opinion parliamentary committee draft, 1 April 2026
On the proposal for a regulation of the European Parliament and of the Council establishing the European Social Fund as part of the National and Regional Partnership Plan set out in Regulation (EU) [NRPPlan] establishing conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034
Document REGI-PA-785226 · (COM(2025)0558 – C100172/2025 – 2025/0239(COD))
Committee on Regional Development · Rapporteur: Nora Mebarek
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Short justification 315 paragraphs
The proposal for a regulation establishing the European Social Fund (ESF) for the 2028-2034 period comes at a time of deep change in European economies and societies. The green and digital transitions, geopolitical tensions, demographic shifts and a changing labour market are reshaping skill, employment and social protection needs throughout the EU.
In view of this, the ESF remains one of the Union’s key instruments for investing in people, supporting access to employment, promoting fair working conditions and increasing social inclusion. The ESF has its own legal basis in the Treaties. Article 162 of the Treaty on the Functioning of the European Union sets out its mission: improving employment opportunities for workers, helping to raise standards of living and strengthening economic and social cohesion within the Union.
As the primary tool for implementing the European Pillar of Social Rights, the ESF directly contributes to economic, social and territorial cohesion, in line with Article 174 TFEU.
The Commission proposal raises several major issues from a cohesion policy perspective, however.
In particular, bringing the ESF into a broader framework of National and Regional Partnership Plans risks undermining its readability, autonomy and capacity to meet its own objectives. However, given its specific legal basis in the Treaties, the ESF cannot be contingent on other instruments or be determined by economic coordination considerations. Its identity must be protected, therefore, and it must remain entirely geared towards its primary goals: supporting access to employment, promoting social inclusion and contributing to the objectives of the European Pillar of Social Rights.
What is more, the social challenges the EU is facing have intensified. Persistent poverty, including among people in work, unequal access to essential services, difficulties in integrating young people and discrimination affecting certain groups of the population call for an ambitious and targeted response. With this in mind, the ESF must continue to make tackling poverty and social exclusion a main priority, particularly with regard to children, people with disabilities, people with migrant backgrounds and marginalised communities.
Similarly, changes in demographics, including an ageing population, place further strain on social protection systems and certain key sectors, in particular healthcare and long-term care services. The ESF must help support those strategic sectors by promoting skill development, better working conditions and improved attractiveness of occupations, in order to guarantee quality, accessible services in every region.
The green and digital transitions, while presenting opportunities, also risk deepening territorial and social inequalities unless they come with suitable support. The ESF must play a key role in anticipating and aiding those transformations by supporting training, retraining and lifelong learning. Investment in skills should therefore benefit all regions, including those that are contending with structural challenges or are lagging behind.
Territorial aspects truly are key. There is still considerable variation between regions with regard to employment, skills and social inclusion. Local and regional authorities’ close relationships with the public and knowledge of the specific needs of their areas mean they play a key role in implementing employment and social policy. It is therefore essential that they are fully involved in designing, implementing and monitoring actions funded by the ESF, in line with the principle of multi-level governance.
Moreover, regions that face specific constraints – such as outermost, insular or rural regions or those facing demographic shifts – must be given particular attention. Needs associated with social inclusion and access to essential services are often greater in those areas, which warrants tailored support, including higher co-financing rates.
Implementation of the ESF must also take into account the nature of the target groups. Support for those furthest from the labour market calls for integrated, personalised and long-term approaches. Following a logic of conditions based on short-term results could render interventions less effective by discouraging actions that target the most vulnerable groups. A sufficiently flexible implementation framework should therefore be provided to balance effectiveness, inclusion and sustainable results.
Lastly, the ESF’s political ambition must go hand in hand with financial resources commensurate with the matters in question. At a time of growing social investment needs, an appropriate amount of financing is essential to make certain the fund has an impact and to advance social levelling up within the Union.
Read the rest (303 paragraphs)
Ultimately, the ESF must remain a strong, autonomous, well-resourced instrument, founded on its own legal basis in the Treaties, that works for a more social, inclusive and cohesive Europe. By enhancing its focus on quality employment, skills and tackling inequalities while bolstering its territorial dimension, it can fully contribute to improving the European social model and competitiveness that works for people.
AMENDMENT
The Committee on Regional Development submits the following to the Committee on Employment and Social Affairs, as the committee responsible:
Amendment 1
Proposal for a regulation
Title 1
| Text proposed by the Commission | Amendment |
|---|---|
| Proposal for a | Proposal for a |
| REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL | REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL |
| establishing the European Social Fund as part of the National and Regional Partnership Plan set out in Regulation (EU) [NRPPlan] establishing conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034 | establishing the European Social Fund and conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034 |
Or. fr
Amendment 2
Proposal for a regulation
Recital 1
| Text proposed by the Commission | Amendment |
|---|---|
| (1) On 17 November 2017, the European Pillar of Social Rights was jointly proclaimed by the European Parliament, the Council and the Commission as a response to social challenges in Europe. The twenty key principles of the pillar are structured around three categories: equal opportunities and access to the labour market; fair working conditions; social protection and inclusion. The twenty principles of the European Pillar of Social Rights should guide the actions under the European Social Fund (ESF). On 4 March 2021, the Commission put forward an Action Plan for the implementation of the European Pillar of Social Rights (the ‘Action Plan’), including ambitious yet realistic Union headline targets for 2030 on employment (that at least 78 % of the population aged 20-64 should be in employment), skills (that at least 60 % of all adults should participate in training every year) and poverty reduction (that at least 15 million fewer people should be at risk of poverty or social exclusion, including 5 million children) (the ‘Union headline targets for 2030’) and complementary sub-targets, as well as a revised Social Scoreboard. In order to contribute to the implementation of the European Pillar of Social Rights the ESF should support investments in people and reforms of the systems in the policy areas of employment, education and social inclusion, thereby supporting economic, territorial and social cohesion in accordance with Article 174 of the Treaty. | (1) On 