Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States
Date: 2024-06-24
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: EU Member State, EU employment policy, equal treatment, job creation, labour market, marginalisation, poverty, social dialogue, social integration, working conditions

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 24.6.2024  COM(2024) 599 final/2 2024/0599 (NLE)  This document corrects COM(2024)599 final of 19.6.2024 Concerns the EN version only Minor editing adjustment of footnote 30 which do not affect the substance of the text The text shall read as follows:  Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States  
 
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

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

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

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

The revised “Employment Guidelines” are the following:  

Guideline 5: Boosting the demand for labour  

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

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

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

EN 

1 

  EN 

 
  
2024/0599 (NLE) 

Proposal for a 

COUNCIL DECISION 

on guidelines for the employment policies of the Member States 

THE COUNCIL OF THE EUROPEAN UNION, 

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

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

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

Whereas: 

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

(2) 

(3) 

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

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

1 
2 
3 

Opinion of tbd DATE 2024 (not yet published in the Official Journal). 
Opinion of tbd DATE 2024 (not yet published in the Official Journal). 
Opinion of tbd DATE 2024 (not yet published in the Official Journal). 

EN 

0 

  EN 

 
 
(4) 

Council  Recommendation  (EU)  2015/1184  (4),  form  the  Integrated  Guidelines.  They 
are to guide policy implementation in the Member States and in the Union, reflecting 
the  interdependence  between  the  Member  States.  The  resulting  set  of  coordinated 
Union  and  national  policies  and  reforms  are  to  constitute  an  appropriate  overall 
sustainable  economic,  employment  and  social  policy  mix,  which  should  achieve 
positive spill-over effects for labour markets and society at large, strengthen economic 
and social resilience and effectively respond to medium- and longer-term challenges as 
well as the impacts of crises such as the COVID-19 pandemic and the increased cost 
of living linked to Russia’s war of aggression against Ukraine. 

In  order  to  enhance  economic  and  social  progress  and  upward  convergence,  support 
the  green  and  digital  transitions,  strengthen  the  Union  industrial  base  and  achieve 
inclusive,  competitive  and  resilient  labour  markets  in  the  Union,  Member  States 
should address labour and skills shortages and promote quality and inclusive education 
and  training,  with  a  particular  focus  on  improving  basic  skills,  especially  among 
disadvantaged  students,  and  on  STEM  (science,  technology,  enginerring  and 
mathematisc) in school and higher education, future-oriented vocational education and 
training,  and  lifelong  upskilling  and  reskilling,  as  well  as  effective  active  labour 
market policies and improved working conditions and career opportunities. This is of 
particular relevance for the  less developed, remote  and outermost  regions of the EU, 
where the needs are the greatest. Shortages can be further addressed by improving fair 
intra-EU mobility for workers and learners and attracting talent from outside the EU. 
In  addition,  the  links  between  the  education  and  training  systems  and  the  labour 
market  should  be  strengthened  and  skills,  knowledge  and  competences  acquired 
through non-formal and informal learning recognised. 

(5) 

The  Guidelines  are  consistent  with  the  new  EU  economic  governance  framework, 
which  entered  into  force  on  30  April  2024,  existing  Union  legislation  and  various 
Union  initiatives,  including  Council  Recommendations  of  14 June  2021  (5),  29 
November  2021  (6),  5  April  2022  (7),  16  June  2022  (8),  28 November  2022  (9),  8 
December 2022 (10), 30 January 2023 (11), 12 June 2023 (12) and 27 November 2023 

