See Full Document Text
Official Journal EN
of the European Union L series
2025/2254 7.11.2025
COUNCIL DECISION (EU) 2025/2254
of 27 October 2025
on guidelines for the employment policies of the Member States
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular Article 148(2) thereof,
Having regard to the proposal from the European Commission,
Having regard to the opinion of the European Parliament(1),
Having regard to the opinion of the European Economic and Social Committee(2),
After consulting the Committee of the Regions,
Having regard to the opinion of the Employment Committee(3),
Whereas:
(1) Pursuant to Article 145 of the Treaty on the Functioning of the European Union (TFEU), Member States and the
Union are to work towards developing a coordinated strategy for employment and particularly for the promotion of
a skilled, trained and adaptable workforce, as well as labour markets that are inclusive, resilient, future-oriented and
responsive to economic change with a view to achieving the objectives of balanced economic growth, full
employment and social progress, and a high level of protection and improvement of the quality of the environment
as laid down in Article 3 of the Treaty on European Union (TEU). In line with Article 146(2) TFEU, Member States
are to regard promoting employment as a matter of common concern and are to coordinate their action in that
respect within the Council.
(2) Pursuant to Article 3 TEU, the Union is to combat social exclusion and discrimination, and is to promote social
justice and protection, equality between women and men, solidarity between generations and the protection of the
rights of the child. Pursuant to Article 9 TFEU, in defining and implementing its policies and activities, the Union is
to take into account requirements linked to the promotion of a high level of employment, the guarantee of adequate
social protection, the fight against social exclusion, and a high level of education, training and protection of human
health.
(3) The Union has developed and implemented policy coordination instruments for economic and employment policies.
As part of those instruments, the guidelines for the employment policies of the Member States (the ‘Employment
Guidelines’) set out in the Annex to Council Decision (EU) 2024/3134(4), together with the broad guidelines for the
economic policies of the Member States and of the Union set out in Council Recommendation (EU) 2015/1184(5),
form the Integrated Guidelines. The Employment Guidelines are to guide policy implementation in the Member
States and in the Union, reflecting the interdependence between the Member States. The resulting set of coordinated
Union and national policies and reforms constitutes an appropriate overall sustainable economic, employment and
social policy mix, which should achieve positive spill-over effects for labour markets and society at large, strengthen
economic and social resilience, and effectively respond to medium- and longer-term challenges, including the need
to strengthen competitiveness, uncertainty about global trade policies, as well as effects related to Russia’s war of
aggression against Ukraine and the broader geopolitical context.
(1) Opinion of 8 October 2025 (not yet published in the Official Journal).
(2) Opinion of 18 September 2025 (not yet published in the Official Journal).
(3) Opinion of 8 July 2025 (not yet published in the Official Journal).
(4) Council Decision (EU) 2024/3134 of 2 December 2024 on guidelines for the employment policies of the Member States (OJ L,
2024/3134, 13.12.2024, ELI: http://data.europa.eu/eli/dec/2024/3134/oj).
(5) Council Recommendation (EU) 2015/1184 of 14 July 2015 on broad guidelines for the economic policies of the Member States and
of the European Union (OJ L 192, 18.7.2015, p. 27, ELI: http://data.europa.eu/eli/reco/2015/1184/oj).
ELI: http://data.europa.eu/eli/dec/2025/2254/oj 1/7EN
OJ L, 7.11.2025
(4) In order to enhance economic and social progress and upward convergence, to support the green and digital
transitions, to strengthen the Union’s industrial base, productivity and competitiveness, to face demographic
challenges, and to achieve inclusive and resilient labour markets in the Union, Member States should address labour
and skills shortages and promote quality jobs as well as quality and inclusive education and training for all, in line
with the Communication of the Commission of 5 March 2025 entitled ‘The Union of Skills’, with a particular focus
on improving basic skills, based on the Action Plan on Basic Skills, as well as labour market relevant skills, including
digital and green skills, especially among disadvantaged students and adults. Member States should also boost
science, technology, engineering and mathematics (STEM) education and training, in line with the STEM Education
Strategic Plan, strengthen future-oriented vocational education and training, in particular attracting women and girls
to STEM, and lifelong upskilling and reskilling, and strive for inclusive education systems, as well as ensure effective
active labour market policies and improved working conditions and career opportunities, while respecting the role
and autonomy of the social partners. As stated in Council Recommendation of 16 June 2022(6), integrating the
education and training dimension systematically into other policies related to the green transition in a lifelong
perspective can support the implementation of those policies. Strengthening those elements is of particular
relevance for the less developed, remote and outermost regions of the Union, where needs are greater. Shortages can
be further addressed by improving fair intra-EU mobility for workers and learners and attracting and retaining talent
from outside the Union. In addition, the links between the education and training systems and the labour market
should be strengthened, and skills, knowledge and competences acquired through non-formal and informal learning
should be validated and recognised.