17 November 2017, the European Pillar of Social Rights was jointly proclaimed by the European Parliament, the Council and the Commission as a response to social challenges in Europe. The twenty key principles of the pillar are structured around three categories: equal opportunities and access to the labour market; fair working conditions; social protection and inclusion. The twenty principles of the European Pillar of Social Rights should guide the actions under the European Social Fund (ESF). On 4 March 2021, the Commission put forward an Action Plan for the implementation of the European Pillar of Social Rights (the ‘Action Plan’), including Union headline targets for 2030 on employment (that at least 78 % of the population aged 20-64 should be in employment), skills (that at least 60 % of all adults should participate in training every year) and poverty reduction (that at least 15 million fewer people should be at risk of poverty or social exclusion, including 5 million children) (the ‘Union headline targets for 2030’) and complementary sub-targets, as well as a revised Social Scoreboard. In order to contribute to the implementation of the European Pillar of Social Rights the ESF should support investments in people and reforms of the systems in the policy areas of employment, education and social inclusion so as to safeguard equal opportunities, equal access to the labour market, fair, quality working conditions, social protection and inclusion, placing a particular focus on inclusive, quality education and training, lifelong learning, investment in children and young people and access to basic services, thereby supporting economic, territorial and social cohesion in accordance with Article 174 of the Treaty. |
Or. fr
Amendment 3
Proposal for a regulation
Recital 2
| Text proposed by the Commission | Amendment |
|---|---|
| (2) The guidelines for the employment policies of the Member States, as provided for in Article 148(2) of the Treaty, adopted annually by the Council in the context of the European Semester, are a key instrument for coordination of Union and national employment and social policies. They provide common priorities and targets for employment, education, skills and social policies with a view to improving the Union’s competitiveness and making it a better place to invest, create jobs and foster social cohesion. The ESF is the Union’s main instrument for supporting the employment guidelines and achieving Union objectives in employment and social policies. The employment guidelines complement the principles of the European Pillar of Social Rights. In this context, the scope of the ESF for 2028 to 2034 should be fully aligned with Council Decision (EU) …1 [Employment guidelines adopted by the Council at the latest by 1 January 2027]. | deleted |
| 1 Insert publication reference |
Or. fr
Justification
As the ESF has a fully-fledged legal basis in the Treaties (Article 164 TFEU), its implementation should not be linked to or conditional upon objectives other than those of the ESF itself: supporting people’s employment, supporting social inclusion and contributing to the achievement of the objectives of the European Pillar of Social Rights.
Amendment 4
Proposal for a regulation
Recital 3
| Text proposed by the Commission | Amendment |
|---|---|
| (3) At Union level, the European Semester of economic policy coordination is the framework to identify national reform priorities and monitor their implementation. Member States should submit annual progress reports on the implementation of their medium-term fiscal-structural plans. That framework should be the basis for the use of Union funding in a coherent manner, including with a view to maximise the added value of the financial support to be received. | deleted |
Or. fr
Justification
As the ESF has a fully-fledged legal basis in the Treaties (Article 164 TFEU), its implementation should not be linked to or conditional upon objectives other than those of the ESF itself: supporting people’s employment, supporting social inclusion and contributing to the achievement of the objectives of the European Pillar of Social Rights.
Amendment 5
Proposal for a regulation
Recital 4
| Text proposed by the Commission | Amendment |
|---|---|
| (4) The Union is confronted with structural challenges arising from economic globalisation, vulnerable supply chains, the management of migration flows and the increased security threat, the clean energy transition, technological change and demographic change, an ageing workforce, lack of social housing, and growing skills and labour shortages in many sectors and regions. | (4) The Union is confronted with structural challenges arising from economic globalisation, vulnerable supply chains, the management of migration flows and the increased security threat, the clean energy transition, technological change and demographic change, an ageing workforce, lack of social housing, growing poverty and child poverty, and growing skills and labour shortages in many sectors and regions. |
Or. fr
Amendment 6
Proposal for a regulation
Recital 6
| Text proposed by the Commission | Amendment |
|---|---|
| (6) Between now and 2040, the Union labour market will comprise approximately 1 million fewer persons each year. Furthermore, in addition to a shrinking workforce, some regions are affected by a small and stagnant share of the population with tertiary education, making it difficult to compensate for the loss of labour through higher labour productivity. This will increase pressure on the social welfare model of the Union, putting its sustainability and adequacy under pressure. It will also increase labour and skills shortages in the labour market, putting strain on economic growth and competitiveness. For some sectors this will lead to labour cost pressures. This is why the ESF needs to support an increase in participation in the labour market, especially of women and young people, persons with disabilities, Roma communities and to support employers in finding the right people for available jobs, empower older workers with appropriate labour market and workplace measures, ensure a skilled workforce able to tackle major societal challenges, and support a healthy work life balance including by ensuring access to quality childcare. | (6) Between now and 2040, the Union labour market will comprise approximately 1 million fewer persons each year. Furthermore, in addition to a shrinking workforce, some regions are affected by a small and stagnant share of the population with tertiary education, making it difficult to compensate for the loss of labour through higher labour productivity. This will increase pressure on the social welfare model of the Union, putting its sustainability and adequacy under pressure. It will also increase labour and skills shortages in the labour market, putting strain on economic growth and competitiveness. For some sectors this will lead to labour cost pressures. This is why the ESF needs to support an increase in participation in the labour market, especially of women and young people, persons with disabilities, persons with a migrant background, Roma communities and to support employers in finding the right people for available jobs, empower older workers with appropriate labour market and workplace measures, ensure a skilled workforce able to tackle major societal challenges, and support a healthy work life balance including by ensuring access to quality childcare. In order to promote quality employment and prevent labour market segmentation, the ESF should also support actions to address job insecurity, including involuntary part-time work and unconventional, non-chosen forms of employment, and to support stable and secure career paths. |
Or. fr
Justification
According to Eurostat data, almost one in ten workers in the European Union is at risk of poverty despite being in work, which indicates the persistence of in-work poverty. This state of affairs undermines social cohesion and warrants paying particular attention to tackling job insecurity.
