How the EU4Youth programme is strengthening employment services in Ukraine and Moldova

In the Eastern Partnership (EaP) countries, national public employment services are having to adapt to changes in the labour market, rising levels of youth economic inactivity, and in some cases broader challenges related to European integration. Under the EU4Youth programme, the European Union has supported this transformation, helping national public employment services become more modern, interconnected, and responsive to the needs of young people.

The share of NEET youth (those not in employment, education, or training) in Eastern Partnership countries remains significantly higher than the EU average, reaching 14.5% in Moldova and 14.3% in Ukraine, according to the latest data. Women are disproportionately affected — in some countries their share of the NEET category reaches nearly 40%. These existing challenges have been further compounded by the COVID-19 pandemic, Russia’s full-scale aggression against Ukraine, and general political instability in the region.

Under the programme “EU4Youth Phase III: Youth Employment and Entrepreneurship,” the EU supported the transformation of national public employment services through large-scale regional efforts focused on institutional capacity development, mutual learning, and cooperation. The programme invested in strengthening the systems that underpin youth employment policy.

“Without a clear strategy or a proper performance management system, we will not be able to carry out reforms or ensure the quality performance of national public employment services. This was one of our key priorities,” noted Kristian Wagner, head of the technical assistance component of the EU4Youth programme.

Building more effective youth employment systems

Between 2022 and 2026, the programme reached more than 8,000 direct participants through training sessions, pilot initiatives, and the dissemination of practical tools.

At the heart of the programme was the Mutual Learning Plan (MLP) — a structured model developed along the lines of the benchlearning methodology of the European Union’s Public Employment Services Network (EU PES Network). Training topics covered a wide range of areas, from employer cooperation to the digitalisation of services. During study visits to Lithuania, Latvia, and Estonia, representatives of national public employment services were able to draw on the practical experience of EU countries.

All training materials were transferred directly to the relevant institutions, and the training-of-trainers format enabled the preparation of local experts to ensure the long-term sustainability of results.

A bridge to European standards

For Ukraine and Moldova, strengthening national public employment service systems is part of the broader process of alignment with EU standards in the context of EU accession negotiations. In Ukraine, programme participants drew a direct connection between their participation and the European integration process, emphasising that reforms are being carried out with the support of EU expertise and tools.

One example was the EU4Youth programme’s assistance in preparing a pilot application under the European Social Fund Plus (ESF+) social innovation competition, Skill Guarantee. Another was the development of an Employer Cooperation Strategy in Ukraine. The programme also strengthened ties with the European Alliance for Apprenticeships. As noted by Ruta Grigaliuniene, head of department at the Central Project Management Agency (Lithuania), Ukraine’s joining of the Alliance was an important step in facilitating young people’s transition from education to employment.

The State Employment Service of Ukraine underwent an external assessment using the European PES Benchlearning methodology. The findings will form the basis of its Development Strategy to 2030 and the next phase of modernisation, work on which will begin in the second half of 2026 and will include:

• the introduction of a comprehensive quality and risk management system;
• the development of data-driven analytics and improved strategic planning;
• further development of digital services;
• mapping (a single simplified partnership framework) of key partners and the public sector;
• the creation of a one-stop shop for employers and jobseekers;
• measuring client satisfaction levels (a service heat map).

At the same time, Moldova’s National Employment Agency (ANOFM) completed a self-assessment procedure in accordance with European standards for public employment service performance. This process helped identify the institution’s strengths and bring the country closer to EU standards in institutional governance.

Representatives of Moldova and Ukraine separately highlighted Estonia’s employment service digital tools as an important source of inspiration for further reform, and drew on the practices of Latvia and Lithuania in the areas of lifelong learning and youth career counselling.

How reforms were implemented in Ukraine and Moldova

While regional cooperation was the foundation of the programme, its practical impact is best seen at the national level through concrete changes in both countries.

