COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on Skills and Talent Mobility
Date: 2023-11-15
Institutions: European Commission, Secretariat-General
Subjects: education policy, foreign national, labour mobility, labour shortage, occupational migration, professional qualifications, recognition of vocational training qualifications, recruitment, skilled worker, student mobility, third country

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 15.11.2023  COM(2023) 715 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on Skills and Talent Mobility              
 
 
1. 

INTRODUCTION  

A  skilled  workforce  is  key  to  the  competitiveness  of  the  EU  economy,  and  its  capacity  for 
growth  and  innovation.  Employers  are  struggling  to  find  the  workers  they  need.  The 
Commission’s  recent  Demography  Toolbox  showed  how  Europe’s  ageing  demographic 
further  sharpens  the  challenge1.  The  EU  urgently  needs  to  take  action  to  boost  its 
workforce. 

Labour shortages in the EU affect a variety of occupations and sectors across all skills 
levels  including  healthcare,  long  term  care  and  social  work  activities,  construction, 
manufacturing,  transportation  and  storage,  accommodation  and  food  services,  engineering, 
technical  and  scientific  activities  and  Information  and  Communications  Technology  (ICT). 
There  are  foreseeable  skills  gaps  in  areas  essential  as  the  EU  adapts  to  a  changing  world. 
With the right policies in place, the green transition will create 1 to 2.5 million additional 
jobs by 2030. The digital transition will increase demand for both high-level ICT expertise 
but also basic digital skills, with the EU currently 11 million short of its target of 20 million 
ICT professionals employed by 20302.  

The European Year of Skills underlines that a strategic approach to solving labour and 
skills shortages is and will remain indispensable. This work must start at home. At the core 
of the EU’s labour market policy are measures to reskill and upskill the domestic workforce3, 
activate  groups  with  lower  labour  market  participation4  with  targeted  support  to  regions 
facing depopulation and skills shortages, and for intra-EU mobility. Many actions are already 
underway  (see summary in  Annex),  promoting  systems  and practices  for the recognition  of 
qualifications and validation of skills, helping labour mobility to reduce barriers in the Single 
Market and enhancing learner mobility. However, these actions alone will not be enough to 
meet demand. With skills at a premium worldwide, the EU’s future competitiveness will be 
influenced  by  its  capacity  to  attract  global  talent  and  provide  a  supportive  environment  to 
bring people across all skills levels to Europe. 

The EU will continue to deepen cooperation with partner countries, ensuring a mutually 
beneficial  approach in  opening  new pathways for legal  migration, offering support in  skills 
development and promoting circular migration in order to counteract brain drain.   

This Communication and the accompanying proposals present a set of mutually  reinforcing 
actions to make the EU more attractive to talent covering the full range of occupations where 
skills might be needed by employers as well as boost intra-EU mobility. It addresses barriers 
to international recruitment and helps ensure that third country nationals can make full use of 
their skills and qualifications in Europe. The initiatives presented aim to use EU support and 
the EU’s combined weight to help Member States compete in the global race for talent. 
New  tools  proposed  would  help  job-matching  between  EU  employers  and  third  country 
nationals seeking work in the EU.  Action at EU level can have more impact than efforts by 
individual  Member  States,  creating  a  more  compelling  case  to  attract  the  staff  employers 
need,  and  using  economies  of  scale  to  reduce  obstacles  to  recruitment.  Making  it  easier  to 

1  COM(2023) 577 final. 
2  Target  set  in  COM(2021)  118  final.  Statistics  drawn  from  Eurostat  dataset  on  employed  ICT  specialists, 

available at : Statistics | Eurostat (europa.eu) 

3  The EU’s domestic workforce  comprises employed and unemployed EU citizens and legally residing third 

country nationals. 

4    Such  as  women,  youth,  older  workers,  persons  with  disabilities,  Roma  and  people  with  a  migrant   

background. 

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move within the EU  – such as  measures to  promote  learning mobility – also  has a positive 
impact for those from outside the EU looking to participate in the EU labour market. 

The actions set out aim to ensure a cross-cutting and whole-of-government approach. This 
builds  on  existing  work  including  the  Skills  and  Talent  package  and  the  Pact  on 
Migration  and  Asylum,  as  well  as  on  ongoing  cooperation  with  third  countries. 
Implementation will rely on the contribution of Member States’ migration and  employment 
authorities,  actors  at  local  and  regional  levels,  social  partners,  businesses,  and  their 
counterparts in partner countries. 

2. 

HOW TALENT MOBILITY FROM NON-EU COUNTRIES CAN BE PART OF THE SOLUTION 

The scale of the skills challenges facing the EU means all available policy measures must 
be mobilised.  

Already today, third country nationals make a fundamental contribution to the EU labour 
market and the EU economy. As many as 13% of key workers performing essential functions 
are third country nationals5. Member States are increasingly opening their labour markets to 
third  country  nationals  with  the  necessary  skills  to  address  shortages.  In  2022,  around  1.6 
million  first  residence  permits  were  issued  to  third  country  nationals  in  the  EU  for 
employment  purposes6,  the  highest  figure  since  Eurostat  began  collecting  records  in  2009. 
Occupations with shortages tend to have a higher share of workers born outside the EU7. 

Several Member States have recently implemented or are currently discussing reforms 
to  their  labour  migration  systems  to  facilitate  entry  from  abroad8.  However,  Member 
State  approaches  vary,  information  on  migration  schemes  is  not  always  easy  to  find9,  and 
cooperation  with  partner  countries  is  often  fragmented,  all  of  which  makes  the  EU  less 
attractive for potential workers.  

Failure to attract and make better use of the skills of workers from outside the EU in shortage 
occupations  will  lead  to  continuing  unmet  labour  demand  across  all  skill  levels,  slowing 
economic  growth  and  affecting  the  quality  of  services.  Making  the  EU  attractive  to  global 
talent is needed not only to address shortages but also to drive innovation and technological 
progress.  Outstanding  individuals  can  have  a  huge  impact  on  the  EU’s  ability  to  innovate 
and  to  upscale  new  business  models.  For  example,  if  the  EU  wishes  to  become  a  leader  in 
disruptive technologies and the transition to Web 4.0 and virtual worlds10, it is essential that 
this  narrow  segment  of  high-end  skills  is  addressed,  where  global  competition  for  talent  is 
most acute. Countries such as the US and Canada have dedicated schemes in place targeting 
talented individuals with sought-after skills11, as do some Member States12.  

5 

Immigrant  Key  Workers:  Their  Contribution  to  Europe’s  COVID-19  Response:  https://joint-research-
centre.ec.europa.eu/jrc-news-and-updates/crucial-contribution-migrant-workers-europes-coronavirus-
response-2020-05-13_en 

6  Nearly 3.7 million first residence permits issued in 2022 - Products Eurostat News - Eurostat (europa.eu) 
7  2023 Employment and Social Developments in Europe report. 
8  For example, Germany adopted a labour migration reform in June 2023, with the government citing the need 
to attract 400,000 third country nationals annually. Italy adopted a new legal migration decree in July 2023, 
citing  the  need  for  833,000  third  country  nationals  between  2023  and  2025,  in  a  broad  range  of  sectors 
including social care, transport, tourism and agriculture. See Annex 8 of the Impact Assessment report on the 
EU Talent Pool (SWD(2023) 717 final) for further information on Member State labour migration policies. 
9  While an EU Immigration Portal is in place, third country nationals and employers are not always aware of 

it, and it does not offer information that is customised to individual situations. 

