 
o  Proof of sufficient resources 
o  Proof 

that 

the  activity  serves 

interest  of 
Luxembourg  in  terms  of  social,  cultural,  or  economic 
benefit 

the 

•  Highly qualified worker (EU Blue Card) 

o  Employment  contract  for  at  least  a  year  in  a  highly 

qualified profession 

o  Salary of more than 1.5 times the national average (1.2 

for certain professions) 

o  Proof of qualifications for the profession 

•  Researcher 

o  Hosting agreement with an approved institution 
o  Higher education diploma for doctorate programmes 

•  Athlete 

o  Employment  contract  with  an  approved  federation  of 

club 

o  Salary of at least the minimum wage 

•  Au pair 

o  Written approval from the Ministry of Youth 
o  Signed  au  pair  hosting  agreement  with  the  hosting 

family 

•  Salaried  worker  posted  by  a  company  established  outside  the 

EU 

o  TCN  who  usually  works  abroad,  but  on  a  contract  to 

work in Luxembourg for a fixed period of time 

•  Transferred salaried worker 

o  Employment  contract  with  the  transferring  company 

during their stay in Luxembourg 

•  Seasonal worker 

o  Regards harvesting, leisure, holiday, aviation, and other 

activities  

Labor Market 
test 

Responsible  body:  National  Employment  Agency  (Agence  pour  le 
développement de l'emploi - ADEM) 

Requested for work permit 

258 

 
 
  
LUXEMBOURG 

Exemptions: highly qualified workers (EU Blue Card) 

References 

https://guichet.public.lu/en/citoyens/immigration/cas-
specifiques/travailleur-frontalier-tiers/frontalier.html 

https://guichet.public.lu/en/citoyens/immigration/plus-3-mois.html 

https://guichet.public.lu/en/citoyens/immigration/plus-3-
mois/ressortissant-tiers/demarches-communes/entree-visa.html#bloub-
6 

https://guichet.public.lu/en/entreprises/ressources-
humaines/recrutement/ressortissant-pays-tiers/raison-privees.html 

MALTA 

Key measures 
and schemes  

Standard work permit (Single permit) 

Non-EU Nationals require a residence permit to be employed in Malta. 
The first step in qualifying for employment is to have an employment 
offer from an employer in Malta. 

A residence permit on the basis of employment is issued and remains 
valid if the main criteria upon which it was acceded to, continue to be 
met,  that  is,  the  specific  designation,  employer  and  duration.  This 
information is also printed on the residence card issued and held by the 
third-country national. 

Procedure:  Single Permit applications may only be submitted by the 
employer through the Single Permit Online Portal.  Once the employer 
applies,  the  third-country  national  receives  a  link  to  confirm  the 
application  and  validate  the  data  submitted.    Once  confirmation  is 
submitted, the employer will receive a notification for final submission 
of application 

Key Employee Initiative 

Specific  scheme  for  highly  skilled  workers  and  includes  a  fast 
procedure.  

•  Eligibility: The program is open to highly skilled individuals who 
possess specialised knowledge, expertise, or qualifications that are 
deemed essential to the Maltese economy. 

•  Application Process: Employers in Malta who wish to hire non-EU 
key  employees  must  apply  to  Jobsplus,  which  is  the  government 
entity responsible for labor and employment matters. 

•  Job  Offer  and  Contract:  The  employer  must  provide  a  valid  job 
offer  to  the  key  employee,  outlining  the  terms  and  conditions  of 

259 

 
 
 
  
MALTA 

employment. 

•  Minimum  Salary:  The  Key  Employee  Initiative  requires  that  the 

key employee receives a salary >30,000 EUR 

•  Residence  Permit:  Once  the  application  is  approved,  the  key 
employee  is  issued  a  residence  permit,  allowing  them  to  legally 
reside and work in Malta. The residence permit is typically tied to 
the specific employment with the sponsoring employer 

EU Blue Card 

A secondary scheme for highly skilled workers exists through the EU 
Blue Card system. Requirements include: 

•  Qualified for the position 

•  Annual salary >1.5 times of the Maltese average 

Digital Nomad Visa 

Designed  for  freelancers  or  for  employees  of  companies  outside  of 
Malta,  to  work  remotely  from  Malta.  Required  monthly  income  of 
>2,700 EUR. 

Job Malta381 –  managed by Malta’s Public Employment Service, this 
website  functions  as  a  job  platform  and  offers  support  for  job 
searchers and employers.  

Responsible body: Jobsplus (the national employment agency)  

Mandatory for Single Permit Applications 

Exemptions:  health  related  professionals;  technical  and  building 
professionals, IT, finance, gaming and education professionals 

Job platform  

Labor market 
test  

References 

https://www.identitymalta.com/unit/non-eu-
nationals/?ver=1.01#1672848459556-10e93d82-413a  

https://visaguide.world/europe/malta-visa/long-stay/work-visa/  

NETHERLANDS 

Key 
measure
s and 
schemes  

Highly skilled migrant program 

For employees with a job offer for which a high level of education is needed.  A 
salary requirement applies. The employer must be recognised by the IND to start 

381  

https://jobsplus.gov.mt/ 

260 

 
 
 
 
 
NETHERLANDS 

the visa procedure. 

Requirements:  A  valid  provisional  residence  permit  (MVV)  except  for  some 
nationalities and a residence permit. 

Income  conditions:  Income  requirements  apply  and  there  are  different  income 
categories (gross per month as of 2023):  

•  Highly skilled migrants reduced salary criterion: € 2,631.00 

•  Highly skilled migrants younger than 30 years: € 3,672.00 

•  Highly skilled migrants 30 years or older: € 5,008.00 

•  Researcher (without holiday allowance): € 2,321.28 

•  A medical doctor in training: at least equal to the minimum salary. 

Conditions: This residence permit allows the holder to work as a highly skilled 
migrant  or  as  a  self-employed  individual,  while  for  other  types  of  work,  the 
employer would need to apply for a separate work permit (TWV). 

Procedure: Application is submitted by employer (online or by post). 

Duration: Determined by the employment contract and can last for a maximum 
of  5  years.  It  is  possible  to  extend  this  residence  permit.  There  is  a  “search 
period” of 3 months after the contract has ended 

European Blue card 

For  employees  with  a  job  offer  (contract  duration  of  at  least  12  months)  for 
which a high level of education is needed.  A higher salary requirement applies 
(€  5,867.00).  Recognition  by  the  IND  of  the  employer  is  not  a  requirement  for 
this  permit,  but  it  is  faster  and  easier  for  a  recognised  sponsor  to  apply  for  a 
residence permit for employees and their families. 

Requirements:  A  valid  provisional  residence  permit  (MVV)  except  for  some 
nationalities and a European Blue card. 

Advantages:  Moving  to  another  EU/EEA  country  is  easier,  and  in  some  cases, 
the applicant may apply for a permanent residence permit after less than 5 years. 
A  European  Blue  Card  applicant,  in  addition,  may  work  on  a  self-employed 
basis. 

Conditions: This residence permit allows the holder to work as a self-employed 
individual  in  addition  to  the  work  for  the  employer,  while  for  other  types  of 
work, the employer would need to apply for a separate work permit (TWV). 

Procedure:  The  application  is  submitted  by  the  employer  by  post  from  the 
Netherlands. 

Duration:  Permit  is  given  for  at  least  12  months  and  for  maximum  4  years. 
There is a “search period” of 3 months after the contract has ended. An extension 

261 

 
 
  
NETHERLANDS 

of the permit is possible. 

Residence permit for work in paid employment 

For  employees  who  are  going  to  work  in  paid  employment.  The  employer’s 
company  or  organization  must  be  registered  in  the  Commercial  Register  of  the 
Chamber  of  Commerce  (some  exceptions  apply).  The  employer  also  must 
arrange right housing for the employee. 

Requirements:  single  permit  (combines  residence  and  work  permits),  also 
referred  to  as  the  GVVA.  Applying  for  a  single  permit  for  certain  jobs  or 
conditions is impossible. Then the applicant must apply for a residence permit for 
paid employment in the Netherlands (UWV) and then for a work permit (TWV). 
Issuance of this permit depends on a labour market test. 

Employers’ obligations: arranging housing. 

Procedure: usually the employer applies for a single permit. If the applicant does 
not require a single permit (e.g. employee has a valid residence permit), they are 
free on the labor market. 

Conditions:  Holders  of  this  permit  are  only  allowed  to  work  for  the  employer 
through which they got the permit. 

Special  requirements  apply  for  the  following  work  categories:  spiritual 
counsellors,  employees  working  in  the  supply  of  goods  by  foreign  companies, 
employees of international non-profit organizations, employees in art and culture, 
and intra-company transferees. 

Duration: In general, the single permit is issued for a maximum of 3 years. For 
workers that have had a residence permit for work for 5 years the single permit 
may  be  issued  for  a  maximum  of  5  years.  There  are  some  exceptions  for 
employees of an international organisation (issued for maximum 1 year) and for 
employees  in  the  Asian  catering  industry  (issued  for  maximum  2  years).  It  is 
possible to extend this residence permit. 

Seasonal work 

For seasonal work (up to 24 weeks) in the agricultural or horticulture sector. 

Requirements:  A  valid  provisional  residence  permit  (MVV)  except  for  some 
nationalities  and  a  residence  permit  for  seasonal  work.  The  permit  is  a  single 
permit  for both residency and work (GVVA). This means that the Immigration 
and  Naturalisation  Service  must  always  ask  the  Employee  Insurance  Agency 
(UWV)  for  a  recommendation.  Recognition  by  the  IND  of  the  employer  as  a 
sponsor  is  not  a  requirement  for  this  permit.  The  employer’s  company  or 
organization  must  be  registered  in  the  Commercial  Register  of  the  Chamber  of 
Commerce (some exceptions apply). Issuance of this permit depends on a labour 
market test. 

262 

 
 
NETHERLANDS 

Employers’ obligations: arranging housing. 

Procedure:  The  application  is  submitted  by  the  employer  by  post  from  the 
Netherlands. 

Conditions:  Holders  of  this  permit  are  only  allowed  to  work  for  the  employer 
through which they got the permit. 

Duration: valid for up to 24 weeks 

Other residence permits for work  

•  Residence permit for trainees or students on work placement 

•  Residence permit to gain work experience via an EU programme 

•  Residence permit for cross-board service providers 

•  Working  holiday  program  (WHP):  designed  for  people  between  18  and  30 
years or people from countries the Netherlands has an agreement with. This 
permits only enables holders to do “occasional work” (term sassed on a case-
by-case basis). 

Other key information 

Free-to-work status 

After having worked for 5 years in the Netherlands it is possible to apply for the 
free-to-work  status  that  allows  the  holder  to  work  without  requiring  a  work 
permit (TWV). Furthermore, if the residence permit is valid for at least 4 months 
it is possible to replace the residence document with a document with the work 
status “free to work”. 

Exceptions 

•  Different  rules  apply  to  Turkish  citizens  applying  for  a  residence  permit. 
Because  of  the  association  law  between  the  EU  and  Turkey,  requirements 
tend to be less strict for these applicants.  

Job 
platform 

 “welcome-to-nl”382  was  commissioned  by  the  Dutch  Ministry  of  Economic 
Affairs and Climate Policy, in collaboration with other partners. 

Labor 
market 
test 

Responsible body:  The Dutch labor authorities (UWV)  

Requested for the work permit. It is up to the applying company to show that a 
real  effort  has  been  made  to  find  these  priority-enjoying  employees.  If  such 
candidates are not considered available, the company can hire an employee from 
outside the EU. 

382  

https://www.welcome-to-nl.nl/ 

263 

 
 
 
NETHERLANDS 

Exemptions:  

teachers at international schools, religious leaders and artists 

Referenc
es 

Immigration  and  Naturalisation  Service.  (2022,  May  25).  Employing  a  foreign 
national.  IND.  Retrieved  June  22,  2023,  from  https://ind.nl/en/residence-
permits/work/employing-a-foreign-national#employee-visa-or-residence-permit 

Immigration and Naturalisation Service. (2023, January 12). Turkish citizens and 
living 
from 
https://ind.nl/en/turkish-citizens-and-living-in-the-netherlands 

June  28,  2023, 

the  Netherlands. 

IND.  Retrieved 

in 

https://www.gatewaytoholland.com/corporate/work-
permits/#:~:text=Labour%20market%20test,find%20these%20priority%2Denjoy
ing%20employees. 

Netherlands,  W.  T.  T.  (2022).  Working  in  the  Netherlands.  Welcome  to  the 
Netherlands. https://www.welcome-to-nl.nl/ 

POLAND 

Key measures 
and schemes  

1.  Schengen  Visa  (Type  C):  This  visa  allows  entry  into  Poland  and 
other Schengen Area countries for short-term stays of up to 90 days 
within a 180-day period. 

2.  Airport  Transit  Visa  (Type  A):  This  visa  is  required  for  transiting 
through the international zone of Polish airports without entering the 
Schengen Area. 

3.  Transit Visa (Type B): This visa allows entry into Poland for transit 
purposes,  such  as  traveling  to  another  country,  and  is  valid  for  a 
maximum of 5 days. 

4.  National  Visa  (Type  D):  This  visa  is  for  long-term  stays  in  Poland 
and  allows  the  holder  to  enter  and  stay  in  the  country  for  a  period 
exceeding 90 days. It is  typically issued for purposes such as work, 
study, family reunification, or residency. Under this visa: 

•  EU Blue Card: This visa is available for highly skilled workers 
with a university degree or five years of professional experience. 
It  requires  a  job  offer  with  a  minimum  salary  threshold  and 
sponsorship from an employer. The EU Blue Card is valid for up 
to four years and allows for free movement within the EU. 

•  Work  Permit:  For  professions  in  demand  or  those  requiring 
specific qualifications,  a work permit  is  required. The  employer 
must obtain a work permit on behalf of the foreign worker from 
the local Labor Office. The worker can then apply for a National 
Visa for the Purpose of Work (Type D) at the Polish consulate in 

264 

 
 
 
  
POLAND 

their home country. 

•  Seasonal  Work:  Seasonal  workers  in  sectors  like  agriculture, 
tourism,  or  hospitality  can  apply  for  a  seasonal  work  visa.  The 
employer  must  obtain  permission  from  the  local  Labor  Office, 
and  the  worker  can  apply  for  a  seasonal  work  permit  via  the 
consulate. 

•  Sponsorship: In general, work visas require sponsorship from an 
employer in Poland. The employer must prove that efforts to find 
a  suitable  Polish  or  EU  candidate  were  unsuccessful,  justifying 
the need to employ a third-country national 

Labor Market 
Test  

Responsible body: Voivodeship Office 

Requested for applicants to work permit. 

Exemptions:  highly  qualified  workers  applying  for  work  permit, 
occupations  in  great  demand,  candidates  covered  by  international 
agreements 

Procedure: 

•  The  employer  must  publish  a  job  offer  in  Poland's  National 
Employment  Agency  (PUP)  for  a  specified  period.  The  job  offer 
the  skills, 
should  outline 
qualifications, and experience needed for the position. 

requirements, 

including 

job 

the 

• 

If  no  suitable  candidates  from  the  local  or  EU  labor  market  are 
found,  the  employer  can  apply  for  a  work  permit  for  a  non-EU 
citizen.  The  employer  must  provide  evidence,  such  as  recruitment 
records and documentation on unsuccessful attempts to find suitable 
candidates, to confirm the unavailability of local and EU workers. 

•  The  employer  should  submit  a  work  permit  application  to  the 
appropriate  regional  office  of 
the  Voivodeship  Office.  The 
application should include relevant documents, such as the job offer 
publication  proof, 
the  employment  contract,  and  supporting 
documentation for the intended employee. 

References 

https://www.gov.pl/web/usa-en/d-type-national-visa 

https://www.migrant.info.pl/id-21-labour-market-test.html 

PORTUGAL  

Key measures 
and schemes  

Employed workers 

For applicants with a job offer. 

265 

 
 
 
PORTUGAL  

Procedure:  Application  can  be  made  at  any  SEF’s  directorate  or 
regional delegation. 

Key  conditions:  Work  contract,  work  promise  or  demonstration  of 
interest/ 

Duration:  valid  for  2  years  it  is  renewable  for  successive  periods  of 
three years 

Seasonal work 

Temporary stay visa for seasonal work for a duration of over 90 days. As 
of 2023, seasonal work is allowed in the following sectors:  

•  Agriculture, livestock, hunting, forestry and fishing 

•  Hospitality, restaurants and similar 

•  Food industry, liquor and tobacco industries 

•  Gross and Retail commerce 

•  Construction 

•  Land transport. 

Duration: May be issued for maximum 9 months 

Conditions:  The  employment  relationship  may  involve  more  than  one 
company provided it is for seasonal work 

Residence permit for highly qualified activity 

Requirements: EU blue card 

Needed documentation: 

•  Work contract invitation letter or similar. 

Proof of salary requirements: 

•  Wage of >1.5 times the national average 

•  Wage  of  >1.2  times  the  national  average  for  professions 
designated as particularly deprived occupations as defined in the 
International Standard Classification 

Procedure:  Application  can  be  made  at  any  SEF’s  directorate  or 
regional delegation. 

Duration:  valid  for  2  years  it  is  renewable  for  successive  periods  of 
three years 

Higher education teaching / Professorial activity 

266 

 
 
  
PORTUGAL  

Requirements: EU blue card 

Procedure:  Application  can  be  made  at  any  SEF’s  directorate  or 
regional delegation. 

Duration:  valid  for  2  years  it  is  renewable  for  successive  periods  of 
three years 

Sports activity 

Temporary stay visa for amateur sports purposes. 

Transfer  of  workers  or  service  providers  when  the  applicant  has 
been working for over one year 

Temporary stay visa for transfer of workers purposes for state parties to 
the WTO, for provision of services or professional training. 

Job seeker visa 

Entitles  the  holder  to  enter  and  stay  in  Portugal  exclusively  for  the 
purpose  of  job  hunting.  It  allows  them  to  engage  in  subordinate  work 
activities until the visa expires or a residence permit is granted. 

Duration: 120 days. Reapplication for this permit is only possible after 
one year of expiration of the previous visa. 

Cultural activity 

Recognised  as  of  interest  to  the  country  by  the  member  of  the 
Government responsible for the area of culture. 

Needed documentation: work contract invitation letter or similar. 

Duration:  valid  for  2  years  it  is  renewable  for  successive  periods  of 
three years 

Highly qualified activity in certified companies (Tech Visa) 

A  program  to  make  the  process  of  qualified  immigrants  working  in 
Portugal more efficient in the technology, innovation, or other sector as 
defined by the Portuguese Agency for Competitiveness and Innovation.  

*If  the  qualified  activity  is  not  carried  out  for  a  certified  company,  the 
person concerned may always apply for a residence permit for highly 
qualified work or a “EU Blue Card”. 

Key requirements: 

▪  Certain qualifications as defined by ISCED 2011 

▪  Wage of >2.5 times the Index of Social Support 

▪  Fluent in Portuguese, Spanish, French, or English 

267 

 
 
PORTUGAL  

Job portals  

Labor Market 
Test  

References 

Procedure:  Application  can  be  made  at  any  SEF’s  directorate  or 
regional delegation 

Duration:  valid  for  2  years  it  is  renewable  for  successive  periods  of 
three years 

Other schemes: 

•  Workers of foreign employers establishing an office in Portugal 

• 

Intra-corporate transferees 

“Eportugal”383  is  a  portal  that  aims  at  facilitating  interactions  between 
citizens,  companies  and  the  state.  It  includes  a  job  search  platform  (in 
Portuguese) and information on moving to Portugal for work purposes.   

Not required  

Portuguese Ministry of foreign Affairs. (n.d.). Type of Visa. Retrieved June 
28, 2023, from https://vistos.mne.gov.pt/en/national-visas/general-
information/type-of-visa#work 

https://www.migrant.info.pl/id-21-labour-market-test.html 

Portuguese  Ministry  of 
https://vistos.mne.gov.pt/en/national-visas/necessary-
documentation/residency#for-the-exercise-of-a-professional-activity-
done-remotely-digital-nomads 

foreign  Affairs. 

(n.d.-a).  Residency. 

Working in Portugal – The Official Website of Portuguese Immigration. 
(n.d.). 
from 
https://imigrante.sef.pt/en/solicitar/trabalhar/ 

Retrieved 

2023, 

June 

28, 

ROMANIA 

Key 
measures 
and 
Schemes  

Standard work permit 

Must  be  approved  by  the  Romanian  Inspectorate  General  for  Immigration. 
Eligibility is contingent upon either: 

•  Educational work at a Romanian institution 

•  Highly skilled work 

•  Work through a bilateral agreement 

383  

https://eportugal.gov.pt  

268 

 
 
 
 
  
•  As instructed by the Minister of National Education or Minister 

of Culture 

•  Work in a ministry 

•  Head  of  the  Romanian  branch  of  a  company  headquartered 

abroad 

Employment categories 

•  Permanent employee: foreigner employed in Romania with individual 
contract  of  indefinite  duration  or  fixed  term  concluded  with  an 
employer based on the work permit. 

•  Trainee worker: foreigner participating on an internship program of a 
duration  with  a  view  to  improving  vocational  training  or  obtaining  a 
vocational  qualification  as  well  as  improving  language  and  cultural 
knowledge. 

•  Seasonal  worker:  foreigner  who  maintains  his  main  residence  in  a 
third  country,  but  legally  and  temporarily  lives  in  Romania,  being 
employed in seasonal activity. 

•  Cross-border  worker:  the  foreigner,  citizen  of  a  state  which  has  a 
common  border  with  Romania  and  lives  in  the  border  area  of  the 
respective State, employed in a border town on the Romanian territory. 

•  Highly qualified worker: foreigner employed in Romania on a highly 

skilled job, with individual contract of at least one year.  

•  Deployed worker: the qualified foreigner temporarily deployed from a 

company established in a third country. 

•  ICT worker: person transferred within the same company. 

•  Au pair worker: foreigner temporarily employed by a host family  on 
the  territory  of  Romania  to  improve  their  language  skills  and 
competences in exchange for easy domestic and childcare. 

Long stay visa for employment 

For  applicants  with  a  job  offer  that  can  demonstrate  professional  training  or 
experience 

Requirements: 
  work  permit  issued  by  the  General  Inspectorate  for 
Immigration    (or  documents  that  demonstrate  you  fall  into  the  categories  of 
foreigners who are exempt from requiring a work permit) and a single permit. 

*Certain categories of foreigners may work in Romania without a work permit. 

Procedure: employers apply first applies for a notice of employment from the 
General  inspector  for immigration. Employees follow up the procedure in  the 
diplomatic  mission  of  Romania.  Once  arriving  to  Romania  the  employee 

269 

 
 
obtains the residence permit from the  General inspector for immigration. 

Duration:  The  temporary  residence  permit  for  employment  purposes  can  be 
extended for a period equal to the validity of the employment contract, up to a 
maximum of 1 year. 

Conditions: Worker may only be employed by a single employer.  

EU Blue Card – Highly skilled workers 

For highly qualified applicants with a job offer. 

  work  permit  issued  by  the  General  Inspectorate  for 
Requirements: 
Immigration    (or  documents  that  demonstrate  you  fall  into  the  categories  of 
foreigners who are exempt from requiring a work permit) and an EU Blue card. 

Procedure: employers apply first applies for a notice of employment from the 
General inspector  for immigration. Employees follow up the procedure in  the 
diplomatic  mission  of  Romania.  Once  arriving  to  Romania  the  employee 
obtains the EU Blue card from the  General inspector for immigration. 

Duration: may be issued for a period equal to the validity of the work contract 
plus an additional 3 months, with a maximum total duration of 2 years. 

Conditions: Worker may only be employed by a single employer.  

Seasonal work 

For  applicants  conducting  seasonal  work  with  a  registered  employer  (  at  the 
trade register office). 

Requirements:  Work  authorisation  for  seasonal  workers,  a  visa  for  work 
purposes  and  a  temporary  residence  permit.  It  is  required  to  show  a  basic 
knowledge of Romanian.  

Conditions:  Permit  issued  based  on  quotas  established  by  the  Romanian 
government. 

Specific conditions apply for nationals of Canada, Japan and the United States 
of America based on bilateral agreements. 

Procedure:  Employer  applies 
for 
through 
Immigration  for  work  authorisation.  Authorizations  granted  based  on  quotas 
and  a  labour  market  test.  Once  the  authorization  is  granted,  applicant  may 
apply for a visa for work purposes and the residence permit. 

the  General 

inspectorate 

Duration:  valid  for  maximum  6  months  within  a  12-month  period,  under  an 
individual labour contract and in a specific seasonal sector. 

