COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strategy on Intergenerational Fairness
Date: 2026-03-05
Institutions: Directorate-General for Education, Youth, Sport and Culture, European Commission
Subjects: EU policy, EU strategy, European social policy, education policy, environmental policy, intergenerational equity, sustainable development, young person, youth policy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 5.3.2026  COM(2026) 110 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strategy on Intergenerational Fairness {SWD(2026) 80 final}  
 
 
1. Introduction 

The strategy on intergenerational fairness expresses the European Commission’s ambition 
to ensure that today’s choices contribute positively also to tomorrow’s opportunities, and that 
both  benefits  and  responsibilities  are  shared  fairly  across  age  groups.  It  aims  at  promoting 
policy  approaches  that  combine  economic  prosperity  and  wellbeing,  environmental 
responsibility, social and territorial cohesion, fiscal sustainability and democratic participation. 
It  further  aims to  amplify young people’s voices as  the EU’s future  and  ensuring solidarity 
between generations. 

The EU has achieved one of the most advanced levels of equality of opportunity globally, 
supported by a competitive market economy, strong social models and quality and inclusive 
public  services.  In  a  world  marked  by  growing  instability  and  accelerating  global  change, 
where  long-term  demographic,  technological,  economic,  social,  climate  and  environmental 
trends  are  reshaping  how  opportunities  are  created  and  shared,  renewed  attention  to 
intergenerational fairness is essential. This will help ensure that opportunities for young people 
- who are the foundation of the Europe to come - continue to expand and that the EU can deliver 
sustainable and inclusive well-being to its people. 

The strategy is a project of trust and cooperation, built through a co-design process1 which 
included a dedicated European Citizens’ Panel on Intergenerational Fairness.2 It reflects the 
ideas and recommendations of citizens, stakeholders, and communities across Europe. People 
of all ages, diverse backgrounds and regions collaborated in exploring how to equip the EU to 
better navigate growing and interconnected challenges in pursuit of a better future. 

At the 2024 UN Summit of the Future, the EU and its Member States endorsed the Pact for 
the Future and the Declaration on Future Generations.3 More than a third of EU Member States 
mention future generations in their Constitutions and/or have established dedicated institutional 
frameworks  underscoring  the  importance  of  safeguarding  the  opportunities  for  future 
generations.  This  is  strongly  linked  with  the  implementation  of  the  2030  Agenda  and  the 
Sustainable Development Goals, which represent the globally shared blueprint for peace and 
prosperity for people and the planet, now and into the future.  

With this strategy the Commission contributes to the EU’s strong commitment to build 
on this global momentum, guided by the understanding that safeguarding peace, human rights 
and  the  planet,  while  enhancing  the  well-being  of  future  generations  as  well  as  advancing 
solidarity  between  current  generations  are  part  of  Europe’s  identity,  values  and  long-term 
strategic interests.4 

Grounded  in  long-term  responsibility,  intergenerational  solidarity  and  territorial  equity,  the 
strategy seeks to contribute also to restoring trust in public institutions, shaping a sustainable 
and  equitable  future,  and  ensuring  that  today’s  progress  strengthens  the  foundations  for 
tomorrow. 

1 Supporting materials for the design of the Strategy 
2 European Citizens panel on Intergenerational Fairness 
3 Declaration on Future Generations - UN 
4 The Treaty on European Union provides in Article 3(3) that the Union shall promote solidarity between generations, and the Charter of 
Fundamental Rights stresses that the enjoyment of fundamental rights entails responsibility with regard to future generations. Among other 
initiatives, key examples such as the 2012 European Year for Active Ageing and the 2022 European Year of Youth highlight the Union’s focus 
on intergenerational cohesion. The 2023 Communication on Demographic Change places fairness between generations at the heart of policy, 
and the 2025 Strategic Foresight Report names it as one of eight key priorities. 

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2. The changing horizon of opportunities 

Megatrends impacting the intergenerational balance: 

Young  Europeans  are  coming  of  age  in  a  time  of  rapid  transformation,  while  facing 
fundamental challenges. Demographic change and migration, the green and digital transitions, and 
a  shifting  geopolitical  environment  are  redefining  how  opportunities,  including  in  the  areas  of 
education, employment and housing, are created and shared across generations.5 These changes affect 
people  at  all  stages  of  life  and  create  a  shared  horizon  of  responsibility  offering  a  powerful 
opportunity to renew  the  EU’s social, economic, and democratic model in ways that benefit both 
present and future generations.6 

From an intergenerational perspective, the core issue is not the change itself, but whether the 
choices we make today improve people’s chances to do well in life and increase or limit opportunities 
for future generations. Longer lives, technological progress, and the transition to a climate-neutral 
and sustainable resource use economy can strengthen prosperity and well-being across the life course. 
Achieving this will require a long-term vision enshrined in law, upstream investment, support for 
active participation throughout working lives, and sustained fairness between generations. 

The  demographic  transition  is  reshaping  societies  with  implications  for  younger  generations’ 
access to housing, work and income, as well as for long-term care and healthcare. At the same time, 
active ageing, intergenerational knowledge transfer and extended economic and social participation, 
can support longer and healthier lives. With investment in lifelong learning, flexible work and age-
friendly communities, demographic change can become an opportunity for all generations. 

Climate  and  nature  are  another  clear  example.  Acting  decisively  on  climate  and  environmental 
protection avoids far greater costs for younger and future generations and  is an investment in the 
health,  security,  and  living  conditions  of  younger  and  future  generations,  while  at  the  same  time 
delivering  tangible  benefits  for  people  of  all  ages  today  through  cleaner  environments,  improved 
public health, energy and water security and more resilient communities. By contrast, the absence of 
action  would  significantly  impact  the  prosperity  of  future  generations.  Managed  inclusively,  the 
green transition contributes to quality jobs, improved living conditions, affordability and reinforce 
the EU’s resilience and energy security.  

