COMMISSION STAFF WORKING DOCUMENT Mid-term review of the Commission Action Plan on Integration and Inclusion 2021-2027 Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE, AND THE COMMITTEE OF THE REGIONS State of play on the implementation of the Pact on Migration and Asylum

EN EN
EUROPEAN
COMMISSION
Brussels, 11.6.2025
SWD(2025) 162 final
COMMISSION STAFF WORKING DOCUMENT
Mid-term review of the Commission Action Plan on Integration and Inclusion 2021-2027
Accompanying the document
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL
COMMITTEE, AND THE COMMITTEE OF THE REGIONS
State of play on the implementation of the Pact on Migration and Asylum
{COM(2025) 319 final}
Offentligt
KOM (2025) 0319 - SWD-dokument
Europaudvalget 2025
1
Contents
Introduction..................................................................................................................................... 2
1. EU integration policy: underlying key principles and general trends................................. 4
2. Education and Training....................................................................................................... 8
2.1. State of play on the implementation of the Action Plan ............................................. 8
2.2. Remaining challenges ............................................................................................... 11
2.3. Way forward ............................................................................................................. 12
3. Employment and skills...................................................................................................... 13
3.1. State of play on the implementation of the Action Plan ........................................... 13
3.2. Remaining challenges ............................................................................................... 16
3.3. Way forward ............................................................................................................. 18
4. Health................................................................................................................................ 19
4.1. State of play on the implementation of the Action Plan ........................................... 19
4.2. Remaining challenges ............................................................................................... 21
4.3. Way forward ............................................................................................................. 22
5. Housing............................................................................................................................. 23
5.1. State of play on the implementation of the Action Plan ........................................... 23
5.2. Remaining challenges ............................................................................................... 25
5.3. Way forward ............................................................................................................. 26
6. Horizontal actions ............................................................................................................. 27
6.1. State of play on the implementation of the Action Plan ........................................... 27
6.2. Remaining challenges ............................................................................................... 28
6.3. Way forward ............................................................................................................. 29
7. Enhancing synergies on the use of EU funds on integration ............................................ 29
7.1 State of play on the implementation of the Action Plan................................................. 29
7.3 Way forward ................................................................................................................... 32
8. Conclusion and lessons learnt........................................................................................... 32
2
Introduction
The Action Plan on Integration and Inclusion 2021-20271
(‘the Action Plan’), adopted in
November 2020, is one of the first initiatives taken by the Commission to implement the 2020
Communication on the Pact on Migration and Asylum2
(‘the Pact’). The Pact emphasises that a
successful integration and inclusion policy is an essential part of a well-managed and effective
migration and asylum policy, contributing to reducing the risks of unauthorised movements and to
the EU’s social cohesion. By helping legally residing migrants participate in the labour market at
a time of increasing labour and skills shortages, it is also relevant for the EU’s competitiveness: as
highlighted by the 2024 Draghi report3
, an orderly and well-managed labour migration is key for
our competitiveness, and to tackle skills and labour gaps. With more than 27 million non-EU
nationals regularly living and working in the EU in 2023, and around an additional 3,5 million
new residence permits delivered to migrants every year on average since 20214
, Member States
face significant pressure on their respective national systems, notably in the education and the
housing sectors. Against this background, swift and successful integration is essential, to ensure
the functioning of national systems, to uphold social cohesion and to meet the needs of dynamic
and specialised economies. In this context, the Action Plan envisions concrete actions across a
number of key areas of integration to support Member States and other relevant stakeholders in
overcoming integration-related challenges. The Action Plan builds on the experiences gathered
with the implementation of the 2016 Commission Action Plan on the Integration of third-country
nationals5
and takes a broadened focus to also cover EU citizens with migrant background6
.
The objective of this mid-term review (‘the review’) is to provide an overview of the
implementation status of the Action Plan, identify remaining challenges and the way forward
in implementing the measures of the Action Plan until 2027.7
This review, which delivers on
the commitment taken by the Commission in the Action Plan, also aims to inform on the status of
the use of EU funds on integration, especially the Asylum, Migration and Integration Fund
(‘AMIF’), in order to identify current shortcomings, showcase effective practices, and encourage
Member States to further explore synergies among various EU funds to improve the integration of
third-country nationals and EU citizens with a migrant background (see section 7).
1
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions, Action plan on Integration and Inclusion 2021-2027 COM(2020) 758 final:
https://eur-lex.europa.eu/legal-content/AUTO/?uri=CELEX%3A52020DC0758.
2
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on a New Pact on Migration and Asylum, COM(2020) 609 final: EUR-Lex - 52020DC0609 -
EN - EUR-Lex.
3
The future of European competitiveness: https://commission.europa.eu/topics/strengthening-european-competitiveness/eu-
competitiveness-looking-ahead_en#paragraph_47059.
4
Statistics on migration to Europe: https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/promoting-our-
european-way-life/statistics-migration-europe_en.
5
Communication from the Commission and the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions Action Plan on the integration of third country nationals, COM/2016/0377 final, available at
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52016DC0377.
6
The expression ‘EU citizens with migrant background’ covers nationals of EU Member States who had a third-country nationality
and became EU citizens through naturalisation in one of the EU Member States as well as EU citizens who have a third country
migrant background through their foreign-born parents. EU citizens with migrant background benefit from the status and rights of
EU citizens, as enshrined in Articles 20 and 21 of the Treaty on the Functioning of the European Union.
7
For a more detailed and comprehensive understanding of each action and initiative, see the Action Plan progress tracker:
https://home-affairs.ec.europa.eu/policies/migration-and-asylum/migrant-integration/migrant-integration-hub/progress-tracker-
action-plan-integration-and-inclusion-2021-2027_en.
3
To conduct this review, the Commission consulted the Member States and relevant stakeholders8
.
Their views fed in the assessment of the status of the implementation of the Action Plan, as well
as the emerging challenges and needs. The Commission also considered developments in the
internal and geopolitical context since 2021, along with new global challenges, and their impact
on integration policies (e.g. the growing housing crisis). Russia’s war of aggression against
Ukraine also had significant implications for integration policies. The arrival of over 4 million
beneficiaries of temporary protection led the Commission and the Member States to implement
several specific actions9
and innovative practices10
to facilitate their integration and guarantee
access to education, employment, health, and housing in line with the Temporary Protection
Directive11
. According to some of the stakeholders consulted, the EU and Member States should
further replicate the good practices related to the inclusion of displaced people from Ukraine to
other migrants.
The legislative acts adopted as part of the Pact on Migration and Asylum in 2024 contain
provisions relating to the integration of applicants for and beneficiaries of international protection.
These cover issues such as access to and integration in the labour market, access to education,
access to wider integration measures and healthcare, as well as accommodation and housing.
Notably, the revised Reception Conditions Directive 12
reinforces provisions on minimum
standards of assistance and reception for asylum applicants by Member States and promotes early
integration. Under the Qualification Regulation13
, the rights and obligations of beneficiaries of
international protection in terms of employment, social benefits, healthcare, education, integration,
etc. are clarified and strengthened. More broadly, effective and sustainable integration and related
economic inclusion helps to reduce congestions of national reception systems and would further
contribute to reduce drivers of secondary movement. Some of the associated implementation
measures are set out in the Common implementation plan14
which sets out key milestones for
Member States to prepare for the full application of the Pact. In this context, this review aims to
provide insights and tools to assist Member States in preparing and refining their National
Strategies, ensuring alignment with the objectives of the Pact and identifying successful practices.
8
The Commission consulted Member States through the European Integration Network (EIN), the members the Urban Agenda
Inclusion Partnership, the European Partnership for Integration with social and economic partners, the Migrant Integration Hub
country correspondents, and other stakeholders involved in the consultations for the adoption of the Action Plan in 2020 including
civil society organisations. A survey was also published on the migrant integration hub (former European Web Site on Integration)
and open for contributions from the general public. The survey gathered 30 replies from civil societies, international organisations
and local and regional authorities.
9
See an overview of actions to welcome displaced persons from Ukraine: https://home-affairs.ec.europa.eu/policies/migration-
and-asylum/migration-management/migration-management-welcoming-refugees-ukraine_en.
10
See for instance the Safe Homes initiative: https://home-affairs.ec.europa.eu/news/safe-and-suitable-homes-people-fleeing-war-
ukraine-2022-07-06_en, the Talent Pool pilot: https://eures.europa.eu/eu-talent-pool-pilot_en.
11
Council Directive 2001/55/EC of 20 July 2001 on minimum standards for giving temporary protection in the event of a mass
influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and
bearing the consequences thereof, OJ L 212, 7.8.2001, p. 12, available at https://eur-lex.europa.eu/eli/dir/2001/55/oj.
12
Directive (EU) 2024/1346 of the European Parliament and of the Council of 14 May 2024 laying down standards for the reception
of applicants for international protection, OJ L, 2024/1346, 22.5.2024, https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=OJ%3AL_202401346.
13
Regulation (EU) 2024/1347 of the European Parliament and of the Council of 14 May 2024 on standards for the qualification of
third-country nationals or stateless persons as beneficiaries of international protection, OJ L, 2024/1346, 22.5.2024, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=OJ:L_202401347.
14
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions Common Implementation Plan for the Pact on Migration and Asylum,
COM/2024/251 final, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=COM%3A2024%3A251%3AFIN
4
1. EU integration policy: underlying key principles and general trends
Integration policies are crucial for fostering social cohesion, as they help bridge cultural gaps and
ensure that all individuals can contribute to and benefit from the host society. The EU integration
policy is guided by key principles and values that have been set by the Action Plan. These key
principles and values are grounded in the European Pillar of Social Rights and fundamental rights
enshrined in the Treaties and the Charter of Fundamental Rights of the EU. They aim at directing
all the Commission and the Member States’ efforts in designing, implementing, and reviewing
their integration policies.
These principles and values set in the Action Plan are:
- All policies should be inclusive and work for everyone, including for migrants legally
residing in the EU and EU citizens with migrant background. For example, the European
Social Fund Plus (ESF+) has funded several projects to enhance digital skills targeting both
EU citizens and third-country nationals. Third-country nationals are a priority group as part
of efforts to support the activation of underrepresented people in the EU labour market.
- To be successful, integration should function as a two-way process, where migrants make
an active effort to integrate and host communities create the conditions for migrants’ full
participation in society.
- Where necessary, targeted support should be provided, as it is done in the case of
healthcare needs for migrant women or adapted mental healthcare.
- Early action and long-term investment should be put in place to ensure effective
integration, for example as done by the Commission with its toolkit15
with practical
guidance on inclusion within early childhood education and care or with the promotion of
early labour market integration for applicants for international protection.
- Multi-stakeholder partnerships should be put in place, involving national governments,
local authorities, civil society, and EU institutions, as done for example within the Urban
Agenda for the EU Partnership on the inclusion of migrants and refugees16
.
On top of these principles and values, the Action Plan supports an intersectional perspective on
integration challenges, takes a mainstreaming approach to gender and anti-discrimination
priorities and complements EU equality strategies, such as the Gender Equality Strategy 2020-
202517
and the EU Anti-racism Action Plan 2020-202518
, the EU Roma Strategic Framework for
15
Available at: https://school-education.ec.europa.eu/en/discover/toolkit-school-success.
16
The Urban Agenda for the EU is supported by the Commission and in 2021-2027 provided under the European Urban Initiative.
The Thematic Partnership on the Inclusion of migrants and refugees is co-led by the European Commission (DG HOME) and the
City of Amsterdam bringing together, since 2016, cities, national authorities, regions, civil society organisations and EU institutions
to exchange best practices and develop joint actions on integration: https://www.urbanagenda.urban-
initiative.eu/partnerships/inclusion-migrants-refugees.
