EUROPEAN COMMISSION
Brussels, 24.3.2025
COM(2025) 117 final
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS
on the implementation of the EU Youth Strategy (2022-2024)
{SWD(2025) 72 final} - {SWD(2025) 73 final}
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS
on the implementation of the EU Youth Strategy (2022-2024)
Table of contents
1 Introduction
2 What is it like to be young in the European Union?
3 Legacy of the European Year of Youth 2022
4 Progress across key areas
4.1 Engage
4.2 Connect
4.3 Empower
4.4 Youth-led actions
4.5 Beyond the EU
4.6 Insights on EU spending on youth
5 Cooperation needs at national level
6 Outlook for EU youth policy cooperation
1Introduction
The importance of young people in shaping the European Union’s future cannot be overstated. The political guidelines 1 for the 2024-2029 European Commission highlight the critical role that young people play in driving social change, promoting cultural diversity, and ensuring the long-term sustainability of our societies. The Commission's commitment to giving young people opportunities for the future and strengthening Erasmus+ demonstrates its determination to empower young people to achieve their full potential. The creation of the President’s Youth Advisory Board and the annual Youth Policy Dialogues with European Commissioners as well as the Commission youth check will put young people at the heart of the EU’s policymaking and ensure their active participation in shaping its future.
The EU Youth Strategy 2019-2027 (the EUYS) provides the framework for EU cooperation in the youth field 2 . It promotes young people’s participation in democratic life in line with Article 165 of the Treaty on the Functioning of the European Union, supports their social and civic engagement and aims to ensure that all young people can participate in society. The EUYS engages, connects and empowers young people 3 , and advances youth participation and youth mainstreaming 4 . The European Youth Goals 5 are part of the EUYS. They address many youth relevant policies (including education and training, employment, health, and the environment).
Every three years, the Commission reports on EUYS implementation, as required by the Council Resolution (footnote 2). The EU Youth Report 2022-2024, which is accompanied by two staff working documents, is the second such report under the current EUYS 6 . The Report highlights the progress made in implementing the EUYS, against the backdrop of the current situation of young people. It complements the interim evaluation of the EUYS 7 and the Communication on the European Year of Youth 2022 8 , which were published in 2024. The EU Youth Report provides a starting point for further action in the areas most relevant to young people. It aims to guide overall efforts in the last phase of the current EUYS and offers insights for the next EUYS after 2027.
2What is it like to be young in the European Union?
The EUYS needs to continue evolving in response to the situation of young people 9 . Data on aspects influencing their situation could identify areas for further policy development and increased activity. As the following chapters show, many policies influence the situation of young people.
A first positive finding is that young people in the EU are interested in political and community participation. Over 70% report that they vote in elections 10 and many express trust in the EU 11 . Nevertheless, the participation of young people in the 2024 European elections decreased compared to 2019 12 .Young people participate to a high degree in organised activities such as volunteering 13 and are vocal about the environment and climate change, which they see as the most urgent global threat.
However, the share of young people in the EU population has been declining over the past decade. This demographic shift is creating concerns about intergenerational fairness and the sustainability of social security systems. For example, a decline in the number of young people supporting a growing ageing population, could place increased strain on public services and social security systems.
Youth unemployment is a significant challenge. Approximately 10% of young people are unemployed and many are classified as NEETs (not in employment, education, or training). Low educational attainment and disabilities increase unemployment, which in turn exacerbates social exclusion and poverty. Vulnerable groups such as racial and ethnic minorities are particularly affected 14 . Regional disparities remain high, and the EU’s outermost regions are badly affected 15 .
Nearly a quarter of EU’s young people are at risk of poverty and social exclusion, including those in precarious jobs. This creates financial insecurity and affects access to quality education, housing, and healthcare. The pressures of unemployment, lower education, and social exclusion also impact mental health, with almost half of young people reporting emotional or psychosocial problems in the past year 16 .
Education and training are crucial for young people’s prospects. 4 in 10 young people completed tertiary education in 2023 17 . Early leaving from education and training stood at 9.5% in 2023 and remains a concern, particularly among young men (11%). The PISA 2022 survey 18 shows that 30% of the 15-year-olds in the EU do not reach a minimum proficiency in mathematics and around 25% in reading and science.
