Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the European Social Fund as part of the National and Regional Partnership Plan set out in Regulation (EU) […] [NRPPlan] establishing conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034
Date: 2025-07-16
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: continuing education, disabled person, employment policy, equal treatment, labour market, poverty, social integration, social security, vocational training, youth employment

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 16.7.2025  COM(2025) 558 final 2025/0239 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the European Social Fund as part of the National and Regional Partnership Plan set out in Regulation (EU) […]  [NRPPlan] establishing conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034      
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

This  proposal  establishes  the European Social  Fund (ESF), the main instrument  to  invest in 
Europe’s  people,  their  future  and  preparedness.  The  proposal  reflects  the  current  social  and 
economic context and provides a concrete response to the call from the European public for a 
more social Europe and for greater investments in people in the European Union. The ESF is 
the  EU’s  main  instrument  to  promote  and  strengthen  social  cohesion  in  Europe’s  societies. 
This proposal accompanies the proposal for the National and Regional Partnership regulation. 
Both regulations are mutually reinforcing and complementary. The ESF, as part of cohesion 
policy,  will  be  implemented  as  one  element  of  the  overarching  [National  and  Regional 
Partnership Plans] and complements the [NRP Regulation] on ESF specific policy elements. 
The ESF supports the objectives of the NRP Plan within its scope of support, as set out in this 
Regulation.   

The  strength  of  Europe  is  its  people.  On  17  November  2017  the  European  Parliament,  the 
Council  and  the  Commission  jointly  proclaimed  the  European  Pillar  of  Social  Rights.[1]  Its 
targets set clear and ambitious goals for employment, skills and poverty reduction. Reaching 
these  goals  is  not  only  a  moral  imperative;  it  is  also  an  economic  necessity.  The  Political 
Guidelines  2024-2029  note  that  our  unique  social  market  economy  gives  Europe  many 
advantages over competitors. 

The  Communication  from  the  Commission  to  the  European  Parliament,  the  European 
Council,  the  Council,  the  European  Economic  and  Social  Committee  and  the  Committee  of 
the Regions on the Competitiveness Compass[2] states, “effective social policies built around 
the  European  Pillar  of  Social  Rights  are  central  to  shaping  a  competitive  Europe.  A  more 
competitive  economy  with  high  productivity  will  ensure  that  our  social  model  is  financially 
sustainable  in  the  long  term  and  that  citizens  see  clear  pathways  to  their  own  economic 
success. All Europeans must be able to contribute to and benefit from greater competitiveness 
improvements”. Indeed, it has consistently been shown that economies with the most effective 
investments  in  human  capital  are  also  amongst  the  most  competitive,  resilient  and 
economically sound.  

The  European  Council  Conclusions  of  20  March  2025  highlight  that  “following  the 
Commission communication of 5 March 2025 on a Union of Skills, further efforts should be 
made to enhance the acquisition, recognition and retention of skills across the EU, from the 
building of basic skills to engaging in life-long learning, reskilling and upskilling, in line with 
the European Pillar of Social Rights and its Action Plan”. The same Conclusions refer to the 
Budapest declaration on specifically the need to “harness […] Europe’s talent and investing 
in  skills  to  foster  high-quality  jobs  throughout  the  Union”.  Furthermore,  beyond  ensuring 
people are skilled, a strong labour force participation in the current demographic context, is 
required. 

Despite progress, tackling unemployment, skills gaps, labour shortages and persistently high 
rates of poverty remain a priority throughout the EU. This not only threatens the prospect of 
reaching  the  headline  targets  set  for  the  European  Pillar  of  Social  Rights,  but  also  hampers 
progress in strengthening the competitiveness of Europe in an increasingly globalised world.  

EN 

1 

  EN 

Social issues and services for citizens, such as education, including early childhood education 
and  care    and  health  and  long-term  care,  as  well  as  the  availability  of  social  housing  and 
lacking progress in poverty reduction are a primary concern of European citizens[3]. More is 
expected  in  these  areas  from  the  Union.  There  is  an  increased  need  for  targeted  actions  to 
address these challenges. 

In addition, in a context of increased geo-strategic uncertainty and an increased frequency of 
extreme  weather  events,  it  is  crucial  to  be  prepared  for  the  unexpected.  [During  the 
coronavirus  outbreak  the  temporary  Support  to  Mitigate  Unemployment  Risks  in  an 
Emergency (SURE) showed the importance of protecting employees and the self‐employed, 
and  thus  reducing  the  incidence  of  unemployment  and  loss  of  income.  This  proposal 
establishes  a  confirmation  of  European  solidarity  which  can  also  be  provided  in  the  future 
when circumstances duly justify the need]. 