10  See COM(2023) 442 final. 
11   See for example the US O-1A visa. 

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Making the EU more attractive to talent from abroad 
The OECD talent attractiveness indicator13 shows the EU failing to compete successfully for 
the  best  global  talent.  The  EU  collectively  is  currently  punching  below  its  weight  in 
attracting  skilled  workers  from  abroad14.  Despite  the  high  quality  of  life  and  opportunities 
available in the EU, third country nationals do not cite EU Member States amongst their most 
desired  destinations,  preferring  other  OECD  members  such  as  New  Zealand,  Australia,  the 
US or Canada. Learning the language of the countries of destination may also be a factor in 
this.  Only  one  Member  State  (Sweden)  appears  in  the  top  5  countries  of  the  OECD 
attractiveness indicator for highly skilled workers.   

Legal migration is a shared competence, meaning that Member States retain the full right to 
determine volumes of admissions. However, they also face common challenges and needs. 
Promoting  the  EU  as  an  attractive  destination  for  foreign  talent  can  benefit  all  Member 
States,  allowing  those  with  a  lower  international  profile  or  fewer  resources  for  attracting 
talent to benefit from the pooling of efforts and reflecting the integration of the EU economy. 
EU cooperation also helps Member States and employers address shared practical challenges: 
assessing the skills of third country nationals, matching them with employers and structuring 
cooperation with third countries.  

Work  is  underway  to  address  shortcomings  in  the  legislative  framework.  The  2019 
‘fitness  check’  of  legal  migration15  showed  that  the  EU  acquis  in  this  area  was  fragmented 
and did not do enough to increase the EU’s overall attractiveness. Since then, a revised EU 
Blue Card Directive16 was adopted, introducing more efficient rules to attract highly skilled 
workers (the deadline for its implementation is November 2023). As set out in the Skills and 
Talent  package17,  negotiations  are  underway  on  the  Commission  proposals  to  review  the 
Single  Permit  Directive18  and  Long-term  Residents  Directive19  in  order  to  streamline  legal 
migration  procedures.  As  a  follow-up,  the  Commission  committed  to  exploring  potential 
further  legal  migration  avenues  to  the  EU  in  three  important  areas:  long-term  care,  youth 
mobility, and innovative entrepreneurs.  

The Skills and Talent package made clear that – given the scale of the practical obstacles to 
recruiting  third  country  nationals  –  existing  legislative  measures  are  not  enough. 
International job matching remains overly complex and costly for both non-EU nationals and 
employers20,  particularly  SMEs  with  limited  resources.  Third  country  nationals  often  face 
significant costs such as administrative fees or translation costs. Beyond the financial burden, 
the complexity and length of procedures for international recruitment are dissuasive for 
both third country nationals and employers21 – with over half (52%) the companies recruiting 

12   European  Migration  Network,  Synthesis  report  on  Migratory  Pathways  for  Start-Ups  and  Innovative 

Entrepreneurs in the European Union, December 2019. 

13   Talent Attractiveness 2023 - OECD 
14  See Impact Assessment report on the EU Talent Pool for further analysis, SWD(2023) 717 final. 
15   SWD(2019) 1056 final. 
16   Directive  (EU)  2021/1883  of  20 October  2021  on  the  conditions  of  entry  and  residence  of  third-country 
nationals for the purpose of highly qualified employment, and repealing Council Directive 2009/50/EC. 

17  COM(2022) 657 final. 
18   COM(2022) 655 final. 
19   COM(2022) 650 final. 
20  See  the  Impact  Assessment  report  on  the  EU  Talent  Pool  for  further  details  (SWD(2023)  717  final).  This 
estimates that the average cost to recruit a third country national can be between EUR 1 500 and EUR 2 500 
(excluding  relocation  costs),  which  can  rise  to  EUR  8  500-10  000  if  recruitment  agencies  services’  are 
required. 

21   The average length is 4-6 months. 

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outside the EU finding it very or moderately difficult22. Problems accessing clear information 
on legal migration rules and procedures are another long-standing obstacle23. 

As  highlighted  in  President  von  der  Leyen’s  2022  State  of  the  Union  address,  challenges 
linked  to  the  recognition  of  qualifications  of  third  country  nationals  are  often  another 
practical obstacle dissuading workers from coming to the EU. Member States have particular 
obligations  concerning those  professions that are regulated in  all Member States. Minimum 
training standards have  been defined  at  EU level  for  seven  professions (such as  nurses  and 
doctors)  under  EU  legislation  on  the  recognition  of  professional  qualifications  (Directive 
2005/36/EC).  The  regulation  of  other  professions  is  a  national  competence24.  Hundreds  of 
professions  are  regulated  in  only  some  Member  States,  such  as  civil  engineers  or  heating 
technicians.  Formal  recognition  decisions  may  be  necessary  for  access  to  a  profession,  but 
also for the purposes of legal migration or access to further study.  

The  recognition  of  qualifications  is  essential  to  ensure  that  incoming  workers  in  certain 
professions  have  sufficient  education,  training  or  experience.  However,  processes  for  the 
recognition  of  third  country  qualifications  are  often  overly  expensive,  complex  and  time-
consuming. They also represent a significant administrative burden for Member States, due 
to  lack  of  information  on  third  country  qualifications  systems,  limited  pooling  of  expertise 
and resources at EU level, and difficulties verifying the authenticity of documents.  

Many  occupations  facing  shortages  are  not  regulated.  In  these  cases,  employers  have  the 
discretion  to  decide  whether  third  country  nationals  have  the  right  profile  based  on  their 
qualifications,  experience  and  skills  and  a  formal  recognition  process  is  not  needed. 
However, employers’ lack of understanding and trust in skills and qualifications gained in 
third countries necessary for recruitment to non-regulated professions is another significant 
barrier to talent and skills mobility25. 

The result not only affects the EU’s attractiveness but leads to ‘brain waste’ – third country 
nationals  working  below  their  qualification  level.  According  to  Eurostat,  in  2022  over  a 
quarter of third  country  nationals are highly qualified but  39.4%  are overqualified26  for the 
job they do, with women more likely to be overqualified than men. The equivalent figure for 
EU citizens working  in  another  Member State is  31.8%  and for those  residing in their own 
country just 21.1%27. Facilitating the recognition of qualifications and validation of skills can 
therefore  also  help  harness  the  untapped  potential  of  third  country  nationals  already  in  the 
EU.  

Creating a welcoming environment for legally residing third country nationals and offering 
effective  integration  support,  including  to  workers’  families,  is  also  central  to  the  EU’s 
attractiveness and to the overall success of legal migration policies. Challenges remain in this 
area. Third country nationals experience more discrimination at work, and evidence suggests 
this disproportionately affects the highly educated28, one reason why the employment rate for 

22   Flash Eurobarometer 529: European Year of Skills: Skills shortages, recruitment and  retention strategies in 

small and medium-sized enterprises.  

23   2019 legal migration fitness check (SWD(2019) 1056 final). 
24  Member States must however ensure that the  regulation of access to professions is proportionate  and does 
not discriminate based on  nationality or other grounds. A proportionality assessment is also needed before 
adopting  any  new  or  amending  existing  measures  on  professional  regulation  in  line  with  Directive  (EU) 
2018/958. 

25  Impact Assessment Report accompanying the EU Talent Pool proposal (SWD(2023) 717 final). 
26   Meaning they work in low or medium skilled occupations despite having a high level of education. 
27   Data extracted in July 2023 (Eurostat). 
28   2023 Employment and Social Developments in Europe report.  

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non-EU citizens is lower than for EU nationals29. The EU anti-racism action plan30 and the 
action plan on integration and inclusion for 2021-202731 both seek to  address this problem. 
Fair  and  transparent  recruitment  ensures  that  all  candidates  have  an  equal  and  unbiased 
opportunity  to  compete  for  jobs  regardless  of  their  gender,  racial  or  ethnic  origin,  age, 
religion or belief32. 

