European Network of Public Employment Services (PES) : annual report : February 2024.
Date: 2024-03-14
Institutions: Directorate-General for Employment, Social Affairs and Inclusion
Subjects: activity report, administrative cooperation, employment policy, employment service, long-term unemployment, public service, youth unemployment

ISSN 2443-8081

ANNUAL REPORT

EUROPEAN NETWORK OF 
PUBLIC EMPLOYMENT 
SERVICES

FEBRUARY 2024

Employment, 
Social Affairs 
and Inclusion

EUROPEAN COMMISSION

Directorate-General for Employment, Social Affairs and Inclusion

Directorate E — Labour Mobility and International Affairs

Unit E.1 — Labour Mobility, Public Employment Services, ELA

Contact: PES Secretariat 

E-mail: 

EMPL-PES-SECRETARIAT@ec.europa.eu

European Commission

B-1049 Brussels

The European Network of Public Employment Services was created following a Decision of the European Parliament and Council in 
June 2014, amended in 2020. Its objective is to reinforce PES capacity, effectiveness and efficiency. This activity has been developed 
within the work programme of the European PES Network. For further information: http://ec.europa.eu/social/PESNetwork.

This activity has received financial support from the European Union Programme for Employment and Social Innovation “EaSI” (2014-

2020). For further information please consult: http://ec.europa.eu/social/easi.

LEGAL NOTICE

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for the use which may be made of the information contained therein. More information on the European Union is available on the 

Internet (http://www.europa.eu).

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Table of contents

List of Figures 

Foreword  

1. 

Introduction  

1.1.   PES Network in 2023  

1.2.  Snapshot of the 2023 Work Programme implementation  

2.  Addressing the complex challenges faced by PES 

2.1.  PES responses to structural and labour market challenges 

2.2.  Improving service delivery while supporting those most in need  

2.3.  Improving performance, driving quality  

2.4.  PES governance and its ecosystem 

3.  Benchmarking to support PES modernisation  

3.1.  Lessons from the third cycle of Benchlearning 

3.2.  Preparing the 4th Benchlearning cycle: a participatory process 

3.3.  Overview of main changes from the third to the fourth  

Benchlearning cycle methodology  

4. 

Conclusions  

Annex 1 – Work programme 

Annex 2 - Distribution of organisational maturity by PES, 3rd BL cycle 

Annex 3 – Outputs from 2023 activities  

Annex 4 – Figures from the PES Capacity Report 2023 

5

6

7

7

8

9

9

14

19

21

23

23

25

26

27

28

29

30

34

Figure 1 PES Network activities in 2023

List of Figures
 •
 •
 •
 •
 •
 •
 •
 •

Figure 2 October 2023 European Labour Market Barometer outlook

Figure 3 Examples of activities in some PES on recruitment from third countries

Figure 4 PES Network Opinion paper on skills: key messages

Figure 5 Outreach to get in contact with unregistered NEETs

Figure 6 Status of digitalisation of PES services to jobseekers and employers

Figure 7 Revised BL Manual at a glance: operationalising the Excellence Model for the 4th cycle

Figure A 4.1 Number of PES experiencing an increase or a decrease in staff (in FTE) between 2014 
and 2023

 •
 •

Figure A 4.2 Annual percentage change in the number of staff between April 2021 and April 2023

Figure A 4.3 Staff turnover in PES, 2021-2022 and 2022-2023

6

Foreword

Foreword 

In a context of geopolitical tensions, the horror of 
wars and human disasters, and the consequences 
of  climate  change  that  have  arrived  faster  than 
we  expected  and  all  over  the  continent,  PES  in 
2023  have  worked  hard  to  deliver  and  improve 
their core services. Over the past few years, PES 
have  shown  agility  in  responding  to  immediate 
crises and foresight in addressing labour market 
challenges.  PES  across  Europe  have  turned  to 
each  other  even  more  frequently  for  advice  and 
knowhow.  This  annual  report  clearly  shows  what 
we can achieve when we work together and what 
support  the  PES  Network  brings  to  us  PES,  on  a 
daily basis.

2023  began  with  the  continuation  of  the  stark 
reality of the war in Ukraine and the fear in our 
countries  that  the  energy  crisis  would  badly  im-
pact  our  most  vulnerable  jobseekers  and  their 
households,  and  energy  intensive  sectors.  Again, 
Europe was looking at the possibility of massive 
job  losses,  just  shortly  after  the  impact  of  the 
Covid19 pandemic on the labour market. But quite 
opposite to what we feared, unemployment in the 
EU  reached  its  lowest  level  in  decades  –  in  part 
thanks  to  our  social  security  systems  and  active 
labour market policies - and the debate on labour 
market outlook and policies gradually switched to 
labour and skills shortages.

Designated as the European Year of Skills, 2023 
brought  into  sharp  focus  the  critical  role  of  PES 
in  shaping  a  skilled  workforce,  ensuring  that  Eu-
rope is equipped to navigate the challenges of the 
green  transition  and  demographical  and  techno-
logical changes. 

The  PES  Network’s  initiatives  on  green  taxono-
mies, on a common approach to measuring short-
ages, on new forms of training and skills valida-
tion and on recruitment of third country nationals 
underscored  its  commitment  to  addressing  skills 
shortages in a broad perspective. 

As I write these words with a little help of ChatGPT, 
I  can  feel  for  myself  how  the  fusion  of  artificial 
intelligence  and  human  expertise  is  changing 
our jobs and the way we do them. In the working 

group on digitalisation, experts from PES are put-
ting their heads together to share their knowhow 
on how technology can open pathways for more 
personalised  and  efficient  support  and  improve 
the  way  we  do  career  guidance,  profiling  and 
matching.  A  thematic  review  specifically  looked 
into how digital tools could be better used to sup-
port vulnerable jobseekers. Their access to decent 
work remains low and innovative approaches will 
be  needed  to  also  include  their  talents  into  our 
labour markets.

The  PES  Network’s  emphasis  on  evidence-based 
approaches  was  further  put  in  practice  with  a 
study on the effectiveness of new types of active 
labour market programmes introduced during and 
after  the  Covid19  pandemic,  the  adaptation  of 
our Benchlearning model and a working group on 
the latest trends in evidence-based design. These 
endeavours  underscore  our  commitment  to  con-
tinuous improvement, ensuring that PES services 
are informed by the latest research and knowhow, 
and that PES are optimally positioned to meet the 
evolving needs of jobseekers and employers.

The  pages  that  follow  will  tell  you  more  about 
what PES and our Network have put in place this 
past year to respond to the changing labour mar-
ket needs and to prepare for what lies ahead of 
us. 

In  the  upcoming  year,  I  look  forward  to  continu-
ing working closely together with all of you in our 
shared pursuit of facilitating meaningful employ-
ment  and  contributing  to  the  well-being  of  indi-
viduals and societies across Europe and the globe.

Caroline Mancel

Chair of the European Network of Public 
Employment

Deputy Director General for Actiris, the Public 
Employment Service for the Brussels-Capital-
Region, Belgium. 

2023PES Annual Report7

1. Introduction

1.  Introduction 

1.1.  PES Network in 2023 

In 2023, the Work Programme of the PES Network 
was  implemented  in  a  rapidly  changing  context. 
While  unemployment  remained  close  to  histori-
cally low levels throughout most of 2023 (6% in 
the EU27 in September 2023)1, labour and skills 
shortages  grew  across  many  sectors,  and  SMEs 
most  notably  struggle  to  find  workers  with  the 
right skills. In the wake of inflation and anticipat-
ed  recession  in  many  European  countries2,  PES’ 
expectations for short-term developments in em-
ployment and unemployment levels (as measured 
by the European Labour Market Barometer) have 
fallen consistently during 20233. 

The PES Network remained active in this context. 
Delivering  a  full  programme  of  Mutual  Learning 
activities  (presented  in  Section  2),  the  Network 
also  embarked  in  this  pivotal  year  to  revise  the 
Network’s Benchlearning methodology in the tran-

sition  to  the  4th  cycle  of  assessment  visits  (pre-
sented in Section 3). 

From a governance perspective, two Board meet-
ings were held in 2023 in Stockholm (Sweden) on 
8-9  June  2023  and  in  Gran  Canaria  (Spain)  on 
14-15  December  2023.  Furthermore,  two  AFEPA 
meetings were held in March and October 2023, 
and the Network’s Chair participated in two EMCO 
reviews.  The  PES  Network  saw  the  appointment 
of a new Chair as of 1 July 2023, Caroline Mancel 
(Deputy Director General of the Belgian PES Acti-
ris)4 and a new Vice-Chair starting from 1 January 
2024, Inga Balnanosiené (Head of the Lithuanian 
PES). Together, they will guide the PES Network’s 
work and outcomes, as PES continue to face chal-
lenging times in 2024. Caroline Mancel and Inga 
Balnanosiené  replace  Johannes  Kopf  (Member 
of the Board of Directors, Austrian PES, AMS) as 
former Chair and Spiros Protopsaltis (Governor & 
Chair of the Board of Greek PES DYPA) as former 
First Vice-Chair. 