17
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions a Union of Esuality: Gender equality strategy, COM/2020/152 final,
https://commission.europa.eu/strategy-and-policy/policies/justice-and-fundamental-rights/gender-equality/gender-equality-
strategy_en., a new post-2025 Gender Equality strategy is planned according to the communication from the Commission to the
European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on a Roadmap
for Women’s Rights, COM/2025/97 final https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025DC0097
18
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions A union of equality: EU Anti-racism Action Plan 2020-2025, COM(2020) 565 final
https://commission.europa.eu/strategy-and-policy/policies/justice-and-fundamental-rights/combatting-discrimination/racism-and-
xenophobia/eu-anti-racism-action-plan-2020-2025_en. A new Anti-racism strategy will be adopted by the end of 2025.
5
equality, inclusion and participation19
, the LGBTIQ Equality Strategy20
and the Strategy for the
rights of persons with disabilities 2021-203021
. Furthermore, the Action Plan works in synergy
with other frameworks and strategies, such as the EU Youth Strategy 2019-202722
which promotes
inclusion and provides opportunities for young people at risk of exclusion.
Data shows an overall improvement in legally staying migrants’ integration outcomes. However,
considerable disparities in their integration persist alongside enduring challenges.
In addition to the challenges migrants face in areas such as education, employment, poverty, social
exclusion, and housing (see Figure 1.), they continue to encounter disadvantages in several other
areas. Migrants and people with migrant background continue to be at a higher risk of poverty and
face disproportional difficulties to access employment, education, and essential services, which
hinders their social inclusion and overall well-being and reduces their capacity to contribute to
their host society 23
. However, considering comparison of integration outcomes in the long term,
significant progress has been made in recent years. This is particularly the case in the labour market
integration of migrants, with an overall growth of 4 percentage points in the employment rate of
migrants in the EU in the last decade24
.
19
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions a Union of Equality: EU Roma Strategic Framework for equality, inclusion and participation,
COM(2020) 620 final https://commission.europa.eu/strategy-and-policy/policies/justice-and-fundamental-rights/combatting-
discrimination/roma-eu/roma-equality-inclusion-and-participation-eu_en.
20
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions a Union of Equality: LGBTIQ Equality Strategy, COM/2020/698 final
https://commission.europa.eu/strategy-and-policy/priorities-2019-2024/new-push-european-democracy/equality-and-
inclusion/actions-lgbtiq-equality_en.A new LGBTIQ strategy will be adopted by the end of 2025.
21
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions a Union of Equality: Strategy for the rights of persons with disabilities 2021-2030,
COM/2021/101 final https://employment-social-affairs.ec.europa.eu/policies-and-activities/social-protection-social-
inclusion/persons-disabilities/union-equality-strategy-rights-persons-disabilities-2021-2030_en.
22
Resolution of the Council of the European Union and the Representatives of the Governments of the Member States meeting
within the Council on a framework for European cooperation in the youth field: The European Union Youth Strategy 2019-2027,
OJ 2018/C 456/01, p. 1 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=OJ:C:2018:456:FULL.
23
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing,
Paris, https://doi.org/10.1787/1d5020a6-en.
24
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing,
Paris, https://doi.org/10.1787/1d5020a6-en.
6
Key facts and figures on integration and inclusion (EU-27, 2023)25
25
Eurostat data, 2023, published in 2024 and Eurostat (EU Labour Force Survey). Migrant population in this graph corresponds
to population born outside the EU whose parents were also born outside the EU (first generation migrants), whereas native
population corresponds to population born in the country whose parents were born also in the country.
7
8
2. Education and Training
2.1. State of play on the implementation of the Action Plan
Creating an inclusive and equitable education system is key to the development and cohesion of
European societies, especially in a context of decline in basic skills of young people in the EU and
an urgent need to attract teachers26
. If access to quality education is important for all young people,
it is particularly the case for disadvantaged ones, such as migrants, and education plays an
important role in social mobility and participation in civic life. The European Education Area
(EEA)27
seeks to remove barriers to learning and enhance education quality across Member States
for all and particularly for disadvantaged learners, through actions that address disparities and
promote inclusion. To achieve this key objective, the Commission published different tools, such
as the Toolkit for school success28
. This toolkit includes specific relevant sections on migrant
learners and was complemented with an updated self-assessment tool29
on inclusion and wellbeing
in May 2025. The Commission also drafted a proposal that led to the adoption in 2022 of the
Council Recommendation on Pathways to School Success30
, with a focus on groups at risk, which
includes migrant children. The Commission has been supporting the implementation of this
Council Recommendation by promoting mutual learning and exchange of practices through the
dedicated Pathways to School Success sub-group of the EEA strategic framework Working Group
on Schools. The EEA strategic framework Working Group on Equality and Values in Education
and Training31
has organised a range of mutual learning activities on inclusive education and
published papers addressing topics related to citizenship education and discrimination.
Additionally, the Commission and the Belgian Presidency organised in May 2024 a meeting of the
European Integration Network (EIN)32
focused on inclusive education where a number of Member
States’ representatives and other stakeholders showcased good practices. The Commission also
launched Erasmus+ Teacher Academies33
in February 2022. These academies create European
partnerships to offer support for teachers, including on encouraging multilingualism, language
awareness and cultural diversity. By 2025, 27 Teacher Academies had been set up, and 17 new
academies were launched in 2025. Also, as part of the cooperation between the Commission and
26
Communication from the Commission to the European Parliament, the European Council, the Council, the European Economic
And Social Committee and the Committee of the Regions, The Union of Skills, COM(2025) 90 final, https://employment-social-
affairs.ec.europa.eu/document/915b147d-c5af-44bb-9820-c252d872fd31_en; an EU comparative analysis of the PISA 2022 results,
https://education.ec.europa.eu/nl/news/report-of-pisa-2022-study-outlines-worsening-educational-performance-and-deeper-
inequality
27
Communication from the Commission to the European parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on achieving the European Education Area by 2025, COM/2020/625 final, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52020DC0625. Council Resolution on the governance structure of the strategic
framework for European cooperation in education and training towards the European Education Area and beyond (2021-2030), OJ
C 497, 10.12.2021, p.1
28
Available at:
https://school-education.ec.europa.eu/en/discover/toolkit-school-
success?overridden_route_name=entity.taxonomy_term.canonical&amp%3Bbase_route_name=entity.taxonomy_term.canonical
&amp%3Bpage_manager_page=taxonomy_term_pages&amp%3Bpage_manager_page_variant=taxonomy_term_pages-
layout_builder-2&amp%3Bpage_manager_page_variant_weight=-8.
29
Professional development - Self-assessment tools | European School Education Platform https://school-
education.ec.europa.eu/en/learn/self-assessment-tools
30
European Commission: Directorate-General for Education, Youth, Sport and Culture, Pathways to school success, Publications
Office of the European Union, 2022, https://data.europa.eu/doi/10.2766/193975.
31
Working Group on Equality and Values in Education and Training https://ec.europa.eu/transparency/expert-groups-
register/screen/expert-groups/consult?lang=en&groupID=3778.
32
Minutes available on the Register of Commission Expert Groups and Other Similar Entities
https://ec.europa.eu/transparency/expert-groups-register/screen/expert-groups/consult?lang=en&groupID=602.
33
More information available at https://education.ec.europa.eu/education-levels/school-education/erasmus-teacher-academies.
9
the European Centre for modern languages of the Council of Europe, many trainings for teachers
have been organised in Member States on how best to develop learners’ competences in the
language/s of schooling, whilst valuing all children’s home languages and drawing on these
languages as a rich resource for learning34
. As part of the Union of Skills35
, the Commission
adopted an Action Plan on Basic Skills36
in March 2025, to ensure that all learners, including
migrants leave school with sufficient basic skills37
and that adults reach an adequate level of
proficiency38
.
In the context of forced displacement from Ukraine, the Commission mobilised all available
instruments ranging from peer learning to policy guidance, data collection, online platforms, and
funding to ensuring access to high-quality education for displaced children from Ukraine and
support Member States’ efforts in this area. The EEA strategic framework Working Groups
provided a forum for peer learning in support of the inclusion of these children. With a major
contribution of the Working Group on Schools, the Commission adopted on 30 June 2022 a
practical manual outlining considerations, key principles and practices on the inclusion of
displaced children from Ukraine39
. A dedicated resource site40
for education and support for
Ukrainian was created on the European School Education Platform. Following interest expressed
by Ukraine, exceptional Erasmus+ opportunities have been introduced since March 2022 and EUR
100 million was frontloaded to support the integration of learners displaced by the war in their new
learning environments. Furthermore, the Commission published in June 2024 a report on the
inclusion of displaced children from Ukraine in EU education systems 2023-202441
. This data was
incorporated into an inter-agency dashboard42
on education for Ukrainian refugee learners in
European host countries, launched in May 2025 by UNESCO and built in cooperation with the
Commission, UNHCR, UNICEF, OECD and the Council of Europe.
Several Member States reported providing schools with teaching material, handbooks and guides
related to multicultural, intercultural and linguistic diversity issues. Some Member States also
declared providing teachers with adequate training for teaching multilingual classrooms, while
34
A report prepared for the Commission in 2022 showed emerging practices supporting newly arrived migrant and displaced
children in their language learning needs. Siarova, H. (2022). ‘Education interventions supporting newly arrived migrant and
displaced children in their language learning needs, NESET Ad hoc report no. 2/2022.
35
The Union of Skills (COM(2025) 90 final) https://employment-social-affairs.ec.europa.eu/document/915b147d-c5af-44bb-
9820-c252d872fd31_en
36
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on the Action Plan on Basic Skills, COM/2025/88 final https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=celex:52025DC0088
37
The basic skills set is widened and includes literacy, mathematical, science, digital and citizenship skills, to address the challenges
of our rapidly evolving societies and economies.
38
The Commission also adopted a STEM (science, technology, engineering, and mathematics) Education Strategic Plan to reverse
the trend of declining performance in STEM skills at school and to attract more students in STEM tracks and careers. Lack of
access to high-quality STEM education particularly impacts students from disadvantaged socio-economic or migration background.
https://education.ec.europa.eu/sites/default/files/2025-03/STEM_Education_Strategic_Plan_COM_2025_89_1_EN_0.pdf
39
Supporting the inclusion of displaced children from Ukraine in education: https://school-
education.ec.europa.eu/en/discover/publications/supporting-inclusion-displaced-children-ukraine-education-considerations-key
40
The inclusion of displaced children from Ukraine in EU education systems: https://school-
education.ec.europa.eu/en/discover/news/education-support-ukrainian-refugees
41
The inclusion of displaced children from Ukraine in EU education systems https://op.europa.eu/en/publication-detail/-
/publication/224f94b0-32a8-11ef-a61b-01aa75ed71a1/language-en The inclusion of displaced children from Ukraine in EU
education systems 2023 - 2024 https://op.europa.eu/en/publication-detail/-/publication/224f94b0-32a8-11ef-a61b-
01aa75ed71a1/language-en
42
https://www.unesco.org/en/ukraine-war/education
10
some Member States have opened specific classes for children not yet speaking the national
language of the hosting Member State.
To improve the quality of early childhood education and care, the Commission published a
toolkit43
with practical guidance on inclusion within early childhood education and care in
February 2021. The Commission coordinates the working group on early childhood education and
care which supports Member States in implementing the European Quality Framework for early
childhood education and care44
. Several Member States reported having support programmes
assisting culturally diverse children at early childhood education and care level which provide
staff with adapted materials and training. Other Member States mentioned initiating new
projects to improve access of culturally and linguistically diverse children in early childhood
education and care by targeting parents.
As part of the EU Digital Education Action Plan 2021-2745
, the EC has worked on related Council
Recommendation proposals46
to make the most of EU support for internet access, purchase of
digital equipment and e-learning applications and platforms for schools, in particular for students
from disadvantaged groups such as migrants.
