Partial qualifications to support the low-qualified and unskilled

Policy development
Practical measure/Initiative
Germany
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Timeline
  • 2017Implementation
  • 2018Implementation
  • 2019Implementation
  • 2020Implementation
  • 2021Implementation
  • 2022Implementation
  • 2023Implementation
  • 2024Implementation
ID number
28122

Background

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

In 2012, the shortage of skilled workers was already noticeable in many regions and sectors and was supposed to exacerbate by the challenges of the coming years. Therefore, it is important to address target groups that have been less in focus so far. Access to the labour market for people without a vocational qualification was usually difficult, yet these people brought with them professional potential that often remained unused.
The number of low-skilled and unskilled adults on the labour market increased partly due to new immigration waves in the last decades. Partial qualifications were developed first by employers to support the upskilling of their unskilled employees alongside work.

Objectives

Goals and objectives of the policy development.

Partial qualifications can be a subsequent path to a qualification for the target group of low-skilled adults (older than 25 years) and thus a perspective for qualified employment.

    Description

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

    Partial qualifications (Teilqualifikationen, TQ) are educational offers, which allow learners to gain vocational qualifications through systematic, successive qualifications based on the dual training regulations. Once the total of the partial qualifications is completed, the learner can take an examination for external candidates. The work on procedures for certifications and the development of training modules is continuing. There are several current projects on TQ, including:

    1. the employer initiative partial qualification One TQ better!, setting up a seal of quality for partial qualification (since 2013: 2 700 participants);
    2. the BMBF-funded TQ project ETAPP (2019-21), aiming to develop nationwide standardised partial qualifications together with the employer associations (BDA and ADBW);
    3. the chambers of industry and commerce (DIHK) initiative, USE OPPORTUNITIES! with partial qualifications towards recognised vocational qualification (2017-22), also aiming to develop nationwide standardised partial qualifications. The project started in October 2017 for 3 years. This initiative aims at developing standardised framework conditions for the qualification of low-skilled and unskilled adults aged over 25. The emphasis is on developing training modules geared to regional needs and certification of partial qualifications to give low-skilled and unskilled adults the opportunity to acquire a complete vocational qualification or at...

    Partial qualifications (Teilqualifikationen, TQ) are educational offers, which allow learners to gain vocational qualifications through systematic, successive qualifications based on the dual training regulations. Once the total of the partial qualifications is completed, the learner can take an examination for external candidates. The work on procedures for certifications and the development of training modules is continuing. There are several current projects on TQ, including:

    1. the employer initiative partial qualification One TQ better!, setting up a seal of quality for partial qualification (since 2013: 2 700 participants);
    2. the BMBF-funded TQ project ETAPP (2019-21), aiming to develop nationwide standardised partial qualifications together with the employer associations (BDA and ADBW);
    3. the chambers of industry and commerce (DIHK) initiative, USE OPPORTUNITIES! with partial qualifications towards recognised vocational qualification (2017-22), also aiming to develop nationwide standardised partial qualifications. The project started in October 2017 for 3 years. This initiative aims at developing standardised framework conditions for the qualification of low-skilled and unskilled adults aged over 25. The emphasis is on developing training modules geared to regional needs and certification of partial qualifications to give low-skilled and unskilled adults the opportunity to acquire a complete vocational qualification or at least an upgradable qualification. The project includes the establishment of a coordination office for the control, quality assurance and monitoring of activities, the development of guidance and support structures, and cooperation with the Federal Ministry of Education and Research (BMBF) for the development of the training modules. The project budget is EUR 583 000 from 2017 to 2019.

    In 2018, 55% of IHKs were active in the context of certification of partial qualifications; a further 22% were planning an offer. Partial qualifications modules for the specialist for metal technology, the industrial electrician and the specialist for courier, express and postal services were developed. The catering modules for restaurant and hotel specialists, chefs and clerks working for the office management were submitted to BIBB for external validation.

    2017
    Implementation
    2018
    Implementation
    2019
    Implementation

    In 2019, the participation of IHKs in the TQ project was expanded almost country-wide. Work was carried out on procedures for the certification of partial qualifications. New training modules were developed, particularly in cooperation with the education institutions of the commercial sector. Partial qualification modules are now offered by most IHKs and in many occupations.