Digitalisation, artificial intelligence and space-based technology are reshaping education, work, 
lifestyles,  and  democratic  participation  across  the  life  course.  While  these  transitions  require 
adaptation, they also widen opportunities. Lifelong learning, up- and reskilling, and human-centered 
innovation  can  ensure  that  technological  progress  benefits  all  generations  and  empowers  young 
people to thrive in a changing labour market and supports participation and autonomy throughout 
longer  lives.  The  changing  nature  of  work  is  reshaping  employment,  career  models  and 
organizational structures, potentially exacerbating inequalities if not managed properly, confronting 
the young with less linear, more uncertain careers. 

Across  these  shifts,  choices  made  today  on  investment,  public  finances,  fiscal  systems, 
pension systems and regulation, affecting housing, education, health, child and long-term care, 
work  and  wealth  distribution,  will  determine  whether  future  generations  inherit  growing 
constraints or greater capacity to act.7 

5 The European Commission has identified and monitors 14 megatrends, key for the EU’s future through its Megatrends Hub. 
6 The 2025 ESPAS Foresight Paper on Intergenerational Fairness offers a clear overview of the challenges and opportunities of megatrends 
concerning Intergenerational Fairness. 
7 The 2025 Strategic Foresight Report presents eight key areas where the EU can act to transform Europe specific challenges into opportunities. 

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An  intergenerational  approach  therefore  calls  for  determination  rooted  in  shared 
responsibility and solidarity so that all generations, first and foremost young people, are not 
merely  prepared  for  the  future  but  equipped  to  shape  it,  supported  by  the  experience, 
contribution and solidarity of all generations. 

Opportunities  and  risks  shift  as  people  move  through  different  stages  of  life,  and  as  a 
result,  important  gaps  are  emerging  between  generations  in  access  to  education,  a  safe 
environment,  stable  work,  housing,  care,  wealth  and  long-term  security.  This  calls  for  a 
unifying approach that brings generations together around shared goals for the future.  

Children and young people today have access to increasing opportunities to learn, travel, 
volunteer  and  have  their  voice  heard.8  They  are  the  most  educated  and  digitally-savvy 
generation  ever,  positioned  at  the  forefront  of  technological  innovation9  and  with  a  life 
expectancy  estimated  at  81.7  years  in  2024.  However,  young  people  today  are  also  more 
exposed to labour-market disruptions and new forms of insecurity linked to rapid technological 
change and the expansion of non-standard forms of work. Despite their overall high level of 
education, many follow education paths which do not always align with evolving skills needs 
and emerging sectors. Many are exposed to a sharp decline in basic skills. This can complicate 
transitions  from  education  to  stable  employment,  contributing  to  fragmented  early  career 
trajectories  and  heightened  risk  of  job  instability.  These  economic  pressures  intersect  with 
broader social and psychological challenges, including elevated levels of stress, anxiety and 
loneliness among young people, reflecting uncertainty, financial strain and the intensification 
of social comparison in digital environments. Housing affordability is also a challenge, making 
it more difficult for young people to become homeowners and to leave their parents’ home, 
delaying their move to autonomy. 

Older people, too,  are  facing a transformed horizon  of opportunities  shaped by longer, 
healthier lives, but also more long-term care needs and poverty risks in later life. Their ability 
to  stay  active,  secure,  and  connected  varies  sharply.  Particularly  for  women,  inequalities 
accumulated over the life course translate into higher risk of poverty and financial insecurity. 
Many  older  people  wish  to  continue  contributing  to  society  and  the  labour  market  but  are 
impeded  by  rapid  digitalisation,10  which  risk  excluding  those  with  lower  digital  skills.11 
Ageism  is  widespread:  52%  of  EU  citizens  see  age  as  the  biggest  disadvantage  for  job 
candidates, with older workers often perceived as less adaptable and less digitally competent.12 
Lack of basic services and infrastructures, including broadband, impact especially some rural 
territories with higher average age. 

Economic security in later life also depends on the adequacy and sustainability of pension 
systems, which play a central role in shaping intergenerational fairness by balancing income 
security for older people with the long-term resilience of public finances. The territorial gaps 
in healthcare, long-term care, access to facilities for regular physical activities and mobility, 
further affect independence, the feeling of loneliness, health outcomes and quality of life in old 
age.13 Future older individuals will live longer, requiring home-based services and adjustments 
to  keep  living  in  their  homes.  Regardless  of  age,  physical  activity  contributes  to  enhancing 
overall wellbeing and cognitive functions. 

8 Report on the implementation of the EU Youth Strategy (2022-2024) - Publications Office of the EU  
9 According to Eurostat, at least 75% of young people aged between 16 and 29 were equipped with at least basic digital skills in 2025. 
10 Skills for the digital age - Statistics Explained - Eurostat  
11 Digital skills in 2023: impact of education and age 
12 Discrimination in the European Union - December 2023 - Eurobarometer survey 
13 Disability statistics – elderly needs for help or assistance 

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Gender remains a major factor in inequality of opportunity and discrimination. In 2023, 
in  the  EU,  women  earned  on  average  12%  less  per  hour  than  men,  and  in  2024  their 
employment  rate  was  70.8%  compared  to  80.8%  for  men.14  Women  also  carry  the  primary 
burden of care responsibilities. Many face discrimination and sexual harassment, with about 
one  in  three  experiencing  physical  or  sexual  violence,  including  at  work.  Over  time,  these 
inequalities in employment, pay and care responsibilities accumulate, widening gender gaps in 
income security, pensions and economic independence in later life.  

Disadvantaged  groups  experience  additional  difficulties  requiring  an  intersectional 
approach.  On  average,  more  than  a  quarter  of  market  income  inequality  in  Europe  can  be 
traced  to  inherited  factors  such  as  parents’  socio-economic  status15
  or  geographic  location. 
Young  people  with  disabilities  often  struggle  when  moving  into  adulthood  due  to  weak 
pathways between education and employment. Children remain at a higher risk of poverty than 
the overall population. Territorial divides, notably for rural and remote areas, limit access to 
quality training, housing, transport, and connectivity, reinforcing brain drain and increasing the 
rate of young individuals not in education, employment or training (NEET). 

Structural barriers in education and training, employment, poverty, high housing costs, and 
access to services accumulate and are often passed from one generation to the next, and are 
particularly  felt  by  people  facing  discrimination,  including  those  with  migrant  background, 
Roma and LGBTIQ+ people.  