A Mutual Assistance Project (MAP47
) organised between Belgium and Sweden in the framework
of the EIN, has supported exchanges between Member States on successful approaches to civic
orientation courses in 2021 (in addition to other topics). Several Member States have adopted
measures to support language learning of migrant children beyond initial proficiency level,
while others reported also supporting proficiency language acquisition for adults. To fund these
initiatives, many Member States reported using European funds for language courses that target
both children and adults, with a majority of Member States using AMIF. The Commission also
funded 5 new transnational projects in 2024, under AMIF Thematic Facility48
, aiming to improve
the effectiveness of language learning for migrant children. Regarding the need for specific
integration support towards unaccompanied minors, the European Migration Network (EMN)
produced a relevant mapping of the challenges and good practices on transition to adulthood for
unaccompanied minors49
. Aspects related to vocational education and training are covered in the
next section on employment and skills.
43
Toolkit for inclusive early childhood education and care, available at https://op.europa.eu/en/publication-detail/-
/publication/4c526047-6f3c-11eb-aeb5-01aa75ed71a1.
44
Council Recommendation of 22 May 2019 on High-Quality Early Childhood Education and Care Systems, OJ C 189, 5.6.2019,
p. 4, available at
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32019H0605%2801%29.
45
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions, Digital Education Action Plan 2021-2027 Resetting education and training for the digital age,
COM/2020/624 final, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A52020DC0624
46
Such as the Council Recommendation on blended learning approaches for high-quality and inclusive primary and secondary
education, OJ C 504, 14.12.2021, p. 21, https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32021H1214%2801%29 and Council Recommendation of 23 November 2023 on the key
enabling factors for successful digital education and training, OJ C/2021/1115, 24.1.2024 https://eur-lex.europa.eu/legal-
content/EN/TXT/PDF/?uri=OJ:C_202401115
47
Mutual Assistance Projects are aimed to facilitate reciprocal learning and support the design of national integration strategies
and programmes. The system promotes the collaboration between Member States, by matching those willing to improve integration
aspects in specific sectors with others keen to share their experiences.
48
Call for proposals Transnational actions on asylum, migration and integration: https://ec.europa.eu/info/funding-
tenders/opportunities/docs/2021-2027/amif/wp-call/2023/call-fiche_amif-2023-tf2-ag_en.pdf.
49
EMN inform Transition of unaccompanied minors to adulthood https:home-affairs.ec.europa.eu/system/files/2022-
11/EMN_INFORM_Transition-minors-adulthood_final.pdf, November 2022.
11
2.2. Remaining challenges
Overall, socio-economic backgrounds continue to strongly affect pupils’ educational outcomes, as
evidenced by basic skills deficiencies, early leaving from education and training for children at
school. The Education and Training Monitor's comparative report also highlights how a different
home language widens inequalities further in some Member States50
. In 2023, young migrants
were three times more likely to be early leavers51
from education and training (25.3% compared
to 8.2% for native-born children), and twice more exposed to being neither in employment nor in
education or training, compared to native-born children52
. Similarly, a gap exists for basic reading
skills in the EU regarding migrant children or children with migrant background compared to
native pupils53
, putting Member State’ education systems under pressure as they have to teach
heterogenous groups of pupils with divergent language and skill levels. Native-born pupils with
foreign-born parents also report both a weaker sense of belonging and a lower well-being at school
than their peers with native-born parents in most European countries, showing that national school
systems face significant challenges in contributing to societal cohesion. Nearly one in four
native‑born young people with foreign-born parents reports feeling part of a group that is
discriminated against on the grounds of ethnicity, nationality and race54
. The gap between migrants
and nationals living in their country is also reflected in terms of tertiary educational attainment.
Young adults born outside the EU from foreign born parents are the least likely to have obtained
a tertiary degree (37.1% in 2023) compared to 42.9% young adults born in the reporting country
from foreign born parents and to 44.6% for young adults born in the reporting country whose
parents were also born there55
. In 2023, 35.5% of non-EU citizens aged 25-34 years living in the
EU had a tertiary educational attainment compared with 44.2% of nationals living in their own
country56
.
According to stakeholders57
, access to higher education and transition from school to work is still
not supported enough for migrants. The situation varies between Member States with several
administrative, legal, or capacity barriers together with issues to access information still present in
many cases. Stakeholders also report that additional challenges remain for migrants and EU
nationals with migrant background who do not manage to learn the local language. This is partly
due to the significant number of migrants to which some Member States have to offer language
50
Education and Training Monitor 2024: https://op.europa.eu/webpub/eac/education-and-training-monitor-2022/en/comparative-
report/chapter-1.html#complementary-evidence section 3.2.
51
The share of early leavers from education and training is calculated for persons aged 18–24 years. A person in this age group is
considered to be an early leaver if their highest level of educational attainment is at most lower secondary education and they have
not received any formal nor non-formal education or training in the 4 weeks preceding the survey. Migrant integration statistics -
education - Statistics Explained: https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Migrant_integration_statistics_-
_education#Early_leavers_from_education_and_training.
52
The gap between nationals and third-country nationals in terms of share of early leavers from education and training only
decreased slightly since 2014 (from 18,5% points to 17.1%).
53
In the EU, 38% of migrant pupils (and 29% of pupils native‑born from foreign-born parents) lack basic reading skills (compared
to 18% for pupils with native‑born parents). OECD/European Commission (2023), Indicators of Immigrant Integration 2023:
Settling In, OECD Publishing, Paris, https://doi.org/10.1787/1d5020a6-en.
54
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, Section, 7.8, OECD Publishing,
Paris, https://doi.org/10.1787/1d5020a6-en.
55
Education and Training Monitor 2024 To be noted as well that, in 2023, 35.5% of non-EU citizens aged 25-34 years living in
the EU had a tertiary educational attainment compared with 44.2% of nationals living in their own country, cf. 2023 Migrant
integration statistics - education - Statistics Explained: https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Migrant_integration_statistics_-_education.
56
2023 Migrant integration statistics - education - Statistics Explained: https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Migrant_integration_statistics_-_education.
57
For details about the stakeholders consulted see footnote 8.
12
trainings. In view of these high numbers, Member States face hurdles to offer sufficient and well-
designed language courses, especially in rural areas, which strongly hinders migrants’ integration.
Pressure on the national resources leads to language classes often being available only for
beginners, which delays migrant’s full participation in education or in the labour market, thereby
also impacting Member States’ economies and social cohesion. Several stakeholders highlighted
how civic orientation and language learning courses often remain insufficient or not fully adapted
to the needs of migrants. They suggested to look at community sponsorship as a source of
inspiration for more effective language learning.
Regarding unaccompanied minors, in a quarter of EU Member States, support and services for
education end on their 18th
birthday, and the majority of Member States do not have a specific
strategy in place to support the transition of unaccompanied minors to adulthood, in part due to
their high number. However, it is noteworthy that half of the Member States reported offering
some type of continued assistance after they have turned 18.
2.3. Way forward in implementing the Action Plan
The Commission, together with Member States and other stakeholders, has funded and developed
relevant tools and guidance aiming at improving access to education and making education more
inclusive. Member States are encouraged to use the comprehensive guidance provided by the
Commission to implement, including with EU funding support, the relevant measures to make
their education systems more inclusive. Those efforts should target all migrants and take into
account the specific needs of migrants in need of protection, especially in light of the work to be
done on the implementation of the Pact on Migration and Asylum, for example on access to
adapted education for children who are applicants and beneficiaries of international protection
(Article 16 of the Reception Conditions Directive and Article 29 of the Qualification Regulation).
Member States should make full use of EU funding available such as AMIF, ESF+ or Erasmus+.
Given that the early years set the foundations for children’s development and learning trajectories
in life, Member States should work towards removing administrative, legal and capacity obstacles
to access to early childhood education and care for migrant children. Additional adapted and
flexible support should be given to refugee and asylum-seeking children, especially in terms of
language learning. Implementing the good practices related to teacher support that already exist
is also necessary to remove barriers such as staff shortages and inadequate training. The
Commission and the Member States should continue building on successful approaches to civic
orientation courses and language learning adapted to the needs of migrants, including by
promoting their dissemination through digital tools. A dedicated session on this topic took place
at the latest EIN meeting in May 2025. Additionally, emphasis should be put on supporting
unaccompanied minors in their transition to adulthood, in addition to the necessary investment
to be made on guardianship and adapted reception conditions as required by the revised Reception
Conditions Directive. Finally, additional support on higher education and transition to work should
be provided by linking education and employment policies and setting support for young adults.
The Union of Skills as well as the European Education Area provides a relevant framework for
actions regarding inclusive education. This also includes tapping into the potential of non-formal
education and training which can effectively support the transition from education to work,
particularly for disadvantaged young people lacking necessary skills and risking facing prolonged
periods of unemployment or precarious employment.
13
3. Employment and skills
3.1. State of play on the implementation of the Action Plan
Europe is undergoing a profound demographic transformation. The EU’s working-age population
is projected to decline by 57.4 million until 2100 (or 21.7%) and the old-age dependency ratio to
increase from 33% in 2023 to 60% by 210058
. Skills shortages are increasingly acute across key
sectors – from health59
to construction to digital and green technologies. Nearly 4 in 5 of SMEs in
the EU, which represent 99% of all enterprises, have difficulties in finding workers with the right
skills60
. As set out in the Union of Skills, the Commission is working to promote greater
participation in the labour market by as many working-age individuals as possible, including by
removing existing barriers and reaching out to groups with fewer opportunities61
. In this context,
it is important to recognise the contribution of migrants to the EU economy as well as their
significant untapped potential. Integrating migrants into the labour market sustainably – at an early
stage and in line with their skills and qualifications – is essential both for the persons concerned
and for fostering economic growth and social cohesion in the host societies.
The Action Plan emphasises that effective cooperation between labour market actors, such as
public authorities, economic and social partners, employers, training providers, social economy
actors and civil society organisations, at local, regional, national, and European level is essential
to achieve a sustainable labour market integration. Since the adoption of the Action Plan, the
Commission promoted multi-stakeholder partnerships through funding, advocacy and facilitating
the sharing of experience. In many Member States, public employment services (PES) play a
primordial role in assisting migrants to find employment at a level corresponding to their skills
and qualifications. The Commission supports the European Network of Public Employment
Services (PES)62
thus enabling mutual learning and exchange of best practices in this area. To help
beneficiaries of temporary protection making use of their right of immediate labour market access,
the PES Network monitored their labour market integration and issued guidance that helped to
scale up good practices by PES across the EU.
Through the European Partnership for Integration63, the Commission and European social and
economic partners continued efforts to include refugees and other migrants more sustainably in
EU labour markets. They strengthened the linkages between, on the one hand, employer
organisations, trade unions and chambers of commerce at the local and national levels and, on the
other hand, policy developments at EU-level, such as specific measures for displaced people from
Ukraine and initiatives under the European Year of Skills64
.
58
Eurostat, Population projection in the EU: https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Population_projections_in_the_EU
59
The Commission/OECD 2024 Health at a Glance Report estimates a shortage of 2,1 million health workers in EU Member States.
Health at a Glance: Europe - European Commission, https://health.ec.europa.eu/state-health-eu/health-glance-europe_en
60
Eurobarometer, SMEs and skills shortages: https://europa.eu/eurobarometer/surveys/detail/2961
61
The Union of Skills: : https://employment-social-affairs.ec.europa.eu/document/915b147d-c5af-44bb-9820-c252d872fd31_en .