Working  with  social  partners  is  also  essential  to  well-managed  legal  migration.  Social 
dialogue  can  help  achieve  a  common  vision  of  how  legal  migration  should  fit  into  broader 
labour  market  strategies.  Social  partners’  views  should  be  taken  into  account  by  Member 
States to ensure that, where they consider that labour market tests are necessary, these tests 
can  be  completed  rapidly  and  involve  a  limited  administrative  burden  for  employers,  in 
particular  SMEs,  and  for  third  country  nationals.  Clear  and  accessible  information  on  their 
functioning  should  be  made  available.  Both  employers  and  trade  unions  have  a  role  in 
integration of third country nationals and the European Partnership for Integration structures 
EU-level cooperation in this area33.  

The need for a targeted approach with skills intelligence as a springboard  

Successful  talent  mobility  requires  measures  to  recruit  non-EU  nationals  in  sectors  where 
there  is  the  greatest  need  for  their  labour,  and  economies  of  scale  through  improved 
cooperation on legal migration between EU and Member State levels. 

The Commission considers that talent mobility measures at EU level should be strategic and 
target occupations affected by the green and digital transitions, as well as healthcare and 
long-term  care,  given  the  acute  EU-wide  needs  and  likely  labour  market  developments  in 
these areas.  

Labour  market  needs  can  however  evolve  quickly,  and  also  vary  between  Member  States. 
The EU should be able to ensure its labour migration initiatives reflect the latest needs of the 
economy and its employers. Accessible and up-to-date skills intelligence is crucial to design 
flexible  strategies  to  address  labour  shortages,  help  labour  matching,  and  guide  skills 
development.  

Building  on  initiatives  underway  to  develop  more  sophisticated  approaches  to  skills 
intelligence34, the Commission is working towards a more systemic approach to delivering 
and  using  skills  intelligence.  The  Labour  Migration  Platform,  launched  in  January  2023, 

29   In 2022, 61.9 % of non-EU citizens were employed, while for citizens of other EU Member States it was 

77.1 % and 75.4% for nationals (Eurostat). 

30  COM(2020) 565 final. 
31   COM(2020) 758 final. 
32  Directive 2006/54/EC on the implementation of the principle of equal opportunities and equal treatment of 
men and women in matters of employment and occupation, Council Directive 2000/43/EC implementing the 
principle  of  equal  treatment  between  persons  irrespective  of  racial  or  ethnic origin, and Council  Directive 
2000/78/EC establishing a general framework for equal treatment in employment and occupation. 

33   https://home-affairs.ec.europa.eu/policies/migration-and-asylum/legal-migration-and-

integration/cooperation-economic-and-social-partners/european-partnership-integration_en     

34  For example, the 2020 European Skills Agenda includes an action on generating more up-to-date, granular 
and precise skills intelligence. The European Centre for the Development of Vocational Training, Eurostat, 
ELA  and  EUROFOUND  are  engaged  in  a  variety  of  initiatives  to  refine  skills  intelligence,  including  by 
drawing  on  big  data.  Skills  anticipation  at  sectoral  level  is  carried  out  under  the  blueprint  for  sectoral 
cooperation  on  skills,  targeting  priority  sectors.  In  June  2023,  a  skills  intelligence  tool  was  launched  on 
Europass,  providing  information  on  shortage  occupations  per  country.  At  Member  State  level,  Public 
Employment Services are increasingly active in identifying future skills needs, with many also developing 
comprehensive strategies to address future skills needs.   

5 

 
 
provides  a  valuable  forum  for  discussion  on  how  to  develop  a  targeted  labour  migration 
policy,  that  reflects  strategic  shortages  based  on  skills  intelligence.  It  brings  together 
representatives  of  employment  and  migration  authorities  of  Member  States  with  social 
partners  and  has  allowed  exchanges  in  the  context  of  the  European  Year  of  Skills  on these 
issues35. 

Action:  The  Commission  will  continue  to  promote  a  more  strategic  approach  to  skills 
intelligence,  drawing  on  the  latest  labour  market  data,  engaging  with  Member  States  and 
Public Employment Services.  

3. 

MAKING RECRUITMENT FROM OUTSIDE THE EU EASIER – THE EU TALENT POOL 

This  Communication  sets  out  measures  to  address  key  obstacles  identified  in  the  previous 
section  by  facilitating  international  recruitment,  supporting  the  recognition  of  qualifications 
and  validation  of  skills,  and  reinforcing  cooperation  with  third  countries  in  these  areas.  A 
cornerstone of this approach is the Commission’s proposal to establish  an EU Talent Pool, 
which delivers on  commitments  made by the Commission  in  the Skills and Talent package 
and the Pact on Migration and Asylum.  

The EU Talent Pool aims to boost the EU’s overall attractiveness by setting up the first EU-
wide platform open to third country nationals worldwide wishing to work legally in Europe 
and employers who are unable to find the talent they need on the EU labour market. It will 
provide access to  a wider pool of talent for EU employers and make recruitment faster and 
easier.  It  will  provide  information  for  both  jobseekers  and  employers  on  recruitment  and 
immigration  procedures  as  well  as  on  recognition  of  qualifications  in  the  participating  EU 
Member  States.  To  facilitate  integration,  it  will  also  include  information  on  living  and 
working conditions in the participating Member States and third country nationals’ rights and 
obligations. The network of EU Delegations around the world will  support the provision of 
information and serve as a relay for third country jobseekers looking for information on legal 
migration pathways and the EU Talent Pool platform.  

The EU Talent Pool will target specific occupations at all skills levels, based on the most 
common shortage occupations in the Union, and on occupations with a direct contribution 
to  the  green  and  digital  transitions,  updated  as  necessary  to  respond  to  changing  labour 
market  circumstances.  The  Commission  has  identified  42  EU-wide  shortage  occupations 
today36,  annexed  to  the  proposed  Talent  Pool  Regulation.  To  allow  for  a  swift  response  to 
changing  labour market  needs,  the Commission  will be able to  amend the list  by delegated 
act.  In  addition,  Member  States  will  be  able  to  notify  the  addition  or  removal  of  specific 
shortage occupations for which they will submit job vacancies.  

Participation in the EU Talent Pool will be voluntary for Member States, who will support 
the management of the Talent Pool system via their relevant authorities. National authorities 
in participating Member States would be closely involved in the implementation of the tool, 
and  only  employers  established  in  these  Member  States  would  be  able  to  register  their 

35   https://ec.europa.eu/commission/presscorner/detail/en/IP_23_103   
36  The  list  is  based  on  three  main  sources:  i)  European  Labour  Authority  (ELA)  using  PES  data  on  labour 
shortages across occupations; ii) Labour shortages relevant in light of net-zero and digitalisation identified 
based  on  the  sector’s  direct  contribution  to  implementation  of  EU  climate  and  digitalisation  targets;  iii) 
Occupations not in widespread shortage in previous years but likely to grow in importance for the transition 
in future due.  

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vacancies on the portal and search for candidates there. The proposal fully reflects Member 
States’  sole  responsibility  for  determining  volumes  of  admissions  of  non-EU  nationals  and 
will complement rather than replace existing tools for attraction of talent at national level.  

The EU Talent Pool will be a new IT platform focused on third country nationals who are not 
yet  in  the  EU,  with  its  design  building  on  the  Commission’s  longstanding  successful 
experience with the EURES platform37. The EU Talent Pool will include in-built safeguards 
to  avoid  exploitative practices by employers, recalling  that third country nationals  recruited 
through the EU Talent Pool will enjoy the same rights and obligations as domestic workers 
once they are in  employment. It  will also support  interoperability with  national  recruitment 
platforms. 