A  life-course  perspective  extends  beyond  today’s  generations.  By  examining  long-term 
demographic,  technological,  environmental,  climate  and  socio-economic  trends,  we  can 
anticipate the opportunities and risks  future generations will face. Although they currently 
cannot vote or speak for themselves, today’s choices will shape their horizon of opportunity. 
Intergenerational fairness therefore requires addressing current gaps while creating a future in 
which those not yet born can thrive. 

3. What if we do not act: the cost of non-action  

Intergenerational fairness is a strategic choice for the EU. Election cycles often have short 
timeframes, which increase incentives to favour  a short-term outlook. When policies do not 
sufficiently take account of their impacts across generations, economic, environmental, social 
and democratic costs accumulate gradually. For climate change alone, inaction would cost the 
EU a  reduction  of 7% to  double-digit  percentages  of  its  GDP  by  the  end  of  the  century.16 
Climate-related economic losses are even further accelerating.17 

Where opportunities are unevenly distributed across generations, territories and social 
groups,  economic  gains  risk  becoming  increasingly  concentrated.  Social  mobility  may 
weaken, inequality widen, and trust in the fairness of life opportunities erode. Less than half of 
Europeans  consider  that  they  have  equal  opportunities  to  advance  in  life,  and  only  38 % 
perceive that most outcomes in their lives occur fairly, highlighting an increasing perception 

14 The gender pay gap situation in the EU - European Commission; Employment gaps for women & people with disabilities - Eurostat 
15 OECD (2025), To Have and Have Not – How to Bridge the Gap in Opportunities, OECD Publishing, Paris,https://doi.org/10.1787/dec143ad 
16 Impact assessment for the 2040 climate target, SWD(2024) 63 final, Part 2/5, Annex 7, Section 3 
17 Economic losses from weather- and climate-related extremes in Europe | Indicators | European Environment Agency (EEA). Out of the 
EUR 822 billion climate-related economic losses that occurred in the last 45 years, 25% happened in the last 4 years only 

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that  life  is  not  fair.18  This  perception  highlights  the  importance  of  addressing  emerging 
disparities,  leading  to  the  transmission  of  economic  disadvantages  from  one  generation  to 
another, before they become structural.  

Inaction can also affect democratic resilience. When policies are perceived as insufficiently 
responsive to generational change, confidence in institutions can decline. While trust in the EU 
remains comparatively high, it is essential that we build on this confidence to strengthen citizen 
engagement  and  democratic  resilience.  Social  isolation  can  correlate  with  lower  civic 
participation, lower voter turnout and overall reduced political engagement.19 Disinformation 
can erode trust in institutions and media, put elections at risk, and hamper citizens’ ability to 
make informed decisions.20 This makes societies become more exposed to shocks, more reliant 
on reactive responses, and less able to invest confidently in the future.  

The cost of non-action on intergenerational fairness is therefore not only economic; it is 
also democratic, social and environmental. Addressing today’s pressures on housing, skills, 
access  to  the  labour  market,  public  finances,  natural  resources,  climate,  care  and  welfare 
systems  and  access  to  services  offers  a  meaningful  opportunity  to  empower  younger 
generations, while reaffirming solidarity and fairness across all ages. Intergenerational fairness 
is thus not an additional objective, but a condition for stability, legitimacy as well as sustainable 
and clean growth for the decades ahead. 

4. Building new foundations for fairness: a new Intergenerational 
‘Contract’ 

Intergenerational fairness depends on consolidating the foundations on which solidarity 
between generations rests. This strategy presents a new intergenerational ‘contract’, built in 
response  to  the  European  Citizens’  panel  recommendations,  reflecting  the  need  to  expand 
opportunities over time, address disparities across territories and ensure that decisions are taken 
with a longer-term perspective. It provides a common framework for aligning foresight, 
fairness and responsibility, so that today’s choices strengthen opportunities for both current 
and future generations and for strengthening the EU’s social fabric by bringing generations 
together around common goals, shared responsibility and a collective investment in the future.  

The new Intergenerational ‘contract’ builds on  three dimensions: 1) Fair policymaking, 
that  embeds  long-term  thinking  and  the  youth  perspective;  2)  Fair  opportunities  uniting 
generations  around  shared  goals  for  a  better  future  and  3)  Fair  places  that  foster 
intergenerational fairness across territories.  

4.1.  Fair  Policymaking  -  embedding  long-term  thinking  and  the  youth 
perspective  

Fair  policymaking  requires  that  the  long-term  impacts  of  decisions  are  systematically 
considered alongside short-term objectives. Laws, budgets and reforms shape opportunities 
over time, and choices made today can create lasting benefits - or costs - for future generations. 

18 Fairness, Inequality and Inter-Generational Mobility - February 2023 - - Eurobarometer survey 
19 Loneliness risk factors and consequences - The Joint Research Centre: EU Science Hub 
20 EU Code of Practice on Disinformation | European Commission. 63% of younger Europeans come across fake news more than once a 
week while 51% of Europeans think they have been exposed to disinformation online 

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Taking a longer-term and systemic perspective helps ensure that short-term solutions do not 
generate avoidable risks or burdens down the line. 

This implies anticipatory and evidence-based governance approaches. Through its Better 
Regulation agenda, the EU is a front-runner when it comes to good governance and anticipatory 
decision-making.21  It  uses  several  tools  such  as  strategic  foresight,  impact  assessments  and 
public consultations to make evidence-based consideration of trade-offs that help identify risks 
early and inform policy choices. These approaches support more resilient and sound policies 
across sectors. 

Fair policymaking also depends on ensuring that the perspectives of those most affected 
by decisions with long-term impact have a seat at the discussion table. This means creating 
meaningful  and  proportionate  opportunities  for  young  people  to  contribute  to  policy 
discussions that shape their future. 

Today’s  decisions  often  imply  significant  impacts  on  future  generations,  be  it  from  an 
economic, social or environmental perspective. The actions below will further ensure that long-
term considerations are coherently integrated into the design of policies. 