Since 2014, the European Network of Public Employment Services (PES Network) works to enhance 
the co-operation between the PES. Its members are the Public Employment Services of all 27 EU 
Member States as well as Norway, Iceland and Liechtenstein and the European Commission. 

The Network is governed by a Board where each country and the Commission are represented. 
The Board meets twice a year to conduct strategic discussions and take decisions on the activities 
of  the  Network.  It  also  works  in  close  co-operation  with  the  Employment  Committee  (EMCO). 
Advisors for European PES affairs (AFEPAs) appointed in all participating PES are supporting and 
preparing the Board in the decision-making process. 

A  Secretariat,  provided  by  and  based  within  the  European  Commission,  assists  the  Board.  In 
co-operation  with  the  Chair  and  Vice-Chairs,  it  prepares  the  Board  meetings  and  supports  the 
implementation of the Annual Work Programme.

1 

2 

3 

4 

Statistics | Eurostat (europa.eu)

GDP growth in EU27 in 2023 Q2 was 0.0%, the Autumn Forecast now projects GDP growth in 2023 at 0.6% in both the EU and the euro area, 
0.2 percentage points below the Commission’s summer forecast. Autumn 2023 Economic Forecast (europa.eu) 

European Labour Market Barometer - IAB - Institut für Arbeitsmarkt- und Berufsforschung A monthly indicator reflects the expected short-term 
development of unemployment and employment in the European labour market.

‘Leading the way for the PES Network’ (Podcast with the new Chair of the European PES Network)

2023PES Annual Report8

1. Introduction

1.2. Snapshot of the 2023 Work 
Programme implementation 

As  presented  in  Annex  1,  the  2023  Work  Pro-
gramme  was  articulated  through  four  main 
themes:
 •

Structural and labour market challenges: 
adjusting  strategies  to  deal  with  rapidly 
changing  labour  markets,  including  labour 
shortages and the green transition.

 •

 •

PES  service  delivery:  contributing  to  the 
European  Year  of  Skills  and  encouraging 
continuous  improvement  and  modernisation 
of PES’ service delivery, one of the core tasks 
of the PES Network. 

PES performance management: enhancing 
capacity  building  as  well  as  digitalisation 
(including harnessing the potential of AI and 
data).

Figure 1 PES Network activities in 2023 

 •

PES governance and ecosystem: deepening 
understanding of key trends in PES, enhancing 
the outreach of the Network and co-operation 
with partners.

This  Work  Programme  was  delivered  through  a 
combination  of  Benchlearning,  Mutual  Learning, 
and communication activities. 

In the area of Mutual Learning, 16 mutual learning 
events were carried out. Finally, communications 
activities generated a series of products support-
ing the visibility of the PES Network, including 45 
newsletters, 66 podcasts, and the development of 
a social media strategy, to be launched in 2024.

Benchlearning  activities  focused  on  carrying  out 
six Thematic Learning Dialogues (bringing togeth-
er 85 PES participants) and updating the Benchle-
arning methodology. One Benchlearning site visit 
was carried out in 2023 (Italy) and the 4th cycle 
will commence in January 2024. 

5 

6 

Newsletters were published in February 2023, April 2023, July 2023 and December 2023

Podcasts focused on upskilling and reskilling (January 2023), PES response to the Ukraine situation (February 2023), staff management (April 
2023), Benchlearning (April 2023), mission and ambition with Caroline Mancel (October 2023) and the European Year of Skills (December 
2023). 

2023PES Annual Report9

2. Addressing the complex challenges faced by PES

2.  Addressing the complex 
challenges faced by PES

Throughout 2023, European PES worked jointly to 
support the labour market integration of persons 
displaced from Ukraine while continuing to search 
for solutions to persisting issues, such as skills and 
labour shortages, the need to upskill jobseekers in 
the  context  of  green  and  digital  transitions.  The 
Network has also advanced PES’ efforts to make 
their services further digitalised and personalised, 
more flexible, partnership-based. 

The  remainder  of  this  section  summarises  the 
work and experiences of the PES Network for each 
of the four strands of the 2023 Work Programme.

2.1. PES responses to structural and 

labour market challenges

Throughout  2023,  PES  have  continued  to  adjust 
strategies  to  deal  with  rapidly  changing  labour 
markets.  While  unemployment  remained  close 
to  historically  low  levels,  PES’  expectations  for 
short-term developments in employment and un-
employment  levels  have  fallen  consistently.  By 
October  2023,  the  European  Labour  Market  Ba-
rometer had gone down for the sixth time in a row, 
confirming worsening prospects over the course of 
20237. 

Figure 2 October 2023 European Labour Market Barometer outlook8

Source:  October 2023 European Labour Market Barometer outlook

7 

8 

European Labour Market Barometer - IAB - Institut für Arbeitsmarkt- und Berufsforschung - The European Labour Market Barometer by the PES 
Network remains the leading indicator of labour market health and trends, based on a survey of local or regional employment agencies in 17 
participating PES.

Time Series European Labour Market Barometer 2018 until October 2023, European Labour Market Barometer - IAB - Institut für Arbeitsmarkt- 
und Berufsforschung

2023PES Annual Report10

2. Addressing the complex challenges faced by PES

Employment of displaced Ukrainians is up, as 
the formal guidelines for PES emerge

In 2023, the overall number of displaced people 
from Ukraine in employment has kept increasing, 
though  the  number  of  displaced  persons  regis-
tered9  at  PES  remained  stable,  with  about  320 
000 persons registered. This is reflecting increased 
transitions into employment and indicates a suc-
cess of PES accompanying these transitions. While 

persons from Ukraine registered with PES tend to 
be  younger  and  have  higher  levels  of  education, 
matching their qualifications with specific sectoral 
demands  remain  difficult.  Several  PES  are  push-
ing for greater integration, for instance launching 
or extending measures on better job orientation, 
childcare,  job  trialling  opportunities  to  minimise 
overqualification.

Common guidelines for PES

A marked development was the adoption by the PES Board of seven ‘Key considerations’, outlining 
lessons and PES strategies for the successful integration of displaced people from Ukraine and 
refugees10.

• 

• 

• 

• 

• 

• 

Enhanced guidance: Providing accessible, up-to-date information for refugees and displaced 
people on how to enter the labour market 

Facilitating  digital  job  matching:  Facilitating  online  vacancy,  CV  portals  and  job  matching 
directly between employers, refugees and displaced people 

Tailored  language  training:  Tailoring  language  training  to  personal  situations,  skills  and 
qualifications to increase job opportunities 

Recognising  skills  and  qualifications:  Improving  the  process  for  assessing,  recognising  and 
validating qualifications and skills to secure work opportunities corresponding to qualifications 
and experiences 

Sustainable  inclusion:  Balancing  short  and  long-term  perspectives  of  fast  entry  into  the 
labour market and creating a more sustainable integration process to ensure skills are used 
efficiently 

Systematic  collaboration:  Brokering  collaboration  and  information  sharing  as  well  as 
systematic involvement between authorities and civil society, closing service gaps to make it 
easier for refugees and displaced people to integrate into work and society 

•  Working directly with employers: Close collaboration between PES and employers is crucial to 

the successful integration of refugees into the labour market 

Related Network activities 

•  The Network monitored the labour market situation of displaced Ukrainians through a regular 

survey and report11. 

•  A Working Group (led by Norway) focused on how to improve support to displaced Ukrainians 
and  developed  ‘Key  Considerations’,  outlining  recommendations,  practical  guidance  and 
examples of inspiring practices (adopted by the Board). 

•  A Podcast was published on ‘PES Network responses to Ukraine – a story of European solidarity’  

9 

10 

11 

Support to persons displaced from Ukraine: survey shows that Public Employment Services are extending their support - Employment, Social 
Affairs & Inclusion - European Commission (europa.eu)

PES Network adopts 7 recommendations to guide employment services assisting refugees and persons displaced from Ukraine - Employment, 
Social Affairs & Inclusion - European Commission (europa.eu)

Support to persons displaced from Ukraine: survey shows that Public Employment Services are extending their support - Employment, Social 
Affairs & Inclusion - European Commission (europa.eu)

2023PES Annual Report11

2. Addressing the complex challenges faced by PES

‘Future proofing’ Active Labour Market Policies 

Active Labour Market Policies are one of the key 
tools  PES  have  at  their  disposal  to  support  their 
customers.  While  much  focus  has  been  given  in 
recent years to COVID-19 recovery measures, PES 
are faced again with the need to reflect on their 
strategies. 

A PES Network review of trends since 2015 shows 
that  ALMPs  have  become  richer  and  more  com-
prehensive  over  the  years.  Key  changes  include 
more  integrated  services  (covering  aspects  such 
as mentoring, coaching, counselling and follow-up 
for the most disadvantaged), as well as stronger 
partnerships.  New  approaches  to  lifelong  learn-
ing  and  addressing  skills  shortages  have  also 
emerged,  with  more  effective  linking  of  training 
measures to labour market needs.