The digital world is ingrained in young people's lives, presenting opportunities and challenges. The acquisition of digital skills correlates significantly with higher formal education. In 2023, 28% of young people lacked basic digital skills, rising to 38% for young people with low education 19 .
Transnational mobility is an essential element of high-quality education and training. 16% of young people have studied or trained in another Member State 20 , however financial and organisational barriers are still important challenges.
3Legacy of the European Year of Youth 2022
The Communication on the European Year of Youth 2022 21 set out 60 actions to give young people a greater say in EU policymaking and deepen the youth dimension in EU policies. This includes the Commission youth check, which aims to ensure that the main new Commission initiatives consider the impact on young people 22 , by fully using the Better Regulation tools, including stakeholder consultations and impact assessments.
In its 2024-2029 mandate, the Commission maintains its commitment to young people through new initiatives, such as the President’s Youth Advisory Board and the annual Youth Policy Dialogues with Commissioners. 23
The EU Youth Dialogue 24 is the largest EU-level youth participation mechanism. It contributes to these commitments, including by aligning the dialogue more closely with the Commission’s annual work programme 25 . The new EU Youth Stakeholders Group 26 facilitates dialogue and consultations with European youth organisations, national youth councils, researchers, representatives of Member States and other EU institutions.
4Progress across key areas
The EUYS promotes youth mainstreaming across policy areas, including through the youth check and the activities of the EU Youth Coordinator 27 . The present report builds on the Communication on the European Year of Youth and the interim evaluation of the EUYS. It provides updates to complete the picture and guide future actions.
4.1Engage
The ‘Engage’ pillar of the EUYS encourages young people to participate in and contribute to society, democratic life and the economy.
Youth participation
Youth participation is a key priority of the EUYS. The EU Youth Dialogue has focused on the theme ‘Engaging together for a sustainable and inclusive Europe in 2022-2024 28 . It has enabled 130 000 29 young people to voice their opinion on policy in the past five years. National youth councils 30 played a key role in its implementation. The 10th cycle (July 2023-December 2024) focused on social inclusion 31 . Significant progress has been made with including young people from diverse backgrounds in the EU Youth Dialogue, but the process can evolve still further and under-represented groups can be further involved. Mechanisms for sharing and following-up on young people’s recommendations need to be strengthened.
Synergies with other initiatives to foster youth participation can also be developed further. This is particularly the case with the EU Strategy on the Rights of the child 32 which involves children and young people in decision-making through the EU Childrens’ Participation Platform 33
Erasmus+ and the European Solidarity Corps provide important support for civic participation through one of the programmes’ horizonal priorities.
Other recent initiatives to foster youth participation include the:
-Better Internet for Kids strategy 34 (BIK+)
-European citizens’ panels 35
- Youth4Reviving (stagnating) EU territories 36
-Defence of Democracy' package 37
-EU Citizenship Package 38
-European Youth Week 2024 39
Youth employment and skills
In a rapidly evolving labour market, acquiring relevant skills and finding jobs is crucial for young people. Raising ambition and action on tackling skills and labour shortages is emphasised in the Commission’s 2024-2029 political guidelines.
The European Year of Skills highlighted the critical role of skills in driving economic competitiveness, social inclusion, and environmental sustainability. The Year helped address skills gaps in the EU and promoted upskilling and reskilling 40 . The Action plan on tackling skills and labour shortages in the EU 41 includes initiatives to activate and upskill young people not in employment, education or training (NEETs).
The European Year of Skills fostered a culture of lifelong learning and skills development to unlock new opportunities and boost career prospects. Many initiatives promote youth employment and skills, such as the:
-Youth Guarantee 42
-European Alliance for Apprenticeships 43
-ALMA 44
-Individual Learning Accounts 45
-Disability Employment Package 46
-Talent Booster Mechanism 47
- Youth Entrepreneurship Policy Academy 48
-Youth4Regions 49
-Interreg Volunteer Youth 50
The 2024 Commission proposals for quality traineeships 51 set out binding measures to improve and enforce trainees’ working conditions and combat abusive practices, and recommendations on fair pay, social protection and inclusive traineeships for all trainees.