To support fair policymaking, the Commission will: 

1.  Support building futures literacy in public administrations across EU Member States by 

publishing a multilingual Future Oriented Policymaking package. 

2.  Reinforce the use of strategic foresight in policymaking, for instance by supporting the 
Futures  Balance  Tool,  an  AI-enabled  tool  for  forward-looking  policy  analysis  in 
development in partnership with the UN Beyond Lab. 

3.  Continue  the  systematic  application  of  the  Youth  Check,  including  Youth  Policy 
Dialogues,  to  the  key  initiatives  of  the  Commission  work  programme  to  examine  the 
potential impact of new policies on young people. 

4.  Task  the  European  Group  on  Ethics  in  Science  and  New  Technologies  (EGE)  with 
providing  analysis  and  recommendations  on  Fair  Digital  Futures, AI  and  Digital  Public 
Goods. 

5.  Publish an intergenerational fairness strategy progress report in early 2028 to inform 

EU contributions to UN follow-up to the Declaration on Future Generations. 

6.  Publish a Longevity Roadmap, meant to map age-specific policy issues for all age groups 
to identify strategic opportunities for actively shaping longer, healthier and financially secure 
lives.  

Inspiring practices across EU Member States  

•  Examples of institutionalisation of long-term thinking can be found in many EU Member States 
through different forms: In Finland (Committee for the Future22), Spain (National Office of Foresight 
and Strategy23), and in Malta (Guardian of Future Generations24). 

•  Many EU Member States have specific Regulatory Impact Assessments on youth and/or future 
generations: Austria (Wirkungsorientierte Folgenabschätzung), Belgium/Flanders (JoKER), Finland 
(Lapsivaikutusten  arviointi),  France  (Clause  d'impact  jeunesse),  Germany  (Jugend-Check),  Italy 

21 OECD (2025), Better Regulation Practices across the European Union 2025, OECD Publishing, Paris, https://doi.org/10.1787/6f007516 
22 The Finnish "Committee for the Future” is a permanent parliamentary body that institutionalises foresight into governance. 
23 The Spanish “National Office of Foresight and Strategy” coordinates the "Spain 2050" roadmap, institutionalizing strategic foresight within 
governance to align current policies with long-term intergenerational equity targets. 
24 The Maltese “Guardian of Future Generations” is a high-level commission that audits government sectors to ensure sustainable development 
policies do not compromise future citizens. 

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(Valutazione  di 
(Barnkonsekvensanalys). 

Impatto  Generazionale), 

the  Netherlands 

(Generatietoets),  and  Sweden 

4.2.  Fair  Opportunities  –  uniting  generations  around  shared  goals  for  a 
better future  

Fair opportunities require that children and young people can build their lives on solid 
foundations. Early life conditions strongly shape later outcomes, while disadvantages that are 
not  addressed  early  tend  to  accumulate  over  time.  An  intergenerational  approach  therefore 
places  priority  on  early  prevention,  targeted  support  and  well-managed  transitions  into 
adulthood and it recognises that fair opportunities are built across the life course. 

Policies  that  focus  on  children  and  young  people,  notably  those  with  a  disadvantaged 
background  and/or  facing  discrimination,  are  essential  to  ensuring  fairness  between 
generations. This includes sustained investment in early childhood development, education, 
training  and  skills,  cultural  access,  participation  and  infrastructure,  recreational  activities, 
access to health, access to housing, transport and other essential services, as well as targeted 
support at key transition points in life such as leaving school, entering the labour market, or 
forming  an  independent  household.  It  also  includes  promoting  financial  literacy,  which  is 
essential  to  empower  young  people  to  secure  their  financial  independence  and  financial 
inclusion.25 By addressing risks early and supporting children in need,26 these measures help 
prevent inequalities from becoming entrenched and reduce pressure on social systems over the 
long term. In order to be effective, these measures need to go beyond the focus on age and take 
into account the specific needs of vulnerable and disadvantaged groups. 

Intergenerational fairness can only exist when there is a fair distribution of the wealth 
created  by  society.  Inequalities  in  wealth  distribution,  and  differences  in  wealth  and 
inheritance taxation in our societies shape how risks and opportunities are transmitted across 
generations. Removing structural barriers that disproportionately affect younger cohorts is also 
critical  to  break  intergenerational  transmission  of  disadvantages,  while  at  the  same  time 
ensuring  that  older  people  can  remain  secure,  included  and  able  to  contribute  as  they  age. 
Housing  affordability,  access  to  education  and  training,  stable  and  rewarding  employment 
paths, high quality healthcare – including mental health care – and the ability to combine work, 
learning, private and family life shape whether young people can contribute fully to society 
and  plan  confidently  for  the  future.  To  a  large  extent,  they  also  enable  intergenerational 
neighbourhoods, engagement and dialogue.  

Translating  these  principles  into practice  requires  targeted,  evidence-based  actions.  In 
this  context,  the  strategy  focuses  on  strengthening  the  analytical  base  for  intergenerational 
fairness through the compilation of a dedicated Intergenerational Fairness Index. It will be 
designed to capture inequalities in opportunities across current generations and over time by 
monitoring metrics that are closely associated with intergenerational fairness. The strategy will 
also  boost  citizens  engagement  by  unifying  generations  around  shared  goals,  strengthening 
intergenerational dialogue and cooperation, amplifying the voices of children and young people 
and combating age discrimination by sharing best practices across Member States.  

25 Actions  to  promote  financial  literacy  have  been  spelled  out  in  European  Commission  (2025),  Communication  on  a  Financial  Literacy 
Strategy for the EU, COM(2025) 681 final. 
26 Along the principles of the European Child Guarantee, European Child Guarantee - Employment, Social Affairs and Inclusion. 

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To support fair opportunities, the Commission will: 

1.  Compile an Intergenerational Fairness Index to identify opportunities and gaps, inform policy 

decisions and promote fairness across generations. 

2.  Support the development of a compendium of best practices on age equality by the High-
Level Group on Non-Discrimination, Equality and Diversity building on the forthcoming study 
on discrimination on the grounds of age in the EU which provides an overview of national action 
plans or measures on age equality. 