4 

5 

6 

7 

8 

9 

10 

11 

Council  Recommendation  (EU) 2015/1184  of 14 July 2015  on  broad  guidelines  for  the  economic 
policies of the Member States and of the European Union (OJ L 192, 18.7.2015, p. 27). 
Council Recommendation (EU)  2021/1004 of 14 June 2021 establishing a European Child Guarantee 
(OJ L 223, 22.6.2021, p. 14). 
Council Recommendation of 29 November 2021 on blended learning approaches for high-quality and 
inclusive primary and secondary education (OJ C 504, 14.12.2021, p. 21). 
Council Recommendation of 5 April 2022 on building bridges for effective European higher education 
cooperation (OJ C 160, 13.4.2022, p.1).) 
Council  Recommendation  of  16  June  2022  on  a  European  approach  to  micro-credentials  for  lifelong 
learning and employability (OJ C 243, 27.6.2022, p. 10), Council Recommendation of 16 June 2022 on 
individual learning accounts (OJ C 243, 27.6.2022, p. 26), Council Recommendation of 16 June 2022 
on  ensuring  a  fair  transition  towards  climate  neutrality  (OJ  C  243,  27.6.2022,  p.  35)  and  Council 
Recommendation of 16 June 2022 on learning for the green transition and sustainable development (OJ 
C 243, 27.6.2022, p. 1). 
Council  Recommendation  of  28  November  2022  on  Pathways  to  School  Success  and  replacing  the 
Council  Recommendation  of  28  June  2011  on  policies  to  reduce  early  school  leaving  (OJ  C  469, 
9.12.2022, p. 1). 
Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care (OJ 
C  476,  15.12.2022,  p.  1)  and  Council  Recommendation  of  8  December  2022  on  early  childhood 
education and care: the Barcelona targets for 2030 (OJ C 484, 20.12.2022, p. 1).  
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion 
(OJ C 41, 3.2.2023, p.1). 

EN 

1 

  EN 

 
 
(13),  Commission  Recommendation  (EU)  2021/402)  (14),  Council  Resolution  of 
26 February  2021(15),  Commission  Communications  on  building  an  economy  that 
works for people: an action plan for the social economy (16), on the Digital Education 
Action Plan 2021-2027 (17), on the Strategy for the Rights of Persons with Disabilities 
2021-2030  (18),  on  the  Disability  Employment  Package  (19),  on  a  European  Care 
Strategy  (20),  on  A  Green  Deal  Industrial  Plan  for  the  Net-Zero  Age  (21),  on 
strengthening  social  dialogue  in  the  European  Union  (22),  on  Better  assessing  the 
distributional impact of Member States’ policies (23),and on labour and skills shortages 
in the EU: an action plan (24), Decisions (EU) 2021/2316 (25) and (EU) 2023/936 (26) 
of the European Parliament and of the Council, Directives (EU) 2022/2041 (27), (EU) 
2022/2381 (28) and EU 2023/970 (29) of the European Parliament and of the Council, 
and  the  Commission  proposal  for  a  Directive  of  the  European  Parliament  and  of  the 
Council of 9 December 2021 on improving working conditions in platform work (30)  

The European Semester combines different instruments in an overarching framework 
for integrated multilateral coordination and surveillance of economic and employment 
policies within the  Union. While pursuing environmental sustainability, productivity, 
fairness and macroeconomic stability, the European Semester integrates the principles 
of the European Pillar of Social Rights and its monitoring tool, the Social Scoreboard, 
also allowing an analysis of risks and challenges to upward social convergence in the 
Union, and provides for strong engagement with social partners, civil society and other 
stakeholders. It also supports the delivery of the Sustainable Development Goals. The 
economic  and  employment  policies  of  the  Union  and  the  Member  States  should  go 