4.2Connect
The Connect pillar of the EUYS promotes exchanges and joint projects, encouraging young people to study, train, or volunteer abroad.
Learning mobility
Learning mobility is important for young people to develop skills, create shared experiences and gain a better understanding of each other across cultural and other divides. Erasmus+ and European Solidarity Corps remain key enablers of the EUYS by supporting learning mobility, exchanges, and volunteering. In 2024, Erasmus+ reached the milestone of 15 million participants 52 . The European Student Card Initiative 53 gathered pace and 3 000 higher education institutions have joined the Erasmus Without Paper network. The European Solidarity Corps expanded its scope to volunteering in the humanitarian aid field.
The 2024 Council Recommendation ‘Europe on the Move’ – learning mobility opportunities for everyone 54 set new targets for making learning abroad possible for more people.
Youth and the digital world
Growing up in the digital age, young people face unique opportunities and risks (e.g. AI), which may require more attention in the next EUYS. Several initiatives address the wellbeing of young people in the digital world, including the Better Internet for Kids (BIK+) strategy.
Social media deeply affects young people, offering opportunities but also posing risks to their mental health. The Digital Services Act prioritises minors' online protection, mandating platforms to ensure privacy, safety, and security, and to assess risks to users' wellbeing. The Artificial Intelligence Act 55 will regulate or prohibit AI systems that could be harmful to children. The upcoming action plan against cyberbullying will combat online cyberbullying and abuse and an EU-wide inquiry on social media’s impact on mental health and wellbeing will show how young people can use the digital world, while reducing negative effects.
4.3Empower
The Empower pillar of the EUYS encourages young people to take charge of their own lives and helps them to play an active role in society, particularly through youth work.
Youth work
By providing a safe, supportive, and inclusive environment, youth work and non-formal and informal learning empower young people to become active citizens and develop the skills, confidence, and resilience needed to succeed in an uncertain future. In addition, youth workers must enhance their own skills and knowledge, so that they can have a more effective and sustainable impact on the young people they serve.
The 2024 Council Resolution on Youth Work in an empowering Europe 56 calls for the development of youth work 57 . The European Training Strategy for youth work 58 aims to help youth workers support young people. More than 110 000 youth workers have participated in Erasmus+ 59 . The EU-Council of Europe Youth Partnership 60 and particularly the preparation of the 4th European Youth Work Convention 61 help further develop the EU youth work agenda.
Social inclusion
Combating social exclusion and discrimination is crucial in unlocking the full potential of young generations. The intersectional nature of inclusion challenges (e.g. youth unemployment, poverty and social isolation) can aggravate the experiences of groups at risk of discrimination and exclusion, such as young people who have disabilities, come from racial or ethnic minorities (e.g. Roma), the LGBTIQ community, religious minorities, or live in rural areas. The EU Anti-racism action plan 2020-2025 62 highlights the role of young people in combatting racism and discrimination, and the importance of listening to and involving those affected in decision-making.
The 2023 Council Recommendation on adequate minimum income ensuring active inclusion 63 includes recommendations to address the needs of young adults.
The 2024 Council Conclusions on inclusive societies for young people 64 called for the facilitation of participation and inclusion. The EU Youth Dialogue now involves more young people from minority groups and those with disabilities - efforts continue to increase the participation of NEETs and rural youth.
Erasmus+ and the European Solidarity Corps provide activities like the DiscoverEU inclusion action, youth exchanges, and group volunteering, as well as special support for young people with fewer opportunities. Between January 2021 and August 2024, 32% of Erasmus+ youth mobility participants and 51% of European Solidarity Corps volunteers have been young people with fewer opportunities.
The Rural Pact 65 and the rural action plan under the Long-Term Vision for EU’s Rural Areas 66 , promote education, training and employment for young people in rural and remote areas.
Health and wellbeing
Health and wellbeing challenges are rising among young people, making it essential to promote resilience, coping skills, and strategies to thrive. The Commission’s comprehensive approach to mental health 67 set out 20 flagship initiatives, including 4 addressing the mental health of children and young people 68 , such as a child and youth mental health network, a prevention toolkit with UNICEF, tools for healthy lifestyles, and enhanced protection for children online. The Child & Youth Wellbeing and Mental Health First’ 69 under the Technical Support Instrument supports better psychosocial support services for young people.