3.  Encourage  collaborative  research  activities  promoting  intergenerational  fairness  under 

Horizon Europe. 

4.  Organise a Demography Forum as a place for exchange and mutual learning on addressing 

demographic developments. 

5.  Boost citizens engagement – particularly of young people – by supporting participatory and 

consultative processes including through:  

a.  Promoting Intergenerational dialogues, participatory budgeting, participatory foresight, 

citizens’ panels and innovative online civic tech tools. 

b.  Organising the 2026 European Youth Week dedicated to solidarity and fairness. 
c.  Raising awareness particularly around November 16 as a day marking Intergenerational 

Fairness.  

6.  Strengthen the intergenerational fairness dimension in EU youth and sport policies through 
the post 2027 EU Youth Strategy and EU Work Plan for Sport, as well as strengthen child 
participation in EU policy making, by upholding children’s rights in all relevant EU policies27 
and building on the EU Children’s Participation Platform.28 

Inspiring practices across EU Member States  

• 

• 

• 

In the Netherlands, the Promising Start action programme supports children and their parents in 
the first 1000 days.  
In Belgium, CALICO is an EU-funded housing project in Brussels supporting intergenerational 
solidarity, women’s housing, and affordable ownership.  
In Poland, the Together with Seniors  -  Gardening Workshops promote intergenerational bonds 
and community integration as part of a European Solidarity Corps project. 

4.3.  Fair Places - ensuring intergenerational fairness across territories  

Intergenerational  fairness  is  shaped  not  only  by  age,  gender  and  socio-economic 
background,  but  also  by  location.  Where  people  live  influences  strongly  their  access  to 
education, culture, jobs,  housing, services, digital infrastructure, mobility, and opportunities 
for democratic and societal participation. Territorial disparities - between urban and rural areas, 
cross-border regions and disadvantaged neighbourhoods - can amplify inequalities over time. 

A territorial perspective on intergenerational fairness focuses on ensuring that different 
generations are not disadvantaged by geography. This requires policies that take account of 
local conditions and climate impact and invest in the long-term capacity of places to support 
opportunity across generations. Access to affordable and sustainable housing, quality public 
services, including social and care services, transport, digital connectivity, social infrastructure 

27 EU strategy on the rights of the child , COM(2021) 142 final. 
28 EU Children’s Participation Platform | European Union. 

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and recreation facilities are central to whether people can remain, return, or build their futures 
in their communities. At the same time, educational mobility and free movement of workers 
improve opportunities, notably for young people, allowing the transfer of skills, knowledge, 
and supporting long-term sustainable competitiveness and growth. 

Strengthening intergenerational connections at local level also contributes to resilience 
and social cohesion. Community facilities, shared public spaces, and local services can support 
interaction across age groups, reduce isolation, and foster mutual support—particularly in areas 
facing  demographic  change  or  economic  transition.  Enhancing  people’s  access  to  and 
participation in culture fosters shared values and social cohesion, empowering all generations.  

Ensuring  fair  places  is  about  targeted,  place-based  actions  -  conducted  in  conjunction 
with local and regional authorities - that strengthen opportunities for younger generations, 
support healthy and active ageing within local communities, foster the exchange of experiences 
across  territories  and  promote  initiatives  that  reinforce  intergenerational  connections  within 
communities. 

To support fair places, the Commission will: 

1.  Launch the Voices of the Future initiative with the Committee of the Regions, inviting local 
and regional authorities to engage in shaping their regions’ future (announced in the European 
Democracy Shield). 

2.  Foster  inspiration,  connection  and  mutual  care  by  building  intergenerational  partnerships 
with  libraries,  museums,  sport  organisations  and  community  centres,  as  well  as  cultural, 
academic, creative, forward-looking programs such as:  
a.  Promoting  intergenerational  cultural  exchanges  and  inclusion  in  line  with  the  Culture 

Compass for Europe. 

b.  Highlighting  inclusive,  accessible  and  sustainable  transport  solutions  for  all  generations 

through the European Mobility Week 2026. 

c.  Promoting  intergenerational  activities  through  sport,  particularly  initiatives  that  unite 
generations  and  provide  easier  access  to  sport  and  physical  activity  for  all  ages  –  with  a 
#BeActive EU Sport award for the category “across generations”. 

3.  Safeguard and regenerate public spaces for strengthened social cohesion and sustainability 
through  the  New  European  Bauhaus  initiative  and  its  community-led  activities  and  through 
knowledge on the role of public spaces for democratic resilience. 

Inspiring practices across EU Member States  

•  Across Europe, the project Phōnē - Giving Minority Languages a Voice is focused on promoting 
cultural and linguistic diversity by connecting minority language speakers across Europe, fostering 
intergenerational storytelling and community theatre productions. 
In  Slovenia, The  Pulse  of  European  Literature  translates  and promotes  contemporary  European 
works  to  foster  European  identity  and  inclusivity,  engaging  audiences  of  all  ages  through 
intergenerational collaboration and digital media. 

• 

•  Across  Europe,  the  European  Heritage Volunteers  programme  revitalises  heritage  sites  through 
"Traditional Crafts in Practice" training courses, bridging generations and cultures, and demonstrating 
sustainable heritage practices for climate resilience. 
In  France,  “La  république  des  hyper  voisins”  regroup  inhabitants  of  a  Paris  neighbourhood  to 
organise once a year an event where everyone is invited to connect by eating together in the street. 

• 

9 

 
 
 
 
 
 
 
5. Mainstreaming intergenerational fairness across EU policies 

Intergenerational fairness is not a new policy field. It is an invitation to look more clearly at 
the  long-term  consequences  of  existing  choices  and  to  make  sure  that  the  cost,  risks  or 
constraints of our decisions taken today will not be shifted from one generation to another.  