62
PES Network: https://ec.europa.eu/social/main.jsp?catId=105&langId=en
63
Under the European Partnership for Integration, the Commission and European Social and Economic Partners (ETUC,
BusinessEurope, SGI Europe, SMEUnited, Eurochambres) have worked together since 2017 to create opportunities for integrating
refugees and other migrants into the EU labour market: https://home-affairs.ec.europa.eu/policies/migration-and-asylum/migrant-
integration/eu-integration-policy/cooperation-integration-actors_en#social-and-economic-partners-the-european-partnership-for-
integration.
64
European Year of Skills: https://year-of-skills.europa.eu/index_en.
14
Following the 2023 call for proposals on ‘Multi-stakeholder initiatives for migrant
integration into the labour market’ under the AMIF thematic facility, eight transnational
projects kicked off in spring 2024 and are under implementation. The projects, which involve
social partners, civil society and migrant organisations, training providers, PES and other actors
from across the EU, aim to strengthen multi-stakeholder partnerships, test innovative approaches
and promote good practices on job matching, sustainable employment conditions, inclusive
workplaces and entrepreneurship in various sectors including agriculture and renewable energy.
The Commission also promoted multi-stakeholder cooperation structures at national, regional
and local levels by creating opportunities for exchange between various EU-level networks, as was
done, for example, at the EIN meeting in November 2023 in Madrid, which focused on labour
market integration65
. Most stakeholders agreed that multi-stakeholder cooperation has become
stronger, although not in all Member States.
The Action Plan calls on Member States to make full use of EU funding to support labour
market integration. The vast majority of Member States reported doing so by using mostly the
ESF+, but also the AMIF, the European Regional Development Fund (ERDF) and the Technical
Support Instruments (TSI). Member States also increasingly aim to create synergies between the
funds, for example by using AMIF for early integration measures and ESF+ for measures with
longer term orientation. The scope of measures is vast, including both active labour market policies
to which migrants have access together with other parts of the EU labour force, or specific
programmes targeted at applicants and beneficiaries of international protection, or migrant mothers
for example.
Progress was made towards assessing and validating migrants’ skills more effectively, as well
as facilitating the recognition of qualifications obtained in third countries and providing access
to training, up- and reskilling. The multilingual EU Skills Profile Tool for Third-Country
Nationals66
, which supports early profiling of skills, is predominantly used by organisations in
reception centres. Since 2023, it is interoperable with the Europass platform, which helps
jobseekers showcase their skills and qualifications. The European Centre for the Development of
Vocational Training (CEDEFOP) produced materials to facilitate the validation of informally
acquired skills – important for migrants with work experience but without formal qualifications –
and increase the participation of migrants in high-quality vocational education and training.67
The arrival of large numbers of displaced people from Ukraine, many of them with a high level of
qualifications, prompted various initiatives to help them apply their skills and qualifications. The
EU Skills Profile Tool was translated to Ukrainian in early 2022. The European Training
Foundation (ETF) published information material, e.g. a report comparing the European
Qualification Framework (EQF) with the Ukrainian National Qualification Framework, on a
dedicated information hub68
. Through the EU Talent Pool Pilot, launched by the Commission and
the European Labour Authority in October 2022, beneficiaries of temporary protection seeking
65
Representatives of the European Partnership for Integration and the Commission Expert Group on the Views of Migrants
participated in that EIN meeting.
66
EU Skills profile tool for third-country nationals: https://employment-social-affairs.ec.europa.eu/policies-and-activities/skills-
and-qualifications/skills-jobs/eu-skills-profile-tool-third-country-nationals_en.
67
CEDEFOP (2023): European guidelines for validating non-formal and informal learning, 3rd
edition,
https://www.cedefop.europa.eu/en/publications/3093.
68
Education and work information for Ukrainians and EU countries: https://www.etf.europa.eu/en/education-and-work-
information-ukrainians-and-eu-countries.
15
jobs in a Member State could make available their profiles and skills with employers registered on
EURES (European network of employment services).
Based on the 2022 Commission Recommendation on recognition of qualifications of people
fleeing Russia’s invasion of Ukraine69, Member States took a range of measures to speed up
access to practising in regulated professions, such as waivers for certain requirements, practising
under supervision etc. Building on this approach, in 2023, the Commission issued a
Recommendation on the recognition of qualifications of third-country nationals in general,
as part of the ‘Skills and Talent Mobility package’70
. A series of webinars organised by the
Commission in 2024 followed up on the recommendations relating to i) information, ii)
simplification and iii) cooperation with third countries regarding recognition procedures. The
webinars also showcased good practices applied by Member States in these areas. To follow up on
the package, the Commission is also taking steps to boost information on recognition procedures
(e.g. by supporting Member States to develop interoperable databases on recognition) and
developing an improved understanding of qualification frameworks of key countries or origin.
A growing number of Member States use tools developed under a series of ERASMUS+ funded
projects, the European Qualification Passport for Refugees 71
or other methods to recognise
qualifications of beneficiaries of international protection, even where they cannot document
their qualifications. In March 2022, the Commission fostered cooperation between public
authorities in charge of integration and national centres for recognition of qualifications through a
joint meeting of the EIN and the ENIC-NARIC network72
. An analysis of Member States’ different
practices to provide bridging courses73 for migrants whose qualifications are not (or not fully)
recognised, highlighted good practices but also the fact that such courses are not systematically
available and are often hard to access. That analysis also informed EIN discussions.
A key objective of the European Year of Skills (9 May 2023-9 May 2024) was to promote a
mindset of up- and reskilling. The Year brought skills to the forefront of the EU’s political agenda
and allowed advancing and raising awareness among stakeholders and the general public about the
EU’s skills-related initiatives and policies, including those that target vulnerable parts of the EU
workforce. In March 2024, the Commission adopted an Action Plan on Labour and Skills
Shortages in the EU, which highlighted the importance of increasing the labour market
participation of migrants74
.
69
Commission Recommendation (EU) 2022/554 of 5 April 2022 on the recognition of qualifications for people fleeing Russia’s
invasion of Ukraine, OJ L 107I, 6.4.2022, p. 1, available at https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32022H0554.
70
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on Skills and Talent Mobility, COM(2023) 715 final https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A52023DC0715 ; Commission Recommendation (EU) 2023/2611 of 15 November 2023 on the
recognition of qualifications of third-country nationals, OJ L, 2023/2611, 24.11.2023, ELI:
http://data.europa.eu/eli/reco/2023/2611/oj
71
The European Qualifications Passport for Refugees is a standardized document issued in a project carried out by the Council of
Europe and partners. See European Qualification Passport for Refugees (EQPR): https://ec.europa.eu/digital-building-
blocks/sites/display/EBSI/European+Qualification+Passport+for+Refugees.
72
ENIC-NARIC - gateway to recognition of qualifications: https://www.enic-naric.net/page-homepage.
73
https://home-affairs.ec.europa.eu/whats-new/publications/bridging-courses-migrants-complement-qualifications-acquired-
third-countries-approaches-and_en
74 Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions, Labour and skills shortages in the EU: an action plan, COM(2024) 131 final, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52024DC0131
16
Aiming to improve the labour market inclusion of migrant women and following the gender
mainstreaming approach of the Action Plan, the Commission pursued the objective of gender
equality in its work on integration horizontally. The large-scale displacement of people from
Ukraine focused public attention on the specific needs of women fleeing with children. In its 2022
guidance for access to the labour market, the Commission called on national authorities and
PES to ‘address the needs of women with children, also in relation to their rights to access early
childhood education and care and school education as this can help them take up employment
opportunities75
’. An EMN study on the integration of migrant women76
showcased good
integration practices at national and local levels on labour market integration as well as other
priorities of the Action Plan. The fact that women facing multiple obstacles to employment need
tailor-made support in line with their needs, and that such support is possible and effective if labour
market and other relevant actors cooperate effectively at the local level, was confirmed in the five
projects resulting from the 2019 call for proposals to support social and economic integration
of migrant women under the AMIF thematic facility. The lessons learnt were disseminated to
EIN members.
In order to better support migrant entrepreneurs through easier access to financing, training and
advice, the Commission promoted innovative financing mechanisms and facilitated capacity
building and experience sharing through initiatives and programmes such as InvestEU, the
Financial Instrument Compass, the Youth Entrepreneurship Policy Academy and others. Several
Member States reported opening their mainstream entrepreneurship support services to migrants
and many also developed dedicated support programmes.
3.2. Remaining challenges
In line with the positive evolution of the overall EU employment rate, the employment rate of
third-country nationals increased from 55% in 2013 to 63% in 2023 (compared to 68% in 2013
and 76.2% in 2023 for nationals) 77
. Workers born outside the EU are overrepresented in
occupations facing persistent labour shortages, showing their importance for the EU economy78
.
Nevertheless, challenges remain regarding migrants’ full inclusion into the EU labour markets,
particularly for migrants with respectively a high or very low level of education, migrant women
and recently arrived persons (other than labour migrants). The unemployment rate of third-
country nationals is over twice that of EU nationals79
(12.2% vs. 5.4% in 2023), with recently
arrived and low-educated migrants more likely to be unemployed. Migrants seeking international
protection or arriving to join family members have lower employment rates than labour migrants,
as they tend to have weaker attachments to the labour market. On average, they achieve labour
75
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on Guidance for access to the labour market, vocational education and training and adult learning
of people fleeing Russia’s war of aggression against Ukraine, C(2022) 4050 final,
https://ec.europa.eu/commission/presscorner/detail/en/ip_22_3620.
76
EMN Integration of Migrant Women: https://www.emnbelgium.be/publication/integration-migrant-women.
77
Eurostat (2024):
https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Migrant_integration_statistics_%E2%80%93_labour_market_indicators#Employment_rate.
78
European Commission, Report on Employment and Social Developments in Europe 2023:
https://op.europa.eu/webpub/empl/esde-2023/executive-summary.html.
79
Eurostat (2024):
https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Migrant_integration_statistics_%E2%80%93_labour_market_indicators#Employment_rate .
17
market outcomes comparable to nationals after 10 years of residence80
, even though evidence
indicates that displaced people from Ukraine enjoy better labour market outcomes than other
refugee groups81
. This delay in entering the national labour markets creates challenges for Member
States, in particular the actors that support their integration (employment services, adult education
institutions, municipalities etc.). It also puts additional pressure on social protection systems.
While migrants bring motivation and skills to the EU, the economy is missing out on part of this
potential. As highlighted in the Draghi report, migration can significantly contribute to reducing
labour shortages. In particular, Europe faces challenges in attracting and retaining skilled talent,
and despite being more likely to work in shortage occupations, migrant workers are often
employed in low-skilled jobs82
. According to the OECD, if highly educated migrants had the same
employment rate as their native-born counterparts, the EU would have around 760 000 more highly
educated people working83
. Migrants with a university degree are almost twice as likely to be
overqualified for their jobs (i.e. work in low- or medium-skilled occupations) than the local
population: in 2023, the EU over-qualification rate was 39.4% for migrants compared to 20.8%
for nationals (31.3% for citizens of other Member States)84
. Migrants also tend to work more in
temporary arrangements and involuntary part-time work. The majority of stakeholders flagged a
lack of progress on qualification recognition, skills validation and access to training, even though
they acknowledged improvements in some Member States. Specifically, stakeholders highlighted
that efforts were still necessary regarding overqualification and the provision of bridging courses,
including in combination with language support, as well as better adapted access opportunities to
vocational education and training. Some stakeholders recommended that innovative measures for
support people fleeing the war in Ukraine should be extended to all beneficiaries of international
protection.