(5) The Employment Guidelines are consistent with the new economic governance framework of the Union, which
entered into force on 30 April 2024(7), and with existing Union legislation and various Union initiatives, including
Council Recommendations of 14 June 2021(8), 29 November 2021(9), 5 April 2022(10), 16 June 2022(11),
28 November 2022(12), 8 December 2022(13), 30 January 2023(14), 12 June 2023(15)and 27 November 2023(16),
Commission Recommendation (EU) 2021/402(17), Council Resolution of 26 February 2021(18), Commission
Communications of 9 December 2021 on building an economy that works for people: an action plan for the social
economy, of 30 September 2020 on the Digital Education Action Plan 2021-2027, of 3 March 2021 on Union of
Equality: Strategy for the Rights of Persons with Disabilities 2021-2030, of 7 September 2022 on a European Care
Strategy, of 1 February 2023 on A Green Deal Industrial Plan for the Net-Zero Age, of 25 January 2023 on
strengthening social dialogue in the European Union, of 11 October 2023 demographic change in Europe: a toolbox
for action, of 28 September 2022 on Better assessing the distributional impact of Member States’ policies, of
20 March 2024 on labour and skills shortages in the EU: an action plan, and of 5 March 2025 on the Union of
(6) Council Recommendation of 16 June 2022 on learning for the green transition and sustainable development (OJ C 243, 27.6.2022,
p. 1).
(7) Regulation (EU) 2024/1263 of the European Parliament and of the Council of 29 April 2024 on the effective coordination of
economic policies and on multilateral budgetary surveillance and repealing Council Regulation (EC) No 1466/97 (OJ L, 2024/1263,
30.4.2024, ELI: http://data.europa.eu/eli/reg/2024/1263/oj).
(8) Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee (OJ L 223, 22.6.2021, p. 14,
ELI: http://data.europa.eu/eli/reco/2021/1004/oj).
(9) Council Recommendation of 29 November 2021 on blended learning approaches for high-quality and inclusive primary and
secondary education (OJ C 504, 14.12.2021, p. 21).
(10) Council Recommendation of 5 April 2022 on building bridges for effective European higher education cooperation (OJ C 160,
13.4.2022, p. 1).
(11) Council Recommendation of 16 June 2022 on learning for the green transition and sustainable development (OJ C 243, 27.6.2022,
p. 1), Council Recommendation of 16 June 2022 on a European approach to micro-credentials for lifelong learning and
employability (OJ C 243, 27.6.2022, p. 10), Council Recommendation of 16 June 2022 on individual learning accounts (OJ C 243,
27.6.2022, p. 26) and Council Recommendation of 16 June 2022 on ensuring a fair transition towards climate neutrality (OJ C 243,
27.6.2022, p. 35).
(12) Council Recommendation of 28 November 2022 on Pathways to School Success and replacing the Council Recommendation of
28 June 2011 on policies to reduce early school leaving (OJ C 469, 9.12.2022, p. 1).
(13) Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care (OJ C 476, 15.12.2022, p. 1)
and Council Recommendation of 8 December 2022 on early childhood education and care: the Barcelona targets for 2030 (OJ
C 484, 20.12.2022, p. 1).
(14) Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion (OJ C 41, 3.2.2023, p. 1).
(15) Council Recommendation of 12 June 2023 on strengthening social dialogue in the European Union (OJ C, C/2023/1389,
6.12.2023, ELI: http://data.europa.eu/eli/C/2023/1389/oj).
(16) Council Recommendation of 27 November 2023 on developing social economy framework conditions (OJ C, C/2023/1344,
29.11.2023, ELI: http://data.europa.eu/eli/C/2023/1344/oj).
(17) Commission Recommendation (EU) 2021/402 of 4 March 2021 on an effective active support to employment following the
COVID-19 crisis (EASE) (OJ L 80, 8.3.2021, p. 1).