The ESF will support EU policy implementation, and national or regional structural reforms 
in the areas of employment, education and skills, social inclusion, and care services including 
long  term  and  healthcare.  This  corresponds  to  the  remit  of  the  Employment  Guidelines 
(Article  148  TFEU).  It  will  contribute  to  Member  States’  efforts  to  reduce  unemployment, 
advance  quality  and  equal  opportunities  in  education  and  training  and  improve  social 
inclusion and integration. The ESF will specifically also contribute to the implementation of 
the  Skills  Guarantee  in  line  with  the  Union  of  Skills.  Supporting  Individual  Learning 
Accounts  should  in  this  regard  be  an  important  dimension,  assisting  Europe’s  strategic 
business investments to progress in the immediate future by having access to the right skills. 
It will furthermore support sustaining and further developing open, rights-based, democratic, 
equal  and  inclusive  societies  which  are  based  on  the  rule  of  law  and  on  social  dialogue. 
Additionally, to support integrated approaches, investments in both infrastructure and people 
are encouraged from the Funds. 

Therefore,  the  ESF  will  help  to  build  an  empowering  social  Europe  and  contribute  to 
economic,  social  and  territorial  cohesion  in  accordance  with  Article  174  TFEU,  which  is  a 
necessary condition for the proper functioning of the EU as a stable and viable economic and 
political union. 

• 

Consistency with existing policy provisions in the policy area 

The  ESF,  as  part  of  cohesion  policy,  will  be  operating  within  the  National  and  Regional 
Partnership Plan (NRP Plan) and its single rulebook. The ESF builds upon the long-standing 
visibility and proven success of the European Social Fund Plus (ESF+) as a trusted framework 
for investing in people, in line with the European Pillar of Social Rights, European Semester 
and  Employment  Guidelines.  Therefore,  while  tightly  connected  to  the  NRP  Plan,  the  ESF 
will  maintain  its  independent  legal  base  as  set  out  in  Article  162  of  the  Treaty  on  the 
Functioning of the European Union (TFEU).   

Efficient  and  effective  implementation  of  actions  supported  by  the  NRP  Plan,  including  the 
ESF, depends on good governance and partnership between all actors at the relevant territorial 
levels  and  the  socio-economic  actors,  in  particular  the  social  partners  and  civil  society 
organisations. 

The ESF supports policies and priorities which aim to help create full employment, enhance 
quality  and  productivity  at  work,  increase  the  geographical  and  occupational  mobility  of 
workers  within 
training  systems,  and  promote 
intergenerational fairness, social inclusion and health. 

improve  education  and 

the  Union, 

The overarching  policy objective of the ESF Regulation is  to  create a more performing and 
resilient ‘Social Europe’ and implement the European Pillar of Social Rights, as well as the 

EN 

2 

  EN 

social  and  employment  priorities  endorsed  by  the  European  economic  governance  process. 
The  ESF  will  contribute  to  implementing  the  Integrated  Guidelines  adopted  in  accordance 
with  Articles  121  and  148(4)  TFEU  and  the  relevant  country-specific  recommendations 
adopted in the context of the European semester. It will also feed into the overall objective of 
smart,  inclusive  and  sustainable  growth  beyond  2030  (the  UN’s  sustainable  development 
goals2) and upward convergence.  

Furthermore,  the  ESF  will  help  to  improve  employment  opportunities,  raise  the  standard  of 
living  and  health,  and  help  increase  labour  mobility  and  economic,  social  and  territorial 
cohesion as set out in the TFEU and the EU Charter of Fundamental Rights as well as the UN 
Convention on the rights of persons with disabilities. The ESF also aims to contribute to the 
Union of Skills  and the integration of third  country nationals. Setting a minimum share and 
amounts  for  the  ESF  will  ensure  that  the  EU’s  priorities  described  above  are  adequately 
reflected in the volume of investment that directly target European citizens. 

• 

Consistency with other Union policies 

The ESF aims to  improve synergies and coherence with  other measures investing in  human 
capital  development  under  the  National  and  Regional  Partnership  (NRP  Plan),  in  particular 
within the framework of cohesion policy, fisheries and agriculture policy support, as well as 
with the European Competitiveness Fund.  

The  ESF  will  continue  to  complement  the  support  by  Erasmus.  The  ESF  and  Erasmus  are 
active in similar fields, notably helping people gain new skills, upskilling to answer the need 
of industrial sectors, improving digital competences and quality of education and training. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The  Treaty  on  the  Functioning  of  the  European  Union  (TFEU),  in  particular,  Articles  164, 
174,  and  175  of  TFEU,  provide  the  legal  framework  for  the  measures  covered  by  this 
proposal.  The  ESF  is  based  on  Articles  162  and  164  TFEU  and  support  to  fight  poverty, 
notably  by  addressing  food  and  basic  material  deprivation,  and  support  to  promote 
fundamental values of the EU is based under Article 175(3) TFEU.  

