National employment action plans

On 19 January 2019, the National employment action plan (NEAP) was approved. A complex approach was applied, including provision of training for acquiring vocational qualifications in professions in demand, training for key competences and employment relevant to the acquired qualification. The professions for vocational training were determined based on a preliminary survey of employers and their specific requests, as well as on the annual surveys of employers conducted by the employment agency for the identification of professions and specialties in demand. The training courses were organised in different vocational fields for which a shortage of qualified labour force had been identified. Training for the acquisition of key competences was related to the occupation field. A large percentage of the unemployed who had successfully graduated from vocational training courses were employed in the primary labour market (non-subsidised employment) or through subsidised employment. The NEAP measures were targeted at disadvantaged groups, which are the priority groups of the active labour market policy. The 2019 National employment action plan supported inspirational in-company trainers through additional payments from the State budget, in compliance with the Employment Promotion Act (EPA). The financial support only covered additional remuneration and not training.

The results of the implementation of the NEAP for 2019 exceeded the initial expectations. Instead of training 11 483 unemployed people and for 16 567 unemployed to be employed, by the end of 2019 ,12 546 unemployed people were trained, and 19 489 unemployed people were employed).

The results of the implementation of the NEAP for 2019 exceeded the initial expectations. Instead of training 11 483 unemployed people and for 16 567 unemployed to be employed, finally,12 546 unemployed people were trained, and 19 489 unemployed people were employed).

On 6 February 2020, the National employment action plan (NEAP) for 2020 was approved by the Council of Ministers (Council of Ministers Resolution No 83 of 6 February 2020).

In 2020, active labour market policy funding continued for training activities related to the implementation of the Council recommendation on Upskilling pathways: new opportunities for adults, which was adopted in 2016. To ensure the quality of vocational training, the maximum amount of funding for training increased in the following occupational areas and specialities: personal services, public safety and security, physical sciences, informatics, engineering, health, environmental protection, production and processing, architecture and construction, transportation, agriculture, forestry, fisheries and veterinary medicine.

In 2020, training in key competences, such as mathematical competence and competence in science, technology and engineering, personal, social and learning to learn competence, citizenship competence, entrepreneurship competence and for Bulgarian as a foreign language, was financed and organised. Training in digital competence was also financed, as an increasingly important condition for unemployed people to find work.

Small, micro and medium-sized enterprises (SMEs) had the opportunity to request the involvement of their employees in key competence training. Half of the training costs were financed from the State budget. Employers were committed to retain those employees who had successfully completed training for at least six months after completion of training.

Employers (under Article 63 of the Employment Promotion Act) were eligible to apply to the employment agency to organise training for the unemployed, leading to the acquisition of a vocational qualification in the occupations and specialties they required. Employers had the option to select the training provider of their preference; upon successful completion of training, they had to hire the trained individual for a period of no less than six months in a position corresponding to the acquired qualification.

Implementation of the measures under the Employment Promotion Act, including internships (Articles 41 and 46) and apprenticeships (Articles 41a and 55d), continued in 2020. Employers offering internship or apprenticeship positions to the unemployed received part of the remuneration costs of those they employed (under one of the above types) from the State budget, as well as from social security contributions. Under the legal framework for apprenticeship, remuneration costs for mentors were also covered for the employers.

To meet the labour market demands within a certain occupation, the projects of nationally represented organisations of employers and employees were funded. Under these projects, those registered as unemployed were eligible to be trained for the acquisition of key competences in occupations in high demand in the labour market after a request by employers. Upon successful completion, at least 40% of those trained were employed in subsidised or non-subsidised employment for a minimum period of three months.

The results of the implementation of all programmes and measures under the NEAP for 2020 were: 10 397 unemployed had been trained and 15 683 unemployed were employed.

The implementation of the NEAP in 2020 was affected by the outbreak of the COVID-19 pandemic, which delayed the beginning of some training activities and had a negative impact on employment. By order of the health minister, it was forbidden to conduct face-to-face training for an indefinite period, and this led to the postponement of training courses. According to provisions in force of the Vocational Education and Training Act (VETA), distance learning for acquiring professional qualifications was not allowed. With the easing of some of the epidemiological measures in May 2020, it became possible to conduct training under certain conditions.

