Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States
Date: 2025-06-04
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

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   EUROPEAN COMMISSION  Brussels, 4.6.2025  COM(2025) 230 final 2025/0154 (NLE)  Proposal for a COUNCIL DECISION on guidelines for the employment policies of the Member States  
 
EXPLANATORY MEMORANDUM 

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

While the broad economic policy guidelines are valid on an ongoing basis, the employment 
guidelines  need  to  be  drawn  up  each  year.  Both  sets  of  guidelines  were  adopted  together 
(‘integrated package’) in 2010 and underpinned the Europe 2020 strategy. Revised integrated 
guidelines were  adopted in  2015. For the employment guidelines, a practice has developed 
since 2018 of alternating between a full update (covering both recitals and guidelines proper) 
every  other  year,  and  a  ‘reconduction’  (updating  the  recitals  while  keeping  the  guidelines 
proper  unchanged)  in  the  intermediate  year.  Following  a  reconduction  in  2023,  when  the 
recitals  were  adjusted  to  reflect  the  new  EU  headline  and  national  targets  on  employment, 
skills and poverty reduction and recent initiatives, a full update was carried out in 2024. The 
update entailed adding references to the 2030 national targets (in addition to the EU headline 
targets),  putting  greater  focus  on  the  impact  of  technological  developments  and  AI,  giving 
more  emphasis  to  labour  and  skills  shortages,  and  placing  increased  attention  on  legal 
migration from third countries in addition to harnessing talent within the EU. As in previous 
years,  the  2024  text  also  reflected  recent  policy  initiatives  of  particular  relevance,  such  as 
platform work, the social economy and affordable housing. This year, the recitals are being 
updated to bring in more elements related to (i) changes in the geopolitical context (including 
trade policy tensions); (ii) the Union of Skills initiative; (iii) competitiveness in light of the 
Competitiveness Compass; and (iv) upward social convergence following the second year of 
implementation  of  the  Social  Convergence  Framework,  now  fully  embedded  in  the  EU 
economic governance framework. 

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

The revised “Employment Guidelines” are the following:  

Guideline 5: Boosting the demand for labour  

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

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

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

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2025/0154 (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 inclusive, resilient, future-oriented and 
responsive  to  economic  change,  with  a  view  to  achieving  the  objectives  of  full 
employment and social progress, balanced economic 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  to  coordinate  their  action  in  that 
respect within the Council.  

(2) 

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 social exclusion, and a high 
level of education, training and protection of human health as laid down in Article 9 of 
the Treaty on the Functioning of the European Union (TFEU). 

(3) 

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 
‘Employment Guidelines’) set out in the Annex to Council Decision (EU) 2024/3134 

1 
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3 

Opinion of tbd DATE 2025 (not yet published in the Official Journal). 
Opinion of tbd DATE 2025 (not yet published in the Official Journal). 
Opinion of tbd DATE 2025 (not yet published in the Official Journal). 

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(4) 

(4), together with the broad guidelines for the economic policies of the Member States 
and  of  the  Union  set  out  in  Council  Recommendation  (EU) 2015/1184  (5),  form  the 
Integrated  Guidelines.  The  Employment  Guidelines  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  constitutes  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,  including  the  need  to 
strengthen competitiveness, uncertainty about global trade policies, as well as effects 
related  to  Russia’s  war  of  aggression  against  Ukraine  and  the  broader  geopolitical 
context. 

In order to enhance economic and social progress and upward convergence, to support 
the green and digital transitions, to strengthen the Union industrial base, productivity 
and competitiveness, to face the demographic challenges, and to achieve inclusive and 
resilient labour markets in the Union, Member States should address labour and skills 
shortages  and  promote  quality  jobs  as  well  as  quality  and  inclusive  education  and 
training  for  all,  in  line  with  the  Union  of  Skills  (6),  with  a  particular  focus  on 
improving  basic  skills,  based  on  the  Action  Plan  on  Basic  Skills,  as  well  as  labour 
including  digital  and  green  skills,  especially  among 
market  relevant  skills, 
disadvantaged students and adults. Member States should also boost STEM (science, 
technology,  engineering  and  mathematics)  education  and  training,  in  line  with  the 
STEM  Education  Strategic  Plan,  strengthen  future-oriented  vocational  education  and 
training,  and  lifelong  upskilling  and  reskilling,  and  striving  for  inclusive  education 
systems,  as  well  as  ensure  effective  active  labour  market  policies  and  improved 
working conditions and career opportunities, while respecting the role and autonomy 
of  the  social  partners.  As  stated  in  the  Recommendation  on  learning  for  the  green 
transition  and  sustainable  development,  integrating  the  education  and  training 
dimension systematically into other policies related to the green transition in a lifelong 
perspective  can  support  the  implementation  of  those  policies.  Strengthening  these 
elements  is  of  particular  relevance  for  the  less  developed,  remote  and  outermost 
regions  of  the  Union,  where  the  needs  are  the  greatest.  Shortages  can  be  further 
addressed by improving fair intra-EU mobility for workers and learners and attracting 
and  retaining  talent  from  outside  the  Union.  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 
should be validated and recognised. 