The Talent Pool will help in implementing the external dimension of the Pact on Migration 
and  Asylum,  by  contributing  both  to  Talent  Partnerships  and  developing  effective 
complementary  pathways  to  the  EU.  Registration  in  the  EU  Talent  Pool  will  be  open  to 
displaced persons in third countries that need international protection and thus support efforts 
to put in place complementary pathways for those who qualify.  

By  facilitating  access  to  existing  legal  pathways,  the  EU  Talent  Pool  will  also  serve  as  a 
disincentive for irregular migration. This will be reinforced by the fact that no one subject to 
an entry ban, in  particular following a return decision under the Return  Directive38, will be 
eligible to register with the EU Talent Pool. 

Action: Regulation on the establishment of an EU Talent Pool: 
-   The Commission proposes a Regulation on the establishment of an EU Talent Pool39, 
to  facilitate  the  strategic  international  recruitment  of  non-EU  jobseekers  in  shortage 
occupations of EU relevance;  

-   The Commission will cooperate with Member States to ensure that the EU Talent Pool is 
designed  from  the  outset  to  appropriately  address  national  labour  market  needs  and 
complement  existing  national  initiatives,  including  through  interoperability  with  existing 
national recruitment platforms. 

4.  ACHIEVING  EASIER  AND  FASTER  RECOGNITION  OF  PROFESSIONAL  QUALIFICATIONS 

AND VALIDATION OF SKILLS GAINED IN THIRD COUNTRIES  

The  Commission  is  proposing  a  set  of  measures  promoting  common  approaches  and 
cooperation between Member States on the recognition of qualifications and validation 
of skills, making it easier to find information on  relevant rules and procedures, and helping 
Member States and employers access reliable information on non-EU qualifications and skills 
frameworks.  Simpler,  better  procedures  in  this  area  will  help  employers  to  know  what  a 
qualification  gained  outside  the  EU  means  in  practice,  ensuring  third  country  nationals  are 
able to perform the jobs they are recruited for and have comparable qualifications to their EU 
counterparts.  

37   EURES  aims  to  facilitate  the  free  movement  of  workers  within  the  EU  and  operates  as  a  European 
cooperation network of Public Employment Services, with a searchable portal to facilitate the matching of 
jobseekers and employers.  

38  Directive  2008/115/EC  on  common  standards  and  procedures  in  Member  States  for  returning  illegally 

staying third-country nationals. 

39   COM(2023) 716 final. 

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The reality of the labour market also calls for wider use of a ‘skills first’ approach. This 
is already used by many businesses when recruiting, recognising the value not only of formal 
qualifications  but  also  other  demonstrable  skills  and  experiences  necessary  to  identify  the 
right candidates for vacancies, with successful outcomes so far.  

Working  on  a  common  EU  approach  to  recognition  of  qualifications  of  third  country 
nationals 

The  Commission  is  today  adopting  a  Recommendation  on  the  recognition  of 
qualifications  of  all  legally  residing  third  country  nationals40,  setting  out  guidance  to 
improve  procedures  and  help  Member  States  recognise  qualifications  and  skills 
obtained outside the EU more quickly and efficiently. The recommendation advocates for 
increased flexibility and reducing administrative burdens on third country nationals, so they 
can  access  employment  or  higher  education  opportunities  in  the  EU  more  quickly  and 
effectively.  It  relates  to  cases  of  recognition  for  access  to  regulated  professions,  as  part  of 
legal  migration  procedures,  and  for  further  learning.  It  highlights  that  formal  recognition 
procedures should only be required where rights would be granted to a qualification holder in 
these three contexts. Recognition of qualifications should not be required for the purposes of 
recruitment in non-regulated professions. In these cases, transparency tools and information 
can support the understanding and comparison of qualifications and skills. 

Regarding  access  to  regulated  professions,  the  recommendation  takes  inspiration  from 
Directive 2005/36/EC, which sets out the system of recognition of professional qualifications 
in the EU41. The recommendation also draws on experience with implementation of the April 
2022  Commission  Recommendation  on  facilitating  the  recognition  of  qualifications  for 
people fleeing Russia’s war of aggression against Ukraine42. An assessment of the follow-up 
to this Recommendation43 demonstrated a range of promising practices which have informed 
the  new  Recommendation,  including  highlighting  the  benefits  of  exchange  of  information 
between  Member  State  authorities  and  partner  countries  to  facilitate  the  recognition  of 
qualifications. 

The recommendation will be a valuable complement to the EU Talent Pool and should help 
Member States improve recognition procedures as part of their efforts to attract skilled 
workers from abroad. It encourages Member States to use skills intelligence data to identify 
‘priority regulated professions’ for which recognition procedures should be further expedited 
for  third  country  nationals,  as  well  as  for  mobile  EU  citizens.  Once  the  EU  Talent  Pool  is 
operational, Member States could take into account the list of EU-wide shortage occupations 
developed for the Talent Pool when identifying priority regulated professions.  

Recruitment  procedures  in  a  broad  range  of  sectors  can  be  improved  through  the 
recommendation’s guidance, but its application will differ according to how employment in 
each profession is regulated. For example, as digital professions are in general unregulated, 
the  recommendation  advocates  a  skills  first  approach  for  recruitment  to  such  posts.  These 

40  The Recommendation applies to third-country nationals who are in the process of obtaining a visa or work 

and residence permit in a Member State or are already legally resident in the Union.   

41   The framework offered by Directive 2005/36/EC establishes common principles, procedures, and criteria for 
recognition, promoting transparency, fairness, and consistency in the recognition process. As noted above, it 
also sets out minimum training standards for certain professions. 

42   Commission  Recommendation  (EU)  2022/554  on  the  recognition  of  qualifications  for  people  fleeing 

Russia’s invasion of Ukraine. 

43   https://single-market-economy.ec.europa.eu/publications/assessment-commission-recommendation-eu-

2022554-5-april-2022-recognition-qualifications-people_en  

8 

 
 
professions  can  also  draw  on  the  revised  Blue  Card  Directive,  which  has  introduced 
equivalence  as  regards  skills  attested  by  professional  experience  and  comparable  higher 
education qualifications in some ICT jobs44. For these occupations, Member States should not 
impose a formal recognition procedure as a precondition for admission.  

Action:  The  Commission  Recommendation  on  recognition  of  qualifications  of  third 
country nationals45.  

This  Recommendation  would  lead  to  simpler  and  faster  procedures,  while  ensuring 
information submitted can be verified and processes can be trusted. Upholding professional 
standards  should  not  result  in  requirements  that  deter  applicants  or  slow  down  recruitment 
procedures.  

The Commission will support implementation of the Recommendation by: 

-  organising  dedicated  meetings  with  Member  States,  particularly  in  the  group  of 
coordinators  for  the  recognition  of  professional  qualifications,  as  well  as  with  other 
stakeholders;  

-   inviting  Member  States  to  report  on  national  initiatives,  reforms  and  statistics  on 

recognition decisions linked to third country qualifications; 

-  providing  access  to  online  information  to  assist  third  country  nationals  to  understand 

requirements for recognition of skills and qualifications in the Union;  

-  maximising  synergies  between  the  Recommendation  and  other  actions  set  out  in  the 

Communication.  

 Boosting information on recognition procedures, and comparability of qualifications  

Finding information on qualifications and skills gained in third countries and applicable 
recognition  and  validation  procedures  in  Member  States  is  a  key  element  for  both 
employers and non-EU candidates46. Responsibility for recognition and validation procedures 
is  frequently  shared  among  various  administrative  bodies  within  Member  States,  including 
central  and  regional  levels.  Currently,  third  country  nationals  and  mobile  EU  workers  may 
find it difficult to determine whether the profession in which they wish to work is regulated 
or not in a particular Member State. The lack of multilingual information on recognition can 
also  be  an  obstacle:  efforts  to  address  this  for  people  displaced  from  Ukraine  has  been  a 
support to those seeking work47.  

