opinion parliamentary committee, 15 July 2025
On the general budget of the European Union for the financial year 2026 - all sections
Document EMPL-AD-774291 · (2025/0210(BUD))
Committee on Employment and Social Affairs · Rapporteur: Romana Tomc
AI:In short
The Committee on Employment and Social Affairs calls on the Committee on Budgets to incorporate its suggestions into the motion for a resolution on the 2026 EU budget, focusing on social policies, employment, and poverty reduction. It underscores persistent socio-economic challenges and calls for adequate budgetary support for EU employment and social policies, including increased investment in ESF+, youth employment, child poverty, mental health, and social dialogue. It stresses the need for sufficient funding for skills, care, and cohesion policies, and calls for respecting workers' rights and ensuring public money only goes to compliant employers.
Position. The Committee on Employment and Social Affairs proposes amendments to the 2026 EU budget to increase funding for social policies, youth employment, child poverty, and social dialogue, and to ensure respect for workers' rights.
Key points
- Recalls the European Pillar of Social Rights and its Action Plan, including 2030 targets for jobs, skills, and poverty reduction.
- Expresses concern about limited margins in the Draft Budget and calls for mobilising adequate resources for EU employment and social policies.
- Calls on the Commission to prioritise mental health and reiterates the call for a directive on the right to disconnect.
- Calls on all Member States to allocate at least 12.5% of ESF+ resources under shared management to support youth employment and the Youth Guarantee.
- Calls on all Member States to allocate at least 5% of ESF+ resources under shared management to support the European Child Guarantee in 2026.
- Calls on the Commission to ensure sufficient, stable, and transparent funding for civil society organisations working on social inclusion.
- Regrets repeated cuts to budget lines for social dialogue and calls for more support for social partners and collective bargaining.
- Calls for adequate funding for the European Care Strategy and related initiatives in Budget 2026.
- Calls for adequate funding in Budget 2026 for skills policies under ESF+ and the Just Transition Fund, as well as other instruments.
- Calls for additional appropriations under the SMEs Pillar within the Single Market Programme for the Net-Zero Industry Academies in 2026.
- Underlines that cohesion policy must remain long-term and not be used as an emergency response tool.
- Calls for proper staffing and resources for EU agencies in social and employment policy areas, and for flexibility to convert SNE posts into temporary agent posts.
Who is affected
- Member States: must allocate minimum percentages of ESF+ resources to youth employment and child guarantee activities.
- Civil society organisations: should receive sufficient, stable, and transparent funding.
- Social partners and trade unions: need more support for social dialogue and training.
- EU agencies in social and employment policy: must be properly staffed and resourced.
- Employers: public money should only go to those respecting workers' rights.
Figures and deadlines
- 14.8% youth unemployment rate in the EU in April 2025.
- At least 12.5% of ESF+ resources under shared management for youth employment.
- 24.2% of children in the EU at risk of poverty or social exclusion in 2024.
- At least 5% of ESF+ resources under shared management for the European Child Guarantee in 2026.
Legal basis. Article 152 TFEU and articles 174 and 175 of the TFEU.
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Full text
Opinion 24 paragraphs
The Committee on Employment and Social Affairs calls on the Committee on Budgets, as the committee responsible, to incorporate the following into its motion for a resolution:
1.Recalls the European Pillar of Social Rights (EPSR) and Action Plan of 4 March 2021, including the EU 2030 headline targets for jobs, skills and poverty reduction, the Porto Declaration of 8 May 2021 on social affairs adopted by the Members of the European Council, the Tripartite Declaration for a Thriving European Social Dialogue, and the La Hulpe Declaration on the Future of the European Pillar of Social Rights;
2.Underscores persistent socio-economic challenges, including demographic change, child and in-work poverty, persistent poverty, high inflation, increased cost of living and energy prices, lack of affordable and accessible housing, adapting skills and industrial policies to ensure a just twin transition as well as growing social and economic inequalities and climate crisis affecting the most people in vulnerable situations, necessitating sufficient budgetary support; expresses its concern about the very limited margins and remaining flexibilities available in the Draft Budget and calls for mobilising adequate resources for EU employment and social policies;
3.Recalls that public expenditure is necessary to ensure upward social convergence; believes in the importance of addressing social gaps in living and working conditions through social investment in the medium and long-term future while, at the same time responding to people’s immediate needs;
4.Is concerned, in this context, by the increasing number of people in Europe suffering from mental health challenges; reminds that stress, anxiety and depression make up the second most common work-related health problem affecting workers in Europe and therefore underlines the importance of addressing psychosocial risks in the workplace; insists on the Commission to prioritise mental health in the area of employment and social policies and reiterates the call for a directive on the right to disconnect;