A persistent issue of concern is the gender gap. The employment rate for migrant women was 20
percentage points lower than for female nationals in the EU in 2023, in contrast to a gap of only
5.7 percentage points for migrant men85
. The overqualification rate for migrant women is also
higher than for migrant men. The OECD finds that the effect of having children, also referred to
as ‘motherhood penalty’, tends to be more pronounced for migrant women and largely accounts
for the gender gap. This is due to limited access to integration support, childcare, and family
networks among others86
. Despite the efforts, the majority of external stakeholders did not
consider that the labour market inclusion of migrant women had improved, citing the lack of access
to childcare and overqualification as some of the key issues. Some, however, pointed to the faster
integration of displaced women from Ukraine compared to other groups in refugee-type situations.
80
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing,
Paris, https://doi.org/10.1787/1d5020a6-en.
81
European Commission, Labour Market and Wage Developments in Europe 2024: https://op.europa.eu/en/publication-detail/-
/publication/057f23e9-bdc5-11ef-91ed-01aa75ed71a1/language-en
82
The future of European Competitiveness – Part B: ec1409c1-d4b4-4882-8bdd-3519f86bbb92_en.
83
Calculations adapted from OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD
Publishing, Paris, https://doi.org/10.1787/1d5020a6-en.
84
Eurostat (2024), Migrant integration statistics - over-qualification: https://ec.europa.eu/eurostat/statistics-
explained/index.php?oldid=536540
85
Eurostat (2024): Labour market:
https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Migrant_integration_statistics_%E2%80%93_labour_market_indicators#Employment_rate
86
OECD (2023): International Migration Outlook 2023, https://doi.org/10.1787/b0f40584-en.
18
While the Action Plan acknowledges the contribution of migrant entrepreneurs to economic
growth and job creation, research by the OECD87
confirms that migrants choose self-employment
more often as a fallback option than locals, due to difficulties to enter paid employment. In addition,
statistics about self-employment also reflect bogus self-employment, such as platform work, where
migrants are overrepresented. The majority of stakeholders consulted for this review, also
considered support to migrant entrepreneurs as insufficient, particularly regarding access to
financial services and availability of training and mentoring programmes. Stakeholders with a
more positive perception usually referred to cases in a specific local area.
3.3. Way forward in implementing the Action Plan
In order to achieve the objectives set by the Action Plan, the Commission, the Member States and
the labour market actors have to continue strengthening multistakeholder cooperation structures at
all government levels. In the context of implementing the Pact on Migration and Asylum, they
should pay particular attention to creating opportunities for the sustainable labour market
integration of beneficiaries of international protection and applicants who have the right to work.
The Reception Conditions Directive (Article 17) and the Qualification Regulation (Article 30)
clarify and strengthen key employment-related rights of applicants and beneficiaries of
international protection, respectively. These legislative acts provide that both categories must be
treated equally as nationals in terms of working conditions and labour rights; access to training
and employment guidance services; as well as access to recognition of formal qualifications and
validation of prior learning outcomes. The Qualification Regulation highlights the importance of
information and counselling services offered by the public employment services. As several
Member States already have programmes and measures in place for these target groups, the
Commission will continue to facilitate the sharing of experience and good practices through the
EIN and other networks. In addition to immigration procedures, in line with the indications in the
Draghi report, Member States should provide appealing job opportunities for highly skilled
professionals and support EU schemes like the Blue Card88
, which simplifies the entry and
residence of highly qualified non-EU nationals for employment purposes.
As set out in the Communication “A predictable and common European way forward for
Ukrainians in the EU”89
, the Commission will support the setting-up of Unity Hubs in those
interested Member States. These will serve as multipurpose information centres to foster both the
integration of displaced people in EU labour markets and host societies and for going back home
to Ukraine.
It will also be important to consolidate and upscale recent initiatives to support skills validation
and recognition of qualifications of migrants. Member States are encouraged to take forward
implementation of the Commission Recommendation on the recognition of qualifications obtained
in third countries, including by investing in training provision and streamlining recognition
procedures. The Union of Skills includes a focus on addressing barriers that hinder the portability
and recognition of people’s skills and qualifications, and announces a Skills Portability Initiative
87
OECD (2024): International Migration Outlook 2024, https://www.oecd.org/en/publications/international-migration-outlook-
2024_50b0353e-en.html.
88
Blue Card: https://home-affairs.ec.europa.eu/policies/migration-and-asylum/legal-migration-resettlement-and-
integration/work/eu-blue-card_en.
89
Communication from the Commission to the European Parliament, the Council, the Economic and Social Committee and the
Committee of the Regions, A predictable and common European way forward for Ukrainians in the EU, COM (2025)649 final,
eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52025DC0649
19
to be adopted in 2026. As part of this, the Commission will explore whether to propose common
rules for simpler procedures for handling the recognition and validation of qualifications and skills
of third-country nationals.
All actors are also encouraged to provide more and better targeted support to reduce the gender
gap in employment and help migrant women, and migrant mothers in particular, find adequate
work and professional training. This is essential also because working mothers are role models for
their children90
. As part of the 2025 AMIF Call for proposals for transnational projects on the
integration of migrants and protection of children, the Commission will support projects on the
socio-economic integration of migrant women and will continue to disseminate good practices to
Member States and other stakeholders. By taking a whole-of-family perspective to integration,
Member States authorities in charge of integration programmes could make it easier for migrant
mothers to participate in such programmes by making them more flexible, for example by
extending mandatory timelines, adapting schedules and facilitating childcare provision. Finally,
regarding support for entrepreneurship, the Commission will continue to work on making
support for migrant entrepreneurs better targeted and more accessible.
4. Health
4.1. State of play on the implementation of the Action Plan
Healthcare systems in the EU faces several challenges due to the ageing populations, increasing
needs, budgetary constraints and medical staff shortages. Additional challenges exist regarding
mental health care, as highlighted in the communication on a Comprehensive Approach to
Mental health91 adopted on 7 June 2023. Effective healthcare integration is a cornerstone for
addressing the social determinants of health among migrants and reducing health disparities.
Migrants often face unique barriers to accessing healthcare, including language and cultural
differences, legal status in addition to financial constraints. Addressing these issues is critical not
only for improving health equity but also for fostering social cohesion and stability within the EU.
The Action Plan calls on Member States and the Commission to improve access to healthcare
for migrants. In that regard, Member States –and the European Commission- have developed
multiple training programmes for people working in the healthcare sector aimed at improving
awareness of needs of specific migrant groups (migrants with trauma, victims of trafficking in
human beings or gender based violence, unaccompanied minors, older people, people with
disabilities etc.) and facilitate the dissemination of information on access to healthcare services
and their rights, including access to mental health services. In that regard, the communication
on a Comprehensive Approach to Mental health highlights the specific situation of vulnerable
groups such as refugees, migrants and persons with migrant background. In line with this broader
framework, the EU Strategy on Combatting Trafficking in Human Beings (2021-2025) 92
emphasises the importance of providing comprehensive support to victims of trafficking in human
beings and invites Member States to provide training to healthcare workers on diversity
90
This is the case especially for daughters: In its International Migration Outlook 2023, the OECD reports that having a working
mother during adolescence is associated with an increase of 13 percentage points in the employment rate of women born in the EU
with at least one parent born in a third country.
91
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on a comprehensive approach to mental health, COM/2023/298 final, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=COM%3A2023%3A298%3AFIN
92
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions on the EU Strategy on Combatting Trafficking in Human Beings 2021- 2025, COM(2021) 171
final eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52021DC0171&from=EN.
20
management and on the needs of victims of trafficking in human beings who are migrants, using
the EU health programmes.
The EMN also produced in July 2022 a report entitled ‘Mapping mental health policies for third-
country nationals’93
whose main objective was to identify the underlying challenges to access
healthcare services and the responses by Member States. The Commission also organised multiple
conferences with different stakeholders at national, local, and regional level to encourage the
sharing of good practices on accessing healthcare services among Member States. Within the
framework of the EU4Health Work Programme 2022 and 2023, several projects were funded to
enhance access to mental health services and increase the literacy on mental health issues of
migrants in the European healthcare workforce as well as in the migrant population themselves.
Furthermore, since 2021 the Commission is funding a project to enhance universal access to
vaccination for newly arrived migrants (AcToVax4NAM)94
and signed a contribution agreement
with the World Health Organisation (WHO), under the EU4Health Work Programme 2023, to
increase vaccination coverage, including in the migrant population.
Access to healthcare also requires migrants to receive proper information about their rights via
appropriate outreach tools. The Commission worked with Member States to create new
partnerships aimed at improving such tools, notably within the framework of the Urban Agenda
for the EU Partnership on the inclusion of migrants and refugees. In October 2022, the
Commission organised, along with the European Committee of the Regions and the Council of
Europe Development Bank, a conference on the access of third-country nationals to healthcare
in the EU with the objective to explore evidence-based approaches to minimise existing barriers
to healthcare, identify best practices and potential solutions, and develop recommendations on how
these challenges can be addressed. Member States have also developed resources to support
healthcare professionals working with migrants in detecting psychological suffering and
adopting best practices.
When it comes to Member States’ efforts to improve the availability of information to migrants
on their right to access healthcare and the different services available to them, further work is still
needed. Some Member States have made considerable efforts to create tools to help overcome
language and cultural barriers for migrants, assisting them in getting information and access to
medical care via the use of web portals in multiple languages and booklets. However, important
disparities still exist in that regard between the different Member States. Most Member States have
also adopted legal frameworks to ensure that refugees and migrants can access at least basic
healthcare services, which is in line with the rules of the Reception Conditions Directive (Article
19).
For both access to healthcare and the development of outreach tools, the Commission has made
available several funding sources such as the AMIF, ERDF, ESF+, RRF and EU4Health
funding programmes to finance projects aimed at facilitating access to healthcare services, as
well as promote exchanges between Member States through the formation of new partnerships and
the setup of suitable outreach tools. In addition, Member States have created specific supporting
services for migrant women targeted at raising professionals’ awareness on the specific
challenges they face, such as female genital mutilation and reproductive health, and put in place
93
EMN, June 2022, Mapping mental health policies for third-country nationals: https://home-
affairs.ec.europa.eu/system/files/2022-07/EMN_Mental-health_INFORM_20072022.pdf.
94
Access to Vaccination for Newly Arrived Migrants: https://www.accesstovaccination4nam.eu/about/.
21
specific centres to provide individual support for women travelling alone or in a vulnerable
situation.
Following the Russian invasion of Ukraine, the Commission signed two contribution agreements
with the WHO and the International Organization for Migration to reinforce the EU health systems,
support Member States to ensure access to services for displaced persons from Ukraine and
support the integration of Ukrainian healthcare workers into the national healthcare systems. The
Commission concluded another contribution agreement with the International Federation of the
Red Cross Societies aimed at implementing specific interventions to increase access to mental
health care services for the displaced population from Ukraine95. Member States have also put
in place special separate psychological support services for displaced people from Ukraine.
Member States have made efforts to improve the availability of information to migrants on
their right to access healthcare and the different services available to them, however further work
is needed. Some Member States have made considerable efforts to facilitate access to information
via the use of web portals in multiple languages and booklets. However, important disparities still
exist in that regard between the different Member States. Most Member States have also adopted
legal frameworks to ensure that refugees and migrants can access at least basic healthcare
services, which is in line with the rules of the Reception Conditions Directive (Article 19).
4.2. Remaining challenges
Over the past years, the obstacles faced by the national health systems have been multiplying,
ranging from health crises, to ageing populations, staff-shortages and budgetary limitations. The
situation has led Member States to face serious challenges in granting effective access to healthcare
to their nationals. In spite of this situation, most Member States have managed to offer the same
level of access to both nationals and migrants since 2017, except for the dental care96
, even though
migrant households (where all responsible persons of household are foreign-born) are less likely
to use healthcare services (77% versus 83% EU-wide)97
. Indeed, despite the efforts put forward
by Member States, the stakeholders consulted still report persistent barriers faced by migrants to
accessing healthcare services such as administrative hurdles, lack of information about the
healthcare system, linguistic and intercultural obstacles such as the lack of trained personnel,
a lack of financial resources to pay for social health insurance or treatments, or a lack of
formal healthcare rights in the case of certain migrant statuses. In addition, migrants are also
more likely to struggle to afford healthcare services compared to the native population in nearly
all Member States (36% vs 30% EU-wide)98
.