Although there is currently no central point of information at EU level on the recognition of 
third country qualifications, the ENIC-NARIC networks48 have developed several tools that 

44  See Article 2(9)(a) and Annex I of Directive (EU) 2021/1883.  
45  C(2023) 7700 final. 
46   In its 2017 study on ‘Making Integration: Work: Assessment and Recognition of Foreign Qualifications', the 
OECD  highlighted facilitating information on recognition procedures as a key issue to address to improve 
recognition systems. In a comprehensive 2013 report on ‘Recognition of Qualifications and Competences of 
Migrants’  in  Europe,  the  International  Organization  for  Migration  pointed  to  shortcomings  in  migrants’ 
access  to  information  in  several  EU  Member  States.  The  Commission’s  legal  migration  fitness  check  of 
2019  also  recommended  improved  access  to  information  for  third-country  nationals  about  recognition 
procedures and their outcomes (SWD(2019 1056 final). 
47   Commission Recommendation (EU) 2022/554 of 5 April.  
48   The  ENIC network  (European Network of Information Centres)  and NARIC network (National  Academic 
Recognition Information Centres) cooperate closely. ENICs are recognition authorities of the state parties of 

9 

 
 
 
 
 
facilitate access to information on recognition procedures and higher education systems that 
can  be  further  developed.  NARICs  may  issue  decisions  for  academic  recognition  and 
statements of comparability, with a focus on higher education qualifications. Some NARICs 
act as a single entry point for assessment or recognition of qualifications, which can facilitate 
third  country  national’  access  to  procedures.  In  ten  Member  States49,  NARICs  have  helped 
set  up  databases  providing  public  information  on  national  recognition  decisions,  in  some 
cases with EU funding.  

The  Commission  will  encourage  and  support  Member  States  to  develop  databases  on 
the  comparability  of  third  country  qualifications  and  to  ensure  these  databases’ 
interoperability,  making  funding  available  from  Erasmus+ 
in  2024.  For  relevant 
qualifications,  which  would  primarily  be  academic,  databases  should  be  able  to  generate  a 
statement  of  comparability  free  of  charge,  and  where  possible  indicate  procedures  for 
recognising the qualification. To enable direct comparisons based on use of similar terms and 
definitions, the Commission encourages Member States to ensure  these databases are based 
on  the  standards  of  the  European  Learning  Model50.  The  Commission  will  work  with  the 
NARIC  network  to  ensure  a  coordinated  approach  in  terms  of  the  third  countries  and 
qualifications  to  be  covered,  giving  priority  to  Talent  Partnership  countries.  The  databases 
might  also  indicate  what  additional  training  (such  as  micro-credentials)  may  be  required  to 
fill gaps between a third country qualification and comparable qualifications in the Member 
States. Multilingual databases further facilitate access to information.  

In  a  second  phase,  the  Commission  will  also  explore  the  feasibility  of  developing  an  EU-
level  tool  linking  national  databases  on  recognition  capable  of  developing  statements  of 
comparability for specific third country qualifications covering all Member States, based on a 
harmonised  template  and  available  in  digital  format.  This  could  cover  both  EU  and  third 
country  qualifications,  to  facilitate  intra-EU  mobility  as  well  as  legal  migration.  The  tool 
would  draw  on  existing  national  databases  and  be  interoperable  with  a  network  of  national 
qualifications databases of partner countries51 with which the European Training Foundation 
(ETF)  cooperates.  This  tool  could  also  allow  employers  to  identify  third  country 
qualifications comparable to a national qualification that they are looking for, which can help 
with  targeting  recruitment  procedures.  And  it  would  give  candidates  an  indication  of  how 
their qualifications would be considered in a recognition procedure.  

The  ENIC-NARIC  networks’  current  focus  is  on  higher  education.  Given  the  need  for 
technical  skills  on  the  EU  labour  market  and  the  fact  that  there  currently  are  no  EU-level 
cooperation  structures  on  the  recognition  of  VET  qualifications,  extending  the  networks’ 
focus to Vocational Education and Training (VET) could have significant benefits. Member 
States could explore whether – with Commission support – the role of NARIC centres could 
cover VET. This could pave the way for statements of comparability regarding EU and third 
country VET qualifications, as well as for academic qualifications. 

the Lisbon Recognition Convention, where the secretariat is provided by Council of Europe and UNESCO 
and  the  NARICs  are  recognition  authorities  of  the  Erasmus+  Programme  countries.  All  NARICs  are  also 
ENICs (except the Greek recognition authority). The two networks  have a joint Work Programme, Charter 
and Board. 

49   Bulgaria, Cyprus, Denmark, Germany, Ireland, Italy, Lithuania, the Netherlands, Poland, Sweden. 
50  The European Learning Model is a  multilingual data model for learning which can be used to describe all 
learning related data, including formal, non-formal and informal learning. The model supports data exchange 
on skills, qualifications, accreditation, and learning opportunities, as well as interoperability and credential 
exchange. 

51   Currently at the stage of a proof of concept. 

10 

 
 
Another  relevant  tool  to  build  on  is  the  Commission’s  Regulated  Professions  Database52. 
For  each  Member  State,  this  contains  information  on  whether  specific  professions  are 
regulated  in  each  Member  State,  together  with  the  authority  responsible  for  recognition. 
While the database is currently targeted at mobile EU citizens, the information it contains on 
which specific professions are regulated in each Member State is also of relevance for third 
country nationals. The Commission will work with Member States to ensure that the database 
contains accurate information on the authorities responsible for recognising qualifications of 
third country nationals, in addition to those held by EU citizens.  

The platform for the EU Talent Pool will promote the visibility of the information resources 
related to recognition and validation procedures in the participating Member States to ensure 
that  candidates  apply  with  the  best  possible  prior  knowledge  on  prospects  for  having  their 
qualifications recognised and skills validated. 

Action: Improving the transparency of and access to recognition processes  

The Commission will: 

-   encourage  and  support  more  Member  States  to  develop  semantically  interoperable 
databases  on  recognition  processes  and  decisions,  capable  of  generating  statements  of 
comparability; 

-   explore the feasibility of setting up further online resource hubs with information on skills 

and qualifications, building on the resource hub focused on Ukraine (see below);  

-   assess the feasibility of developing an EU-level tool that is able to generate statements of 
comparability  based  on  a  harmonised  template  for  specific  third  country  qualifications 
covering multiple Member States; 

-   continue  its  support  to  the  ENIC-NARIC  networks  and  encourage  Member  States  to 

consider extending the NARIC’s competences to cover VET qualifications; 

-   include  information  in  the  Regulated  Professions  Database  on  the  Member  State 
authorities responsible for recognising qualifications held by third country nationals giving 
access to regulated professions. 

Building trust in qualifications and skills gained in third countries  

Uncertainty  about  the  value  of  skills,  work  experience  and  qualifications  gained  in  third 
countries and the functioning  of training and education systems  of third countries  is  one of 
the  key  obstacles  faced  by  both  Member  State  recognition  bodies  and  employers  assessing 
the  qualifications  and  skills  of  third  country  nationals53.  Filling  this  knowledge  gap  must 
therefore  be  one  of  the  main  objectives  of  the  Commission’s  work  on  recognition  of 
qualifications and validation of skills. 

In  the  wake  of  Russia’s  war  of  aggression  against  Ukraine,  the  EU  used  several  tools  to 
support  the  assessment  of  skills  and  qualifications  of  people  displaced  from  Ukraine.  The 
Commission  undertook  a  comparison  of  the  European  Qualifications  Framework  with  the 
Ukrainian  national  framework54,  and  provided  guidelines  on  the  fast-track  recognition  of 

52   https://ec.europa.eu/growth/tools-databases/regprof/home  
53   2019 legal migration fitness check (SWD(2019) 1056 final). 
54   European  Commission,  Comparison  report  of  the  European  Qualifications  Framework  and  the  Ukrainian 

National Qualifications Framework, January 2023.  