This  proposal  defines  the  scope  of  support  of  the  ESF  in  relation  to  the  specific  objectives 
defined  in  the  NRP  Plan  Regulation,  as  well  as  targeted  actions  in  the  area  of  social 
innovation. It also makes reference to the ESF Committee under Article 163 TFEU. 

Additionally,  the  Commission  adopted  on  16  July  2025  a  proposal  for  a  'National  and 
Regional Partnership Plan' Regulation in order to improve the coordination and harmonise the 
implementation of support under shared management, with the main aim of simplifying policy 
delivery. The ESF is also covered by these common provisions. 

• 

Fundamental rights 

Alongside the Conditionality Regulation which will continue to apply to the whole of the EU 
budget, this Regulation includes strong safeguards to ensure that the funds are implemented in 
compliance with the Charter of Fundamental Rights of the European Union and the principles 
of  the  rule  of  law,  as  set  out  in  Article  2(a)  of  Regulation  (EU,  Euratom)  2020/2092.  This 
initiative  will  also  respect  the  principles  of  the  United  Nations  Convention  of  Rights  of 
persons with disabilities. 

EN 

3 

  EN 

 
• 

Subsidiarity (for non-exclusive competence)  

In  the  areas  of  social  and  employment  policy  and  public  health,  the  EU  has  either  shared 
competence  with  Member  States  (Article  4  TFEU),  competence  to  lay  down  arrangements 
within which they must coordinate their action (Article 5 TFEU) or competence to carry out 
actions  to  support,  coordinate  or  supplement  the  actions  of  the  Member  States  (Article  6 
TFEU). 

The  ESF  is  underpinned  by  the  subsidiarity  principle.  Under  shared  management,  the 
Commission  delegates  strategic  programming  and  implementation  tasks  to  the  EU  Member 
States  and regions. It  also limits EU action to  what  is  necessary to  achieve its  objectives as 
laid  down  in  the  Treaties.  Shared  management  aims  to  ensure  that  decisions  are  taken  as 
closely  as  possible  to  the  citizen  and  that  EU-level  action  is  justified  in  light  of  the 
possibilities  and  specificities  at  national,  regional  or  local  level.  Shared  management  brings 
Europe closer to its citizens and connects local needs with European objectives. Moreover, it 
increases ownership of EU objectives, as Member States and the Commission share decision-
making power and responsibility. 

• 

Proportionality 

In accordance with the principle of proportionality, this proposal does not go beyond what is 
necessary to achieve its goals 

• 

Choice of the instrument 

The  choice  of  instrument  is  a  Regulation  of  the  European  Parliament  and  the  Council  to 
establish the European Social Fund. 

3. 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

[Please see NRP Plan regulation IA] 

4. 

BUDGETARY IMPLICATIONS 

[placeholder] 

The total budget allocated for the ESF amounts to EUR XX billion (in current prices) for the 
2028-2034 period. 

Details on financial and staffing needs can be found in the Legislative Financial and Digital 
Statement of the NRP Plan Regulation. 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

[Please see NRP Plan regulation IA]  

• 

Detailed explanation of the specific provisions of the proposal 

The ESF Regulation includes the subject matter and defines the scope of support of the ESF 
in  relation  to the  objectives  defined in  the NRP Plan Regulation.  It  also includes  provisions 
social innovation. Finally, it outlines the Committee under Article 163 TFEU and the date of 
entry into force. 

EN 

4 

  EN 

2025/0239 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing the European Social Fund as part of the National and Regional Partnership 
Plan set out in Regulation (EU)   [NRPPlan] establishing conditions for the 
implementation of the Union support to quality employment, skills and social inclusion 
for the period from 2028 to 2034  

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 164, and Article 175(3) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national parliaments, 

Having regard to the opinion of the European Economic and Social Committee 

Having regard to the opinion of the Committee of the Regions 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

On 17 November 2017, the European Pillar of Social Rights was jointly proclaimed by 
the  European  Parliament,  the  Council  and  the  Commission  as  a  response  to  social 
challenges  in  Europe.  The  twenty  key  principles  of  the  pillar  are  structured  around 
three  categories:  equal  opportunities  and  access  to  the  labour  market;  fair  working 
conditions;  social  protection  and  inclusion.  The  twenty  principles  of  the  European 
Pillar of Social Rights should guide the actions under the European Social Fund (ESF). 
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.  In  order  to  contribute  to  the 
implementation  of  the  European  Pillar  of  Social  Rights  the  ESF  should  support 
investments in people and reforms of the systems in the policy areas of employment, 
education  and  social  inclusion,  thereby  supporting  economic,  territorial  and  social 
cohesion in accordance with Article 174 of the Treaty. 