Mainstreaming  intergenerational  fairness  across  policymaking  is  one  of  the  key 
objectives  of  this  strategy.  Unless  it  is  systematically  factored  into  the  design, 
implementation,  and evaluation  of policies, it cannot  be effective. Intergenerational  fairness 
should  therefore  not  be  treated  as  a  separate  policy  strand,  but  as  a  guiding  principle 
underpinning  all our policies and spending.  It requires, among  other things, that we protect 
young people not only through smart investment, but by ensuring they are not left to service 
the debts of the past. It requires tools to make sure that the reforms we start today are designed 
with  their  long-term  impact  in  mind.  It  also  requires  to  ensure  the  interests  of  seniors  are 
integrated in policymaking. This approach is reflected in the Multiannual financial framework 
(notably via the European Social Fund+29) or the European Semester, which is the framework 
for economic and employment policy coordination in the EU, by adopting long-term reforms 
that are both adequate and sustainable. Within this framework, the European Commission - as 
an employer - can lead by example, by reinforcing its commitment to zero tolerance of age-
based discrimination and by fostering intergenerational collaboration within the workplace. 

The  EU  already  acts  in  many  areas  with  the  idea  of  bringing  in  significant  long-term 
effects.  The  purpose  of  this  section  is  therefore  to  highlight  where  integrating  an 
intergenerational  perspective  adds  clear  value,  strengthens  coherence,  and  supports  the 
durability and legitimacy of EU action in the light of its commitments to the Pact of the Future 
and the Declaration on Future Generations. 

… by Building competitiveness without resource depletion  

Intergenerational  fairness  depends  on  Europe’s  capacity  to  remain  competitive, 
innovative  and  economically  resilient  over  time.  To  safeguard  the  wellbeing  of  future 
generations, growth must be pursued in a way that does not deplete the resources on which 
their wellbeing depends. Investment in future-oriented industries creates  quality jobs within 
Europe, strengthens sustainable competitiveness and supports leading strategic autonomy and 
a robust, competitive economy. Future proof, sustainable economic and industrial policies that 
foster competitive markets are vital for quality employment and sustainable public finances. 
Investment  in  infrastructure  and  innovative  companies  are  equally  essential  to  expanding 
opportunities for both current and future generations.30 By supporting productivity, strategic 
autonomy and the development of future-oriented industries, competitiveness  contributes to 
intergenerational fairness by ensuring that future generations inherit strong capital, social and 
environmental assets, as well as a robust and adaptable economic base.  

29 The European Social Fund + can support many actions that mitigate the impact of demographic change, such as access to employment 
(including for older people, youth and women), access to childcare and long-term care services, education and skills, and the implementation 
of  the  Child  and Youth  Guarantees. This  focus  is  further  reinforced  in  the  Commission’s  proposals  for  the  next  MFF,  which  introduce  a 
dedicated ESF article on demographic change.  
30 See for example the European industrial strategy, the Competitiveness Compass or the EU Startup and Scaleup Strategy 

10 

 
 
 
… Investing in people and promoting a strong European social model 

Intergenerational  fairness  is  strong  where  policies  expand  people’s  capacity  to 
participate, adapt, and plan across their lives. This means strong social protection and care 
systems, where everyone, at every stage of life, can rely on support when needed.31  

Skills and lifelong learning are central to ensuring that all generations can adapt to economic 
and technological change, while enabling older workers to remain active. EU initiatives such 
as the Union of Skills and the European Education Area support Member States in anticipating 
and responding to skills needs, promoting up- and reskilling to prolong working lives, closing 
the digital skills gap, modernising education and training systems, and where needed attracting 
talent from outside Europe.32 The Blue Carpet Initiative included in the EU Startup and Scaleup 
Strategy  supports  the  attraction  and  retention  of  highly  skilled  professionals,  students  and 
researchers to Choose Europe. 

Strong cultural and sport policies play a central role in advancing intergenerational fairness, 
strengthening  social  inclusion  and  underpinning  long-term  sustainability  by  fostering 
participation, solidarity and shared values across age groups.  

EU  programmes  such  as  Erasmus+  support  skills  development,  active  citizenship  and 
lifelong  learning  for  all  age  groups,  help  foster  the  development  of  social  and  intercultural 
competences, critical thinking and media literacy and (particularly through its youth strand) 
promote  intergenerational  fairness  and  learning.  The  European  Solidarity  Corps33  supports 
intergenerational  teams  of  volunteers  at  local  and  regional  level  to  acquire  skills,  key 
competences and European values, contributing to intergenerational solidarity and fairness. 

Housing  affordability  has  emerged  as  a  particularly  visible  intergenerational  challenge.34 
Young  people  increasingly  face  barriers  to  accessing  social,  well-connected  and  affordable 
housing,  while  many  older  people  live  in  inadequate  or  isolated  conditions.  EU  action 
contributes through investments, enabling measures, driving reforms and targeted initiatives 
that  improve  access  to  affordable  and  adequate  housing,  complementing  efforts  at  national, 
regional and local levels.  

Ageing  societies  also  raise 
intergenerational  questions  around  adequacy  and 
sustainability  of  pensions,  health  and  long-term  care,  whereby  intergenerational  fairness 
means  balancing  adequacy  with  fiscal  sustainability.35  Tackling  challenges  arising  from 
demographic  and  labour  market  transformations  requires  a  broad  policy  mix,  including 
strengthening supplementary pensions to provide additional income in old age for retirees.36 

31 EU programmes such as EU4Health, or initiatives like the Quality Jobs Roadmap, the upcoming Anti-Poverty Strategy, the strengthened 
European Child Guarantee, the European Care Strategy and the Council Recommendation on access to affordable high-quality long-term 
care aim at strengthening access to care and supporting caregivers, fostering quality jobs, ensuring access to key services and protections and 
breaking cycles of poverty. 
32 The Union of skills adopted by the Commission in 2025 aims to support the development of quality, inclusive and adaptable education, 
training and skills systems to empower people across Europe with the skills they need to thrive, and increase the EU’s competitiveness, with 
initiatives such as a Basic Skills Support Scheme, an EU Teachers and Trainers Agenda, European School Alliances, and a 2030 Roadmap on 
the future of digital education and skills. 
33 European Solidarity Corps | European Youth Portal 
34 The European Citizens’ Panel on Intergenerational Fairness highlighted the importance of safe homes, strong communities, and dignified 
living for all generations. 
35 The Commission will publish in 2027 several reports on social protection systems. The Report on Adequate Social Protection in Old Age 
will analyse in an integrated manner how European social protection systems help protect living standards of the older population through 
pension, long-term care and related policies, while the 2027 Ageing Report will focus on projections showing the economic and budgetary 
impact of an ageing population over the long term, covering the period up to 2080. 
36 The Commission has issued in November 2025 a set of initiatives, to promote the development and uptake of supplementary pensions in 
the  Member  States,  including  the  Commission’s  Recommendation  on  Pension  tracking  systems,  pension  dashboards  and  auto-enrolment, 
C/2025/9300 final. 