Moving on from the previous years’ focus on COV-
ID-19  recovery,  recent  interventions  shifted  to 
addressing  the  needs  of  economically  ‘inactive’ 
people  (especially  young  people)  and  supporting 
workers at risk of losing their jobs. This shows how 
PES  have  responded  to  the  new  dynamic  labour 
market  conditions  in  a  post-COVID-19  context. 
Yet, the green and digital transitions will demand 
even  more  creative  and  dedicated  efforts.  Going 
forward, PES should reinforce activities to respond 
to demographic change (e.g. better targeting older 
workers,  migrants  and  women  in  particular)  and 
serve  disadvantaged  groups,  strengthening  part-
nerships to close skills gaps and overcome skills 
shortages (including via cooperation with employ-
ers), and reflect on the potential future role of job 
retention schemes. 

Related Network activities 

•  The  study  on  ‘New  forms  of  active  labour  market  policy  programmes’  reviewed  recent 
developments in the design and implementation of ALMPs  and their use by Public Employment 
Services since 201512.

12  How can labour market interventions help people into work? - Employment, Social Affairs & Inclusion - European Commission (europa.eu)

2023PES Annual Report12

2. Addressing the complex challenges faced by PES

Skilled labour migration: a new role for PES? 

Some PES are increasingly taking a role in attract-
ing and recruiting skilled talent  from  third coun-
tries.  While  their  involvement  has  been  mainly 
centred  on  administrative  tasks  in  the  past  (e.g. 
administering labour market tests, evaluating and 

issuing work permits), more pressing labour short-
ages  as  well  as  new  national  and  EU  initiatives 
(such as the Talent Pool and Talent Partnerships) 
have  provided  an  impetus  for  them  to  take  on 
more proactive roles. 

Figure 3 Examples of activities in some PES on recruitment from third countries 

Source: PES survey in preparation of the PES Mutual Learning Seminar on ‘Attracting skilled talent from third countries: The role of 
Public Employment Services’ (2023) 

Most  PES  already  have  a  deep  knowledge  and 
up-to-date information on changes in the labour 
market,  making  them  key  players  in  the  identi-
fication  of  labour  shortages.  Certain  PES  have 
also developed well-established cooperation with 
stakeholders,  and  some  have  significant  experi-
ence operating targeted placement projects with 
third  countries  in  strategic  sectors.  Nonetheless, 

experiences  still  vary  considerably  across  Euro-
pean PES: their role is shaped by national labour 
migration strategies, as well as by their own insti-
tutional set-up and capacities. Besides, the man-
date of PES in active talent recruitment remains 
limited in most countries, and the role of the PES 
in recruiting skilled talent has been questioned in 
discussions.

2023PES Annual Report13

2. Addressing the complex challenges faced by PES

Related Network activities 

•  The PES Network was among the first stakeholders consulted in Spring 2023 in the context of 

the development of the Talent Pool. 

•  A Seminar ‘Recruitment skills and talents from Third Countries; the role of Public Employment 
Services’ took place in November, prepared via a dedicated survey. A thematic paper will be 
published early 2024. 

•  The topic of recruiting and integrating skilled talent from third countries was explored at the 

Annual Stakeholder conference.13 

Leading the taxonomy working group has helped the Swedish PES develop their own work on this 
particular topic and the Working Group’s teamwork has moved internal projects forward in the PES 
as well. This level of collaboration and knowledge sharing has made the PES’s progress and work 
more visible internally.

In addition, the PES participation in activities has led to valuable networking, trust-building among 
peers, and at times, led to discussions for bilateral project partnerships in different areas. 

Source: short impact survey 2023, Swedish PES

Preparing PES to support greening labour 
markets

The greening of labour markets across Europe is 
expected  to  impact  on  the  volume  of  job-to-job 
transitions  and  on  skills  requirements.  PES  are 
among  key  actors  to  mitigate  negative  labour 
market effects, smoothing the transition towards 
a greener economy and helping companies to ac-
cess a pool of skilled workers. 

An increasing number of PES have now included 
the green transition in their strategies and devel-
op specific measures. Close to half the PES have 
adopted  internal  sustainability  strategies  that 
cover various aspects,14 such as improving build-
ing efficiency, reducing waste, and promoting sus-
tainable mobility. Skills is the most pressing area 
for  PES  in  the  process  of  adapting  to  the  green 
transition,  with  three-quarters  of  them  providing 

training opportunities to up- and re-skill workers. 
Most PES also cooperate with employers to adapt 
to the green transition, by identifying skills needs 
for  green  jobs,  supporting  steps  in  industrial  re-
structuring, and implementing employment subsi-
dies for green jobs set in law. 

Managing the green transition is regarded by many 
PES to be more complex than previous economic 
restructuring processes: this requires the elabora-
tion of clear criteria and definitions of green jobs. 
Several  PES  have  conducted  or  commissioned 
studies or are partnering in research activities on 
the taxonomy of green jobs, green companies and 
sectors and related skills. To help them advance in 
their activities, continued efforts are needed with-
in the PES Network to further elaborate common 
definitions  of  green  sectors,  companies,  jobs/ac-
tivities and skills. 

For the Spanish PES, mutual learning activities have increased the PES’ awareness of attracting 
talented people from third countries. In addition, the PES took away lessons the standardisation 
of a model for the identification and exchange of best practices within the National Employment 
System,  through  the  new  network  of  public  centres  for  guidance,  entrepreneurship,  support  and 
innovation for employment (COE).

Source: short impact survey 2023, Spanish PES

13 

PES Network Skills Conference Highlights Urgency for Collaborative Action to Bridge Skills Gap - Employment, Social Affairs & Inclusion - Euro-
pean Commission (europa.eu)

14 

Source: PES Capacity Report 2023

2023PES Annual Report14

2. Addressing the complex challenges faced by PES

Related Network activities 

•  PES’ role in supporting the greening of labour markets was the focus of a Thematic Review 

Workshop (hosted by Germany) in February, followed by a Thematic Paper15.

•  The Working Group on Labour Market Taxonomy (led by Sweden) adopted Key Considerations 
on Green Concepts in Labour Market Taxonomy and launched a survey to map PES approaches 
to defining green jobs and skills across EU labour markets. Work will be pursued in 2024. 

2.2. Improving service delivery while 

supporting those most in need 

A key focus in 2023 was to encourage continuous 
modernisation of PES’ service delivery, whilst en-
suring that vulnerable groups are not left behind. 

Bridging the skills gap, tackling shortages 

PES  have  an  important  role  to  ensure  that  job-
seekers  have  appropriate  skills  and  that  labour 
market  gaps  are  addressed.  But  matching  peo-

ple’s  aspirations  and  skillsets  with  existing  em-
ployment  opportunities  remains  a  challenge.  In 
2023, many PES took action to address structural 
and short-term shortages, including filling vacan-
cies and encouraging applications in key shortage 
sectors  (especially  those  affected  by  green  and 
digital transitions). Across the EU, innovative PES 
approaches have emerged to deal with challeng-
es ranging from limited attractiveness of specif-
ic sectors to a lack of (digital) skills amongst job 
seeking clients. 

Mapping PES’ approaches to measuring labour shortages

In 2023, the PES Network has started exploring the potential of a common approach to measuring 
labour shortages shared in the Network. Work will continue in 2024. 

A survey was launched to map current approaches. It shows that PES play multiple roles when it 
comes to measuring labour shortages (data collection, elaboration and analysis, communication, 
stakeholder  engagement,  decisions  on  lists  of  shortage  occupations).  Most  define  occupations 
in the list according to a standard occupation classifications (e.g., mainly ISCO and ESCO). Many 
compute ratios between job vacancies and job seekers.

Skills  assessments  remain  central  to  addressing 
the  skills  gap:  innovative  approaches  to  recog-
nise  and  validate  skills  will  be  essential  to  fully 
harness the ‘untapped potential’ of the European 
workforce. In 2023, new forms of skills validation 
have focused attentions and PES have taken new 
steps in this field, shifting from occupation-based 
approaches  towards  skills-based  approaches  in 
their  profiling  and  matching  activities.  There  is 
also increasing recognition of the need for more 
comprehensive  multi-level  skills  assessments, 
combining  self-assessment,  interviews,  profes-
sional testing, and practical assignments. 

PES have capitalised on EU initiatives and funding 
programmes  on  skills,  showcasing  good  practic-
es in developing green and digital skills, matching 

jobseekers’  competences  with  employers’  needs 
and  bridging  the  skills  gap  in  Europe  with  sup-
port from EU funds. This was further emphasised 
in  the  Annual  2023  Stakeholder  conference16 on 
‘Empowering  the  Workforce,  Bridging  the  Skills 
Gap’,  which  highlighted  collaborative  action  and 
innovative  approaches  to  tackle  the  skills  chal-
lenges faced in the EU labour market (with more 
still needed). 

Overall, the European Year of Skills 2023 has pro-
vided an impetus for PES to reflect on their evolv-
ing  role.  In  this  context,  the  PES  Network  called 
for  closer  links  between  the  education  and  em-
ployment  sectors,  and  for  stepping  up  skills  in-
telligence  to  ensure  a  better  response  to  labour 
market needs. 

