- 2021Implementation
- 2022Implementation
- 2023Implementation
- 2024Implementation
Background
The strategy was developed on the basis of the results achieved under the previous updated Employment strategy 2013-20 and the experience Bulgaria has accumulated as a full member of the EU. The economic and social challenges of recent years, as well as the impact of the COVID-19 pandemic on the labour market, have also been taken into account. The priorities in the strategy are also linked to Bulgaria's commitments in employment, arising from the implementation of the Action Plan of the European Pillar of Social Rights.
Objectives
The objectives and priorities of the strategy have been formulated on the basis of a SWOT analysis of the current state of the labour market. One of the opportunities outlined in the analysis is related to the provision of adequate education and training in the labour market, as follows:
- changes in the admission plan for education for better adaptation to labour demand;
- advanced training and training at the request of employers for the unemployed;
- training for employees;
- providing the necessary funds from the State budget;
- training of the employed and unemployed for acquiring skills required by employers, including advanced training;
- mass training of the population for the acquisition of digital skills.
The main priorities of the Employment strategy 2021-30 have been set for the short- term, until 2024, and for the long-term, until 2030. As far as the short-term priorities are concerned, the recovery of the economy and the return to the employment levels of 2019 are in the foreground, along with measures aimed at improving the quality of the workforce. The focus is on the acquisition of digital skills and the preparedness for new jobs in restructuring the sectors affected by the pandemic.
The measures aim to:
- improve the quality of the workforce by taking into account job requirements (based on labour demand forecasts for certain skills, digitalisation and new technologies);
- assist inactive and unemployed people from disadvantaged groups (long-term unemployed, people with disabilities, unemployed over 55, early retirees) to improve their employability prospects (and ensure their sustainable employability);
- support entrepreneurship;
- increase income and pursue a policy of benefits for stimulating employment and active behaviour in the labour market;
- manage workers' mobility and migration processes effectively;
- ensure equal opportunities for access to employment by improving employees' skills;
- ensure gender equality in the labour market and create conditions for reconciling personal and professional life.
Description
Investment in education, training and lifelong skills development brings benefits both to individuals and to society as a whole. Education is the engine for job creation, economic growth, improved social conditions and prosperity.
The strategy focuses on the modernisation of the adult education system by creating opportunities for the use of digital technologies, as well as by increasing the digital skills and competences of the workforce for full participation in digital education and the transformation of socio-economic life.
It foresees the creation of a uniform digital platform for online adult education (including the unemployed and employed), which will provide online training opportunities for the acquisition of professional qualifications and key competences. The platform will be adapted to the needs of people with disabilities. Moreover, the development of specialised e-learning programmes and learning content adapted to the needs of people with a low level of education and low digital skills, including individuals of Roma origin and the elderly, is foreseen. A network of digital clubs with modern computer equipment and internet access, where people from disadvantaged groups can participate in online training assisted by mentors, is planned throughout the country.
To increase the level of basic/intermediate digital skills of the population, uniform training programmes and tools for assessing digital skills and...
Investment in education, training and lifelong skills development brings benefits both to individuals and to society as a whole. Education is the engine for job creation, economic growth, improved social conditions and prosperity.
The strategy focuses on the modernisation of the adult education system by creating opportunities for the use of digital technologies, as well as by increasing the digital skills and competences of the workforce for full participation in digital education and the transformation of socio-economic life.
It foresees the creation of a uniform digital platform for online adult education (including the unemployed and employed), which will provide online training opportunities for the acquisition of professional qualifications and key competences. The platform will be adapted to the needs of people with disabilities. Moreover, the development of specialised e-learning programmes and learning content adapted to the needs of people with a low level of education and low digital skills, including individuals of Roma origin and the elderly, is foreseen. A network of digital clubs with modern computer equipment and internet access, where people from disadvantaged groups can participate in online training assisted by mentors, is planned throughout the country.
To increase the level of basic/intermediate digital skills of the population, uniform training programmes and tools for assessing digital skills and competences by levels and areas of digital competence will be developed, in accordance with the European digital competence DigComp 2.1. Opportunities for the validation/recognition of prior learning of basic digital skills and competences are planned. Vulnerable groups and the elderly will have easier access to training so that they can better access electronic public services.
The strategy foresees actions related to occupational standards. Scientific research and analysis of the sectors will be conducted to identify the digital skills needed for the successful implementation of professions and job posts. Key job posts will be accompanied by specific profiles of digital competences.
The European DigComp competences framework and the national specificities will form the basis for the development of sectoral frameworks of digital competences. Tools for assessing and validating specific digital competences and tools for designing training programmes on specific digital competences are planned for development.
Another area that the strategy addresses is the growing mismatch between the supply and demand of skilled labour. In this respect, it is of great importance to improve the skills of the workforce, as well as acquiring new work specific skills, that will allow the rapid and successful adaptation of employees to transforming jobs.
A methodical approach is foreseen in which the needs of employers (for qualifications and skills that their employees must have) will first be studied and analysed to outline trends in labour market demand and plan activities to adequately respond to the needs of enterprises.