11 

 
 
Ukrainian academic qualifications55. It also translated a variety of key tools  into Ukrainian. 
And the ETF created a resource hub56 for material on qualifications, skills and studies from 
Ukraine – consulted some 21,000 times between March 2022 and January 2023. These tools 
helped  recognition  professionals  and  employers  in  the  EU  to  better  understand  the  skills 
profile and qualifications of people displaced from Ukraine.  

This  valuable  experience  can  be  drawn  upon  to  adopt  a  more  strategic  approach  to 
developing  guidance  to  support  the  evaluation  of  credentials  and  the  recognition  of 
qualifications gained outside the EU. The ETF has substantial experience in assisting third 
countries  to  develop  national  qualification  frameworks  that  can  be  compared  with  the 
European  Qualifications  Frameworks,  in  particular  in  the  EU  Neighbourhood  and 
Enlargement  region.  In  addition,  it  is  currently  providing  systemic  assistance  to  11  African 
countries on development of their qualification frameworks, as part of a project implemented 
with the African Union57. The ENIC-NARIC networks also provide a valuable framework for 
cooperation  between  Member  State  recognition  bodies  on  the  analysis  of  frequently  seen 
third country qualifications.  

Action: Use EU tools to help understand the value of qualifications and skills gained in 
third countries relevant for meeting EU labour market shortages.  

Depending on identified needs, the Commission will: 

-   work with the ETF, the ENIC-NARIC networks, the European Quality Assurance Register 
for Higher Education, Member States and third countries to provide guidance on selected 
third country qualifications frameworks and the value of specific qualifications, comparing 
the  European  Qualifications  Framework  with  national  (and  regional)  qualification 
frameworks,  and  conducting 
third  country  practice  on 
targeted  assessments  of 
accreditation and quality assurance.  

-   translate  tools  facilitating  skills  assessments  of  third-country  nationals  in  languages  of 

selected third countries. 

A long-term vision to improve the recognition of qualifications and validation of skills 

Succeeding  in  maximising  the  potential  of  the  EU  to  attract  talent  from  abroad  cannot  be 
separated  from  efforts  to  raise  our  game  on  recognition  of  qualifications  and  skills 
internally. The current pace of technical and societal change means that the EU must consider 
how  its  overall  approach  to  the  recognition  of  qualifications  and  validation  of  skills  should 
evolve,  to  maximise  the  potential  of  the  Single  Market.  The  EU  will  need  to  go  further  in 
promoting  labour  mobility  and  reducing  barriers  in  the  Single  Market,  enhancing  learner 
mobility: Systems and practices for the recognition of qualifications and validation of skills 
must be able to respond to shifts in skills demand.  

This gives an opportunity to bring the same approach to strengthening cooperation with third 
countries and making the EU a more attractive place to work. Making targeted use of skills 
intelligence  to  plan  and  strengthen  the  capacity  of  recognition  services,  enabling  the 
exchange of interoperable, reliable information on qualifications and skills, and ensuring that 
the information available to employers and employees alike is accessible and fit for purpose, 
could all be used to facilitate recruitment from outside the EU. 

55  European  Commission,  Guidelines  on  Fasttrack  Recognition  of  Ukrainian  Academic  Qualifications,  May 

2022. 

56   https://www.etf.europa.eu/en/education-and-work-information-ukrainians-and-eu-countries  
57   https://acqf.africa/  

12 

 
 
The era of paper diplomas is coming to an end. The EU has started moving towards system-
wide use of digital qualifications and credentials58. In future, every learner should receive 
their  qualifications,  credentials  and  entitlements  in  a  secure  digital  format,  that  carries 
multilingual information and can be verified instantaneously. This will facilitate the matching 
of skilled workers with jobs, as well as recruitment and recognition processes.  

Action: The Commission will explore the possibility of a broader reform of the EU system 
on  the  recognition  of  qualifications  and  validation  of  skills,  to  ensure  that  the  existing 
legal  framework,  tools  and  systems,  such  as  those  covered  by  Directive  2005/36/EC,  are 
future-proof, ambitious and contribute to a well-functioning Single Market. This will include 
a  reflection  on  how  to  further  improve  the  recognition  of  qualifications  gained  in  third 
countries  and  the  extent  to  which  harmonisation  may  be  necessary,  based  on  experience  in 
implementing the current Commission Recommendation.  

5.  PARTNERING ON TALENT MOBILITY AND SKILLS ACQUISITION  

Labour migration cooperation can produce significant benefits  for countries of origin, 
as  well  as  receiving  countries.  Talent  mobility  can  promote  the  circulation  of  skills  and 
transfer of knowledge between the EU and partner countries. The remittance flow from the 
EU  to  low  and  middle-income  countries  is  estimated  at  around  EUR  65  billion,  and  these 
funds  can  provide  vital  support  to  the  most  vulnerable  in  developing  countries59.  The 
Commission is committed to reducing transaction costs and facilitating remittance transfers. 
The  UN  Sustainable  Development  Goals  (SDGs)  recognise  that  migration  helps  create 
inclusive  growth  and  development,  and  call  for  policies  to  ‘facilitate  safe,  regular  and 
responsible migration and mobility of people’60. 

Cooperation on legal pathways is a priority of the Pact on Migration and Asylum. Since the 
Pact’s adoption, a key focus of the Commission’s efforts in this area has been the launch of 
Talent Partnerships. Talent Partnerships offer a framework for the EU and key third countries 
to  work  together  to  boost  mutually-beneficial  international  mobility  (see  below).  The 
Commission  is  also  working  to  promote  innovative  complementary  pathways  linked  to 
employment  for  persons  in  need  of  international  protection,  as  a  credible  alternative  to 
irregular migration61. Such cooperation on legal pathways is linked to broader partnerships on 
all aspects of migration.  

Ensuring  effective  international  cooperation  on  labour  migration  requires  concerted 
engagement,  aiming  to  develop  skills, avoid  brain drain, and promote partnerships between 
numerous stakeholders including relevant authorities in destination and origin countries, the 
private  sector  and  training  institutions.  Dialogue  is  essential  to  define  shared  long-term 
agendas  to  help  achieve  this,  while  capacity  building  support  can  contribute  greatly  to 
translating shared priorities into action.  

58  The Commission launched in October 2021 the European Digital Credentials for Learning, a set of standards 
and  software  to  build,  electronically  sign,  issue,  store,  share,  view  and  verify  data-rich  credentials  on 
learning. 

59  International Remittance Day: EU committed to reducing transaction costs to make the most of key source of 
income  for  migrants  and  their  families  (europa.eu);  Proposal  for  a  Regulation  on  payment  services  in  the 
internal market and amending Regulation (EU) 1093/2010, COM /2023/367 final.   

60   Target 10.7 of Goal 10 on reducing inequality within and among countries.  
61  Commission  Recommendation  (EU)  2020/1364  on  legal  pathways  to  protection  in  the  EU:  promoting 

resettlement, humanitarian admission and other complementary pathways. 

13 

 
 
The EU is determined to respond to third countries’ legitimate concerns on brain drain, that 
labour markets may be depleted of trained labour, and constrain development. The Blue Card 
Directive contains reporting obligations to monitor its impact on brain drain and encourages 
support  for  circular  migration  of  highly  skilled  third  country  nationals.  Measures  set  out  in 
this Communication will support this approach by tackling brain waste in the interest also of 
the  workers’  countries  of  origin.  Ensuring  that  third  country  nationals  are  recruited  to  jobs 
corresponding  to  their  skills  and  qualifications  on  the  labour  market  increases  the  potential 
for the transfer of skills between the EU and partner countries as well as remittances.   