(5) 

The  Employment  Guidelines  are  consistent  with  the  new  economic  governance 
framework  of  the  Union,  which  entered  into  force  on  30  April  2024  (7),  and  with 

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Council Decision (EU) 2024/3134 of 2 December 2024 on guidelines for the employment policies of 
the Member States (OJ L, 2024/3134, 13.12.2024). 
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). 
Communication of the  Commission of  5 March 2025, entitled ‘The Union of  Skills’ (COM(2025) 90 
final). 
Regulation  (EU)  2024/1263  of  the  European  Parliament  and  of  the  Council  of  29  April  2024  on  the 
effective  coordination  of  economic  policies  and  on  multilateral  budgetary  surveillance  and  repealing 
30.4.2024, 
1466/97 
Council 
ELI: http://data.europa.eu/eli/reg/2024/1263/oj). 

2024/1263, 

Regulation 

(EC) 

(OJ 

No 

L, 

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initiatives, 

legislation  and  various  Union 

(17),  Council  Resolution  of  26  February 2021 

existing  Union 
including  Council 
Recommendations  of  14 June 2021  (8),  29 November  2021  (9),  5  April  2022  (10),  16 
June  2022  (11),  28 November  2022  (12),  8 December 2022  (13),  30  January  2023 (14), 
12  June  2023  (15)  and  27  November  2023  (16),  Commission  Recommendation  (EU) 
(18),  Commission 
2021/402 
Communications of 9 December 2021 on building an economy that works for people: 
an action plan for the social economy, of 30 September 2020 on the Digital Education 
Action  Plan  2021-2027,  of  3 March 2021  on  Union  of  Equality:  Strategy  for  the 
Rights  of  Persons  with  Disabilities  2021-2030,  of  7 September 2022  on  a  European 
Care Strategy, of 1 February 2023 on A  Green  Deal  Industrial  Plan  for  the Net-Zero 
Age, of 25 January 2023 on strengthening social  dialogue in  the European Union, of 
11  October  2023  demographic  change  in  Europe:  a  toolbox  for  action,  of 
28 September 2022  on  Better  assessing  the  distributional  impact  of  Member  States’ 
policies, of 20 March 2024 on labour  and skills  shortages in  the EU: an  action plan, 
and  of  5  March  2025  on  the  Union  of  Skills,  Decisions  (EU)  2021/2316  (19)  and 
(EU) 2023/936  (20)  of  the  European  Parliament  and  of  the  Council,  and  Directives 
(EU) 2022/2041  (21),  (EU)  2022/2381  (22),  (EU) 2023/970  (23)  and  (EU) 2024/2831 
(24) of the European Parliament and of the Council. 

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14 

15 

16 

17 

18 

19 

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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  learning  for  the  green  transition  and  sustainable 
development  (OJ  C  243,  27.6.2022,  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) 
and Council Recommendation of 16 June 2022 on ensuring a fair transition towards climate neutrality 
(OJ C 243, 27.6.2022, p. 35). 
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). 
Council Recommendation of 12 June 2023 on strengthening social dialogue in the European Union (OJ 
C, C/2023/1389, 6.12.2023, ELI: http://data.europa.eu/eli/C/2023/1389/oj). 
Council Recommendation of 27 November 2023 on developing social economy framework conditions 
(OJ C, C/2023/1344, 29.11.2023, ELI: http://data.europa.eu/eli/C/2023/1344/oj). 
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). 
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). 