(2) 

The guidelines for the employment policies of the Member States, as provided for in 
Article  148(2)  of  the  Treaty,  adopted  annually  by  the  Council  in  the  context  of  the 
European  Semester,  are  a  key  instrument  for  coordination  of  Union  and  national 
employment  and  social  policies.  They  provide  common  priorities  and  targets  for 
employment,  education,  skills  and  social  policies  with  a  view  to  improving  the 

EN 

5 

  EN 

  
 
(3) 

(4) 

(5) 

(6) 

(7) 

Union’s competitiveness and making it a better place to invest, create jobs and foster 
social  cohesion.  The  ESF  is  the  Union’s  main  instrument  for  supporting  the 
employment  guidelines  and  achieving  Union  objectives  in  employment  and  social 
policies. The employment guidelines complement the principles of the European Pillar 
of Social Rights. In this context, the scope of the ESF for 2028 to 2034 should be fully 
aligned  with  Council  Decision  (EU)  …  1  [Employment  guidelines  adopted  by  the 
Council at the latest by 1 January 2027]. 

At  Union  level,  the  European  Semester  of  economic  policy  coordination  is  the 
framework  to  identify  national  reform  priorities  and  monitor  their  implementation. 
Member States should submit annual progress reports on the implementation of their 
medium-term fiscal-structural plans. That framework should be the basis for the use of 
Union  funding  in  a  coherent  manner,  including  with  a  view  to  maximise  the  added 
value of the financial support to be received.  

The  Union 
is  confronted  with  structural  challenges  arising  from  economic 
globalisation,  vulnerable  supply  chains,  the  management  of  migration  flows  and  the 
increased  security  threat,  the  clean  energy  transition,  technological  change  and 
demographic change, an ageing workforce, lack of social housing, and growing skills 
and labour shortages in many sectors and regions.  

Taking into account the changing realities in the world of work, the Union should be 
prepared  for  current  and  future  challenges  by  investing  in  relevant  skills,  by  making 
growth more inclusive and by improving employment and social policies, including in 
view of labour mobility and sectoral restructuring, paying attention to urban and rural 
areas that face particular social weaknesses .  

Between  now  and  2040,  the  Union  labour  market  will  comprise  approximately  1 
million  fewer  persons  each  year.  Furthermore,  in  addition  to  a  shrinking  workforce, 
some regions are affected by a small and stagnant share of the population with tertiary 
education,  making  it  difficult  to  compensate  for  the  loss  of  labour  through  higher 
labour  productivity.  This  will  increase  pressure  on  the  social  welfare  model  of  the 
Union,  putting  its  sustainability  and  adequacy  under  pressure.  It  will  also  increase 
labour  and  skills  shortages  in  the  labour  market,  putting  strain  on  economic  growth 
and competitiveness. For some sectors this will lead to labour cost pressures.  This is 
why  the  ESF  needs  to  support  an  increase  in  participation  in  the  labour  market, 
especially of women and young people, persons with disabilities, Roma communities 
and to support employers in finding the right people for available jobs, empower older 
workers  with  appropriate  labour  market  and  workplace  measures,  ensure  a  skilled 
workforce  able  to  tackle  major  societal  challenges,  and  support  a  healthy  work  life 
balance including by ensuring access to quality childcare.  

On  29  January  2025,  the  Commission  presented  the  Competitiveness  Compass.  The 
Compass  sets  a  path  for  Europe  to  become  the  place  where  future  technologies, 
services, and clean products are invented, manufactured, and put on the market, while 
being  the  first  continent  to  become  climate  neutral.  It  recognises  five  horizontal 
enablers  for  competitiveness,  including  promoting  skills  and  quality  jobs,  and 
highlights  that  the  foundation  of  Europe’s  competitiveness  is  its  people.  To  be 
competitive  and  prepared  for  the  future,  the  Union  needs  to  support  and  prepare  its 
people with the skills and competences needed for success in learning, work, and life.  