5.Points out that the European Social Fund Plus (ESF+) is the key driver for strengthening the social dimension of the Union and the main EU instrument for investing in people, promoting high employment levels, fair social protection and developing a skilled and resilient workforce ready for the transition to a green and digital economy, as well as inclusive and cohesive societies aiming to eradicate poverty and delivering on the principles of the EPSR and the headline targets of its Action Plan; underlines in that sense the importance to increase public and social investments;
6.Stresses that in April 2025, the youth unemployment rate in the EU was at 14,8%; expresses its concern about higher youth unemployment rates compared to overall unemployment; calls in this regard on all Member States, not only those the most affected by youth unemployment, to allocate at least 12,5 % of the ESF+ resources under shared management to support youth employment and activities under the Youth Guarantee; urges the Member States and the Commission to prioritise combating youth unemployment, leveraging existing initiatives like the ESF+ and the Youth Guarantee, while improving the working conditions and the attractiveness of entry level positions; expresses concerns about early career precariousness, which undermine young people's independence, work-life balance and ability to access housing; notes that women and young workers with low education levels are more prone to suffering from early career precariousness;
7.Underlines the importance of sufficient and ongoing, multiannual budgetary support to achieve the social policy priorities of the Union, such as quality jobs and the fair mobility package;
8.Highlights the important role of EU programmes in the social fields, in particular the European Social Fund+, European Globalisation Fund, Just Transition Fund, and Recovery and Resilience Facility and Social Climate Fund, in supporting the Union’s economic, social and territorial cohesion, facilitating a just transition to a climate neutral economy and fostering economic resilience; underlines that these programmes should not stray from their original purpose and any change to their priorities should be carefully assessed; highlights that the access of these programmes should be further simplified in order to remove administrative burden for stakeholders and should include local and regional actors into the design and implementation of the programmes;
9.Underscores the importance of the role of the EU budget in implementing the European Pillar of Social Rights Action Plan and achieving its 2030 targets through increased targeted investment at EU and national level; welcomes the forthcoming new Action Plan and the opportunity it provides to reaffirm the importance of the social dimension of the European Union, including renewed impetus towards 2030 targets;
10.Welcomes the forthcoming, first-ever European Anti-Poverty Strategy and calls for relevant budgetary resources for the implementation of already existing and relevant new initiatives to tackle poverty; recalls the need to address it in all its possible forms and multidimensional nature; stresses in view of the anticipated update to the Action Plan the need to ensure sufficient budgetary resources in 2026 to accompany any new or adapted initiatives; reminds of the strong link between poverty and homelessness, and of the EU commitment to eradicate homelessness by 2030; insists on the importance to continue efforts to ensure the right for decent, sustainable and affordable housing for all, promoting the 'housing first' approach and tackling homelessness, as well as addressing social gaps in living and working conditions through social investment and essential services, quality healthcare and well-functioning public healthcare;
11.Highlights the necessity of supporting especially women, children, youth, families, in particular single parents and older persons living in remote and rural areas, and groups in vulnerable situations such as persons with disabilities and Roma, advocating for targeted measures to support persons with disabilities and their carers and families and to combat youth unemployment and child poverty;
Read the rest (12 paragraphs)
12.Deplores the fact that in 2024 24,2 % of children in the EU were at risk of poverty or social exclusion; reiterates Parliament’s repeated call to urgently increase the funding of the European Child Guarantee with a dedicated budget and to ensure adequate public investment in policies that have a direct and indirect impact on children’s lives; calls in this regard on all Member States, not only those affected by child poverty, to allocate at least 5 % of the ESF+ resources under shared management to support activities under the European Child Guarantee in 2026 as well as making full use of existing funding possibilities under the EU budget, such as ReactEU and the RRF to eradicate child poverty;
13.Underlines the crucial role of civil society working on social inclusion, gender equality and equal opportunities when it comes to shaping and monitoring the implementation of legislation; stresses that this is particularly important for the groups that are the most vulnerable as they ensure policies and initiatives effectively address their needs and facilitate their access to different social services; calls on the Commission to ensure sufficient, stable and transparent funding for the civil society organisations;
14.Underlines the important role of social partners and social dialogue for social cohesion in Europe and for the European social model; reminds that the support for fostering social dialogue is one of the principles of the EPSR; believes, recognising the importance of social partners, that the EU should promote their role, considering national diversity, and facilitate social dialogue and collective bargaining in line with Article 152 TFEU; regrets the repeated cuts by the Commission and the Council to related budget lines and believes that, considering existing socio-economic inequalities, more support for social dialogue and collective bargaining, for social partners and for training measures for trade unions will be needed in the coming years;
