"The unemployed have the right to adequate activation support from public employment services to (re)integrate in the labour market and adequate unemployment benefits of reasonable duration, in line with their contributions and national eligibility rules. Such benefits shall not constitute a disincentive for a quick return to employment."
SURE: EU financial assistance to protect jobs during the COVID-19 crisis
SURE, the European instrument for temporary Support to mitigate Unemployment Risks in an Emergency, was created as an EU solidarity mechanism during the COVID-19 crisis.
Its purpose was to help Member States finance short-time work schemes and similar measures designed to protect employment, preserve incomes and prevent a sudden rise in unemployment. The instrument could provide up to €100 billion in loans on favourable terms to Member States facing exceptional increases in public expenditure linked to employment protection.
SURE acted as a second line of defence in the EU’s pandemic response. While national governments remained responsible for designing and implementing labour-market support measures, SURE gave them access to EU-backed borrowing at favourable rates. The loans were supported by voluntary guarantees from Member States, making the instrument a concrete example of EU financial solidarity during an emergency.
The instrument supported short-time work schemes, similar job-retention measures for employees and the self-employed, and, in some cases, health-related measures at the workplace to support a safe return to economic activity. In total, the Council approved €98.4 billion in financial support to 19 Member States, and the final disbursement was made on 14 December 2022. The availability of SURE ended on 31 December 2022.
The Commission’s assessment highlights the scale and impact of the instrument. Member States spent almost €122 billion on measures supported by SURE. In 2020, SURE is estimated to have covered around 31.5 million people and 2.5 million firms. In 2021, it covered about 9 million people and more than 900,000 firms, before being gradually phased out in 2022.
The Commission estimates that policy measures including those supported by SURE helped prevent unemployment for around 1.5 million people in 2020. The main beneficiaries were small and medium-sized enterprises, particularly in sectors heavily affected by the pandemic, such as accommodation and food services, wholesale and retail trade, and manufacturing.
SURE was financed through the issuance of EU SURE social bonds.
The Commission issued €98.4 billion in social bonds in nine rounds, with maturities ranging from 5 to 30 years. The Social Bond Framework was designed to reassure investors that the proceeds would serve a clearly defined social objective. Strong investor demand allowed the EU to obtain favourable financing conditions, and Member States are estimated to have saved around €9 billion in interest payments.
The Commission issued five biannual reports under the SURE Regulation, as required by Article 14, covering the use of financial assistance, outstanding amounts, repayment schedules and the impact of the instrument. The fifth and final report confirmed SURE’s role in protecting jobs and supporting recovery.
An audit by the European Court of Auditors was also positive overall, recognising the Commission’s quick and efficient response to the employment risks created by the pandemic. The only recommendation was to carry out an ex-post evaluation.
The ex-post evaluation of SURE was completed in February 2025 and confirmed that SURE met its objectives, delivered value for money and helped cushion the socio-economic shock of the pandemic.
Its purpose was to help Member States finance short-time work schemes and similar measures designed to protect employment, preserve incomes and prevent a sudden rise in unemployment. The instrument could provide up to €100 billion in loans on favourable terms to Member States facing exceptional increases in public expenditure linked to employment protection.
SURE acted as a second line of defence in the EU’s pandemic response. While national governments remained responsible for designing and implementing labour-market support measures, SURE gave them access to EU-backed borrowing at favourable rates. The loans were supported by voluntary guarantees from Member States, making the instrument a concrete example of EU financial solidarity during an emergency.
The instrument supported short-time work schemes, similar job-retention measures for employees and the self-employed, and, in some cases, health-related measures at the workplace to support a safe return to economic activity. In total, the Council approved €98.4 billion in financial support to 19 Member States, and the final disbursement was made on 14 December 2022. The availability of SURE ended on 31 December 2022.
The Commission’s assessment highlights the scale and impact of the instrument. Member States spent almost €122 billion on measures supported by SURE. In 2020, SURE is estimated to have covered around 31.5 million people and 2.5 million firms. In 2021, it covered about 9 million people and more than 900,000 firms, before being gradually phased out in 2022.
The Commission estimates that policy measures including those supported by SURE helped prevent unemployment for around 1.5 million people in 2020. The main beneficiaries were small and medium-sized enterprises, particularly in sectors heavily affected by the pandemic, such as accommodation and food services, wholesale and retail trade, and manufacturing.
SURE was financed through the issuance of EU SURE social bonds.
The Commission issued €98.4 billion in social bonds in nine rounds, with maturities ranging from 5 to 30 years. The Social Bond Framework was designed to reassure investors that the proceeds would serve a clearly defined social objective. Strong investor demand allowed the EU to obtain favourable financing conditions, and Member States are estimated to have saved around €9 billion in interest payments.
The Commission issued five biannual reports under the SURE Regulation, as required by Article 14, covering the use of financial assistance, outstanding amounts, repayment schedules and the impact of the instrument. The fifth and final report confirmed SURE’s role in protecting jobs and supporting recovery.
An audit by the European Court of Auditors was also positive overall, recognising the Commission’s quick and efficient response to the employment risks created by the pandemic. The only recommendation was to carry out an ex-post evaluation.
The ex-post evaluation of SURE was completed in February 2025 and confirmed that SURE met its objectives, delivered value for money and helped cushion the socio-economic shock of the pandemic.