(18) Council Resolution on a strategic framework for European cooperation in education and training towards the European Education
Area and beyond (2021-2030) (OJ C 66, 26.2.2021, p. 1).
2/7 ELI: http://data.europa.eu/eli/dec/2025/2254/ojEN
OJ L, 7.11.2025
Skills, Decisions (EU) 2021/2316(19) and (EU) 2023/936(20) of the European Parliament and of the Council, and
Directives (EU) 2022/2041(21), (EU) 2022/2381(22), (EU) 2023/970(23) and (EU) 2024/2831(24) of the European
Parliament and of the Council.
(6) The European Semester combines various instruments in an overarching framework for integrated multilateral
coordination and surveillance of economic and employment policies within the Union. The European Semester is
a key tool for delivering on the priorities defined in the Competitiveness Compass, which provides a framework to
boost competitiveness by closing the innovation gap, decarbonising the Union’s economy, reducing excessive
dependencies and increasing security, and which sets out horizontal enablers that include skills, quality jobs and
social fairness. The European Semester integrates the principles of the European Pillar of Social Rights, proclaimed
by the European Parliament, the Council and the Commission in November 2017(25)(the ‘European Pillar of Social
Rights’), and its monitoring tool, the Social Scoreboard, also making it possible to analyse risks and challenges to
upward social convergence in the Union, and provides for strong engagement with social partners, civil society and
other stakeholders. The European Semester also supports the delivery of the Sustainable Development Goals set out
by the United Nations. The economic, social and employment policies of the Union and of the Member States should
go hand in hand with the Union’s fair transition to a climate-neutral, environmentally sustainable and digital
economy, improve competitiveness and productivity, ensure adequate working conditions, foster innovation,
promote democracy at work, social dialogue, social justice, equal opportunities and upward socioeconomic
convergence, tackle inequalities and regional disparities, and fight poverty and social exclusion.
(7) Climate change and other environment-related challenges, the need to ensure a fair green transition, energy
independence and enhanced competitiveness of net-zero industries, technological sovereignty, and the need to
increase defence spending and secure Europe’s open strategic autonomy, as well as demographic changes and the
development of digitalisation, including artificial intelligence, algorithmic management, the platform economy and
teleworking are deeply transforming economies and societies in the Union. The Union and its Member States should
work together to effectively and proactively address such structural developments and adapt existing systems as
needed, recognising the close interdependence of the Member States’ economies and labour markets, and related
policies. That requires coordinated, ambitious and effective policy action at both Union and national levels, while
recognising the role of social partners, in accordance with the TFEU and with the provisions of Union law on
economic governance, taking into account the European Pillar of Social Rights. Such policy action should
encompass a boost in sustainable investment across all Union regions, a renewed commitment to appropriately
sequenced reforms and investments that enhance sustainable and inclusive economic growth, skills, the promotion
of quality jobs, productivity, competitiveness, fair working conditions, social and territorial cohesion, upward
socioeconomic convergence, resilience and the exercise of fiscal responsibility. Support should be provided from
existing Union funding programmes, and in particular the Recovery and Resilience Facility established by Regulation
(EU) 2021/241 of the European Parliament and of the Council(26) and the cohesion policy funds, including the
European Social Fund Plus established by Regulation (EU) 2021/1057 of the European Parliament and of the
Council(27) and the European Regional Development Fund governed by Regulation (EU) 2021/1058 of the
(19) Decision (EU) 2021/2316 of the European Parliament and of the Council of 22 December 2021 on a European Year of Youth (2022)
(OJ L 462, 28.12.2021, p. 1, ELI: http://data.europa.eu/eli/dec/2021/2316/oj).
(20) Decision (EU) 2023/936 of the European Parliament and of the Council of 10 May 2023 on a European Year of Skills (OJ L 125,
11.5.2023, p. 1, ELI: http://data.europa.eu/eli/dec/2023/936/oj).
(21) Directive (EU) 2022/2041 of the European Parliament and of the Council of 19 October 2022 on adequate minimum wages in the
European Union (OJ L 275, 25.10.2022, p. 33, ELI: http://data.europa.eu/eli/dir/2022/2041/oj).
(22) Directive (EU) 2022/2381 of the European Parliament and of the Council of 23 November 2022 on improving the gender balance
among directors of listed companies and related measures (OJ L 315, 7.12.2022, p. 44, ELI: http://data.europa.eu/eli/dir/2022/
2381/oj).