15.Emphasises the need for more specific policy responses to mitigate the impact of demographic challenges with an ageing population across the EU due to declining fertility rates and extended life expectancies; underscores the importance of services and improving skilling and working conditions in the health sector and infrastructure for children and persons with disabilities as well as support at all stages of life so people can stay in family or community environment as long as possible; in this context stresses the importance of the European Care Strategy and calls for adequate funding for related initiatives in Budget 2026; stresses the importance of universal access to public services in order to reduce regional development disparities and to offer equal access to quality education, infrastructure and healthcare for all; calls on the Commission and the Member States to consider impacts on social, territorial and economic cohesion at all levels of public policy decisions;
16.Considers that, in light of the internal and external challenges as well as rapid development of new technologies including artificial intelligence, that a proficient and prepared workforce is essential for enhancing the Union's competitiveness and resilience against external shocks, adapting skills and industrial policies to navigate the just twin transition successfully; recognises the essential role of quality education, lifelong learning, skilling, reskilling and upskilling, vocational education and training (VET) and quality and paid traineeships and apprenticeships available and accessible for all, leaving no-one behind; recalls, in this regard, the need to ensure adequate funding in Budget 2026 for skills policies under ESF+ and the Just Transition Fund, as well as InvestEU, REPowerEU, STEP and the Net Zero Industry Academies as key drivers for strengthening the social and skills dimensions of the Union;
17.Highlights the key role that the Academies will play in disseminating knowledge and skills on net-zero technologies that can enhance the Union’s competitiveness and its global position in net-zero industries and calls for additional appropriations under the SMEs Pillar within the Single Market Programme to ensure sufficient financing for the year 2026;
18.Underlines that Cohesion policy must remain a long-term policy, based on the objectives set out in articles 174 and 175 of the TFEU; expresses its concern that the Union's cohesion funds, including the European Social Fund+, are increasingly used as an emergency response tool, and underlines that this approach risks the longer-term policy and investment objectives of cohesion policy and that the people for whom Cohesion policy supports cannot be sufficiently reached;
19.Recalls the importance of the expertise carried out by the five EU agencies active in the development of the Union's social and employment policy areas, namely the European Labour Authority, the European Foundation for Living and Working Conditions, the European Agency for Safety and Health at Work, the European Centre for the Development of Vocational Training and the European Training Foundation, and emphasises that these agencies must be properly staffed and adequately resourced, so that they can fulfil their mandate, achieve their objectives, and perform their evolving tasks; recalls that the tasks of agencies evolve in line with policy priorities and stresses that new responsibilities must be accompanied by corresponding resources; reiterates its call to allow for flexibility for agencies with a high proportion of seconded national experts in the establishment plan to convert SNE posts into temporary agent posts with the aim of ensuring better expertise retention, operational functionality and business continuity;
20.Recalls that pilot projects (PPs) and preparatory actions (PA) play a crucial role in providing information and data collection on the impact of policy initiatives in the fields of social inclusion and employment; repeats its call on the Commission for PP/PA evaluation to be conducted impartially on the basis of legal and financial assessment in a manner that reflects their merit and implement them as they were adopted;
21.Insists that rules governing the use of EU funds must ensure compliance with labour obligations, the highest social rights and democratic principles, ensure quality jobs and be aligned with the EPSR, the SDGs and the fundamental rights of workers; calls for provisions to ensure public money only goes to employers respecting workers’ rights and applicable working conditions;
22.Calls for an adequately funded budget to support equal participation and treatment of women in the labour market; welcomes the development of a methodology to track gender-based spending and considers that the lessons learnt, in particular as regards the collection of gender-disaggregated data to monitor and measure gender budget allocations, women’s participation in the labour market, access to employment and gender pay and pension gaps, should be promoted;
23.Calls for the internalisation of the European Parliament's childcare services, guaranteeing their workers an employment relationship with the Parliament and the guarantee that all their rights will be respected;
Annex: declaration of input 1 paragraph
The rapporteur for opinion declares under her exclusive responsibility that she did not include in her opinion input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register, or from representatives of public authorities of third countries, including their diplomatic missions and embassies, to be listed in this Annex pursuant to Article 8 of Annex I to the Rules of Procedure.