Work needs to continue to address concerns about brain drain. One way to reduce the risk is 
to  target  cooperation  with  third  countries  on  sectors  where 
labour  market 
characteristics are complementary in terms of over and under supply of workers. The EU 
and Member States can also focus cooperation on sectors in which there is a shared need for 
workers and complement migration cooperation with  skills development programmes that 
can benefit both labour markets, turning a risk of brain drain into brain gain.  

Building on the existing national systems in countries of origin, the EU is already engaged 
in cooperation on skills with selected partners under the Global Gateway agenda and across 
the  EU’s  Neighbourhood  to  strengthen  partner  countries’  capacity  to  work  with  the  EU  on 
strategic  priorities  in  areas  such  as  the  green  and  digital  transitions.  The  EU  also  supports 
excellence  in  education,  for  example  through  the  Regional  Teacher  Initiative  for  Africa 
(RTIA)62. 

Where possible, skills development programmes linked to mobility schemes  should also 
draw  on  training  standards  applied  in  Member  States  in  targeted  sectors.  Where 
necessary, training to fill minor remaining skills gaps could be offered after arrival in the EU. 
Cooperation  also  needs  to  address  the  comparability  of  qualifications  frameworks  and 
credential evaluation.  

Talent Partnerships 

Talent Partnerships aim to provide frameworks for increased cooperation between the EU, 
Member  States  and  selected  partner  countries  on  talent  mobility  and  skills  development. 
Working in a Team Europe approach, these partnerships can provide benefits for both sides 
in  line  with  mutually  beneficial,  tailor-made  priorities63.  It  is  important  to  significantly 
step  up  Talent  Partnerships,  which  need  to  go  hand  in  hand  with  comprehensive  migration 
management cooperation including in particular on effective cooperation on readmission. 

The  EU  has  recently  launched  Talent  Partnerships  with  Morocco,  Tunisia,  Egypt,  Pakistan 
and  Bangladesh.  Roundtables  held  with  each  of  these  countries64  with  involvement  of 
interested Member States have allowed identifying sectors and professions of mutual interest 
to be targeted. Partners showed a strong interest in cooperating on skills development and 
the  recognition  of  qualifications.  The  need  for  data  to  compare  competency  standards  for 
priority occupations was seen as an essential first step in designing measures in areas such as 
skills  development,  qualification  recognition  and  pre-departure  training.  Discussions  also 
showed  potential  for  cooperation  on  recruitment,  the  provision  of  information  on  issues 
relevant  for  mobility,  and  sustainable  reintegration  as  part  of  circular  migration.  Talent 
Partnerships can also support work to pre-screen third country candidates for recruitment, to 

62   https://ec.europa.eu/commission/presscorner/detail/en/ip_23_288  
63   COM(2022) 657 final. 
64   Roundtables  were  held  on  1  March  2023  with  Bangladesh,  on  15  March  with  Pakistan,  on  26  April  with 

Morocco, on 7 June with Egypt, and on 22 June with Tunisia. 

14 

 
 
support  testing  for  targeted  occupations,  as  well  as  for  pre-departure  training  such  as 
language courses.   

Candidates who have participated in activities linked to Talent Partnerships are likely to be of 
particular interest for EU employers. Therefore, these third country nationals will be flagged 
in  the  EU  Talent  Pool  as  holding  a  ‘Talent  Partnership  pass’,  which  will  be  visible  to 
prospective  employers  and  provide  information  on  the  skills  developed  or  validated  in  the 
context  of  the  Talent  Partnership.  The  pass  would  include  information  on  the  jobseeker’s 
education  and  training,  as  well  as  skills  and  qualifications  that  have  been  validated  in  the 
context of the Talent Partnership.  

Since 2016, sectoral  cooperation on skills  have been launched  under Erasmus+  ‘blueprint 
alliances'  in  several  areas  relevant  for  the  green  and  digital  transitions65.  Some  have 
supported  the  industry-led  development  of  training  programmes.  Talent  Partnerships  could 
provide a valuable framework to adapt these for a third country context. 

The role of the European private sector is fundamental for Talent Partnership activities on 
both training and recruitment. Public sector investments can complement but not replace the 
indispensable contributions from the private sector benefitting from skilled workers, to ensure 
the  longer-term  sustainability  of  such  activities.  The  private  sector,  including  professional 
associations, is already involved in actions financed under the Talent Partnerships, notably in 
the design of curricula for training in third countries.  

The  Commission  will  ensure  that  measures  set  out  in  this  package  on  the  recognition  of 
qualifications  and  validation  of  skills  of  third  country  nationals  are  complementary  to  and 
supportive of Talent Partnerships.  

Action:  Cooperation  with  third  countries  in  the  framework  of  Talent  Partnerships. 
Depending on needs defined together with partner countries and participating Member States, 
the Commission will: 

-   consider  Talent  Partnership  countries  for  targeted  analysis  of  their  qualification 

frameworks;  

-    encourage  capacity  building  of  the  education  and  training  systems  in  Talent 
Partnership countries drawing on planned actions under NDICI-Global Europe as well as 
the international dimension of Erasmus+; 

-    with Member States, improve information on recognition procedures for third country 

nationals targeted to Talent Partnership countries;  

-    build cooperation between Member States and  partner  countries involved  in  Talent 

Partnerships on recognition of qualifications.  

6.  FACILITATING  THE  MOBILITY  OF  LEARNERS  AND  STAFF  INVOLVED  IN  TEACHING  AND 

TRAINING – “EUROPE ON THE MOVE”   

As  part  of  this  package  on  talent  mobility,  the  Commission  is  proposing  a  Council 
Recommendation on a renewed learning mobility framework. The goal of this proposal to 

65  These  alliances  bring  together  key  stakeholders  from  various  industrial  ecosystems  including  businesses, 
trade  unions,  education  and  training  institutions,  as  well  as  public  authorities.  The  Blueprint  for  sectoral 
cooperation  on  skills  is  recognised  in  the  European  Skills  Agenda  as  a  key  initiative  to  provide  skills 
development solutions. 

15 

 
 
facilitate learning mobility  inside the EU will first  and foremost benefit  EU citizens. But  it 
also  gives  the  opportunity  to  encourage  close  cooperation  on  learning  mobility  with  third 
countries  in  a  Team  Europe  approach,  harnessing  the  EU’s  overall  attractiveness  as  a 
destination for skills development. This can build on actions of the Erasmus+ programme  - 
notably the Study in Europe initiative and Erasmus Mundus actions - that specifically aim to 
attract talented third-country students to the EU. The proposal also calls for action to address 
recurrent challenges faced by third country nationals, notably procedures for issuing visas or 
residence permits for those choosing Europe as their learning destination.  

Higher education students who have benefited from learning mobility through Erasmus+ are 
more likely to work abroad or in a job with an international dimension66. When people gather 
positive  experiences  during  temporary  learning  mobility  within  the  EU,  they  will  be  more 
inclined to return at some stage to take up a job.  

The  proposal  encourages  Member  States  to  remove  remaining  obstacles  to  learning 
mobility  abroad  embedding  the  opportunity  for  periods  of  mobility  in  all  education  and 
training curricula. Member States’ cooperation with institutions in partner countries is also of 
key  importance,  including  making  full  use  of  the  EU  Visa  Code67  and  the  Students  and 
Researchers Directive68. 

Action:  The  Commission  proposes  a  Council  Recommendation  on  a  Learning  Mobility 
Framework69.  