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(6) 

(7) 

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The  European  Semester  combines  various  instruments  in  an  overarching  framework 
for integrated multilateral coordination and surveillance of economic and employment 
policies within the Union. The Semester is aligned with the Competitiveness Compass 
which provides a framework to boost competitiveness by closing the innovation gap, 
decarbonising our economy, reducing excessive dependencies and increasing security, 
and sets out horizontal enablers that include skills, quality jobs and social fairness. The 
Semester integrates the principles of the European Pillar of Social Rights, proclaimed 
by the European Parliament, the Council and the Commission in November 2017 (25) 
(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. The European Semester also supports the delivery 
of  the  Sustainable  Development  Goals  set  out  by  the  United  Nations.  The  economic 
and employment policies of the Union and the Member States should go hand in hand 
with  the Union’s  fair transition  to  a climate-neutral,  environmentally  sustainable and 
digital economy, improve competitiveness and productivity, ensure adequate working 
conditions,  foster  innovation,  promote  democracy  at  work,  social  dialogue,  social 
justice,  equal  opportunities  and  upward  socio-economic  convergence, 
tackle 
inequalities and regional disparities, and fight poverty and social exclusion. 

including  artificial 

Climate  change  and  other  environment-related  challenges,  the  need  to  ensure  a  fair 
green  transition,  energy  independence  and  enhanced  competitiveness  of  net-zero 
industries,  technological  sovereignty,  and  the  need  to  increase  defence  spending  and 
secure  Europe’s  open  strategic  autonomy,  as  well  as  demographic  changes  and  the 
development  of  digitalisation, 
intelligence,  algorithmic 
management,  the  platform  economy  and  teleworking  are  deeply  transforming 
economies and societies in the Union. 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. That 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  Union  regions,  a  renewed  commitment  to  appropriately 
sequenced reforms  and investments  that enhance sustainable  and inclusive economic 
growth,  skills,  the  promotion  of  quality  jobs,  productivity,  competitiveness,  and  fair 
working  conditions,  social  and 
territorial  cohesion,  upward  socio-economic 
convergence,  resilience  and  the  exercise  of  fiscal  responsibility.  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 

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). 
Directive  (EU)  2024/2831  of  the  European  Parliament  and  of  the  Council  of 23 October 2024  on 
improving  working 
11.11.2024, 
platform  work 
ELI: http://data.europa.eu/eli/dir/2024/2831/oj). 
Interinstitutional Proclamation on the European Pillar of Social Rights (OJ C 428, 13.12.2017, p. 10). 

2024/2831, 

conditions 

(OJ  L, 

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Parliament  and  of  the  Council  (26)  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(27) and the European Regional Development 
Fund governed by Regulation (EU) 2021/1058 of the European Parliament and of the 
Council  (28),  as  well  as  the  Social  Climate  Fund  established  by  Regulation  (EU) 
2023/955  of the European Parliament and of the Council  (29) and the Just Transition 
Fund  established  by  Regulation  (EU)  2021/1056  of  the  European  Parliament  and  of 
the Council (30). Policy action should combine supply-side and demand-side measures, 
while taking into account the economic, environmental, employment and social impact 
of such measures. 

The European Pillar of Social  Rights sets out twenty principles and rights to support 
well-functioning and fair labour markets and welfare systems, structured around three 
categories:  equal  opportunities  and  access  to  the  labour  market,  fair  working 
conditions,  and  social  protection  and  inclusion.  Those  principles  and  rights  give 
strategic  direction  to  the  Union,  ensuring  that  the  transitions  to  climate-neutrality, 
environmental sustainability and 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  guidance  to 
monitor  the  employment,  skills  and  social  performance  of  Member  States,  including 
upward  social  convergence  in  the  Union,  within  the  European  Semester,  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 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  5  million  children)  (the  ‘Union  headline 
targets  for  2030’)  and 
complementary sub-targets, as well as a revised Social Scoreboard.  

As recognised by the Heads of State or Government at the Porto Social Summit on 8 
May 2021, 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.  The  Heads  of  State  or  Government  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 

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) 2023/955 of the European Parliament and of the Council of 10 May 2023 establishing 
a Social Climate Fund and amending Regulation (EU) 2021/1060 (OJ L 130, 16.5.2023, p. 1-51). 
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). 