According to the stakeholders consulted, healthcare facilities often lack culturally sensitive
approaches and special trainings for addressing migrants, including regarding the diversity of their
situations, which leads to mistrust and discomfort from migrants and refugees. Several Member
States have put in place specific mechanisms to assist migrants, such as mediators and interpreters,
however their scarcity and the additional costs linked to their services also put additional pressure
95
More information available at https://www.ifrc.org/our-work/health-and-care/community-health/mental-health-and-
psychosocial-support/eu4health-and-ifrc
96
Eurostat, Migrant integration statistics - health - Statistics Explained: Migrant integration statistics - health - Statistics Explained
97
Eurostat, Migrant integration statistics - health - Statistics Explained: Migrant integration statistics - health - Statistics Explained
98
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing, Paris, p.
123 https://doi.org/10.1787/1d5020a6-en.
22
on national health systems. Most stakeholders consider that access to healthcare is still problematic,
although the situation varies between Member States.
The barriers described above are also present when it comes to mental health where they contribute,
together with additional factors such as high costs, lack of awareness and reservations, to even
bigger difficulties in accessing mental health care. This is particularly relevant for some migrants
as they are at a particular risk of developing mental health conditions due to the severe stress
and trauma they often experience before, during, and after the migration process. Notably,
migrants exposed to adversity and refugees are more susceptible to mental health disorders such
as anxiety, depression, and post-traumatic stress disorder compared to native populations99
.
Stakeholders also underlined the importance of going beyond the essential provision of trauma-
related services and approaching mental health and psycho-social support in all elements of
integration work. Overall, Europe is witnessing a worsening of the mental health of its younger
generations with forcibly displaced and migrant children particularly at risk100
.
These issues are further accentuated for migrant women who face additional challenges as they
tend to have lower proficiency in the host country language, weaker social networks, lower
educational and economic levels, and greater responsibilities for childcare and family. Despite the
efforts made by Member States, the stakeholders consulted underline that migrant women are still
facing significant challenges when accessing healthcare depending on their residency status and
access to medical insurance. As highlighted by stakeholders, prenatal, delivery and post-natal
healthcare for migrant mothers is still problematic and require immediate attention, as
evidenced by various studies which show that women with migrant background are more likely
to experience discrimination when accessing healthcare. This, in addition to the barriers
mentioned above (lack of language proficiency, awareness about their health rights, etc.) could
imply they receive lower quality perinatal care. Furthermore, health needs of migrant women go
far beyond sexual and reproductive health and involve especially preventive healthcare, screening
and management of non-communicable diseases101
.
4.3. Way forward in implementing the Action Plan
It remains necessary to keep improving access of migrants to healthcare and make it as effective
as possible for all migrants. For Member States, this means continuing the work on removing
administrative hurdles, for example for beneficiaries of international protection in the context of
the implementation of the Pact on Migration and Asylum and the related provisions under the
Qualification Regulation (Article 32), which requires beneficiaries of international protection to
receive the same access to healthcare services as nationals.
In addition, more Member States should devote additional efforts and place specific attention on
access to mental health, in line with the comprehensive approach to mental health adopted by
the Commission, including by ensuring access as early as possible for all migrants to adapted
99
World Health Organisation, https://www.who.int/news-room/fact-sheets/detail/mental-health-and-forced-displacement (2021)
and https://www.who.int/publications/i/item/9789240081840 (2023) as well as Commission communication on a Comprehensive
Approach to Mental health, p. 14 https://health.ec.europa.eu/document/download/cef45b6d-a871-44d5-9d62-
3cecc47eda89_en?filename=com_2023_298_1_act_en.pdf .
100
Commission communication on a Comprehensive Approach to Mental health, p. 8
https://health.ec.europa.eu/document/download/cef45b6d-a871-44d5-9d62-
3cecc47eda89_en?filename=com_2023_298_1_act_en.pdf.
101
Non-communicable disease includes for instance cardiovascular diseases, diabetes, chronic respiratory diseases, mental
disorders, neurological disorders, or cancer: https://health.ec.europa.eu/non-communicable-diseases/overview_en
23
healthcare, and ensuring that applicants of international protection receive appropriate
mental health care support as required by the Reception Condition Directive (Article 19),
especially for minors (Article 23(4)). Member States are also encouraged to link work on mental
health priorities with provisions of inclusive education by ensuring understanding and awareness
of mental health issues in school environment and with education staff. Psychosocial support in
the education context must also be reinforced and the impact of discrimination that migrants
might face must be taken into consideration, with relevant trainings provided to the education
community. There is a strong need to continue to work on specific support for migrant women
to access the general healthcare system, to dismantle the additional hurdles they face, as well as
on less visible categories of migrants like migrant elderly. The special needs of pregnant women,
together with victims of physical or sexual violence, are an important element of the Pact on
Migration and Asylum, and the Qualification Regulation (Article 32(2)) requires Member States
to provide them with adequate healthcare. In general, only a handful of activities have focused on
the specific needs of migrant women and there is a need to step up efforts and increase the number
of projects targeting health challenges faced by migrant women. As part of the 2025 AMIF Call
for proposals for transnational projects on the integration of migrants and protection of children,
the Commission will support projects in the area of migrants’ access to healthcare, including
mental health services and psychological support, and continue to disseminate good practices to
Member States and other stakeholders.
5. Housing
5.1. State of play on the implementation of the Action Plan
The EU is facing a housing crisis, with millions of families and young people struggling to find
affordable housing. Rents and house prices are soaring. In several Member States, there is also a
significant and growing investment gap by public authorities in social and affordable housing102
.
To support Member States in addressing these issues, the Commission will put forward a first-ever
European Affordable Housing Plan that will aim at improving the housing situation of all,
including but not only migrants’.
Since 2021, the Commission has made available several sources of funding to support migrants’
access to housing. Under the 2023 AMIF Call for transnational projects on integration, 4 projects
focusing on community-sponsorship and housing support were awarded. The Commission also
explored the use of financial instruments to cover housing access and tried, together with the
European Investment Bank, to identify the possible areas where loans and guarantees could be
used to facilitate migrant’s access to the housing market103
. The TSI104
has also offered technical
support to Member States' reception and accommodation capacity for migrants. In 2023, via the
ESF+, the Commission published a EUR 15 million call to support innovative projects and policy
measures addressing homelessness and housing exclusion105
. Cohesion policy continues to put a
strong emphasis on housing investments. As of the end of 2024, the planned support of cohesion
policy funds to housing for the 2021-2027 period amounts to EUR 7.5 billion over the period.
102
Rising housing costs in the EU: https://www.europarl.europa.eu/topics/en/article/20241014STO24542/rising-housing-costs-in-
the-eu-the-facts-infographics
103
Fi-Compass, the Asylum, Migration and Integration Fund (AMIF): https://www.fi-compass.eu/funds/amif#publications.
104
TSI 2024 Flagship Technical Support Project: https://reform-support.ec.europa.eu/tsi-2024-flagship-enhancing-reception-and-
accommodation-capacity-migrants-0_en.
105
Social innovation practices to combat homelessness, ESF-2023-HOMELESS: https://ec.europa.eu/info/funding-
tenders/opportunities/portal/screen/opportunities/topic-details/esf-2023-
homeless?tenders=false&frameworkProgramme=43254019.
24
Together with the national allocations, the total planned support to housing is EUR 10.4 billion.
In April 2025, the Commission proposed to double the EU allocations to secure more investments
in the area of affordable housing106
. Part of these investments will also contribute to housing
infrastructure and services for migrants and refugees. InvestEU, and Horizon Europe also
supported projects targeting affordable and social housing development. Furthermore, the
Commission published a Toolkit on EU funds for social housing investment in March 2024107
,
which provides case studies on how to use EU funding to improve access to housing for migrants.
Some Member States also adopted integrated housing approaches linking policies with other
integration actions, especially for those fleeing the war in Ukraine.
Given the magnitude and the importance of the challenges, the Commission committed in its
Political guidelines for the next European Commission 2024-2029108
to enable Member States to
double the planned cohesion policy investments in affordable housing. To this end, as part of the
Communication on “A modernised Cohesion policy: The mid-term review”109
, the Commission
proposed legislative changes to address the growing investment gap by widening the possibilities
for Member States to reprogramme under their 2021-2027 programmes towards investments that
promote access to affordable housing.
The Commission and Member States have also continued to cooperate and promote mutual
learning on fighting discrimination on the housing market and reducing residential
segregation, as well as on exploring innovative practices to foster inclusion. In 2022, the
Commission promoted mutual learning among central government and local authorities through
a Mutual Assistance Project. Through the MAP, Austrian and Greek representatives visited non-
segregated housing solutions for vulnerable migrants set up by Italy. The Urban Agenda for the
EU Partnership on Inclusion of migrants and refugees organised study visits110
and thematic
sessions on the reception and accommodation of migrants, with a focus on vulnerable migrants
and people fleeing the war in Ukraine. At the February 2023 European Integration Network
meeting, co-hosted by the Commission and the Swedish Presidency, Member States discussed
housing market discrimination and residential segregation together with lessons learned from
housing displaced people from Ukraine and sustainable housing solutions. The Commission has
also supported efforts to promote innovative community engagement towards autonomous
housing solutions, encouraging Member States to promote so-called ‘community sponsorship’
programmes111
. In 2024, the EU Asylum Agency published ‘guidelines on the EU approach to
106
Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee
and the Committee of the Regions, A modernised Cohesion policy: The mid-term review, COM(2025)163, https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025DC0163
107
Toolkit on the use of EU funds for investment in social housing and associated services
https://ec.europa.eu/social/main.jsp?catId=738&langId=en&pubId=8607&furtherPubs=yes.
108
European Commission Political Guidelines for the Next European Commission 2024-2029
https://commission.europa.eu/priorities-2024-2029_en.
109
Communication from the Commission to the European Parliament and the Council - A modernised Cohesion policy: The mid-
term review, COM(2025) 163, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025DC0163
110
The Commission funded two study visits in Berlin and Amsterdam and an expert meeting in Mechelen (Belgium) focusing on
reception and accommodation of LGBTQI+ migrants. Members from local and regional authorities visited the Queer Shelter of the
State of Berlin, which offers independent housing (flats) to the migrant LGBTQI+ community that faces segregation in the housing
market. In Amsterdam, members visited hotels that offer accommodation and social services to Ukrainian LGBTQI+ migrants. In
March 2023, a dedicated session of the Urban Agenda was held on ‘Building a Sense of Home: Towards Sustainable Housing for
Displaced Ukrainians and Other Refugees ‘ addressing the issues of discrimination and segregation.
111
Community Sponsorship are public–private partnerships between governments that facilitate legal admission for refugees.
Sponsor groups can support the newcomers regarding housing and access to other services.
25
community sponsorship’112
that aim to establish minimum quality standards for the different
phases of community sponsorship across the EU, thus including recommendations for the
provision of suitable accommodation for beneficiaries of international protection. In 2023, the
Commission launched the affordable housing initiative113
as part of the New European Bauhaus
initiative114
to ensure social and affordable housing also benefit from the Commission's renovation
wave for Europe 115
, thereby improving the migrants’ living conditions. In response to
accommodation needs of people fleeing the invasion of Ukraine, the Commission and the Council
presented a 10-points plan116
on 28 March 2022 to enhance coordination for welcoming refugees
and launched the Safe Homes initiative to support private hosting efforts. The Safe Homes
guidance117
outlined principles for matching refugees with safe housing and explores sustainable
housing solutions like community sponsorship programmes. The 2022 EMN inform on
‘Arrangements for accommodation and housing for beneficiaries of temporary protection’118
and the 2023 EMN inform on ‘Organising flexible housing in the context of international
protection’119
assess the practices of national authorities to upscale their capacity to provide
accommodation whilst anticipating further challenging arrivals of people in need in the future.
