The EESC calls for a European code on consultations and mandatory assessments of partnership practices in the European Semester

The European Economic and Social Committee (EESC) has adopted an information report and a resolution calling for a stronger role for social partners and civil society organisations in shaping national reforms and investments. The EESC calls for the creation of a European code for structured consultations and mandatory assessments of partnership practices to improve transparency, effectiveness and democratic legitimacy.

Adopted at the EESC’s June plenary session, the information report presents the views of social partners and civil society organisations from all 27 Member States on key national reform and investment measures. The consultation involved 81 EESC members and more than 110 representatives of social partners and civil society organisations in round-table discussions in 5 Member States.

The report examines stakeholders’ assessments of the implementation of the 2025 country-specific recommendations (CSRs), measures under the Recovery and Resilience Facility, and national fiscal-structural plans. It also explores the proposed link between the next multiannual financial framework (MFF) and the CSRs. Based on these findings, the EESC adopted a resolution setting out recommendations to address the concerns raised by national stakeholders.

Implementation gaps persist

While stakeholders broadly support the 2025 country-specific recommendations, the report highlights a persistent gap between policy design and implementation. Respondents pointed to uneven delivery across Member States, insufficient involvement of social partners and civil society organisations and an imbalance between economic and fiscal priorities and social objectives.

According to rapporteur Andrea Mone, ‘social issues are often undervalued in the country-specific recommendations’, while implementation remains inadequate, ineffective or, in some cases, absent altogether.

To address these shortcomings, Mr Mone stressed that ‘government action must be strengthened in order to trigger the necessary dynamism at national level’. He added that this is essential for accelerating the design, implementation and delivery of reforms, as well as their democratic evaluation.

At EU level, he called for a stronger collaborative framework that rewards results through targeted technical assistance and greater flexibility in co-financing, while taking full account of national and regional specificities.

From consultation to genuine participation

One of the strongest messages emerging from the consultation concerns the involvement of social partners and civil society organisations. Although consultation mechanisms exist in most Member States, many stakeholders described participation as largely procedural, with limited influence on final policy decisions.

Respondents frequently reported being consulted too late in the process and receiving little feedback on how their contributions had been considered. The absence of a transparent and clear timeline limits the efficiency of the process and undermines civil society participation.

‘We reiterate our call for the establishment of a European code setting out how to conduct consultations within the framework of the European Semester, and how to draft and implement national plans, in accordance with national practices and social dialogue frameworks’, said rapporteur Gonçalo Lobo Xavier.

He also called for ‘the introduction of a mandatory assessment of the quality and impact of the partnerships’, measuring the extent to which stakeholders’ input influences final policy decisions and operational programmes with real benefits for European citizens.

Linking the European Semester and the next MFF with safeguards

The consultation also explored the future relationship between the European Semester and the next MFF. While many stakeholders support a closer alignment between EU funding and reform priorities to improve coherence and effectiveness, concerns remain about excessive centralisation and reduced democratic oversight.

The EESC supports a closer connection between the Semester and the EU budget, but insists that safeguards must preserve subsidiarity, democratic accountability and social balance.

‘Such a link between the European Semester and the next MFF could enhance European added value, but only if flexibility, multilevel governance and national ownership are preserved’, said rapporteur Luca Jahier.

He also stressed that the EESC ‘firmly rejects the logic of punitive macroeconomic conditionality’, and instead advocates a system of positive incentives, whereby the European Semester identifies strategic bottlenecks and the MFF provides targeted support to address them.

Contact: thomas.kersten@eesc.europa.eu