Sport and physical activity are crucial for the health and wellbeing of young people. The Commission and the World Health Organization promote organised and non-organised sports 70 to foster a healthy lifestyle among young people. They work together to encourage effective policies in line with the Council Recommendation on promoting health-enhancing physical activity across sectors 71 .
The Expert Group on Supportive Learning Environments has developed guidelines 72 for wellbeing and mental health at school, including support for educators.
The 2024 Commission Recommendation on developing and strengthening integrated child protection systems in the best interests of the child 73 aims to ensure that children are safe and protected from violence.
Education and training
Education, training, and lifelong learning, a key principle of the European Pillar of Social rights, empower young people, fostering growth, inclusion, and prosperity. The European Education Area (EEA) 74 aims to provide the best education and training possible for all learners and therefore supports the transition of young people to adulthood, into the labour market and becoming active citizens, which are important aspects of the EUYS.
As part of the European Education Area, the Commission’s 2024 Higher Education Package 75 , including a blueprint for a European degree, aims to give students more opportunities to study across borders and graduate with a single diploma. The EU had 65 European Universities alliances in 2024 76 and continues to foster excellence and inclusion. Centres of vocational excellence 77 are being set up to provide high quality vocational skills.
The 2022 Council Recommendation on Pathways to School Success 78 offers policy guidance to Member States for reducing underperformance in basic skills and early leaving from education and training, and for promoting upper secondary education completion.
The Digital Education Action Plan 79 set out a vision for digital education. The European Cybersecurity Skills Academy 80 promotes cybersecurity skills and professionals. The EU Agency for Cybersecurity runs initiatives such as the European Cybersecurity Challenge 81 and CyberEducation platform 82 to raise awareness among young people about cybersecurity education. The Digital Europe Programme 83 also supports higher education graduates in areas like AI, computing, and advanced digital technologies.
Calls under Horizon Europe and initiatives such as the STE(A)M 84 education approach, Women in Digital 85 and Girls Go Circular 86 help address the under-representation of girls and women in STEM education.
The European City of Science in 2022, Leiden, engaged young people in events like the European Contest for Young Scientists 87 and the EU TalentOn 88 . These continued in 2024 under the European City of Science umbrella in Katowice.
Culture
Culture shapes young people’s identity and values. The EU promotes initiatives to help young people from diverse backgrounds develop talents and enjoy cultural heritage.
Under Creative Europe 89 , initiatives like Culture Moves Europe 90 supported mobility of 7 000 artists in 2023-2024.
The EU supports emerging talents through initiatives such as the Young Talent Award within the EU Prize for Contemporary Architecture – the Mies van der Rohe Award.
The annual Day of European Authors in 2024 saw almost 2 000 reading events across 40 countries. European Capitals of Culture 91 engage young people. The EU promotes multilingualism through the Juvenes Translatores contest.
Environment and climate
The EU's commitment to environmental and climate action acknowledges the critical role of young people in shaping a more sustainable and environmentally conscious EU. The European Climate Pact 92 has young Climate Pact Ambassadors, who engage in local initiatives and inspire their communities. Young Energy Ambassadors 93 promote sustainable and clean energy.
The EU4Ocean coalition 94 recognises young people's efforts in ocean conservation and provides training.
The Just Transition Platform supports young people in regions affected by the transition to climate neutrality. It includes a Youth Task Force.
Erasmus+ and the European Solidarity Corps integrate green practices into all projects, including through financial incentives for green travel.
The New European Bauhaus Prizes 95 , and the Rising Stars-strand, recognise young people's creativity in promoting sustainability.
4.4Youth-led actions
Initiatives run by young people and/or youth organisations are particularly important in helping young people learn the importance of being engaged and contributing to EUYS objectives. The EU supports youth-led actions, such as youth participation activities in Erasmus+, boosting civic and political participation, and solidarity projects in the European Solidarity Corps that help young people to address challenges in their communities.