The NEAP for 2021, considered the necessity to rebuild the economy, maintain employment and rethink VET policies and training for the acquisition of key competences. The main emphasis was placed on digital skills and competences. NEAP 2021 was approved in January 2021 by the Council of Ministers (Council of Ministers Resolution No 83 of 29 January 2020).

The National employment action plan for 2021 was developed in three parts. The first part reflected the macroeconomic environment and the development of the labour market in 2020, as well as expectations for 2021. The second part presented the national employment policy in 2021 by setting out: the annual priorities; policy target groups; programmes, projects, measures and actions for employment promotion, as well as for the improvement of the quality of the labour force; expected results from the policy; development of social dialogue and management of active labour market policies.

The third part of the plan contained information that supported its implementation by the responsible institutions and organisations. The information includeds a brief description of each intervention (programmes, projects and measures for training and employment), with funding from the State budget and from the ESF. The description included: purpose of the intervention, main activities, target groups, institutions, organisations, and partners responsible for their implementation, as well as the duration and amount of funding.

In 2021, active labour market policy funding continued for training related to the implementation of the Council recommendation on Upskilling pathways: new opportunities for adults, which was adopted in 2016 to increase the skills of adults to improve their language and mathematical literacy, to increase their competence in digital technologies and to acquire higher qualification levels under the European qualifications framework.

In the context of the 2021 New European skills agenda, in addition to key competences like mathematical competence and basic competences in science and technology, training was also funded to enhance key skills such as: learning to learn, social and civic competences, sense of initiative and entrepreneurship and digital competence.

To limit the spread of COVID-19, many institutions and organisations moved almost entirely to providing electronic services to consumers in social services, health and education. Having a minimum of digital skills became a necessary prerequisite for individuals in terms of learning, communication and work.

To increase the supply of a labour force equipped with skills needed by employers, capable of adapting rapidly and improving continuously, SMEs were eligible to request key competence training for their employees, with half of the training costs financed from the State budget. Employers were committed to retain in employment anyone who had successfully completed training for at least six months after completion.

Under Article 63 of the Employment Promotion Act, employers were eligible to apply to the Employment Agency for organising training for the acquisition of professional qualifications by the unemployed in occupations and specialties of their preference. After the successful completion of training, employers had to ensure that those who had completed training continued to be employed in a position relevant to the acquired qualification for a minimum period of six months. Employers were eligible to select both candidate trainees and the training provider.

The implementation of the measures under the Employment Promotion Act, including internships (Articles 41 and 46) and apprenticeships (Articles 41a and 55d), continued in 2021. Employers offering internship or apprenticeship positions to the unemployed received part of the remuneration costs of those they employ (under one of the above types) from the State budget, as well as from social security contributions. Under the apprenticeship legal framework, the mentors' remuneration costs were also covered for the employers.

To meet the labour market demands within a certain occupation, the projects of nationally represented organisations of employers and employees were funded. Following a request from employers, under these projects the registered unemployed received training for the acquisition of key competences in occupations in high demand in the labour market. Upon successful completion, at least 35% of the trained unemployed were employed in subsidised or non-subsidised employment for a minimum period of three months.

The project Training and employment of young people is implemented with financial support from the ESF. The project aims to integrate unemployed young people up to the age of 29, including those registered at labour offices, into employment by providing training and subsidies for long-term employment. The project supports the transition from education to employment for unemployed young people providing a first or new chance of a job, new or improved professional knowledge and skills acquired in the workplace, as well as the acquisition of professional qualifications, training in foreign languages and training for the acquisition of digital skills (if required by the particular employer).

NEAP 2021 was the driving force for the Development of digital skills project.

By the end of December 2021, 10 124 unemployed individuals were trained and 15 934 unemployed individuals were employed.

On 26 April 2022, the NEAP for 2022 was approved by the Council of Ministers (Council of Ministers Resolution No 265 of 2022).

In 2022, one of the main tasks of the active labour market policy was the development of the labour force by providing training to acquire new knowledge and skills in response to changes of the economy as a result of both technological and demographic trends, as well as of the COVID-19 crisis.

In 2022, structural mismatches between labour supply and demand remained, with some sectors unaffected by the pandemic continuing to experience shortages of skilled labour. The deficit in the digital skills of the labour force was also deepening. As part of physical distancing measures due to the COVID-19 pandemic, many workers were encouraged or required to work remotely. The New European Skills Agenda, adopted by the European Commissions, also emphasis on increasing skills in the field of digital technologies and creating the necessary conditions for training in these skills. In response to these challenges, in 2022, the organisation of training activities for the acquisition of digital competences (as part of the key competences identified in the European context) was funded and encouraged.