15 

16 

https://ec.europa.eu/social/BlobServlet?docId=26998&langId=en

PES Network Skills Conference Highlights Urgency for Collaborative Action to Bridge Skills Gap - Employment, Social Affairs & Inclusion - Euro-
pean Commission (europa.eu)  

2023PES Annual Report15

2. Addressing the complex challenges faced by PES

Source: Graphic recording by SCRIBING.IT - M.Lobietti & G.Peddes

Figure 4 PES Network Opinion paper on skills: key messages

Source: PES Network Opinion paper on skills: key messages

2023PES Annual Report16

2. Addressing the complex challenges faced by PES

Related Network Activities

•  A Seminar17 held in February and thematic paper reviewed the use of new forms of training 

and skills validation (including via micro-credentials) across PES services. 

•  The European Year of Skills was the main focus of the PES Network annual conference in April 

(synthesis paper).

•  The Network contributed to the European Year of Skills through an Opinion Paper18 adopted by 

the Board in June. 

•  Three videos were published on PES approaches19 to develop green and digital skills, match 

jobseekers’ competences with employers’ needs.

•  The Network mapped PES approaches to measuring labour shortages and started exploring a 

potential common approach. 

•  A Podcast was published with the Latvian PES on ‘Why skills are the new gold’ 

Inclusive access to PES and digital tools 

The  COVID-19  pandemic  accelerated  the  transi-
tion  towards  digital  online  working  and  services. 
This  has  brought  to  light  groups  of  PES  clients 
who either lack basic digital skills or lack the re-
sources  to  access  digital  devices  and/or  broad-
band internet. These jobseekers are at significant 
risk of being left behind, making it imperative for 
PES to make digital services more accessible and 
improve the digital skills of vulnerable customers.

Ensuring  that  no  jobseeker  is  left  behind  in  the 
move towards digital-first approaches is a grow-
ing concern for PES. Understanding the needs and 
abilities  of  each  individual  and  tailoring  PES  ap-
proaches is key. Digital outreach activities can play 
a role in motivating individuals, but they can also 
be  used  to  promote  and  engage  those  who  are 
already somewhat digitally active (e.g. via social 
media). PES also play an important role in deliv-
ering basic digital skills training, either by deliver-
ing the training or by providing voucher schemes. 
By  participating  in  such  training,  vulnerable  job-
seekers (including Young People Not in Education, 

Employment or Training – NEETs - and the Long 
Term  Unemployed)  can  develop  the  digital  skills 
required  by  many  employers  and  they  can  have 
the skills required to access digital self-services in 
the future. Finally, complementary services includ-
ing (digital) post placement support have emerged 
as important services in some PES. 

Earlier  in  2023,  PES  explored  customer-centred 
services to better meet the needs of their custom-
ers,  with  human-centred  design  as  the  starting 
point for some PES when designing new systems. 
Emerging practices by PES show early success in 
this area, notably where PES innovate in the de-
livery of on-stop shops in partnership with other 
public  service  providers,  in  enhancing  customer 
outreach,  in  giving  greater  customer  choice  in 
selecting activation programmes, or in improving 
the use of data and technology. What is clear is 
that PES are responding with increasingly diverse 
portfolio of services they are expected to deliver 
to different target groups, in a context where tech-
nology is also transforming service delivery.

17 

18 

19 

PES Network Seminar on New forms of skills assessments and validation - Employment, Social Affairs & Inclusion - European Commission 
(europa.eu)

https://ec.europa.eu/social/BlobServlet?docId=27000&langId=en

Bridging the green and digital skills gap in Europe: new PES Network videos - Employment, Social Affairs & Inclusion - European Commission 
(europa.eu)

2023PES Annual Report17

2. Addressing the complex challenges faced by PES

Related Network Activities

•  A Thematic Review Workshop was conducted in November 2023 (hosted in Croatia) in relation 
to PES digital tools for the successful integration of vulnerable groups, with a focus on NEETs 
and long-term unemployed. 

•  ALMPs and reaching out to disadvantaged groups was the subject of a Webinar in April 202320.

•  A Toolkit was released in August 2023, providing a practical guide for PES considering and/or 
designing customer-centred approaches in the delivery of their services in the digital age21.

Collaboration on green transitions and the 
Youth Guarantee

Most PES (19) cooperate with employers to adapt 
to the green transition, by identifying skills needs 
for  green  jobs,  managing  industrial  restructur-
ing, and implementing employment subsidies for 
green jobs. On PES Governance in the context of 
the Youth Guarantee, PES have made progress in 
supporting the reinforced YG, with more PES tak-
ing  responsibility  for  the  different  phases  of  YG 

delivery.  It  shows  that  more  PES  offer  support 
services in the preparatory phase, such as career 
guidance,  counselling,  and  short-term  training.  It 
also shows that 71% of PES provide post-place-
ment support services, demonstrating their com-
mitment to youth employment. Moreover, 64% or 
18 PES have set specific targets in 2023 to meas-
ure  the  impact  of  YG  schemes,  using  monitoring 
and evaluation mechanisms.22

Stepping up support to young NEETs

A  survey  was  carried  out  over  the  summer  to  analyse  the  administrative  capacity  of  PES  in 
implementing  the  Youth  Guarantee  scheme  and  its  evolution,  contributing  to  the  Employment 
Committee’s monitoring of the Youth Guarantee23. The survey has shown that, compared to 2021:

• 

There has been notable progress in the implementation of the YG, including increased PES 
responsibility and delivery of phases of YG offer;

•  Most PES either fully manage or collaborate with partners in managing the reinforced YG, 

with an increase in PES taking responsibility;

• 

• 

PES are actively involved in all YG phases, often collaborating with partners for target group 
identification and outreach;

A  larger  number  of  PES  provide  support  services  during  the  preparatory  phase  and  post-
placement services;

•  Numerous initiatives were introduced

20  How are Public Employment Services reaching people farther from the labour market? - Employment, Social Affairs & Inclusion - European 

Commission (europa.eu)

21 

22 

23 

https://ec.europa.eu/social/BlobServlet?docId=27079&langId=en

Source: PES Capacity Report 2023

https://ec.europa.eu/social/BlobServlet?docId=24936&langId=en

2023PES Annual Report18

2. Addressing the complex challenges faced by PES

Figure 5 Outreach to get in contact with unregistered NEETs 

Source: 2023 PES Capacity Questionnaire Part II 

Related Network Activities

•  As part of the PES Capacity Questionnaire 2023, a survey was launched on the administrative 

capacity of PES in implementing the Youth Guarantee. 

Developing more evidence-based PES services

Evidence-based  service  design  refers  to  an  ap-
proach  where  data  and  outcomes  are  used  to 
improve  the  PES  operations  and  inform  which 
services (and modes of delivery) will lead to best 
possible effects, taking into account contextual in-
formation and PES customers. 

An  evidence-based  approach  has  been  imple-
mented in European PES for many years24. Recent 
developments 
include  Randomised  Controlled 
Trials (RCT) methodology and econometric analy-
sis, pilot projects and the analysis of labour mis-
matches. Across the PES Network, some practices 
have transferred from one PES to another, such as 
work profiling tools, showing the value of PES ex-
changes and experiences over the years. In 2023, 
renewed focus on evidence is seen in PES, some 
setting up specialised units or departments deal-
ing  with  data  analysis,  also  in  cooperation  with 
private  or  public  (academia)  sectors.  And  while 

some  PES  focus  on  their  data  infrastructure  for 
better analysis, new data-warehouses and the use 
of data science agreements are emerging. 

Nonetheless,  further  evidence  is  needed  to  fully 
understand  the  effectiveness  of  measures  and 
their  causal  relationships  for  different  target 
group, should PES want to focus on the customer 
when designing service delivery. While some PES 
collect  feedback  through  large  qualitative  and 
quantitative  surveys,  many  stress  that  analysis 
and  communication  of  results  to  decision-mak-
ers and frontline staff is key. Looking ahead, new 
trends  in  data  analysis  and  behavioural  science 
are worth exploring through the PES Network, and 
these topics will be discussed in future activities. 
Evidence-based service design is key from a PES 
Network  perspective  within  the  context  of  PES 
Benchlearning, where it will play a key role in the 
4th cycle of PES assessments (Section E - Bench-
learning Manual).

24 

European Commission (2019) How Public Employment Services could create and use evidence about their services for organisational improve-
ment and European Commission and (2020) Practitioner toolkit on evidence-based services

2023PES Annual Report19

2. Addressing the complex challenges faced by PES

Related Network Activities

•  A  new  Working  Group  on  Evidence-Based  Service  Design  (led  by  Denmark)  started  work  in 

October.

2.3. Improving performance, driving 

quality 

The  COVID-19  pandemic  accelerated  the  use  of 
digital approaches, including digital-first services. 
With  developments  in  Artificial  Intelligence  (AI), 
the PES Network looked at how and why it could 
be used, establishing the business case for its use 
and how PES already use AI in their business pro-
cesses. 