(8) 

(9) 

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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.  

(10)  The  Union  headline  targets  for  2030  were  welcomed  by  the  Heads  of  State  or 
Government at the Porto Social Summit and by the June 2021 European Council. They 
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 Member State, should constitute an adequate 
contribution  to  the  achievement  of  the  Union  headline  targets  for  2030.  The 
implementation  of  the  European  Pillar  of  Social  Rights  and  progress  on  the  Union 
headline  and  national  targets  for  2030  is  monitored  in  the  Joint  Employment  Report 
adopted by the Council in March 2025 (the ‘Joint Employment Report 2025’), and is 
integrated into the monitoring tools for the European Semester. Since its 2024 edition, 
the  Joint  Employment  Report  contains  a  ‘first-stage  country  analysis’  on  potential 
risks  to  upward  social  convergence  in  line  with  the  Social  Convergence  Framework 
that  identifies  Member  States  which  experience  potential  risks  to  be  examined  in  a 
deeper  ‘second-stage  analysis’.  In  the  Joint  Employment  Report  2025,  10  Member 
States were initially identified, and the conclusion of the deeper analysis showed that 
overall challenges were confirmed for three of them. 

(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  (31)  and  extended  by  Council  Implementing 
Decision (EU) 2024/1836 (32), offers assistance in the Union to people displaced from 
Ukraine  and  allows  them  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 war in terms of preserving employment 
and production. 

to 

31 

32 

EN 

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). 
Council  Implementing  Decision  (EU)  2024/1836 of  25  June  2024  extending  temporary  protection  as 
(OJ  L,  2024/1836,  3.7.2024, 
introduced  by 
ELI: http://data.europa.eu/eli/dec_impl/20234/1836/oj). 

Implementing  Decision 

(EU)  2022/382 

6 

  EN 

 
(12)  Reforms  to  the  labour  market,  including  national  wage-setting  mechanisms,  should 
observe national practices of social dialogue and collective bargaining, as well as the 
autonomy  of  the  social  partners,  with  a  view  to  providing  fair  wages  that  enable  a 
decent  standard  of  living,  including  in  retirement,  sustainable  growth  and  upward 
socio-economic convergence. Such reforms should allow for a broad consideration of 
socio-economic  factors,  including  improvements  in  sustainability,  competitiveness, 
innovation, the promotion of quality jobs, fair working conditions, democracy at work, 
gender  equality,  prevention  and  reduction  of  in-work  poverty,  quality  education, 
training, and skills, public health, social protection and inclusion, demographic change 
and the promotion of supplementary pensions, 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 and in the Pact for 
European Social Dialogue signed in March 2025. 

(13)  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 economies and societies in the Union more sustainable and resilient 
and  better  prepared  for  the  green  and  digital  transitions.  Russia’s  war  of  aggression 
against  Ukraine  has  further  aggravated  pre-existing  socio-economic  challenges 
including  energy  poverty  through  higher  energy  prices,  while  uncertainties  in  global 
trade and more widely from the geo-political context endanger growth. Member States 
and  the  Union  should  continue  to  ensure  that  the  social,  employment  and  economic 
impacts are mitigated and that transitions are socially fair and just, also in light of the 
fact  that  increased  open  strategic  autonomy  and  an  accelerated  green  transition  will 
help  reduce  the  dependence  on  imports  of  energy  and  other  strategic  products  and 
technologies.  Strengthening  resilience  and  pursuing  an  inclusive  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. 

(14)  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,  flexible  retirement  paths,  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  transformations,  as 
highlighted inter alia in the 2024 La Hulpe Declaration on the Future of the European 
Pillar of Social Rights (33). Adequate working conditions and occupational health and 
safety, including both the physical and mental health of workers, should be ensured. 

(15)  Discrimination  in  all  its  forms  should  be  tackled,  gender  equality  ensured  and  the 
employment  of  groups  that  are  under-represented  in  the  labour  market  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 
Recommendations  of 8 November 2019 (34) and  of 30 January 2023 (35).  In addition, 

33 
34 

35 

Signed by the Kingdom of Belgium on behalf of 25 Member States. 
Council Recommendation of 8 November 2019 on access to social protection for workers and the self-
employed (OJ C 387, 15.11.2019, p. 1). 
Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion 
(OJ C 41, 3.2.2023, p. 1). 