(23) Directive (EU) 2023/970 of the European Parliament and of the Council of 10 May 2023 to strengthen the application of the
principle of equal pay for equal work or work of equal value between men and women through pay transparency and enforcement
mechanisms (OJ L 132, 17.5.2023, p. 21, ELI: http://data.europa.eu/eli/dir/2023/970/oj).
(24) Directive (EU) 2024/2831 of the European Parliament and of the Council of 23 October 2024 on improving working conditions in
platform work (OJ L, 2024/2831, 11.11.2024, ELI: http://data.europa.eu/eli/dir/2024/2831/oj).
(25) Interinstitutional Proclamation on the European Pillar of Social Rights (OJ C 428, 13.12.2017, p. 10).
(26) Regulation (EU) 2021/241 of the European Parliament and of the Council of 12 February 2021 establishing the Recovery and
Resilience Facility (OJ L 57, 18.2.2021, p. 17, ELI: http://data.europa.eu/eli/reg/2021/241/oj).
(27) Regulation (EU) 2021/1057 of the European Parliament and of the Council of 24 June 2021 establishing the European Social Fund
Plus (ESF+) and repealing Regulation (EU) No 1296/2013 (OJ L 231, 30.6.2021, p. 21, ELI: http://data.europa.eu/eli/reg/2021/1057/
oj).
ELI: http://data.europa.eu/eli/dec/2025/2254/oj 3/7EN
OJ L, 7.11.2025
European Parliament and of the Council(28), as well as the Social Climate Fund established by Regulation (EU)
2023/955 of the European Parliament and of the Council(29)and the Just Transition Fund established by Regulation
(EU) 2021/1056 of the European Parliament and of the Council(30). Policy action should combine supply-side and
demand-side measures, while taking into account the economic, environmental, employment and social impact of
such measures.
(8) The European Pillar of Social Rights sets out twenty principles and rights to support well-functioning and fair labour
markets and welfare systems, structured around three categories: equal opportunities and access to the labour
market; fair working conditions; and social protection and inclusion. Those principles and rights give strategic
direction to the Union, ensuring that the transitions to climate-neutrality, environmental sustainability and
digitalisation and the impact of demographic change are socially fair and just and preserve territorial cohesion. The
European Pillar of Social Rights, with its accompanying Social Scoreboard, constitutes guidance to monitor the
employment, skills and social performance of Member States, including upward social convergence in the Union,
within the European Semester, to drive reforms and investments at national, regional and local levels and to
reconcile the social and the market aspects of today’s modern economy, including by promoting the social economy.
On 4 March 2021, the Commission issued 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.
(9) As recognised by the Heads of State or Government at the Porto Social Summit on 8 May 2021 (‘Porto Social
Summit’), the implementation of the European Pillar of Social Rights will strengthen the Union’s drive towards
a digital, green and fair transition and contribute to achieving upward socioeconomic convergence and addressing
demographic challenges. The Heads of State or Government stressed that the social dimension, social dialogue and
the active involvement of social partners are at the core of a highly competitive social market economy, and
welcomed the new Union headline targets. They affirmed their determination, as established by the European
Council’s Strategic Agenda 2019-2024, to continue deepening the implementation of the European Pillar of Social
Rights at Union and national levels, with due regard for respective competences and the principles of subsidiarity
and proportionality. Lastly, they stressed the importance of closely following, including at the highest level, progress
achieved towards the implementation of the European Pillar of Social Rights and the Union headline targets for
2030.
(10) The Union headline targets for 2030 were welcomed by the Heads of State or Government at the Porto Social
Summit and by the June 2021 European Council. They help, together with the Social Scoreboard, in monitoring
progress towards the implementation of the principles of the European Pillar of Social Rights as part of the policy
coordination framework in the European Semester. In addition, the Porto Social Summit called on Member States to
set ambitious national targets which, taking due account of the starting position of each Member State, should
constitute an adequate contribution to the achievement of the Union headline targets for 2030. The implementation
of the European Pillar of Social Rights and progress on the Union headline and national targets for 2030 is
monitored in the Joint Employment Report adopted by the Council in March 2025 (the ‘2025 Joint Employment
Report’), and is integrated into the monitoring tools for the European Semester. Since its 2024(31)edition, the Joint
Employment Report contains a ‘first-stage country analysis’ on potential risks to upward social convergence in line
with the Social Convergence Framework that identifies Member States which experience potential risks to be
examined in a deeper ‘second-stage analysis’. In the 2025 Joint Employment Report, 10 Member States were initially
identified, and the conclusion of the deeper analysis showed that overall challenges were not confirmed for all of
them.
