Skill development and employment pathways for adults with low skill levels

Context 

The publication addresses the growing vulnerability of adults with low qualifications and skill levels within the EU labour market, in the context of the green and digital transitions, demographic ageing, and rising competitiveness pressures. As automation, digitalisation and structural shifts increase demand for higher-level skills, adults in low-skilled jobs face declining job opportunities, poorer working conditions and higher risks of unemployment and social exclusion. This issue is central to EU priorities such as the European Skills Agenda, the Digital Decade targets and inclusive growth objectives. The research examines the characteristics of this group, demonstrating how skill gaps, limited training participation, and job quality challenges affect them across Member States. With nearly half of EU workers in low-skilled jobs and potentially in need of reskilling or upskilling, this issue is a key concern for policymakers, VET systems, employers, and social partners. 

Facts and findings 

• Around 50% of EU employment is in jobs with low skill requirements, extending far beyond the low qualification boundary.
• Employment opportunities for low-qualified workers are projected to decline sharply, with up to one-third of such jobs expected to disappear by 2035.
• Workers in low-skilled jobs have significantly lower participation in education and training, with only about one-third of training participants coming from this group and markedly lower engagement across all learning types.
• Digital skill gaps are substantial, with nearly 40% of workers performing only basic digital tasks concentrated in low-skilled jobs, and limited involvement in higher-value digital activities such as problem-solving.
• Workers in low-skilled jobs experience poorer labour market outcomes, including lower wages, lower job satisfaction and higher exposure to precarious employment conditions.

Key messages

• The persistence of low-skilled jobs across sectors shows that low skills needs are not confined to low education, requiring broader policy responses than focusing on qualification levels increase.
• Limited participation in adult learning and low awareness of upskilling needs indicate that structural barriers and motivational gaps must be addressed simultaneously.
• Digital skill deficits among low-skilled adults risk deepening inequalities during the digital transition, undermining EU productivity and inclusion goals.
• Poor job quality and limited career progression opportunities highlight that employment policies must focus not only on access to jobs but also on job quality.
• The findings are particularly relevant for policymakers, VET providers and social partners, as coordinated action is needed to align skills systems with labour market transformations. 

Policy pointers 

• EU and national level: Prioritise targeted upskilling and reskilling initiatives, especially in digital, technical and numerical skills, aligned with the European Skills Agenda and Digital Decade targets.
• National and regional level: Improve alignment between VET systems and labour market needs to reduce persistent qualification mismatches, particularly among VET graduates.
• VET providers and employers: Expand flexible, work-based and modular learning opportunities, combined with guidance and financial support, to increase participation among adults with low skill levels.
• Sectoral and social partner level: Address job quality issues (wages, working conditions, career progression) in low-skilled occupations to reduce labour shortages and improve their attractiveness.
• Cross-level action: Develop targeted outreach strategies for vulnerable groups (e.g. older workers, women) and strengthen coordination between policymakers, employers and learning providers to ensure inclusive transitions.