Not required 

Labor 
market 
Test 

References  https://visaguide.world/europe/romania-visa/long-stay/ 

270 

 
 
 
Inspectorate  General  for  Immigration.  (n.d.).  Frequent  questions.  Retrieved 
June 28, 2023, from https://igi.mai.gov.ro/en/category/frequent-questions/ 

Inspectorate General for Immigration. (n.d.-b). Migration.  Retrieved June 28, 
2023, from https://igi.mai.gov.ro/en/category/diverseen/migration/ 

Inspectorate General for Immigration. (n.d.-b). Long stay visa for employment 
purposes.  Retrieved  June  28,  2023,  from  https://igi.mai.gov.ro/en/long-stay-
visa-for-employment-purposes/ 

Inspectorate  General  for  Immigration.  (n.d.-a).  Employment  and  posting. 
Retrieved  June  28,  2023,  from  https://igi.mai.gov.ro/en/employment-and-
posting/ 

SLOVAKIA 

Key measures 
and schemes  

Temporary residence for employment 

Requirements: a single permit (temporary residence for the purpose of 
employment) 

For candidates with a job offer.  

Duration: May be issued for the duration of employment, maximum 5 
years. Renewal is possible for a maximum period of 5 years. 

Procedure:  application  may  be  submitted  at  a  diplomatic  mission  of 
Slovakia or the Foreign Police Department competent for the applicant’s 
place of  residence. The  application must be submitted in  person on the 
official form and in the Slovak language. 

Conditions:    A  person  with  a  temporary  residence  can  perform  only 
activities for which the 

residence was granted or which the given type of residence allows. 

Seasonal employment 

Seasonal employment for a maximum of 90 days 

For applicants with a job offer 

Requirements:  work  permit  and  Schengen  visa  for  the  purpose  of 
seasonal  employment  (only  if  subject  to  the  visa  requirements  to  enter 
Slovakia). There are specific requirements for the employer (e.g. having 
fulfilled  all  the  tax  obligations).  Granting  of  this  permit  depends  on  a 
labour market test (also for the extension). 

Duration:  issued  for  a  maximum  of  90  days  during  12  consecutive 
months. Extension of the permit is possible. 

Procedure:  Application  may  be  submitted  by  the  employer  or  the 
employee.  

271 

 
 
 
  
SLOVAKIA 

Seasonal employment for more than 90 days 

Requirements:    temporary  residence  for  the  purpose  of  seasonal 
employment.    There  are  specific  requirements  for  the  employer  (e.g., 
having fulfilled all the tax obligations).  Granting of this permit depends 
on a labour market test (also for the extension). 

Conditions for the exception of a labour market test:  

• 

If  the  type  of  work  is  included  in  the  shortage  professions 
category in a district with an unemployment rate lower than 5%  

•  and  the  employer  does  not  employ  more  than  30%  of  non-EU 

nationals from the entire number of employees.  

Duration:    issued  for  a  maximum  of  180  days  during  12  consecutive 
months.  Extension of the permit is possible. 

Temporary residence – Special activity 

Granted  for:    Lecturing  activity;  Artistic  activity;  Sports  activity; 
Internship  during  university  studies  outside  Slovakia,  or  within  two 
years  from  completing  university  studies  outside  Slovakia;  Activity 
resulting  from  Slovak  Government  or  EU  programs;  Fulfilling  a 
commitment of Slovakia arising from an International Treaty; Provision 
of  health  care,  or  accompanying  of  a  person  who  is  being  provided 
health  care,  if  necessary;  Volunteering  activity;  Activity  of  a  journalist 
accredited in Slovakia. (different documentation may be needed for each 
activity) 

Procedure:      application  may  be  submitted  at  a  diplomatic  mission  of 
Slovakia or the Foreign Police Department competent for the applicant’s 
place of  residence. The  application must be submitted in  person  on the 
official form and in the Slovak language. 

Conditions:    A  person  with  a  temporary  residence  for  the  purpose  of 
special activity is entitled 

to study, however not entitled to work or do business. 

Duration:  May be granted for a maximum period of 3 years. 

Temporary residence – Eu blue card 

For  highly  qualified  employment.  A  key  requirement  is  that  applicant 
has a job offer for at least 1 year and a salary offer of at least 50% more 
than the wage in the Slovak economy in the relevant field.  Granting of 
this permit depends on a labour market test (also for renewal). 

Duration:  Issued  for  the  duration  of  the  contract  plus  90  days,  for 
maximum 4 years. 

272 

 
 
SLOVAKIA 

Procedure:      application  may  be  submitted  at  a  diplomatic  mission  of 
Slovakia or the Foreign Police Department competent for the applicant’s 
place of  residence. The  application must be submitted in  person on the 
official form and in the Slovak language. 

Other initiatives in place for work migration  (Based on EMN report 
2021) 

Recovery  and  Resilience  Plan  of  the  SR:  Attracting  and  Retaining 
Talent 

A  scheme  that  focuses  on  meeting  labour  market  needs  by  highly 
qualified  workers  in  specific  fields,  such  as  health  care,  education,  and 
IT.  Simplified  access  is  granted  to  highly  qualified  university-educated 
workers. The scheme will allow graduates from the top 500 universities 
in the world and highly qualified experts in professions with a shortage 
of labour to apply. The maximum quota is 3,000. 

Labour Mobility Scheme 

Designed to  target  professions with  a  shortage of labour.  It  aims  to  aid 
and  accelerate  acceptance  of  TCN  workers,  but  it  has  yet  to  be 
implemented legislatively. 

Other developments 

Additionally,  medical  practitioners,  teachers,  researchers,  and  artists 
have all had legislative changes to ease the process of gaining access to 
work in Slovakia. 

Labor market 
test 

Responsible  body:  Central  Office  of  Labor,  Social  Affairs  and  Family 
(Ústredie práce, sociálnych vecí a rodiny). 

Requested  for  single  permit.  Although  the  Labour  Office  may  issue  a 
Confirmation on the Possibility to Fill a Vacancy without assessing the 
situation  in  the  labour  market  (mainly  in  the  case  of  shortage 
professions). 

References 

EMN National Report 2021 

IOM Migration information centre. (n.d.). Temporary residence. 
Retrieved June 28, 2023, from 
https://www.mic.iom.sk/en/download/info-cards/itemlist/category/73-
temporary-residence.html 

SLOVENIA 

Key 
measures 

Schemes according to purposes of residence 

273 

 
 
 
SLOVENIA 

and 
schemes  

Employment or work 

Requirements:  single residence and work permit 

Procedure:  Application  may  be  submitted  by  employer  or  employee  in  a 
diplomatic mission or in Slovenia. 

Duration: Can be renewed for a maximum of two years 

Key  conditions:    During  the  validity  of  the  permit,  holder  of  this  permit  can 
change workplace with the same employer, change employers, or be employed 
by  two  or  more  employers  without  having  to  change  the  permit.  The  only 
requirement is that the employer files an application at the administrative unit. 

Seasonal work 

For applicants  with  a job  offer in  seasonal  work for more than 90 days.   It  is 
possible to extend the permit with the same or another employer or contracting 
authority, but the total duration must not exceed six months or seven months in 
exceptional cases. 

Cross-border worker 

Cross-border workers may obtain a single permit. 

Posting 

Single  permit  for  employers  sent  to    work  or  for  training  in  a  company  in 
Slovenia. 

Key conditions:  applicant must have social security in the country from which 
they are sent, and this must also include health insurance. 

Duration:    The  first  permit  is  issued  for  the  period  specified  in  the  posting 
document,  but  not  for  more  than  one  year.  If  the  posting  could  not  be  fully 
realised for justified reasons, the permit may be extended until the deadline for 
the completion of the work or training Transfer withing a company. 

Transfer within a company 

For  workers  being  transferred  to  a  branch  in  Slovenia  from  a  company  they 
work in another country. 

EU blue card 

For highly qualified employment. 

Duration:  issued  for  three  months  more  than  the  validity  of  the  employment 
contract, but for a maximum of two years. It may be extended for a maximum 
of three years. 

Some conditions:  During the initial two years of legal employment, the permit 
holder has the option to select a new employer or a different workplace within 
the same employer. In order to proceed with the change, an application must be 

274 

 
 
  
SLOVENIA 

submitted to the administrative unit. However, once the initial two-year period 
has  elapsed,  the  permit  holder  is  no  longer  required  to  apply  to  switch 
employers. Instead, they are obligated to inform the administrative unit of their 
decision to change employers. 

Seeking  employment  or  self-employment  after  completed  studies  in 
Slovenia 

Single  permit  for  foreigners  looking  for  employment  or  self-employment  in 
Slovenia and that have completed their studies at a higher vocational college or 
higher education institution in the last two years and have obtained at least an 
associate degree or bachelor’s degree in the Republic of Slovenia 

Duration: Nine months. 

Seeking employment or self-employment as a researcher 

Single  permit  for  foreigners  looking  for  employment  or  self-employment  in 
Slovenia  and  that  has  completed  your  research  work  in  the  Republic  of 
Slovenia. 

Duration: Nine months. 

Not required 

Labor 
Market 
Test 

References  EMN National Report 2020 

Office  of  the  Government  of  the  Republic  of  Slovenia  for  the  Support  and 
Integration of Migrants. (n.d.). Purposes of residence. InfoTujci. Retrieved June 
29,  2023, 
from  https://infotujci.si/en/third-country-nationals/purposes-of-
residence/ 

SPAIN 

Key measures 
and schemes  

Study  and  Internship  Visa:  for  studies,  training,  internships,  voluntary 
work, au pair programmes, and conversation class  assistants  lasting longer 
than 90 days 

Researcher Visa: a visa for research, scientific, and technical staff carrying 
out  research,  development,  or  technological  innovation,  or  researchers  and 
teaching  staff  hired  or  hosted  by  public  or  private  research  bodies  or 
universities 

Residence  and  employment  work  visa:  this  visa  scheme  covers  most 
general applications for work for Spanish employers. This visa scheme also 
covers  seasonal  work  activities.  The  employment  permit  can  be  exempted 
for  specific  cases  including  technicians,  scientists,  teachers,  researchers, 

275 

 
 
 
  
managerial staff, civil or military officials, correspondents of foreign media, 
and religious ministers. 

In  order  to  hire  a  highly  skilled  professional,  the  company  must  be  within 
one of the following situations: 

•  Be a large company 

•  Being a company within a group of companies 

•  Being an SME within a strategic sector for Spain 

•  To  be  a  company  that  develops  a  project  of  general  interest  for  the 

Spanish economy 

Visa for highly qualified workers and for intra-company transfers: this 
visa  scheme  addresses  two  types  of  labour  migrants:  highly  qualified 
workers  and  intra-company  transferees.  Highly  qualified  workers  are 
defined as highly qualified professionals or members of senior management 
personnel or as a graduate or post-graduate of a prestigious university as set 
forth  by  certain  criteria.  Intra-company  transfers  are  defined  as  work 
activity  as  an  employee  in  Spain  as  a  member  of  senior  management 
personal,  specialist  or  a  trainee,  when  a  transfer  is  made  within  the  same 
company. Highly qualified workers may also apply for a residence and work 
permit  through  the  EU  Blue  Card  scheme  which  does  not  impose  any 
additional requirements than the standard requirements. 

Working visa for professionals in the audio-visual sector: Spain also has 
a  specialised  visa  for  actors,  musicians,  dancers,  and  other  audio-visual 
technicians 

Not required 

https://www.immigrationspain.es/en/highly-qualified-work-permit/ 

EMN National Report 2020 & EMN National Report 2021 

https://www.exteriores.gob.es/Consulados/londres/en/ServiciosConsulares/Pagin
as/inicio.aspx 

https://home-affairs.ec.europa.eu/system/files/2021-09/202117_ad-
hoc_query_on_labour_market_test.pdf 

SPAIN 

Labor 
Market 
Test 

Referenc
es 

SWEDEN 

Key measures 

The  new  model  for  legal  work  migration  has  been  introduced  in  May 

276 

 
 
 
 
SWEDEN 

and schemes  

2023. A new international  recruitment  unit  will be established  with  the 
goal  of  providing  better services  to  employers  willing  to  recruit  skilled 
foreign nationals. The new work permits are divided into 4 categories of 
professions and occupations: 

Category A 

Category A covers highly skilled occupations as defined by the Swedish 
Standard  Classification  of  Occupations.  This  will  include  managerial 
occupations and occupations with requirements for advanced university 
or higher education competence. 

Category B 

Category B covers occupations with specific rules such as: 

•  Seasonal occupations and berry pickers 

• 

Intra-corporate transferees 

•  EU Blue Card permits 

•  Artists/athletes/coaches 

•  Researchers 

•  Au-pairs 

•  Trainees 

•  Applications to start business activities 

Category C 

Category  C  covers  occupations  that  do  not  require  a  high  level  of 
academic  competence/non-highly  qualified  occupations  that  constitute 
an 
for  major  new 
establishments in growth areas. 

important  social  benefit  and  applications 

Category D 

Category D covers applications in industries that are demanding in terms 
of  case  investigation.  This  includes  cleaning,  construction,  personal 
assistance, hotels, and restaurants. 

According  to  the  EMN  National  Report  of  2017,  Sweden  reformed  its 
labour  migration  policy  in  2008,  doing  away  with  a  previous  agency-
based  labour  market  test.  However,  there  have  been  new  calls  to 
reintroduce  the  labour  market  test  and  a  current  inquiry  has  been 
commissioned by the migration minister. 

277 

Labor Market 
Test 

 
 
  
 
SWEDEN 

Recognition of academic and professional qualifications 

for  Higher  Education  evaluates 

foreign 
The  Swedish  Council 
qualifications for third country nationals looking to work in Sweden and 
provides  a  Qualification  Assessment  Tool  through  the  Department  of 
Qualifications Recognition. Professional qualifications are addressed by 
the  relevant  authority  for  the  profession.  In  some  instances,  this  is  the 
Swedish  Council  for  Higher  Education,  but  other  authorities  that  can 
provide professional qualification recognition are: 

•  Financial Supervisory Authority 

•  Legal, Financial and Administrative Services Agency 

•  National Board of Health and Welfare 

•  National Board of Housing, Building and Planning 

•  National Electrical Safety Board 

•  Public Health Agency of Sweden 

•  Stockholm's County Administrative Board 

•  Swedish Bar Association 

•  Swedish Board of Agriculture 

•  Swedish Civil Contingencies Agency 

•  Swedish Estate Agents Inspectorate 

•  Swedish Inspectorate of Auditors 

•  Swedish National Agency for Education 

•  Swedish Patent Attorneys Board 

•  Swedish Transport Agency 

•  Swedish Work Environment Authority 

National arrangements for the validation of skills 

As  of  2014,  the  Swedish  National  Agency  for  Higher  Vocational 
Education  along  with  concerned  national  agencies  have  developed 
criteria  for  validation  of  prior  learning  for  both  educational  and  labour 
market-oriented  validation.  The  framework  of  qualifications  is  the 
Swedish  National  Qualifications  Framework  which  can 
then  be 
translated  to  European  reference  frameworks.  Further,  vocational 
assessments  and  professional  skills  for  a  multitude  of  skills  and 
professions  can  be  validated  and  obtained  at  the  Swedish  Public 
Employment Service. 

278 

 
 
SWEDEN 

References 

https://www.migrationsverket.se/English/About-the-Migration-
Agency/For-press/News-archive/News-archive-2023/2023-05-12-
Highly-qualified-workers-will-be-able-to-come-to-Sweden-more-
quickly.html  

EMN National Report 2017 

EMN Country Fact Sheet 2021 

EURES Report on Labour Shortages and Surpluses 2022 

https://www.enic-naric.net/page-Sweden  

https://www.cedefop.europa.eu/en/tools/european-database-on-
validation-of-non-formal-and-informal-learning  

https://www.thelocal.se/20220629/sweden-calls-for-return-of-labour-
market-testing-for-work-permits  

https://www.myh.se/validering-och-seqf  

279 

 
 
 
ANNEX 9 
ANALYTICAL DESCRIPTION OF THE POLICY OPTIONS 

1.  ANALYTICAL METHODS 

This  Annex provides  an overview of the  analytical  methods used to design and assess the 
policy options.  

1.1 Identification of the possible Policy Options  

The  following  process  was  applied  to  determine  the  policy  measures  and  the  policy  options 
formed on the basis of these measures. 

The full spectrum of possible EU intervention was considered: no action, non-legislative action 
and  legislative  action.  The  POs  range  from  non-legislative  (PO1)  to  legislative  actions  (PO2 
and  PO3)  either  partially  based  on  existing  frameworks  or  envisaging  stand-alone  legislative 
solutions. 

With  regard  to  the  methodology  used,  the  design  of  the  policy  options  was  determined 
following a differed degree of intensity and ambition. In particular, the POs were designed to 
cover the full spectrum of possible EU intervention while ensuring a balance between the need 
to  attract  third  country  nationals  to  address  labour  shortages  and  the  quality  of  these  job 
matches.  

For this purpose, the rationale underlying the construction of the POs lays on two criteria:  

1)  The  intensity  of  the  intervention  with  regard  to  the  available  tools  to  facilitate  the 
recruitment: The POs were designed with a growing degree of intensity with regard to the IT 
tools and other supporting measures available to third country nationals and employers such as 
the pool of CVs and job vacancies, searching functionalities and matching tools, personalised 
support and guidance, online information provision on recruitment and immigration processes. 
While PO2 and PO3 have same functionalities, a higher degree of ambition is foreseen under 
PO3  where  the  IT  platform  and  related  tools  are  developed  with  sophisticated  IT  solutions. 
(PO1  with  limited  functionalities,  PO2  with  higher  functionalities  but  limited  in  terms  of  IT 
solution, PO3 with same functionalities than in PO2 and sophisticated IT solution). 

2) The scale of the intervention ranging from a more targeted/focused approach to the labour 
market  needs  to  an  open  and  wider  (or  demand-driven)  action  on  the  labour  market:  Under 
these criteria, the POs were designed with a view to addressing labour and skills shortages in 
the EU labour market to a different extent. While POs having an open approach would allow 
international recruitment of third country nationals in all sectors and occupations, the PO with 
a more focused scope would imply targeting those sectors and occupations which are suffering 
of particular shortages that cannot be addressed by domestic workforce and are strategic for the 
future prosperity of the EU and its Member States.  

1.2 Design and description of the Policy measures 

A wide range of  policy  measures were identified and grouped under each policy option. To 
ensure  a  comprehensive  assessment  of  all  the  possible  scenarios,  a  number  of  alternative 
policy measures were also identified.   

280 

 
 
 
To  ensure  more  clarity  in  the  construction  of  the  legislative  policy  options,  a  number  of 
building  blocks  have  been  identified  to  group  the  relevant  policy  measures  (e.g.  scope  of 
application, governance, user journey, IT platform, additional components). 

The table below provides an overview of the main building blocks identified. 

Policy options blocks 

Legal instrument 

Scope of application 

Governance 

IT platform 

Interoperability 

User-journey  

Registration  

Automatic pre-screening 

Quality assurance checks employers 

Search and matching  

Validation of candidates’ profiles 

Additional components 

Online information  

Personalised support 

Facilitation  measures 
fast-track 
immigration  and  recognition  procedures  and 
exclusion from LMT) 

(e.g. 

1.3 First  stage  assessment  (legal  and  political  feasibility):  POs  discarded  at  an  early 

stage 

The  mapping  stage  included  a  first  filter  to  identify  the  policy  options  to  discard  at  an  early 
stage for legal and pollical feasibility considerations (Section 5.3 of the main report and Annex 
9). 

This  preliminary  assessment  was  based  on  current  legal  constraints  limiting  the  viability  of 
certain solutions as well as the outcome of the extensive targeted consultation conducted with 
regard to political considerations.  

1.4 Description of policy measures retained in the mapping stage  

The outcome of this preliminary assessment was a set of policy options and policy measures 
retained for further elaboration and analysis (see section 5.4 of the main report and Annex 9). 

281 

 
 
 
1.5 Second  stage  assessment:  Policy  measure  discarded,  and  mapping  of  the  policy 

measures retained for further assessment  

This stage included a second filter to identify the policy measures to be discard due to political 
and  feasibility  consideration.  Only  one  policy  measure  alternative  was  discarded  under  PO2 
(see section 5.4 of the main report).  

All the other policy measures retained are therefore those that provide the alternatives that are 
most feasible (legally, technically, and politically). 

The outcome of this stage was the final set of policy measures under each PO as set out in the 
table of section 5.4. of the main report.  

1.6 . Assessment of the retained policy options 

The retained POs and alternative policy measures are analysed in Section 6 the main report. 

The  assessment  of  the  POs  is  based  on  a  number  of  key  assumptions  that  are  explained  in 
detailed in Annex 10.  

The  POs  retained  for  in  depth  analysis  were  assessed  against  a  series  of  assessment  criteria 
covering  specifically  effectiveness,  efficiency  and  coherence.  A  wide  range  of  impact 
categories  was  then  screened  in  order  to  identify  the  key  impact  categories  (e.g.  economic, 
social and fundamental rights, etc). 

1.7 . The preferred option  

The preferred was identified on the bases of the assessment above. Only those policy measures 
having  the higher positive impacts  in terms  of effectiveness  and efficiency were retained for 
the  preferred  PO.  Therefore,  a  number  of  alternative  policy  measures  were  discarded  for 
effectiveness and efficiency considerations. 

2  POLICY OPTIONS DISCARDED AT AN EARLY STAGE 

As described above, certain POs were not retained for further in-depth assessment due to legal 
and  political  feasibility  considerations  (see  also  Section  5.3  of  the  Report).  These  POs  were 
discarded  at  an  early  stage  and  are  not  described  below  in  further  detail.  In  addition,  no 
detailed assessment of their impacts is conducted in Annex 10.  

2.1 Developing an EU Talent Pool by fully extending the existing EURES network for 

international recruitment purposes  

The  EURES  network/platform384  is  the  existing  tool/system  aimed  at  supporting  the 
recruitment  of  jobseekers  within  the  EU  for  cross-border  mobility,  in  particular  by  matching 
the EU mobile workers interested in working in another Member States with job offers of the 
EU  employers.  Given  the  similar  objectives  of  the  EU  Talent  Pool  initiative,  this  option 
considered  the  possibility  to  use  the  EURES  network/platform  to  also  facilitate  the 
recruitment  of  TCNs  by  EU  employers.  However,  EURES  is  specifically  conceived  to 
facilitate  intra-EU  mobility  of  workers  and  it  does  not  cover  situations  of  TCNs  residing 

384  

EURES is based on Regulation No. 2016/589, amended by Regulation 2019/1149 setting up the European Labour 
Authority (ELA). 

282 

 
 
 
abroad nor is devised as an international recruitment/legal migration tool. 385 Therefore, under 
this option, the EURES scope of application should be extended to TCNs residing abroad.386 

The  option  is  discarded  at  an  early  stage  since  extending  EURES  beyond  its  objectives  and 
scope in order to cater for international recruitment of TCNs from outside the EU is not legally 
feasible due to the non-compatibility of the two legal bases (Articles 79 and 46 TFEU) which 
fall under two different Titles of the TFEU387  and cannot be combined. 

2.2 Developing an EU Talent Pool open to third-country nationals already residing in 

the Member States 

The  option  of  developing  an  EU  Talent  Pool  open  to  TCNs  already  residing  in  the  Member 
States was discarded as it goes beyond the objective of this initiative which aims at designing 
an international recruitment tool specifically conceived to improve legal migration by making 
the  EU  more  attractive  for  TCNs  from  abroad.  Recruitment  of  TCNs  already  residing  in  the 
EU  falls  under  domestic  or,  in  some  specific  cases,  intra-EU  recruitment.  TCNs  legally 
residing  in  the  EU  can  either  rely  on  the  support  of  the  public  employment  services  in  the 
Member State in finding a job locally or rely on EURES, in case they enjoy intra-EU mobility. 
In addition, according to the EU legal migration directives and the majority of national work 
permits, a person needs to reside outside the EU to be able to obtain a work permit on the basis 
of a job offer.  