In EU external action, initiatives like the Youth Empowerment Fund support youth-led solutions for the UN Sustainable Development Goals and enhance youth participation.
The Youth4Cooperation Group involves young people in regional development strategies. Participants in Interreg Volunteer Youth can organise community engagement activities under cohesion policy. Youth4Outermostregions supports youth-led projects in the outer regions. Initiatives like the EUTeens4Green support young entrepreneurs in developing environmental solutions.
4.5Beyond the EU
The EUYS also aims to inspire engagement and more resilient societies worldwide. Its international dimension was reinforced by the Youth Action Plan in EU external action 2022-2027 (the YAP) 96 . The YAP focuses on shaping external action in partnership with young people to advance the 2030 Agenda for Sustainable Development 97 and other global commitments. It includes initiatives such as the EU Youth Sounding Board for International Partnerships and Youth Advisory Structures in EU Delegations.
The EU has prioritised youth participation in high-level political dialogues and regional forums, such as the EU-African Union, and EU-Community of Latin American and Caribbean States summits. Programmes like the AU-EU Youth Lab, Youth Europe Sahel- Engagement de la Jeunesse au Sahel and the Africa-Europe Youth Academy promote youth participation.
The EU has strengthened cooperation with global youth stakeholders, such as the UN Youth Office and the United Network of Young Peacebuilders. The Women and Youth in Democratic Engagement initiative supports young people's engagement in political processes worldwide 98 .
EU enlargement
Young people benefit from the EU's enlargement process 99 which gained momentum in 2023-2024, as highlighted in the 2024 Commission Communication on EU enlargement policy 100 and the Commission Communication on pre-enlargement reforms and policy reviews 101 .
The EU has started to integrate candidate and potential candidate countries into strategic frameworks like the European Education Area. For example, the European Universities initiative 102 was opened in 2023 to all Western Balkans’ universities, and 14 Western Balkans universities were full partners in 2024. The EU supports the implementation of the Youth Guarantee in the Western Balkans to address youth unemployment.
The Erasmus+ and European Solidarity Corps foster cross-border cooperation, capacity-building, youth mobility and active citizenship in candidate countries.
The EU4Youth programme is a cornerstone of EU cooperation with eastern partners, focusing on employability. In 2024, the Erasmus+ youth and sport capacity building actions were opened to participants from the Eastern Neighbourhood. In the Southern Neighbourhood, the EU Jeel Connect network was launched to enhance youth engagement, and the Union for the Mediterranean has adopted a Youth Strategy and Agenda for 2030. In sub-Saharan Africa, the EU promotes learning mobility through the Youth Mobility for Africa as part of the Global Gateway.
4.6Insights on EU spending on youth
The EU offers substantial funding opportunities to support youth under the 2021-2027 multiannual financial framework.
Erasmus+ and the European Solidarity Corps are key in supporting learning mobility, cooperation and solidarity. Erasmus+ is investing EUR 26 billion (and an additional EUR 2 billion from EU external cooperation funds) and the European Solidarity Corps is investing a further EUR 1 billion. Horizontal priorities include inclusion and diversity, digital, green, and democratic participation.
The Recovery and Resilience Facility is central to the NextGenerationEU plan. It invests EUR 66 billion to reforms and investments in key areas that benefit children and young people such as education, training, employment, and healthcare services.
The European Social Fund Plus invests EUR 11 billion in youth employment, education and social inclusion.
The European Regional Development Fund invests EUR 30 billion in digital and demographic transition, and access to services in areas such as employment, education, housing and healthcare, and tourism and culture, and EUR 93 billion in the green transition, benefiting young people.
The Common Agricultural Policy 2023-2027 invests around EUR 8.5 billion in support for young farmers.
The Just Transition Fund invests EUR 3.4 billion in mitigating the social impacts of the climate transition. It supports skills development, labour market assistance, and improving education quality, benefiting young people.
The Citizens, Equality, Rights and Values programme invests EUR 200 million in addressing gender-based violence and violence against children and young people and in strengthening child protection. The programme allocates an additional EUR 34.8 million for child rights and children's participation for 2021-2025.
The Technical Support Instrument supported youth-related projects with a total budget of over EUR 25 million in 2022-2024.