Machines delivering the PES services? 
Digitalisation and exploring the power of AI

Digitalisation  developments  for  PES  remain  im-
portant.  Most  PES  are  working  on  designing  and 
implementing (or revising) a sound digital trans-
formation  strategy,  accompanied  by  inclusive 

governance  models,  reviews  and  optimisation  of 
PES operations. A sound hybrid digital-first strat-
egy was advocated by the Working Group on Dig-
italisation. The aim is to ensure that no customer 
group is at a disadvantage, and where digital skills 
are not sufficient, alternative support channels are 
offered. 

For several years now, a significant number of PES 
have  updated  their  channel  management  strat-
egy,  due  to  PES  managing  more  customer  data 
and increasing the digitalisation of services. Mul-
tichannel  approaches  to  contacting  PES  evolved 
into  more  sophisticated  systems  well  into  2023, 
integrating separate contact channels like phone, 
email  and  face-to-face  into  a  more  holistic  ser-
vice  offer.  In  2023,  more  than  two  thirds  of  PES 
reported  offering  digital  services  to  job-seeking 
customers. 

Figure 6 Status of digitalisation of PES services to jobseekers and employers

Source: PES Capacity Questionnaire 2023

PES have been moving towards user interface and 
user experience design for their services for sever-
al years now, with a rising use of apps and dash-
boards that allow jobseekers to navigate services 
and manage profiles without the direct help and 
supervision of a PES advisor.

In the wake of AI, PES are now exploring the busi-

ness case for AI, how they are currently using AI, 
and ethical considerations associated with AI (in-
cluding privacy, data security and how data could 
and should be used). As the PES Network remains 
attuned  to  the  latest  challenges  in  its  digital 
eco-system,  results  from  recent  and  future  PES 
activities on AI will help to develop intelligence to 
develop appropriate responses. 

2023PES Annual Report20

2. Addressing the complex challenges faced by PES

The Latvian PES has found it particularly useful to participate in the Thematic Learning Dialogue 
on  Key  Performance  Indicators  organised  by  the  Netherlands  –  as  Latvia  was  in  the  process  of 
reviewing the KPIs of their own institution. The PES has found it helpful to hear from others about 
the  type  and  number  of  KPIs  which  are  in  use  in  their  PES,  gathering  experiences  of  how  PES 
bring KPIs to life. The Latvian PES is keen to ensure that their KPIs reflect the PES’ actions and the 
results which help clients in their job search. The PES states that “in the process of developing our 
institution’s strategy for the next period, we will take these examples of good practice into account”.  

Source: short impact survey 2023, Latvian PES

Related Network activities

PES discussed digitalisation and the digital transformation of their organisations, associated best 
practices, challenges and success factors in numerous forums across year.

•  A  study  exploring  the  implications  of  Artificial  Intelligence  for  the  PES  was  launched  to  be 

published in 2024. 

•  A  Mutual  Assistance  project  was  launched  to  support  Luxembourg  in  the  design  of  its  new 

digitalisation matching tool, with support from PES from Sweden and Belgium-VDAB. 

•  Two meetings of the PES digitalisation working group (led by the Netherlands) took place.

•  An internal ‘Jour Fixe’ meeting was organised by Austria in November on the use of ChatGPT 

and other AI solutions by PES. 

Thematic learning dialogues and mutual 
assistance

Optimising  PES  performance  continues  to  be  a 
core pillar of the PES Network’s mandate. Building 
on the challenges identified and the recommenda-
tions formulated during the 3rd cycle of external 
assessments (2020-2022) of Benchlearning (see 
section 3), six Thematic Learning Dialogues (TLDs) 
were held between PES in 2023. TLDs in 2023 fo-
cused on a wide range of PES challenges, such as: 
employers’  strategy;  Key  Performance  Indicators 

focused on outcomes; operating in a decentralised 
model; digital change strategy; and change man-
agement strategy. 

TLDs,  like  the  three  Mutual  Assistance  Projects 
carried out in 2023 (MAPs, below), offer a concert-
ed and bespoke model of immediate PES to PES 
support  across  the  Network,  directly  linking  the 
learning  to  the  PES  performance  and  direct  im-
provements as measured through the Benchlearn-
ing (BL) methodology. (see Annex for more detail). 

Mutual  Assistance  Projects  (MAPs)  continued  to  offer  highly  bespoke  expert  support  to  the 
individual PES in concrete improvements of their services or activities. 

With a third closing meeting, the Latvian PES received targeted support in the implementation 
development of an integrated quality management system, building directly on the experiences of 
the systems and processes which have worked well for the Austrian, Estonian, and Belgian-VDAB 
PES. 

In much the same way, a new MAP started in 2023 to benefit the Luxembourg PES in the design 
of its digital matching tool, applying directly the lessons learnt from the Belgian-VDAB and the 
Swedish PES. 

2023PES Annual Report21

2. Addressing the complex challenges faced by PES

2.4. PES governance and its ecosystem

The PES Network continues to focus on developing 
partnerships  across  the  PES  ecosystem,  moving 
away from bilateral partnerships to working col-
laboratively with other actors in the labour mar-
ket. 

Reforms

PES have been concerned with further increasing 
their  efficiency  and  performance  in  recent  years, 
well into 2023. Since May 2022, several PES intro-
duced reforms to their institutions and service de-
livery models and tools, with 12 PES (39%) hav-
ing  implemented  reforms  in  2023.  Reforms  that 
have been introduced concern the service model 
of PES in two PES, with one PES adopting a new 
multi-annual strategy and defining associated Key 
Performance  Indicators  (KPI).  In  most  cases,  re-
forms have centered on a specific capacity area or 
on the organisational structure of the PES.

Working across the PES ecosystem: employers, 
stakeholders and Private Employment Services 

PES continue to play a critical role in connecting 
employers  with  qualified  workers,  especially  in 
times of labour and skills shortages. Methods that 
have  been  newly  introduced  or  more  extensive-
ly used by PES to reach out to employers include 
the use of new digital tools which have increased 
use  of  services  by  employers,  direct  outreach  to 
more  employers,  mobile  teams,  group  activities 
with  employers,  organisation  of  direct  meetings 
with  employers  and  jobseekers,  and  increased 
organisation of career days. Some PES have also 
established implementation plans to contact em-
ployers and several PES intensified their consulta-
tions with employers’ and workers’ organisations, 
and with broader groups of stakeholders such as 
chambers  and  sectoral  associations.  Intensified 
cooperation relate mostly to skills needs for PES. 
More specifically, cooperation has been intensified 
around specific skills areas, such as digital skills, 
IT  skills,  engineering  competencies  or  specific  fi-
nance-based knowledge.

Finally, PES have also reinforced cooperation with 
other agencies to implement ALMPs and services, 
with  some  signing  cooperation  agreements  with 
public  agencies  around  innovation  and  entrepre-
neurship (for example). As a general trend, coop-
eration  between  public  and  private  employment 
services  has  been  evolving  over  the  past  years, 
with several PES having broadened and reinforced 
recently their cooperations with private job portals 
and private employment agencies, or planning to 
do so.

PES Governance on green transitions 

On the subject of PES Governance in the context 
of  green  transitions,  48%  of  PES  have  adopted 
internal  sustainability  strategies  that  cover  vari-
ous aspects, such as improving building efficiency, 
reducing waste, and promoting sustainable mobil-
ity. Furthermore, 34% of PES have set specific ob-
jectives or key performance indicators to monitor 
and reduce environmental impacts, while 41% re-
port that their sustainability plans have influenced 
their digitalisation processes. 

Financing and Human Resources

Finally,  changing  unemployment  rates,  the  end-
ing of some EU funds programming cycle 2014-
2020,  and  the  internal  reorganisation  have  had 
some effects on PES staff deployments. While PES 
staff  numbers  did  not  change  significantly  last 
year,  the  turnover  rate  increased  to  9%  across 
PES.  The  share  of  front-line  staff  also  remained 
stable, and hybrid and remote work arrangements 
are becoming more prominent. 

The  main  spending  areas  for  PES  remain  Active 
Labour  Market  Policies  (ALMPs)  and  staff  costs, 
which  indicate  a  continued  priority  on  delivering 
quality  services  and  assisting  jobseekers  in  their 
search, training and transition between jobs. The 
ESF/ESF+  is  one  of  the  EU  funding  used  more 
widely by PES (25 PES). In 2022, ESF/ESF+ spend-
ing  totalled  EUR  546  million  across  the  12  PES 
providing  data  on  ESF/ESF+  budget  spending  for 
that year. 

2023PES Annual Report22

2. Addressing the complex challenges faced by PES

TLDs  have  proven  to  be  particularly  important  in  terms  of  designing  and  organising  process 
changes, and in gaining inspiration from good practices from the Estonian and French peer PES. 
As a follow-up activity of the TLD on Systematic Quality Management, the Greek PES trained a 
number of its staff members in the use and importance of the Common Assessment Framework, 
which the PES will implement as a Total Quality Management tool. The Greek PES is also developing 
new  customer-satisfaction  surveys  to  enrich  and  strengthen  various  dimensions  of  its  quality 
management system.

From  the  TLD  on  Change  Management,  the  Greek  PES  focused  on  establishing  a  systematic 
approach to identifying, prioritising and implementing new innovation ideas collected from staff at 
all organisational levels. This further and consciously promotes a bottom-up approach to service 
design and delivery.  