1 

Insert publication reference 

EN 

6 

  EN 

 
(8) 

(9) 

In addition, on 26 February 2025 the Commission adopted the Communication “The 
Clean Industrial Deal: A joint roadmap for competitiveness and decarbonisation”. It is 
vital  to  recognise  the  critical  role  of  skills  in  facilitating  a  successful  transition  to  a 
cleaner and more competitive industrial future within the Union. Developing a highly 
skilled  workforce  is  essential  for  driving  innovation  and  advancing  decarbonisation 
and  circularity  across  vital  industries.  This  focus  on  skill  enhancement  is  crucial  for 
achieving the Union’s objectives of a just transition and for sustaining and enhancing 
the  Union’s  global  competitiveness.  Furthermore,  access  to  environmental  resources 
and their benefits is unequally distributed across society, as are environmental hazards 
and health risks. It is more likely to fall disproportionately on vulnerable groups.  

to 

increase 

training  and  skills  systems 

The  Union  of  Skills  aims  to  support  the  development  of  quality,  inclusive  and 
the  Union’s 
adaptable  education, 
competitiveness,  preparedness,  security  and  democracy.  Therefore,  in  line  with  the 
Union  of  Skills,  the  Union  should  ensure  sufficient  funding  to  build  solid  skills 
foundations  and  promote  lifelong  and  future-oriented  upskilling  and  reskilling 
opportunities  for  all,  in  particular  to  address  the  challenges  of  the  digital  and  green 
transitions. This will contribute to notably digital skills and key enabling technologies 
but  also  ,  skills  to  support  emerging  sectors,  with  a  view  to  providing  people  with 
skills adjusted to digitalisation, technologically and innovation-driven changes, social 
and  economic  change,  facilitating  career  transitions,  mobility  and  supporting  in 
particular low-skilled or poorly qualified adults. In line with the Union of Skills, the 
challenges of the digital and green transitions need to be addressed by upskilling and 
reskilling workers, aligning education with industry needs, and fostering partnerships 
among educational institutions, employers, and public authorities. It is also necessary 
to  enhance  circulation  and  adequate  allocation  of  skills  in  the  internal  market, 
including through easier skills portability, and be able to attract and retain skills in the 
EU. 

(10)  Regulation  (EU)  [NRP  Regulation]  establishes  the  general  rules  on  the  National 
Regional  Partnership  Plan  (the  ‘NRP  Plan’)  and  lays  down,  in  particular,  the 
objectives  to  be  supported  by  the  National  Regional  Partnership  Plans  and  the  rules 
concerning  the  preparation,  implementation,  management  and  control  of  such  Plans. 
The  ESF  is  one  of  the  nationally  pre-allocated  funds  grouped  under  the  National 
Regional  Partnership  Plan,  in  accordance  with  Regulation  (EU)  [...]  [NRP  Plan 
Regulation.  It  is  therefore  necessary  to  clarify  the  scope  of  support  of  the  ESF  in 
relation  to  the  objectives  set  out  in  the  NRP  Regulation  and  lay  down  specific 
provisions concerning the implementation of the ESF.  

(11)  Efficient  and  effective  implementation  of  actions  supported  by  the  NRP  Plan, 
including the ESF, depends on good governance and partnership between all actors at 
the  relevant  territorial  levels  and  the  socio-economic  actors,  in  particular  the  social 
partners and civil society organisations. 

(12) 

In order to  strengthen Europe’s societies and Europe’s Social model, Member States 
should  allocate  a  minimum  amount  of  resources  under  their  National  and  Regional 
Partnership Plans adopted in accordance with Regulation (EU) [NRP Plan Regulation] 
to the ESF. The diverse nature and severity of different socio-economic challenges in 
Member States requires a more flexible approach to programming. Whilst a minimum 
level of support for social policies is necessary to ensure action commensurate to these 
challenges,  it  also  needs  to  be  closely  corresponding  to  the  national  and  regional 
characteristics. The underlying sources of social disparities or problems need to inform 
the  relative  importance  given  to  investments  and  reforms  within  the  realm  of  the 

EN 

7 

  EN 

Employment  Guidelines  and  the  ESF.  This  implies  that  policy  safeguards  through 
thematic concentration should result from engagement between Member States and the 
Commission.  The  minimum  amount  of  ESF  must  also  find  the  balance  between  the 
strategic interest the Union has in investing in its people, and thereby in the quality of 
labour  supply  as  well  as  social  progress,  and  at  the  same  time  investment  needs 
covered by other specific objectives enlisted in article 3 of the [NRP Plan Regulation]. 

(13)  The  ESF  should  support  employment,  equal  access  for  all  to  the  labour  market,  fair 
and quality working conditions and labour mobility. The ESF should support Member 
States in providing support to unemployed and inactive people with effective, timely, 
coordinated and tailor-made assistance based on support for job searches, training, up- 
and  reskilling  and  access  to  other  enabling  services,  paying  particular  attention  to 
people in vulnerable situations and people negatively affected by the green and digital 
transitions  or  labour  market  shocks,  as  well  as  those  furthest  away  from  the  labour 
market.  The  ESF  should  continue  to  focus  on  youth  unemployment  and  the  issue  of 
young  people  not  in  employment,  education  or  training  (NEETs)  through  the 
prevention of early leaving from education and training, and structural improvement of 
the  school-to-work  transition,  including  through  the  full  implementation  of  the 
reinforced  Youth  Guarantee,  which  should  also  support  quality  youth  employment 
opportunities.  In  addition,  the  ESF  should  continue  to  invest  in  skills  crucial  for  the 
green and digital transitions.  