2.3 Developing a mandatory EU Talent Pool for all Member States  

This option was not retained for further in-depth/quality assessment due to political feasibility 
considerations.  The  extensive  consultations  conducted  with  the  Member  States  and  other 
relevant  stakeholders,  including  economic  and  social  partners,  clearly  shown  the  very  low 
political acceptance of this alternative as it would impose on Member States the use of the EU 
Talent  Pool  platform  to  support  international  recruitment388.  While  developing  a  mandatory 
tool would still allow Member States to use their national international recruitment tools and 
policies, employers established in each Member State would be able to register job vacancies 
on the platform. This would have resource implications on the national authorities as Member 
States  would  be  required  to  designate  National  Contact  Points  responsible  for  the  practical 
implementation  at  national  level.  This  initiative  is  conceived  as  a  tool  to  provide  support  to 
employers  and  Member  States  in  attracting  TCNs  workers  according  to  the  labour  market 
needs rather than introduce a new legal pathway. Therefore, Member States consulted on the 
initiative during the Labour Migration Platform were unanimously against the development of 
a  mandatory  platform.  Social  and  economic  partners  consulted,  pointed  out  the  need  of 

385  

386  

387  
388  

“The European Parliament and the Council shall, acting in accordance with the ordinary legislative procedure and 
after consulting the Economic and Social Committee, issue directives or make regulations setting out the measures 
required to bring about freedom of movement for workers, as defined in Article 45 […]”. 
EURES is in fact based on Regulation No. 2016/589386 establishing the framework for cooperation to facilitate the 
exercise of freedom of movement for workers and it is complemented by six Commission implementing Decisions 
covering governance and matching related aspects. 
Title IV (Freedom of persons, services and capital) and V (Area of Freedom, Security and Justice) and title xx 
[add information from consultation. Waiting for contractor synopsis report]. 

283 

 
 
 
ensuring  a  flexible  tool  available  to  support  international  recruitment  when  considered 
necessary and advantageous.  

3  DETAILED DESCRIPTION OF THE POLICY OPTIONS  

The policy options described in detailed below were retained in the mapping stage. wide range 
of  policy  measures  were  identified  and  grouped  under  each  policy  option  to  ensure  a 
comprehensive  assessment  of  all  the  possible  alternative  scenarios.  Alternative  policy 
measures  are  also  described  below.  A  second  stage  assessment  of  the  political  and  practical 
feasibility of the policy measures was conducted (see discarded policy measure under PO2). 

3.1 Option 1: Soft measures aiming at improving information provision and facilitating 

identification and matching (non-legislative option)  

This option would involve non-legislative actions aimed at enhancing information provision 
on immigration procedures, the identification of candidates from third countries available for 
the  recruitment  and  partially  support  the  matching  between  employers  and  TCNs.  This 
option partially builds on existing EU tools, and it would be open to all employers and TCNs 
regardless their occupations. 

Scope of application 

This PO would be open to all TCNs and employers regardless their occupations as it would not 
be  targeting  specific  occupations  of  EU  and  national  relevance.  No  specific  measures 
incentivising  cooperation  management  with  third  countries,  including  in  the  context  of  the 
Talent Partnerships 

Governance 

As described in more detail below the National Contact Points would be designated at national 
level  to  implement  this  initiative.  In  particular,  for  the  purpose  of  implementing  the  online 
portal with a catalogue of profiles, the role of the National Coordinators would be to facilitate 
the  contact  between  employers  and  registered  candidates  (e.g.  no  registration  of  employers, 
and personalised support). 

Key policy measures  

1. Improving the EU Immigration Portal 

The  EU  Immigration  Portal  is  hosted  by  the  European  Commission.  It  was  launched  in 
November  2011  to  provide  hands-on  information  for  TCNs  interested  in  moving  to  the  EU. 
The  website  is  also  directed  at  migrants  who  are  already  in  the  EU  and  would  like  to  move 
from one Member State to another. It offers a general overview of immigration policy in the 
EU and gives specific practical information about national procedures and migration profiles. 
Currently information  on the portal  is  translated in  five languages  (English, Spanish,  French, 
Portuguese,  Arabic)  and  it  is  provided  by  the  national  authorities  in  the  framework  of  the 
European  Migration  Network  (EMN).  The  information  is  periodically  revised  (every  6-7 
months) by the Member States and the European Commission. 

While the EU Immigration Portal represents a useful tool to support TCNs and employers in 
understanding  existing  immigration  procedures,  it  could  be  subject  to  further  improvement. 
The  number  of  visits  on  the  website  shows  that  it  reaches  only  a  limited  part  of  potential 

284 

 
 
interested TCNs. This might be linked to the fact that, i) the website is not sufficiently known 
by TCNs willing to find job opportunities in the EU, ii) it is not sufficiently user-friendly, iii) 
information  on  immigration  procedures  at  national  level  is  not  always  updated,  and  iv) 
translation is provided only in five languages. Therefore, employers and TCNs willing to move 
to work in the EU might face difficulties in easily understanding and navigated the information 
provided.  

In order to ensure better information provision and access to immigration procedures, the EU 
Immigration Portal website could be modernised and upgraded by:  

•  Ensuring  more precise,  clear and up-to-date information on immigration procedures 

by making the updates more frequent; 

•  Transforming  the  website  in  a  customised  tool  enabling  TNCs  and  employers  to 
navigate towards the appropriate type of visa and work permit  and related procedures on 
the basis of their specific profiles. This could be achieved via a questionnaire guiding the 
user in the identification of the relevant migration scheme; 

•  Adding additional information beyond immigration procedures (e.g. living and working 
conditions, language classes, available trainings, resources on family integration, relevant 
national  platforms  with  job  vacancies,  as  well  as  and  information  on  the  recognition  of 
qualifications) 

•  Translating the website in more languages; 
•  Making the website overall more user-friendly via IT developments to upgrade the user 
experience  (this  would  require  redesigning  the  user  interface,  optimising  navigation,  and 
enhancing usability through intuitive layouts and interactive elements) 

The  European  Commission  will  continue  hosting  the  tool  (with  the  possibility  to  rely  on  an 
external  service  provider  for  IT  maintenance,  information  updates  and  translations)  and 
national authorities will provide regular updates existing procedures in the Member States. 

While modernising and updating the EU Immigration Portal would ensure better information 
provision and facilitate access to procedures, it would not have a direct impact on facilitating 
the identification and matching between candidates from third countries and EU employers. 

2.  Organising job-matching events  

This  option  could  also  include  the  organisation  of  job-matching  events,  to  be  advertised 
and  made  accessible  on  the  EU  Immigration  Portal  website.  These  events  could  be 
organised online or in presence and would facilitate the matching between TCNs workers and 
employers as they would be able to get in contact, conduct interviews, assess candidates’ skills 
and  language  knowledge  as  well  as  providing  clear  and  precise  information  of  working 
conditions  and  salary  levels.  In  addition,  targeted  events  linked  to  particular  shortage 
occupations, or a specific Talent Partnership could be organised.  

These events could be organised following the model of the European Job Days - an initiative 
run by the European Labour Authority within the EURES framework. The European Job Days 
cannot be extended as such to include TCNs workers due to legal limitations arising from the 
EURES Regulation being the legal basis for these events. 

The  job-matching  events  would  be  organised  by  the  European  Commission.  National 
Coordinators  would  be  designated  in  the  Member  States  to  support  the  organisation  of  the 
events in terms of technical and logistical assistance. The National Coordinators would also be 

285 

 
 
responsible  to  reach  out  employers  at  national  level  and  conducting  communication 
campaigns. 

3. Setting up an online portal with a catalogue of profiles  

An EU Talent Pool would be developed via a non-legislative instrument. The catalogue would 
be  set  up  via  a  Commission  Recommendation  followed  by  intensive  discussion  and 
cooperation between Member States for the operational development of the online catalogue. 
The  necessary  arrangements,  including  for  theprotection  of  personal  data,  would  need  to  be 
provided  at  national  level  by  interested  Member  States  in  compliance  with  the  EU  data 
protection acquis. 

From  a  technical  point  of  view,  this  option  would  envisage  the  development  of  an  online 
portal where TCNs residing abroad would be able to register their profiles. Profiles could be 
created via a standardised format. However, some adaptations would have to be introduced to 
ensure  that  candidates’  profiles  are  subject  to  pseudonymisation  of  personal  data.  Their 
personal data would only be visible to the National Coordinators which would be established 
in the interested Member States to facilitate the connection between interested employers and 
candidates. The National Coordinators would also be responsible for outreach to employers at 
national and local level. 

The catalogue of  registered profiles would be  available to  employers  participating in  the EU 
Talent Pool. A search function would enable employers to search for candidates’ profiles via 
filters.  

Job  vacancies  would  not  be  included  in  the  pool  and  only  employers  would  be  able  to 
research relevant candidates’ profiles.  

Quality assurances checks on employers would not be conducted prior to the matching with 
interested TCNs.  

3.2 Option 2: Developing an EU Talent Pool targeted to address labour market needs 

in key occupations (legislative option) 

This  legislative  option  would  envisage  the  adoption  of  a  new  legislative  act  (based  on 
Article 79(2)(a)  TFEU)  regulating  the  scope  of  application,  access  criteria,  governance, 
specific features/components and functioning of the EU Talent Pool. The key policy measures 
would include:  

Scope of application 

The EU Talent Pool would be a voluntary system in which only interested Member States can 
decide to participate. Member States would notify the European Commission their interest to 
take part to the EU Talent Pool. As a voluntary tool to facilitate international recruitment, the 
EU Talent Pool would offer additional support at EU level. Hence, Member States would be 
able to  maintain their tools in  place and complement them with  the new platform. Similarly, 
employers and third country nationals residing abroad remain free to decide whether to use this 
tool for international recruitment (using this tool would not be a pre-requisite to obtain a work 
permit  as  the  EU  Talent  Pool  does  not  constitute  a  new  legal  pathway).  Only  employers 
established in the participating Member States would be able to register their job vacancies on 
the portal and search for candidates. Conversely, TCNs registered would be able to search for 
job vacancies only in the participating Member States.  

286 

 
 
The  EU  Talent  Pool  would  target  occupations  of  EU  and  national  relevance.  For  this 
purpose,  the  European  Commission  would  prepare  a  list  of  occupations  of  EU  and  national 
relevance. The list would cover shortage occupations that are strategic for achieving EU goals 
and  objectives,  mainly  linked  to  promoting  economic  growth,  innovation,  sustainability,  and 
competitiveness.  The  identification  of  the  targeted  occupations  would  be  based  on  a  list  of 
occupations  of  EU  and  national  relevance  prepared  by  the  Commission.  In  preparing  the  list 
Member  States’  labour  needs  at  national  and  regional  level  will  be  taken  into  account.  In 
particular,  the  National  Contact  Points  will  share  a  list  of  national  and/or,  where  relevant,  
regional  shortage  occupations  with  the  Commission.  The  shortage  occupations  which  are 
widespread in a significant number of Member States will be included in the list consolidated 
by the Commission.  Reports and data available at EU level on labour shortages in the Member 
States will be taken into account when consolidating the list (e.g. the EURES Report on labour 
shortages  and  Eurofound  annual  report). Once  the  most  relevant  shortage  occupations  in  the 
Member  States  have  been  identified,  additional  shortages  occupations  of  EU  relevance 
would be integrated in the consolidated list (for instance, shortage occupations foreseen in the 
long run and linked to the green and digital transition which are not already identified by the 
Member  States).  These  shortage  occupations  of  EU  strategic  relevance  would  be  linked  to 
economic growth,  innovation, and sustainability considerations as well as strategic migration 
management  objectives  (e.g.  the  occupations  identified  in  the  context  of  the  Talent 
Partnerships with third countries would be taken into account). The list would be constructed 
in  a  flexible way to  ensure that all Member States needs are adequately covered. Hence, the 
final  consolidated list  might  cover  a wide range  of shortage occupations. In addition,  the list 
would  be  subject  to  periodic  revision  to  reflect  evolving  labour  market  needs.  Relevant 
stakeholders  and  industry  representatives  will  also  be  consulted  in  the  preparation  of  the 
consolidated list. 

Therefore, the EU Talent Pool would not be open to all job vacancies, but it would rather be 
limited to those falling within the selected occupations. Only candidates having the right skills 
and  qualifications  to  perform  a  job  in  the  targeted  occupation  would  be  admitted  in  the  EU 
Talent  Pool  following  an  automated  pre-screening.  Under  this  option,  the  alternative  of 
targeting the EU Talent Pool to only highly skilled related professions would also be assessed. 
Under  this  alternative  only  highly  skilled  jobseekers  would  be  allowed  to  register  in  the 
platform.  Highly  skilled  workers  would  be  identified  according  to  the  criteria  defined  in  the 
EU Blue Card Directive and relevant national schemes for the highly skilled. 

The  EU  Talent  Pool  would  be  a  tool  to  facilitate  the  implementation  of  the  Talent 
Partnerships becoming the vehicle through which TCNs from the identified partner countries 
are channelled to a job placement in the participating Member State. Talent Partnerships have a 
targeted  nature  and  relevant  sectors  are  identified  by  common  understanding  between  the 
partner countries and the participating Member States. Hence, they follow a similar logic as set 
out  in  this  PO.  In  practice,  the  occupations  identified  as  of  relevance  in  the  context  of  the 
Talent Partnerships would largely overlap with the shortage occupations identified in the list of 
shortage  occupations  relevant  for  the  EU  Talent  Pool.  Therefore,  the  EU  Talent  Pool  would 
offer  an  effective  tool  to  also  support  the  implementation  of  Talent  Partnerships.  All  TCNs 
who participated in activities in the context of a Talent Partnership would be registered on the 
EU Talent Pool - with the support of liaison officers in the partner countries. This would allow 
employers in the relevant Member State to identify, and recruit interested candidates.  

Third  country  nationals  participating  in  the  Talent  Partnerships  receive  support  for  skills 
development and skills validation in a framework agreed between participating Member States 
and  partner  countries.  This  framework  allows  for  an  enhanced  level  of  trust  from  the  EU 

287 

 
 
employers  in  the  skills  of  these  third  country  nationals.  Therefore,  the  skills  developed  or 
validated in the framework of a Talent Partnership should be visible in the context of the  EU 
Talent  Pool  in  the  form  of  an  ‘EU  Talent  Partnership  pass’.  For  this  purpose,  a  Talent 
Partnership pass would be issued to certify that the third country national benefitted from a 
training  organised  or  supported  by  the  Talent  Partnership  or  had  his/her  skills  and 
competencies  verified  in  this  context.   Once  registered  in  the  EU  Talent  Pool,  the  profiles 
holding a Talent Partnership certificate would be flagged as certified (.   

These  profiles  would  be  accessible,  for  a  certain  period  of  time  (e.g.  1  year)  to  employers 
established  in  a  Member  State  participating  in  a  Talent  Partnership.  This  would  allow 
employers  in  the  relevant  Member  State  to  identify,  and  recruit  interested  candidates  who 
participated in a Talent Partnership. Therefore, the EU Talent Pool would become the tool to 
ensure job placements in the context of a Talent Partnerships. If third country nationals holding 
the  Talent  Partnership  pass  are  not  recruited  by  employers  established  in  a  Member  State 
participating  in  the  Talent  Partnership  after  a  certain  period  of  time,  all  employers  having  a 
registered job vacancy in the EU Talent Pool would be able to search, contact and recruit them.  

Third  country  nationals  having  obtained  an  ‘EU  Talent  Partnership  pass’  would  have  a 
simplified  access  to  the  EU  Talent  Pool.  In  particular,  they  would  be  exempted  from  the 
automated screening carried out in the context of the EU Talent Pool IT platform, as the ‘EU 
Talent Partnership pass’ already guarantees the relevance of their profile for the EU job 
market.   

While the EU Talent Pool would represent a tool to support job placements in the context of 
the Talent Partnerships, it does not constitute the only way to implement those partnerships. As 
the two initiatives remain separate, Member States participating in a Talent Partnership would 
not  be  obliged  to  participate  in  the  EU  Talent  Pool  and  vice  versa.  As  the  EU  Talent  Pool 
would  be  a  voluntary  tool  aimed  at  supporting  Member  States  international  recruitment 
without  replacing  existing  national  tools  or  talent  attraction  policies,  Member  States  remain 
free  to  decide  whether  they  want  to  participate.  This  also  applies  to  Member  States 
participating in a Talent Partnerships.  

On  the  other  hand,  third  country  nationals  who  received  support  under  a  Talent  Partnership 
should always have the possibility to register in the EU Talent Pool as any other third country 
national.  In such case, the third country national would register without  a Talent Partnership 
pass  and would be visible to  employers  established in  all Member States participating  in  the 
EU Talent Pool.  

Governance 

Under this PO, the following actors would be responsible for the EU Talent Pool governance: 

i) The EU Talent Pool Secretariat within the European Commission would be responsible for 
the  overall  management  of  the  EU  Talent  Pool.  In  particular,  it  would  be  setting  up  and 
managing the common IT platform and overseeing the overall implementation of the tool.   

ii) The EU Talent Pool Steering Group composed by Member States representatives from the 
immigration  and  employment  authorities  would  be  responsible  for  discussing  strategic 
orientations relevant for the EU Talent Pool implementation and providing support to the EU 
Talent  Pool  Secretariat  on  a  number  of  aspects  such  as  the  definition  of  the  list  of  EU  and 
national relevance and the annual work programme.  

288 

 
 
iii)  The  EU  Talent  Pool  National  Contact  Points  (NCPs)  would  be  designated  by  each 
participating  Member State and would be responsible for the practical  implementation  of the 
EU Talent Pool at national level, including the coordination with relevant national authorities 
and  the  promotion  of  the  EU  Talent  Pool  in  the  Member  States.  In  particular,  it  would  be 
responsible  for  registering  job  vacancies  of  employers  in  the  EU  Talent  Pool,  and  providing 
personalised  assistance  throughout  the  recruitment  process  as  described  below.  A  greater 
involvement  of  the  national  authorities  is  expected  due  to  the  targeted  nature  of  this  PO.  In 
particular,  NCPs  would  be  required  to  contribute  in  the  identification  of  the  targeted 
occupations  by providing a list of shortage occupations at  national  and regional  level (where 
applicable).  The  NCPs  would  also  be  responsible  for  checking  whether  the  job  vacancy  fall 
within  the  list  of  relevant  occupations  (specific  tools  would  be  envisaged  to  support  in  this 
process:  see  below  under  registration).  In  addition,  NCPs  would  provide  tailored  support  to 
users when online information and standard guidance are not sufficient. (See below for more 
information on the role of NCPs). 

iv) The Talent Partnerships liaison offices may be established in third countries with which 
the Commission  has  launched  a Talent  Partnership.  The liaison  offices  would  be responsible 
for  supporting  the  access  of  TCNs  to  the  EU  Talent  Pool,  delivering  the  ‘EU  Talent 
Partnership pass’ and ensuring the observance of fair recruitment practices.  

IT Platform 

This PO would require the development of an IT platform. The platform would bring together 
profiles  registered  by  job  seekers  from  outside  the  Union  and  job  vacancies  of  employers 
established in the Member States in the Member States participating in the EU Talent Pool and 
falling within the shortage occupations identified in the list of Eu and national relevance. The 
platform would integrate specific features to facilitate the identification and  matching as well 
as  the  provision  of  online  information  and  personalised  support  throughout  the  recruitment 
process before starting the immigration procedures. 

The  EURES  IT  solution  would  be  partially  re-used  (e.g.  job  vacancies  database,  single 
coordinated channel, search engine, automatic matching tool). Those components that cannot 
be re-used from EURES would be developed from scratch (e.g. interface, CVs database).  

As  certain  elements  of  the  EURES  IT  solution  would  be  re-used,  the  EU  Talent  Pool  would 
automatically  be  interoperable  with  EURES  and  the  national  platforms.    Member  States 
having  in  place  national  recruitment  platforms  or  other  online  tools  specifically  targeted  to 
international  recruitment  would  be  able  to  complement  them  with  the  EU  Talent  Pool  as 
technical  interoperability  with  the  national  systems  would  be  ensured  via  an  application 
programming interface (API). Therefore, the competent authorities in the Member States (such 
as  the  Public  Employment  Services)  would  be  able  to  access  in  one  go  job  vacancies  and 
jobseekers’ profiles registered in the national and EU databases. This would ensure access to a 
wider pool of profiles while avoiding duplication and proliferation of platforms. The partial re-
use  of  the  EURES  IT  solution  under  this  PO  would  allow  to  re-use  the  already  existing 
interoperability structure and only small adaptations would be required. 

The  visual  and  the  table  below  provide  an  overview  of  the  EU  Talent  Pool  platform 
functioning from an IT point of view highlighting which IT elements from EURES would be 
re-used. 

289 

 
 
Feature 

Application of the feature 

A  single-entry  point  for  TCNs  using  the  EU  Talent  Pool 
should be created, using the EU Talent Pool branding. 

Existing or new 

New development 

Dedicated 
entry  point 
with  EU  Talent  Pool 
branding 
entry  point 
Dedicated 
with  the  EU  Talent  Pool 
branding 
Profile registration 

Europass CVs 

Automated  pre-screening 
tool 

CVs TCNs 

Search Engine 

Job Vacancies 

Interoperability 
national platforms  

with 

User journey 

A single-entry point for employers using the EU Talent Pool 
should be created, using the EU Talent Pool branding. 

New development 

Profile  registration  should  be  created  to  allow  TCNs  to 
create their profile in the tool 
Europass  should  be  adapted  in  order  to  allow  for  TCNs  to 
create and manage their CVs in Europass. 
The  pre-screening  tool  would  verify  a  number  of  standard 
information for each TCN registering in the EU Talent Pool. 
Some  of  the  standard  information  to  be  checked  would  be, 
identity,  sector  of  occupation,  education  level,  completed 
application and others to be specified at a later stage. 
A  database  should  be  created  to  store  the  CVs  of  TCNs 
registered in the EU Talent Pool. 

The existing search engine for EURES should be adapted to 
be re-used for searches within the EU Talent Pool. 
The existing EURES database with job vacancies should be 
adapted  in  order  to  allow  for  the  addition  of  a  “flag” 
indicating  that  a  job  vacancy  is  open  to  TCNs.  The  job 
vacancies  database  should  be  modified,  no  new  job 
vacancies database should be created for the EU Talent Pool 
The  currently  existing  application  programming  interface 
(API) that allows NCPs to upload job vacancies to EURES 
should be adapted to allow the registration of job vacancies 
accessible to TCNs on the EU Talent Pool 

New development 

Adaption  from  existing 
feature 
New development 

New development 

Adaption  from  existing 
feature 
Adaption  from  existing 
feature 

Adaption  from  existing 
feature 

1) Registration of job vacancies and TCNs profiles:  

290 

 
 
 
•  TCNs would be able to directly register their profile on the EU Talent Pool. Profiles would 
be created using the EUROPASS profile builder tool and would include relevant information 
such  as  personal  details,  academic  and  professional  qualifications,  work  experience,  micro 
credential,  and  language  knowledge.  TCNs  registering  their  profiles  would  also  have  the 
possibility  to  upload  documents  certifying  the  declared  skills  and  qualifications.  The 
possibility  of  exporting  job  vacancies  from  existing  national  job  portals  as  well  as  other  IT 
support tools would be envisaged to support in this process. Only job vacancies falling within 
the targeted occupations and open for the recruitment of TCNs following the labour market test 
would be made available on the EU Talent Pool platform. 

•  Job vacancies of employers would be registered by NCPs. 

The  format  of  jobseekers'  profiles  and  job  vacancies  would  be  built  using  the  existing 
European classification of occupations, skills, competencies and qualifications (ESCO), which 
stands as the basis for further matching via the EU Talent Pool IT platform. 

2) Pre-screening of TCNs:  

As  this  PO  would  target  certain  occupations,  an  automated  pre-screening  of  TCNs  would 
allow to check whether the skills and qualifications declared in the profile correspond to those 
normally required to work in one of the targeted occupations. An IT automated tool would be 
developed  for  this  purpose.  These  checks  would  not  entail  an  assessment  of  the  quality  and 
authenticity of the declared skills and qualifications. The pre-screening would be based on the 
qualifications  and  skills  declared  by  the  applicant  at  the  moment  of  the  profile  registration. 
Only  profiles  successfully  pre-screened  against  the  job  vacancies  available  in  the  platfom 
would be visible to employers. 

The possibility to also conduct  ID security checks on TCNs profiles prior the admission into 
the EU Talent Pool would also be assessed.  

3) Safeguards for fair recruitment: Employers using the EU Talent Pool would be required 
to comply with the relevant European legislation and national labour standards to third-country 
nationals’  protection  against  unfair  recruitment  and 
inadequate  working  conditions. 
Employers’ access to the platform would be suspended and their job vacancies removed by the 
EU  Talent  Pool  National  Contact  Poinsin  case  a  breach  is  notified  by  the  relevant  national 
authorities.  NPCs  conduct  such  monitoring  activities  in  accordance  with  their  national  rules 
and  practices.  Therefore,  checks  on  additional  aspects  going  beyond  the  provisions  of  the 
Charter may be conducted in case more protective rules are foreseen in the national legislation. 