Amendment 7
Proposal for a regulation
Recital 10
| Text proposed by the Commission | Amendment |
|---|---|
| (10) Regulation (EU) [NRP Regulation] establishes the general rules on the National Regional Partnership Plan (the ‘NRP Plan’) and lays down, in particular, the objectives to be supported by the National Regional Partnership Plans and the rules concerning the preparation, implementation, management and control of such Plans. The ESF is one of the nationally pre-allocated funds grouped under the National Regional Partnership Plan, in accordance with Regulation (EU) [...] [NRP Plan Regulation]. It is therefore necessary to clarify the scope of support of the ESF in relation to the objectives set out in the NRP Regulation and lay down specific provisions concerning the implementation of the ESF. | deleted |
Or. fr
Justification
See comment on amendments to recitals 2 and 3
Amendment 8
Proposal for a regulation
Recital 11
| Text proposed by the Commission | Amendment |
|---|---|
| (11) Efficient and effective implementation of actions supported by the NRP Plan, including the ESF, depends on good governance and partnership between all actors at the relevant territorial levels and the socio-economic actors, in particular the social partners and civil society organisations. | deleted |
Or. fr
Justification
See comment on amendments to recitals 2 and 3
Amendment 9
Proposal for a regulation
Recital 12
| Text proposed by the Commission | Amendment |
|---|---|
| (12) In order to strengthen Europe’s societies and Europe’s Social model, Member States should allocate a minimum amount of resources under their National and Regional Partnership Plans adopted in accordance with Regulation (EU) [NRP Plan Regulation] to the ESF. The diverse nature and severity of different socio-economic challenges in Member States requires a more flexible approach to programming. Whilst a minimum level of support for social policies is necessary to ensure action commensurate to these challenges, it also needs to be closely corresponding to the national and regional characteristics. The underlying sources of social disparities or problems need to inform the relative importance given to investments and reforms within the realm of the Employment Guidelines and the ESF. This implies that policy safeguards through thematic concentration should result from engagement between Member States and the Commission. The minimum amount of ESF must also find the balance between the strategic interest the Union has in investing in its people, and thereby in the quality of labour supply as well as social progress, and at the same time investment needs covered by other specific objectives enlisted in article 3 of the [NRP Plan Regulation]. | (12) In order to strengthen Europe’s societies and Europe’s Social model, a level of social investment must be guaranteed that is commensurate with the structural challenges facing the Union. To that end, an ambitious financial envelope should be established for the ESF for the period 2028-2034, in order to ensure a predictable contribution that is sufficient to achieve the objectives of the European Pillar of Social Rights and the European Anti-Poverty Strategy. |
Or. fr
Justification
As the ESF has a fully-fledged legal basis in the Treaties (Article 164 TFEU), its budgetary envelope should be defined in its own regulation, as is the case in Regulation (EU) 2021/1057 (Article 5). The link with the European Pillar of Social Rights and the EU Anti-Poverty Strategy, expected this year, 2026, should also be advanced further.
Amendment 10
Proposal for a regulation
Recital 12 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (12a) In view of the need to focus resources on the social priorities of the Union, it is appropriate to provide for minimum resource allocation requirements for social inclusion, tackling poverty, including child poverty, support for the most deprived persons and youth employment. A considerable portion of the ESF envelope should be dedicated to implementation of the European Child Guarantee. The thematic concentration requirements should balance the necessary flexibility for Member States and, where relevant, local and regional authorities, to set their priorities and a guarantee that a minimum level of resources actually goes towards the key social objectives of the Union, in line with the principles of the European Pillar of Social Rights and the EU Anti-Poverty Strategy. Only actions that directly and substantially contribute to those social objectives should be taken into account for that purpose. |
Or. fr
Justification
Thematic concentration is central to the quality of the ESF’s interventions and contribution to achieving the objectives of the European Pillar of Social Rights. As proposed for the ESF budget allocation, thematic concentration should also be defined in the ESF Regulation.
Amendment 11
Proposal for a regulation
Recital 13
| Text proposed by the Commission | Amendment |
|---|---|
| (13) The ESF should support employment, equal access for all to the labour market, fair and quality working conditions and labour mobility. The ESF should support Member States in providing support to unemployed and inactive people with effective, timely, coordinated and tailor-made assistance based on support for job searches, training, up- and reskilling and access to other enabling services, paying particular attention to people in vulnerable situations and people negatively affected by the green and digital transitions or labour market shocks, as well as those furthest away from the labour market. The ESF should continue to focus on youth unemployment and the issue of young people not in employment, education or training (NEETs) through the prevention of early leaving from education and training, and structural improvement of the school-to-work transition, including through the full implementation of the reinforced Youth Guarantee, which should also support quality youth employment opportunities. In addition, the ESF should continue to invest in skills crucial for the green and digital transitions. | (13) The ESF should support employment, equal access for all to the labour market, fair and quality working conditions, labour mobility and social inclusion. The ESF should support Member States in providing support to unemployed and inactive people with effective, timely, coordinated and tailor-made assistance based on support for job searches, training, up- and reskilling and access to other enabling services, paying particular attention to people in vulnerable situations and people negatively affected by the green and digital transitions or labour market shocks, as well as those furthest away from the labour market. In this regard, guarantees should be in place to ensure ESF support is in line with fundamental social standards and does not fund activities that undermine workers’ rights or promote forms of job insecurity. What is more, the ESF should continue to focus on youth unemployment and the issue of young people not in employment, education or training (NEETs) through the prevention of early leaving from education and training, and structural improvement of the school-to-work transition, including through the full implementation of the reinforced Youth Guarantee, which should also support quality youth employment opportunities. In addition, the ESF should continue to invest in skills crucial for the green and digital transitions. |
Or. fr
Amendment 12
Proposal for a regulation
Recital 16
| Text proposed by the Commission | Amendment |
|---|---|