 Source: short impact survey 2023, Greek PES

Related Network activities

•  The PES Network Stakeholder Conference ‘Empowering the Workforce, Bridging the Skills Gap 
held on 30 March 2023 brought together a wide range of stakeholders who PES engage with 
on the subject of skills. Collaboration has been synthesized into a paper published on the PES 
Knowledge Centre25.

•  The  forthcoming  annual  PES  capacity  report  2023  sheds  good  light  on  trends  in  PES 
governance and the PES ecosystem. It examines how PES respond to labour market changes, 
organisational challenges, and policy priorities, such as the reinforced Youth Guarantee, the 
green transition, digitalisation, and skills development26. 

25 

PES Network Skills Conference Highlights Urgency for Collaborative Action to Bridge Skills Gap - Employment, Social Affairs & Inclusion - Euro-
pean Commission (europa.eu) 

26 

To be published in 2024. 

2023PES Annual Report23

3. Benchmarking to support PES modernisation

3.  Benchmarking to support PES 
modernisation 

Benchlearning is central to the PES Network’s ac-
tivities: it is the process of creating a systematic 
link between benchmarking (both quantitative and 
qualitative) and mutual learning activities such as 
those described above. The ultimate aim is to sup-
port each PES in improving performance through 
comparisons and learning from peers. In order to 
achieve this, a structured analysis of PES perfor-
mance  and  its  drivers  is  conducted  through  the 
analysis of performance data (quantitative bench-

marking) and an on-going process of PES self-re-
view,  peer  review  and  expert  review  (qualitative 
benchmarking)27.

2023 marked a pivotal year for the Network. Fol-
lowing the closured of the 3rd cycle of qualitative 
assessments in February, a new methodology was 
developed  throughout  the  year,  paving  the  way 
for the launch of the 4th cycle of Benchlearning in 
January 2024. 

Closing the third cycle of Benchlearning

The 3rd Benchlearning (BL) cycle came to an end in early 2023, with the last assessment taking 
place in Italy. Initiated in 2020, it faced a temporary pause due to the outbreak of the COVID-19 
pandemic. It was then adapted to an online format. The engagement and willingness of PES to 
participate in these online ‘visits’ were commendable, with approximately 70 assessors from 27 
PES involved in 31 PES assessments. 

3.1. Lessons from the third cycle of 

Benchlearning28

Results from the 3rd BL cycle have shown signifi-
cant progress across the eight categories of per-
formance enablers that constitute the ‘Excellence 
model’, although to a varying extent across differ-
ent sections. 

Overall, the PES made significant progress in are-
as such as increasingly aligning KPIs with strategic 

objectives, enhancing communication and interac-
tion channels with clients, and intensified relations 
with employers and stakeholders. However, results 
suggest that there is potential for improvement in 
tailoring services to vulnerable groups and estab-
lishing  effective  and  comprehensive  partnership 
strategies.  Additionally,  continued  efforts  in  staff 
empowerment and resource allocation appear vi-
tal for the overall effectiveness of PES.

More specifically, the following main findings can 
be  highlighted  in  each  section  of  the  excellence 
model:

27 

28 

Each year PES are asked to provide data on twenty indicators (identified in the Decision establishing the PES Network) that are

A synthesis was published on the main outcomes of the third cycle of PES Benchlearning

2023PES Annual Report24

3. Benchmarking to support PES modernisation

Section A - Strategic Performance Management: Progress has been observed in this section 
as more PES agencies align their KPIs with their strategic objectives. The reduction in the number of 
KPIs and a shift towards focusing on outcomes rather than outputs are noteworthy developments. 
Furthermore, regional and local offices are playing a more active role in the strategic alignment 
process.  10  out  of  31  PES  are  assessed  as  well-developed  or  better  in  this  section,  indicating 
significant progress.

Section B - Design of Operational Processes: Notable progress has been achieved in Section 
B, particularly in the area of providing customers with different and flexible ways to interact with 
PES, known as channel management. 8 out of 31 PES have been assessed as well-developed in this 
section, highlighting the strides made in enhancing customer interaction methods.

Section C - Sustainable Activation and Management of Transitions: In Section C, a trend 
has emerged towards providing services that are more tailored to the specific needs of vulnerable 
groups.  PES  are  diversifying  and  customizing  their  services  to  address  the  requirements  of 
customers who face challenges in finding employment. However, there is room for improvement, 
as only 6 out of 31 PES are considered well-developed, with none assessed as mature in this area.

Section D - Relations with Employers: Section D has seen increased efforts by PES to respond 
effectively to the challenge of connecting the growing demand for skilled labour with jobseekers who 
have significant distance from the labour market. As a result, many PES have revised and improved 
their matching systems, leading to better matching quality. 10 out of 31 PES are considered well-
developed or mature in this section.

Section  E  -  Evidence-based  Design  and  Implementation  of  PES  Services:  A  significant 
observation  in  Section  E  is  the  extensive  use  of  pilot  projects  by  nearly  all  PES  in  the  network 
to  test  new  services  and  ALMPs  before  their  broader  implementation.  This  approach  reflects  a 
commitment to evidence-based decision-making. 9 PES are considered at least well-developed in 
Section E.

Section  F  -  Management  of  Partnerships  and  Stakeholders:  In  Section  F,  all  PES  have 
established functioning partnerships at various levels and with relevant stakeholders. However, a 
notable gap is the absence of a genuine partnership strategy, which starts with mapping potential 
partners based on their contributions to PES objectives. Only 7 PES are considered well-developed, 
with none assessed as mature in this section.

Section  G  -  Allocation  of  PES  Resources:  The  assessment  teams  gathered  rich  evidence 
of  highly  motivated  and  engaged  staff  in  all  PES  agencies  within  Section  G.  Staff  engagement 
remained high even during the challenges posed by the COVID-19 pandemic, playing a crucial role 
in maintaining service continuity, individualised customer support, and benefit payments. only 9 out 
of 31 PES are considered at least well-developed in this section.

Section  I  -  Crisis  Management:  Section  I  indicates  that  some  PES  managements  have 
strengthened leadership and empowerment approaches during the COVID-19 pandemic. This has 
contributed to a trustful working atmosphere, efficient use of staff competencies, and high staff 
commitment.  Almost  half  of  the  31  assessed  PES  (14  PES)  are  at  least  well-developed  in  this 
section, making it the section with the highest overall maturity.

The 3rd cycle has also highlighted several persisting 
challenges. Among the most relevant is the need 
for improved matching of employers with a suita-
bly skilled workforce, particularly in the context of 
labour shortages, highlighting the importance of a 
strategic and systematic approach in relations with 
employers (Section D). 

The  increased  digital  service  delivery  brought  on 
by the COVID-19 pandemic presents the challenge 
of  ensuring  widespread  organisational  adoption 
and  maintaining  trust  with  customers  and  part-
ners.  This  comes  with  a  focus  on  providing  sup-
port for jobseekers who may lack digital resources 
or skills, as reflected in the challenges associated 
with Channel Management (Section B). 

2023PES Annual Report25

3. Benchmarking to support PES modernisation

Additionally, human resource management poses 
a considerable challenge. Many PES are grappling 
with an ageing workforce and the need to develop 
strategies  for  workforce  replacement  while  pre-
serving  institutional  knowledge,  highlighting  the 
significance of HR management (Section G). 

These  challenges  underscore  the  importance  of 
strategic planning, cooperation, and innovation to 
address evolving demands within PES. In this con-

text, it is worth noting that the gap between more 
developed  and  developable  PES  overall  remains 
significant. Reducing this gap will remain high on 
the agenda over the next BL cycle. 

Annex 2 provides a complete overview of the or-
ganisational maturity of PES based on 3rd BL cycle 
assessments.

3.2. Preparing the 4th Benchlearning 
cycle: a participatory process

2023 marked a pivotal year for the PES Network as it undertook a major endeavour: the revision 
and update of the Benchlearning methodology in the transition from the 3rd to the 4th BL cycle 
of assessment visits. 

This journey was marked by genuine collaboration across the Network. The process, which began 
with a Joint PES Assessors’ Annual Workshop, also involved a dedicated Task Force of 10 PES 
(from  Austria,  Belgium-VDAB,  Cyprus,  Estonia,  Germany,  France,  Lithuania,  the  Netherlands, 
Spain, and Sweden) and inputs from across the PES Network. The result was the adoption of a 
new Manual in October 2023, securing the successful launch of the 4th Benchlearning cycle in 
Lithuania in January 2024. 

This  revised  methodology  reflects  the  adaptability  of  the  Benchlearning  methodology  to  the 
changing role of PES in evolving labour market needs and environments, as well as a concrete 
commitment to flexibility, user-friendliness and effectiveness. The united efforts of the members of 
the PES Network are poised to pave the way for a promising future in bolstering the performance 
of PES for the benefit of customers. 

77 assessors from 30 PES will take part in 4th cycle: a workshop was organised in Brussels in 
October to prepare them. 