4)  Search  and  matching:  Once  admitted  in  the  EU  Talent  Pool  employers  will  be  able  to 
search and contact  candidates. Candidates will be able to  search for job  vacancies. A search 
functionality  via  filters  and  a  semi-automatic  matching  tool  would  facilitate  the 
identification of candidates and job vacancies. The semi-automatic matching tool would show 
the list of candidates who better match with the job vacancy requirements by providing a rating 
for each profile. In addition, personalised support would be provided by NCPs throughout the 
entire recruitment process including with regard to the identification of suitable candidates and 
job vacancies.  

5)  Validation  of  candidates’  profiles:  Third-country  nationals  skills  and  qualifications 
obtained  in  third  countries  could  be  validated  under  this  option.  Two  alternatives  would  be 
assessed:  

291 

 
 
i) The validation of candidates’ profiles is conducted at national level by the relevant actors 
(e.g.  NARICs  centres  at  national  level)  when  considered  necessary  by  the  TCN  or  the 
employer.  While  information  and  guidance  would  be  provided  in  the  platform  on  existing 
validation procedures in the Member States, the individual skills would not be validated by the 
EU  Talent  Pool  platform  itself.  However,  by  facilitating  third  country  nationals’  access  to 
information on the relevant recognition and validation procedures at national level they would 
have  more  clarity  on  the  different  requirements,  hence  making  their  access  to  this  process 
easier  and  faster.  In  particular,  the  targeted  nature  this  PO2  would  allow  to  ensure  more 
specific guidance on validation of skills required in the relevant occupations;  

ii)  The  alternative  of  developing  a  mandatory  validation  process  of  all  TCNs  profiles 
conducted  at  EU  level  prior  the  admission  to  the  EU  Talent  Pool  would  also  be  assessed. 
Under  this  option,  an  EU  level  validation  procedure  for  skills  and  qualifications  obtained  in 
third countries should be developed by harmonising existing divergent practices in the Member 
States. This alternative would also entail the identification of the relevant actor to conduct the 
validation of skills and qualifications. This could be done by entrusting existing EU agencies 
or  establishing  an  external  third-party  validator.  The  third-party  assessment  could  involve 
private recruitment agencies offering candidates the validation of the self-declared information 
and issuing an assessment. The option of multiple accredited trusted parties depending on the 
specific occupation related credentials could also be explored. 

Additional components 

1) Provision of online information  

information  on 

Provision  of  online 
and 
validation/recognition of qualifications and skills obtained in third countries as well as living 
and  working  conditions  would  be  available  on  the  EU  Talent  Pool.  This  would  facilitate  the 
understanding  of  existing  rules  in  the  different  Member  States  and  facilitate  access  to 
procedures.  To  avoid  excessive  burden  on  the  national  authorities,  standard  guidance  and 
FAQs would be developed. 

immigration  procedures 

recruitment, 

For this purpose, the online information already available on the EURES portal would be re-
used, in particular with regard to living and working conditions in each Member State.  

Similarly,  information  on  immigration  procedures  provided  on  the  EU  Immigration  Portal 
would be embedded in the EU Talent Pool platform or a link to the relevant website would be 
provided. 

In  addition,  specific  information  on  recognition  and  validation  procedures  in  the  Member 
States would be accessible on the platform. The EU Talent Pool platform would also provide 
links  with  relevant  transparency  and  comparability  tools  developed  at  EU  level,  therefore 
improving their visibility. 

Information  available  at  national  level  to  facilitate  TCNs’  integration  in  the  host  Member 
Sate such as language courses, vocational training and support with integration would also be 
provided  as  well  as  specific  guidance  on  family  reunification  procedures  and  family 
members’ rights.  

2) Personalised support and guidance  

Upon request from TCNs and employers participating in the EU Talent Pool, the NCPs would 
provide  personalised  support  and  post-selection  assistance    in  particular  with  regard  to 
information  on  family  reunification  procedures  and  family  members’  rights; information 

292 

 
 
available at national level to facilitate third-country nationals’ integration in the host Member 
State such as language courses, vocational training and other integration measures;  and where 
available, the contact details of organisations which offer post-recruitment assistance for third 
country nationals. 

3) Measures facilitating the recruitment process  

The  possibility  for  Member  States  to  introduce  facilitation  measures  aimed  at  making  the 
recruitment  process  easier  and  faster  would  also  be  envisaged.  In  particular,  facilitation 
measure  may  include  the  possibility  to  set  up  fast-track  immigration  procedures  to  obtain 
visa and work permits as well as accelerated procedures for the recognition of qualifications 
obtained  in  third  countries.  In  addition,  exclusions  from  the  labour  market  test  could  be 
foreseen for job vacancies falling within the list of occupations of EU and national relevance 
targeted by the EU Talent Pool. 

Policy measure discarded at an early stage 

Mandatory pre-admission validation of all TCNs at EU level by a third-party validator 

This policy measure implies that a profile of a TCN cannot be visible for employers in the EU 
Talent Pool, until his/her skills and qualifications are validated by an EU validator.  This would 
require  the  development  at  EU  level  of  a  harmonised  procedure  to  validate  skills  and 
qualifications obtained in third countries which is recognised in all Member States. While the 
validation  of  all  candidates’  profiles  prior  the  admission  would  ensure  the  development  of  a 
highly  trusted  pool  of  candidates,  hence,  improving  the  quality  of  matches,  this  option 
appeared problematic for the following reasons: 

•  First, validation procedures are currently conducted at national level and widely differ from 
one  Member  State  to  another  (see  Section  2.2.2).  At  this  moment  in  time  it  is  not 
practically  and  politically  feasible  to  harmonise  such  processes.  In  addition,  it  would 
require  the  identification  of  a  responsible  actor  at  EU  level  to  conduct  such  validation. 
Existing EU agencies could not be tasked with this new responsibility without requiring an 
extension  of  their  current  mandate.  Tasking  an  EU  agency  with  this  responsibility  or 
establishing  a  new  entity  in  charge  of  validation  of  skills  and  qualifications  at  EU  level 
would require extensive resources.  

• 

Imposing  the  validation  of  all  profiles  prior  the  admission  into  the  pool  would  appear 
disproportionate and counterproductive as it would create bottlenecks, high costs and long 
waiting  times  for  TCNs  to  access  the  tool.  As  validation  is  not  always  a  mandatory 
requirement to  obtain a  work permit  and it is  not  considered necessary by all employers, 
this solution would run against the need of ensuring a flexible tool making easier and faster 
to recruit internationally. In addition, only a limited number of candidates who have been 
successfully  validated  would  be  admitted  to  the  platform  entailing  a  smaller  pool  of 
candidates to which employers can rely on. 

293 

 
 
Option 2: Developing an EU Talent Pool targeted to address labour market needs in key occupations (legislative option) 

• Voluntary system (only interested Member States decide to participate and notify to the European Commission their interest); or 
• Mandatory system for all Member States [discarded alternative] 
• Targeted to occupations of EU and national relevance (all skills levels); or 
• Targeted only to highly skilled occupations [alternative] 
Tool to facilitate the implementation of Talent Partnerships (vehicle through which TCNs from the identified partner countries are channelled to a job placement in the participating Member 
State). Specific rules on registration, participation and validation [additional facilitations] 

Scope of application 

i) Secretariat within the European Commission; 
ii) Steering Group (Member States representatives from the immigration and employment authorities);  
iii) National Contact Points (NCPs) designated by each participating Member State; 
iv) Talent Partnerships liaison officers in partner countries. 

Governance 

IT solution 

Interoperability 

Registration 
Pre-screening and Safeguards for fair recruitment: 

Search and matching 

Validation of candidates’ profiles 

EURES IT solution partially re-used 

IT platform 

Automatically interoperable with EURES platform and national system since same IT solution (only small adaptations required) 

User journey 

Third-country nationals 

Employers 

Direct registration of the profile on the EU Talent Pool  

Registration of job vacancies by NCPs 

Automated pre-screening via-à-vis list of relevant occupations 

Candidates can search for job vacancies via filters 
Semi-automatic matching tool facilitating the matching (re-using EURES tool) + personalised support by NCPs 
TCNs’ profiles validation (either upon request at national level or mandatory for all at EU level) 

Employers’compliance with European legislation and 
national labour standards 
Employers can search (via filters) and contact candidates 

Online information 

Online information on recruitment, immigration procedures and validation/recognition etc.  

Personalised support and guidance 

Personalised assistance by NCPs to TCNs and employers (information on recruitment, immigration procedures and validation/recognition of 
qualifications and skills, working and living conditions as well as tailored assistance on matching process) 

Facilitation measures 

Option for Member States to introduce fast-track immigration and recognition procedures and exclusion from LMT 

Additional components 

294 

 
 
 
3.3 Option  3:  Developing  an  EU  Talent  Pool  as  a  fully  demand-driven  tool  (legislative 

option) 

This option envisages the adoption of a new legislative act (based on Article 79(2)(a) TFEU) 
regulating  the  scope  of  application,  access  criteria,  governance  and  functioning  of  the  EU 
Talent Pool. 

Scope of application 

As  a  voluntary  tool  to  facilitate  international  recruitment,  the  EU  Talent  Pool  would  offer 
additional  support  at  EU  level.  Similarly,  employers  and  third  country  nationals  residing  abroad 
remain free to decide whether to use this tool for international recruitment (using this tool would not be 
a pre-requisite to obtain a work permit as the EU Talent Pool does not constitute a new legal pathway).  

The  EU  Talent  Pool  would  not  be  targeting  certain  shortages  occupations.  Thus,  EU 
employers  would  be  able  to  register  their  job  vacancies  on  the  platform  regardless  of  their 
specific  sector  or  occupations.  Conversely,  all  TCNs  would  be  able  to  register  on  the  EU 
Talent Pool without any limitation in terms of specific skills or qualifications required.389 

While TCNs and employers from partner countries and Member States participating in a Talent 
Partnership  would  be  allowed  to  register  in  the  EU  Talent  Pool  as  any  other  users,  this  PO 
would  not  foresee  the  platform  as  a  tool  to  specifically  implement  the  Talent 
Partnerships.  Therefore,  additional  facilitations  would  not  be  included,  and  the  EU  Talent 
Pool would not be the channel for job placements in this context. 

Governance:  Whilst  not  necessarily  building  on  the  EURES  governance  model,  PO3  would 
still  require  the  running  of  the  platform  at  EU  level  by  the  EU  Talent  Pool  Secretariat.  The 
Steering  Group  composed  by  Member  States’  representatives  from  the  immigration  and 
employment  authorities  would  define  operational  objectives  at  higher  political  level.  As  per 
PO2,  National  Contact  Points  (NCPs)  would  be  designated  in  the  Member  States.  However, 
while the involvement of the Member State would be lower due to its open and fully demand-
driven  nature  (e.g.  no  list  of  shortage  occupations  at  national  level,  no  registration  of 
employers), a greater involvement of the National Contact Points would result from the higher 
number of users potentially requiring their support. This could also result in increased efforts 
linked to the monitoring activities.. However, as no special link with Talent Partnerships would 
be  included,  this  PO  would  not  envisage  the  establishment  of  Liaison  offices  in  partner 
countries.   

IT platform  

As  per  PO2,  this  PO  would  require  the  development  of  an  IT  platform  bringing  together 
profiles  registered  by  jobseekers  from  outside  the  Union  and  job  vacancies  of  employers 
established in the Member States participating in the EU Talent Pool. 

Under this PO, a completely new IT solution would be developed via a job-matching system 
that  it  is  fully  based  on  AI-based  algorithms  inspired  by  existing  private  sector  platforms.  A 
completely new IT solution is envisaged due to the wider scope of this PO which would cover 
all  range  of  possible  occupations,  and  therefore  would  require  cutting-edge  technologies 

389  

Leaving  the  EU  Talent  Pool  open  would  imply  a  more  demand-based  approach  able  to  better  address  the  actual 
recruitment needs of EU employers. 

295 

 
 
 
allowing  to  better  identify  and  match  job  vacancies  and  profiles  (e.g.  such  as  advanced 
language programs, and AI driven algorithms) (see Annex 9 for a more detailed description of 
the IT solution). Under Option 3, there is an intention to incorporate cutting-edge technologies, 
including  advanced  language  programs,  AI-driven  algorithms,  and  an  enhanced  user 
experience. The development of a new IT architecture would require the design of the relevant 
functionalities in order to allow the effective functioning of the EU Talent Pool and make it fit 
to its purpose. While the IT components and functionalities would be similar to those described 
under  PO2,  this  PO  would  not  foresee  the  re-use  of  certain  EURES  elements.  Unlike  PO2, 
where the use of existing EURES resources could potentially limit the inclusion of state-of-the-
art solutions, PO3 is strategically positioned to maximize the benefits of the latest technology 
available.  PO3  would  not  use  the  pre-existing  infrastructure  and  EURES  components.  This 
opens the way to innovation but requires greater development and maintenance efforts. It also 
guarantees the assimilation of the most advanced technological tools available.  

Advanced  programming  languages  enhance  the  capabilities  of  programming  features  (e.g., 
(OOP)390,  event-driven  programming391,  multithreaded 
object-oriented  programming 
programming392) that enable developers to create highly efficient code compared to lower-level 
programming languages, on which the platform would partly depend in the case of PO2. 

These capabilities can enhance the development process, potentially enabling the creation of a 
very user-friendly interface, optimising the platform for high performance, and ensuring code 
modularity and maintainability over time.  

The  incorporation  of  AI-driven  algorithms  significantly  amplifies  the  platform’s  capabilities. 
This  includes  the  integration  of  an  AI-driven  matching  tool  for  enhanced  accuracy,  the 
inclusion of analytics for data-driven insights, the provision of personalised recommendations 
for a tailored user experience, and the utilisation of chatbots for efficient information sharing 
and counselling.  

The  use  of  AI-driven  algorithms  in  the  process  of  job  search  and  matching  offers  the 
possibility to use data with greater efficiency and expediency. They can continuously learn and 
refine their capabilities thanks to ongoing interactions with users and the assimilation of new 
data,  mainly  through  dynamic  functions,  including  machine  learning  techniques  to  perform 
more precise matching. 

Advanced  algorithms  have  the  capacity  to  operate  across  a  broader  spectrum  of  data  used 
during  the  matching  process.  In  contrast  to  traditional  algorithms,  which  demand  structured 
data  (standardised  data  formats  for  instance  jobseeker  data  gathered  via  online  forms),  AI 
algorithms can process unstructured data393, such as the free-textual content or images within a 
job  seeker's  CV  (that  is  not  in  the  Europass  format)  or  a  job  vacancy’s  description.  The  key 
principle  here  is  the  analysis  of  unstructured  data  and  its  transformation  into  a  structured 
format. This again enables a more precise matching.  

390  

391  
392  

393  

A  programming  model  that  organises  related  data  variables  and  functions  into  single  units,  known  as  objects,  to 
reduce source-code complexity and increase its reusability. 
This feature allows events, such as a user’s mouse click, to determine a program’s actions. 
This feature llows central processing units (CPUs) to execute multiple sets of instructions concurrently as part of a 
single process. 
Structured  data  is  information  that  is  organised  and  formatted  in  a  consistent,  predefined  manner.  It  follows  a 
specific  data  model  or  schema,  which  means  that  data  elements  are  clearly  defined,  labelled,  and  arranged  in  a 
predictable format. Unstructured data, in contrast, does not follow a specific format or data model. 

296 

 
 
 
In  addition,  advanced  algorithms  can  analyse  the  behaviour  of  jobseekers  when  they  are 
searching  for  a  job.  For  instance,  they  can  analyse  users’  browsing  habits  to  identify  offers 
similar to those they have already consulted. 

Advanced  algorithms  employed  by  job  search  and  matching  platforms  can  delve  into  the 
behaviour  of  both  jobseekers  and  employers.  When  it  comes  to  jobseekers,  these  algorithms 
can analyse their browsing habits, tracking the job listings they explore and engage with, and 
the  specific  search  criteria  they  employ.  This  behavioural  analysis  allows  the  algorithms  to 
gain valuable insights into jobseeker preferences and interests. An application of this analysis 
is the delivery of highly personalised job recommendations. When a jobseeker interacts with a 
particular job listing, the algorithm can identify similar opportunities based on diverse criteria, 
such  as  job  title,  skills,  and  location.  This  not  only  widens  the  jobseeker's  search  but  also 
enhances user engagement and job matching precision, benefiting jobseekers. Simultaneously, 
from  the  employer's  perspective,  this  means  better  connections  with  candidates  who  are 
genuinely  interested  and  well-suited  for  their  job  listings.  It  streamlines  the  recruitment 
process, improves the quality of applicants, and reduces time-to-hire.  

In addition, an AI algorithm might analyse data on job vacancies and hiring trends over time to 
identify  patterns  in  the  types  of  skills  that  are  in  demand.  It  could  then  use  these  patterns  to 
predict future trends, such as which skills are likely to be in high demand in the future. 

Moreover, AI algorithms can model various scenarios based on this analysis. For example, it 
could simulate the impact of a new technology on the labour market, predicting how it might 
change the demand for certain skills. 

In  this  way,  AI  can  provide  valuable  insights  into  labour  market  dynamics.  It  can  help 
anticipate  labour  shortages  and  skill  requirements  arising  from  the  integration  of  emerging 
technologies.  This  information  can  be  used  by  policymakers,  educators,  and  businesses  to 
make  informed  decisions  about  education  and  training  programs,  recruitment  strategies,  and 
other initiatives. 

Furthermore, leveraging advanced techniques and methodologies (including deep learning), AI 
can provide personalised training and skills development recommendations.  

A  detailed  comparison  between  advanced  algorithms  functionalities  and  traditional  ones  is 
provided in the table below: 

Traditional algorithms 

Advanced algorithms 

Data  type  used  for 
matching  

location, 

Primarily  use  structured  data 
(e.g., 
and 
experience)  to  match  CVs  with 
job vacancies 

skills, 

both 

structured 

Process 
and 
unstructured data, such as free text 
in  CVs  or  job  descriptions,  and 
analyse  user  behaviour  to  identify 
similar job offers 

Learning 

Static,  based  on  predefined  rules 
and parameters 

Dynamic,  capable  of  continuous 
learning  and  refinement  through 
ongoing  interactions  with  users 
and assimilation of new data 

Analytics: 

Limited  capability,  if  any,  for  Leverage  advanced  optimisation 

297 

 
 
 
 
 
 
 
predictive 
inferences 

predictive inferences 

to  make  predictive 
techniques 
inferences  with  implications  for 
labour market dynamics 

training 
skills 

Analytics: 
and 
development 
recommendations 

Limited  capability,  if  any  (based 
on predefined rules)  

training 

Can  provide  personalised  and 
dynamic 
skills 
development 
recommendations 
tailored to the individual’s specific 
needs and preferences 

and 

Information sharing  Limited rule-based chatbots 

Intelligent chatbots (conversational 
chatbots) 

As a completely new IT solution would be developed, interoperability with EURES and the 
national  platforms  should  be  created  from  scratch  via  the  development  of  dedicated 
application  programming  interfaces  (APIs).  As  under  this  PO  a  completely  new  IT  solution 
would be developed, interoperability with the national platforms would be created from scratch 
via  the  development  of  dedicated  application  programming  interfaces  (APIs). As  per  PO2, 
interoperability  with  national  systems  would  allow  the  competent  authorities  in  the  Member 
States  (such  as  the  Public  Employment  Services)  to  accessjob  vacancies  and  jobseekers’ 
profiles registered in the national and EU databases in one go.  

In addition,  interoperability with private platforms  (e.g. LinkedIn) would  also  be ensured. 
In practice, , this would entail:  

•  Application  Programming  Interfaces  (APIs)  integration:  LinkedIn,  like  many  other 
online platforms, shall offer APIs that allow external  systems  to  interact  with  its data 
and services.  

•  Data mapping: data mapping involves defining how data fields in the EU  Talent Pool 
align with those in LinkedIn. For example, mapping the "Skills" section in a LinkedIn 
profile  to  the  "Skills  and  Qualifications"  section  in  the  EU  Talent  Pool.  This  ensures 
that the imported data is structured correctly. 

•  Data  synchronisation:  the  systems  would  need  to  periodically  synchronise  data  to 
ensure that profiles on both platforms remain up to date. For example, changes made to 
a job vacancy on LinkedIn should be reflected in the EU Talent Pool, and vice versa. 

•  User experience: from a user perspective, this interoperability would mean that TCNs 
can seamlessly register and update their profiles on the EU Talent Pool using data from 
their LinkedIn profiles. It simplifies the registration process and reduces redundancy. 

User journey 

1) Registration of job vacancies and TCNs profiles:  

•  TCNs would be able to directly register their profiles on the EU Talent Pool under 

the same conditions and requirements described under PO2.  

298 

 
 
 
•  By contrast to PO2, employers would be allowed to directly register their vacancies on 
the platform without any involvement of the national authorities as it would be open to 
all  occupations  and,  hence  all  type  of  job  vacancies.  Under  this  PO,  an  online 
registration form would be developed. The job vacancies format would be built using 
the  existing  European  classification  of  occupations,  skills,  competencies  and 
qualifications (ESCO).  

2) There would not be any pre-screening of TCNs profiles. 

3) Safeguards for fair recruitment: Under this PO three alternatives would be considered:  

i.  No quality  assurance checks on  employers would be conducted  following their direct 

registration on the platform;  
Same as per PO2; 

ii. 
iii.  A  new  tool  allowing  the  automated  pre-screening  of  employers’  profiles  and  job 
vacancies  would  be  developed.  Use  of  advanced  matching  algorithms  would  be 
considered under this PO. A semi-automatic matching tool would assist in the matching 
process, with personalised support provided by NCPs.  

Employers  would  adhere  to  the  Chart  for  Fair  Recruitment  defined  by  the  participating 
Member States on the basis of EU and international standards. 

4)  Search  and  matching:  Same  as  PO2.  By  contrast  to  PO2,  a  new  search  by  filters 
functionality  and  semi-automatic  matching  tool  would  be  developed  as  the  existing  EURES 
components would not be re-used.  

Additional components  

Same as PO2 but Member States would be obliged to introduce facilitation measures aimed 
at making the recruitment process easier and faster.  

299 

 
 
 
 
Option 3:  Developing an EU Talent Pool as a fully demand-driven tool (legislative option) 

Scope of application 

• Voluntary system (only interested Member States decide to participate and notify to the European Commission their interest); or 
• Mandatory system for all Member States [alternative] 
Open to all sectors/occupations  

No specific rules on Talent Partnerships supporting their implementation  

Similar to PO2 (but no EURES model and greater involvement of NCPs) 

Governance 

IT platform 

IT solution 

Interoperability 

New IT solution (no re-use of EURES) 

Interoperable with EURES, national and private platforms (newly developed) 

Third-country nationals 

Employers 

User journey 

Registration 

Direct registration of the profile on the EU Talent Pool  

Direct registration of job vacancies  

Pre-screening and safeguards for fair 
recruitment 

No pre-screening of TCNs  

Validation of candidates’ profiles 

No validation of TCNs’ profiles  

• No checks on employers  
• Same as PO2 [alternative] 
• Automated checks on employers [alternative] 

Search and matching 

Candidates can search for job vacancies via filters  

Employers can search (via filters) and contact candidates 

Semi-automatic matching tool 

Semi-automatic matching tool facilitating the matching (newly developed) + personalised support by NCPs 

Additional components 

Online information 

Same as PO2 

personalised support and guidance 

Same as PO2 

Facilitation measures 

Obligation for Member States to introduce fast-track immigration and recognition procedures and exclusion from LMT 

300 

 
 
 
 
 
 
ANNEX 10  
ASSESMENT OF COST AND BENEFITS OF THE POLICY OPTIONS394 

The  key  assumptions  underlying  the  assessment  of  costs  and  benefits  are  described  in  detail  in 
Annex 4. As different scenarios of the initiative uptake by the Member States are envisaged (11 
Member States participating or 20 Member States participating), the costs and benefits described 
below are indicated in ranges depending on the number of Member States participating.  

1. ASSESSMENT OF THE COSTS AND BENEFITS 
Each policy option is expected to generate costs and cost-savings.  

The costs  are related to  the  development and  implementation of the  EU Talent Pool and are 
primarily borne by the European Commission and Member States authorities395. These costs fall 
into several categories, such as governance, IT platform, user journey, and additional components, 
which are further detailed below. The costs associated with the different options vary according to 
the  number  of  potential  users  and  Member  States  participating  in  the  Talent  Pool  (as  described 
above in Annex 4).396  

IT  costs  associated  with  each  policy  option  were  determined  using  a  parametric  estimation 
approach.  This  methodology  relied  on  several  key  proxies,  including  historical  cost  breakdown 
data  from  existing  platforms  like  EURES,  full-time  equivalent  (FTE)  costs  based  on  eu-LISA's 
Maintenance Working Order (MWO) contracts and projections for the quantity of job offers and 
CVs.  Additionally,  considerations  regarding  the  number  of  participating  Member  States  and 
development  efforts  estimated  in  collaboration  with  relevant  stakeholders,  including  private  IT 
service  providers  and  local  public  employment  services  (PES),  as  well  as  the  size  of  the 
development team, were taken into account to estimate IT costs. 

