Timeline
  • 2019Implementation
  • 2020Implementation
  • 2021Implementation
  • 2022Completed
ID number
35356

Background

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

Development and expansion of work-based learning (apprenticeships) is regarded as a promising option to diversify VET paths, enhance cooperation between education institutions and employers, increase the responsiveness of education to the needs of the labour market and increase the attractiveness of VET for both young and adult learners.

Objectives

Goals and objectives of the policy development.

To develop a well-functioning and sustainable work-based learning (WBL) system involving employers, and to create flexible and appropriate forms of study for young people and adults for obtaining a qualification.

Description

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

Work-based learning is developed under the Labour market and education cooperation programme.

In Estonia, WBL (apprenticeships) is defined as a form of study where work practice comprises at least two-thirds of the volume of the curriculum. The apprenticeship system was introduced in 2006 (updated in 2014) and the number of WBL learners, fields of study and qualification levels have gradually increased. In 2019, the share of WBL learners was, on average, 8% of all VET students and over 12% of graduates. Most learners study curricula at EQF level 4. While apprenticeship is intended for both adult workers needing upskilling or reskilling and new recruits, it is dominated by adults (average age 39.6 years).

WBL developments include:

  1. development of a systematic approach to work-based learning and piloting of different models of work-based learning tailor-made for enterprises of different sizes and from various business sectors;
  2. training for enterprises and practical guides for implementing apprenticeships;
  3. cooperation with social partners, including local authorities and employers’ and employees’ organisations;
  4. provision of additional study places; 40% of study places have been planned for young people without basic education or for young people and adults with no qualifications;
  5. since 2016, promotional activities have been launched to motivate employers to offer training places, including a conference on apprenticeships for...

Work-based learning is developed under the Labour market and education cooperation programme.

In Estonia, WBL (apprenticeships) is defined as a form of study where work practice comprises at least two-thirds of the volume of the curriculum. The apprenticeship system was introduced in 2006 (updated in 2014) and the number of WBL learners, fields of study and qualification levels have gradually increased. In 2019, the share of WBL learners was, on average, 8% of all VET students and over 12% of graduates. Most learners study curricula at EQF level 4. While apprenticeship is intended for both adult workers needing upskilling or reskilling and new recruits, it is dominated by adults (average age 39.6 years).

WBL developments include:

  1. development of a systematic approach to work-based learning and piloting of different models of work-based learning tailor-made for enterprises of different sizes and from various business sectors;
  2. training for enterprises and practical guides for implementing apprenticeships;
  3. cooperation with social partners, including local authorities and employers’ and employees’ organisations;
  4. provision of additional study places; 40% of study places have been planned for young people without basic education or for young people and adults with no qualifications;
  5. since 2016, promotional activities have been launched to motivate employers to offer training places, including a conference on apprenticeships for employers, a Facebook campaign, a dedicated homepage and WBL promotional videos.

In 2016-17, templates for work practice and apprenticeship agreements were designed through cooperation between the Ministry of Education and Research, employer representatives and the Innove Foundation. The stakeholders started a preliminary analysis of the possibility of extending the apprenticeship scheme to higher education. The piloting took place in September 2017 and 2018.

VET schools have received support to strengthen cooperation between employers and education institutions for developing work-based learning. Cooperation activities supported under the projects include:

  1. training company instructors;
  2. preparing, rolling-out and evaluating work-based learning activities;
  3. piloting and developing new forms/models of work-based learning; introducing short-term internships for VET teachers in enterprises;
  4. involving representatives of business in teaching;
  5. creating additional apprenticeship study places.

In 2018, education-business coordinators were introduced into schools, tasked with finding enterprise partners and coordinating cooperation in apprenticeships training. Two surveys were conducted to analyse problems and best practices about in-company training and to get feedback from WBL graduates. A WBL quality assessment framework was developed.

2019
Implementation

In 2019, a WBL quality assessment process was piloted and additional apprenticeship study places were created. In addition, travel and accommodation allowance was piloted. To promote WBL, Best company for work practice and Best apprentice awards were created.

2020
Implementation

Participation in WBL has increased rapidly. In the academic year 2020/21, WBL students accounted for 9% of all VET students and over 15% of all VET graduates. Over 90% of WBL students are adults (+25). The pilot project to involve young people in WBL, which started in 2018, has not produced the expected results – the share of young people in WBL has remained marginal.