    2020
    Implementation

    In 2020, the USE OPPORTUNITIES! (TQ) project of the chambers (IHKs) was extended until September 2022 with an additional BMBF funding amounting to EUR 375 000.

    Central objectives of the new funding phase:

    1. networking of stakeholders: jointly promoting TQ and further developing it nationwide;
    2. information transfer: support IHKs in promoting quality and national standards;
    3. raising awareness: disseminating best practices and making success factors more visible.

    In 2020, work was done on the development of new partial qualifications and their standardisation. There was also a focus on creating uniform structures, contributing to improving the data situation, and looking at interfaces to other instruments of post-qualification.

    Three videos were published illustrating best practices in three companies enabling their staff without vocational qualification to obtain such a certification through partial qualifications alongside work.

    2021
    Implementation

    Both the DIHK project USE OPPORTUNITIES!​ (TQ) and the ETAPP partner project were continued in 2021 as agreed. In 2021, the DIHK project on partial qualifications published an interactive brochure on the standardisation and implementation of partial qualifications. The brochure presents background and results of the first term of the project, successful implementation of TQs in practice, recommendations and an outlook on the coming project phase.

    The Employers' initiative for partial qualification (AGi TQ) has developed a quality seal that ensures a nationwide standardised offer of TQs by the participating German employers' associations and business-related education institutions. All offers that bear this seal of quality contain a promise of quality - both for the graduates of a TQ and for their (potential) employers and companies in all sectors in Germany.

    2022
    Implementation

    Based on their initiative, USE OPPORTUNITIES!​ with partial qualifications towards recognised vocational qualification, the chambers of industry and commerce (DIHK) developed in 2022 a digital competence assessment for partial qualifications (written part).

    The flyer Five reasons for partial qualifications was updated in January 2022. Since only one in four companies is aware of the funding opportunities offered by the Federal Employment Agency and only one in ten uses these opportunities, it is important to disseminate such information amongst companies, for example by distributing the new flyer or by organising information events.

    On 29 June 2022, the DIHK TQ project organised such an event on partial qualifications and their implementation in practice. The outcomes of the event are presented online. Another example of dissemination is the nationwide TQ Action Day held on 4 May 2022 by the employers' initiative for partial qualification (AGI TQ), with various activities at the participating locations to draw attention to the topic.

    2023
    Implementation

    In 2023, BMBF funded four partial qualifications TQ projects (Chancen Nutzen!, ETAPP, TQHW, BIBB-TQ). By 2023, principles for deriving partial qualifications from the respective dual reference occupation and a procedural proposal were developed as the basis for a nationwide standardisation process for partial qualifications and coordinated between the Chancen Nutzen!, ETAPP and BIBB-TQ projects. Further, flagship regions among the chambers of commerce and industry were identified and analysed. After a final event in June 2023, the projects were relaunched with a new focus on TQ in transformation areas by 2026. The development and implementation of partial qualifications in the skilled trades sector is coordinated by the TQHW project.

    The cooperating TQ initiatives (by employers / chambers / BMBF-BIBB) worked on procedures for certifications (such as digital competence assessment), developed new training modules (for occupations such as electronics technician for industrial engineering, IT specialist, cook, specialist in the hotel business) and disseminated them among companies and employees (using media in various languages and regional action day with events in June 2023 or a new video with best practice of partial qualification in a company).

    In July 2023, the Act to promote initial and further training was passed, supporting particularly SMEs. With the introduction of the qualification allowance in April 2024, the law makes partial qualification and continuing vocational training more accessible. Fixed funding rates make CVET funding more transparent and will be accessible to all companies. Employment agencies pay companies the qualification allowance for their employees, who are threatened with losing their jobs as a result of structural change, but for whom further training can enable them to find future-proof employment in the same company. The allowance will be paid instead of remuneration during training.