11 

 
 
 
The  European  Preparedness  Union  Strategy37  –  in  line  with  the  Niinistö  report  “Safer 
Together – A path towards a fully prepared Union”38 – promotes a whole-of-society approach 
to  preparedness  and  security  with  actions  directed  to  younger  and  older  generations  and 
vulnerable people.39 

The European Democracy Shield and the EU strategy for civil society aim at strengthening 
democratic  resilience  by  adopting  a  whole  of  society  approach,  amongst  others  by 
strengthening  civic  participation  and  intergenerational  connections.40  Safeguarding  the 
integrity of today’s democratic system contributes to ensuring that future generations inherit a 
political environment based on transparency, participation and accountability, which is a core 
prerequisite for intergenerational fairness. 

… Advancing the twin transition within planetary boundaries 

The EU’s green and digital transition have clear intergenerational implications. They call 
for  a  rethinking  of  how  the  EU  uses  resources,  protects  its  ecosystems,  equips  workers, 
businesses and citizens, delivers competitiveness, respects the ecological limits within which 
future generations must live.  

EU  climate  and  environmental  policies  are  at  the  heart  of  EU  action  to  safeguard  the 
planet for those yet to come. Intergenerational aspects are intrinsic to climate policy as any 
delay  in  action  implies  higher  costs  for  future  generations.  The  flagship  initiatives  of  the 
European  Green  Deal  and  the  European  Ocean  Pact  aim  at  reaching  climate  neutrality, 
reducing emissions and use of finite resources, decrease pollution, increase circularity, protect 
biodiversity and support green transitions across sectors to build a competitive economy. The 
EU-owned  space-based  assets  like  Copernicus  and  Galileo  provide  data  with  unmatched 
precisions and enable monitoring and informed decision making. The European Climate Pact 
brings  together  communities,  individuals,  organisations  from  all  over  the  EU  and  across 
various generations to exchange best practices, develop climate solutions and help build a clean 
and  prosperous  Europe.  The  European  Preparedness  Union  Strategy  calls  for  reinforcing 
volunteering  and  strengthening  citizenship  and  preparedness  skills.  The  Just  Transition 
Mechanism  including  the  Just  Transition  Fund  and  Platform,  as  well  as  the  Social  Climate 
Fund  help  prevent  new  inequalities  by  supporting  regions,  communities,  vulnerable 
households, transport users and small businesses most affected by the transition, ensuring that 
climate neutrality leaves no one behind.41 Initiatives such as the All-Atlantic Ocean Research 
and Innovation Alliance’s Blue Intergenerational Programme and the EU Bioeconomy Youth 
Ambassadors Programme empower youth to engage in policy discussions on the ocean and 
water,  on  sustainable  food  systems  and  bioeconomy.  The  upcoming  EU  Water  Resilience 
Stakeholder  Platform  has  dedicated  seats  for  youth  representatives,  in  line  with  the  Water 
Resilience Strategy.  

The digital transformation and the emergence of artificial intelligence (AI) present clear 
opportunities for Europe to improve the well-being of its citizens, foster sustainable innovation, 
bolster the European scientific system and reinforce its competitiveness. EU digital and skills 
initiatives contribute by supporting digital literacy, fair labour transitions and the responsible 

37 EU preparedness union strategy 
38 Safer together: A path towards a fully prepared Union - European Commission 
39 See for instance Action 29 on school curricula, Action 30 on youth programmes and Action 27 on awareness about risks and threats, which 
has a component on vulnerable people,  
40 European Democracy Shield and EU Strategy for Civil Society 
41 The Commission published its first recommendation on addressing transport poverty in May 2025. It highlighted the vital role of transport 
in promoting economic development, wellbeing and social fairness by supporting access to quality jobs, including for people at risk of poverty 
and social exclusion and certain vulnerable groups of society, as well as its contribution to enhancing intergenerational fairness and solidarity. 

12 

 
 
 
use  of AI  in  ways  that  will  be  crucial  to  build  the  workforce  of  tomorrow. The  EU  is  also 
building a favourable ecosystem to encourage breakthrough innovation in new technologies 
such  as AI,  neurotechnology and  quantum  that  is  human-centred,  ethical  and  right-based.42 
Intergenerational fairness in the digital age therefore requires ensuring broad access to digital 
infrastructure, inclusive skills development across all ages and particularly for seniors, as well 
as a human-centered deployment  of AI and innovations that expand opportunity  rather than 
reinforce divides.43 In line with this, the Commission has launched a pilot programme of small 
grants for intergenerational media literacy learning projects.  

Space technology underpins access to essential services, economic growth and environmental 
resilience. Currently, the space domain is becoming increasingly congested – expanding risks 
to our space assets and security. Initiatives such as the EU Space Act and the Vision for the 
Space  Economy  are  key  to  ensuring  that  space  is  safe,  secure  and  sustainable  for  future 
generations. 

… Delivering impact through local and global action  

Intergenerational fairness is especially tangible where access to livelihoods, assets, and 
opportunities is at stake. In agriculture, fisheries and rural sectors, ageing workforces and 
high barriers to entry threaten long-term viability. EU policies support generational renewal by 
improving  access  to  land  and  sea,  finance,  training,  and  knowledge  transfer,  and  by 
strengthening rural and coastal areas as places where young people can build viable futures.44  

At local and regional level, strong, connected communities help translate long-term policies 
into  lived  experience,  supporting  cooperation  across  age  groups,  enhancing  inclusion  and 
reducing  isolation,  particularly  in  contexts  of  demographic  change,45  urbanization,46  or 
territorial  disadvantage.  Access  to  services,  mobility,  shared  public  spaces,  local  social  and 
cultural infrastructure influences whether people of different generations can participate fully 
in  economic,  social  and  democratic  life.  EU  action,  particularly  through  Cohesion  and 
Agricultural  Policy,  supports  national,  regional  and  local  authorities  in  strengthening 
community-level  resilience through territorial  investment,  inclusive urban, coastal  and rural 
development,47 and improved access to services. It aims at ensuring a Right to Stay and thrive 
in places that people call their homes. 