In 2020, WBL quality assessment was pioneered in four VET institutions. Based on the results of the assessment, expert help and counselling has been made available to the institutions.

Due to the COVID-19 pandemic, VET institutions reorganised work-based learning on a case-by-case basis, sometimes postponing or temporarily terminating work practice in enterprises, and sometimes continuing it. Students´ participation in on-site practical training was voluntary and protective equipment and disinfectants were provided.

2021
Implementation

The share of WBL graduates has grown significantly since 2017 and has reached the target set for 2021: 17.2% of all VET graduates. In 2021, the development of the WBL system and the empowerment of professional and employer associations to provide and expand WBL continued, together with the development of quality assurance of WBL. To promote WBL, this form of study was introduced at seminars and on social and print media, and the Best Apprentice and the Best Company for Work Practice were awarded. In 2021, almost 200 new companies joined the WBL system. Since 2015, more than 1 500 companies and institutions have been involved and 7 214 WBL training places have been created.

2022
Completed

In 2022, the development of the WBL system and the empowerment of professional and employer associations to provide and expand WBL continued, together with the development of quality assurance of WBL. Due to the end of programme period, the number of WBL learners decreased: in 2022, 158 students enrolled, and 781 students graduated (cf 2021: 795 students enrolled, 1094 graduated). WBL was actively promoted at seminars and on social and print media, and by granting the Best Apprentice and the Best Company for Work Practice awards. The number of companies introducing WBL was stabilising: in 2022, only 22 new companies joined. The total number of companies and institutions involved WBL was 1526, and after the launch of the new programme the number of learners is expected to increase again.

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 Education and Research
  • Estonian Employers’ Confederation
  • Innove Foundation (until 2020)
  • Education and Youth Board

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 in upper secondary, including apprentices
  • Adult learners
  • Persons in employment, including those at risk of unemployment
  • Low-skilled/qualified persons

Entities providing VET

  • Companies
  • VET providers (all kinds)

Other stakeholders

  • Social partners (employer organisations and trade unions)

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 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.

Diversifying modes of learning: face-to-face, digital and/or blended learning; adaptable/flexible training formats

This thematic sub-category is about the way learners learn, how the learning is delivered to them, and by what means. Programmes become more accessible through a combination of adaptable and flexible formats (e.g. face-to-face, digital and/or blended learning), through digital learning platforms that allow better outreach, especially for vulnerable groups and for learners in geographically remote or rural areas.

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.

Teachers, trainers and school leaders competences

Competent and motivated VET teachers in schools and trainers in companies are crucial to VET becoming innovative and relevant, agile, resilient, flexible, inclusive and lifelong.

This thematic category comprises policies and practices of initial training and continuing professional development approaches in a systemic and systematic manner. It also looks at measures aiming to update (entry) requirements and make teaching and training careers attractive and bring more young and talented individuals and business professionals into teaching and training. Supporting VET educators by equipping them with adequate competences, skills and tools for the green transition and digital teaching and learning are addressed in separate thematic sub-categories.

The measures in this category target teachers and school leaders, company trainers and mentors, adult educators and guidance practitioners.

Systematic approaches to and opportunities for initial and continuous professional development of school leaders, teachers and trainers

This thematic sub-category refers to all kinds of initial and continuing professional development (CPD) for VET educators who work in vocational schools and in companies providing VET. VET educators include teachers and school leaders, trainers and company managers involved in VET, as well as adult educators and guidance practitioners – those who work in school- and work-based settings. The thematic sub-category includes national strategies, training programmes or individual courses to address the learning needs of VET educators and to develop their vocational (technical) skills, and pedagogical (teaching) skills and competences. Such programmes concern state-of-the-art vocational pedagogy, innovative teaching methods, and competences needed to address evolving teaching environments, e.g. teaching in multicultural settings, working with learners at risk of early leaving, etc.

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.

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.

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.
Practical measure/Initiative
Cite as

Cedefop, & ReferNet. (2026). Developing work-based learning / apprenticeships (until 2022): Estonia. In Cedefop, & ReferNet. (2026). Timeline of VET policies in Europe (2025 update) [Online tool].

https://www.cedefop.europa.eu/mt/tools/timeline-vet-policies-europe/search/35356