    A working group on partial qualifications was adopted by the BIBB Board in December 2023. The working group is drawing a recommendation for the development and application of standardised nationwide partial qualifications for the dual reference occupations, based on the findings of the TQ projects. The compatibility of TQs with other instruments of post-qualification and professional recognition in terms of the design of subsequent educational pathways is being considered.

    2024
    Implementation

    In 2024, TQ projects focused on further developing standardised structural principles and supporting opportunities for partial qualification provided to employees and jobseekers in transformation areas, e.g. with regional action days in June 2024 or with short films explaining TQs and a new video on TQ best practice in a small fishing enterprise.

    In the Magdeburg area, TQ stakeholders have joined forces in 2024 and form a TQ alliance. Such regional TQ alliances consist of chambers of industry and commerce, employment agencies, job centres, training providers and companies that have a common understanding of the implementation of and cooperation on partial qualifications. Another example of TQ provision in 2024: Some chambers of industry and commerce work together with prisons to offer inmates partial qualifications as a training opportunity.

    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.
    • Chambers of industry and commerce (IHKs)
    • Federal Ministry of Education and Research (BMBF)
    • Federal Employment Agency (BA)
    • Confederation of German Employers' Associations (BDA)
    • Association of the Educational Organisations of German Business (ADBW)
    • Central Office for Further Education in Skilled Crafts (ZWH e.V.)

    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

    • Adult learners
    • 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)

    Entities providing VET

    • Companies
    • Small and medium-sized enterprises (SMEs)

    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.

    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 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.

    Using learning-outcome-based approaches and modularisation

    The learning-outcomes-based approaches focus on what a learner is expected to know, to be able to do and understand at the end of a learning process (Cedefop, 2016). Learning outcomes can be defined at the system level as in national qualification frameworks (NQFs), most of which are currently based on learning outcomes. Learning outcomes can be defined in qualification standards, curricula, learning programmes and assessment, although the last one is still uncommon. This thematic sub-category refers to the use of learning outcomes in these contexts and to development and use of modules or units of learning outcomes in VET curricula and programmes.

    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.

    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.

    Developing and applying qualifications smaller/shorter than full

    This thematic sub-category refers to the development and implementation of qualifications  that are smaller than full qualifications (alternative credentials) or are acquired in a shorter learning experience. It includes microcredentials, partial qualifications, units of learning outcomes (ECVET principle), digital badges, etc. These are owned by learners and can be combined or not to get a full qualification.

    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.

    Promotion strategies and campaigns for VET and lifelong learning

    This thematic sub-category refers to initiatives that promote VET and lifelong learning implemented at any level and by any stakeholder. It also covers measures to ensure and broaden access to information about VET to various target groups, including targeted information and promotional campaigns (e.g. for parents, adult learners, vulnerable groups). Among others, it includes national skill competitions and fairs organised to attract learners to VET.

    Permeability between IVET and CVET and general and vocational pathways, academic and professional higher education

    This thematic sub-category refers to ensuring smooth transitions (permeability) of learners within the entire education and training system, horizontally and vertically. It includes measures and policies allowing learners easily or by meeting certain conditions to move from general education programmes to VET and vice versa; to increase qualification levels in their vocation through the possibility of attending vocational programmes at higher levels, including professional degrees in higher education. It also covers opening up learning progression by introducing flexible pathways that are based on the validation and recognition of the outcomes of non-formal and informal learning.

    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

    • Flexibility and progression opportunities at the core of VET
    • VET promoting equality of opportunities

    Osnabrück Declaration

    • Resilience and excellence through quality, inclusive and flexible VET
    • 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

    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.
    DIHK-TQ website (chambers of commerce and industry)
    ETAPP website (employer association)
    TKHW-TQ website (chambers of skilled crafts)
    BIBB-TQ project (Federal institute for VET)
    Employer initiative on partial qualification, AGi TQ
    Website of the Federal Employment Agency on qualification allowance
    Videos on partial qualifications (in 5 languages)

    Country

    Germany

    Type of development

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

    Cedefop, & ReferNet. (2025). Partial qualifications to support the low-qualified and unskilled: Germany. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].

    https://www.cedefop.europa.eu/fi/tools/timeline-vet-policies-europe/search/28122