Figure  7  Revised  BL  Manual  at  a  glance:  operationalising  the  Excellence  Model  for  the  4th  cycle

Source: PES Network Benchlearning Manual

2023PES Annual Report26

3. Benchmarking to support PES modernisation

3.3. Overview of main changes 
from the third to the fourth 
Benchlearning cycle methodology 

The  revision  aimed  to  maintain  continuity  with 
the 3rd cycle model, while ensuring that enabler 
descriptions are updated in line with emerging la-
bour market trends and challenges faced by PES. 
Key changes between the 3rd and 4th cycle of the 
BL methodology can be summarised as follows: 
 •

Ensuring  consistency  while  introducing 
targeted updates: the updated methodology 
maintains the core methodological framework 
of  the  3rd  cycle.  Several  adaptations  and 
updates were however introduced in response 
to evolving labour market trends and changing 
PES  environments  on  digital  transformation 
and labour and skills shortages. 

 •

 •

Enhanced  flexibility  for  PES:  to  cater 
for  the  diverse  institutional  setups  and  the 
preferences of the host PES, the 4th BL cycle 
introduces more flexibility in the assessment 
process  to  customise  the  agenda  for  the 
external visit, on the format of the assessment 
and an optional visit to a specialised unit.  

Accommodating  the  diversity  of  PES 
models: building on the lessons learnt during 

the 3rd cycle, recognising the diversity of PES 
models in terms of their governance structure 
and degree of (de-)centralisation, innovations 
have  been 
include  a 
introduced  which 
“mandate  disclaimer”  (it  ensures  that,  if  a 
PES does not have the mandate to act upon 
elements of a particular enabler, it will not be 
scored,  although  recommendations  can  still 
be provided).

Stronger emphasis on assessing the PES 
ecosystem:  the  updated  Section  F  shifts 
the  perspective  from  bilateral  partnership 
approaches towards multi-actor partnerships. 
The  revised  approach  also  provides  for  the 
option  to  involve  important  partners  in  the 
assessment session for Section F.

Setting the stage for a new PES corporate 
culture: two new enablers were introduced in 
Section G that cover HR strategy, management 
corporate culture as well as empowerment of 
staff.

 •

 •

Besides, the updated excellence model also inte-
grates concepts of the 2020 version of the Euro-
pean Foundation for Quality Management (EFQM) 
model that are strategically relevant. The number 
of sections and enablers of the excellence model 
was reduced to improve user-friendliness for PES 
practitioners and assessors. 

2023PES Annual Report27

4. Conclusion

4.  Conclusions 

In 2023, the PES Network achieved several mile-
stones. The successful conclusion of the 3rd cycle 
of Benchlearning highlighted the commitment to 
continuous  improvement  and  excellence  among 
the  European  PES.  Thematic  Learning  Dialogues 
further  strengthened  cooperation  and  mutual 
learning  within  the  Network.  A  collaborative  ap-
proach to revising the Benchlearning methodology 
ensured that it remains a dynamic and adaptable 
framework.  

Looking to 2024 and beyond, assisting vulnerable 
workers  and  jobseekers  will  remain  a  key  chal-
lenge for the PES Network, as well as identifying, 
activating and supporting those ‘hidden’ from the 
labour market. By looking at these groups, the PES 
Network will continue to respond to the contextual 
pressures in the European labour markets, which 
intensify  the  challenges  faced  by  those  who  are 
already in a vulnerable position. 

In 2024, it will be important for PES to stay pre-
pared and build resilience for ongoing and future 
challenges  ahead.  The  2024  PES  Network  Work 
Programme is therefore well-focused on ensuring 
good  quality  labour  market  information  for  bet-
ter service delivery, measuring current and future 
labour shortages, supporting the most vulnerable 
groups outside and between work transitions, and 
carrying  out  streamlined  Benchlearning  assess-

ment  visits  that  centre  on  the  most  impactful 
indicators  key  to  improving  the  performance  of 
PES. Mutual Learning activities will focus on skills 
(green skills and anticipating future skills needs) 
and  supporting  those  furthest  from  the  labour 
market, including early inventions as preventative 
actions.  Digitalisation  and  PES  partnerships  will 
remain key topics as well, with the continuation of 
the PES Digitalisation Working Group and a survey 
on  the  role  of  PES  partnerships  with  the  private 
employment services.  

The focus will now shift towards delivering the 4th 
cycle  of  assessment  visits.  However,  2024  also 
marks  the  Network’s  10th  anniversary  since  its 
launch in 2014. This will be an opportunity to take 
stock  of  the  progress  to  date  and  the  strategic 
outlook  for  the  next  10  years  for  European  PES. 
This  could  be  especially  topical  since  the  2024 
European  Parliament  elections  and  the  new  Eu-
ropean Commission will set new political priorities 
for the Union. 

Planning  the  future  of  the  Network  of  European 
PES, questions are likely to include: is it going to 
be business as usual for the PES? How will the use 
of  AI  or  other  mega  trends  affect  the  core  busi-
ness case for the PES? How ready are the PES for 
any fundamental shifts? 

2023PES Annual Report28

Annex 1 – Work programme

Annexes

29

Annexes

Annex 2 - Distribution of organisational maturity by 
PES, 3rd BL cycle

PES

Austria

Belgium - ACTIRIS

Belgium - FOREM

Belgium - VDAB

Bulgaria

Croatia

Cyprus

Czech Republic

Denmark

Estonia

Finland

France

Germany

Greece

Hungary

Iceland

Ireland

Italy

Latvia

Lithuania

Luxembourg

Malta

Netherlands

Norway

Poland

Portugal

Romania

Slovakia

Slovenia

Spain

Sweden

Section A

Mature

Developing

Section B

Section C

Section D

Section E

Section F

Section G

Section I

Overall

Well-developed

Well-developed

Well-developed

Well-developed

Developing

Well-developed

Well-developed

Well-developed

Developable

Developing

Developing

Developing

Developing

Developing

Well-developed

Developing

Well-developed

Well-developed

Developable

Well-developed

Well-developed

Developing

Mature

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Developing

Well-developed

Well-developed

Well-developed

Developing

Developing

Developable

Developable

Developing

Developing

Developable

Developable

Well-developed

Developing

Developing

Developing

Developable

Developable

Developing

Developing

Developing

Developable

Developable

Developing

Developing

Developing

Developable

Developable

Mature

Well-developed

Developing

Developing

Developing

Developing

Developable

Developing

Developing

Developable

Developable

Well-developed

Developing

Well-developed

Developing

Developable

Developable

Developing

Developable

Developable

Developing

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Developable

Developing

Developing

Well-developed

Developing

Developable

Developing

Developing

Developing

Well-developed

Well-developed

Well-developed

Mature

Well-developed

Well-developed

Well-developed

Mature

Mature

Well-developed

Developing

Well-developed

Well-developed

Developing

Well-developed

Well-developed

Well-developed

Developable

Developable

Developable

Developable

Developable

Developable

Developing

Developing

Developable

Developable

Developable

Developing

Developing

Developable

Developing

Developable

Developable

Developable

Developable

Developing

Developable

Developable

Developing

Developing

Developing

Developing

Developing

Developing

Developable

Developable

Developable

Developing

Developing

Developable

Developable

Developable

Developing

Developable

Developable

Developable

Developable

Developable

Developable

Developable

Developing

Developable

Developable

Developable

Well-developed

Developing

Developable

 Developable

Developable

Developable

Well-developed

Developing

Developable

Developing

Well-developed

Developable

Developing

Developable

Developing

Developing

Developable

Developing

Developing

Developing

Developable

Developable

Developing

Developing

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Developing

Developing

Well-developed

Well-developed

Well-developed

Well-developed

Well-developed

Developable

Developing

Developable

Well-developed

Developing

Well-developed

Well-developed

Developable

Developing

Developing

Developable

Developing

Developing

Developing

Developable

Developable

Developing

Developable

Developing

Developing

Developing

Developable

Developable

Developable

Developable

Developing

Developable

Developable

Developable

Developable

Developing

Developing

Developing

Developing

Developable

Developable

Developable

Developable

Developable

Developable

Developable

Developable

Developable

Developing

Developable

Developing

Developable

Developing

Developable

Developable

Developable

Well-developed

Developing

Developing

Developable

Well-developed

Well-developed

Developing

Developable

Developable

Developable

Developable

Developable

Developing

Developing

Developing

Developing

Developing

Well-developed

Developing

Well-developed

Developing

 
30

Annexes

Annex 3 – Outputs from 2023 
activities 

A1. Outputs from Mutual Learning 

market (Internal Webinar hosted by FR)

The PES Knowledge Centre presented the knowl-
edge outputs of the PES Network in an easy-to ac-
cess repository. Innovative and inspiring practices 
from the work of PES across Europe are regularly 
shared  though  the  dedicated  PES  Practice  Data-
base.