(28) Regulation (EU) 2021/1058 of the European Parliament and of the Council of 24 June 2021 on the European Regional
Development Fund and on the Cohesion Fund (OJ L 231, 30.6.2021, p. 60, ELI: http://data.europa.eu/eli/reg/2021/1058/oj).
(29) Regulation (EU) 2023/955 of the European Parliament and of the Council of 10 May 2023 establishing a Social Climate Fund and
amending Regulation (EU) 2021/1060 (OJ L 130, 16.5.2023, p. 1, ELI: http://data.europa.eu/eli/reg/2023/955/oj).
(30) Regulation (EU) 2021/1056 of the European Parliament and of the Council of 24 June 2021 establishing the Just Transition Fund
(OJ L 231, 30.6.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/1056/oj).
(31) Discussions took place in the meeting of the Council (EPSCO configuration) in June 2023 on a Social Convergence Framework, with
input in the form of key messages by EMCO and SPC, based on work conducted by the dedicated joint EMCO-SPC Working Group
from October 2022 until May 2023. The Joint Employment Report 2024 contained, for the first time, on a pilot basis, a first-stage
country analysis on potential risks to upward social convergence.
4/7 ELI: http://data.europa.eu/eli/dec/2025/2254/ojEN
OJ L, 7.11.2025
(11) Following the Russian invasion of Ukraine, the European Council, in its conclusions of 24 February 2022,
condemned Russia’s actions, which seek to undermine European and global security and stability, and expressed
solidarity with the Ukrainian people, underlining Russia’s violation of international law and the principles of the
Charter of the United Nations. In the current context, temporary protection, as granted by Council Implementing
Decision (EU) 2022/382(32)and extended by Council Implementing Decision (EU) 2024/1836(33), offers assistance
in the Union to people displaced from Ukraine and allows them to enjoy minimum rights across the Union that offer
an adequate level of protection. By participating in the Union’s labour markets, persons displaced from Ukraine can
continue to contribute to strengthening the Union’s economy and help support their country and people. In the
future, the experience and skills acquired can contribute to rebuilding Ukraine. For unaccompanied children and
teenagers, temporary protection confers the right to legal guardianship and access to childhood education and care.
Member States should continue to involve social partners in the design, implementation and evaluation of policy
measures that aim to address the employment and skills challenges, including the recognition of qualifications of
people displaced from Ukraine. Social partners play a key role in mitigating the impact of that war in terms of
preserving employment and production.
(12) Reforms to the labour market, including national wage-setting mechanisms, should take into account national
practices of social dialogue and collective bargaining, as well as the autonomy of the social partners, with a view to
providing fair wages that enable a decent standard of living, including in retirement, sustainable growth and upward
socioeconomic convergence. Such reforms should allow for a broad consideration of socioeconomic factors,
including improvements in sustainability, competitiveness, innovation, the promotion of quality jobs, fair working
conditions, democracy at work, gender equality, prevention and reduction of in-work poverty, quality education,
training, and skills, public health, social protection and inclusion, demographic change and the promotion of
supplementary pensions, as well as real incomes. The importance of social dialogue in tackling challenges in the
world of work, including labour and skills shortages, was reaffirmed at the 2024 Val Duchesse Summit and in the
Pact for European Social Dialogue signed in March 2025.
(13) The Recovery and Resilience Facility and other Union funds support Member States in implementing reforms and
investments that are in line with the Union’s priorities, making economies and societies in the Union more
sustainable and resilient, and better prepared for the green and digital transitions. Russia’s war of aggression against
Ukraine has further aggravated pre-existing socioeconomic challenges, including energy poverty through higher
energy prices, while uncertainties in global trade and, more widely, those resulting from the geopolitical context
endanger growth. Member States and the Union should continue to ensure that the social, employment and
economic impacts are mitigated, and that transitions are socially fair and just, also in light of the fact that increased
open strategic autonomy and an accelerated green transition will help reduce the dependence on imports of energy
and other strategic products and technologies. Strengthening resilience and pursuing an inclusive society in which
people are protected and empowered to anticipate and manage change, and in which they can actively participate in
society and the economy, are essential.