(14)  The  ESF  should  enhance  labour  supply  and  improve  education  and  training  and 
lifelong  acquisition  of  skills.  In  particular,  the  ESF  should  help  progression  within 
education  and  training  and  transition  to  work,  support  lifelong  learning,  including 
formal,  non-formal  and  informal  learning  that  takes  place  at  all  stages  in  life  and 
employability,  and  contribute 
to  competitiveness  and  societal  and  economic 
innovation by supporting scalable and sustainable initiatives in these fields. This could 
be  achieved  for  example  through  work-based  learning  and  apprenticeships,  lifelong 
guidance,  skills  anticipation  in  cooperation  with  industry,  up-to-date  training 
materials,  forecasting  and  graduate  tracking,  training  of  educators,  validation  of 
learning outcomes and recognition of qualifications. 

(15)  The  ESF  should  facilitate  access  to  services,  including  the  strengthening  of  the 
modernisation, digitalisation and  the resilience of both healthcare  and long-term care 
services.  The  ESF  should  support  Member  States  in  implementing  measures  to 
eliminate  all  forms  of  discrimination  and  ensure  equal  opportunities  for  all,  and  in 
particular  for  groups  that  are  under-represented  in  the  labour  market,  ensuring  equal 
access to services. The availability of affordable, sustainable and high-quality services 
such  as  early  childhood  education  and  care,  out-of-school  care,  education,  training, 
and  health  and  long-term  care,  in  particular  family  and  community-based  care 
services, is a necessary condition for ensuring equal opportunities and labour mobility. 
The  ESF  should  ensure  that  everyone,  including  children  in  line  with  the  European 
Child Guarantee, have access to essential services of good quality. The specific needs 
of  persons  with  disabilities,  including  accessibility,  should  be  taken  into  account  in 
relation  to  those  services  as  well  as  independent  living.  The  ESF  should  also 
contribute to the modernisation of social protection systems with a view in particular 
to promoting their accessibility. 

(16)  Support  through  the  ESF  should  be  used  to  promote  equal  opportunities  for  all,  to 
support strong social safety nets, foster social inclusion, intergenerational fairness and 
fight  poverty.    The  ESF  should  support  Member  States’  efforts  to  tackle  poverty, 
including  by  addressing  material  deprivation,  with  a  view  to  breaking  the  cycle  of 

EN 

8 

  EN 

disadvantage  across  generations  and  promote  social  inclusion  by  ensuring  equal 
opportunities  for  all,  tackling  discrimination  and  addressing  health  inequalities.  This 
implies  mobilising  a  range  of  policies  targeting  the  most  disadvantaged  people 
regardless of their age, including children in poverty, marginalised communities such 
as the Roma, the working poor and the most deprived. The ESF should promote the 
active  inclusion  of  people  far  from  the  labour  market  with  a  view  to  ensuring  their 
socio-economic integration. The ESF should also tackle homelessness, including with 
prevention  and  alleviation  measures  in  line  with  the  Lisbon  declaration  of  2021. 
Support to social innovation plays an important role in achieving these objectives and 
should therefore be promoted. 

(17)  The principles of democracy, the rule of law and protection of fundamental rights are 
fundamental  values  of  the  Union.  These  values  are  fundamental  for  every  single 
person,  especially  for  those  who  are  most  vulnerable.  Furthermore,  they  are 
instrumental for the effective implementation  of  the ESF. Therefore, the  ESF  should 
also support the promotion and implementation  of these values for all.  The ESF will 
also continue to address the rights of persons with disabilities as enshrined in the UN 
Convention  on  the  Rights  of  Persons  with  Disabilities.  It  will  also  ensure  coherence 
with  the  Union  of  Equality  and  its  related  Strategies1  that  aim  at  combating 
discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or 
sexual  orientation  and  ensure  social  cohesion  by  sustaining  and  developing  open, 
fundamental rights-based, democratic, equal and inclusive societies based on the rule 
of law. 

(18)  Regulation  (EU)  [National  Plan  Regulation]  requires  that  Member  States  respect 
horizontal  principles  in  the  preparation  and  implementation  of  the  national  and 
regional partnership plans. In this context, Member States should also be encouraged 
to use the ESF to supports targeted actions to promote horizontal principles such as the 
promotion of gender equality and ensuring the accessibility of services for people with 
disabilities and to enable people with disabilities to actively participate. 