| (16) Support through the ESF should be used to promote equal opportunities for all, to support strong social safety nets, foster social inclusion, intergenerational fairness and fight poverty. The ESF should support Member States’ efforts to tackle poverty, including by addressing material deprivation, with a view to breaking the cycle of disadvantage across generations and promote social inclusion by ensuring equal opportunities for all, tackling discrimination and addressing health inequalities. This implies mobilising a range of policies targeting the most disadvantaged people regardless of their age, including children in poverty, marginalised communities such as the Roma, the working poor and the most deprived. The ESF should promote the active inclusion of people far from the labour market with a view to ensuring their socio-economic integration. The ESF should also tackle homelessness, including with prevention and alleviation measures in line with the Lisbon declaration of 2021. Support to social innovation plays an important role in achieving these objectives and should therefore be promoted. | (16) Support through the ESF should target the most deprived persons, regardless of their sex, gender, sexual orientation, origin or ethnicity, age, religion or beliefs. It should be used to promote equal opportunities for all, to support strong social safety nets, foster social inclusion, intergenerational fairness and fight poverty. The ESF should support Member States’ efforts to tackle poverty, including by addressing material deprivation, with a view to breaking the cycle of disadvantage across generations and promote social inclusion by ensuring equal opportunities for all, tackling discrimination and addressing health inequalities. This implies mobilising a range of policies targeting the most disadvantaged people regardless of their age, including children in poverty, marginalised communities, such as victims of domestic and gender violence, the LGBTQI+ community, persons with disabilities or chronic diseases, the Roma, the working poor, the most deprived, persons in long-term poverty and profound exclusion, including persons with a migrant background. The ESF should promote the active inclusion of people far from the labour market with a view to ensuring their socio-economic integration. The ESF should also tackle homelessness, including with prevention and alleviation measures in line with the Lisbon declaration of 2021. Support to social innovation plays an important role in achieving these objectives and should therefore be promoted. |
Or. fr
Justification
Inspired by point 11 of the REGI opinion on the INI report (2024/2077) on the ESF+: https://www.europarl.europa.eu/doceo/document/A-10-2025-0014_EN.pdf
Amendment 13
Proposal for a regulation
Recital 16 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (16a) In certain particularly vulnerable areas, the entrenchment of illicit economies, particularly those linked to drug trafficking, jeopardises social cohesion, access to employment and public security. The ESF should be able to support integrated actions that aim to build up the resilience of local communities, foster the professional and social integration of the people concerned and prevent the sustained marginalisation of young people and families who are exposed to these issues. |
Or. fr
Justification
According to Europol, the illicit drug market accounts for tens of billions of euros per year in the European Union and is the main source of revenue for organised crime. In the most vulnerable areas, illicit economies fuel social marginalisation and warrant greater mobilisation of the ESF for inclusion and prevention.
Amendment 14
Proposal for a regulation
Recital 17
| Text proposed by the Commission | Amendment |
|---|---|
| (17) The principles of democracy, the rule of law and protection of fundamental rights are fundamental values of the Union. These values are fundamental for every single person, especially for those who are most vulnerable. Furthermore, they are instrumental for the effective implementation of the ESF. Therefore, the ESF should also support the promotion and implementation of these values for all. The ESF will also continue to address the rights of persons with disabilities as enshrined in the UN Convention on the Rights of Persons with Disabilities. It will also ensure coherence with the Union of Equality and its related Strategies1 that aim at combating discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation and ensure social cohesion by sustaining and developing open, fundamental rights-based, democratic, equal and inclusive societies based on the rule of law. | (17) The principles of democracy, the rule of law and protection of fundamental rights are fundamental values of the Union. These values are fundamental for every single person, especially for those who are most vulnerable. Furthermore, they are instrumental for the effective implementation of the ESF. Therefore, the ESF should also support the promotion and implementation of these values for all. The ESF will also continue to address the rights of persons with disabilities as enshrined in the UN Convention on the Rights of Persons with Disabilities. It will also ensure coherence with the Union of Equality and its related Strategies1 that aim at combating discrimination based on sex, ethnic origin, religion or belief, disability, age or sexual orientation and ensure social cohesion by sustaining and developing open, fundamental rights-based, democratic, equal and inclusive societies based on the rule of law. |
Or. fr
Amendment 15
Proposal for a regulation
Recital 18
| Text proposed by the Commission | Amendment |
|---|---|
| (18) Regulation (EU) [National Plan Regulation] requires that Member States respect horizontal principles in the preparation and implementation of the national and regional partnership plans. In this context, Member States should also be encouraged to use the ESF to supports targeted actions to promote horizontal principles such as the promotion of gender equality and ensuring the accessibility of services for people with disabilities and to enable people with disabilities to actively participate. | (18) Member States should respect horizontal principles in the preparation and implementation of their programmes. The implementation of the ESF should be guided by the principles and values of respect for human dignity, freedom, democracy, equality and the rule of law, and solidarity, as enshrined in Article 2 of the Treaty on European Union and referred to in the preamble to the Charter of Fundamental Rights of the European Union. The ESF should contribute to the promotion and protection of the rights enshrined in the Charter of Fundamental Rights, in particular Article 14 (right to education), Article 15 (freedom to choose an occupation and right to engage in work), Articles 20 and 21 (equality and non-discrimination), Article 22 (cultural, religious and linguistic diversity), Article 23 (equality between women and men), Article 24 (rights of the child), Article 26 (rights of persons with disabilities), Article 31 (fair and just working conditions), Article 33 (family and professional life) and Articles 39 to 46 (citizens’ rights). The programme should also respect the principles set out in the 2017 EU Guidelines for the Promotion and Protection of the Rights of the Child, in Article 9 of the UN Convention on the Rights of Persons with Disabilities and in the Union of Equality strategies. Moreover, the programme should support the principle of democratic governance of education systems and education and training institutions by ensuring the right to organise for students and staff, and by respecting social dialogue and collective agreements. Access to the ESF should be conditional on respect for these rights, values and principles. Furthermore, social partners and other stakeholders in the area of education and training policy should be closely involved in the implementation of the programme at national and/or regional level. |
Or. fr
Amendment 16
Proposal for a regulation
Recital 20
| Text proposed by the Commission | Amendment |
|---|---|
| (20) Due to the particular need to support children in poverty Member States should also programme resources of the ESF to address the measures under the Child Guarantee. | (20) To address the persistently high level of child poverty in the Union, and respect principle 11 of the European Pillar of Social Rights, which states that children have the right to protection from poverty and that children from disadvantaged backgrounds have the right to specific measures to strengthen equal opportunities, Member States should implement the Child Guarantee, which has a dedicated budget of EUR 20 billion. |
Or. fr
Justification
Despite the commitments made at EU level, almost one in four children in the European Union remains at risk of poverty or social exclusion, according to Eurostat. This justifies additional ESF investment to tackle child poverty through the implementation of a well-funded European Child Guarantee.