As part of this  proposal,  Member States  are invited to cooperate closely  in  a Team  Europe 
approach to further promote Europe as a learning destination for talent from third countries. 
Ratification  by  Member  States  of  the  UNESCO  Global  Convention  on  the  Recognition  of 
Qualifications concerning Higher Education would also make a valuable contribution.  

The Commission will support implementation of the recommendation by: 

-   mapping  the  use  of  relevant  EU  funding  streams  (e.g.  Erasmus+,  European  Solidarity 
Corps)  and  other  funding  at  national  or  international  level  to  raise  awareness  of  good 
practice  and  foster  synergies  between 
learning  mobility  actions.  The  European 
Universities alliances under the European Education Area have helped to foster balanced 
mobility of students inside the EU and the approach could also inspire enhanced mobility 
beyond the EU’s borders; 

-   supporting Member States in developing a comprehensive approach to language teaching 

and learning, which would also have a beneficial impact on third country nationals.  

7.  CONCLUSION  

This Communication sets out a variety of workstreams to increase the EU’s attractiveness to 
the  skilled  third  country  workers  who  will  be  key  to  the  future  health  of  the  EU  labour 
market.  These  can  be  pursued  in  tandem  with  other  key  policy  goals  such  as  up-  and 
reskilling  the  domestic  workforce,  learning  mobility,  integration  of  third  country  nationals, 

66  Erasmus+ Higher Education Impact Study, 2019. 
67   Regulation 810/2009 establishing a Community Code on Visas (Visa Code). 
68   Directive 2016/801  on the conditions of entry and residence  of third-country  nationals for the purposes of 
research, studies, training, voluntary service, pupil exchange schemes or educational projects and au pairing.  

69  COM(2023) 719 final. 

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ensuring  that  all  workers  in  the  EU  enjoy  fair  working  conditions  and  disincentivising 
irregular migration to the EU. 

Enhanced mobility must be grounded in accurate labour market and skills intelligence, with a 
clear  focus  on  occupations  facing  genuine  shortages.  Close  cooperation  with  international 
partners on legal pathways to the EU will be essential.  

Making  a  success  of  talent  mobility  requires  a  willingness  from  national  authorities  and 
including  migration,  employment  and  skills 
stakeholders  across  different  sectors 
development,  and  education,  to  work  towards  shared  objectives.  The  Commission  is 
committed to supporting this cross-sectoral cooperation and counts on strong engagement of 
the European Parliament, the Council and Member States, and social partners in stepping up 
the EU’s attractiveness for global talent and skills. 

17 

 
 
ANNEX 

 Examples of actions underway to maximise the potential of the EU domestic workforce 

In tackling labour and skills shortages the EU’s first priority is to maximise the potential of 
the  domestic  workforce.  Dialogue  with  social  partners  is  essential  to  this  process,  as  is 
boosting  the  attractiveness  of  employment,  notably  through  addressing  inadequate  working 
conditions, promoting equal  opportunities and combating  discrimination.  Many actions are 
already underway:  

*   18 Large Scale Skills  Partnerships, under  the  Pact  for Skills,  bring social  partners  and 
stakeholders  together  reskilling  millions  of  people,  and  further  partnerships  are  in  the 
pipeline.  

*   To make  recognition of digital skills  quicker and easier70a pilot on a European Digital 
Skills  Certificate  has  been  launched  as  a  quality  label  for  digital  skills  certification, 
alongside  an  updated  Digital  Competence  Framework,  as  a  reference  framework  for 
digital skills.  

*   Most  Member  States  are  pursuing  significant  apprenticeship  reforms,  supported  by  the 

Commission through the European Alliance for Apprenticeships.  

*   EU  funds  are  investing  around  EUR  65  billion71  in  training.  This  includes  helping  to 
develop  100  projects  for  Centres  of  vocational  excellence  in  areas  such  as  advanced 
manufacturing or artificial intelligence.  

*  The EU is investing more than EUR 1.1 billion72 in the roll out of at least 60 European 
Universities  alliances  involving  more  than  500  higher  education  institutions,  acting  as 
pioneers to provide future-proof skills to students and lifelong learners 

*  EU  policy  and  funding  is  promoting  effective  upskilling  and  reskilling.  Around  half  the 
Member  States  are working  to  create individual  learning accounts73, aiming  to  provide 
every adult with the chance of labour market relevant training. Micro-credentials are an 
effective upskilling and re-skilling tool to fill newly emerging skills gaps74. 

*   The  Talent  Booster  Mechanism  will  support  regions  with  training,  retaining  and 
attracting people with skills, in particular regions facing significant departures of workers 
as part of Harnessing talents in Europe’s regions75.  

*   The  Council  Recommendation  on  minimum  income76  includes  a  focus  on  providing 
pathways  to  employment  for  those  furthest  away  from  the  labour  market,  including 
income support, help in finding a job, as well as personalised social services.  

70  Launched as part of the Digital Skills and Education Package 18 April 2023.  
71  This includes support from the European Social Fund Plus, under the national recovery and resilience plans, 

and the European Regional Development Fund as well as EUR 400 million through Erasmus+.  

72  Erasmus+ support for the period 2021-2027. 
73   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32022H0627%2803%29  
74  Council  Recommendation  of  16  June  2022  on  a  European  approach  to  micro-credentials  for  life-long 
learning  and  employability.  EU  financial  support  has  been  drawn  primarily  from  the  Recovery  and 
Resilience Facility, the European Social Fund Plus and Erasmus+.  

75   COM(2023) 32 final. 
76  Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion. 

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*   Bringing young people not in education, employment or training into the jobs market is 
a focus of the Youth Guarantee77 and the ALMA initiative78, helping over 43 million into 
employment  or  continued education, an apprenticeship  or a traineeship over the last 10 
years.79. 

*   The action plan on integration and inclusion 2021-202780 and the EU anti-racism action 
plan81 support the labour market inclusion of third country nationals and EU citizens with 
a migrant, or minority racial or ethnic background in the EU.  

*  Implementation  of  policies  to  facilitate  the  free  movement  of  workers  has  been 
strengthened  by  the  new  the  European  Labour  Authority  (ELA).  Digitalisation  and 
coordination  of  social  security  systems  are  further  facilitating  the  exercise  of  social 
security rights cross-border 82.  

*   New  legislation  on  Minimum  Wages  will  be  key  to  improving  workers’  rights,  and 
Commission proposals on platform work, protection from dangerous substances at work, 
and strengthened equality bodies as well as the forthcoming proposal on strengthening the 
quality framework for traineeship would all significantly improve working conditions. 

*   Achieving a European Education Area, where young people and lifelong learners receive 
the best education and training and can study and find jobs across the continent, will be 
key in tackling labour and skills shortages, with the support of EU funds83. 

*    The  Commission  supports  Member  States  through  the  Technical  Support  Instrument  – 
and this can include support to design and implement labour migration reforms84as well 
as to design and establish skills forecasting mechanisms85, and to facilitate procedures for 
the recognition of qualifications and validation of skills.    

77   The  reinforced  Youth  Guarantee  -  Employment,  Social  Affairs  &  Inclusion  -  European  Commission 

(europa.eu) 

78   ALMA (Aim, Learn, Master, Achieve)  
79   COM(2023) 577 final. 
80  COM(2020) 758 final. 
81   COM(2020) 565 final. 
82  COM(2023) 501 final. 
83  The  Erasmus+  programme  is  reinforcing  its  support  to  learning  mobility  opportunities  for  students,  VET 
learners, apprentices, adult learners and school pupils, with a view to boost inclusion and to address growing 
skills demand across the EU and beyond. 

84   TSI 2023 Flagship “Migrant integration and talent attraction (europa.eu)” 
85    TSI  2024  Flagship  “Flagship  on  Skills:  Fostering  skills  development  systems  better  adapted  to  the  labour  

market (europa.eu)”  

19