Council Recommendation of 12 June 2023 on strengthening social dialogue in the European Union (OJ 
C/2023/1389, 6.12.2023). 
Council recommendation of 27 November 2023 on developing social economy framework conditions 
(OJ C/2023/1344, 29.11.2023). 
Commission  Recommendation  (EU) 2021/402  of 4 March 2021  on  an  effective  active  support  to 
employment following the COVID-19 crisis (EASE) (OJ L 80, 8.3.2021, p. 1). 
Council  Resolution  on  a  strategic  framework  for  European  cooperation  in  education  and  training 
towards the European Education Area and beyond (2021-2030) (OJ C 66, 26.2.2021, p. 1). 
COM(2021) 778 final.  
COM(2020) 624 final. 
COM(2021) 101 final.  
Disability  Employment  Package  to  improve  labour  market  outcomes  for  persons  with  disabilities  - 
Employment, Social Affairs & Inclusion - European Commission (europa.eu) 
COM(2022) 440 final. 
COM(2023) 62 final. 
COM(2023) 38 and 40 final.  
COM(2022) 494 final. 
COM(2024) 131 final. 
Decision  (EU)  2021/2316  of the  European  Parliament  and of  the  Council of 22  December  2021  on a 
European Year of Youth (2022) (OJ L 462, 28.12.2021, p. 1). 
Decision (EU) 2023/936 of the European Parliament and of the Council of 10 May 2023 on a European 
Year of Skills (OJ L 125, 11.5.2023, p. 1). 
Directive  (EU)  2022/2041  of  the  European  Parliament  and  of  the  Council  of  19  October  2022  on 
adequate minimum wages in the European Union (OJ L 275, 25.10.2022, p. 33). 
Directive  of  the  European  Parliament  and  of  the  Council  (EU)  2022/2381  of  23  November  2022  on 
improving  the  gender  balance  among  directors  of  listed  companies  and  related  measures  (OJ  L  315, 
7.12.2022, p. 44). 
Directive (EU) 2023/970 of the European Parliament and of the Council of 10 May 2023 to strengthen 
the application of the principle of equal pay for equal work or work of equal value between men and 
women through pay transparency and enforcement mechanisms (OJ L 132, 17.5.2023, p. 21). 
COM (2021) 762 final 

(6) 

12 

13 

14 

15 

16 
17 
18 
19 

20 
21 
22 
23 
24 
25 

26 

27 

28 

29 

30 

EN 

2 

  EN 

 
 
(7) 

hand  in  hand  with  the  Union’s  fair  transition  to  a  climate-neutral,  environmentally 
sustainable  and  digital  economy,  improve  competitiveness,  ensure  adequate  working 
conditions,  foster  innovation,  promote  social  justice,  equal  opportunities  and  upward 
socio-economic convergence, and tackle inequalities and regional disparities. 

transition,  energy 

Climate  change  and  other  environment-related  challenges,  the  need  to  ensure  a  fair 
green 
independence,  enhanced  competitiveness  of  net-zero 
industries  and  the  need  to  secure  Europe’s  open  strategic  autonomy,  as  well  as  the 
development  of  digitalisation,  artificial  intelligence  and  the  platform  economy,  an 
increase  in  teleworking  and  demographic  change  are  deeply  transforming  Union 
economies  and  societies.  The  Union  and  its  Member  States  are  to  work  together  to 
effectively  and  proactively  address  such  structural  developments  and  adapt  existing 
systems  as  needed,  recognising  the  close  interdependence  of  the  Member  States’ 
economies  and  labour  markets,  and  related  policies.  This  requires  coordinated, 
ambitious  and  effective  policy  action  at  both  Union  and  national  levels  while 
recognising  the  role  of  social  partners,  in  accordance  with  the  TFEU  and  with  the 
Union’s provisions on economic governance, taking into account the European Pillar 
of  Social  Rights.  Such  policy  action  should  encompass  a  boost  in  sustainable 
investment across all EU regions, a renewed commitment to appropriately sequenced 
reforms and investments that enhance sustainable and inclusive economic growth, the 
creation  of  quality  jobs,  productivity,  adequate  working  conditions,  social  and 
territorial  cohesion,  upward  socio-economic  convergence,  resilience  and  the  exercise 
of fiscal responsibility.  

As shown in the Council Recommendation of 16 June 2022 on learning for the green 
transition  and  sustainable  development,  integrating  the  education  and  training 
dimension  systematically  into  other  policies  related  to  the  green  transition  and 
sustainable  development  in  a  lifelong  perspective  can  support  the  implementation  of 
those policies. Support should be provided from existing Union funding programmes, 
and in particular the Recovery and Resilience Facility established by Regulation (EU) 
2021/241 of the European Parliament and of the Council (31) and the cohesion policy 
funds,  including  the  European  Social  Fund  Plus  established  by  Regulation  (EU) 
2021/1057  of  the  European  Parliament  and  of  the  Council  (32)  and  the  European 
Regional Development Fund governed by Regulation (EU) 2021/1058 of the European 
Parliament and of the Council (33), as well as the Just Transition Fund established by 
Regulation (EU) 2021/1056 of the European Parliament and of the Council (34). Policy 
action  should  combine  supply-side  and  demand-side  measures,  while  taking  into 
account  the  economic,  environmental,  employment  and  social  impact  of  such 
measures. 