At global level, the EU’s approach is anchored in recent multilateral commitments. At the UN 
Summit of the Future, the EU and its Member States endorsed the Pact for the Future and the 
Declaration on Future Generations, which underline the importance of multilateralism and the 
promotion of a rules-based international order, with the UN at its core to promote peace.48 The 

42 See for instance Regulation (EU) 2024/1689 which ensures that AI systems are safe, trustworthy, and respect fundamental rights while 
promoting innovation. 
43 The  European Citizens’  Panel  on  Intergenerational  Fairness highlighted the  importance  of  establishing  boundaries for AI use  to  ensure 
responsible access, ethical standards, and mitigate potential risks. 
44 The Strategy for generational renewal in agriculture aims to double the share of young and new farmers, ensuring that agriculture remains 
innovative, competitive and resilient. It also echoes with the European Citizens’ Panel on Intergenerational Fairness which highlighted the 
importance of strengthening sustainable farming with increased EU financial support and food security and sovereignty. Generational renewal 
in ocean-related jobs will be addressed in the Vision 2040 for fisheries and aquaculture (2026) and the Blue Generational Renewal Strategy 
(2027). 
45 The 2023 Demography toolbox highlights the risks of an ageing EU population to the EU’s long-term competitiveness. It combines EU tools 
to national and regional policies to empower all generations, to realise their life choices and their potential in the economy and society at large. 
46 The EU Agenda for Cities 2025 strengthen the territorial and urban dimensions of EU policies and streamline existing support for urban 
areas. Furthermore, the Horizon Europe Mission on Climate-Neutral and Smart Cities strengthens societal resilience and innovation through 
its explicit focus on citizens engagement and multi-stakeholder governance. 
47 To ensure that rural areas can continue to play these essential roles, the European Commission published its long-term vision for the EU’s 
rural areas up to 2040 in 2025. Similar strategies for coastal communities and islands are expected in 2026. 
48  The  European  Citizens’  Panel  on  Intergenerational  Fairness  highlighted  the  importance  of  strengthening  diplomacy  and  the  EU’s 
peacekeeping role as the primary tool for conflict resolution 

13 

 
 
 
latest polls as well as the European Citizen’s panels show that the security and defence of the 
EU are among the most pressing concerns of Europeans, especially young people. Achieving 
strategic  autonomy  in  the  EU  that  provides  security  and  peace  for  its  citizens,  who  are  not 
constrained by instability, dependence and conflicts, is an investment for all current and future 
generations. The Global Gateway, the EU external investment strategy, ensures that long term 
investments  contribute  to  support  public  policy  objectives  in  partner  countries  anchored  in 
intergenerational fairness, by promoting local skills, youth engagement, vocational education 
and  training  and  decent  jobs,  contributing  to  greener  and  healthier  societies  and  reducing 
multidimensional  inequalities.  EU  global  action  on  climate  aims  at  mobilising  international 
cooperation to deliver on the Paris Agreement and ensure a sustainable environment for future 
generations. 

Strengthening  relations  with  the  EU’s  wider  neighbourhood  and  building  up  defence 
readiness and capabilities through the SAFE instrument are investments for a peaceful future. 
Cooperation  frameworks  such  as  the  Pact  for  the  Mediterranean,  support  jointly  owned 
initiatives  that  promote  investment  in  skills,  economic  development,  resilience  and  social 
cohesion across the region, recognising the role of people – especially young people – as drivers 
of innovation and shared prosperity.  

EU enlargement is also one of the EU’s most consequential long-term investments. A credible, 
fair,  and  merit-based  enlargement  process  strengthens  peace,  stability  and  opportunity,  and 
expands  prospects  for  young  people  both  in  current  Member  States  and  in  candidate  and 
potential candidate countries. In this sense, enlargement is an intergenerational commitment as 
much as a geopolitical one. In line with the Commission’s objectives, candidate and potential 
candidate countries will be invited to participate in the actions presented in this strategy along 
with EU Member States wherever possible and feasible. 

6. Next steps - collaboration for intergenerational fairness 

Intergenerational  fairness  is  not  a  single  policy,  but  a  way  of  making  policy  that 
consistently considers long-term impacts and seeks to ensure that decisions taken today do 
not undermine but rather enhance future well-being.  

Advancing intergenerational fairness requires a deliberate and sustained effort over time, 
rather than a one-off reform. It calls for iterative, reflective, and adaptive approaches that can 
evolve  with  changing  needs,  evidence,  and  circumstances,  and  that  are  embedded  within 
existing policymaking processes.  

Within  this  process,  the  European  Commission  can  lead  by  example,  by  applying  the 
principles it promotes and by making effective use of existing tools to better integrate long-
term considerations into its work. Progress will depend on cooperation across EU institutions 
and with Member States, as well as on engagement at regional and local level. 

Intergenerational fairness is already reflected in a range of EU initiatives, practices, and 
policy choices. This strategy builds on that reality by supporting greater coherence, visibility, 
and exchange of experience, and by encouraging reflection on how long-term perspectives can 
be strengthened within existing frameworks.  

The Commission invites the European Parliament and the Council of the EU to consider, 
within their respective roles, how intergenerational aspects can be further taken into account in 
policymaking. EU Member States are encouraged to continue embedding long-term thinking 

14 

 
 
in public decision-making, in line with national contexts and competences and to increase the 
awareness of various aspects of intergenerational fairness. 

By reinforcing  these approaches, the  EU can  move from principles to more consistent 
practice,  improving  the  capacity  of  public  policies  to  balance  present  needs  with  future 
responsibilities and to support better outcomes for current and future generations. 

15