- 2018Approved/Agreed
- 2019Implementation
- 2020Completed
Background
Law 18/2014, of 15 October, sets new wording for Article 2 of Law 56/2003, of 16 December. It lays down, among other objectives of employment policy, that of providing individualised services to the targeted population, to facilitate their incorporation, permanence and progress in the labour market, and for companies to contribute to the improvement of their competitiveness, promoting the correction of territorial and social imbalances. Article 9 of the Law details the functions of the national employment system, which includes setting up and updating a Common portfolio of services of the national employment system to be provided by public employment services and guaranteeing access, on equal terms throughout the State, to a public and free employment service. The Common portfolio is regulated in article 19 ter. (Royal Decree 7/2015, of January 16, which approves the Common portfolio of services of the national employment system).
Objectives
The purpose of the Common portfolio of services is to help workers find a job suitable to their characteristics and help employers to hire workers appropriate to their needs. It also will contribute to supporting professional and geographic mobility in order to correct the mismatches between employment supply and demand, collect and analyse the situation and evolution of the labour market, link with the unemployment protection system subject to the commitment of activity, and coordinate with the remaining active employment policies.
Description
Reference guides developing the common employment services portfolio were approved and published in 2018. These reference guides, developed jointly with the regions, comprise protocols for:
- career guidance;
- qualification and training for employment;
- self-employment and entrepreneurship;
- guidance and labour intermediation.
The qualification and training for employment protocol aims to promote training for up-skilling and reskilling and to facilitate transition to employment, in coordination with career guidance services, particularly through:
- programming and managing training/employment schemes, such as 'training and apprenticeship contracts;
- programming of the training offer included in the Catalogue of training specialities managed by the public employment service (SEPE), in collaboration with training providers listed in the integrated registry of training providers managed by the labour ministry;
- enabling accreditation of work experience or non-formal learning and issuing diplomas and attendance certificates;
- managing European instruments for learner mobility;
- promoting and disseminating the training offer of the vocational training system for employment through different media.
The common employment service portfolio cover the public employment services' target population (employees, the unemployed and companies).
Reference guides developing the common employment services portfolio were approved and published in 2018. These reference guides, developed jointly with the regions, comprise protocols for:
- career guidance;
- qualification and training for employment;
- self-employment and entrepreneurship;
- guidance and labour intermediation.
The qualification and training for employment protocol aims to promote training for up-skilling and reskilling and to facilitate transition to employment, in coordination with career guidance services, particularly through:
- programming and managing training/employment schemes, such as 'training and apprenticeship contracts;
- programming of the training offer included in the Catalogue of training specialities managed by the public employment service (SEPE), in collaboration with training providers listed in the integrated registry of training providers managed by the labour ministry;
- enabling accreditation of work experience or non-formal learning and issuing diplomas and attendance certificates;
- managing European instruments for learner mobility;
- promoting and disseminating the training offer of the vocational training system for employment through different media.
The common employment service portfolio cover the public employment services' target population (employees, the unemployed and companies).
The progress made in the implementation of the common employment services portfolio of the national employment system and its updating / modification needs have been monitored, with a conference held in April 2019. The main conclusions were that there was no need for a legislative modification and that the entrepreneurship service showed lower implementation compared to the rest.
This monitoring has been complemented by working groups on public employment services (SISPE) information systems, with a view to coordination and common alignment for the traceability of the system, taking into account what is indicated by the services and their protocols.
The common Employment services portfolio and its associated protocols are in place and it is not foreseen to develop new ones.
During the year 2020, the health situation generated by the pandemic has meant that many of the activities included in the Common Portfolio of Services of the national employment system had to be carried out in a non-face-to-face mode. This circumstance has meant an important effort for the Public Employment Services, both at a technological and organisational level.
Bodies responsible
- Ministry of Labour and Social Economy
- State Public Employment Service (SEPE)
- Autonomous Communities (CC.AA.)
Target groups
Learners
- Unemployed and jobseekers
- Persons in employment, including those at risk of unemployment
Education professionals
- Guidance practitioners
Entities providing VET
- Companies
- VET providers (all kinds)
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.
This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
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.
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.
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.
This thematic sub-category refers to all kinds of incentives that encourage learners to take part in VET and lifelong learning; VET providers to improve, broaden and update their offer; companies to provide places for apprenticeship and work-based learning, and to stimulate and support learning of their employees. It also includes measures addressing specific challenges of small and medium-sized enterprises (SMEs) willing to create work-based learning opportunities in different sectors. Incentives can be financial (e.g. grants, allowances, tax incentives, levy/grant mechanisms, vouchers, training credits, individual learning accounts) and non-financial (e.g. information/advice on funding opportunities, technical support, mentoring).
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.
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.
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.
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). The common employment services portfolio and protocols: Spain. 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/28690