(8) 

The  European  Pillar  of  Social  Rights,  proclaimed  by  the  European  Parliament,  the 
Council  and  the  Commission  in  November  2017  (35),  sets  out  twenty  principles  and 

31 

32 

33 

34 

35 

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

EN 

3 

  EN 

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

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

(9) 

(10)  The  Union  headline  targets  for  2030  on  employment  (that  at  least  78 %  of  the 
population aged 20-64 should be in employment), skills (that at least 60 % of all adults 
should  participate  in  training  every  year)  and  poverty  reduction  (that  at  least  15 
million  fewer  people  should  be  at  risk  of  poverty  or  social  exclusion,  including  five 
million children), welcomed by the Heads of State or Government at the Porto Social 
Summit on 8 May 2021 and by the June 2021 European Council, will help, together 
with the Social Scoreboard, in monitoring progress towards the implementation of the 
principles  of  the  European  Pillar  of  Social  Rights  as  part  of  the  policy  coordination 
framework in the European Semester. In addition, the Porto Social Summit called on 
Member  States  to  set  ambitious  national  targets  which,  taking  due  account  of  the 
starting  position  of  each  country,  should  constitute  an  adequate  contribution  to  the 
achievement  of  the  Union  headline  targets  for  2030.  Between  September  2021  and 
June  2022,  at  the  invitation  of  the  Commission,  Member  States  submitted  their 
national targets. At the June 2022 Employment, Social Policy, Health and Consumer 
Affairs Council (EPSCO), Ministers stressed the importance of closely following the 
progress achieved towards the implementation of the European Pillar of Social Rights 
and  the  EU  headline  targets  for  2030.  Against  that  background,  progress  on  those 
national targets is monitored in the Joint Employment Report 2024, and is integrated 
in the monitoring tools for the European Semester. In addition, the Joint Employment 
Report  2024  contained  a  ‘first-stage  country  analysis’  on  potential  risks  to  upward 

EN 

4 

  EN 

 
social convergence, identifying seven countries as experiencing potential risks, which 
resulted in a deeper ‘second-stage analysis’ for these seven Member States (36). 

(11)  Following the Russian invasion of Ukraine, the European Council, in its conclusions 
of 24 February 2022, condemned Russia’s actions, which seek to undermine European 
and global security and stability, and expressed solidarity  with the Ukrainian people, 
underlining  Russia’s  violation  of  international  law  and  the  principles  of  the  United 
Nations  Charter.  In  the  current  context,  temporary  protection,  as  granted  by  Council 
Implementing  Decision  (EU)  2022/382  and  extended  by  the  Council  Implementing 
Decision (EU) 2023/2409 (37), offers quick and effective assistance in Union countries 
to  displaced  people  fleeing  Russia’s  war  of  aggression  against  Ukraine  and  allows 
such  displaced  people  to  enjoy  minimum  rights  across  the  Union  that  offer  an 
adequate level of protection. By participating in the Union’s labour markets, persons 
displaced  from  Ukraine  can  continue  to  contribute  to  strengthening  the  Union’s 
economy  and  help  support  their  country  and  people  at  home.  In  the  future,  the 
experience  and  skills  acquired  can  contribute 
rebuilding  Ukraine.  For 
unaccompanied children and teenagers, temporary protection confers the right to legal 
guardianship  and  access  to  childhood  education  and  care.  Member  States  should 
continue  to  involve  social  partners  in  the  design,  implementation  and  evaluation  of 
policy measures  that  aim  to address  the employment and skills  challenges,  including 
the  recognition  of  qualifications  of  people  displaced  from  Ukraine.  Social  partners 
play  a  key  role  in  mitigating  the  impact  of  that  the  war  in  terms  of  preserving 
employment and production. 