To support the transition toward autonomous housing, several Member States provided
counselling services to applicants and beneficiaries of international protection on how to access
the private or social housing sectors for autonomous accommodation. Some Member States also
reported providing tailored support to ensure smooth transition to autonomous housing. In
several Member States, including at regional and local levels, opportunities to improve equal
access to housing also emerged in connection with antidiscrimination efforts, for instance
following the adoption of anti-discrimination or anti-racism plans (Ireland), or through dedicated
plans to combat discrimination in housing (Wallonia).
5.2. Remaining challenges
Despite progress in the implementation of the Action Plan, challenges persist in providing
adequate housing for all migrants and refugees. Data show that migrants are more likely to live in
overcrowded and substandard housing compared to native-born residents 120
: more than one in
six migrants in the EU live in overcrowded accommodation (a rate that is 70 % higher than for the
native-born population). Furthermore, 26 % of migrants live in substandard housing (compared
with 20 % of the native-born population). One of the main challenges remains the ongoing housing
crisis and the lack of affordable housing in Europe, particularly in urban areas and major
112
EUAA, Guidelines on the EU approach to community sponsorship: https://euaa.europa.eu/publications/guidelines-eu-approach-
community-sponsorship.
113
Affordable Housing Initiative https://single-market-economy.ec.europa.eu/sectors/proximity-and-social-economy/social-
economy-eu/affordable-housing-initiative_en.
114
European Bauhaus https://new-european-bauhaus.europa.eu/about/about-initiative_en.
115
Renovation wave: https://energy.ec.europa.eu/topics/energy-efficiency/energy-efficient-buildings/renovation-wave_en..
116
The 10-Point Plan For stronger European coordination on welcoming people fleeing the war from Ukraine: the-10-point-plan-
for-stronger-european-coordination-on-welcoming-people-fleeing-the-war-from-ukraine_en.pdf.
117
Safe Homes guidance: https://home-affairs.ec.europa.eu/safe-homes-guidance_en.
118
Arrangements for accommodation and housing for beneficiaries of temporary protection: EMN Inform:
https://emn.ie/publications/arrangements-for-accommodation-and-housing-for-beneficiaries-of-temporary-protection-emn-
inform/.
119
Organising flexible housing in the context of international protection: EMN Inform, Organising flexible housing in the context
of international protection: EMN Inform - The European Migration Network.
120
OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing,
Paris, https://doi.org/10.1787/1d5020a6-en.
26
cities121
, that makes it difficult for Member States to guarantee access to housing even in some
acute instances to their own population. Similarly, the limited stock of social housing leads to long
waiting lists and leaves nationals and migrants without housing assistance. Furthermore, although
a few Member States reported providing support and counselling services for migrants to find
social and affordable housing, this support remains marginal and limited to beneficiaries of
international protection. The housing shortage has increased the cost of accommodation in the
private market, posing a significant challenge for applicants and beneficiaries of international
protection who in many cases cannot afford rental prices or are unable to meet the deposit and
guarantee requirements. Discrimination and administrative challenges remain in many Member
States122
. Despite the availability of tools and best practices to combat housing discrimination,
such as non-segregated housing solutions and independent housing shelters, there is a persistent
need to raise awareness about their benefits and ensure that these instruments are put into practice.
Some local and regional authorities as well as civil society organisations have reported facing
administrative hurdles in accessing EU funds for housing.
5.3. Way forward in implementing the Action Plan
As per the Political Guidelines 2024-2029123
, the Commission will put forward a European
Affordable Housing Plan to address the housing crisis. To promote investments in affordable and
sustainable housing, the Commission and the European Investment Bank are preparing a pan-
European investment platform for affordable and sustainable housing 124
. In addition, the Social
Climate Fund will be soon rolled-out, which will notably help with renovations and access to
affordable and energy-efficient housing125
.
To advance on the implementation of the Action Plan and address existing issues, Member States
could allocate more funds, notably through ESF+ and ERDF and efforts to increase affordable
housing offers, providing support for transitioning to long-term housing, and offering support to a
greater number of beneficiaries. Targeted funding should also aim to alleviate the pressure on
vulnerable populations including migrants and people with a migrant background, as well as to
expand the social housing stock in line with the Commission’s affordable housing initiative.
In addition to this, the Commission will support Member States in improving their reception
systems, in line with the implementation of the Pact on Migration and Asylum. The Reception
Conditions Directive requires Member States to provide housing for applicants for international
protection. However, challenges such as poor contingency planning and limited housing stocks
can affect the transition from reception centres to autonomous housing and compliance with the
Directive’s housing requirements. In accordance with the Qualification Regulation, Member States
must provide support and services to applicants even after they receive protection. This includes
121
Access to autonomous housing in the context of international protection: EMN Inform https://emn.ie/publications/autonomous-
housing-in-international-protection-context/.
122
Access to autonomous housing in the context of international protection: EMN Inform https://emn.ie/publications/autonomous-
housing-in-international-protection-context/.
123
Political Guidelines For The Next European Commission 2024−2029: https://commission.europa.eu/document/e6cd4328-673c-
4e7a-8683-f63ffb2cf648_en.
124
A framework for allowing combining grants and repayable financial support currently developed by the Commission in
collaboration with the EIB which will be part of the Pan-European investment platform, will help managing authorities to set up
financial instruments to help achieve the doubling of the allocation of Cohesion policy funds for housing:
https://www.eib.org/en/press/all/2025-123-eib-group-and-european-commission-lay-foundations-for-a-new-pan-european-
investment-platform-for-affordable-and-sustainable-housing
125
Regulation (EU) 2023/955 establishing a Social Climate Fund and amending Regulation (EU) 2021/1060, OJ L 130, 16.5.2023,
p. 1, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A32023R0955
27
facilitating their exit from the reception system. Although there are existing measures to assist in
moving towards independent housing, Member States should broaden support services to include
those beyond individuals with international protection. In the context of implementing the Pact on
Migration and Asylum, the Commission is monitoring the implementation of these legal
obligations.
The Commission will renew its efforts to facilitate access to tools and best practices for
Member States, local, and regional authorities and promote the widespread adoption of
inclusive housing solutions and fight discrimination. The Commission and Member States should
continue to explore the use of innovative housing solutions such as community sponsorship
programmes across the EU, ensuring they are tailored to meet the specific needs of diverse
communities and contribute to giving access to housing for all. Several Member States have
proactively implemented new housing and reception models to welcome individuals fleeing the
war in Ukraine. These innovative approaches present valuable opportunities for further exploration
and expansion to improve integration outcomes for migrants and people with a migrant
background.
6. Horizontal actions
6.1. State of play on the implementation of the Action Plan
The Action Plan includes a broad set of flanking measures that are vital for the success of the
sectoral initiatives listed above, including building strong partnerships, providing funding,
fostering participation of the host society, enhancing the use of new technologies and
effectively monitoring policies through data gathering.
One of the priorities under the Action Plan is to finance projects that increase the capacity of
national, regional and local authorities to involve migrants and migrant organisations in decision-
making processes related to migrant integration. Nine projects started in 2021 and 2022 following
the AMIF Union Actions 2020 call for proposals on promoting the participation of migrants in
the design and implementation of integration policies.
When it comes to building strong partnerships among various stakeholders, including local
governments, civil society, and the private sector, the Commission has reinforced its collaboration
with the EIN, provided targeted funding and capacity building through the Technical Support
Instrument, launched a partnership with the European Committee of the Regions for local action
support, continued work with the Urban Agenda for the EU Partnership on Inclusion of Migrants
and Refugees, and engaged in regular consultations with civil society and diaspora organisations
through the annual European Migration Forum. In 2021, the Commission and the Committee of
the Regions established the Cities and Regions for Integration of Migrants Network126
to support
EU cities, regions and rural areas to work on good practices and capacity-building on the
integration of migrants and refugees. In 2024 the Commission launched the Partnership of Cities
of Equality127
, aiming at addressing specific issues related to equality within cities and taking into
account the needs of vulnerable groups, including persons with a migrant background.
126
Network of Cities and Regions for the integration of Migrants: https://cor.europa.eu/en/our-work/Pages/cities-and-regions-for-
integration.aspx.
127
Partnership of Cities of Equality https://www.urbanagenda.urban-initiative.eu/partnerships/cities-of-equality.
28
To include migrants and EU citizens with a migrant background in consultative and decision-
making processes, the Commission supported actions to foster participation and encounters
with the host society, including via the Expert Group on the views of migrants in the field of
migration, asylum and integration128
, which the Commission consults regularly. Some Member
States introduced or reinforced instruments to involve migrants and migrant organisations in
the design of integration and inclusion policies, thereby supporting the multi-stakeholder
approach advocated by the Action Plan.
In the view of a progressive transition towards digitalised public services, a specific analysis was
carried out across Member States focused on the current level of digitalisation and accessibility of
migrant integration services129
. In particular, potential barriers such as language and digital skills,
as well as potential lack of internet connection were examined, and good practices identified. Some
Member States reported targeting efforts on ensuring information is made accessible to all,
particularly on official administration websites and on asylum application portals, while including
migrants in the process. The Commission has allocated different tools to promote and finance
projects aimed to improve digital skills among migrants and EU citizens with a migrant
background together with tackling potential barriers. The ESF+ has funded several projects to
enhance digital skills among third-country nationals and EU citizens. The AMIF Thematic Facility
(2023-2025)130
includes the improvement of migrants’ digital skill as one of the main priorities.
Lastly, actions to improve monitoring progress through evidence-based policies have been put
forward. In 2022, the Commission published a Eurobarometer survey on immigrant integration131
.
The Horizon 2020 programme funded over 40 migration research projects with EUR 100 million.
In 2023, the Commission and the OECD released the third edition of the statistical report
‘Indicators of Immigrant Integration 2023 - Settling In’132
. Several topical analyses were also
issued through the EMN133
and on the Migrant Integration Hub134
.
6.2. Remaining challenges
Whatever the level at which integration of migrants is managed, be it centrally or at sub-levels, it
is in practice implemented locally. As a result, strong partnerships between national, regional, and
local authorities but also with the host society and civil society organisations are paramount.
However, there is often a lack of coordination between the various levels of governance. Digital
illiteracy of some migrants, paired sometimes with their lack of knowledge of the host country
language, can affect their integration process by preventing them from accessing online basic
services, such as, education tools, health records, employment databases, banking. Enhancing the
use of new technologies and digital tools remains largely an untapped area at EU level, often due
to costs constraints faced by Member States, including to increase digital skills of their own
128
Created in November 2020, the expert group advises the Commission on the design and implementation of migration-related
policies. https://migrant-integration.ec.europa.eu/news/ec-expert-group-views-migrants-useful-information-applicants_en.
129
Digitalising migrant integration services during the Covid-19 pandemic: https://migrant-
integration.ec.europa.eu/index.php/special-feature/digitalising-migrant-integration-services-during-covid-19-pandemic-
adaptation_en.
130
Commission Implementing Decision of 23.11.2022 on the financing of components of the Thematic Facility under the Asylum,
Migration and Integration Fund and adoption of the Work Programme for 2023, 2024 and 2025, C(2022) 8340 final available at
https://home-affairs.ec.europa.eu/system/files/2022-12/AMIF-Work%20Programme%202023-2025_en.pdf.
131
Integration of Immigrants in the European Union https://europa.eu/eurobarometer/surveys/detail/2276.