EN 

7 

  EN 

 
barriers  to  inclusive  and  future-oriented  high-quality  education  and  training,  lifelong 
learning  and  labour-market  participation  should  be  removed.  Member  States  should 
invest  in  early  childhood  education  and  care,  in  line  with  the  European  Child 
Guarantee  and  the  Recommendation  on  the  ‘Barcelona  targets  for 2030’,  in  making 
vocational  education  and  training  more  attractive  and  inclusive,  in  line  with  the 
Council Recommendation of 24 November 2020 (36), and in digital and green skills, in 
line with the Digital Education Action Plan and the Recommendations on learning for 
the green transition and sustainable development and on Pathways to School Success. 
Access  to  affordable  and  adequate  housing,  including  through  social  housing,  is  a 
necessary condition for ensuring equal opportunities. Homelessness should be tackled, 
specifically with prevention measures and by promoting access to permanent housing 
and the provision of enabling support services. Timely and equal access to affordable 
high-quality long-term care, in line with the Council Recommendation of 8 December 
2022  (37),  and  healthcare  services,  including  prevention  and  health  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,  which  invited  Member  States  to  set  up 
employment  and  adult  learning  targets  for  persons  with  disabilities.  The  EU  Roma 
Strategic  Framework  (38)  highlights  the  capacity  within  the  marginalised  Roma 
communities to reduce labour and skills shortages and aims to cut the employment gap 
between  Roma  and  the  general  population  by  at  least  half.  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 working conditions, health and safety at work 
and effective access to adequate social protection for workers and the self-employed. 
Member States, in collaboration with the social partners, should ensure that new forms 
of  work  organisation  translate  into  quality  jobs  and  adequate  healthy  and  safe 
workplaces  and  working  conditions,  as  well  as work-life  balance,  active  and  healthy 
ageing,  maintaining  established  labour  and  social  rights,  and  strengthening  the 
European social model. 

(16)  The  Integrated  Guidelines  should  serve  as  a  basis  for  the  country-specific 
recommendations that the Council addresses to Member States. 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 
Social Climate Fund, the Just Transition Fund and InvestEU established by Regulation 
(EU)  2021/523  of  the  European Parliament  and  of  the  Council  (39),  as  well  as  the 
Technical Support Instrument, to foster quality employment and social investments, to 

36 

37 

38 

39 

Council  Recommendation  of  24 November  2020  on  vocational  education  and  training  (VET)  for 
sustainable competitiveness, social fairness and resilience (OJ C 417, 2.12.2020, 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). 
Communication  of  the  Commission  of  7  October  2020,  entitled  ‘A  Union  of  Equality:  EU Roma 
strategic  framework  for  equality,  inclusion  and  participation’  (COM(2020)  620  final),  and  Council 
Recommendation of 12 March 2021 on Roma equality, inclusion and participation (OJ C 93, 19.3.2021, 
p. 1). 
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). 

EN 

8 

  EN 

 
fight  poverty  and  social  exclusion,  to  combat  discrimination,  to  ensure  accessibility 
and  inclusion,  and  to  promote  upskilling  and  reskilling  opportunities  for  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, green and competitive economy. The amendments 
introduced  by  Regulation  (EU)  2024/795  establishing  a  Strategic  Technologies  for 
Europe  Platform  (STEP)  and  the  recent  Commission  Communication  on  the 
modernised Cohesion policy: Mid-term review aim at aligning the support provided to 
new  strategic  priorities,  including  to  address  the  shortage  of  skills  in  certain  sectors, 
such  as  for  the  development  and  manufacturing  of  critical  technologies,  defence 
industry and sectors affected by decarbonisation and the green and digital transitions. 
Member  States  should  also  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 (40) to support workers made redundant as a 
result of major restructuring events, such  as socio-economic 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. 

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

(18)  The Social Protection Committee was consulted, 

HAS ADOPTED THIS DECISION:  

Article 1 

The Guidelines for the employment policies of the Member States, as set out in the Annex to 
Decision  (EU)  2024/3134,  are  maintained  for  2025  and  shall  be  taken  into  account  by  the 
Member States in their employment policies and reform programmes.  

This Decision is addressed to the Member States. 

Done at Brussels, 

Article 2 

For the Council 
The President 

40 

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 

9 

  EN