Timeline
  • 2021Implementation
  • 2022Implementation
  • 2023Implementation
  • 2024Implementation
ID number
43042

Background

A brief overview of the context and rationale of the policy development, explaining why it is implemented or why it is important.

Nearly 45 000 young people under the age of 25 have not completed general (EQF level 4) or vocational upper secondary education (VET programmes with apprenticeship, EQF-levels 3-5), and are not in education or employment (NEETs), according to 2020 data. Young people who do not start educational or job-related activities immediately after compulsory schooling have a harder time gaining a foothold in the education system and the labour market later in life.

Objectives

Goals and objectives of the policy development.

The ambition of the Danish Parliament is that at least 90% of 25-year-olds should complete general or vocational upper secondary education after compulsory schooling (lower secondary programmes, EQF level 2) and the percentage of young NEETs should be reduced by half by 2030. The remaining 10% must be well on their way to completing education later or have a permanent connection to the labour market and therefore be entitled to be assigned a training plan. The goal reflects that society has the ambition that all young people should be able to support themselves.

Preparatory basic education (FGU) is for young people under the age of 25 who have not completed or are not in upper secondary education and who are not in employment. From a broader perspective, the purpose of FGU is to contribute to all young people completing upper secondary education or entering employment before the age of 25.

Description

What/How/Who/For whom/When of the policy development in detail, explaining its activities and annual progress, main actors and target groups.

In 2017, a committee of experts was set up by the Danish parliament to address the declining number of applications to IVET and to rethink pathways that would facilitate the transition from compulsory schooling to IVET.

By 2018, the committee's recommendations were accepted by a majority in parliament, leading to the creation of the Executive Order of the Act on Preparatory Basic Education (FGU). This law provides the framework for education programmes targeted at young people under 25 who have not completed general or vocational upper secondary education. These programmes can last up to two years.

Additionally, the 2019 Act on municipal action for young people under 25 and the Executive Order on guidance for the choice of youth education and profession made municipalities responsible for supporting young people until they have completed a youth education programme or gained stable employment, under the Municipal youth initiative (KUI - Kommunal Ungeindsats).

Under KUI, municipal councils are responsible for making sure that every young person receives guidance on education and career options. For those who do not immediately enter the education system, KUI helps them navigate their way into education or employment. This also applies to young people who have not completed upper secondary or higher education. A personalised training plan is used to gather relevant information and offer tailored support. KUI also accommodates...

In 2017, a committee of experts was set up by the Danish parliament to address the declining number of applications to IVET and to rethink pathways that would facilitate the transition from compulsory schooling to IVET.

By 2018, the committee's recommendations were accepted by a majority in parliament, leading to the creation of the Executive Order of the Act on Preparatory Basic Education (FGU). This law provides the framework for education programmes targeted at young people under 25 who have not completed general or vocational upper secondary education. These programmes can last up to two years.

Additionally, the 2019 Act on municipal action for young people under 25 and the Executive Order on guidance for the choice of youth education and profession made municipalities responsible for supporting young people until they have completed a youth education programme or gained stable employment, under the Municipal youth initiative (KUI - Kommunal Ungeindsats).

Under KUI, municipal councils are responsible for making sure that every young person receives guidance on education and career options. For those who do not immediately enter the education system, KUI helps them navigate their way into education or employment. This also applies to young people who have not completed upper secondary or higher education. A personalised training plan is used to gather relevant information and offer tailored support. KUI also accommodates those with special needs through programs like STU (youth education for young people with special needs).

In 2019, 27 institutions were established nationwide, using a taximeter financing system to reduce barriers to education, such as distance and accessibility issues. State grants are provided for students over 18 (DKK 6.820 for students living independently). The first cohort of approximately 13000 FGU students began their courses in August 2019.