“We have completely changed the way we communicate and engage with our clients. We are moving towards a client-centred and proactive approach,” said Yuliia Zhovtiak, Director of the State Employment Service of Ukraine, at the closing conference “Supporting Reforms and Capacity Development of Public Employment Services in Eastern Partnership Countries.”

Yuliia Zhovtiak also stressed that the PES Benchlearning assessment represents a real step towards European integration, carried out during active hostilities, and that the recommendations received constitute a step-by-step plan for implementing EU standards, which will take effect this year: “We will continue to remain a flexible human capital operator in times of change and challenge, and will scale up our effectiveness.”

At the same time, the reintegration of young people is becoming an increasingly important issue in Ukraine’s employment policy.

“Today, hundreds of thousands of Ukrainians are defending our country. We must understand that Ukraine will face the large-scale challenge of reintegrating veterans into civilian life and the labour market. Our task is to prepare the system today so that their transition is dignified, effective, and as barrier-free as possible,” said Daria Andriunina, Director of the Department of International Cooperation and Partnerships in Education at the State Employment Service of Ukraine.

Following the start of the full-scale war, support for Ukraine was swiftly redirected in line with new needs, demonstrating the programme’s ability to adapt to political and economic shocks within individual participating countries.

In wartime conditions, the State Employment Service of Ukraine has significantly expanded its active employment promotion programmes. Whereas in 2022 approximately 117,000 people were covered by state support programmes, over the entire period of the full-scale invasion 2.7 million people have used the services of the employment service — including microgrants, grants for veterans, vocational training, educational vouchers, and employer compensation programmes.

As a direct response to the challenges of war, more than 600 young internally displaced persons in Ukraine received psychosocial support and employment assistance. The programme also supported the localisation and adaptation of the European Entrepreneurship Competence Framework (EntreComp), as well as the development of the EntreGram4Youth self-assessment tool, which was integrated into the Diia.Education platform. As a result, more than 4,700 Ukrainians have used it to assess and develop their competencies, and a survey showed that 90.32% of programme participants in Ukraine reported an increase in their knowledge and skills in the area of youth employment strategies.

In parallel, Moldova also demonstrated significant results, with 95% of respondents reporting that they feel better prepared to perform their professional duties following participation in the programme.

“It is not just about participation. It is about progress, development, and a change in mindset. The employees who took part in these study visits were enormously impressed and motivated. It is a practical opportunity to see how our colleagues work and to draw on their experience to improve our own services,” said Lilia Plugaru, Deputy Director of Moldova’s National Employment Agency (ANOFM), at the closing conference.

A particularly important component in Moldova was work with vulnerable groups: in one pilot project, more than 100 young Roma and Sinti people belonging to the NEET category were engaged in the programme through cooperation between local intermediaries and the national employment service. Around 70 young people subsequently joined vocational training programmes.

Moldova also successfully localised and adapted the European Entrepreneurship Competence Framework (EntreComp) — the document was officially endorsed by the National Employment Agency (ANOFM) and handed over to the Ministry of Education and Research for further use. In both countries, national public employment services have strengthened their institutional capacity, moving towards a system based on data analysis and labour market trends.

Why stronger institutions matter

Mutual learning and peer exchange have significantly accelerated institutional reforms in Ukraine and Moldova. The EU4Youth programme has helped to create a stronger foundation for reform, strengthen cooperation, and reinforce the role of national public employment services.

“The results will continue to emerge, as capacity development is an ongoing process,” concluded Lilia Plugaru.

The programme leaves behind stronger institutions that now have the necessary tools to expand opportunities for the next generation.

The “EU4Youth Phase III — Youth Employment and Entrepreneurship” programme, funded by the European Union and the Ministry of Foreign Affairs of Lithuania, is being implemented by the Central Project Management Agency (CPVA) in Eastern Partnership countries, including Azerbaijan, Armenia, Georgia, Moldova, and Ukraine. The programme will run until mid-2026 and aims to provide technical assistance to governmental and non-governmental organisations to combat youth unemployment and improve youth employability.

Source: Hromadskyi Prostir