132
Integration of Immigrants in the European Union https: https://migrant-integration.ec.europa.eu/library-document/settling-
report-indicators-immigrant-integration-2023_en
133
https://home-affairs.ec.europa.eu/networks/european-migration-network-emn/emn-publications/emn-informs_en
134
https://home-affairs.ec.europa.eu/whats-new/publications_en
29
populations, even though a more widespread use of digital platforms could facilitate language
learning, access to information, and virtual support networks, empowering migrants to navigate
their new environments more effectively. Finally, the design and implementation of successful
integration policies should be based on evidence and collection of reliable data, but these are
often incomplete and not comparable as monitoring practices differ across the EU. Even though
availability of data and knowledge at EU, national, and local levels have improved, many
stakeholders emphasised that an evidence-based debate on integration is still lacking.
6.3. Way forward in implementing the Action Plan
Despite existing initiatives in this regard, Member States and the Commission should further
extend and empower multi-governance partnerships. It is important for the Commission to
continue supporting Member States through the implementation of MAPs in areas identified as
important for their integration policies. The re-launched Urban Agenda for the EU Partnership
on the inclusion of migrants and refugees, with an increased number of members reflects this
approach, and its work plan will match and complement the actions of the Action Plan on
Integration and Inclusion. In the future, the Commission and Member States should further reflect
on effective mechanisms to consult migrant-led organisations in designing and implementing
integration-related policies and put in place regular monitoring mechanisms. Migrants often lack
digital skills to use online services. As part of the 2025 AMIF call for proposals for transnational
projects on the integration of migrants and protection of children, the Commission will support
projects aiming at improving digital skills among migrants and will continue to disseminate good
practices to Member States and other stakeholders. Finally, more focus on evidence-based
programmes could better support integration policies. The Commission already cooperates
closely with the OECD and the Member States through the EIN and the EMN as well collects
information used to produce EU-wide analyses135
to provide evidence for policy making on
integration. It is important to continue this cooperation. Member States could leverage AMIF and
EU funding to enhance the availability of data and knowledge across EU, national, regional, and
local levels, with a particular focus on addressing the challenges at the local level and developing
expertise in this area. The Urban Agenda Partnership on the inclusion of migrants and refugees
will work on collecting data and good practices in the fields of education and labour market
integration.
7. Enhancing synergies on the use of EU funds on integration
7.1 State of play on the implementation of the Action Plan
Integration is a long-term process and given its crosscutting nature, it is supported through different
EU funds in their respective areas. The Action Plan emphasises the need to provide increased
investments in migrant integration through EU funding under the 2021-2027 Multi-annual
Financial Framework and ensure better access to EU funds. In this context, it is useful to recall
how different EU funds can contribute to the integration of migrants.
AMIF can be used to support integration measures tailored to the needs of third-country nationals
and early integration programmes focusing on education, language and other training (such as civic
orientation courses and professional guidance) to prepare their active participation in and their
acceptance by the receiving society. The 2023 AMIF call funded 27 new transnational projects on
135
Migrant integration publications https://home-affairs.ec.europa.eu/policies/migration-and-asylum/migrant-
integration/migrant-integration-hub/migrant-integration-publications_en
30
migrant education and labour market integration, for a total of EUR 42.5 million. With the support
of the EIB and the CEB, the Commission is assessing the potential of financial instruments (e.g.,
loans) to support the integration of third-country nationals. Such innovative financing methods
could allow for a more effective use of public resources. Additionally, according to the data
available on Member State programmes in January 2025, Member States have allocated about
EUR 1.7 billion of AMIF 2021-2027 EU resources (about EUR 2.25 billion including national
contribution) to integration measures, for victims of trafficking in human beings and vulnerable
persons, including unaccompanied minors, within the scope of the AMIF specific objective 2
‘strengthening and developing legal migration to the Member States in accordance with their
economic and social needs, and promoting and contributing to the effective integration and social
inclusion of third-country nationals’.
The ERDF supports measures for the integration and inclusion of people with a migrant
background through investments in non-segregated education, housing, employment, health-,
social- and child- care and by fostering access to services, infrastructure developments and
equipment. Member States and regions have allocated EUR 2.9 billion of ERDF EU resources
(EUR 4 billion including national contributions) to interventions directly focused on the
integration of marginalised communities and of third-country nationals under ERDF
specific objectives 4.3 and 4.4. Further indirect ERDF support is also available for access to
quality and inclusive services. Under the ESF+, specific objective (i) is dedicated to promoting
the socio-economic integration of third-country nationals, including migrants 136
. These
investments notably encompass support for the participation of third country nationals in
employment, and social integration, through access to services, housing, measures fighting poverty.
To date, EUR 1.1 billion has been allocated to this specific objective, with 10 Member States that
have made use of the ESF+ specific objective to program targeted measures for third-country
nationals. Apart from that, over EUR 1.4 billion have been mobilised for accommodation,
healthcare, employment orientation, medical, social and psychological support in the context of
the so-called CARE (Cohesion’s Action for Refugees in Europe) package under the 2014-2020
cohesion policy programmes, to address the situation of displaced people from Ukraine137
.
In addition, the TSI and the Recovery and Resilience Fund (RRF) disbursed via the Recovery
and Resilience Plans (RRPs) also aid Member States in improving integration policies with
dedicated calls, reforms and investments. Several RRPs contain measures to support integration of
such groups in the labour market, including through active labour market policies, vocational
education and training schemes, and incentives for female entrepreneurship. The Erasmus+
program funds projects for migrant integration in education, while Horizon 2020 and Horizon
Europe have supported research on migration, particularly in social inclusion and education.
InvestEU, with EUR 2.8 billion assigned to social investment, supports migrants and refugees
through financial products for education, social infrastructure, and microfinance. Moreover, the
2021 Council recommendation establishing a European Child Guarantee (ECG) guides the
Member States to provide children in need, including those with a migrant background, with free
and effective access to key services, aiming to offset the impact of disadvantage and to prevent
social exclusion. All Member States have adopted action plans for ECG implementation by 2030.
EU4Health has also supported integration via the funding of projects on mental health and
136
Article 4(1) of 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, pp. 21–59,
http://data.europa.eu/eli/reg/2021/1057/oj
137
The so-called ‘CARE package’ is composed of CARE, CARE-PLUS and FAST-CARE (Flexible Assistance to Territories).
31
psychosocial support for migrants, access to health care for refugees, and trainings for health and
other professionals working with migrants, and making sure the specific needs of vulnerable
groups, including migrants, are considered when applying health policies.
To maximise the impact of EU funds on integration and support Member States in establishing
synergies between the different source of funding, the Commission organised exchanges with
relevant EU funds managing authorities and has provided webinars and toolkits to guide public
authorities and civil society on using EU funds for integration. The need to further improve
coordination between EU funds relevant for the integration of migrants is one of the points raised
by the European Court of Auditors in its special report on integration of third-country nationals in
the EU138
. To support Member States and ensure synergies among the different funds (and namely
ESF+ and ERDF), the Commission published a toolkit in November 2021 to guide stakeholders
on using these funds for integration139
. In March 2024, the ESF+ Community of Practice on
Migrant Integration hosted an event exploring synergies between ESF+ and AMIF funding. In
May 2025, it also organised a follow-up study visit in Italy to visit projects combining ESF+ and
AMIF support140
.
The Commission also took steps to further facilitate access to EU funds for actors directly involved
in setting up integration programmes and implementing integration measures, and namely local
and regional authorities and civil societies organisations. To actively involve local actors in the
use of EU funds, under AMIF, a minimum of 5% of the initial allocation to the Thematic Facility
shall target the implementation of integration measures by local and regional authorities. In the
context of the Member States’ response to support people fleeing Ukraine, the Commission
clarified that the funding for Emergency Assistance would be delivered ‘based on results’,
including whether Member States channel at least 30% of their share of funding through civil
society organisations and local or regional authorities.
Several Member States reported using different EU funds to enhance the integration and
inclusion of migrants. For AMIF, many Member States have also reported preparing their
national programmes in partnership with actors such as regional, local, urban and other public
authorities, together with relevant international organisations, non-governmental organisations
such as refugee organisations and migrant-led organisations, national human rights institutions and
equality bodies, as well as economic and social partners. Some Member States have set up
structural exchanges and consultations to facilitate collaboration among the managing
authorities of different funding instruments at national level, which could be further replicated.
7.2 Remaining challenges
Despite these innovations, at the national level, a lack of structural cooperation between
managing authorities of the different EU funds level persists in several Member State. In addition,
several stakeholders, including civil society organisations, local and regional authorities, and
migrant-lead organisations, report difficulties in accessing EU funds, despite their key role in
the integration process. Such difficulties include bureaucratic burdens and red tape.
138
Special report 26/2024: Integration of third-country nationals in the EU | European Court of Auditors
139
Toolkit on the use of EU funds for the integration of people with a migrant background: 2021–2027 programming period:
https://migrant-integration.ec.europa.eu/library-document/toolkit-use-eu-funds-integration-people-migrant-background-2021-
2027-programming_en.
140
https://socialinnovationplus.eu/event/labour-market-paths-synergic-use-of-funds-for-tackling-labour-exploitation-and-
vulnerable-migrants-integration/
32
7.3 Way forward in implementing the Action Plan
To address these challenges, efforts should continue to improve information at national and EU
level on the funding opportunities available through the different funds and the requirements to
benefit from them and the projects and tools already available. In the future, the Commission
should continue to actively promote and encourage Member States to explore synergies among
different EU funds, namely on funds which are less commonly used in coordination with AMIF,
ESF+ and ERDF. Member States should also explore further synergies between their national
programmes and transnational projects selected by the Commission. An increased coordination
between EU funds managing authorities and more cooperation between national governments and
local authorities on funding could help local and regional authorities access funds which are crucial
for them. Member States should also increase their efforts to make information on funding
opportunities more accessible to small local authorities, social economy actors, civil society
organisations and migrant-led organisations, who struggle to access funding and resources.
Making further use of innovative financing instruments for integration such as community
sponsorship schemes, could also facilitate access to funds for authorities that need them. Moreover,
the Pact on Migration and Asylum includes links with integration policies (such as access to
accommodation and housing, access to healthcare, and access to employment and education for
asylum applicants and beneficiaries of international protection) and Member States could support
its implementation by using AMIF and other funds. In preparation of the next programming period,
the Commission is conducting a mid-term evaluation of the 2021-2027 AMIF, which will take into
account early findings of the ex-post evaluation of the effects of the 2014-2020 AMIF, as well as
the Impact Assessment carried out for the 2021-2027 AMIF. This evaluation will provide valuable
insights on the effectiveness of past programs and guiding improvements, including for integration
measures.
8. Conclusion and lessons learnt
Member States continue to face persistent challenges as they try to strike the right balance between
the significant pressure on their public services and housing they are subject to, and the importance
of supporting integration in order to invest in the long term cohesion of our societies, boost labour
market participation which strengthens EU competitiveness, and reduce vulnerabilities in society
and their associated costs. In that respect, since the adoption of the Action Plan in 2020, the number
of residence permits delivered to non-EU citizens, in particular for employment reasons, has been
increasing steadily. Although this requires additional efforts from Member States in ensuring that
migrants become fully functional members of their societies, it will help, in the long term, to
address labour market shortages and demographic pressures, thereby strengthening the EU
competitiveness and making the EU more attractive to global talents.
To address the persistent challenges and maximise the impact of the integration measures put
forward so far, the Commission will continue its cross-sectoral approach to supporting integration
along the lines defined in the Action Plan and will continue to support Member States and the
development of cohesive societies. Special attention will be paid to advance on the integration of
applicants for and beneficiaries of international protection with a view to ensure a well-managed
and effective migration and asylum policy and effective implementation of the Pact.