Amendment 17
Proposal for a regulation
Recital 23
| Text proposed by the Commission | Amendment |
|---|---|
| (23) Efficient and effective implementation of actions supported by the ESF depends on good governance and partnership between all actors at the relevant territorial levels and the socio-economic actors, in particular the social partners and civil society. It is therefore essential that Member States encourage the participation of social partners and civil society in the implementation of the ESF. Member States that have received a country-specific recommendation in this area should allocate resources of the ESF to promote the capacity building of social partners and civil society organisations. | (23) Implementation of the European Social Fund is based on an effective and structured partnership between public authorities, social partners, civil society organisations and local and regional authorities. This partnership is vital for the efficiency, legitimacy and ownership of the actions supported by the ESF. It is therefore essential that Member States ensure the participation of local and regional authorities, social partners and civil society at all stages of the implementation of the ESF. Member States that have received a country-specific recommendation in this area should allocate resources of the ESF to promote the capacity building of social partners and civil society organisations. |
Or. fr
Amendment 18
Proposal for a regulation
Recital 24
| Text proposed by the Commission | Amendment |
|---|---|
| (24) Taking into account the special characteristics and constraints of the outermost regions, the Member States should include in their Chapter for outermost regions, measures for enhancing employment and labour mobility, in particular for young people, education and skills, social inclusion. | (24) Taking into account the special characteristics and constraints of the outermost regions, specific funding under the ESF is allocated to them under Article 349 TFEU. The Member States must also include in their Chapter for outermost regions, measures for enhancing employment and labour mobility, in particular for young people, education and skills, social inclusion. |
Or. fr
Amendment 19
Proposal for a regulation
Recital 24 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (24a) In the event of exceptional or unusual circumstances seriously affecting the labour market or social cohesion, the ESF should be allowed, on a strictly temporary and limited basis, to support job retention measures such as short-time work schemes, even in the absence of associated activation measures, and access to healthcare in order to prevent a rapid deterioration of socio-economic conditions. |
Or. fr
Justification
Based on Article 4(3) of the ESF+ Regulation (Regulation (EU) 2021/1057).
Amendment 20
Proposal for a regulation
Article 1 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. This Regulation lays down specific conditions for the implementation of the European Social Fund for the 2028-2034 programming period as part of the Union support in accordance with the general objectives laid down in Article 2 of Regulation XX [NRP Plan Regulation], and in particular point (b) and (e) thereof. | 1. This Regulation establishes the European Social Fund for the 2028-2034 programming period. |
Or. fr
Justification
See comment on amendments to recitals 10 and 11.
Amendment 21
Proposal for a regulation
Article 1 – paragraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| 2. This Union support shall be provided under the National and Regional Partnership Plan, in accordance with the rules set out in Regulation (EU) […] [NRP Plan]. | 2. This Regulation lays down the objectives of the ESF, its budget for the period 2028 to 2034, the methods of implementation, the forms of Union funding and the rules for providing such funding. |
Or. fr
Justification
See comment on amendments to recitals 10 and 11.
Amendment 22
Proposal for a regulation
Article 1 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 1a | |
| General objective of the ESF | |
| 1. The general objective of the European Social Fund is to strengthen the social dimension of the Union and economic, social and territorial cohesion by supporting the implementation of the European Pillar of Social Rights. | |
| 2. It shall help to promote quality employment, equal opportunities and active inclusion, and to prevent and reduce poverty and inequalities, notably child poverty, in line with the Union’s social targets for 2030 and the EU Anti-Poverty Strategy. |
Or. fr
Amendment 23
Proposal for a regulation
Article 2 – title
| Text proposed by the Commission | Amendment |
|---|---|
| ESF support | Specific objectives of the ESF |
Or. fr
Amendment 24
Proposal for a regulation
Article 2 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. The European Social Fund (ESF) shall support the specific objectives set out in Article 3 of Regulation XX [NRP Plan Regulation]. | 1. In order to bolster social cohesion by supporting individuals and by strengthening societies and the Union’s social model, the European Social Fund (ESF) shall support the following specific objectives: |
Or. fr
Amendment 25
Proposal for a regulation
Article 2 – paragraph 1 – point a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (a) supporting employment and equal access to the labour market for all, in particular young people, those furthest away from the labour market and persons with disabilities, including through activation measures, the implementation of the European Youth Guarantee, the prevention of long-term unemployment, and the promotion of quality employment, stable contracts, and fair, safe, healthy and quality working conditions; |
Or. fr
Amendment 26
Proposal for a regulation
Article 2 – paragraph 1 – point b (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (b) modernising labour market institutions and services to anticipate skills needs, facilitate reskilling linked to economic and sectoral change, and ensure timely and tailor-made support for workers and jobseekers, taking account of the social and territorial effects, especially in the context of the green, energy, digital and demographic transitions; |
Or. fr
Amendment 27
Proposal for a regulation
Article 2 – paragraph 1 – point c (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (c) enhancing labour supply and employability by improving the quality, inclusiveness and relevance of education and training systems, from early childhood care to adult education and training, including vocational education and training, general and higher education, pathways to reintegration into education and training, second chance education, recognition of formal, non-formal and informal learning, and the promotion of lifelong learning and learning mobility; |
Or. fr
Amendment 28
Proposal for a regulation
Article 2 – paragraph 1 – point d (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (d) promoting gender equality, equal pay, balanced participation in the labour market and a better work-life balance, in particular through access to affordable and quality childcare and care for dependent persons; |
Or. fr
Amendment 29
Proposal for a regulation
Article 2 – paragraph 1 – point e (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (e) preventing and reducing job insecurity and underemployment, including involuntary part-time work and enforced non-standard contracts, and supporting the adaptation of workers and enterprises to change, including active and healthy ageing; |
Or. fr
Justification
According to Eurostat data, almost 1 in 10 workers in the European Union is at risk of poverty despite being in work, illustrating the persistent scale of in-work poverty. This situation undermines social cohesion and calls for particular emphasis to be placed on tackling job insecurity.