(14) A coherent set of active labour market policies, consisting of temporary and targeted hiring and transition incentives,
skills policies, including learning for the green transition and sustainable development, and targeted, effective and
adaptable employment services, is needed to support labour market integration and transitions. It is therefore
important to make full use of untapped labour market potential, including by retaining older workers and
promoting flexible retirement paths, in line with the active inclusion approach, and in light of the green and digital
transformations, as highlighted, inter alia, in the 2024 La Hulpe Declaration on the Future of the European Pillar of
Social Rights(34). Adequate working conditions and occupational health and safety, including both the physical and
mental health of workers, should be ensured.
(32) Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass influx of displaced persons
from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and having the effect of introducing temporary protection
(OJ L 71, 4.3.2022, p. 1, ELI: http://data.europa.eu/eli/dec_impl/2022/382/oj).
(33) Council Implementing Decision (EU) 2024/1836 of 25 June 2024 extending temporary protection as introduced by Implementing
Decision (EU) 2022/382 (OJ L, 2024/1836, 3.7.2024, ELI: http://data.europa.eu/eli/dec_impl/2024/1836/oj).
(34) Signed by the Kingdom of Belgium on behalf of 25 Member States.
ELI: http://data.europa.eu/eli/dec/2025/2254/oj 5/7EN
OJ L, 7.11.2025
(15) Discrimination in all its forms should be tackled, gender equality ensured and the employment of groups that are
under-represented in the labour market supported. Equal access and opportunities for all should be ensured and
poverty and social exclusion, in particular that of children, persons with disabilities and the Roma people, should be
reduced, in particular by ensuring an effective functioning of labour markets and adequate and inclusive social
protection systems, as set out in Council Recommendations of 8 November 2019(35)and of 30 January 2023(36). In
addition, barriers to inclusive and future-oriented high-quality education and training, lifelong learning and
labour-market participation should be removed. Member States should invest in early childhood education and care,
in line with the Council Recommendation (EU) 2021/1004(37) and the Recommendation on the Barcelona targets
for 2030(38), in making vocational education and training more attractive and inclusive, in line with Council
Recommendation of 24 November 2020(39), and in digital and green skills, in line with the Digital Education Action
Plan and the Recommendations on learning for the green transition and sustainable development and on Pathways
to School Success. Access to affordable and adequate housing, including through social housing, is a necessary
condition for ensuring equal opportunities. Homelessness should be tackled, specifically through prevention
measures and by promoting access to permanent housing and the provision of enabling support services based on
concepts such as Housing First. Timely and equal access to affordable high-quality long-term care, in line with
Council Recommendation of 8 December 2022(40), and healthcare services, including prevention and health
promotion, are particularly relevant, in light of potential future health risks and in a context of ageing societies. The
potential of persons with disabilities to contribute to economic growth and social development should be further
realised, in line with the Strategy for the Rights of Persons with Disabilities, which invited Member States to set up
employment and adult learning targets for persons with disabilities. The EU Roma Strategic Framework set out in the
Communication of the Commission of 7 October 2020 entitled ‘A Union of Equality: EU Roma strategic framework
for equality, inclusion and participation’ and the Council Recommendation of 12 March 2021(41) highlight the
capacity within the marginalised Roma communities to reduce labour and skills shortages and aim to cut the
employment gap between Roma communities and the general population by at least half. New technologies and
evolving workplaces throughout the Union allow for more flexible working arrangements as well as improved
productivity and work-life balance, while contributing to the Union’s green commitments. Those developments also
bring new challenges to labour markets, affecting working conditions, health and safety at work and effective access
to adequate social protection for workers and the self-employed. Member States, in collaboration with the social
partners, should ensure that new forms of work organisation translate into quality jobs and into adequate, healthy
and safe workplaces and working conditions, as well as work-life balance, active and healthy ageing, maintaining
established labour and social rights, and strengthening the European social model.
