Background information

Bulgaria faces persistent labour shortages, particularly in sectors such as construction, agriculture, and manufacturing. To address these, the country has introduced regulatory measures enabling the employment of third-country nationals. These workers help fill vacancies that the local labour force cannot or does not wish to occupy, supporting economic growth while safeguarding employment standards.

The regulatory process involves the issuance of permits, such as the Single Residence and Work Permit and the EU Blue Card for highly qualified professionals. A labour market test is typically required, ensuring that no suitable candidates are available within Bulgaria or the EU before hiring from third countries. Employers must provide equal pay, working conditions, and social protections.

The employment of third-country nationals is governed by several key legal acts, including:

• Labour Migration and Labour Mobility Act

• Foreigners in the Republic of Bulgaria Act

• Labour Code

• Employment Promotion Act.

Content of measure

The measure covers the employment of third-country nationals in Bulgaria and applies to both long-term and seasonal positions across various sectors facing labour shortages, such as construction, agriculture, hospitality, and manufacturing. It allows employers to legally hire non-EU/EEA/Swiss nationals when no suitable local or EU workers are available.

Eligible workers must meet specific criteria, including possessing the required qualifications, skills, and experience for the role offered. In most cases, a labour market test must be conducted by the employer through the Employment Agency to demonstrate that no Bulgarian or EU citizen has applied for or is suitable for the vacancy.

Employers must also meet criteria, including proving the economic need for the position, offering fair working conditions, and complying with all labour and social insurance obligations. Certain categories of workers—such as highly qualified professionals (eligible for the EU Blue Card), intra-corporate transfers, and graduates of Bulgarian universities—may be exempt from the labour market test.

The measure is designed to strike a balance between addressing labour shortages and protecting local employment, ensuring third-country nationals are employed under lawful, non-discriminatory, and socially responsible conditions

Use of measure

In 2023, over 23,000 third-country nationals received work permits in Bulgaria, according to data from the Confederation of Independent Trade Unions in Bulgaria (CITUB). The majority were citizens of Ukraine, Uzbekistan, Kyrgyzstan, and Turkey. Thousands of Bulgarian employers have been affected by labour shortages, particularly in low- and medium-skilled sectors. The measure impacts both foreign workers seeking employment and local citizens, by aiming to fill workforce gaps without displacing domestic labour

Target groups

Workers	Businesses	Citizens
Applies to all workers	Applies to all businesses	Does not apply to citizens

Actors and funding

Actors	Funding
National government Social partners jointly Employers' organisations Company / Companies Public employment service	No special funding required

Social partners

Social partners' role in designing the measure and form of involvement:

	Trade unions	Employers' organisations
Role	Consulted	Consulted
Form	Direct consultation outside a formal body	Direct consultation outside a formal body

Social partners' role in the implementation, monitoring and assessment phase:

• Social partners jointly
• Main level of involvement: Peak or cross-sectoral level

Involvement

Social partners were consulted in the design and implementation of the measure, as part of Bulgaria’s institutional tripartite dialogue. Their involvement was both expected by the legal framework and actively requested during policy discussions.

Key organisations included the Confederation of Independent Trade Unions in Bulgaria (CITUB), Confederation of Labour Podkrepa, the Bulgarian Industrial Association, and the Bulgarian Chamber of Commerce and Industry. These partners participate through the National Council for Tripartite Cooperation.

While they did not draft the legal framework, social partners contributed by expressing sector-specific concerns and recommending safeguards. Trade unions focused on ensuring equal treatment and preventing exploitation of foreign workers, while employer organisations highlighted procedural obstacles and workforce needs. Their input influenced the balancing of economic and social priorities in the final policy design

Views and reactions

Social partners’ views on the measure are generally supportive, though with specific concerns. Employer organisations strongly back the measure, viewing it as essential to address acute labour shortages and support business continuity, particularly in sectors like construction, agriculture, and manufacturing.

Trade unions such as CITUB and Podkrepa are more cautious. While they recognise the economic necessity of employing third-country nationals, they stress the importance of strong safeguards to ensure equal treatment, prevent exploitation, and maintain fair working conditions.

Both sides agree on the need to simplify administrative procedures and shorten processing times, which are seen as major barriers to effective implementation. However, unions insist that these changes must not come at the expense of workers’ rights or social protections.

Overall, social partners are partially in agreement—supportive of the measure’s aims, but divided on the balance between flexibility and labour protections

Sources

• 04 March 2022: Employment promotion act Bulgari (www.mlsp.government.bg)
• 25 January 2023: Labour Migration and Labour Mobility Act Bulgari (www.mlsp.government.bg)
• 29 January 2023: Foreigners in the Republic of Bulgaria Ac (www.mig.government.bg)
• 29 February 2024: Thousands of workers from abroad come to fill in the job vacancies in Bulgari (bnr.bg)
• 19 July 2024: Bulgaria Turns to Foreign Workers as Domestic Labor Crisis Deepen (www.novinite.com)
• 28 January 2025: Businesses and the government are looking for a way to speed up the recruitment of third-country workers Bulgari (www.investor.bg)