(19)  To  ensure  that  the  social  dimension  of  Europe  as  set  out  in  the  European  Pillar  of 
Social Rights is duly put forward and that a sufficient amount of resources is targeting 
those most in need, Member States should allocate resources of the ESF to fostering 
social inclusion.  

(20)  Due to  the particular need to  support children in  poverty Member States should also 

programme resources of the ESF to address the measures under  the Child Guarantee. 

(21)  The ESF should contribute to the reduction of poverty by supporting national schemes 
aiming to alleviate food and material deprivation and promote the social integration of 
people  at  risk  of  poverty  or  social  exclusion  and  the  most  deprived.  Member  States 
should allocate resources of the ESF to address the forms of extreme poverty with the 
greatest  social  exclusion  impact,  such  as  homelessness  and  food  and  material 
deprivation.  

(22) 

In light of persistently high levels of youth unemployment and inactivity in a number 
of Member States and regions, in particular affecting young people who are neither in 
employment,  nor  in  education  or  training,  it  is  necessary  that  those  Member  States 
continue to invest sufficient resources of the ESF towards measures to promote youth 
employment, including through the implementation of the Youth Guarantee. Member 
States should therefore allocate an appropriate amount of resources to this challenge. 
Member States seriously affected by youth unemployment should allocate resources of 
the ESF to support youth employability. 

EN 

9 

  EN 

(23)  Efficient  and  effective  implementation  of  actions  supported  by  the  ESF  depends  on 
good  governance  and  partnership  between  all  actors  at  the  relevant  territorial  levels 
and the socio-economic actors, in particular the social partners and civil society. It is 
therefore  essential  that  Member  States  encourage  the  participation  of  social  partners 
and civil society in the implementation of the ESF. Member States that have received 
a country-specific recommendation in this area should allocate resources of the ESF to 
promote the capacity building of social partners and civil society organisations.] 

(24)  Taking  into  account  the  special  characteristics  and  constraints  of  the  outermost 
regions,  the  Member  States  should  include  in  their  Chapter  for  outermost  regions, 
measures  for  enhancing  employment  and  labour  mobility,  in  particular  for  young 
people, education and skills, social inclusion. 

(25)  Since  the  objective  of  this  Regulation,  namely  enhancing  the  effectiveness  of  labour 
markets  and  promoting  access  to  quality  employment,  improving  access  to  and  the 
quality of education and training, promoting social inclusion and health and reducing 
poverty cannot be sufficiently achieved by the Member States but can rather, be better 
achieved  at  Union  level,  the  Union  may  adopt  measures,  in  accordance  with  the 
principle  of  subsidiarity  as  set  out  in  Article  5  of  the  Treaty  on  European  Union.  In 
accordance  with  the  principle  of  proportionality,  as  set  out  in  that  Article,  this 
Regulation does not go beyond what is necessary in order to achieve that objective 

HAVE ADOPTED THIS REGULATION: 

Article 1 

Subject matter 

(1)  This  Regulation  lays  down  specific  conditions  for  the  implementation  of  the 
European  Social  Fund  for  the  2028-2034  programming  period  as  part  of  the 
Union support in accordance with the general objectives laid down in Article 2 
of  Regulation  XX  [NRP  Plan  Regulation],  and  in  particular  point  (b)  and  (e) 
thereof.  

(2)  This  Union  support  shall  be  provided  under  the  National  and  Regional 
Partnership Plan, in accordance with the rules set out in Regulation (EU) […]  
[NRP Plan].  

Article 2 

ESF support 

(1)  The European Social Fund (ESF) shall support the specific objectives set out in 

Article 3 of Regulation XX [NRP Plan Regulation]. 

(2)  For  the  purpose  of  paragraph  1,  Member  States  use  of  the  ESF  shall,  for  the 
purposes of Article 2, point (b) of Regulation XX [NRP Plan], be based on the 
guidelines for the employment policies of the Member States, as provided for 
in  Article  148  (2)  of  the  Treaty,  set  out  in  the  Decision  (EU)  xxxx 
[Employment  guidelines  adopted  by  the  Council  at  the  latest  by  1  January 
2027].   

EN 

10 

  EN 

Article 4 

Social innovation  

(1)  Social innovation shall be supported in the areas falling within the scope of the 
ESF, in particular with the aim of testing, evaluating and scaling up innovative 
solutions,  including  at  the  local  or  regional  level,  in  order  to  address  social 
needs  in  partnership  with  the  relevant  partners  and,  in  particular,  social 
partners. 

