Timeline
  • 2022Approved/Agreed
  • 2023Implementation
  • 2024Implementation
ID number
43297

Background

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

To improve the qualification levels of the Portuguese population, it is necessary to strengthen the education and training system, which will leverage the productive potential of the economy and contribute to reducing socio-economic and geographic inequalities. The VET Agreement foresees the political design of an integrated and consistent strategy to boost VET offers, valuing the role of vocational training as a mechanism to promote social, professional and academic mobility. With Portugal's lifelong learning as a strategic plan for the next decade, and reinforcing the goal of convergence with Europe, a set of reforms, investments and measures that contribute to increasing the participation of the Portuguese population in initial and continuing training was defined.

Objectives

Goals and objectives of the policy development.
  1. To raise the educational and professional qualification levels of the adult population through an integrated offer of education and training;
  2. To improve adult employability conditions and to certify the skills acquired throughout life.

Description

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

Adult Education and Training courses (EFA) are a flexible training pathway of variable duration, according to the certification level. They enable the development of social, scientific and professional skills needed for the exercise of a professional activity and simultaneously obtain a basic school level certificate (fourth, sixth or ninth grades) or an upper secondary level certification (12th grade).

EFA courses are addressed to adults, employed or unemployed, with low and very low qualifications: without basic education, illiterate or with insufficient literacy levels, or from other groups at risk of exclusion who are 18 years old or over and have an education level between level 1 and level 4 from NQF/EQF.

The curriculum may integrate the following training components:

  1. basic training: organised in areas of key competences according to the two key-competences standards for adult education and training, basic level and upper-secondary level (transversal competences, such as those associated with digital, culture, language and communication, mathematics, science and technology, citizenship and employability);
  2. technological training: organised in short duration training units (25 to 50 hours) and/or competence units and aimed at the acquisition and development of knowledge, skills and attitudes defined in the professional profile and in the standard of competences associated with the respective qualification;
  3. workplace...

Adult Education and Training courses (EFA) are a flexible training pathway of variable duration, according to the certification level. They enable the development of social, scientific and professional skills needed for the exercise of a professional activity and simultaneously obtain a basic school level certificate (fourth, sixth or ninth grades) or an upper secondary level certification (12th grade).

EFA courses are addressed to adults, employed or unemployed, with low and very low qualifications: without basic education, illiterate or with insufficient literacy levels, or from other groups at risk of exclusion who are 18 years old or over and have an education level between level 1 and level 4 from NQF/EQF.

The curriculum may integrate the following training components:

  1. basic training: organised in areas of key competences according to the two key-competences standards for adult education and training, basic level and upper-secondary level (transversal competences, such as those associated with digital, culture, language and communication, mathematics, science and technology, citizenship and employability);
  2. technological training: organised in short duration training units (25 to 50 hours) and/or competence units and aimed at the acquisition and development of knowledge, skills and attitudes defined in the professional profile and in the standard of competences associated with the respective qualification;
  3. workplace training: aimed at the application and consolidation of the knowledge, skills and attitudes acquired, through the implementation of activities in a company.

ANQEP has the responsibility for coordinating the implementation. The providers may be public or private schools of basic and secondary education; vocational training centres of IEFP; other entities such as municipalities, companies or business associations, trade unions and ONG, as long as they are part of the network of training entities of the national qualifications system.

2022
Approved/Agreed

This measure is part of the NIP under the package Inclusion and equal opportunities.

Ordinance No 86/2022 establishes the new regulation on adult education and training courses (EFA). The most significant changes are extending access to differentiated typologies of basic level EFA courses depending on the level of education already held by the adult, allowing them to shorten the qualification path. Another change is the compulsory development of competence units from the key competences area of the new basic level reference tool, Personal, social and learning competences. It also extends access to EFA courses of upper secondary level (level 3 of EQF if it is only school certification, level 4 of EQF if it is school and professional certification) to persons who are 18 years old or more.

A further change is the implementation of protocols with companies or other entities and organisations, which suit the specificity of the training area, as well as the characteristics of the labour market, with a view to developing training in a work setting.

2023
Implementation

During 2023, 9 712 adults were certified in EFA courses, upper secondary, EQF level 3.

2024
Implementation

During 2024, until September, 5 176 new trainees were certified in upper secondary, EQF level 3, EFA courses.

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.
  • Institute for Employment and Vocational Training (IEFP)
  • National Agency for Qualification and Vocational Education and Training (ANQEP)

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

  • Learners with migrant background, including refugees
  • Adult learners
  • Older workers and employees (55 - 64 years old)
  • Unemployed and jobseekers
  • Persons in employment, including those at risk of unemployment
  • 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)

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.

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.

Acquiring key competences

This thematic sub-category refers to acquisition of key competences and basic skills for all, from an early age and throughout their life, including those acquired as part of qualifications and curricula. Key competences include knowledge, skills and attitudes needed by all for personal fulfilment and development, employability and lifelong learning, social inclusion, active citizenship and sustainable awareness. Key competences include literacy; multilingual; science, technology, engineering and mathematical (STEM); digital; personal, social and learning to learn; active citizenship, entrepreneurship, cultural awareness and expression (Council of the European Union, 2018).

Transparency and portability of VET skills and qualifications

European principles and tools, such as EQF, ESCO, ECTS, Europass and ECVET, provide a strong basis for transparency and portability of national and sectoral qualifications across Europe, including the issuing of digital diplomas and certificates.

This thematic category looks at how individuals are supported in transferring, accumulating, and validating skills and competences acquired in formal, non-formal and informal settings – including learning on the job – and in having their learning recognised towards a qualification at any point of their lives. This is only possible if qualifications are transparent and comparable and are part of comprehensive national qualifications frameworks. Availability of qualifications smaller than full and acquirable in shorter periods of time is necessary; some countries have recently worked on developing partial qualifications, microcredentials, etc.

Learners' possibilities of accumulation, validation and recognition of learning outcomes acquired non-formally and informally

This thematic sub-category refers to validation mechanisms allowing individuals to accumulate, transfer, and recognise learning outcomes acquired non-formally and informally, including on-the-job learning, or in another formal system. In case they are not automatically recognised, a learner can have these learning outcomes validated and recognised through a particular process with a view to obtaining a partial or full qualification. This thematic sub-category covers such provisions and mechanisms. 

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.

Providing for individuals' re- and upskilling needs

This thematic sub-category refers to providing the possibility for individuals who are already in the labour market/in employment to reskill and/or acquire higher levels of skills, and to ensuring targeted information resources on the benefits of CVET and lifelong learning. It also covers the availability of CVET programmes adaptable to labour market, sectoral or individual up- and reskilling needs. The sub-category includes working with respective stakeholders to develop digital learning solutions supporting access to CVET opportunities and awarding CVET credentials and certificates.

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 agile in adapting to labour market challenges
  • Flexibility and progression opportunities at the core of VET
  • VET as an attractive choice based on modern and digitalised provision of training and skills

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
CVET

Further reading

Sources for further reading where readers can find more information on policy developments: links to official documents, dedicated websites, project pages. Some sources may only be available in national languages.

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). Adult education and training courses: Portugal. 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/43297