Timeline
  • 2019Design
  • 2020Design
  • 2021Legislative process
  • 2022Approved/Agreed
  • 2023Implementation
  • 2024Implementation
ID number
29641

Background

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

Many companies in Austria are looking for skilled labour. The results of the Skilled labour radar 2019 (a company survey on the demand for/lack of skilled labour) show that the shortage is likely to continue to worsen in the coming years merely due to demographic developments. Compared to 2018, in 2019 the skilled labour shortage rose in almost all branches of the Austrian economy. It is experienced particularly intensely in construction and tourism as well as in artisanal/technical fields. Broken down by educational attainment, it is particularly difficult to fill vacancies with apprenticeship graduates.

Objectives

Goals and objectives of the policy development.

The objectives of setting up apprenticeship programmes for adults, leading to EQF level 5 are winning new target groups for dual VET programmes and taking action to reduce the skilled labour shortage.

Graduates of general education programmes at upper secondary level and university dropouts are at the centre of attention in this respect.

Description

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

Under the title Apprenticeship NEW for adults, the Federal Economic Chamber has taken the initiative within its education campaign (Bildungsoffensive) to develop a programme for people with a higher education entrance qualification that leads to a dual VET qualification at NQF/EQF level 5. Through this programme the attractiveness of dual VET programmes for these new target groups should be increased. At the same time, the programme should cover knowledge, skills and competences that enable the graduates to carry out a range of more comprehensive and more responsible tasks, providing him with the necessary skills as needed by the labour market.

These new NQF/EQF level 5 qualifications shall also be made accessible to graduates of dual VET programmes. Learners who have completed a dual VET programme at upper secondary level should be able to acquire these new qualifications through a specially defined assessment procedure. This should lead to continuous education pathways (durchgängige Bildungspfade) - from dual VET qualifications at NQF/EQF level 4 to master craftsperson qualifications at NQF/EQF level 6. These new qualifications shall be part of higher VET, an area of education, which is to be established formally in Austria and which is promoted by the Economic Chamber in cooperation with the Ministry of Digital and Economic Affairs.

After its development, the programme leading to these new NQF/EQF level 5 qualifications...

Under the title Apprenticeship NEW for adults, the Federal Economic Chamber has taken the initiative within its education campaign (Bildungsoffensive) to develop a programme for people with a higher education entrance qualification that leads to a dual VET qualification at NQF/EQF level 5. Through this programme the attractiveness of dual VET programmes for these new target groups should be increased. At the same time, the programme should cover knowledge, skills and competences that enable the graduates to carry out a range of more comprehensive and more responsible tasks, providing him with the necessary skills as needed by the labour market.

These new NQF/EQF level 5 qualifications shall also be made accessible to graduates of dual VET programmes. Learners who have completed a dual VET programme at upper secondary level should be able to acquire these new qualifications through a specially defined assessment procedure. This should lead to continuous education pathways (durchgängige Bildungspfade) - from dual VET qualifications at NQF/EQF level 4 to master craftsperson qualifications at NQF/EQF level 6. These new qualifications shall be part of higher VET, an area of education, which is to be established formally in Austria and which is promoted by the Economic Chamber in cooperation with the Ministry of Digital and Economic Affairs.

After its development, the programme leading to these new NQF/EQF level 5 qualifications shall be laid down in a national act. The qualifications will be formal in that they will be governmentally regulated.

2019
Design

In 2019, the Austrian Economic Chamber commissioned ibw with compiling a discussion paper comprising possible models/approaches to establish a programme through which graduates of upper secondary education with a higher education entrance qualification can acquire dual VET qualification at NQF level 5.

At the same time, another initiative of the Economic Chamber in Upper Austria defined a programme called Dual Academy (DA), in which a two- to three-year dual VET programme (formal learning) and a period of at least one year of work experience (informal learning) lead to a qualification (DA professional) at NQF level 5.

2020
Design

In October 2020, the discussion paper was finalised and presented to relevant stakeholders on several occasions. During the year, many stakeholder discussions were held to explore possibilities for the implementation of this initiative. Qualification profiles for NQF 5 qualifications were also developed to bring concrete examples into the discussions.

2021
Legislative process

In 2021, the formal decision to establish a separate Higher VET education segment was taken, which was also the starting signal for the implementation of this initiative. In parallel, and with reference to the Higher VET Act, the legal bases for the establishment of NQF 5 qualifications in the form of dual VET programmes started to be created.

The ministry of economic affairs took over the responsibility for the Dual Academy programme from the Economic Chamber of Upper Austria with the intention to implement it across Austria and to base it on the Higher VET Act to formalise the qualification.

2022
Approved/Agreed

In April 2022, the Dual Academy (DA) qualification was assigned to NQF level 5. Since May 2022, the DA programme has been offered throughout Austria. The programme always starts on 1 May and runs until 15 February of the following year. Trainees can join the programme at any time during this period. A central DA office supports those responsible in the economic chambers in all nine provinces with the successive expansion of the DA.

The Higher VET Act was elaborated during the course of 2022.

2023
Implementation

In 2023, seven apprenticeship occupations were added to the Dual Academy programme.

2024
Implementation

In May 2024, an new cycle of the Dual Academy programme commenced. At the time approximately 750 training companies participated in the programme.

Also, the Higher VET Act came into effect on 1 May 2024, and although the Dual Academy is not explicitly mentioned in the law, in practice it is regarded as an NQF 5 qualification as part of higher VET.

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.
  • Federal Ministry of Digital and Economic Affairs (BMDW) (until 2022)
  • Austrian Federal Economic Chamber (WKO)
  • Federal Ministry of Labour and Economy (BMAW)

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

Entities providing VET

  • Companies

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.

Modernising VET standards, curricula, programmes and training courses

VET standards and curricula define the content and outcomes of learning, most often at national or sectoral levels. VET programmes are based on standards and curricula and refer to specific vocations/occupations. They all need to be regularly reviewed, updated and aligned with the needs of the labour market and society. They need to include a balanced mix of vocational and technical skills corresponding to economic cycles, evolving jobs and working methods, and key competences, providing for resilience, lifelong learning, employability, social inclusion, active citizenship, sustainable awareness and personal development (Council of the European Union, 2020). The thematic sub-category also refers to establishing new VET programmes, reducing their number or discontinuing some. It also includes design of CVET programmes and training courses to adapt to labour market, sectoral or individual up- and re-skilling needs.

Expanding VET programmes to EQF levels 5-8

This thematic sub-category refers to expanding VET to higher levels and developing VET programmes leading to qualifications at EQF levels 5-8.

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.

Comprehensive national qualification frameworks

This thematic sub-category concerns all developments related to national qualification frameworks (NQFs). As in most countries NQFs are in place and referenced to the European qualifications framework (EQF), the thematic sub-category covers updating and expanding the frameworks, developing new qualifications and using NQFs as catalysts for other reforms.

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.

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.

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 as an attractive choice based on modern and digitalised provision of training and skills

Subsystem

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

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. (2025). Apprenticeships for adults leading to NQF level 5: Austria. 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/29641