Non-IT costs (e.g. governance costs) associated with each policy options were calculated on the 
basis  of  a  number  of  sources.  Overall,  the  governance  costs  were  estimated  by  considering  the 
current  costs  associated  with  the  EURES  network  governance  and  adjusting  these  figures  (i.e., 
staff costs and budget for activities) on the basis of the expected successful matches under each 
policy option. In particular, costs for the governance at EU level was based on the experiences of 
the  European  Coordination  Office  within  the  European  Labour  Authority  which  is  in  charge  of 
managing    EURES397.  Similarly,  with  regard  to  the  costs  associated  with  the  governance  at 
national  level,  the  experience  of  the  National  Coordination  Offices  implementing  EURES  at 

394  

395  

396  

397  

Costs in this Annex that refer to the period after 2027 are indicative and do not prejudge the  available budget under the 
next MFF. 
Costs for EU employers and jobseekers are minimal (e.g., costs of registering the vacancy or creating the profile) and not 
significant enough to require estimation. Additionally, there are also costs for employers that do not require estimation 
because not directly impacted by the Talent Pool initiative. For instance, the administrative preparation of the vacancy 
notices is considered as baseline as it is a recurrent cost for employers also in current employment practices (i.e., without 
the Talent Pool initiative). 
The  cost  estimates  have  been  adjusted  by  using  the  expected  numbers  of  profiles  admitted  to  the  Talent  Pool  and  of 
successful matches under the different policy options, as well as the estimated number of job openings. 
Figures on this are taken from ELA’s Single Programming Document 2023 – 2025 and inputs from interviews with ELA 
and the European Commission conducted by the contractor. 

301 

 
 
 
 
 
national level was used as a proxy398.  More details on the sources and methodologies to calculate 
the costs are explained under each policy option. 

On the other hand, the cost-savings for TCNs and employers arise from streamlining the standard 
steps of international recruitment.  

Cost-savings should be assessed against a baseline. The latter is given by the  current costs and 
length of a standard international recruitment process. Costs depend on a number of factors, 
including different national contexts (e.g. national labour laws), the sectors/occupations involved 
(e.g. whether they are in shortage, if they are regulated or non-regulated professions), type of TCN 
(e.g.  seasonal  worker,  highly-qualified  worker,  researcher),  the  worker’s  level  of  education,  the 
worker’s country of origin and whether bilateral partnerships exist with the EU Member State, the 
size  of  the  hiring  firm  (e.g.  SMEs,  multinational).  Given  the  large  number  of  variables  that  can 
affect cost estimates, the recruitment process for an average employed worker was considered as a 
baseline399.  

Therefore, to  estimate the savings, the monetary and time costs associated with the standard 
international  recruitment  process  were  analysed  and  compared  with  the  ones  expected  by 
using the EU Talent Pool.  

These cost-savings are grouped into three categories: employment-related steps, immigration-
related  steps,  and  opportunity  costs.  The  latter  category  evaluates  the  potential  gains  in  wages 
and  revenues  that  jobseekers  and  employers  can  achieve  by  utilising  the  Talent  Pool  instead  of 
following standard procedures. In the context of the EU Talent Pool initiative, opportunity costs 
are  particularly  relevant  when  comparing  the  benefits  of  using  the  Talent  Pool  for  international 
recruitment against the traditional recruitment procedures (i.e., business as usual). For employers, 
the  opportunity  cost  lies  in  the  potential  gain  in  turnover  (or  productivity),  while  for  TCNs  it 
relates  to  the  potential  gain  in  wages,  that  could  be  achieved  when  going  through  a  more 
expedient process via the Talent Pool, rather than following normal procedures.400 

The main categories used for this assessment are outlined in the table below:  

Category 

Subcategory 

Type of cost/cost-
savings 

Stakeholders bearing 
the cost/ benefitting 
from cost-savings 

398  

399  

400  

Estimates on the costs of the NCOs come from the ad-hoc survey to NCOs conducted by the contractor, triangulated with 
ex-post EURES evaluation. 
The  average  time  needed  for  international  recruitment  ranges  between  2-3  months  for  employers  and  TCNs.  To  this, 
additional  2-3  months  should  be  added  for  immigration  procedures  (i.e.  LMT  and  obtaining  and  visa/work  permit), 
bringing  the  total  duration  of  international  recruitment  to  around  4-6  months  on  average.  The  costs  associated  with 
international recruitment are normally borne by employers. The average cost to employers of recruiting a third country 
national can be between EUR 1 500 and EUR 2 500 per candidate (excluding relocation costs). This cost can rise to EUR 
8 500-10 000 when adding services of international recruitment agencies. However, these represent very specific cases 
(e.g.  highly  specialised  or  technical  skills  needed,  high  level  positions)  and  have  therefore  not  been  included  in  the 
calculation of cost-savings.  
Opportunity costs are the potential benefits or gains that are forgone or sacrificed when choosing one course of action 
over  another.  In  the  context  of  the  EU  Talent  Pool  initiative,  opportunity  costs  become  particularly  relevant  when 
comparing the benefits of using the Talent Pool for international recruitment against the traditional steps. The time used 
by employers in looking for candidates, and by TCNs in looking for a job, entails losses in turnover (for employers) and 
wages (for TCNs). By accessing the Talent Pool, employers and TCNs will cut the time needed to recruit or find a job, 
thereby reducing their losses in turnover and wages.  

302 

 
 
 
 
Costs associated with the implementation of the EU Talent Pool 

Governance 

EU and national level 

One-off and recurrent 

EU Commission, 

IT platform 

Development and 
maintenance 

One-off and recurrent 

National authorities 

User journey 

• Profile registration 

One-off and recurrent 

• Quality 

assurance 
employers 

• TCNs pre-screening 

• Validation (optional) 

• Search and matching 

Additional 
components 

• Information provision 

Recurrent 

• Targeted support by 

NCPs 

• Facilitation measures 

Cost-savings stemming from streamlining current steps of international recruitment 

Employment-related 
steps 

• Advertising the 

vacancy 

Recurrent 

Employers 

• Screening and 

interview 

• Validation (optional) 

• Matching and selecting 

• Creating a CV 

Recurrent 

TCNs jobseekers 

• Finding opportunities 

• Compiling information 

• Selection and matching 

process 

Immigration-related 
steps 

• Conducting labour 

Recurrent 

market test 

• Obtaining visa / 

permits 

Employers and TCNs 
jobseekers 

Opportunity cost 

Gain in turnover 

Recurrent 

Employers 

Gain in wages 

Recurrent 

TCNs jobseekers 

The  advantages  for  employers  will  be  particularly  significant  during  the  candidate 
identification  and  selection  phases,  as  the  EU  Talent  Pool  would  offer  a  large  pool  of 
candidates  interested  in  working  in  the  EU  and  potentially  suitable  for  the  job  requirements. 

303 

 
 
 
 
Additionally, PO2 and PO3 would provide for additional IT tools (e.g. automatic matching tool) 
and  support  services  further  facilitating  international  recruitment.  For  TCNs,  one  of  the  main 
benefits  offered by the implementation of the Talent Pool  is  the convenience of having  a single 
portal  to  access  job  opportunities  in  the  Member  States.  Under  PO1  job  vacancies  will  not  be 
included  in  the  platform,  however,  the  organisation  of  job-matching  events  and  the  support  of 
National  Contact  Points  (‘NCPs’)  in  matching  employers  and  jobseekers  will  provide  similar 
added  value.  Therefore,  the  development  of  an  EU-wide  platform  avoids  the  need  to  rely  on 
multiple  platforms  and  streamlines  the  job  search  process.  In  addition,  by  providing  online 
information  and  personalise  guidance  on  immigration  and  recruitment  procedures,  the  initiative 
offers  further  support  to  users  to  better  understanding  the  job  matching  processes.    Moreover, 
under PO2 and PO3 the EU Talent Pool ensures protection against unfair recruitment, enhancing 
the  overall  job-seeking  experience  for  TCNs.    A  detailed  explanation  is  provided  below  under 
each PO.  

It is important to consider that the benefits stemming from the initiative are difficult to quantify 
and  they  are  mainly  considered  qualitatively  in  the  comparison  of  the  POs  (e.g.  personalised 
support provided by NCPs and information provision).  

The visual below provides an overview of the main benefits and their different degree of intensity 
of the initiative throughout the recruitment process. 

304 

 
 
 
 
In addition, indirect benefits are foreseen under each option. These benefits include the increase 
GDP resulting from an additional number of TCNs working in the EU. This would also result in 
additional fiscal contributions as well as in increased remittances for third countries.  

The increase in  the GDP was calculated by following an income-based approach:  the additional 
wages that would result from the arrival of new migrants workers via the Talent Pool was taken 
into account [Median wage of TCNs in EU] * [Number of expected successful matches]. Statistics 
concerning the median income of TCNs in the EU were extrapolated from the Eurostat survey of 
income and living conditions (EU-SILC), on the basis of a customized extraction, and entails the 
median  equivalised  net  income  for  the  working-age  population  (20-64  years)  by  group  of 
citizenship (PPS adjusted) for 2022. As the additional GDP increase would vary depending on the 
number of participating Member States (11 or 20), indicative brackets of EU GDP increase  were 
identified taking into account the potentially different expected possible results of the initiative.   

The  additional  fiscal  contributions  were  calculated  on  the  basis  of  the  following  formula:  
[percentage of taxes paid on gross income] * [EU-average gross wages and salaries] * [Number 
of expected successful matches]. This calculation is based on the assumption that TCNs workers 
matched  by  the  EU  Talent  Pool  would  be  regularly  employed  and  will  pay  taxes  on  their  gross 
income. As these job  vacancies may  remain   unfilled  without the intervention of the EU Talent 
Pool,  and  hence  additional  to  the  existing  resident  workforce,  it  is  assumed  that  tax  revenues 
would increase proportionally to their earned wages following the tax rates structure. The share of 
taxes  paid  on  gross  wages  and  salaries 
is  based  on  Eurostat  experimental  statistics 
(ICW_TAX_01) modelled following the distribution of VAT paid by households as a percentage 
of  their  gross  income.  The  average  at  EU  level  was  calculated  by  using  available  statistics 

305 

 
 
 
 
provided by Eurostat. For approximating the gross wages and salaries to be taxed in 2030, the EU 
labour costs (TPS00173) for 2022 were considered.401  

With regard to the estimation of additional remittances to third countries the following formula 
income  sent  as  remittances]*[EU-average  annual  median 
was  used:  [proportion  of 
income]*[Number  of  expected  successful  matches].  The  average  share  of  income  which  third-
country  nationals  send  home  is  estimated  at  15%  following    UN  online  publication402.  This 
represents a global, not  EU-specific share, in absence of a EU-specific estimate .403 The median 
income of TCNs in the EU was derived by Eurostat survey of income and living conditions (EU-
SILC404),  which  was  the  object  of  an  ad-hoc  extraction  made  by  Eurostat  tailor-made  for  this 
impact assessment, in relation to the median equivalent net income for the working-age population 
(20-64 years) by group of citizenship (PPS adjusted) for 2022. 

A detailed assessment of the costs and benefits under each PO is described below.  

2.1  Option  1:  Soft  measures  aiming  at  improving  information  provision  and  facilitating  

identification and matching (non-legislative option)  

Governance costs 

The  different  soft  measures  within  PO1  will  require  some  level  of  horizontal  coordination  and 
management at the EU level, operational contact points at national level.  

Governance  costs  are  linked  to  the  new  responsibilities  and  tasks  stemming  from  the  envisaged 
policy measures which are detailed in the table below:  

Policy measure 

Responsibilities at EU level 

Responsibilities at national level 

Improving the EU 
Immigration Portal 

Coordination with the National 
Coordinators in the Member States; 

Gathering and providing information on 
procedures at national level;  

Review the content provided by 
national authorities; 

Maintenance and update of the portal 
on the IT-side. 

Organising job-
matching events 

Management and coordination for the 
organisation of job-matching events. 

N/A 

Setting up an online 
portal with a 
catalogue of profiles 

Coordination with the National 
Coordinators; 

Reach out to employers to facilitate the matching 
with interested candidates. 

Maintenance of the web-portal on the 

401  

402  

403  

404  

We considered only wages and salaries of the labour cost structure and multiplied the hourly gross wage to the estimated 
number  of  hours  a  person  works  over  the  year.  The  latter  is  taken  from  European  Commission  (2019),  H2020 
Programme User's Guide for the Personnel Costs Wizard, p. 13.  
UN, Remittances matter, Remittances matter: 8 facts you don’t know about the money migrants send back home | UN 
DESA | United Nations Department of Economic and Social Affairs  
This estimate should be taken with caution because it is based on a world-wide sample and the patterns of remittances 
may vary markedly across continents and type of migrants. 
EU-SILC EU statistics on income and living conditions - Microdata - Eurostat (europa.eu)  

306 

 
 
 
 
 
 
 
 
 
IT side. 

On  the  basis  of  the  abovementioned  tasks  to  be  performed  by  EU  and  national  staff,  the  table 
below provides an overview of the estimated governance costs.  

The  aggregated  governance  costs  at  national  level  depend  on  the  uptake  of  the  initiative  by  the 
Member States. The average cost per National Contact Point is EUR 153 000, this entails a total 
budget  at  national  level  of EUR 1  683 000 when 11 Member States  participate in  the initiative, 
and of 3 060 000 when 20 Member States participate in the initiative.  

Costs at EU level do not depend on the number of Member States participating in the initiative; 
therefore no range is provided. 

Governance costs (staff and other costs) 

Policy measure 

Costs at EU level 

Costs at national level 

Improving the EU Immigration 
Portal  

Organising job-matching 
events 

Setting up an online portal with 
a catalogue of profiles 

Total governance costs 
(recurrent) 

11 FTEs405: EUR 707 000 

Organisation  of  the  job-matching  events:  EUR 
1 362 000406  

11 

1 FTE per Member State (10 – 20  FTE 
for 
20  Member  States 
participating):  EUR  683  000  –  3  060 
000407 (to be covered by AMIF) 

– 

EUR 2 069 000 

EUR 1 683 000 – 3 060 000 

Improving the EU Immigration Portal entails a fully-fledged revamp and update of the existing 
portal.  Therefore,  additional  resources  at  EU  level  would  be  required  for  this  purpose.  In 
particular, under the current management of the EU Immigration Portal, a coordination manager is 
allocated for on average around 30% per week. Improving the portal would require a coordination 
manager working full time (100%) to cover the additional work linked to more frequent updates 
that  would  take  on  an  annual  basis  instead  of  every  3-4  years  as  under  the  current  portal.  In 
addition, six additional FTEs (experts on migration) are currently supporting the management of 
the  portal  by  providing  expertise  on  immigration  aspects  to  review  the  content  provided  by  the 

405  

406  

407  

One  coordination  manager  and  6  administrators  (10%  of  their  time)  for  improving  the  portal,  2  staff  members  for 
organising  job-matching  events  and 1  staff  member  for  managing  the  online  catalogue  (one  business  manager  dealing 
with the IT portal).  
This  is  the  average  cost  for  60  events  per  year.  Costs  associated  to  each  event  have  been  estimated  according  to  the 
current costs incurred by the European Coordination Office (ECO) of the EURES network within ELA for the European 
(Online) Job Matching events. Information comes from the ELA Single Programming Document 2023 – 2025 and inputs 
from interviews with ELA and the European Commission conducted by the contractor. 
Estimates  are  based  on  the  costs  associated  with  the  current  EURES  NCOs  (for  activities  related  to  matching  and 
information provision) and adjusted by the expected number successful matches associated with PO1. Estimates on costs 
associated  with  current  EURES  structure  come  from  the  ad-hoc  survey  to  NCOs  conducted  by  the  contractor, 
triangulated  with  ex-post  EURES  evaluation.  In  particular,  EURES  NCOs  allocate  around  35%  of  their  budget  to 
matching  and  recruitment.  A  similar  share  can  be  foreseen  in  case  of  Talent  Pool  contact  points  as  the  outreach  to 
employers and matching with candidates is expected to be time consuming (especially considering that processes will not 
be automatised as in the case of the two legislative options). 

307 

 
 
 
 
  
 
 
 
 
national  authorities.  Under  the  improved  Immigration  Portal  six  experts  on  migration  would  be 
involved 10% of their weekly time for six months every year. For the remaining six months of the 
year  (when  work  on  updates  is  more  limited  and  it  is  merely  a  matter  of  maintenance),  the 
workload  of  the  experts  is  assumed  to  decrease  to  around  2-3%  of  their  time  (or  1  hour  per 
week).408  Based  on  these  considerations,  the  total  staff  incremental  staff  cost  at  the  EU  level  is 
estimated to be approximately EUR 183 000 per year409.  

With  regard  to  the  organisation  of  job-matching  events,  two  FTEs  at  EU  level  (for  a  total  of 
staff  costs  of  EUR  182  000)  are  envisaged  for  the  organisation  and  management  of  the  events, 
including  administrative  and  logistic  tasks  such  as  the  preparation  of  the  agenda,  promotion 
activities, cooperation with stakeholders410. Additional costs for the organisation of the events are 
foreseen  for  the  promotion  material,  relevant  equipments,  translation  and  venues’  logistic.  To 
estimate  the  budget  required  for  the  organisation  of  the  event,  the  European  (Online)  job  days 
organised in the framework of EURES have been taken as a model. In 2022, a total of 44 events 
across  the  EU/EFTA  were  organised,  with  each  job  matching  event  including  an  average  of  52 
employers and 163 total positions advertised. The average number of jobseekers was around 276. 
The total budget for the European Coordination Office (ECO) within ELA for European (Online) 
Job Days was of approximately EUR 1 000 000 EUR, i.e. EUR 22 700 per event in 2022.411 Using 
these  figures  as  a  proxy  for  the  organisation  of  job-matching  events  in  the  context  of  the  EU 
Talent Pool and assuming an average of 60 events per year, the average budget required would be 
EUR 1 362 000.  

Setting  up  an  online  portal  with  a  catalogue  of  profiles  would  require  two  additional  FTEs 
working  within  the  Commission  to  manage  the  web  portal  with  the  catalogue  of  profiles  and 
coordinate with the National Coordinators in the Member States (for a total staff costs of around 
342 000 per year).  

At national level, the overall governance foresees the appointment of one National Coordinator 
per Member State (EUR 153 000 for staff costs and related activities).412  

408  

409  

410  
411  

412  

Currently, the time invested by the subject matter expert is very low over the span of the year; therefore, costs associated 
with the time needed from them under PO1A will be assumed to be incremental costs. 
This is the incremental cost of increasing the time allocated to the coordination manager (i.e., EUR 119 700) plus the 
incremental cost of the 6 subject matter experts, working 10% on the portfolio for the 6 months of the update and 2/3% 
for the remaninig 6 months (i.e, EUR 63 300). 
Two contract agents (for a total staff cost of EUR 182 000). 
Based  on  ELA  Single  Programming  Document  2023  –  2025  and  inputs  from  interviews  with  ELA  and  the  European 
Commission conducted by the contractor. 
Those figures were estimated by taking the number of National Coodinator Offices in the context of EURES (i.e., 3-5 
people on average across NCOs), and budget (i.e., EUR 1 200 000 on average across NCOs)  and adjusting them to the 
context of PO1 according to:(i) the number of potentially interested jobseekers (i.e., 3 305 500 – 3 468 366) and expected 
vacancies (i.e., 3 830 000 – 5 100 000) under this policy option relative to the same figures within EURES (i.e., 1 000 
000 CVs online and 5 000 000 posts ), and (ii) the specific activities envisaged under this PO in comparison with those of 
the  NCOs  in  the  context  of  EURES.  The  number  of  National  Coordinators  was  reduced  as  less  activities  would  be 
conducted  in  comparison  with  NCOs  under  EURES  (no  specific  guidance  and  post-recruitment  assistance  (,  network 
management  (e.g.,  of  EURES  Members  and  Partners),  reporting  and  communication).  Under  this  option  the  National 
Coordinators’  activities  would  be  limited  to  support  the  matching  between  employers  and  TCNs  and  providing 
information for the EU Immigration Portal. With regard to the estimation of costs linked to each National Coordinator, 
the budget used for NCOs under EURES was taken as a proxy (EUR 1 200 000 covering staff costs and activities for 3-5 
FTEs).  This    would  entail  a  budget  of  around  EUR  300  000  to  cover  staff  costs  and  activities  for  1  FTE  under  PO1. 
However, considering that range of activities conducted by NCOs under EURES, this budget was reduced  considering 

308 

 
 
 
 
 
Additional costs linked to the IT development are explained below.  

IT costs 

Under this PO, a number of costs linked to IT developments are foreseen. In particular, IT costs 
are linked with the improvement of the EU Immigration Portal, the IT developments required for 
advertising the job-matching events, and the development of an online portal with a catalogue of 
profiles.  

An  overview  of  the  estimated  IT  costs  it  provided  below.  As  one-off  costs  (development  and 
infrastructure  for  Y1  and  Y2)  and  recurrent  costs  (maintenance,  infrastructure  onwards  Y3  and 
additional features for the implementation) are foreseen, the estimation of costs is provided over a 
10 year period.  

 PO 1  

Development 

Development 
for improving 
the EU 
Immigration 
Portal 
Development 
for organising 
job-matching 
events 
Development of 
an EU Talent 
Pool through 
non-legislative 
instruments 
Operations413 
(maintenance) 

Infrastructure 

Additional 
features 

Total 
over  10 
years  

Y1-Y2 

Y3 

Y4 

Y5 

Y6 

Y7 

Y8 

Y9 

Y10 

3,749,98
8€ 

3,749,98
8€ 

645,829
€ 

645,829
€ 

41,666€ 

41,666€ 

3,062,49
3€ 

3,062,49
3€ 

3,937,48
8€ 
1,599,47
2– 
1,678,28
0€ 
2,860,00
0€ 

0€ 

- 

€319,89
4 
€335,65
6 

0€ 

- 

562,498
€ 
€159,94
7 
€167,82
8 
715,000
€ 

- 

562,498
€ 
€159,94
7 
€167,82
8 
715,000
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

- 

468,749
€ 
€159,94
7 
€167,82
8 
238,333
€ 

413  

the  limited  activities  of  the  National  Coordinators  under  this  PO  (50% of  the  total  budget  estimated  above  (EUR  300 
000).  
Maintenance  costs  encompass  ongoing  activities  including  bug  fixes,  updates,  security  enhancements,  and  system 
support. In initial stages, these costs can be higher due to bug fixing and system stabilisation. However, as the system 
matures,  maintenance  costs  become  more  predictable  and  stable,  with  routine  maintenance  activities  decreasing  over 
time. 

309 

 
 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
implementation
414 

Total Cost  

€12,146,
948- 
€12,225,
756 

€4,069,8
83 
- 
€4,085,6
44 

€1,437,4
45 
- 
€1,445,3
26 

€1,437,4
45 
- 
€1,445,3
26 

€867,02
9 - 
€874,91
0  

€867,02
9 - 
€874,91
0  

€867,02
9 - 
€874,91
0  

€867,02
9 - 
€874,91
0  

€867,02
9 - 
€874,91
0  

€867,02
9 - 
€874,91
0  

Infrastructure costs have been estimated according to the take up of the initiative across Member 
States.  Ranges  are  provided  according  to  whether  11  or  20  Member  States  are  assumed  to 
participate  in  the  initiative.  All  associated  costs  will  be  at  the  EU-level,  and  there  will  be  no 
expenses incurred at  the Member States'  level. Those costs were  a range  is  not  provided do not 
depend on the take up of the initiative among Member States. 