(16) The Integrated Guidelines should serve as a basis for the country-specific recommendations that the Council
addresses to Member States. Member States should make full use of the European Social Fund Plus, the European
Regional Development Fund, the Recovery and Resilience Facility and other Union funds, including the Social
Climate Fund, the Just Transition Fund and InvestEU, established by Regulation (EU) 2021/523 of the European
Parliament and of the Council(42), as well as the Technical Support Instrument, in order to foster quality
employment and social investments, fight poverty and social exclusion, combat discrimination, ensure accessibility
and inclusion, and promote upskilling and reskilling opportunities for the workforce, lifelong learning and
high-quality education and training for all, including digital literacy and skills in order to empower citizens with the
knowledge and qualifications required for a digital, green and competitive economy. The amendments introduced by
Regulation (EU) 2024/795 of the European Parliament and of the Council(43)and the Commission Communication
on the modernised Cohesion policy: Mid-term review aim at aligning the support provided to new strategic
priorities, including to address the shortage of skills in certain sectors, such as for the development and
manufacturing of critical technologies, defence industry and sectors affected by decarbonisation and the green and
digital transitions. Member States should also make full use of the European Globalisation Adjustment Fund for
Displaced Workers established by Regulation (EU) 2021/691 of the European Parliament and of the Council(44)to
support workers who have been made redundant as a result of major restructuring events, such as socioeconomic
(35) Council Recommendation of 8 November 2019 on access to social protection for workers and the self-employed (OJ C 387,
15.11.2019, p. 1).
(36) Council Recommendation of 30 January 2023 on adequate minimum income ensuring active inclusion (OJ C 41, 3.2.2023, p. 1).
(37) Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee (OJ L 223, 22.6.2021, p. 14,
ELI: http://data.europa.eu/eli/reco/2021/1004/oj).
(38) Council Recommendation of 8 December 2022 on early childhood education and care: the Barcelona targets for 2030 (OJ C 484,
20.12.2022, p. 1).
(39) Council Recommendation of 24 November 2020 on vocational education and training (VET) for sustainable competitiveness, social
fairness and resilience (OJ C 417, 2.12.2020, p. 1).
(40) Council Recommendation of 8 December 2022 on access to affordable high-quality long-term care (OJ C 476, 15.12.2022, p. 1).
(41) Council Recommendation of 12 March 2021 on Roma equality, inclusion and participation (OJ C 93, 19.3.2021, p. 1).
(42) Regulation (EU) 2021/523 of the European Parliament and of the Council of 24 March 2021 establishing the InvestEU Programme
and amending Regulation (EU) 2015/1017 (OJ L 107, 26.3.2021, p. 30, ELI: http://data.europa.eu/eli/reg/2021/523/oj).
(43) Regulation (EU) 2024/795 of the European Parliament and of the Council of 29 February 2024 establishing the Strategic
Technologies for Europe Platform (STEP), and amending Directive 2003/87/EC and Regulations (EU) 2021/1058, (EU) 2021/1056,
(EU) 2021/1057, (EU) No 1303/2013, (EU) No 223/2014, (EU) 2021/1060, (EU) 2021/523, (EU) 2021/695, (EU) 2021/697 and
(EU) 2021/241 (OJ L, 2024/795, 29.2.2024, ELI: http://data.europa.eu/eli/reg/2024/795/oj).
(44) Regulation (EU) 2021/691 of the European Parliament and of the Council of 28 April 2021 on the European Globalisation
Adjustment Fund for Displaced Workers (EGF) and repealing Regulation (EU) No 1309/2013 (OJ L 153, 3.5.2021, p. 48, ELI: http://
data.europa.eu/eli/reg/2021/691/oj).
6/7 ELI: http://data.europa.eu/eli/dec/2025/2254/ojEN
OJ L, 7.11.2025
transformations that are the result of global trends and technological and environmental changes. While the
Integrated Guidelines are addressed to Member States and to the Union, they should be implemented in partnership
with all national, regional and local authorities, closely involving national parliaments, as well as the social partners
and representatives of civil society.
(17) The Employment Committee and the Social Protection Committee should monitor how the relevant policies are
implemented in light of the Employment Guidelines, in line with their respective mandates under Articles 150 and
160 TFEU, respectively. Those Committees and the Council preparatory bodies involved in the coordination of
economic and social policies should work closely together. Policy dialogue between the European Parliament, the
Council and the Commission should be maintained, in particular as regards the Employment Guidelines.
(18) The Social Protection Committee was consulted,
HAS ADOPTED THIS DECISION:
Article 1
The guidelines for the employment policies of the Member States, as set out in the Annex to Decision (EU) 2024/3134, are
maintained for 2025 and shall be taken into account by the Member States in their employment policies and reform
programmes.
Article 2
This Decision is addressed to the Member States.
Done at Luxembourg, 27 October 2025.
For the Council
The President
J. JENSEN
ELI: http://data.europa.eu/eli/dec/2025/2254/oj 7/7