to 

(12)  Reforms  to  the  labour  market,  including  national  wage-setting  mechanisms,  should 
respect national practices of social dialogue and the autonomy of the social partners, 
with a view to providing fair wages that enable a decent standard of living, sustainable 
growth  and  upward  socio-economic  convergence.  Such  reforms  should  allow  for  a 
in 
broad  consideration  of  socio-economic 
sustainability,  competitiveness,  innovation,  the  creation  of  quality  jobs,  working 
conditions,  in-work  poverty,  education,  training  and  skills,  public  health,  social 
protection and inclusion, as well as real incomes. The importance of social dialogue in 
tackling  challenges  in  the  world  of  work,  including  labour  and  skills  shortages,  was 
reaffirmed at the 2024 Val Duchesse Summit.  

improvements 

including 

factors, 

The Recovery and Resilience Facility and other Union funds are supporting Member 
States  in  implementing  reforms  and  investments  that  are  in  line  with  the  Union’s 
priorities,  making  Union  economies  and  societies  more  sustainable  and  resilient  and 
better prepared for the green and digital transitions in the changing context following 
the  COVID-19  pandemic.  Russia’s  war  of  aggression  against  Ukraine  has  further 
aggravated  pre-existing  socio-economic  challenges,  as  higher  energy  prices 
particularly  affected  low-income  households.  Member  States  and  the  Union  should 
continue  to  ensure  that  the  social,  employment  and  economic  impacts  are  mitigated 

36 

37 

Resulting  in  a  Commission  Staff  Working  Document  (https://ec.europa.eu/transparency/documents-
register/detail?ref=SWD(2024)132&lang=en),  drawing  on  the  Key  Messages  of  the  EPSCO  advisory 
bodies on a possible framework to strengthen the assessment and monitoring of risks to upward social 
convergence in the Union, which informed the debate regarding the Semester at the June 2023 EPSCO. 
Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass 
influx of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and 
having  the  effect  of  introducing  temporary  protection  (OJ L 71, 4.3.2022, p. 1)  and  the  Council 
Implementing  Decision  (EU  2023/2409)  of  19  October  2023  extending  temporary  protection  as 
introduced by Implementing Decision (EU) 2022/382. 

EN 

5 

  EN 

 
 
and  that  transitions  are  socially  fair  and  just,  also  in  light  of  the  fact  that  increased 
open  strategic  autonomy  and  an  accelerated  green  transition  will  help  reduce  the 
dependence  on  imports  of  energy  and  other  strategic  products  and  technologies,  in 
particular from Russia. Strengthening resilience and pursuing an inclusive and resilient 
society  in  which  people  are  protected  and  empowered  to  anticipate  and  manage 
change,  and  in  which  they  can  actively  participate  in  society  and  the  economy,  are 
essential.  

A coherent set of active labour market policies, consisting of temporary and targeted 
hiring  and  transition  incentives,  skills  policies  including  learning  for  the  green 
transition  and  sustainable  development  and  targeted,  effective  and  adaptable 
employment services, is needed to support labour market transitions and make full use 
of  untapped  labour  market  potential,  also  in  line  with  the  active  inclusion  approach 
and in light of the green and digital transformationsas highlighted inter alia in the La 
Hulpe Declaration on the Future of the European Pillar of Social Rights (38). Adequate 
working  conditions,  including  occupational  health  and  safety,  and  both  the  physical 
and mental health of workers should be ensured. 