In addition to digital competences, training activities for the acquisition of other key competences, e.g. multilingual competence - Bulgarian language, Mathematical competence and competence in science, technology and engineering, personal, social and learning to learn competence, citizenship competence and entrepreneurship competence were also eligible for funding under NEAP 2022.

In 2022, the main priority was the employability of young people not in employment, education or training (NEETs) and unemployed individuals without vocational qualifications, as well as those who had recently registered as unemployed due to loss of employment because of the COVID-19 effect on economy, to ensure their faster integration to the labour market through up-re-skilling courses.

To meet the needs of the labour market for a workforce with specific qualifications, projects of the nationally representative organisations of employers and employees were financed. The projects provided training for unemployed registered persons for the acquisition of key competencies and professional qualifications in occupations in demand on the labour market after a relevant request by employers. After successful completion of training, at least 35% of these persons were provided with subsidised or non-subsidised employment according to the acquired qualification for a period of not less than 3 months.

More courses for the acquisition of the second and third degree of professional (the degrees of professional qualification depend on the complexity of the acquired professional competences. There are four degrees in total) qualification in professions/specialties with demand on the labour market, as well as training for the acquisition of key competences that contribute to increasing the employability of individuals, were held in the State Enterprise Bulgarian-German Vocational Training Centre. The State Enterprise also held trainings for adult trainers - teachers in vocational high schools, teachers in vocational training centres and mentors in companies. In 2022, the application of an innovative approach to vocational guidance continued, providing individuals with opportunities to test their practical skills in a profession of their choice in order to be able to take informed decisions in selecting their career path/development. It is precisely this practical testing which makes the approach innovative in the Bulgarian context.

Employers continued to be provided with opportunities pursuant to Art. 63 of the Employment Promotion Act (EPA) to apply to the Employment Agency for the organisation of training for the acquisition of professional qualifications for unemployed persons in the professions and specialties which they require/need, and after successful completion of training, provided employment to the trained persons for a period of not less than 6 months corresponding to the acquired qualification. Employers selected both the unemployed persons for participation in training and the training provider.

In 2022, the provision of subsidies for labour remuneration continued, as well as for funds related with insurance contributions by employers. Also subsidised mentor for the organisation of training through work in the form of an internship (measures under Articles 41 and 46 of the EPA) and apprenticeship under the guidance of a mentor (measures under Articles 41a and 55d) for employed/ unemployed persons continued.

In 2022, practical learning was also promoted by involving unemployed persons in dual VET. Financial incentives were provided to employers who had offered a position for on-the-job training organised according to the provisions of the VETA.

In 2022, SMEs had the opportunity to request the inclusion of their employees in training for the acquisition of key competences, and half of the training cost was financed from the State budget. The employers committed to retain those who had successfully completed training in employment, for a period no less than 6 months.

As a result of the implementation of all of programmes and measures under the NEAP for 2022, 10 717 unemployed were trained and 20 537 unemployed people were employed.

In 2022, the implementation of the 'Skills' scheme, under operational programme 'Human Resources Development 2014 - 20', with a total budget of EUR 16.7 million (BGN 33.7 million) entered an advanced through the implementation of the following types of training activiteis for employed and recently hired unemployed persons:

1. training for acquiring or improving professional qualifications, including training in professions and specialties in the field of information and communication technologies;
2. training for acquiring key competences, including digital competences;
3. specific training related to particular occupational needs, including training related to the rapid introduction of information and communication technologies.

In 2022, 96 persons were involved in training activities under the'Skills' project/scheme.

In 2022, under the co-funded scheme 'Youth employment' -with a total budget of EUR 71.7 million (BGN 144.3 million)-incentives to employers for hiring young up to the age of 29 so that they acquire professional experience and practical skills through internship or training, continued. This included working practical learning in a company for a period of 6 months with a mentor designated by the employer. In 2022, 992 persons were included in activities funded by the 'youth employment' scheme.

The National employment action plan (NEAP) for 2023 was adopted by Decision of the Council of Ministers No 621 of 14 September 2023.

