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Database of national-level policy measures

Eurofound's EU PolicyWatch collates information on the responses of government and social partners to the COVID-19 crisis, the war in Ukraine, rising inflation, as well as gathering examples of company practices aimed at mitigating the social and economic impacts.

Factsheet for measure ES-2021-1/1734 – measures in Spain

Recovery, Transformation and Resilience Plan for the Economy

Plan de Recuperación, Transformación y Resiliencia de la Economía

Country Spain , applies nationwide
Time period Temporary, 01 January 2021 – 31 December 2023
Context COVID-19, Green Transition, Digital Transformation
Type Non-binding recommendations or other texts
Category Promoting the economic, labour market and social recovery
– Other
Author Oscar Molina (UAB) and Eurofound
Measure added 20 January 2021 (updated 29 January 2021)

Background information

The Plan inspired by the Agenda for Change, the 2030 Agenda and the United Nations Sustainable Development Goals, will mobilize 50% of the resources available to Spain in the next three years thanks to the EU Next Generation instrument. The plan will serve to implement nearly €72 billion between the years 2021 and 2023. It is structured around the four transformations that the government has placed from the beginning at the center of its economic policy strategy: ecological transition, digital transformation, gender equality, and social and territorial cohesion.

Content of measure

The National Plan for Recovery, Transformation and Resilience is structured around ten driving policies that will have a direct impact on those sectors with the greatest capacity to transform our economy and society.

The first of these is the Urban and Rural Agenda, the fight against depopulation and the development of agriculture, receiving 19% of funds.

The second policy, which will receive 12% of the resources, focuses on promoting resilient infrastructures and ecosystems, through projects such as the Ecosystem Conservation and Restoration Plan, or the Plan for the Preservation of Urban, Energy and Environmental Infrastructures.

The third driving policy: the just and inclusive energy transition, to which 9% of the resources will be allocated.

The fourth driving policy will promote a Public Administration for the XXI century, so that the Public Administration acts as the engine of technological changes. 5% of the resources will be dedicated to this fourth policy.

The fifth policy is the modernisation and digitisation of the business system, to which 17% of the funds will be allocated due to the urgent need to support the business fabric and guarantee industrial competitiveness.

The sixth driving policy is the Pact for science and innovation and the reinforcement of the National Health System, which will have 17% of the resources.

The seventh driving policy is Education and knowledge, continuous training and capacity building. This policy will concentrate 18% of the resources since if there is a capital element for the Plan to have the desired impact, that is investment in human capital.

The eighth driving policy is the New Economy of Care and Employment Policies. This section includes, among others, shock plans for the economy of long-term care for the elderly and dependents, the reinforcement of the National Dependency System or the modernization of active employment policies. 6% of the resources will be allocated to this.

The ninth driving policy, with 1.1% of the resources, is the Development of culture and sports, two industries that are essential for the development of a free and open society.

And in tenth place, a modernisation of the tax system will be addressed, increasing the progressiveness and redistribution of resources to achieve inclusive and sustainable growth.

Use of measure

No information available.

Target groups

Workers Businesses Citizens
Applies to all workers Applies to all businesses Applies to all citizens

Actors and funding

Actors Funding
National government
EU (Council, EC, EP)
European Funds
National funds

Social partners

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

Trade unions Employers' organisations
Role Consulted Consulted
Form Consultation through tripartite or bipartite social dialogue bodies Consultation through tripartite or bipartite social dialogue bodies

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

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


After the government presented the plan, some meetings with trade unions and employers have taken place in order to devise a strategy as to how implement the general guidelines.

Views and reactions

Trade unions have a positive assessment of the plan, but miss a greater focus on employment related issues in the plan, including guarantees to ensure the quality of employment in the several policies contained.

Employer organisations on their side are also positive on the plan, but presented in November a more business friendly plan to that announced by the government.



Eurofound (2021), Recovery, Transformation and Resilience Plan for the Economy, measure ES-2021-1/1734 (measures in Spain), EU PolicyWatch, Dublin,


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Disclaimer: This information has not been subject to the full Eurofound evaluation, editorial and publication process.