(2)  The  Commission  shall  use  technical  assistance  at  its  own  initiative,  in 
accordance  with  Article  12  of  Regulation  (EU)  [NRP  Plan  Regulation]  to 
facilitate  capacity  building  for  social  innovation,  in  particular  through 
supporting  mutual  learning,  transnational  cooperation,  establishing  networks, 
and disseminating and promoting good practices and methodologies. 

Article 5 

Support for demographic transition 

Member States and regions shall, where appropriate, set out an integrated approach 
to addressing challenges stemming from the demographic transition in one or more 
dedicated chapters of the National Regional and Partnership Plan. 

Article 6 

Support for addressing material deprivation 

(1)  Member  States  may  provide  support  for  addressing  material  deprivation 
through  the  distribution  of  food  and  goods  that  are  in  conformity  with  the 
Union law on consumer product safety.  

(2)  Member  States  and  beneficiaries  shall  choose  the  food  and/or  the  basic 
material assistance on the basis of objective criteria related to the needs of the 
most  deprived  persons.  The  selection  criteria  for  the  food,  and  where 
appropriate  for  goods,  shall  also  take  into  consideration  climate-related  and 
environmental  aspects,  in  order  to  ensure  a  fair  and  just  green  transition,  in 
particular  with  a  view  to  reduction  of  food  waste  and  single-use  plastics. 
Where  appropriate,  the  choice  of  the  type  of  food  to  be  distributed  shall  be 
made  having  considered  their  contribution  to  the  balanced  diet  of  the  most 
deprived  persons.  The  food  and/or  basic  material  assistance  may  be  provided 
directly  to  the  most  deprived  persons  or  indirectly,  for  example,  through 
vouchers  or  cards,  in  electronic  or  other  form,  provided  that  they  can  be 
redeemed  only  against  food  and/or  basic  material  assistance.  Support  for  the 
most  deprived  persons  shall  be  additional  to  any  social  benefit  that  may  be 
provided by national social systems or according to national law.  

(3)  The  Commission  and  Member  States  shall  ensure  that  aid  provided  in  the 
framework  of  the  support  for  addressing  material  deprivation  respects  the 
dignity and prevents stigmatisation of the most deprived persons.  

EN 

11 

  EN 

 
(4)  Member  States  shall  complement  the  delivery  of  food  and/or  basic  material 
assistance by accompanying measures, such as referrals to competent services 
or by promoting the social integration of the most deprived persons. 

The first subparagraph, shall not apply where the provision of such measures is 
not  possible,  for  instance,  where  the  support  is  provided  in  response  to  an 
emergency situation such as a natural disaster 

(5)  For  the  purposes  of  this  Article,  ‘most  deprived  persons’  means  natural 
persons,  whether  individuals,  families,  households  or  groups  of  persons, 
including  children  in  vulnerable  situations  and  homeless  people,  whose  need 
for assistance has been established according to the objective criteria which are 
set  by  the  national  competent  authorities  in  consultation  with  relevant 
stakeholders  while  avoiding  conflicts  of  interest,  and  which  may  include 
elements  that  allow  for  the  targeting  of  the  most  deprived  persons  in  certain 
geographical areas.  

Article 7 

Partnership 

Member States shall ensure meaningful participation of the social partners and  civil  society 
organisations  in  the  delivery  of  support  for  quality  employment,  education  and  skills  and 
social inclusion policies in accordance with Article 6 of Regulation XX [NRP Plan]. 

Article 8 

Committee set up under Article 163 TFEU 

(1)  The Commission shall be assisted by the Committee set up under Article 163 
TFEU  (‘the  ESF  Committee’)  with  regard  to  the  support  provided  for  the 
general  objective  referred  to  in  Article  3(1),  point  (c)  [specific  objective  – 
employment] of Regulation XX [NRP Plan]. 

(2)  Each  Member  State  shall  appoint  one  government  representative,  one 
representative  of  the  workers’  organisations,  one  representative  of  the 
employers’  organisations  and  one  alternate  for  each  member  for  a  maximum 
period  of  seven  years.  In  the  absence  of  a  member,  the  alternate  shall  be 
automatically entitled to take part in the proceedings. The Committee shall also 
include  one  representative  from  each  of  the  organizations  representing 
workers’ organisations and employers’ organisations at Union level. 

(3)  The  Committee  may  deliver  opinions  on  any 

issues  regarding 

the 

implementation of the ESF. 

Article 9 

Entry into force and application 

This Regulation shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union. 

It shall apply from the date of application of Regulation (EU) […] establishing the National 
and Regional Partnership Plan for the period 2028-2034.  

EN 

12 

  EN 

This Regulation shall be binding in its entirety and directly applicable in all Member States. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President

EN 

13 

  EN 

EN 

14 

  EN