The vision of the NEAP for 2023 was to reduce the level of unemployment among vulnerable groups, to increase labour supply by activating economically inactive persons, and to increase the quality of the workforce according to the requirements of jobs, digitalisation, and new technologies.

The main priorities were related to promoting the economic activity of the population, including the youth who do not work and do not study, and all the disadvantaged groups on the labour market, and increasing the quality of the workforce with a focus on acquiring digital skills.

Working with inactive persons, especially young people, was extremely challenging, as it is difficult to make contact with them - they do not study, do not work, are not registered at the labour offices, i.e. are not lsited in registers and subsequently no contact information is available. Given the specificity of this group, and in addition to the traditional employment mediation and information provided by the employment offices, several approaches to work with NEETs were implemented in 2023, such as:

1. Roma mediators contributed to the motivation of inactive persons, including young people of Roma origin. The work of Roma mediators has proven effective over the years given the easier way for them to gain trust and motivate persons of Roma origin to be active;
2. youth mediators appointed in the municipalities with the highest number of inactive young people contributed to the motivation process relying on informal communication channels between young people;
3. case managers assisted persons in need of complex support to overcome obstacles related not only to the employment system, but also to the educational, health and social systems. Employment mediators did motivate persons registered with the labour offices for active behaviour in the labour market by providing knowledge and practical skills for job search;

According to the NEAP for 2023 particular attention was paid to the following groups of unemployed persons:

1. unemployed youth up to 29 years old without work experience in the acquired qualification;
2. unemployed persons over 50 years of age;
3. unemployed with primary and lower education;
4. unemployed without a vocational qualification;
5. unemployed persons with disabilities;
6. persons granted with temporary protection under the Asylum and Refugees Act;

The goals to be achieved because of the implementation of all actions, programmes, projects and measures set out in the NEAP 2023 were the following:

1. the employment rate for the 15-64 age group should reach 71%(it was 70.7% in 2023);
2. the employment rate for the 20-64 age group should reach 76%(it was 76.2% in 2023).
3. the employment rate among older persons (55-64 years) should reach 70%(it was 69.5% in 2023);
4. the unemployment rate should be 4.1% (it was 4.3% in 2023);
5. the unemployment rate for the age group 15-29 should be 7%(it was 8% in 2023).
6. over 9.8 thousand unemployed to be provided with subsidised employment funded by the State Budget(13883 unemployed persons started work through programmes, measures, and schemes in 2023) and over 9.4 thousand unemployed and employed persons to be trained(9 355 were trained in 2023).

The National employment action plan (NEAP) for 2024 was adopted by Decision of the Council of Ministers No 327 of 9 May 2024.

The vision of the NEAP 2024 was to maintain the unemployment rate at low levels, including among disadvantaged groups in the labour market, to increase the labour supply by activating economically inactive individuals, and to enhance the quality of labor resources in line with job requirements and the challenges posed by the green and digital transitions.

The priority areas of the NEAP 2024 were:

1. increasing the quality of the workforce in the context of the digitalization of the economy and the just transition to climate neutrality, while maintaining employment and improving employee adaptability.
2. increasing the labour supply by encouraging the economic activity of the population and improving access to the labour market for workers from abroad, including those of Bulgarian origin.
3. promoting employment and creating opportunities for the integration of disadvantaged groups into the labour market.

In 2024, the priority target groups of the active policy were young people under 29 years of age who are not working or studying, as well as long-term unemployed individuals. Particular attention was given to the following groups of unemployed persons:

1. young unemployed individuals under 29 years of age (inclusive) without previous employment.
2. unemployed persons over 55 years of age;
3. unemployed persons with primary or lower education;
4. unemployed persons without vocational qualifications;
5. unemployed persons with disabilities;
6. persons benefiting from temporary protection, registered with the labour offices.

Unemployed persons should be included in training programmes, projects, and measures under NEAP 2024, according to their individual action plans. These actions should be be tailored to the person's profile and their likelihood of finding employment.

As a result of the implementation of all actions, programmes, projects, and measures outlined in NEAP-2024, the following outcomes were expected:

1. the employment rate for the 15-64 age group should reach 71%;
2. the employment for the 20-64 age group should reach 77%;
3. the employment among older people aged 55-64 should reach 70%;
4. the unemployment rate (based on data from the National Labor Force Survey) should reach 4%;
5. the unemployment rate for the 15-29 age group should reach 7.6%.