Amendment 30
Proposal for a regulation
Article 2 – paragraph 1 – point f (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (f) promoting active inclusion, equal opportunities and non-discrimination for the most deprived persons, regardless of their sex, gender, sexual orientation, age, religion or belief, origin or ethnicity, and supporting the socio-economic integration of disadvantaged groups, third-country nationals, including migrants, and marginalised communities, such as Roma people; |
Or. fr
Amendment 31
Proposal for a regulation
Article 2 – paragraph 1 – point g (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (g) ensuring that everyone has effective access to affordable, sustainable and high-quality services and the related social infrastructure, including housing and mobility, but also health, long-term care, services for the elderly, and early childhood education and care, notably through modernisation, digitalisation and enhanced resilience; |
Or. fr
Amendment 32
Proposal for a regulation
Article 2 – paragraph 1 – point h (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (h) combating poverty and social exclusion, homelessness and the most serious forms of material deprivation and child poverty through the Child Guarantee, as referred to in Article 6 of this Regulation, combining material assistance where necessary with accompanying measures promoting social inclusion; |
Or. fr
Amendment 33
Proposal for a regulation
Article 2 – paragraph 1 – point i (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (i) supporting social dialogue, collective bargaining and capacity building of the social partners and civil society organisations, and targeted actions in territories facing major economic or industrial restructuring; |
Or. fr
Amendment 34
Proposal for a regulation
Article 2 – paragraph 1 – point j (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (j) addressing the social repercussions of the inclusion of greenhouse gas emissions from buildings and road transport in the scope of Directive 2003/87/EC; |
Or. fr
Amendment 35
Proposal for a regulation
Article 2 – paragraph 1 – point k (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (k) combating depopulation and demographic challenges, strengthening the resilience of local communities, protecting victims, supporting the most vulnerable populations and preventing the long-term entrenchment of illicit economies such as drug trafficking within territories, in particular through active support for employment, access to affordable housing, social support and the safe relocation of affected people and families; |
Or. fr
Justification
See comment on Amendment 13.
Amendment 36
Proposal for a regulation
Article 2 – paragraph 1 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 1a. Where strictly necessary as a temporary measure to respond to exceptional or unusual circumstances, and limited to a period of 18 months, the ESF may support: | |
| (a) the financing of short-time work schemes without the requirement that they be combined with active measures; | |
| (b) access to healthcare including for people who are not in imminent socio-economic vulnerability. |
Or. fr
Justification
See comment on Amendment 19.
Amendment 37
Proposal for a regulation
Article 2 – paragraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| 2. For the purpose of paragraph 1, Member States use of the ESF shall, for the purposes of Article 2, point (b) of Regulation XX [NRP Plan], be based on the guidelines for the employment policies of the Member States, as provided for in Article 148 (2) of the Treaty, set out in the Decision (EU) xxxx [Employment guidelines adopted by the Council at the latest by 1 January 2027]. | deleted |
Or. fr
Justification
See comment on Amendment 3.
Amendment 38
Proposal for a regulation
Article 2 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 2a | |
| Budget | |
| 1. The financial envelope for the implementation of the ESF for the period 2028 to 2034 shall be EUR 198 000 000 000 (in 2025 prices). | |
| 2. A dedicated budget of EUR 20 000 000 000 (in 2025 prices) shall be allocated to the Child Guarantee. | |
| 3. A dedicated envelope of EUR 1 000 000 000 (in 2025 prices) shall be allocated as additional funding for the outermost regions identified in Article 349 of the Treaty on the Functioning of the European Union and the NUTS level 2 regions fulfilling the criteria laid down in Article 2 of Protocol No 6 on special provisions for Objective 6 in the framework of the Structural Funds in Finland, Norway and Sweden annexed to the 1994 Act of Accession. |
Or. fr
Justification
See comment on Amendment 9.