Total costs 

Category 

Sub-category 

Type of cost 

Stakeholders 
bearing the cost 

EU level 

Recurrent 

EU Commission 

Governance 

National level  Recurrent 

National public 
authorities (from 
AMIF) 

Associated costs (EUR) 

[for 11 – 20 Member States participating] 

Y1 

Y2 

EUR 2 
069 000 

EUR 2 
069 000 

EUR 1 
683 000 – 
3 060 
0004 

EUR 1 
683 000 – 
3 060 000 

Each subsequent 
year 

EUR 2 069 000 

EUR 1 683 000 – 
3 060 000 

EU level 

Recurrent/One-
off 

EU Commission 

EUR 4 779 986  – 4 
814 767 

EUR 1 542 789 – 
1 550 179 

National level 

Recurrent/One-
off 

National public 
authorities 

EUR 0 

EUR 0 

IT platform 
and other 
IT-related 
costs 

Total costs 

For EU Commission: 

For 11 – 20  Member States national public authorities: 

EUR 4 
103 941 – 
4 111 822     

EUR 4 
103 941 – 
4 111 822     

EUR 3 078 633 – 
53 086 514 

EUR  1 
683 000 – 
3 060 000 

EUR 
1,683,000 
– 3 060 
000 

EUR 1 683 000 – 
3 060 000 

414  

It covers the development of new functionalities or features for the system. These costs can vary based on the complexity 
of the additions and are typically higher during the early stages when new features are being integrated. As the system 
evolves,  these  costs  might  stabilise,  with  a  more  predictable  budget  for  incorporating  new  functionalities.  The 
implementation  of  additional  features  involves  various  activities,  which  are  planned  to  be  outsourced  to  a  contractor. 
Typically,  these  activities  would  require  a  total  of  5  full-time  equivalents  (FTEs)  encompassing  different  roles.  This 
distribution would include 1.0 FTE for Business Analysis, 1.0 FTE for project management, 1.0 FTE for development, 
0.5 FTE for quality assurance, 1.0 FTE for technical experts, and 0.5 FTE for testing. 

310 

 
 
 
 
 
 
 
 
 
 
 
Benefits 

•  Direct benefits 

The  benefits  associated  with  PO1  are  predominantly  qualitative  and  they  cannot  be  easily 
quantified. These savings arise primarily from  the  time saved  by both  employers and TCNs at 
various steps of the international recruitment process and are summarised in the table below: 

Steps 

Identifying 
candidates and 
finding job 
opportunities 

Matching vacancies 
and candidates 

Immigration 
procedures 

Qualitative benefits 

The catalogue of TCNs CVs would provide with a wider pool of candidates from all 
third countries by creating a centralised platform for employers (rather than having to 
access several portals and platforms). This would facilitate the identification of 
potential candidates, reducing the need for extensive search and screening. The 
implementation of job-matching events and the involvement of NCPs in facilitating the 
matching process will increase the chances of TCNs finding suitable job opportunities. 

The organisation of job-matching events would enable employers from EU Member 
States to make direct contact with jobseekers from third countries, thus streamlining 
the recruitment process and saving on related costs. This aspect is particularly 
beneficial for SMEs, which may have limited resources compared to multinational 
companies when it comes to engaging with TCNs. For TCNs, job-matching events 
provide a direct opportunity to interact with potential employers from EU Member 
States, making job opportunities more accessible and reducing the financial burden 
associated with seeking employment abroad. Similarly, the catalogue of TCNs CVs, 
would allow employers to access a pool of jobseekers and match those with available 
vacancies, saving them the time and costs associated with traditional recruitment 
processes (e.g. advertising vacancies, conducting extensive screening, and handling 
numerous applications) 

Updated and clear information provision on immigration procedures on the improved 
EU Immigration Portal will save employers and TCNs time otherwise spent searching 
for relevant details online or seeking assistance from third-party services. Additionally, 
the inclusion of additional languages will greatly facilitate the understanding of the 
information for TCNs. 

Recognition of skills 
and qualifications 

The inclusion of information on recognition procedures in the Member States would 
allow employers and TCNs to save time by reducing the efforts of having to retrieve this 
information independently  

Although  the  soft  measures  mentioned  above  could  support  and  facilitate  several  steps  of  the 
international recruitment process, their impact in terms of time- and cost-savings is expected to be 
relatively  smaller  compared  to  the  two  legislative  policy  options,  described  below.  For 
instance, PO2 and PO3 envisage more advanced IT solutions that automate some of the manual 
processes  foreseen  for  PO1  (e.g  search  and  matching  tools,  which  will  streamline  identification 
and  selection  phase).  The  two  legislative  options  also  include  more  targeted  and  personalised 
support, which will further cut down on time and costs.  

Due to the fact that only qualitative benefits were identified for PO1, no opportunity costs can be 
estimated for this policy option. 

•  Indirect benefits 

As  mentioned  above  the  following  indirect  benefits  are  estimated  under  this  PO.  A  range  of 
benefits is provided depending on the number of Member States participating (11 or 20). 

311 

 
 
 
 
Indirect benefit 

Estimated value 

Increase in GDP (benefit for EU) 

EUR 235-260 million 

Increase in fiscal contribution (benefit for EU) 

EUR 56-59 million 

Increase in remittances (benefit for third countries) 

EUR 44-46 million 

312 

 
 
 
 
 
 
 
Cost-benefits comparison415 

EU / EU Commission 

National Authorities 

Employers 

TCNs / third countries 

Estimate  

Comment 

Estimate  

Comment 

Estimate 

Comment 

Estimate 

Comment 

Direct costs  R:  EUR  3  078 
633 – 3 086 514 

O:  EUR  4  799 
986 – 4 814 767 

Indirect 
costs 

Direct 
benefits 

n/a 

n/a 

R:  EUR  1  683 
000 – 3 060 000 

n/a 

R: 
includes 
staff  costs  (to 
be  covered  by 
and 
AMIF) 
budget 
for 
operational 
activities 

n/a 

n/a 

n/a 

n/a 

significant 
No 
indirect 
costs 
were identified. 

direct 
are 
for 

No 
benefits 
identified 
National 
Authorities.  

R: 
includes 
staff  costs  and 
for 
budget 
operational 
activities; 
IT 
costs 
maintenance, 
infrastructure  

and 
for 

O:  includes  IT 
development 
costs 

significant 
No 
indirect 
costs 
were identified. 

direct 
are 
for 

No 
benefits 
identified 
EU 
Commission. 
Benefits  for  the 
are 
EU 
described 
below. 

significant 
were 

No 
costs 
identified.  

n/a 

significant 
were 

No 
costs 
identified. 

n/a 

n/a 

significant 
No 
indirect 
costs 
were identified. 

Employers 
would  benefit 
from  the  wider 
pool 
of 
candidates 
accessible  via  a 
centralised 
platform. 
Additionally, 

significant 
No 
indirect 
costs 
were identified. 

TCNs will  have 
the  opportunity 
to  make  direct 
interactions 
with employers, 
making 
job 
opportunities 
more  accessible 
and saving  time 

415  

“R” refers to recurrent, while “O” refers to one-off costs.”n/a” indicates that the cost or benefit for that stakeholder group could not be quantified and is only assessed 
qualitatively or that no significant costs/benefits were identified. 

313 

 
 
 
 
 
 
 
and 
costs 
associated  with 
seeking 
employment 
abroad. 
Information 
provision  will 
further 
reduce 
the time needed 
to 
for 
look 
information 
online. 

the 
identification  of 
potentially 
suitable 
candidates  will 
be 
simplified 
the 
via 
implementation 
of  job-matching 
events  and  the 
intermediary 
role  of  contact 
at 
points 
national 
level. 
Information 
provision  will 
further 
reduce 
the time needed 
for 
look 
to 
information 
online.  

Indirect 
benefits 

n/a 

Benefits  for  the 
EU  as  a  whole 
an 
entail 
in 
increase 
GDP 
in 
fiscal 
contribution. 

and 

R:  EUR  235-
million 
260 
(increase 
in 
GDP); 

R:  EUR  56-59 
million 
(increase 
fiscal 
contribution); 

in 

n/a 

indirect 
No 
benefits  were 
identified 
for 
National 
Authorities 

indirect 
No 
benefits  were 
identified 
for 
employers. 

R:  EUR  44-46 
million 
(increase 
remittances) 

in 

for 
Benefits 
third  countries 
an 
entail 
increase 
in 
remittances. 

314 

 
 
 
2.2 Option 2: Developing an EU Talent Pool targeted to address labour market needs in    

key occupations (legislative option) 

Governance costs 

Under PO2 the establishment of an EU Talent Pool Secretariat within the European Commission 
is  foreseen.  In  addition,  under  this  PO  a  Steering  Group  composed  of  national  representatives 
from  participating  Member  States  (including  immigration  and  employment  authorities)  to  take 
high-level decisions would be set up together with National Contact Points in the Member States. 
As  PO2  also  includes  the  links  with  Talent  Partnerships,  the  governance  foresees  the 
establishment of Liaison Offices in third countries participating in Talent Partnerships. 

The table below provides an overview of governance costs and the related assumption. The costs 
have  been  estimated  according  to  the  uptake  of  the  initiative  across  Member  States.  At  the 
national level, ranges are provided for aggregated staff FTEs and budget according to whether 11 
or  20  Member  States  are  assumed  to  participate  in  the  initiative.  For  EU  level  costs,  a  similar 
range is provided for horizontal coordination and training budgets as those depend on the number 
of Member States participating. Those costs where a range is not provided do not depend on the 
take up of the initiative among Member States. 

Governance costs (staff and other costs) 

Type of costs 

Costs at EU level 

Costs at national level 

Staff 

EU  Talent  Pool  Secretariat 
(13  FTEs 
including  one 
business  manager  responsible 
for 
platform 
IT 
coordination) 

the 

EUR 1 903 000   

National  Contact  Points416  (33  –  60  FTEs  per 
11 – 20 Member States participating: 

EUR 8 000 000 – 14 600 000 (to be covered by 
AMIF) 

Liaison Offices in partner countries (2 FTEs for 
each  partner  country,  hence,  20  FTEsin  case  of 
10 Talent Partnerships) (to be covered by AMIF) 

EUR 1 440 000 

Other activities  

Horizontal coordination417 

EUR 97 000 – 176 000 

Training418  

416  

417  

418  

Estimates are based on the costs associated with current EURES National Coordination Offices (NCOs) and adjusted by 
the  expected  number  of  successful  matches  under  this  policy  option.  Information  on  current  EURES  NCOs  costs  and 
FTEs was collected via an ad-hoc survey to NCOs conducted by the external contractor, triangulated with the EURES 
ex-post evaluation. 
The costs associated to horizontal coordination depend on the number of NCPs. Therefore, a range is provided depending 
on the Member States participating 11 or 20. The base to calculate these costs is provided by the number of NCOs within 
the  EURES  network  (i.e.,  34  NCOs)  and  related  budget  for  horizontal  coordination  accrued  by  the  European 
Coordination Office (ECO) within the ELA. The latter has been estimated by considering the ELA Single Programming 
Document  2023  –  2025  and  inputs  from  interviews  with  ELA  and  the  European  Commission  conducted  by  the 
contractor. 
The cost on training depends on the aggregated number of FTEs in the NCPs (i.e., 33 FTEs per 11 NCPs and 60 FTEs 
per 20 NCPs), therefore a range is provided according to weather participating Member States are assumed to be 11 or 20 
by 2030.  The base to calculate the budget is given by the training budget of the European Coordination Office (ECO) 

315 

 
 
 
 
 
 
EUR 582 000 – 1 060 000 

Communication419  

EUR 487 500  

Translation420  

EUR 1 300 000 

Online information provision   EUR 1 057 000421 

Optional facilitation 
measures 

Additional  costs  for  national  authorities  if  fast-
track procedures are set up by MS 

Fast-track immigration procedures:  

EUR 46 000 000 – 48 000 000 

Fast-track recognition procedures: 

EUR 16 000 000 – 17 000 000 

Annual 
costs (recurrent) 

total 

governance 

EUR 5 426 500 – 6 000 000 

EUR 9 440 000 – 16 040 000 

[additional  costs  for  facilitation  measures  not 
included as optional for MS] 

At the EU level, the overall governance structure foresees: 7 administrators, 4 contract agents and 
2 secretaries. The staff costs were calculated based on average personnel costs: EUR 171 000 per 
year for administrators and secretaries and EUR 91 000 per year for contractual agents.  When it 
comes to the Secretariat within the Commission, this is expected to consist of 13 staff members. 
Roles and responsibilities are outlined in the table below. 

Staff members 

Tasks 

Administrators 

-  Support to negotiations  
-  Preparation ahead of entry into force 
-  Drafting delegated and implementing acts + negotiations over years 2026 - 2027 
-  Setting up governance structure and comitology  
-  Annual Work Programme  
-  Data protection (including drafting and finalising controllership agreements) 
-  Contract management of service providers and IT coordination (internal IT Steering Group 

and submission to IT board) 

-  National Contact Points related activities (operating procedures, charter, funding support, 

set up of the NCPs Network, training and capacity building activities) 

-  Coordination with Talent Partnerships Liaison Officers 
-  Support to Member States participating in Talent Partnerships 

419  

420  

421  

within  ELA.  The  latter  has  been  estimated  by  considering  the  ELA  Single  Programming  Document  2023  –  2025  and 
inputs from interviews with ELA and the European Commission conducted by the contractor. 
This  budget  depends  on  the  number  of  occupations  envisaged  by  the  policy  option  (i.e.,  13  under  PO2)  and  was 
estimated  by  considering  the  communication  budget  of  the  ECO  within  ELA.  The  latter  has  been  estimated  by 
considering the ELA Single Programming Document 2023 – 2025 and inputs from ELA and the European Commission 
conducted by the contractor. 
This cost is estimated  on the base of the translation budget of the ECO within ELA. The latter has been estimated by 
considering the ELA Single Programming Document 2023 – 2025 and inputs from ELA and the European Commission. 
Estimates of this budget were based on the estimation of the option envisaging the improvement of the EU Immigration 
Portal.  

316 

 
 
 
 
 
 
 
-  Specific regime for Talent Partnership (pass requirements, information campaign) 

Contract Agents 

-  Support to negotiations + preparation ahead entry into force 
-  Preparation of training needs and capacity building modules 
-  Indicators framework, monitoring and evaluation 
-  Communication strategy and organisation of events, networking 

Secretaries 

- Administrative support (coordination and organisation of meetings) 

The  budget  at  EU  level  for  operational  activities  covers  horizontal  coordination,  training, 
communication and translation. Estimations of the budget for each activity depend on a number of 
factors: 

-  Horizontal coordination entails the management of the overall EU Talent Pool structure at 
national level. Therefore, costs of horizontal coordination depend on the number of NCPs 
foreseen. To estimate budget was based on the allocated budget for horizontal coordination 
activities of the European Coordination Office (ECO) within the EURES structure under 
ELA,  which  amounts  to  around  EUR  300  000  per  year,422  for  34  NCOs  across  Member 
States. Considering that under the Talent Pool, we envisage between 11 and 20 NCPs, the 
total budget ranges between EUR 97 000– 176 000.423 

-  Training  entails  the  organisation  of  trainings  session  for  NCP  personnel  across  all 
participating Member States. As above, to estimate the required budged, we looked at the 
allocated  budget  for  training  activities  of  ECO  within  ELA,  which  accounts  for  around 
EUR 3 000 000.424 Considering that under PO2, we envisage 3 FTEs per NCP (for a total 
of 33-60 FTEs across 11-20 NCPs), the total budget ranges between EUR 582 000– 1 060 
000. 

-  Communication  entails  activities  to  promote  the  initiative  and  enhance  its  visibility.  As 
communication  campaigns  will  be  targeted  to  the  occupations  included  in  the  initiative, 
this budget depends on the number of occupations envisaged under the policy option. The 
EURES  ECO  budget  for  communication  amounts  to  EUR  1  500  000  and  the  EURES 
system includes all occupations across the EU.425 Under PO2, the scope will be targeted to 
those  occupations  of  strategic  relevance  (i.e.,  13  occupations  at  ISCO  2-digit  level). 
Therefore, the final budget amounts to EUR 487 500. 

-  Translation  entails  not  only  translation  services  related  to  the  IT  platform  but  also 
translation  of  information  materials  and  campaigns  or  interpretation  services  when  it 
comes to communications with third countries’ authorities or cross-border initiatives. 

422  

423  

424  

425  

This has been estimated by considering the ELA Single Programming Document 2023 – 2025 and inputs from interviews 
with ELA and the European Commission conducted by the contractor. 
This  is  the  result of  the  following :  300 000*11/34  and 300  000*20/34. The  same  approach  was  used  to  calculate  the 
budget for the other operational activities. 
This has been estimated by considering the ELA Single Programming Document 2023 – 2025 and inputs from interviews 
with ELA and the European Commission conducted by the contractor. 
This has been estimated by considering the ELA Single Programming Document 2023 – 2025 and inputs from interviews 
with ELA and the European Commission conducted by the contractor. 

317 

 
 
 
 
-  This budget was kept the same as it currently is under the ECO within ELA, as the types of 

services will be very similar. The budget is thus EUR 1 300 000. 426 

Member States participating might also envisage the creation of Liaison Offices in third countries 
to facilitate the implementation of Talent Partnerships (ten Talent Partnerships are assumed to be 
operational  10  Talent  Partnerships  by  2030).  Two  staff  members  per  Liaison  Office  would  be 
required to support the registration of TCNs participating in a Talent Partnership and the delivery 
the  ‘EU  Talent  Partnership  pass’.  Salaries  were  estimated  at  around  EUR  72  000  per  year, 
approximating  to  the  average  salary  of  embassy  staffin  third  countries.  The  total  therefore 
accounts to EUR 1 440 000 per 10 Talent Partnerships.  

The  National  Contact  Points  would    be  responsible  for  the  practical  implementation  of  the 
initiative at the national and local level (for a detailed description of the NCPs tasks see Annex 9 
on  the  description  of  the  policy  options).427  Activities  of  the  NCPs  will  be  related  to  the 
management  of  the  IT  platform,  the  registration  of  employers’  vacancies  on  the  IT  platform,  
provision of information and personalised support and, when a breach is reported, the monitoring 
of the employers’ compliance with the Chater for Fair Recruitment.  

With  regard  to  the  online  information  provision,  the  costs  associated  with  the  gathering  and 
provision of information online ware based on the assusment provided under PO1 with regard to 
the  improvement  of  the  EU  Immigration  Portal.  It  is  reasonable  to  assume  similar  costs  as  a 
similar process would be followed: the involvement of NCPs to gather information and a similar 
manual process.Therefore, the total cost associated with this measure amounts to around EUR 1 
057 000 per year.  

Facilitation measures foresee the possibility for Member States to waive the labour market test 
or to use fast-track immigration and recognition procedures.428 These would result in time-savings 
which  are  included  in  the  cost-savings  section  described  below.  However,  fast  track  procedures 
entail also higher monetary costs for the Member States. It is estimated that the difference in fees 
between a normal and a fast-track procedure is of around EUR 60 per application for recognition 
procedures429 and EUR 170 per application for immigration procedures.430 It was assumed that the 

426  

427  

428  

429  

430  

This has been estimated by considering the ELA Single Programming Document 2023 – 2025 and inputs from interviews 
with ELA and the European Commission conducted by the contractor. 
At the national level, NCPs entail 3 FTEs per Member States, for a total of 33-60 FTEs per 11-20 Member States. The 
budget is estimated to be around EUR 727 000 per NCP, for a total of EUR 8 000 000 – 14 600 000 across 11-20 NCPs. 
As under PO1, those figures were estimated based on the number of NCOs staff and budget under the EURES network 
adjusted  by  the  number  of  potentially  interested  jobseekers  and  expected  vacancies  under  PO2,  relative  to  the  same 
figures within EURES. As activities foreseen for NCPs will be relatively more similar to those of NCOs, compared to 
those under PO1, no specific adjustment was made on the estimates, as it was instead necessary for PO1 estimations. 
In both cases, estimations of fast-track procedures were taken from current practices in Member States that implement 
them. Although it may slightly differ based on the context, a fast-track procedure is a streamlined and expedited process 
that  can  involve  reduced  processing  times,  simplified  documentation  requirements  and  fewer  bureaucratic  steps 
compared to the standard procedures. Fast-track processes generally entail higher costs to cater for these benefits. 
Information on  fast-track  procedures  for  recognition of  qualifications  is  scant.  To  estimate  the  costs  and duration  of  a 
potential fast track procedure we considered cases of urgency. In Italy for instance, urgent applications follow a faster 
process (normally 1 month faster than the normal procedure) and imply higher costs (around EUR 100 more than for a 
normal procedure). 
Fast-track for immigration procedures is in place in a number of Member States. To estimate the difference in costs and 
duration  between  a  fast  track  and  a  normal  procedure  we  considered  Finland,  Germany,  Latvia  and  Lithuania.  The 
average cost for a normal procedure in those countries is of around EUR 200 for employers and average duration is of 

318 

 
 
 
 
 
fees  paid  to  public  authorities  for  the  recognition/validation  of  qualifications  and  for  visas  and 
work permits correspond to the cost of the time spent by public authorities on these procedures, 
provided  that  the  fees  charged  by  them  do  not  exceed  the  recovery  costs  of  providing  these 
services.  In  other  words,  it  was  assumed  that  public  authorities  do  not  derive  any  benefit  from 
these  services.  In  this  sense,  the  extra  fees  can  be  considered  as  additional  costs  on  public 
authorities.  To  get  the  aggregated  final  amount,  the  extra  fees  were  multiplied  by  the  expected 
number of successful matches under this PO, resulting in EUR 46 000 000 – 48 000 000 for fast-
track  immigration  procedures  and  EUR  16  000  000  –  17  000  000  for  fast-track  recognition 
procedures. 

IT costs 
This option forsees the partial re-use of the EURES IT solution and the use of EUROPASS431.  

Following consultation with  relevant  stakeholders including  the European Labour Authority and 
the Public Employment Services (PES), the four main adaptations envisaged would include: 

1.  The modification of EUROPASS to enable TCNs to create and manage their CVs in the 

EUROPASS system, which will then be reflected in the TCN CV database, 

2.  The  adjustment  of  the  existing  search  and  matching  engine  to  ensure  that,  when 
searches  are  carried  out  in  the  EU  Talent  Pool,  only  job  offers  available  to  TCNs  are 
displayed from the jobseeker's point of view, 

3.  The  adaption  to  the  existing  EURES  job  vacancy  database  to  include  an  additional 

"flag" that employers can use to indicate whether a vacancy is open to TCNs or not, 

4.  The adaptation of the currently existing exchange systems at national level that allows 
National  Contact  Points  to  upload  job  vacancies  to  EURES  to  transfer  job  vacancies 
accessible to TCNs.  

The reuse of the above listed components would minimise costs and technical impact as it would:  

•  Avoid  the  proliferation  of  IT  systems  and  hence  minimise  the  costs  (development, 
maintenance,  infrastructure)  in  comparing  with  the  option  of  developing  a  new 
code/stand-alone IT systems, 

•  Avoid double registration of job vacancies also open to third-country nationals, 
•  Avoid  double  registration  of  third-country  nationals  by  transferring  profiles  from 

EUROPASS to the portal, 

•  Ensure interoperability with national systems. 

An  overview  of  the  estimated  IT  costs  provided  below.  As  one-off  costs  (development  and 
infrastructure  for  Y1  and  Y2)  and  recurrent  costs  (maintenance,  infrastructure  onwards  Y3  and 
additional features for the implementation) are foreseen, the estimation of costs is provided for a 
ten year-period.  

431  

around 2.5 months. With fast-track, the costs increase to approximately EUR 370 (around EUR 170 extra) and average 
duration drops to around 1 month. 
The  estimated  cost  of  adapting  and  integrating  EURES  components,  including  the  adaptation  of  national  exchange 
systems (depending on the number of participating Member States) and EUROPASS, could vary  from €1.4 to €1.6 M. 
This  estimate  was  made  using  a parametric  approach  and  estimates  of  T-shirt  sizing  effort,  carried out  in  consultation 
with the relevant stakeholders. 

319 

 
 
 
 
A few cost elements will depend on the number of participating Member States: 

•  At EU level, the infrastructure costs associated with higher numbers of CVs and job offers; 

•  At  national  level,  the  development  costs  required  to  integrate  national  systems  into  the 

EUTP (exchange system), as well as the costs associated with its maintenance. 

