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Factsheet for measure IT-2023-1/3826 – measures in Italy

Italian Entry Quotas for Labour Migration 2023-2025

Decreto Flussi 2023-2025

Country Italy , applies nationwide
Time period Temporary, 01 January 2023 – 31 December 2025
Context Labour Migration Management
Type Legislations or other statutory regulations
Category Measures to prevent social hardship
– Protection of vulnerable groups (beyond employment support)
Author Lisa Dorigatti (University of Milan) and Eurofound
Measure added 29 April 2025 (updated 12 May 2025)

Background information

The decree establishes quotas for non-EU foreign nationals entering Italy for work purposes for the 2023-2025 period, representing a shift from annual to triennial planning for labour migration.

The decree's legal foundation is established in the 'Testo Unico delle disposizioni concernenti la disciplina dell'immigrazione' (Legislative Decree 286/1998, Consolidated text of provisions governing immigration), particularly Article 21 which regulates entry for employment within quota limits. The current iteration was implemented through the Act of 27 September 2023, with modifications introduced by Act no. 20/2023 and Act 145/2024.

Content of measure

The decree establishes three primary categories of work permits: Non-Seasonal Subordinate Work (70,720 permits for 2025), Seasonal Subordinate Work (93,550 permits for 2025), and Self-Employment (730 permits for 2025). Non-seasonal permits cover various sectors including freight transport, construction, tourism-hospitality, mechanics, telecommunications, food industry, shipbuilding, passenger transport, fishing, hairdressing, electricians, and plumbers. A significant allocation (9,500 in 2025) is specifically dedicated to family and socio-health care workers, open to all nationalities. Seasonal permits primarily target the agricultural and tourism-hospitality sectors, often reserved for citizens of countries with migration cooperation agreements with Italy. Self-employment permits encompass entrepreneurs investing in the Italian economy (minimum €500,000 and creation of at least three new jobs), regulated professionals, renowned artists, and innovative start-up founders. The decree does not provide any direct financial support to either immigrant workers or employers. The primary focus is on ensuring fair working conditions and social security through mandatory compliance with national collective labour agreements. Employers must register workers with INPS, the National Institute for Social Security (for social security coverage including pension, illness, maternity, unemployment) and INAIL, the Italian Workers Compensation Authority (for insurance against workplace accidents and occupational diseases).

Use of measure

The Flow Decree 2023-2025 establishes progressively increasing annual quotas: 136,000 permits in 2023, 151,000 in 2024, and 165,000 in 2025, reflecting growing demand for foreign labour. However, the actual utilisation of these quotas is often lower than allocated figures. Reports indicate that only approximately 23.52% of quotas ultimately resulted in issued residence permits in certain years. The application process, particularly the 'click day' system, is highly competitive, with demand frequently exceeding available quotas. In December 2023, approximately 580,000 applications were submitted for just 131,000 available slot

Target groups

Workers Businesses Citizens
Migrants or refugees in employment
Does not apply to businesses Migrants or refugees

Actors and funding

Actors Funding
National government
National funds

Social partners

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

Trade unions Employers' organisations
Role No involvement No involvement
Form Not applicable Not applicable

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

  • No involvement
  • Main level of involvement: N/A

Involvement

No involvement

Views and reactions

Trade union CGIL (Italian General Confederation of Labour) have expressed strong disagreement with recent changes to the application procedures. They argue this contradicts a 2007 protocol that remains in force and effectively terminates 16 years of free assistance services provided by Patronati. The unions characterise this as 'an act of arrogance' that favours private labour consultants and employer representatives who may charge fees, potentially discouraging regularisation of immigrants and encouraging irregular migration and exploitation. UIL (Italian Union of Labour) has criticised the decree as maintaining a 'fictitious' system that pretends employers hire workers from abroad without meeting them, while the reality involves complex bureaucratic processes that discourage legal migration. They argue the decree has limited scope, excludes domestic work, and implements unnecessary procedures like requiring employers to verify unavailability of Italian workers. In contrast, CISL (Italian Confederation of Workers' Trade Unions) has shown qualified support for aspects of the decree, particularly welcoming elements relating to streamlining administrative procedures, making seasonal permits more flexible, providing extra-quota contingents for healthcare and family assistance workers, and increasing staff for application processing. CISL expresses hope that the decree will open 'a new phase in migration flow regulation' that responds better to labour market needs while promoting integration. Confindustria (the employers' federation) also demonstrates general support for the decree, particularly appreciating its administrative simplifications and bureaucratic streamlining. However, they suggest further improvements, particularly requesting extension of foreign training provisions for non-EU workers beyond 2024, addressing specific sectoral needs in road transport and tourism.

Sources

  • 27 March 2023: Un commento al decreto flussi (www.uil.it)
  • 03 October 2023: General Information of Decreto Flussi (italianvisa.it)
  • 05 October 2023: Entry Flows Italy: the three-year planning decree for 2023-2025 is published on the Official Gazzett (arlettipartners.com)
  • 16 September 2024: Decreto Flussi: updated Italy work permit quotas for 202 (theitalianlawyer.com)
  • 03 October 2024: Immigration. Fumarola (CISL): “Decree opens a new phase in the regulation of flows, making them more responsive to the needs and requirements of the world of work (www.anolf.it)
  • 25 October 2024: Memorie di Confindustria (www.confindustria.it)
  • 07 November 2024: Flow Decree 2025: Cgil and Inca, Patronages Excluded from Submitting Application (www.cgil.it)

Citation

Eurofound (2025), Italian Entry Quotas for Labour Migration 2023-2025, measure IT-2023-1/3826 (measures in Italy), EU PolicyWatch, Dublin, https://static.eurofound.europa.eu/covid19db/cases/IT-2023-1_3826.html

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