5Cooperation needs at national level
The European Year of Youth 2022 created a momentum for youth mainstreaming not only at EU level but also in the Member States. This is reflected in the topics of the Council Conclusions adopted in recent years (e.g. inclusive societies, mental health, and sustainability). Member States have also called for a youth check in EU policymaking 103 , which the Commission will apply to initiatives with significant youth relevance starting with its 2025 annual work programme.
25 Member States have shared information about their youth policies and cooperation needs 104 . In 2024, the three main challenges identified for young people were mental health and wellbeing, youth participation, and the cost of living. National youth policies that were highlighted in this context focused on youth participation, youth work and social inclusion.
Member States have expressed interest in further EU cooperation on youth participation; youth mainstreaming; digitalisation; learning mobility and recognition of youth work and non-formal and informal learning; and communication and data. Peer learning and evidence building were the preferred cooperation tools. Here the Youth Wiki 105 and research by the EU-Council of Europe Youth Partnership 106 can provide inputs.
Public authorities can apply for support under the Technical Support Instrument to design and implement youth policy reforms.
6Outlook for EU youth policy cooperation
Looking at 2022-2024, the EU Youth Strategy has made a significant leap forward during the European Year of Youth 2022 in terms of youth participation and youth mainstreaming. This left a strong legacy and sense of commitment among young people and stakeholders. Going forward, the political guidelines for the 2024-2029 Commission underline the EU’s commitment to empowering young people and addressing their concerns, with firstly the creation of the President’s Youth Advisory Board to advise on issues affecting young people and to give young people a voice in shaping the EU’s future, and secondly, the annual Youth Policy Dialogues with European Commissioners, starting in the first 100 days of the mandate. A forthcoming strategy on intergenerational fairness will promote solidarity and engagement between people of different ages.
The political guidelines point out that some areas are particularly and urgently relevant to young people’s challenges and needs and require further attention. These include:
Ømental health and wellbeing, including tackling the risks related to and impact of social media, excessive screen time, and cyberbullying;
Øeducation and skills, including strengthening Erasmus+ and fostering a high-quality, inclusive and engaging education environment, and building a Union of Skills including initiatives such as an Action Plan on Basic Skills and a STEM Education Strategic Plan;
Øemployment and social protection policies, including increasing participation of young people in the labour market, based on a new Action Plan on the implementation of the European Pillar of Social Rights;
Øhousing affordability, requiring a comprehensive approach to address structural drivers of the housing crisis.
This ties in closely with the main challenges faced by young people identified in consultations of stakeholders and young people during the interim evaluation of the EUYS. The Commission is committed to further developing policies and initiatives to address the pressing challenges facing young people. It will do this by working with Member States, civil society, and young people themselves, and by building on the progress achieved under the EUYS.
The wide-ranging needs and interests of young people underline the importance of youth mainstreaming. The full application of the youth check in EU policymaking (starting with the Commission’s 2025 annual work programme) is a major step forward to ensure that the youth perspective and impact on young people is factored into youth-relevant EU policies and initiatives.
Common priorities within the EU Youth Strategy continue to be addressed through the open method of coordination 107 and have fed into the EUYS Work Plan 2025-2027 108 . This includes the launch of the 11th cycle of the EU Youth Dialogue (1 January 2025 - 30 June 2026) focusing on ‘Connecting EU with youth’.
Young people and those working with and for them should be at the centre of preparations for a renewed framework for EU cooperation in the field of youth. The Commission will therefore run a listening process in 2025-2026 to engage young people and relevant stakeholders in reflections that will feed into the Commission’s proposal for the next EU Youth Strategy post-2027. The EU Youth Stakeholders Group and the EU Youth Dialogue will be mobilised in this process.
The European Youth Goals 109 may need a refresh in light of young people’s concerns. In the 2024 Eurobarometer survey ‘Youth and Democracy’ 110 , young people said that they expect the EU to reinforce peace, international security and cooperation; fight poverty and inequalities; and promote human rights, democracy and common EU values.
By building further on the EUYS pillars of engaging, connecting and empowering young people, we can create a more inclusive, sustainable, and prosperous future for everyone in the EU.
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