lifelong 

training, 

learning  and 

future-oriented  education, 

(13)  Discrimination  in  all  its  forms  should  be  tackled,  gender  equality  ensured  and 
employment of young people supported. Equal access and opportunities for all should 
be  ensured  and  poverty  and  social  exclusion,  in  particular  that  of  children,  persons 
with disabilities and the Roma people, should be reduced, in particular by ensuring an 
effective  functioning  of  labour  markets  and  adequate  and  inclusive  social  protection 
systems,  as  set  out  in  the  Council  Recommendation  of  8  November  2019  and  the 
Council  Recommendation  of  30  January  2023  (39).  In  addition,  barriers  to  inclusive 
and 
labour-market 
participation should be removed and Member States should invest in early childhood 
education  and  care,  in  line  with  the  European  Child  Guarantee  and  the  Council 
Recommendation  on  early  childhood  education  and  care  (the  ‘Barcelona  targets  for 
2030’),  in  making  vocational  education  and  training  more  attractive  and  inclusive  in 
line  with  the  Council  Recommendation  on  vocational  education  and  training,  and  in 
digital and green skills, in line with the Digital Education Action Plan and the Council 
Recommendation on learning for the green transition and sustainable development and 
the Council Recommendation on Pathways for School  Success. Access  to  affordable 
housing, including through social housing, is a necessary condition for ensuring equal 
opportunities.  Timely  and  equal  access  to  affordable  high-quality  long-term  care,  in 
line with the Council Recommendation on access to affordable high-quality long-term 
care,  and  healthcare  services,  including  prevention  and  healthcare  promotion,  are 
particularly relevant, in light of potential future health risks and in a context of ageing 
societies.  

The potential of persons with disabilities to contribute to economic growth and social 
development  should  be  further  realised,  in  line  with  the  Strategy  for  the  Rights  of 
Persons with Disabilities (40) which invited Member States to set up employment and 

38 

39 

40 

La  Hulpe  Declaration  on  the  Future  of  the  European  Pillar  of  Social  Rights.  La  Hulpe,  Belgium,  16 
April 2024. 
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion 
(OJ C 41, 3.2.2023, p.1). 
COM(2021) 101 final.  

EN 

6 

  EN 

 
 
adult learning targets for persons with disabilities. The EU Roma Strategic Framework 
highlights  the  capacity  within  the  marginalised  Roma  communities  to  reduce  labour 
and skills shortages and aims to cut the employment gap between Roma and general 
population by at least half (41). New technologies and evolving workplaces throughout 
the  Union  allow  for  more  flexible  working  arrangements  as  well  as  improved 
productivity  and  work-life  balance,  whilst  contributing  to  the  Union’s  green 
commitments.  Those  developments  also  bring  new  challenges  to  labour  markets, 
affecting  the  working  conditions,  health  and  safety  at  work  and  effective  access  to 
adequate social protection for workers and the self-employed. Member States should 
ensure that new forms of work organisation translate into quality  jobs and adequates 
healthy  and  safe  workplaces  and  working  conditions  as  well  as  work-life  balance, 
maintaining  established  labour  and  social  rights  and  strengthening  Europe’s  social 
model. 

(14)  The 

Integrated  Guidelines  should  serve  as  a  basis 

for  country-specific 
recommendations that the Council may address to Member States. Member States are 
to  make  full  use  of  their  REACT-EU  resources  established  by  Regulation  (EU) 
2020/2221  of  the  European  Parliament  and  of  the  Council  (42),  which  reinforces  the 
2014-2020  cohesion  policy  funds  and  the  Fund  for  European  Aid  to  the  Most 
Deprived  (FEAD)  until  2023.  Due  to  the  current  Ukrainian  crisis,  Regulation  (EU) 
2020/2221  has  been  further  complemented  by  Regulation  (EU)  2022/562  of  the 
European  Parliament  and  of  the  Council  (43),  as  well  as  by  a  further  amendment  to 
Regulation  (EU)  2021/1060  of  the  European  Parliament  and  of  the  Council  (44) 
concerning increased pre-financing for REACT-EU, and by a new unit cost in order to 
help  accelerate  the  integration  of  people  leaving  Ukraine  and  entering  the  Union  as 
provided  for  in  Regulation  (EU)  2022/613  of  the  European  Parliament  and  of  the 
Council (45).  