The FGU programme offers three types of training tracks:

  1. PGU (production): Full-time, primarily practical in school-based workshops (two-thirds practical, one-third theoretical);
  2. AGU (general subjects): Full-time, primarily school-based (two-thirds) and little practical content (one-third);
  3. EGU (work-based learning): Full-time, primarily practical, alternating between school (one-third) and workplace-based training (two-thirds).

Since its establishment in 2019, around 24 000 students have enrolled in a Preparatory basic education programme (FGU).

2021
Implementation

In 2020-21, the first full year of teaching was conducted. Until the end of 2021, 8 000 students were still in FGU, 10 000 students completed FGU and 5 000 students dropped out from FGU.

2022
Implementation

As part of an agreement between the government and most parties represented in the Danish parliament, funding of EUR 2.7 million (DKK 20.2 million) was allocated to FGU in 2022, in addition to the special grants of EUR 14.15 million (DKK 105.4 million) that FGU institutions received in 2022. A total of EUR 28.6 million (DKK 215 million) was earmarked for FGU institutions for 2023. It was also decided to set aside EUR 6.1 million (DKK 45.5 million) for funding education for young people in remote areas, thus supporting small VET schools.

2023
Implementation

In November 2023, the government and all parties in the Danish Parliament agreed to strengthen the framework for preparatory basic education and training (FGU) and make it more financially stable. The agreement provided FGU with a more flexible framework for organising teaching, adjusted the financial model between state and municipality, and implemented the reserve set aside in a political agreement in October 2022.

This agreement sets aside approximately EUR 18 million (DKK 135 million) for a permanent financial boost to FGU and EUR 3.69 million (DKK 27.6 million) in 2024 for upgrading workshops, kitchen facilities and teaching materials at FGU.

Also, in 2023, the education minister established a team of experts to gather knowledge about FGU and initiate dialogue in local areas. This initiative was launched to support the implementation of the FGU reform.

2024
Implementation

In 2024, the Danish Parliament voted an Act amending the Preparatory Basic Education and Training programme (FGU). The Act implements the 2023 agreement. Amongst other things, this means that pupils in 9th and 10th grade who are deemed to be amongst the target groups for FGU can attend a bridging course at an FGU school. This gives young people the opportunity to test whether FGU is the right choice before leaving primary school.

In addition, under the municipal youth initiative (KUI) - which has the responsibility to ensure that all young people receive guidance on education and careers - the opportunity to assess whether FGU is the right educational programme for a student while they are still in 9th grade will be given. Currently, this is only possible after a young person has completed primary school.

Also, the Act provided for the simplification of the FGU institutions' administration as a result of the agreement between the government and all parties in the Danish parliament to strengthen FGU. This means that redundant rules must be abolished. Therefore, from 12 August to 9 September 2024, it was possible to submit proposals for which administrative rules in the FGU area can be simplified, abolished or adjusted. Everyone could make such suggestions.

The Act was issued as part of the comprehensive reform of the Danish education system, which sets a coherent plan for the education system.

Bodies responsible

This section lists main bodies that are responsible for the implementation of the policy development or for its specific parts or activities, as indicated in the regulatory acts. The responsibilities are usually explained in its description.
  • Ministry of Children and Education

Target groups

Those who are positively and directly affected by the measures of the policy development; those on the list are specifically defined in the EU VET policy documents. A policy development can be addressed to one or several target groups.

Learners

  • Young people not in employment, education or training (NEETs)
  • Learners with migrant background, including refugees
  • Learners at risk of early leaving or/and early leavers
  • Learners with disabilities
  • Low-skilled/qualified persons
  • Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)

Other

primary school learners

Thematic categories

Thematic categories capture main aspects of the decision-making and operation of national VET and LLL systems. These broad areas represent key elements that all VET and LLL systems have to different extents and in different combinations, and which come into focus depending on the EU and national priorities. Thematic categories are further divided into thematic sub-categories. Based on their description, policy developments can be assigned to one or several thematic categories.

Governance of VET and lifelong learning

This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.

This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.

The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.