Information on adoption by the committee asked for opinion 1 paragraph
| Date adopted | 15.7.2025 | |
| Result of final vote | +: –: 0: | 23 6 18 |
| Members present for the final vote | Maravillas Abadía Jover, Grégory Allione, Li Andersson, Marc Angel, Pascal Arimont, Konstantinos Arvanitis, Nikola Bartůšek, Gabriele Bischoff, Vilija Blinkevičiūtė, Rachel Blom, Andrzej Buła, Petr Bystron, David Casa, Estelle Ceulemans, Leila Chaibi, Per Clausen, Henrik Dahl, Johan Danielsson, Marie Dauchy, Mélanie Disdier, Elena Donazzan, Gheorghe Falcă, Chiara Gemma, Niels Geuking, Juan Carlos Girauta Vidal, Isilda Gomes, Alicia Homs Ginel, Sérgio Humberto, Irena Joveva, Martine Kemp, Katrin Langensiepen, Miriam Lexmann, Marit Maij, Marlena Maląg, Jagna Marczułajtis-Walczak, Eleonora Meleti, Idoia Mendia, Letizia Moratti, Maria Ohisalo, João Oliveira, Branislav Ondruš, Aodhán Ó Ríordáin, Hristo Petrov, Nicola Procaccini, Dennis Radtke, Nela Riehl, Liesbet Sommen, Villy Søvndal, Pál Szekeres, Georgiana Teodorescu, Romana Tomc, Jana Toom, Raffaele Topo, Francesco Torselli, Brigitte van den Berg, Marianne Vind, Mariateresa Vivaldini, Petar Volgin, Jan-Peter Warnke, Séverine Werbrouck | |
| Substitutes present for the final vote | Alex Agius Saliba, Galato Alexandraki, René Aust, Ľuboš Blaha, Gordan Bosanac, Borys Budka, Vivien Costanzo, Raúl de la Hoz Quintano, Özlem Demirel, Valérie Devaux, Klára Dobrev, Regina Doherty, Rosa Estaràs Ferragut, Laurence Farreng, Loucas Fourlas, Kathleen Funchion, Angéline Furet, Estrella Galán, Martin Hojsík, Romana Jerković, Rudi Kennes, Arba Kokalari, András Tivadar Kulja, Isabelle Le Callennec, Jeroen Lenaers, Lara Magoni, Mario Mantovani, Pierfrancesco Maran, Catarina Martins, Sara Matthieu, Nora Mebarek, Gilles Pennelle, Giusi Princi, Evelyn Regner, Benedetta Scuderi, Birgit Sippel, Cecilia Strada, Eugen Tomac, Kim Van Sparrentak, Marie-Pierre Vedrenne, Jörgen Warborn, Andrea Wechsler, Angelika Winzig, Maria Zacharia, Kosma Złotowski |
Procedure pages
How the committees handled the text, and how their members voted on it.
Final vote by roll call by the committee asked for opinion 3 paragraphs
23 · For
- No group
- Jan-Peter Warnke
- EPP
- Maravillas Abadía Jover, Andrzej Buła, Regina Doherty, Sérgio Humberto, Isabelle Le Callennec, Miriam Lexmann, Jagna Marczułajtis-Walczak, Dennis Radtke, Liesbet Sommen, Romana Tomc, Sabine Verheyen
- Renew
- Martin Hojsík, Irena Joveva, Hristo Petrov, Jana Toom
- The Left
- Li Andersson, Konstantinos Arvanitis, Leila Chaibi, Rudi Kennes
- Greens
- Alexandra Geese, Pär Holmgren, Maria Ohisalo
6 · Against
- Patriots
- Nikola Bartůšek, Rachel Blom, Marie Dauchy, Juan Carlos Girauta Vidal, Pál Szekeres, Séverine Werbrouck
18 · Abstained
- ECR
- Chiara Gemma, Lara Magoni, Marlena Maląg, Georgiana Teodorescu, Francesco Torselli, Mariateresa Vivaldini
- No group
- Branislav Ondruš
- EPP
- Andrea Wechsler
- S&D
- Marc Angel, Gabriele Bischoff, Vilija Blinkevičiūtė, Estelle Ceulemans, Johan Danielsson, Isilda Gomes, Alicia Homs Ginel, Idoia Mendia, Aodhán Ó Ríordáin, Raffaele Topo