European Commission’s work programme 2025

Analysis of the European Commission’s 2025 Work Programme

On the 11^th of February, the European Commission published its annual work programme, setting out its policy and legislative priorities for the year ahead. This document reflects the commitments of the new Commission—established in December 2024—as outlined in the Political Guidelines and the mission letters issued by President Ursula von der Leyen to the Commissioners. Our analysis of this work programme highlights key priorities related to social justice, equity, equality, disability rights, employment, demography, and care, while also identifying notable gaps in the proposed agenda.

Understanding the Commission’s Work Programme

Each year, the European Commission adopts its annual work programme, detailing key legislative initiatives, pending proposals from the previous year, and planned withdrawals. Once adopted, the programme is presented to the European Parliament Plenary and the General Affairs Council. It serves as the foundation for discussions between the Commission, Parliament, and Council, culminating in a Joint Declaration of legislative priorities for 2025 and Joint Conclusions for the current term.

Key Priorities of the 2025 Commission Work Programme

Strengthening European Competitiveness and the Single Market

A central pillar of the 2025 work programme is reinforcing European competitiveness, particularly in the context of the green and digital transitions. The Competitiveness Compass will guide the Commission’s efforts to modernize the Single Market, aiming to leverage its full potential and facilitate cross-border trade in goods and services. Additionally, the revision of EU Public Procurement rules presents an opportunity to integrate stronger socially responsible criteria across member states.

Social Fairness, Employment, and Skills Development

The Commission underscores its commitment to social fairness through various non-legislative initiatives. By the end of the year, it will publish a new Action Plan for the Pillar of Social Rights, reaffirming commitments to poverty reduction, although a dedicated Anti-Poverty Strategy is not explicitly mentioned.

A major initiative, the Union of Skills, seeks to address labour and skills shortages by ensuring businesses have access to a well-trained workforce while equipping individuals with necessary skills for a rapidly evolving job market. This will be achieved through high-quality, inclusive education, training, and lifelong learning.

Additionally, the Commission remains focused on promoting quality employment through improved working conditions, higher health and safety standards, and strengthened collective bargaining rights. These objectives will be consolidated in the Quality Jobs Roadmap, though no binding legislative measures are proposed.

Despite addressing concerns such as the rising cost of living and housing inequalities, the work programme conspicuously omits any reference to a European Affordable Housing Plan, a key priority of the new Commission’s mandate.

Defending Democracy, Advancing Equality, and Social Dialogue

The Democracy Shield initiative aims to safeguard democratic institutions, emphasizing the protection of civil society organizations. Gender equality remains a priority, with the Commission preparing a Roadmap for Women’s Rights, building upon previous achievements in pay transparency, gender balance on corporate boards, work-life balance, and protections against gender-based violence.

A Social Dialogue Pact will seek to bolster the role of social partners in shaping Europe’s clean, digital, and social transitions. However, while the Commission commits to mainstreaming equality across all policies, it has omitted a second-phase update of the EU Disability Strategy, signaling an uneven approach to social inclusion.

One of the most controversial decisions is the planned withdrawal of the Horizontal Equal Treatment Directive, first proposed in 2008. This directive sought to extend anti-discrimination protections on the grounds of religion, disability, age, or sexual orientation beyond employment. Its withdrawal—citing a lack of agreement among Member States—represents a significant setback for equality policy in the EU.

Critical Analysis of the 2025 Work Programme

At first glance, the 2025 work programme appears to balance economic innovation with social fairness. However, a deeper analysis reveals an economic-driven agenda that lacks robust and binding commitments to social policy. While the Commission frequently references “competitiveness” and “business resilience,” the programme includes few legislative measures to support workers’ rights and social protections.

Unlike previous mandates, this year’s agenda does not introduce new social legislation. Instead, the Commission emphasizes regulatory simplification, with seven proposals aimed at streamlining processes rather than expanding workers’ rights. Although initiatives like the Quality Jobs Roadmap and Union of Skills are designed to support employment conditions, they remain non-legislative, leaving workers without the legal guarantees they need.

Moreover, the programme highlights the needs of businesses and economic stakeholders while making only minimal references to workers and social partners. The text’s disproportionate focus on economic actors raises concerns about the future of the EU’s social model, which has historically relied on strong collective bargaining and high social standards as a competitive advantage.

The withdrawal of the Horizontal Equal Treatment Directive is particularly concerning. While the directive had been stalled since 2008, its formal withdrawal signals a retreat from the EU’s commitment to anti-discrimination policies. Although the work programme includes a Roadmap for Women’s Rights and renewed LGBTIQ and anti-racism strategies, these remain non-legislative measures, further highlighting the lack of enforceable equality protections.

Migration: A Predominantly Economic Perspective

The Commission’s approach to migration is largely framed through an economic and security lens rather than a human rights perspective. While the programme commits to reviewing rules to prevent the exploitation of migrant workers, migration policy is primarily linked to economic utility—emphasizing legal pathways that address labour shortages while simultaneously tightening deportation measures. The absence of a more comprehensive integration strategy risks sidelining the rights and contributions of migrant communities in Europe.

Neglect of the Care Sector

One of the most striking omissions is the lack of policy initiatives for the care sector. Despite its crucial role in addressing demographic challenges, labour shortages, and gender equality, the work programme does not propose measures to support affordable, high-quality care services to implement the European Care Strategy. This oversight disregards the needs of families, caregivers, and workers in a sector that is fundamental to both economic stability and social cohesion.

Families and atypical employers, who have long been excluded from the current policy frameworks, are likely to face even greater challenges if this oversight persists. This gap is especially significant given that the care sector is seen as a bridge between demographic change and enhanced social fairness and competitiveness.

A Shift Towards Deregulation in Social Policy

While the work programme includes an Action Plan for the European Pillar of Social Rights, it lacks legally binding commitments. The Commission’s focus on regulatory simplification and cost-cutting within the EU acquis could risk diluting long-standing social protections. By prioritizing economic modernization and reducing administrative burdens, the Commission signals a shift away from the robust social agenda that has long distinguished European integration.

Conclusion: A Business-Driven Agenda with Weak Social Commitments

The 2025 work programme articulates an ambitious vision for a competitive and resilient Europe. However, its overwhelming focus on economic growth, regulatory simplification, and business incentives comes at the expense of workers’ rights, social dialogue, and comprehensive anti-discrimination measures. While some social initiatives are included, they remain largely non-legislative, raising concerns about the future of the EU’s social model.

This imbalance risks undermining Europe’s long-standing commitment to social protections and inclusivity. If the Commission is to ensure that economic progress benefits all citizens, it must integrate stronger social policies alongside its economic ambitions. Without concrete legislative actions, the EU’s foundational principle of “leaving no one behind” may remain an unfulfilled promise.