Working Groups, Mutual Assistance Projects, 
Thematic Review Workshops, Seminars and 
Webinars 

• 

• 

• 

Skilled migration from third countries (Inter-
nal Webinar hosted by DE)

Implementation development of an integrat-
ed  quality  management  system  (Mutual  As-
sistance to PES LV)

Digital matching  tools (Mutual Assistance  to 
PES LU)

Reports, Toolkits and position papers

•  Monitoring  and  supporting  employment  of 
displaced Ukrainians (Working Group, chaired 
by NO)

• 

PES support to greening of the labour market 
(Thematic Paper)

•  New  forms  of  skills  assessment  and  valida-

Digitalisation (Working Group, chaired by NL)

tion (Thematic Paper)

Communication  (Working  Group,  chaired  by 
AT, final meeting)

• 

Customer-centred service delivery in a digital 
age (Toolkit)

• 

• 

• 

• 

• 

Labour  Market  Taxonomy  (Working  Group, 
chaired by SE)

Evidence-Based  Service  Design 
Group, chaired by DK)

(Working 

Empowering the workforce, bridging the skills 
gap (Conference)

•  New forms of skills assessments and valida-

tion (Seminar)

• 

• 

• 

• 

• 

Attracting skilled talent from third countries: 
the role of PES (Seminar)

Greening of the Labour market (Thematic Re-
view Workshop hosted by DE)

PES digital tools for the successful integration 
of vulnerable groups (Thematic Review Work-
shop hosted by HR)

PES reaching people farther from the labour 
market (Webinar)

Use of ChatGPT or other AI solutions for PES 
customer  services  (Internal  Webinar  hosted 
by AT)

• 

Support  for  those  furthest  from  the  labour 

•  New forms of active labour market policy pro-

grammes (Study)

• 

• 

• 

• 

• 

Use of AI in a PES context (Study to be final-
ised in 2024)

Support  to  persons  displaced  from  Ukraine 
(Survey Report)

PES  staff  management  in  the  ‘new  normal’ 
post COVID-19’ (Survey Report)

Annual PES Capacity Report

Empowering the workforce, bridging the skills 
gap (Conference Report)

• 

• 

• 

• 

PES Network Annual Report 

Key  Considerations  on  ‘Labour  market 
integration  of  displaced  people  and  Ref-
ugees’

PES  Opinion  Paper  ‘A  contribution  to  the 
European Year of Skills’

Synthesis  Report  on  lessons  learnt  from 
the 3rd cycle of Benchlearning 

2023PES Annual Report31

Annexes

PES Practices published in the PES Practice Repository by December 2023:

• 

• 

• 

• 

• 

Cooperation with employers – a holistic approach to service delivery, Norway

Employer ‘Growth Predictor’ IT tool, Netherlands

Flexible job-related adult and continuous training (Job-VEU-Model), Denmark

Slovenia’s Employer Engagement Strategy, Slovenia

‘CareerFlow’  and  ‘Doorstart’  -  avoiding  job  immobility  by  proactive  work-to-work  transitions,  Bel-
gium-VDAB

Information on the PES Network communication activities

News and Events

The PES Network regularly publishes news items to highlight key messages from its work. At regular inter-
vals, a summary of the latest news and events is disseminated through the PES Network newsletter, along 
with other updates on important labour market topics for PES EU-wide. In 2023, the Network presented:

• 

• 

• 

21 News items

Events pages for 16 network events

4 newsletters: February, April, July, December

PESPod

The PES Network continued to produce its podcast (‘PESPod’), which started in 2021. In 2023, six new 
PESPod episodes were produced and released on the PES Knowledge Centre:

•  Why skills are the new gold (Podcast with the Latvian PES)

• 

• 

• 

• 

• 

Strategies in PES staff management in a ‘new normal’ of hybrid working and blended service (Podcast 
with an expert)

PES Network responses to Ukraine – a story of European solidarity (Podcast with the previous Chair 
of the European PES Network and a Director of the Polish PES)

PES Network Benchlearning – a brilliant endeavour (Podcast with the Croatian PES and the PES Net-
work Secretariat)

Caroline Mancel - Leading the way for the PES Network (Podcast with the new Chair of the European 
PES Network)

PES Network Contribution to the European Year of Skills in 2023 (Podcast with the Spiros Protopsaltis 
First Vice Chair of the European PES Network)

Videos

Four videos were produced and released in 2023: 

• 

• 

• 

• 

PES Network Stakeholder Conference 2023 (Link here: EC AV PORTAL (europa.eu))

Green Skills Training in Ireland 

The ‘Upskill’ programme in Portugal

The ‘Relocate’ project in Sweden

2023PES Annual Report32

Annexes

A2. Outputs from Benchlearning

1. Six Thematic Learning Dialogues (TLDs) in 2023

TLD on Employers’ Strategy (24-25 January 2023): PES representatives from Croatia, Estonia, Portu-
gal, Romania and Spain were hosted by the Lithuanian PES Užimtumo tarnyba. They were also supported 
by peer PES from Slovenia, the Belgian Le FOREM and VDAB, and Finland. The host PES presented the 
Lithuanian PES business model, the employers’ strategy and its implementation, the recruitment team for 
high-quality positions, the expectations from employers’ perspective;

TLD  on  KPIs  focused  on  outcome  (15-16  February  2023):  The  Dutch  PES  UWV  hosted  PES  rep-
resentatives from Czechia, Cyprus, Ireland, and Latvia to address how they work internally on KPIs fo-
cused on outcome. The host PES addressed UWV’s own governance, strategy and implications on perfor-
mance management, performance management framework and system for PES, KPIs on outcome and 
evidence-based services, as well as a local perspective on KPIs on outcome;

TLD on operating in a decentralised model (21-22 February 2023): In this TLD hosted by the Danish 
PES Arbejdsmarkedsstyrelsen, PES representatives from Finland, France, Italy, Poland, and Spain gathered 
discussed  common challenges of a decentralised model for PES. The meeting included presentations on 
different good practices  by each participant;

TLD on Systematic Quality Management (28 February -1 March 2023): The Austrian PES AMS host-
ed PES representatives from Ireland, Luxembourg, Slovakia and Slovenia. The TLD featured presentations 
on the Quality Management in AMS, based on the EFQM model, and on ensuring high-quality counselling 
through the professional development of counsellors, as demonstrated by the Estonian PES;

TLD on Digital Change Strategy (14-15 March 2023): The TLD involved PES representatives from 
Lithuania, Malta, Norway, and Spain, with support from the hosting German PES Bundesagentur für Arbeit 
(BA).  The  TLD  included  presentations  on  digitalisation  and  transformation  in  the  BA,  adopting  digital 
change management as a mindset, and an external perspective on digital change management;

TLD on Change Management Strategy (21-22 March 2023): This TLD was hosted by the French PES, 
Pôle emploi, which presented their strategy and approach to change management and innovation – includ-
ing aspects of governance, human resources, change management and innovation at the regional level, 
and the case of the incubator for digital solutions Nov’Us.

2023PES Annual Report33

Annexes

2. Benchlearning: 4th Cycle Excellence Model with 7 sections and 25 enablers

Section A: Strategic performance management

A1 – Establishing the fundamentals of performance management by target-setting

A2 – Translation of targets into key performance indicators and measurement

A3 – Following up performance measurement

A4 – Making use of the results of performance management

Section B: Design of operational processes

B1 – Process definition and standardisation

B2 – Information and communications technology (ICT) and data management

B3 – Quality management

B4 – Channel management and blended services

Section C: Sustainable activation and management of transitions

C1 – Outreach, profiling and segmentation

C2 – Individual action plan and ALMP measures

C3 – Early intervention to avoid unemployment

C4 – Implementation of services.

Section D: Relations with employers

D1 – Employer strategy 

D2 – Specialised unit for employer services

D3 – Matching vacancies and jobseekers.

Section E: Evidence-based service design and change management

E1 – Evidence-based service design and implementation

E2 – Pilot projects

E3 – Management of change and innovation

Section F: Management of ecosystem

F1 – Identification and structuring of relevant stakeholders

F2 – Partnership building and managing

F3 – Management of partnerships with service providers

Section G: PES resources and organisational resilience

G1 – HR strategy, management and corporate culture

G2 – Empowerment of staff

G3 – Organisational resilience and business continuity

G4 – Budget allocation and use

2023PES Annual Report34

Annexes

Annex 4 – Figures from the PES 
Capacity Report 2023

Figure A 4.1 Number of PES experiencing an increase or a decrease in staff (in FTE) between 2014 
and 2023

Source: PES Capacity Questionnaire 2015-2023, Q2.1 Please provide details on the number of people employed (in FTE numbers) and 
Q2.2 Please provide details in the Table below on changes in PES staff as indicated and comment on the reasons for any changes, 
in 2022-2023, n=31 PES

Figure A 4.2 Annual percentage change in the number of staff between April 2021 and April 2023

Source: PES Capacity Questionnaires 2022 and 2023, Part I, Q2.1 Please provide details on the number of people employed (in FTE 
numbers) in 2023, n=27.

Note: No or partial information available for IT, LI, and SE. BG as reported increase of staff in the questionnaire but the comparison 
with data from last year shows a decrease.

2023PES Annual Report35

Annexes

Figure A 4.3 Staff turnover in PES, 2021-2022 and 2022-2023

Source: PES Capacity Questionnaires, 2022 and 2023, Part I, n=27. 

Note: No or partial information available for HU, IT, LI and SE. 

2023PES Annual Report36