PO 2  

Total 
over  10 
years 

Y1-Y2 

Y3 

Y4 

Y5 

Y6 

Y7 

Y8 

Y9 

Y10 

Development 

EUROPASS 

adaptation 
integration 

and 

Pre-  screening 

tool creation 

TCN CVs' DB 

creation 

EURES 

job 
vacancies'  DB 
adaptation 
and 
integration 

EURES 

search/matching 
engine 
adaptation 
integration 

and 

€8,847,
377 
- 
€10,350
,602 

- 

€8,847,
377 
€10,35,
602 

174,99
9€ 

224,99
9€ 

224,99
9€ 

599,99
9€ 

449,99
9€ 

174,99
9€ 

224,99
9€ 

224,99
9€ 

599,99
9€ 

449,99
9€ 

Core system 

4,349,9
84€ 

4,349,9
84€ 

Integration  of 
Talent 
EU 
Platform  with 
other systems 

149,99
8€ 

149,99
8€ 

Member  States 
integration 

- 

€2,672,
400 
€4,175,
625 

- 

€2,672,
400 
€4,175,
625 

Operations 
(maintenance) 

9,268,
326  – 
10,83
4,663
€ 

Contractor 
operations 
baseline  

for 

6,483,7
26€ 

Member  States 
integration 
operations 

Infrastructure 

- 

€2,784,
600 
€4,350,
938 

2,735,

0€ 

0 € 

0 € 

- 

- 

- 

- 

- 

- 

- 

- 

1,324,0
47 

- 
€1,547,
809 

1,324,0
47 

- 
€1,547,
809 

1,103,3
72- 
€1,289,
841 

1,103,3
72- 
€1,289,
841 

1,103,3
72- 
€1,289,
841 

1,103,3
72- 
€1,289,
841 

1,103,3
72- 
€1,289,
841 

1,103,3
72- 
€1,289,
841 

€926,24
7 

€926,24
7 

€771,8
72 

€771,8
72 

€771,8
72 

€771,8
72 

€771,8
72 

€771,8
72 

€397,80
0 
- 
€621,56
3 

€397,80
0 
- 
€621,56
3 

€331,50
0 
- 
€517,96
9 

€331,50
0 
- 
€517,96
9 

€331,50
0 
- 
€517,96
9 

€331,50
0 
- 
€517,96
9 

€331,50
0 
- 
€517,96
9 

€331,50
0 
- 
€517,96
9 

547,07

273,53

273,53

273,53

273,53

273,53

273,53

273,53

273,53

320 

 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
394  – 
3  147 
812 € 

€6,578,
000 

€27,429
,097- 
€30,911
,078 

Additional 
features 
implementation
432 

Total  Cost  for 
EU Talent Pool 

9 – 629 
562€ 

9 – 314 
781€  

9  -314 
781€ 

9 - -314 
781€ 

9-314 
781€ 

9-314 
781€ 

9-314 
781€ 

9-314 
781€ 

9-314 
781€ 

€0 

€9,394,
456 
- 
€10,980
,164 

€1,644,
500 

€3,242,
086- 
€3,507,
090 

€1,644,
500 

€3,242,
086- 
€3,507,
090 

€548,16
7 

€548,16
7 

€548,16
7 

€548,16
7 

€548,16
7 

€548,16
7 

€1,925,
078- 
€2,152,
789 

€1,925,
078- 
€2,152,
789 

€1,925,
078- 
€2,152,
789 

€1,925,
078- 
€2,152,
789 

€1,925,
078- 
€2,152,
789 

€1,925,
078- 
€2,152,
789 

Total estimation of costs 

Category 

Sub- 
category 

Type of cost 

Stakeholders 
bearing the 
cost 

Associated costs (EUR) 

[for 11 – 20 Member States participating] 

Y1 

Y2 

Each 
subsequent 
year 

EUR  5  426 
500  –  6  000 
000 

EUR  5  426 
500  –  6  000 
000 

EUR  5  426  500 
– 6 000 000 

Governance 
and other non-
IT related 
costs 

IT platform 
and other IT-
related costs 

EU level 

Recurrent 

EU Commission 

National 
level 

Recurrent 

National  public 
authorities 
(from AMIF) 

EUR 9 440 
000 – 16 040 
000 

EUR 9 440 
000 – 16 040 
000 

EUR 9 440 000 
– 16 040 000 

EU level  

Recurrent/On
e-off 

EU Commission  EUR 6 722 056 – 6 804 539 

EUR  1  906  255 
– 1 947 497 

National 
level  

Recurrent/ 

National  public 
authorities 
(for 
maintenance  of 
interoperability 
of their systems) 

EUR 2 672 400 – 4 175 625 

EUR  348  075  –  
543 867 

Total costs* 

For EU Commission: 

For 11 - 20 Member States participating: 

EUR 8 787 
528 – 9 402 
269  

EUR 8 787 
528 – 9 402 
269 

EUR 7 332 755 
– 7 947 497 

EUR 10 776 
200 – 18 127 
812 

EUR 10 776 
200 – 18 127 
812 

EUR 9 788 075 
–  16 583 867 

* The Total costs estimation does not include additional costs on national authorities to set up facilitation measures as it is an 
optional component. 

432 These activities would typically involve a total of 11.5 full-time equivalents (FTEs) across various roles. The allocation includes 
2.0 FTEs for Business Analysis, 1.0 FTE for project management, 2.5 FTEs for development, 0.5 FTE for quality assurance, 3.5 
FTEs for technical experts, and 2.0 FTEs for testing. 

321 

 
 
 
 
 
 
Benefits 

•  Direct benefits 

(1) The implementation of PO2 can lead to a number of benefits for both employers and TCNs. As 
per  PO1,  the  benefits  associated  with  PO2  are  predominantly  qualitative  and  they  cannot  be 
easily  quantified.  These  savings  arise  primarily  from  the  time  saved  by  both  employers  and 
TCNs at various steps of the international recruitment process. Those time savings can stem from 
the provision of information and personalised support offered that can speed up the process by 
centralising  information,  matching  and  searching  tools  that  can  fasten  the  identification  and 
selection of potentially suitable candidate. The table below provides an overview of these benefits 
at each step of the recruitment process: 

Steps 

Employers 

Publishing the 
vacancy and 
identifying 
candidates 

Screening 
candidates 

Qualitative benefits 

Employers would have access to a single platform with a wider pool of candidates from all 
third countries. The search and matching tools would significantly reduce the time 
required to find potential candidates by allowing employers to search based on specific 
criteria and being matched accordingly. This feature will be especially beneficial for SMEs 
as they often lack resources to go through a recruitment process involving a high number of 
applicants. In addition, personalised support will be available to employers during the 
matching process, further reducing time and resources needed. 

The standardised use of EUROPASS format by candidates when registering their profiles 
would streamline the information presented in CVs, making it easier for employers to scan 
relevant profiles and identify the right skills, thereby saving time. Pre-screening for 
profile completeness and for profiles relevant to the sectors/occupations of strategic 
importance will reduce the time needed for employers to screen applications and would 
ensure better quality of available candidates’ profiles. 

Validating and 
recognition of 
skills and 
qualifications 

The integration of information on recognition procedures as well the personalised 
support provided by the NCPs, would improve the understanding of candidates’ skills and 
qualifications as well as facilitate access to validation and recognition procedures (thereby 
saving additional time). This is particularly advantageous for SMEs, which may not have in-
house departments to assess and verify credentials. 

Obtaining 
visa/permits 

TCNs 

Finding 
opportunities 

Recognition and 
validation 
procedures  

Obtaining 
visa/permits 

Completing post-

The integration of information on immigration procedures would save employers time 
otherwise spent searching for relevant details online or seeking assistance from third-party 
services. 

TCNs will have access to a single platform that provides comprehensive job opportunities in 
EU Member States, significantly reducing the time required for job searching. The 
standardised use of EUROPASS format together with search and matching tools and 
personalised support would reduce the time required to TCNs for identifying suitable 
job opportunities. In addition, it would avoid the risk of mismatches and 
overqualification.  

Same as for employers. 

Same as for employers. 

Information provision on work and living conditions in EU Member States, coupled with the 
support provided by NCPs, will facilitate the integration of TCNs into the local labour 

322 

 
 
 
 
arrival process 

market and society. Moreover, specific support will be available to ensure the integration 
and well-being of the migrant worker’s family. 

With regards to cost savings resulting from this PO, employers would benefit from costs savings 
linked to the publication of job vacancies via social media and job boards. Therefore, employers 
could  save  up  to  EUR  150-400  per  vacancy433,  reducing  the  cost  of  recruiting  international 
workers  from  an  upper-bound  of  EUR  2  500  to  around  EUR  2  100-2  350  per  vacancy,  by 
lowering costs associated with the publishing of vacancies. This would result in around EUR 74 
500 000 – 77 700 000 total savings across EU employers434.    

Additional  time savings  are envisaged in  case  facilitation measures aimed at  streamlining the 
immigration  and  recruitment  procedures  are  put  in  place  by  the  Member  States  (e.g.  fast-track 
immigration  and  recruitment  procedure,  exclusion  from  the  labour  market  test  (LMT),  etc.). 
However,  under  PO2  the  possibility  to  introduce  such  measures  is  left  to  the  Member  States 
discretion. The table below shows the additional potential time savings for employers and TCNs 
deriving from the introduction of facilitation measures by the participating Member States:  

Steps 

Current costs 

Monetary 

Time 

Relevant measure(s) 
of PO2 

Cost-savings 

n/a 

n/a 

n/a 

Conducting 
labour market 
tests  

(employers) 

Recognition of 
skills and 
qualifications 

(employers and 
TCNs) 

Obtaining 
visa/permits 

(employers and 
TCNs) 

3-4 weeks on 
average per vacancy 

Possibility to skip the 
LMT as part of 
facilitation measures 

3-4 weeks when deciding to skip 
LMT, otherwise no impact. 

Normal procedure: 
52 days per 
application 

Fast track 
procedure: 26 days 
per application 

Possibility to activate 
fast-track procedures 
as part of facilitation 
measures 

26 days for recognition procedures 
per application 

Normal procedures: 
9 weeks 

Fast track 
procedures: 3 weeks 

Possibility to activate 
fast track procedures 
as part of facilitation 
measures 

6 weeks for immigration procedures 
per application 

Total time saving: 2-3 months for each recruitment process 

433  

434  

This estimation is based on the average cost of job boards and social media. The cost of publishing a job on recruitment 
platforms  can  vary  depending  on  the  platform  and  the  specific  features  and  options  chosen.  Most  platforms  offer  the 
possibility  to  publish  the  job  post  for  free,  while  allowing  employers  to  pay  a  fee  for  broader  visibility  or  additional 
promotional  features.  Fees  are  normally  on  a  pay-per-click  basis,  meaning  that  employers  pay  each  time  a  job  seeker 
clicks on their job post. A daily budget is normally set by the employer, after which the platform will stop displaying the 
listing.  This  implies  that  costs  vary  depending  on  wide  range  of  variables  including  e.g.  the  size  and  turnover  of  the 
company,  the  level  of  the  position  being  advertised,  the  industry  in  which  the  company  operates  in,  the  general 
recruitment  strategy  of  the  employer.  However,  assuming  a  daily  budget  of  EUR  5-13,  and  considering  that  job 
advertisements typically stay active for 30 days, the total estimated cost ranges between EUR 150-400 per vacancy. The 
assumption of a EUR 5-13 daily budget will result in around 115 clicks (as the average cost per click is around EUR 1.3) 
after 30 days. Assuming that only half of those will actually submit the application, a receipt of 50-60 CVs is in line with 
inputs provided by recruitment agencies and employers during consultation activities. 
As per above, this range is estimated according to whether 11 or 20 Member States are joining the initiative. 

323 

 
 
 
 
 
Qualitative benefits. Besides quantifiable cost-savings, the measures associated with PO2 can also 
result in a number of qualitative benefits. Those are described in the table below. While difficult 
to quantify, those qualitative benefit can also result in additional savings for employers and TCNs. 

Opportunity costs 

While  accounting  cost-savings  may  be  limited  as  only  linked  with  employers’  savings  from 
avoiding to  the publication of job  vacancies via social media and job  boards (EUR 150-400 per 
vacancy),  the  EU  Talent  Pool  could  have  relatively  stronger  financial  impact  in  terms  of 
opportunity costs.  

As  mentioned  above,  the  standard  international  recruitment  process  typically  takes  around  6 
months. However, the process via the Talent Pool could cut down time to 3,5 months.435 In this 
context, opportunity costs can be calculated for  TCNs (in terms of lost wages) and employers 
(in terms of lost revenue) when conducting international recruitment with and without the use of 
the Talent Pool. The difference between the two will give the cost-savings associated with using 
the Talent Pool. 
For TCNs, the average wage in Europe is estimated to be around EUR 1 500 per month.436 Under 
the standard recruitment process, TCNs would experience a loss in wages of approximately EUR 
9 000 during the 6-month period. In contrast, by using the Talent Pool and opting for facilitation 
procedures, the loss in wages would decrease to around 5 250 EUR. The difference of EUR 3 750 
per  TCN  represented  the  cost-savings  associated  with  using  the  Talent  Pool  instead  of  standard 
procedures. Considering that 271 000 – 282 500 successful matches are expected under this PO, 
the maximum total gain in wages would reach around EUR 1 044 065 000 – 1 088 370 000.  

The  same  reasoning  can  be  applied  to  EU  employers  in  terms  of  lost  revenue.  To  estimate  the 
average  revenue  per  worker  for  employers,  we  take  the  average  wage  and  multiply  it  by  three, 
following the standard approaches to  measuring the cost  of a vacancy.437 The total  revenue loss 
for  international  recruitment  without  the  Talent  Pool  is  around  EUR  28  000  per  employer. 
However, when using the Talent Pool, this amount is reduced to around EUR 16 000, resulting in 
a turnover gain of EUR 11 500 per employer. Considering the expected number of vacancies that 
will be filled, the total revenue gain from PO2 is of around EUR 3 132 195 000 – 3 265 111 000 
across all employers. 

•  Indirect benefits 

As  mentioned  above  the  following  indirect  benefits  are  estimated  under  this  PO.  A  range  of 
benefits is provided depending on the number of Member States participating (11 or 20). 

Indirect benefit 

Estimated value 

Increase in GDP (benefit for EU) 

EUR 3.855-4.255 billion 

435  

436  

437  

The  time  needed  to  recruit  could  be  even  smaller  if  considering  qualitative  benefits,  however  the  latter  cannot  be 
quantified. 
Eurostat,  survey  of  income  and  living  conditions  (SILC),  Median  equivalised  net  income  in  purchasing  power  parity, 
customised extraction. 
DJS,  Cost 
https://drjohnsullivan.com/uncategorized/cost-of-vacancy-formulas-for-recruiting-and-retention-managers/  

and  Retention  Managers, 

for  Recruiting 

of  Vacancy 

Formulas 

available 

at: 

324 

 
 
 
 
 
Increase in fiscal contribution (benefit for EU) 

EUR 918-957 million 

Increase in remittances (benefit for third countries) 

EUR 712-748 million 

325 

 
 
 
Cost-benefits comparison438 

EU / EU Commission 

National Authorities 

Employers 

TCNs / third countries  

Estimate 

Comment 

Estimate 

Comment 

Estimate 

Comment 

Estimate 

Comment 

Direct 
costs 

R: EUR 7 332 
755  –  7  947 
497 

O:    EUR  6 
722  056  –    6 
804 539 

Indirect 
costs 

n/a 

R: EUR 9 788 
075 –  16 583 
867 

O:  EUR  2 
672  400  –    4 
175 625 

n/a 

includes 
costs 
budget 

R: 
staff 
and 
for 
operational 
activities,  and 
IT  costs  for 
maintenance, 
and additional 
features 
implementati
on costs 

includes 

O: 
IT 
development 
costs 

No significant 
indirect  costs 
were 
identified. 

R: 
includes 
staff  costs  (to 
be covered by 
and 
AMIF) 
budget 
for 
operational 
activities  and 
maintenance 
costs 
related 
to  Member 
States’ 
integration 

includes 

O: 
IT 
development 
costs 

No significant 
indirect  costs 
were 
identified. 

n/a 

n/a 

No significant 
costs 
were 
identified.  

No significant 
costs 
were 
identified. 

n/a 

n/a 

No significant 
indirect  costs 
were 
identified. 

No significant 
indirect  costs 
were 
identified. 

Direct 

n/a 

No 

direct  n/a 

No 

direct  R: EUR 3 206  Cost-savings  R: EUR 1 044  Opportunity 

438  
                is only assessed qualitatively or that no significant costs/benefits were identified. 

“R”  refers  to  recurrent,  while  “O”  refers  to  one-off  costs.”n/a”  indicates  that  the  cost  or  benefit  for  that  stakeholder  group  could  not  be  quantified  and 

326 

 
 
 
 
 
 
 
benefits 

benefits 
are 
identified  for 
EU 
Commission. 
Benefits 
for 
the  EU  as  a 
whole 
are 
indirect. 

695  000  –  3 
342 811 000 

benefits 
are 
identified  for 
National 
Authorities. 

n/a 

327 

on  publishing 
the  vacancy 
for 
all 
employers 
plus 
opportunity 
cost  savings. 
The 
latter 
refers  to  the 
additional 
turnover 
thanks  to  the 
saved 
time 
when 
recruiting  via 
the 
Talent 
Pool.  

Employers 
would  benefit 
the 
from 
wider  pool  of 
candidates 
accessible  via 
a  centralised 
platform.  The 
search 
and 
matching 
tool, 
screening, 
information 
provision, 
standardisatio

pre-

065  000  –  1 
088 370 000 

savings 
terms  of 

cost 
in 
additional 
wages  thanks 
to 
time 
the 
saved  when 
finding  a  job 
via  the  Talent 
Pool. 

n/a 

TCNs  would 
benefit 
from 
having  access 
to  a 
single 
platform 
the 
reducing 
time  needed 
identify 
to 
suitable 
job 
opportunities. 
Additional 
time  savings 
come 
will 
from 
search 
and  matching 

 
 
 
tools, 
information 
provision  and 
personalised 
support 
available. 
Those 
features  will 
also 
smooth 
post-arrival 
integration.  

and 

n of templates 
(e.g., 
EUROPASS 
CV) 
personalised 
support  will 
all  reduce  the 
time  required 
to 
a 
find 
suitable 
candidate 
abroad 
and 
ensure  a  best 
match 
between 
job 
requirements 
and  candidate 
profile. 

Indirect 
benefits 

EUR 

R: 
3.855-4.255 
billion 
(increase 
GDP); 

in 

R:  EUR  918-
957  million 
in 
(increase 
fiscal 
contribution); 

n/a 

Benefits 
for 
the  EU  as  a 
whole  entail 
an  increase  in 
GDP  and  in 
fiscal 
contribution. 

n/a 

No 
indirect 
benefits  were 
identified  for 
National 
Authorities 

No 
indirect 
benefits  were 
identified  for 
employers. 

R:  EUR  712-
748  million 
(increase 
in 
remittances) 

328 

for 

Benefits 
third 
countries 
entail 
increase 
remittances. 

an 
in 

 
 
 
2.3 Developing an EU Talent Pool as a fully demand-driven tool (legislative option) 

The governance at EU level envisaged under PO3 is equivalent to PO2. Therefore, for a detailed 
description of the assessment of these costs see Section 2.2. above.  

With  regard  to  the  national  governance  additional  National  Contact  Points  (in  comparison  with 
PO2) are foreseen due to its open nature and, hence, the expected higher number of employers and 
TCNs using the platform. As no specific link with Talent Partnerships is foreseen under this PO, 
the setting up of Liaison Officers is not included in the assessment below. (For more details see 
Annex 9). 

The  table  below  provides  an  overview  of  the  associated  costs.  As  before,  costs  have  been 
estimated according to  the take up of the initiative across Member States. At the national  level, 
ranges are provided for aggregated staff FTEs and budget according to whether 11 or 20 Member 
States are assumed to participate in the initiative by 2030. For EU level costs, a similar range is 
provided for horizontal coordination and training budgets as those depend on the number of NCPs 
assumed. Those costs where a range is not provided do not depend on the take up of the initiative 
among Member States. 

Governance costs 

Governance costs (staff and other costs) 

Type of costs 

Costs at EU level 

Costs at national level 

Staff 

EU  Talent  Pool  Secretariat 
(13  FTEs, 
including  one 
business  manager  responsible 
platform 
IT 
for 
coordination) 

the 

EUR 1 903 000   

National  Contact  Points439  (5  FTEs  per  Member 
State:    55  –  100  FTEs  per  11  –  20    Member 
States  assumed  participating)  (to  be  covered  by 
AMIF) 

EUR 17 600 000 – 32 000 000 

Other activities  

Horizontal coordination 

EUR 97 000 - 176 000 

Training  

EUR 970 600 – 1 765 000 

Communication  

EUR 1 500 000 

Translation  

EUR 1 300 000 

EUR 1 057 000 

Online information 
provision  

439  

Estimates are based on the costs associated with current EURES NCPs and adjusted by the expected number of expected 
successful matches under the policy option. Information on current EURES NCPs costs and FTEs come from the ad-hoc 
survey to NCOs conducted by the contractor, triangulated with the EURES ex-post evaluation. 

329 

 
 
 
 
 
 
Mandatory facilitation 
measures 

Additional  costs  for  Member  States  to  set  up 
facilitation measures  

Fast-track immigration procedures:  

EUR 47 430 000 – 50 320 000 

Fast-track recognition procedures: 

EUR 16 740 000 – 17 760 000 

EUR 6 827 600 – 7 700 000 

EUR 81 770 000 – 100 000 000 

[additional  costs 
included as mandatory for MS] 

for 

facilitation  measures 

Annual 
costs (recurrent) 

total  governance 

The  roles  and  responsibilities  evisaged  for  the  governance  at  EU  and  national  level  as  well  as 
other costs mentioned in the table above, including online  information provision and facilitation 
measures are explained in detailed under Section 2.2. While under PO2 the facilitation measures 
are  foreseen  as  optional,  those  facilitation  measures  are  mandatory  for  the  Member  States 
participating and therefore, they are included in the total governance costs at national level. 

IT costs 

Under  this  option,  the  IT  platform  and  functioning  of  the  EU  Talent  Pool  would  involve  the 
development of a completely new IT solution with relevant functionalities tailored to its purpose. 
This  option  includes  creating  a  new  automatic  matching  tool  without  reusing  components  from 
EURES. 

PO3  envisages  higher  development  costs  compared  to  PO2  as  the  re-use  of  EURES  IT 
components is not foreseen (therefore, the new development of off all IT components is would be 
required)  and  more  advanced  functionalities  are  foreseen  (See  Annex  9  for  a  detailed 
description).440 

Administration  costs  encompass  activities  directly  related  to  managing  and  maintaining  the  IT 
systems  and  infrastructure  supporting  the  EU  Talent  Pool.  These  costs  primarily  consist  of 
recurring development expenses, including the need IT staff to implement additional features that 
may  be  necessary  in  the  years  following  the  initial  development  phase.  Consequently, 
administration costs are estimated to be higher for PO3. 

An  overview  of  the  estimated  IT  costs  it  provided  below.  As  one-off  costs  (development  and 
infrastructure  for  Y1  and  Y2)  and  recurrent  costs  (maintenance,  infrastructure  onwards  Y3  and 
additional  features  implementation)  are  foreseen,  the  estimation  of  costs  is  provided  over  a  10 
year period.  

Similar to PO2, several cost elements will depend on the participation of Member States: 

440  

In  addition  to  development  and  maintenance  costs,  PO3  also  entails  higher  infrastructure  costs  because  it  lacks 
mutualisation with EURES. Hosting costs rise as well, owing to the increased number of CVs and job vacancies. 

330 

 
 
 
 
 
 
 
 
 
•  At national level, the development costs required to integrate national systems into the EU 

Talent Pool (exchange system), as well as the costs associated with its maintenance, 

•  At EU level, the infrastructure costs associated with fluctuating numbers of CVs and job 

offers. 