Amendment 39
Proposal for a regulation
Article 2 b (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 2b | |
| Thematic concentration and cofinancing rates | |
| 1. Member States and, where appropriate, the Commission shall foster synergies and ensure coordination, complementarity and coherence between the ESF and other Union funds, programmes and instruments, both in the planning phase and during implementation. Member States and, where appropriate, the Commission shall optimise mechanisms for coordination to avoid duplication of efforts and ensure close cooperation between entities responsible for implementation to deliver coherent and streamlined support actions. | |
| 2. Member States shall allocate at least 5 % of their resources of the ESF strand to the implementation of the Child Guarantee through targeted actions and structural reforms to tackle child poverty under the specific objectives set out in Article 2(1)(h). | |
| Member States that had an average rate above the Union average of children of less than 18 years old at risk of poverty or social exclusion for the period between 2024 and 2026, on the basis of Eurostat data, shall allocate at least 10 % of their resources of the ESF strand to support targeted actions and structural reforms to tackle child poverty as set out in the first subparagraph. | |
| 3. Member States shall allocate at least 30 % of their resources of the ESF strand to the specific objectives for social inclusion policy area set out in of Article 2(1), points (f) to (h). | |
| 4. Member States shall allocate at least 10 % of their resources of the ESF strand to support the most deprived persons under the specific objective set out in Article 2(1)(h). | |
| 5. Member States shall allocate at least 15 % of their resources of the ESF strand to schemes under the Youth Guarantee, especially targeted actions and structural reforms to support youth employment, vocational education and training, in particular apprenticeships, and the transition from school to work, pathways to reintegrate into education or training, and second chance education. | |
| Member States that had an average rate above the Union average of young people of 15 to 29 years of age who are not in employment, education or training for the period between 2024 and 2026, on the basis of Eurostat data, shall allocate at least 20 % of their resources of the ESF strand for the years 2028 to 2034 to support the structural reforms and targeted actions as set out in the first subparagraph. | |
| 6. Outermost regions fulfilling the conditions set out in the second subparagraph of paragraph 5 shall allocate at least 20 % of their resources of the ESF strand in their programmes to the targeted actions and structural reforms as set out in paragraph 5. | |
| When implementing the targeted actions and structural reforms referred to in this paragraph, Member States shall give priority to inactive and long-term unemployed young people and put in place targeted outreach measures. | |
| 7. Paragraphs 2 to 6 of this article shall not apply to the specific additional allocation received by the outermost regions and the NUTS level 2 regions fulfilling the criteria laid down in Article 2 of Protocol No 6. | |
| 8. Paragraphs 2 to 6 shall not apply to technical assistance. | |
| 9. By way of derogation from the cofinancing ceilings set out in Article [XX] of Regulation (EU) [NRP Plan Regulation], in urban, rural or island areas with particular social weaknesses whose economic activity, unemployment and poverty rates are particularly unbalanced compared to neighbouring urban, rural or island areas within the same NUTS level 2 or level 3 region, the Union cofinancing rate for priorities specifically designed to improve the effective, fair and quality access to basic services, especially health, education and housing, may be up to 100 % where those priorities contribute directly and substantially to equal access to essential services or to enhanced resilience of the health and education systems. | |
| 10. The resources under the Child Guarantee, the Youth Guarantee and the support for addressing material deprivation referred to in Article 2(1), points (a) and (h), and Article 6 shall be programmed under a dedicated priority or programme. The cofinancing rate for each of those priorities or programmes shall be 100 %. | |
| 11. Where relevant, the priorities referred to in this paragraph may be implemented through integrated and place-based approaches, including integrated territorial investments (ITI) and community-led local development (CLLD), as referred to in Articles 75 and 76 of Regulation (EU) [NRP Plan Regulation], in order to maximise their impact and their relevance to local needs. | |
| 12. The Member States and regions shall, where appropriate, establish an integrated approach to address the challenges stemming from the demographic transition and implement the priorities referred to in Article 2(1)(k). |
Or. fr
Justification
See comment on Amendment 10.
Amendment 40
Proposal for a regulation
Article 2 c (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 2c | |
| Eligibility | |
| 1. The following costs shall not be eligible for support from the ESF: | |
| (a) the purchase of land and real estate as well as infrastructure; and | |
| (b) the purchase of furniture, equipment and vehicles, except where such purchase is necessary for achieving the objective of the operation, or those items are fully depreciated during the operation, or the purchase of those items is the most economic option. | |
| 2. Contributions in kind in the form of allowances or salaries disbursed by a third party for the benefit of the participants in an operation may be eligible provided that the contributions in kind are incurred in accordance with national rules, including accountancy rules, and do not exceed the cost borne by the third party. | |
| 3. The specific additional allocation received by the outermost regions and the NUTS level 2 regions fulfilling the criteria laid down in Article 2 of Protocol No 6 shall be used to support the achievement of the specific objectives set out in Article 2(1). | |
| 4. Direct staff costs shall be eligible if they are in line with the beneficiary’s usual remuneration practice for the category of function concerned or in line with applicable national law, collective agreements or official statistics. | |
| 5. ESF support shall be conditional on effective compliance with international labour standards, including the fundamental International Labour Organization conventions, and compliance with the relevant Union and national labour laws and collective agreements. | |
| 6 . Where support is provided for investments aimed at developing defence industry skills and production capacities for key components for the Union’s strategic sectors and technologies, Member States should take into account, to the extent possible, the criteria set out in Article 9 of Regulation (EU) 2021/697 of the European Parliament and of the Council, the eligibility rules set out in Article 16 of Council Regulation (EU) 2025/1106 and the eligibility rules set out in Regulation XX [Industrial Accelerator Act]. |
Or. fr
Amendment 41
Proposal for a regulation
Article 5
| Text proposed by the Commission | Amendment |
|---|---|
| Article 5 | deleted |
| Support for demographic transition | |
| Member States and regions shall, where appropriate, set out an integrated approach to addressing challenges stemming from the demographic transition in one or more dedicated chapters of the National Regional and Partnership Plan. |
Or. fr
Justification
Priority already covered in Article 2(1)(k) (specific objectives).
Amendment 42
Proposal for a regulation
Article 6 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. Member States may provide support for addressing material deprivation through the distribution of food and goods that are in conformity with the Union law on consumer product safety. | 1. Member States shall provide support for addressing material deprivation through the distribution of food and goods that are in conformity with the Union law on consumer product safety. |
Or. fr
Justification
The mandatory nature of support for persons experiencing material deprivation must be reinforced in order to ensure an effective and uniform response in all Member States.
Amendment 43
Proposal for a regulation
Article 6 – paragraph 3 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 3a. Special priority shall be given to actions aimed at addressing child poverty and implementing the Child Guarantee referred to in Article 2(1)(h) of this Regulation, in particular through access to healthy food, essential supplies, education, childcare and extracurricular activities. |
Or. fr
Amendment 44
Proposal for a regulation
Article 6 – paragraph 4 – subparagraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall complement the delivery of food and/or basic material assistance by accompanying measures, such as referrals to competent services or by promoting the social integration of the most deprived persons. | Member States shall ensure that such actions are not limited to ad hoc assistance but are part of an integrated approach to achieve the social inclusion of the groups concerned, in particular through measures promoting access to rights, social services, training, jobs and housing, while respecting the dignity of the beneficiaries. |
Or. fr
Justification
It is essential to move beyond ad hoc assistance by promoting an integrated approach that strives for sustainable social inclusion.
