On 11 February 2025, the European Commission published its work programme for 2025, which outlines the priorities and initiatives for the year ahead. This programme plays a crucial role in advancing the commitments outlined in the Political Guidelines and the mission letters given by President von der Leyen to the Commissioners forming the College.
The Commission aims to address a variety of challenges and policy priorities by collaborating with the European Parliament, the Council, national authorities, and stakeholders. The seven priority action areas identified in the work programme are: sustainable prosperity and competitiveness, security and defence, strengthening society and the social model, quality of life, protecting democracy and EU values, external relations, and enlargement.
EU competitiveness faces structural challenges such as unfair competition, supply chain fragility, rising energy costs, labour shortages, and limited access to capital. The European Commission will address these issues through the Single Market Strategy, focusing on modernising the single market to enhance cross-border trade, remove barriers, and promote fair labour mobility. In addition, the Clean Industrial Deal aims to bolster industry competitiveness while driving decarbonisation, aligning with the European Green Deal. It focuses on improving energy access, boosting clean energy investment, strengthening energy infrastructure, and achieving a 90% emissions reduction target by 2040.The programme also includes plans such as the Sustainable Transport Investment Plan, the AI Continent Action Plan, and the EU Quantum Strategy, among others.
In 2025, especially due to Russia’s unlawful, unjustified, and brutal ongoing war of aggression against Ukraine, the Commission will focus on strengthening EU security and defence. To achieve it, the Commission will push for the creation of a real European Defence Union (EDU), increasing defence spending and closer cooperation with NATO and global partners. The upcoming White Paper on the Future of European Defence will lay the foundations for an EU framework and the actions needed in this area. Moreover, the Commission is suggesting a shift from a reactive approach to a proactive one through the Preparedness Union Strategy and the European Internal Security Strategy.
On migration and asylum policy, the Commission will focus on implementing the new Migration and Asylum Pact, enhancing border security, speeding up asylum processes, and tackling what they define as “illegal” migration through stronger cooperation with neighbourhood regions and new return procedures.
With regard to the social model, the Commission identifies several issues to be addressed, such as the cost of living, inequality, the need for a just transition to a green and digital economy, youth participation, consumer protection and skills gaps. To face these ongoing challenges, it will continue working on the implementation of the European Pillar of Social Rights (EPSR) and launch a new Pact for Social Dialogue, the Union of Skills and a new Consumer Agenda. With regards to the sustainability of quality of life, it is expected to launch the Vision for Agriculture and Food and the Ocean Pact.
In defending European values, the Commission will work toward safeguarding them and supporting civil society through the Democracy Shield initiative. This initiative will reinforce the rule of law across Member States, promote an inclusive society, and strengthen efforts to uphold democratic principles. It will also enhance rule of law monitoring and combat rising extremism, election interference, and the spread of misinformation—especially in the digital age. Recognising the vital role of organised civil society, the Commission will increase its support to protect and empower democratic institutions.
Concerning external relations, the Commission emphasises the need to defend the EU’s interests in a shifting international order, with a particular focus on continued support for Ukraine. It also aims to foster deeper cooperation with the southern neighbourhood through the Pact for the Mediterranean, while strengthening ties with key partners such as India (EU-India agenda), the Middle East and the Black Sea region.
Finally, the Commission aims to keep working for a larger Union through a merit-based accession process. Building on lessons from past enlargements, the EU will assess the impacts of enlargement on its policies, identify gaps, and explore measures to improve governance and ensure effective policy delivery in an expanded Union.
Following its adoption, the work programme will be presented to the European Parliament Plenary and the General Affairs Council for discussion. Then, the Commission, the European Parliament, and the Council will work together to define a Joint Declaration on the EU’s legislative priorities for 2025, along with the Joint Conclusions.
Key Texts
- European Commission: Commission Work Programme 2025
- European Commission: Political Guidelines for the Next European Commission 2024-2029
- European Council: Strategic Agenda 2024-2029
Upcoming Events
- 24 February: Foreign Affairs Council
- 3 March: The First 100 Days: EU Climate Leadership or Standstill? (EMI)
- 6 March: Competitiveness Council
- 10 – 13 March: European Parliament Plenary
European Movement International’s Position
The return of war to Europe highlighted the necessity for a fully-fledged European Defence Union (EDU). As stated in our policy position on Strengthening Security and Defence at a Time of Geopolitical Instability, the creation of an EDU would serve as a symbol of the EU’s commitment to enhance its strategic resilience and collective defence capabilities and to ensure regional stability and security in the region. However, it is crucial to ensure coherence and unity amongst Member States in the decision-making process, supported by regular consultations and dialogue. It can be facilitated by frameworks such as the Strategic Compass and the Permanent Structured Cooperation (PESCO). The EDU would reduce dependences on external actors, such as the US, and it would present the EU to the world as a united and autonomous entity—an essential feature in today’s international environment.
To establish a robust and sustainable long-term strategy for the EDU, it is imperative to reform the EU Treaties, starting from the mutual defence clause enshrined in Article 42.7 of the Treaty on the European Union (TEU). While the EU is progressing in its security and defence autonomy, cooperation with international partners, such as NATO, is vital. Multilateral peacebuilding, soft power, and diplomacy remain essential tools for global stability and achieving strategic objectives.
A solid, results-oriented enlargement process is essential for the peace, stability, and prosperity of the European continent, as elaborated in our policy position on a Resilient Europe: Enhancing EU Enlargement for a Stronger and Safer Union. Enlargement in the Western Balkans would be a safeguard against external influences and would expand its single market. To ensure transparency and inclusivity, a diverse range of stakeholders must be involved in the process, and public support must be strengthened through clear communication about accession criteria and benefits. Given rising euroscepticism among youth in candidate countries, a youth-centred approach is crucial, including targeted policies, engagement with organised civil society, and enhanced financial support. The European Commission’s New Growth Plan for the Western Balkans could serve as a model for providing interim benefits. We support the merit-based approach taken by the Commission for the accession process. This means linking financial assistance and other benefits to concrete progress made by candidate countries in areas such as judicial independence, anti-corruption measures, and governance reforms.
Moreover, the EU must undergo long-overdue institutional and treaty reforms. A key change is shifting from unanimity to qualified majority voting (QMV) in the Council to streamline decision-making and prevent individual Member States from blocking progress and delaying action. Additionally, the balance of power within EU institutions must be reconsidered, strengthening the roles of the European Parliament and of the Commission.
On migration and asylum policy, as outlined in our policy position Towards a More Effective and Humane European Migration and Asylum Policy, a review of the EU Commission’s 2020 Pact on Migration and Asylum is necessary to enforce mandatory burden-sharing among Member States and reform the Dublin Regulation. A fair and sustainable migration and asylum system requires a greater role for organised civil society, alongside harmonised integration policies focused on language training, job access, and education. Border management must align with human rights standards, ensuring that Frontex prioritises safe migration routes and adequate reception facilities. For this purpose, strengthening global cooperation, particularly in the Mediterranean, is key to addressing migration’s root causes.
Finally, our recommendations to ensure sustainable prosperity and competitiveness are to prioritise the implementation of the European Green Deal (EGD), channelling necessary resources for the decarbonisation of our society by mid-century. We call for the establishment of a Savings and Investment Union to support green and digital transitions, while deepening the single market would strengthen economic resilience.