Engaging VET stakeholders and strengthening partnerships in VET

This thematic sub-category refers both to formal mechanisms of stakeholder engagement in VET governance and to informal cooperation among stakeholders, which motivate shared responsibility for quality VET. Formal engagement is usually based on legally established institutional procedures that clearly define the role and responsibilities for relevant stakeholders in designing, implementing and improving VET. It also refers to establishing and increasing the degree of autonomy of VET providers for agile and flexible VET provision.

In terms of informal cooperation, the sub-category covers targeted actions by different stakeholders to promote or implement VET. This cooperation often leads to creating sustainable partnerships and making commitments for targeted actions, in line with the national context and regulation, e.g. national alliances for apprenticeships, pacts for youth or partnerships between schools and employers. It can also include initiatives and projects run by the social partners or sectoral organisations or networks of voluntary experts and executives, retired or on sabbatical, to support their peers in the fields of VET and apprenticeships, as part of the EAfA.

Further developing national quality assurance systems

This thematic sub-category refers to further development of national quality assurance (QA) systems for IVET and CVET, for all learning environments (school-based provision and work-based learning, including apprenticeships) and all learning types (digital, face-to-face or blended), delivered by both public and private providers. These systems are underpinned by the EQAVET quality criteria and by indicative descriptors applied both at system and provider levels, as defined in Annex II of the VET Recommendation. The sub-category concerns creating and improving external and self-evaluation of VET providers, and establishing criteria of QA, accreditation of providers and programmes. It also covers the activities of Quality assurance national reference points for VET on implementing and further developing the EQAVET framework, including the implementation of peer reviews at VET system level.

Modernising VET infrastructure

This thematic category looks at how VET schools and companies providing VET are supported to update and upgrade their physical infrastructure for teaching and learning, including digital and green technologies, so that learners in all VET programmes and specialities have access to state-of-the-art equipment and are able to acquire relevant and up-to-date vocational and technical skills and competences. Modernising infrastructure in remote and rural areas increases the inclusiveness of VET and LLL.

Modernising infrastructure for vocational training

This thematic sub-category refers to measures for modernising physical infrastructure, equipment and technology needed to acquire vocational skills in VET schools and institutions that provide CVET or adult learning, including VET school workshops and labs.

Modernising VET offer and delivery

This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.

The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.

This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.

Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.

Reinforcing work-based learning, including apprenticeships

This thematic sub-category covers all developments related to work-based learning (WBL) elements in VET programmes and apprenticeships which continue to be important in the policy agenda. It includes measures to stabilise the offer of apprenticeships, the implementation of the European framework for quality and effective apprenticeships, and using the EU on-demand support services and policy learning initiatives among the Member States. It also covers further expansion of apprenticeships and WBL to continuing VET (CVET), for transition to work and inclusion of vulnerable groups, and for improving citizens’ qualification levels.

Supporting lifelong learning culture and increasing participation

Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.

This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.

This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.

Lifelong guidance

This thematic sub-category refers to providing high-quality lifelong learning and career guidance services, including making full use of Europass and other digital services and resources.

Ensuring equal opportunities and inclusiveness in education and training

This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.

European priorities in VET

EU priorities in VET and LLL are set in the Council Recommendation for VET for sustainable competitiveness, social fairness and resilience, adopted on 24 November 2020 and in the Osnabrück Declaration on VET endorsed on 30 November 2020.

VET Recommendation

  • VET promoting equality of opportunities

Osnabrück Declaration

  • Establishing a new lifelong learning culture - relevance of continuing VET and digitalisation

Subsystem

Part of the vocational education and training and lifelong learning systems the policy development applies to.
IVET

Country

Type of development

Policy developments are divided into three types: strategy/action plan; regulation/legislation; and practical measure/initiative.
Regulation/Legislation
Cite as

Cedefop, & ReferNet. (2025). Political agreement on better pathways to education and jobs (2017): Preparatory Basic Education (FGU): Denmark. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].

https://www.cedefop.europa.eu/en/tools/timeline-vet-policies-europe/search/43042