Amendment 45
Proposal for a regulation
Article 6 – paragraph 5
| Text proposed by the Commission | Amendment |
|---|---|
| 5. For the purposes of this Article, ‘most deprived persons’ means natural persons, whether individuals, families, households or groups of persons, including children in vulnerable situations and homeless people, whose need for assistance has been established according to the objective criteria which are set by the national competent authorities in consultation with relevant stakeholders while avoiding conflicts of interest, and which may include elements that allow for the targeting of the most deprived persons in certain geographical areas. | 5. For the purposes of this Article, ‘most deprived persons’ means natural persons, whether individuals, families, households or groups of persons, including children in vulnerable situations and homeless people. |
Or. fr
Justification
The definition of ‘most deprived persons’ must be simplified to facilitate access to support and avoid overly restrictive criteria.
Amendment 46
Proposal for a regulation
Article 6 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 6a | |
| Horizontal principles | |
| 1. Member States and the Commission shall ensure respect for fundamental rights and compliance with the Charter of Fundamental Rights of the European Union when implementing the ESF. | |
| 2. The Commission and the Member States shall ensure that gender equality and integration of the gender perspective are ensured and promoted throughout the preparation, implementation, monitoring, reporting and evaluation of the ESF. Member States and the Commission shall aim to increase the participation of women in employment, promote conciliation between working and personal life, and combat the feminisation of poverty and gender discrimination in the labour market and in education and training. | |
| 3. The Commission and the Member States shall take appropriate steps to prevent any discrimination based on gender, origin or ethnicity, religion or belief, disability, age or sexual orientation during the preparation, implementation, monitoring, reporting and evaluation of ESF operations. | |
| 4. Support from the various funds shall be conditional on respect for social conditionalities, including full respect for workers’ rights and prerogatives as enshrined in Union, national and any other relevant legislation, and in the applicable collective agreements. That includes alignment with the OECD Guidelines for Multinational Enterprises and UN Guiding Principles on Business and Human Rights, including the ILO Declaration on Fundamental Principles and Rights at Work, the eight fundamental ILO conventions and the International Bill of Human Rights. | |
| It also includes the Charter of Fundamental Rights of the European Union, in particular the ban on slavery and forced labour and the principle of non-discrimination. | |
| These minimum safeguards are without prejudice to the application of more stringent requirements relating to the environment, health, safety and social sustainability provided for in Union law, where applicable. |
Or. fr
Justification
It is vital to ensure respect for fundamental rights and this amendment introduces social conditionality for the use of ESF funds.
Amendment 47
Proposal for a regulation
Article 7 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Member States shall ensure meaningful participation of the social partners and civil society organisations in the delivery of support for quality employment, education and skills and social inclusion policies in accordance with Article 6 of Regulation XX [NRP Plan]. | deleted |
Or. fr
Justification
Removes redundancy, with the new provisions strengthening the partnership principle introduced in the following amendments.
Amendment 48
Proposal for a regulation
Article 7 – paragraph 1 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 1. When implementing the ESF, Member States shall ensure that they fully respect the principle of partnership and multi-level governance, ensuring the effective, structured and continuous involvement of local and regional authorities, social partners and civil society organisations at all stages of the ESF chapter cycle. | |
| 2. The partnership shall cover in particular: | |
| (a) preparation and revision of the ESF chapter of the national and regional partnership plans; | |
| (b) definition of priorities and financial allocations; | |
| (c) selection, implementation, monitoring and evaluation of operations; | |
| (d) participation in monitoring committees; | |
| (e) evaluation of results and mid-term review. | |
| 3. The social partners shall be involved in a balanced and meaningful way in the design and implementation of the priorities relating to employment, skills, working conditions and social dialogue. Their participation shall be organised in such a way as to guarantee the independence and autonomy of social dialogue, in accordance with Article 152 of the Treaty on the Functioning of the European Union. | |
| 4. Civil society organisations, including those representing vulnerable groups, people experiencing poverty or social exclusion, persons with disabilities, children and young people, shall be actively involved in the programming and monitoring of actions relating to social inclusion and access to services. | |
| 5. Where regional or local authorities have competences in the areas covered by the ESF, they shall participate in the governance and implementation of the relevant priorities, including through place-based approaches such as integrated territorial investments (ITI) and community-led local development (CLLD). | |
| 6. Member States shall ensure that the partners referred to in paragraphs 3 and 4 have the necessary administrative and financial capacity to participate effectively in the implementation of the ESF. To that end, they may allocate ESF funding to capacity building of social partners and civil society organisations. | |
| 7. The Commission shall ensure, in the structured dialogue with the Member States, effective respect for the partnership principle, and may make recommendations where the participation of partners does not meet the requirements of this article. |
Or. fr
Amendment 49
Proposal for a regulation
Article 8 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. The Commission shall be assisted by the Committee set up under Article 163 TFEU (‘the ESF Committee’) with regard to the support provided for the general objective referred to in Article 3(1), point (c) [specific objective – employment] of Regulation XX [NRP Plan]. | 1. The Commission shall be assisted by the Committee set up under Article 163 TFEU (‘the ESF Committee’) with regard to the support provided for the general objective referred to in Article 1a of this Regulation. |
Or. fr
Amendment 50
Proposal for a regulation
Article 8 – paragraph 2
| Text proposed by the Commission | Amendment |
|---|---|
| 2. Each Member State shall appoint one government representative, one representative of the workers’ organisations, one representative of the employers’ organisations and one alternate for each member for a maximum period of seven years. In the absence of a member, the alternate shall be automatically entitled to take part in the proceedings. The Committee shall also include one representative from each of the organizations representing workers’ organisations and employers’ organisations at Union level. | 2. Each Member State shall appoint one government representative, one representative of the local and regional authorities, one representative of the workers’ organisations, one representative of the employers’ organisations and one alternate for each member for a maximum period of seven years. In the absence of a member, the alternate shall be automatically entitled to take part in the proceedings. The Committee shall also include one representative from each of the organizations representing workers’ organisations and employers’ organisations at Union level. |
Or. fr