In addition, for the 2021-2027 programming period, Member States should make full 
use of the European Social Fund Plus, the European Regional Development Fund, the 
Recovery and Resilience Facility and other Union funds, including the Just Transition 
Fund  as  well  as  InvestEU  established  by  Regulation  (EU)  2021/523  of  the 

41 

42 

43 

44 

45 

EU Roma strategic framework for equality, inclusion and participation for 2020-2030, COM(2020) 620 
final. 
Regulation  (EU) 2020/2221  of  the  European Parliament  and  of  the  Council  of 23 December 2020 
amending  Regulation  (EU)  No 1303/2013  as  regards  additional  resources  and  implementing 
arrangements to provide assistance for fostering crisis repair in the context of the COVID-19 pandemic 
and  its  social  consequences  and  for  preparing  a  green,  digital  and  resilient  recovery  of  the  economy 
(REACT-EU) (OJ L 437, 28.12.2020, p. 30). 
Regulation  (EU) 2022/562  of  the  European  Parliament  and  of  the  Council of 6  April  2022  amending 
regulations (EU) No 1303/2013 and (EU) No 223/2014 as regards Cohesion’s Action for Refugees in 
Europe (CARE) (OJ L 109, 8.4.2022, p. 1). 
Regulation  (EU)  2021/1060  of  the  European  Parliament  and  of  the  Council  of  24  June  2021  laying 
down  common  provisions  on  the  European  Regional  Development  Fund,  the  European  Social  Fund 
Plus,  the  Cohesion  Fund,  the  Just  Transition  Fund  and  the  European  Maritime,  Fisheries  and 
Aquaculture Fund and financial rules for those and for the Asylum, Migration and Integration Fund, the 
Internal  Security  Fund  and  the  Instrument  for  Financial  Support  for  Border  Management  and  Visa 
Policy (OJ L 231, 30.6.2021, p. 159). 
Regulation (EU) 2022/613 of the European Parliament and of the Council of 12 April 2022 amending 
Regulations  (EU)  No  1303/2013  and  (EU)  No  223/2014  as  regards  increased  pre-financing  from 
REACT-EU resources and the establishment of a unit cost (OJ L 115, 13.4.2022, p. 38). 

EN 

7 

  EN 

 
 
European Parliament  and  of  the  Council  (46),  as  well  as  the  Technical  Support 
Instrument  (TSI),  to  foster  quality  employment  and  social  investments,  to  fight 
poverty  and  social  exclusion,  to  combat  discrimination,  to  ensure  accessibility  and 
inclusion,  and  to  promote  upskilling  and  reskilling  opportunities  of  the  workforce, 
lifelong  learning  and  high-quality  education  and  training  for  all,  including  digital 
literacy and skills in order to empower citizens with the knowledge and qualifications 
required for a digital and green economy. Member States are also to make full use of 
the  European  Globalisation  Adjustment  Fund  for  Displaced  Workers  established  by 
Regulation (EU) 2021/691  of  the  European Parliament  and  of  the  Council  (47)  to 
support  workers  made  redundant  as  a  result  of  major  restructuring  events,  such  as 
socioeconomic  transformations  that  are  the  result  of  global  trends  and  technological 
and environmental changes. While the Integrated Guidelines are addressed to Member 
States  and  the  Union,  they  should  be  implemented  in  partnership  with  all  national, 
regional  and  local  authorities,  closely  involving  parliaments,  as  well  as  the  social 
partners and representatives of civil society. 

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

(16)  The Social Protection Committee was consulted, 

46 

47 

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

EN 

8 

  EN 

 
 
HAS ADOPTED THIS DECISION:  

Article 1 

The  guidelines  for  the  employment  policies  of  the  Member  States  (the  ‘Guidelines’),  as  set 
out  in  the  Annex,  are  hereby  adopted.  The  Guidelines  shall  form  part  of  the  Integrated 
Guidelines.  

Article 2 

The Member States shall  take the Guidelines into account  in  their employment policies and 
reform programmes, which shall be reported in accordance with Article 148(3) TFEU. 

This Decision is addressed to the Member States. 

Done at Brussels, 

Article 3 

For the Council 
The President 

EN 

9 

  EN