PO 3  

Development 

EUROPASS 
adaptation  and 
integration 

Total 
0ver ten 
years 

€15,897
,975 - 
€20,256
,225 

€224,99
9 

TCN  CVs'  DB 
creation 

€374,99
9 

Job  vacancies' 
DB creation 

€899,99
9 

Search/matchin
g 
integration 

engine 

€749,99
9 

Y1-Y2 

Y3 

Y4 

Y5 

Y6 

Y7 

Y8 

Y9 

Y10 

€15,897
,975 - 
€20,256
,225 

€224,99
9 

€374,99
9 

€899,99
9 

€749,99
9 

€449,99
9 

– 

€449,99
9 

Employer 
registration 
Direct 
registration 
without 
screening 

Core system 

of 
Integration 
EU 
Talent 
Platform  with 
other systems 

Member  States 
integration 

Operations 
(maintenance) 

Contractor 
operations 
baseline  

for 

Member  States 
integration 
operations 

Infrastructure 

€5,249,
983 

€5,249,
983 

€199,99
7 

€199,99
7 

€7,748,
000 - 
€12,106
,250 

€16,692
,874 - 
€21,269
,036 

€8,557,
474 

€8,135,
400 - 
€12,711
,563 

€10,627
,171 - 
€12,486

€7,748,
000 - 
€12,106
,250 

€0 

€0 

€0 

€2,125,
434 - 
€2,497,

- 

- 

- 

- 

- 

- 

- 

- 

€2,384,
696 - 
€3,038,
434 

€1,222,
496 

€1,162,
200 - 
€1,815,
938 

€1,062,
717 - 
€1,248,

€2,384,
696 - 
€3,038,
434 

€1,222,
496 

€1,162,
200 - 
€1,815,
938 

€1,062,
717 - 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

€1,987,
247 - 
€2,532,
028 

€1,018,
747 

€968,50
0 - 
€1,513,
281 

€1,062,
717- 
€1,248,

331 

 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
,341 

€11,440
,000 

268 

€0 

634 

634 

634 

634 

634 

634 

634 

634 

€2,860,
000 

€2,860,
000 

€953,33
3 

€953,33
3 

€953,33
3 

€953,33
3 

€953,33
3 

€953,33
3 

Additional 
features 
implementatio
n441 

Total  Cost  for 
EU 
Talent 
Pool 

€54,658
,020- 
€65,451
,602 

€18,023
,409 - 
€22,753
,493 

€6,307,
413 - 
€7,147,
068 

€6,307,
413 - 
€7,147,
068 

€4,003,
297 - 
€4,733,
996 

€4,003,
297 - 
€4,733,
996 

€4,003,
297 - 
€4,733,
996 

€4,003,
297 - 
€4,733,
996 

€4,003,
297 - 
€4,733,
996 

€4,003,
297 - 
€4,733,
996 

Total estimation of costs 

Category 

Sub 
category 

Type of 
cost 

Stakeholders 
bearing the 
cost 

Associated costs (EUR) 

[For 11 – 20 Member States participating] 

Y1 

Y2 

Each 
subsequent 
year 

Governance 
and other non-
IT-related costs 

EU level 

Recurrent 

EU 
Commission 

€6,827,600  – 
€7,700,000 

€6,827,600  – 
€7,700,000 

€6,827,600 
€7,700,000 

– 

National 
level 

Recurrent 

National 
public 
authorities 
(from AMIF) 

€81,770,000 – 
€100,000,000 

€81,770,000 
– 
€100,000,000 

€81,770,000 – 
€100,000,000 

EU Level 

Recurrent/
One-off 

EU 
Commission 

€10,275,409 – €10,647,243 

€3,562,401 
€3,748,318 

– 

National 
public 
authorities (for 
maintenance 
of the 
interoparabilit
y of their 
systems) 

IT platform and 
other IT-related 
costs 

National 
level 

Recurrent/ 

Total costs* 

For EU Commission: 

For 11-20 Member States participating: 

€7,748,000 – €12,106,250 

1,016,925€ 
1,588,945€ 

- 

€11,965,304 – 
€13,023,621 

€85,644,000 – 
€106,053,125 

€11 965 304 
– €13 023 
621 

€85,644,000 
– 
€106,053,125 

€10,390,001 – 
€11,448,318 

€82,786,925 – 
€101,588,945 

441 These activities would typically involve a total of 20 full-time equivalents (FTEs) across various roles. The allocation includes 
4.0 FTEs for Business Analysis, 1.0 FTE for project management, 4.0 FTEs for development, 1.0 FTE for quality assurance, 6.0 
FTEs for technical experts, and 4.0 FTEs for testing. 

332 

 
 
 
 
 
 
Benefits 

•  Direct benefits 

PO3 would lead to the same qualitative benefits of PO2 (see table above). Similarly, cost saving 
for  employers  would  be  the  same  as  those  foreseen  under  PO2  (EUR  150-400  per  vacancy) 
reducing the cost of recruiting international workers from an upper-bound of EUR 2 500 to around 
EUR 2 100-2 350 per vacancy. This results in around EUR 76 725 000 – 81 400 000 total savings 
across EU employers442. 

However, under this PO Member States would be mandatorily required to introduce measures 
aimed  at  fastening  immigration  and  recognition  procedures  (e.g.  fast-track  immigration  and 
recruitment procedure, exclusion from the labour market test (LMT), etc.). Therefore, while under 
PO2 time savings resulting from such measures would depend on whether Member States decide 
to set up faster procedures, under this PO all job placements taking place in the EU Talent Pool 
would benefit from these facilitation measures, therefore, entailing a reduction of 2-3 months for 
each recruitment process.  

Opportunity costs 

As per PO2, opportunity costs can be calculated in the context of PO3, assuming that the standard 
international  recruitment  process  typically  lasts  around  6  months  and  the  process  via  the  Talent 
Pool approximately 3.5 months. 
For TCNs, the average wage in Europe is estimated to be around EUR 1 500 per month.443 Under 
the standard recruitment process, TCNs would experience a loss in wages of approximately EUR 
9 000 during the 6-month period. In contrast, by using the Talent Pool and opting for facilitation 
procedures, the loss in wages would decrease to around 5 250 EUR. The difference of EUR 3 750 
per  TCN  represented  the  cost-savings  associated  with  using  the  Talent  Pool  instead  of  standard 
procedures. Considering that 279 000 – 296 000 successful matches are expected under this PO, 
the maximum total gain in wages would reach around EUR 1 074 886 000 – 1 140 380 000.  

The  same  reasoning  can  be  applied  to  EU  employers  in  terms  of  lost  revenue.  To  estimate  the 
average  revenue  per  worker  for  employers,  we  take  the  average  wage  and  multiply  it  by  three, 
following the standard approaches to  measuring the cost  of a vacancy.444 The total  revenue loss 
for  international  recruitment  without  the  Talent  Pool  is  around  EUR  28  000  per  employer. 
However, when using the Talent Pool, this amount is reduced to around EUR 16 000, resulting in 
a turnover gain of EUR 11 500 per employer. Considering the expected number of vacancies that 
will be filled, the total revenue gain is of around EUR 3 224 658 000 – 3 421 143 000. 

•  Indirect benefits 

As  mentioned  above  the  following  indirect  benefits  are  estimated  under  this  PO.  A  range  of 
benefits is provided depending on the number of Member States participating (11 or 20). 

442  
443  

444  

As per above, this range is estimated according to whether 11 or 20 Member States are joining the initiative. 
Eurostat,  survey  of  income  and  living  conditions  (SILC),  Median  equivalised  net  income  in  purchasing  power  parity, 
customised extraction. 
DJS, 
Cost 
https://drjohnsullivan.com/uncategorized/cost-of-vacancy-formulas-for-recruiting-and-retention-managers/    

Retention  Managers, 

of  Vacancy 

Recruiting 

Formular 

available 

and 

for 

at: 

333 

 
 
 
 
Indirect benefit 

Estimated value 

Increase in GDP (benefit for EU) 

EUR 3.968-4.458 billion 

Increase in fiscal contribution (benefit for EU) 

EUR 945 million – 1 billion 

Increase in remittances (benefit for third countries) 

EUR 739-784 million 

334 

 
 
 
 
 
Cost-benefits comparison445 

EU / EU Commission 

National Authorities 

Employers 

TCNs / third countries  

Estimate 

Comment 

Estimate 

Comment 

Estimate 

Comment 

Estimate 

Comment 

R: includes staff 
costs and budget 
for operational 
activities and IT 
maintenance, 
infrastructure 
and additional 
features 
implementation 
costs 

O: includes IT 
development 
costs 

No significant 
indirect costs 
were identified. 

No direct 
benefits are 
identified for EU 
Commission. 
Benefits for EU 
as a whole are 
indirect. 

Direct costs  R: EUR 10 390 

001 – 11 448 
318 

O: EUR 10 275 
409 –  10 647 
243 

Indirect 
costs 

Direct 
benefits 

n/a 

n/a 

445  

n/a 

No significant 
costs were 
identified.  

n/a 

No significant 
costs were 
identified. 

R: EUR 81 876 
178  

O: EUR  7 748 
000 – 12 106 
250 

R: includes staff 
costs (to be 
covered by 
AMIF) and 
budget for 
operational 
activities 

O: includes IT 
development 
costs 

n/a 

n/a 

No significant 
indirect costs 
were identified. 

n/a 

No significant 
indirect costs 
were identified. 

n/a 

No direct 
benefits are 
identified for 
National 
Authorities. 

R: EUR 3 301 
383 000 – 3 502 
543 000 

R: EUR 1 074 
886 000 – 1 140 
380 000 

Cost-savings on 
publishing the 
vacancy for all 
employers plus 
opportunity cost 
savings. The 
latter refers to 
the additional 
turnover thanks 
to the time saved 
when recruiting 
via the Talent 

No significant 
indirect costs 
were identified. 

Opportunity cost 
savings in terms 
of additional 
wages thanks to 
the time saved 
when finding a 
job via the 
Talent Pool. 

335 

 
 
 
 
 
 
Indirect 
benefits 

R: EUR 3.968-
4.458 billion 
(increase in 
GDP); 

R: EUR 945 
million – 1 
billion (increase 
in fiscal 
contribution); 

n/a 

Benefits for the 
EU as a whole 
entail an 
increase in GDP 
and in fiscal 
contribution. 

No indirect 
benefits were 
identified for 
National 
Authorities 

n/a 

n/a 

Pool.  

Qualitative 
benefits under 
PO2 apply. 

No indirect 
benefits were 
identified for 
employers. 

n/a 

R: EUR 739-784 
million (increase 
in remittances) 

Qualitative 
benefits under 
PO2 apply. 

Benefits for 
third countries 
entail an 
increase in 
remittances. 

336 

 
 
 
ANNEX 11  
SME TEST 

The  EU  Talent  Pool  is  highly  relevant  for  SMEs,  as  the  “availability  of  skilled  staff  or 
experienced managers” was the most important issue faced by SMEs in 2022446. An initiative such 
as the EU Talent Pool, helping EU employers to identify much needed talent and skills for their 
business  from  outside the EU, is  going  to  benefit  SMEs much more than large  companies, who 
can  resort  to  international  recruitment  independently  either  with  their  own  Human  Resource 
Department or using an external agency to proceed to identify and hire TCN workers. Moreover, 
SMEs  are  also  less  able,  in  general,  to  compare  and  evaluate  foreign  country  diplomas  and 
qualifications  of  candidates  from  outside  the  EU  and  to  assess  opportunities  beyond  their 
immediate circle or contacts, to find new employees or to replace old workers who leave. This is 
particularly relevant for start-ups who are growing fast and need to expand their workforce. SMEs 
are  also  less  likely  to  post  an  on-line  vacancy  for  international  recruitment  without  help  or 
assistance from a service provider.  

1.  Identification of affected businesses 

SMEs  are  the  backbone  of  the  EU  economy.  In  2022,  there  were  approximately  24.300.000 
companies in the EU. Only 0,2% of them - 43112, had more than 250 employees. Always in 2022, 
99,8% of companies were SMEs, accounting approximately for two thirds of employment in the 
EU: 84.9 million of employees447. In terms of employment, micro enterprises account for a greater 
share  of  total  SME  employment  than  small  SMEs  (30%),  and  small  SMEs  account  for  more 
employment than medium-sized SMEs (24%). Since early 2020, due to the Covid-19 pandemic, 
the  24  million  EU-27  SMEs  have  faced  unprecedented  economic  uncertainty  and  turmoil. 
Moreover,  through  part  of  2021  and  2022,  SMEs  experienced  difficulties  in  hiring  new  staff  to 
meet an unexpectedly strong rebound in demand448. 

The different Policy options under the EU Talent Pool, therefore, are likely to benefit more SMES 
than large companies, to provide a helpful assistance and structured platform for recruiting skilled 
staff at all levels. 

2.  Consultation of SME stakeholders 

2.1 SME  stakeholders  provided  feedback  to  the  Impact  Assessment  and  participated  in  the 

open public consultation through EU-level organisation such as SMEunited; 

2.2 And direct consultation of individual enterprises: 3 companies out of 82 business involved 

in stakeholders’ consultation. 

3.  Measurement of the impact on SMEs 

The different measures have been found to have the following impacts on SMEs: 

446  

447  

448  

Annual  Report  on  European  SMEs,  2022/2023,  SAFE  Survey  conducted  in  the  period  of  7  September  to  26  October 
2022, p. 30. 
SME  performance  Report  2023,  SME  Performance  Review  (europa.eu)  Calculations  of  the  JRC  based  on  Eurostat 
Structural Business Statistics, Short-Term Business Statistics and National Accounts Database. 
Annual Report on European SMEs, 2022/2023, pp. 13. 

337 

 
 
 
 
 
Baseline Scenario 

The baseline scenario is  not conducive to improving the conditions for international recruitment 
from  EU SMEs.  The projections for 2023 paint  a challenging  picture  for SMEs  in  the EU.  It  is 
expected that inflation-adjusted SME value added in the NFBS will decrease by 1.2%, while SME 
employment is projected to fall by 0.2%. These forecasts reflect a difficult environment for SMEs 
in the near future449. 

Non Legislative measures 

Given  that  the  practical  measures  are  largely  raising  from  the  current  situation,  SMEs  could 
participate where they deem the measures to be cost-effective in view of their individual business 
model, economic conditions specific to their sector and other factors. The economic impact of the 
practical measures contained in PO1, however, is likely to be negligible for SMEs, as there is no 
dedicated and specialized support and assistance for the recruitment needs of SMEs. 

Legislative measures 

All  the  legislative  options  (PO2  and  PO3)  would  have  a  positive  impact  on  SMEs.  SMEs  are 
likely  to  benefit  disproportionately  more  than  larger  companies  from  standardised  processes, 
improved  feedback  mechanisms  and  dedicated  communication  channels  as  well  as  practical 
support in the form of assistance and support for international recruitment.  

Legislative measures (PO2 and PO3) would provide greater legal certainty for SMEs in terms of 
data protection who wish to engage through the EU Talent Pool. 

PO2 and PO3 are both contributing to ensure a level-playing field with larger companies as many 
measures will alleviate some costs associated to  international recruitment for SMEs. Indeed, the 
two  legislative  options  are  expected  to  have  stronger  positive  impacts  on  SMEs,  in  respect  of 
PO1. However, PO2 with its targeted and focused approach is going to have a more concentrated 
sectoral impact, benefitting SMEs in occupations of EU and national relevance.   

This  is  mainly  due  to  the  higher  added  value  of  the  search  and  matching  tools  offered,  as 
substantiated by the figure below. In particular, for SMEs the value of automatic (under PO3) and 
semi-automatic (under PO2) tools is greater relative to large firms. Similarly, a greater benefit for 
SMEs is that only candidates with relevant profiles can apply to the vacancy. Searching for and 
screening  candidates  from  third  countries  typically  involve  significant  costs,  which  are  often 
difficult for SMEs to bear. The ability to access a list of profiles, especially if they have been pre-
screened  under  PO2,  would  be  of  great  benefit  to  SMEs,  by  reducing  the  search  costs  and 
providing a streamlined and efficient process for identifying suitable candidates. In general, SMEs 
more  likely  to  lack  the  in-house  expertise  and  resources  required  to  compare  and  assess 
applications from third country nationals, and resources, which are more commonly available to 
multinational corporations. However, the importance of supporting procedures is high among both 
clusters of firms, thereby leaning towards stronger preference for PO2.  

449  

Annual Report on European SMEs, 2022/2023, pp. 50-53. 

338 

 
 
 
 
 
Figure 1: Extent to which following features would change the likelihood of registering on the platform, mean by firm 
size 

Source: Contractor survey on EU employers. 

Note: Range goes from 1 [strongly decrease it] to 7 [strongly increase it] with 4 being representing no effect. 

The  results  from  the  employers’  survey  are  also  reflected  in  the  outcomes  of  the  broader 
stakeholders’ survey results (see figure below).  

Figure 2: Impact of the different policy options on SMEs in EU Member States according to survey respondents 

Source: Contractor survey on a broad range of stakeholder groups. 

The  implementation  of  the  EU  Talent  Pool  is  expected  to  benefit  hiring  practices  of  SMEs  by 
giving them access to a wider pool of jobseekers and creating a critical mass of employees. Large 
companies already enjoy relatively easier access to international talent due to their well-developed 
human resources departments and subsidiaries and branches in third countries. Conversely, SMEs 

339 

4.404.604.805.005.205.405.605.806.006.20Sharing of job postings between the EU Talent Pool and national job portalsOnly candidates with required profiles can apply to your job postings (e.g.qualifications, language proficiency...)Candidates self-declare that the information they provide in their profiles iscorrect and accurateCandidates are required to submit supporting documents during the profilecreationAuthenticity and correctness of supporting documents submitted by thecandidate is verified by an external validatorA semi-automatic matching tool provides a shortlist of candidates who match jobrequirements (structured data)An automatic matching tool provides a ranked shortlist of candidates, alsoprocessing CVs and documents (unstructured data)Fast-track administrative procedures for selected candidatesQuality checks of employers when registering (legal compliance, bankruptcy)Large firmsSMEs0%10%20%30%40%50%60%70%80%90%100%PO1aPO1bPO1cPO2PO3-3 [negative impact]-2-10 [no impact]123 [positive impact]Don't know 
 
 
 
 
often face higher barriers to entry due to the increased transaction costs and risks associated with 
international recruitment. It is not possible to quantify further these perceived benefits since they 
would  depend  on  the  level  and  intensity  of  international  recruitment  to  which  the  SMEs  would 
engage  into.  This  depends  on  the  sector  as  well  as  their  business  model  and  the  size  of  the 
company. Given that the success of SMEs as companies is often strongly related to their degree of 
legitimacy as perceived by their local community, the acceptance of migrant workers by SMEs is 
found to be driven by owner-managerial values, as well as the perceived skill level and necessity 
of migrant labour.450 Similarly, research shows that the career experience of migrant SME owner-
managers influence their behaviour in recruiting and retaining international staff: a more positive 
experience is likely to encourage foreign-born SME owners to also recruit internationally.451 

By  2023,  SMEs  are  expected  to  have  recovered  to  their  2019  employment  level,  or  to  have 
surpassed it in six industries: ‘water supply, sewerage, waste management, remediation sctivities’, 
‘electricity, gas, steam, air conditioning supply’, ‘construction, informationa and communication’, 
‘real estate activities’ and ‘professional, scientific and technical activities’. It is important to note 
that, because SME value added is  measured in  current  prices, the sharp increases in  commodity 
and raw materials prices in 2022 are projected to boost the growth of value added in the mining 
sector from 2019 to 2023, even if employment in the industry is expected to remain slightly lower 
in  2023 than in 2019. The largest  increases in  SME employment are  expected in two industries 
which  are  also  forecast  to  experience  strong  information  and  communication  (111%)  and 
construction (107%) of its 2019 level. The number of SMEs is expected to be lower in 2023 than 
in  2019  in  only  one  industry  electricity,  gas,  steam  and  air  condition  supply  98%  of  its  2019 
level). Among all the remaining industries in which the number of SMEs is expected to be greater 
in 2023 than in 2019, the increase in SMEs is expected to be 115%).452 

However, it appears from the literature that while facilitated access to a TCNs labour pool may be 
expected  to  allow  SMEs  to  recruit  workers  at  a  lower  cost,  the  literature  suggests  several 
additional benefits of attracting TCNs as migrant workers and possibly becoming self-employed 
themselves later on. For instance, employed third-country migrants are on average more likely to 
start a new business than natives, creating between 1.4 and 2.1 additional jobs in OECD countries 
(slightly less than their native counterparts, who create 1-8-2.8).453 This is a growing trend: figures 
for 2020 show that around 11% of the self-employed people in the EU are TCNs, an increase of 
5% increase from 2011.454 

Small  and  medium-sized  enterprises  (SMEs)  within  the  European  Union  are  encountering 
significant  challenges  in  recruiting  and  retaining  skilled  staff.  A  recently  released  Flash 
Eurobarometer455  sheds  light  on  the  demands  and  obstacles  faced  by  SMEs  in  relation  to  their 

450  

451  

452  
453  
454  
455  

Lähdesmäki,  Merja  and  Suutari,  Timo,  'Good  workers,  good  firms?  Rural  SMEs  legitimising  immigrant  workforce', 
Journal of Rural Studies, Vol. 77, 2020, pp. 1-10. 
Crowley-Henry, Marian, O'Connor, Edward P and Suarez-Bilbao, Blanca, 'What goes around comes around. Exploring 
how skilled migrant founder–managers of SMEs recruit and retain international talent', Journal of Global Mobility: The 
Home of Expatriate Management Research, Vol. 9, 2, 2021, pp. 145-165. 
SME Performance Review 2022/2023, p. 40. 
OECD, Migrant Entrepreneurship in OECD Countries, International Migration Outlook, 2011. 
OECD, The Missing Entrepreneurs 2021 : Policies for Inclusive Entrepreneurship and Self-Employment, 2021. 
European Commission, Flash Eurobarometer 529: European Year of Skills: Skills shortages,  recruitment and retention 
strategies in small and medium-sized enterprises, 2023. The number of SMEs respondents is around 13 000 SMEs. 

340 

 
 
 
 
recruitment and retention efforts. The survey underscores the crucial role skilled workers play in 
the  success  of  SMEs  in  Europe,  with  a  staggering  95%  of  all  SMEs  expressing  that  having 
employees  with  the  appropriate  skills  is  of  paramount  importance  to  their  business  model. 
Specifically, 82% find it "very important," while 13% consider it "moderately important." 

However,  three-quarters  (74%)  of  SMEs  in  Europe  currently  struggle  with  concrete  skills 
shortages  for  at  least  one  job  role  within  their  organisation.  This  pressing  issue  was  also 
acknowledged  by  President  Von  Der  Leyen  in  her  2023  State  of  the  Union  Address,  where  she 
highlighted examples such as hospitals delaying treatments due to a shortage of nurses and two-
thirds of European companies desperately seeking IT specialists without success.456 This situation 
hampers  the  overall  business  activities  of  nearly  two  thirds  (63%)  of  companies.  Furthermore, 
nearly  half  of  them  (45%)  also  report  hindrances  in  their  efforts  to  embrace  or  use  digital 
technologies,  and  four  in  ten  (39%)  face  challenges  in  transitioning  to  more  environmentally 
sustainable business practices.  

Facilitating  access  to  a  larger  pool  of  jobseekers  is  likely  to  alleviate  the  challenges  faced  by 
SMEs  when  it  comes  to  international  recruitment  and  identifying  suitable  candidates,  thereby 
allowing SMEs to broader their search for skilled professionals beyond local borders. As reported 
by  the  European  Commission’s  Joint  Research  Centre  (JRC)  in  its  latest  Annual  Report  on 
European SMEs, hiring new skilled staff is one of the four major obstacles for SME employers.457 
Research shows that the more difficult  it is for enterprises to find skilled labour, the more often 
SME  employers  recruit  skilled  workers  from  abroad:  a  2017  study  from  Germany  shows  that 
while  only  11%  of  SMEs  targeted  their  hiring  efforts  at  third-country  nationals  in  the  past  five 
years, that proportion was expected to more than double (24%) over the following five years.458 

Research  however  indicates  that  SME  employers  may  lack  awareness  and  training  in  managing 
diversity.  This  may  lead  to  the  (unintentional)  adoption  of  practices  and  policies  which  make  it 
more difficult for foreign workers to integrate into the workforce; this is particularly the case for 
employees who originate from countries outside the EU and whose cultural distance is higher.459 
Moreover, from a practical perspective, SMEs may face difficulty in accommodating workers who 
speak their language poorly, especially in countries with limited or no recruitment basin outside 
their territory of candidates mastering the official language of the concerned country.460 

456  
457  

458  

459  

460  

The speech can be consulted here : https://ec.europa.eu/commission/presscorner/detail/ov/speech_23_4426  
Di Bella, L., Katsinis, A., Lagüera-González, J., SME Performance Review 2022/2023, 2023, ISBN 978-92-9469-591-8, 
doi: 10.2826/69827. 
Arne Leifels and Michael Schwartz (2017).  Foreign workers in German SMEs: Focus on Economics, a strong plea for 
labour  markets.  KfW  Research,  No.  154  https://www.kfw.de/About-KfW/Newsroom/Latest-News/News-
free 
Details_394113.html    
Suban,  R.,  &  Zammit,  D.  E.  (2019).  Promoting  the  integration  of  third-country  nationals  through  the  labour  market  : 
combating  discrimination  in  employment  :  the  case  of  third-country  nationals  in  Malta.  Mediterranean  Human  Rights 
Review, 1, 98-117. 
Ramasamy, S. (2016), “The Role of Employers and Employer Engagement in Labour Migration from Third Countries to 
the  EU”,  OECD  Social,  Employment  and  Migration  Working  Papers,  No.  178,  OECD  Publishing,  Paris. 
http://dx.doi.org/10.1787/5jlwxc0366xr-en  

341