The strategy aims to prevent staff shortages in sought after professions. A mechanism for external evaluation of the results of publicly funded training programmes is foreseen (through the development of the services for adult training). The annual updating of the National classification of occupations and positions 2011 will continue to reflect, in a timely manner, the dynamics of the professional and job structure in the country.
More training and qualification opportunities will be offered to people with a low level of education, or to those without any education and qualification, to integrate them into the labour market and prevent long-term unemployment, social exclusion and poverty. A wide range of training opportunities, such as training for acquiring a profession, training in key competences, on-the-job training, internships, apprenticeships and training through work (dual system) is foreseen. The participation in training of people with a low level of education, or without any education and qualification, is to be encouraged through complex individualised training for acquiring basic skills in the Bulgarian language, mathematics, technology and natural sciences, as well as for acquiring basic practical skills in a chosen profession, which will enable them to enter the labour market. An integrated approach will continue to be applied, including the provision of training and subsequent involvement in internships and employment.
In accordance with the European and global goals in education and training, and taking into account the dynamically changing needs of the labour market, the implementation of pan-European instruments for measuring the quality of VET, through the European VET quality framework (EQAVET), is also foreseen by the strategy. State education standards and curricula will be updated to improve the quality of education and ensure the compliance of the acquired skills with the needs for successful professional realisation and active civic behaviour. Improving the quality of education requires a reform of the adult education system in close cooperation with the social partners. Elements of the reform include:
- updating the existing model for monitoring and controlling the quality of vocational training provided by vocational training centres;
- improving communication between the National Agency for Vocational Education and Training (NAVET), the institutions offering vocational training, and other stakeholders(e.g. employers, ministries, the Employment Agency, the National Revenue Agency).
A key element of the reform is the development and implementation of a new model for monitoring the competences acquired by graduates through external independent evaluation of learning outcomes with the active participation of employers.
On 15 July 2021, the Employment strategy of the Republic of Bulgaria 2021-30 was approved by the Council of Ministers (Council of Ministers Decree No 515 of 2021).
On 2 June 2022, the Employment strategy of the Republic of Bulgaria 2021-30 was updated by the Council of Ministers (Council of Ministers Decree No 368 of 2022).
The only change was an update of the national target of the employment rate (for the age range 20-64) of 79%.
In order to achieve the long-term objective of the employment strategy to increase the level of employment in conditions of unfavourable demographic situation and labour force shortages, specific measures were implemented to activate economically inactive and unemployed persons. To achieve the goal of reducing the share of young people who are not employed and do not participate in education and training (NEETs), Roma and youth mediators continued to provide specialised support through the labour offices. To cover more economically inactive persons, the provisions of the Employment Promotion Act were applied for the exchange of information between the institutions responsible for the administration of data related to economically inactive persons with a view to their identification and reaching. The activities to promote active behaviour in the labour market, financed with funds from the state budget for active labour market policy, were also supported by the implementation of projects financed under the Human resources development programme 2021-27.
In 2023, the regulatory framework for training by issuing e-vouchers was prepared and adopted - PMS 48/04.04.2023. E-voucher training was launched, starting with digital skills training. Employed, unemployed, and inactive persons had the right to digital skills training. Digital skills training can be implemented online or in-person. Opportunities are provided to directly sit for an exam and certify digital skills acquired through informal and/or non-formal learning. Testing and certification of digital skills were carried out online by the Unified Certification Centre for Digital Competences of the Centre for Human Resources Development and Regional Initiatives under the auspice of the Ministry of Labour and Social Policy(MLSP).
The development of a concept for the introduction of Individual Learning Accounts(ILAs) as a new tool for financing at national level adult training courses began. At the beginning of 2023, the Council of Ministers, with its Decision No 91 of 1 February 2023 and Decision No 120 of 15 February 2023, mandated the Economic and Social Council (ESC) of Bulgaria with the task to prepare an opinion with specific proposals for the introduction of micro-credentials and individual learning accounts in Bulgaria, as well as to point out necessary changes in the vocational education and training (VET) Act (VETA). At its plenary session held on 15 May 2023, the ESC adopted an opinion which gave concrete directions for future steps. At the same time, Bulgaria was included in an EC project for the development of a road map for the introduction of individual learning accounts.
The National Employment Strategy of Bulgaria aims to create a well-skilled and adaptive workforce, reduce unemployment, and foster inclusive growth and thus Individual learning accounts (ILAs) are mechanisms designed to empower individuals by providing them with resources to pursue education, training, or skill development courses. They directly contribute to these strategic goals by ensuring access to lifelong learning opportunities.
A significant issue in Bulgaria's labour market is the mismatch between the skills offered by workers and the skills demanded by employers.
ILAs will allow individuals to choose training programmes tailored to labour market needs, helping to close this gap and align workforce capabilities with industry requirements.
Bulgaria's employment strategy includes preparing the workforce for digitalisation and the green economy.
ILAs can be used to fund training in digital skills, renewable energy, and sustainable practices, equipping workers for future-oriented sectors.
In 2024, the following actions were implemented to enhance workforce competitiveness:
- training programmes for the acquisition of digital skills, vocational qualifications, and key competences.
- dual training, internships, and apprenticeships for individuals with basic or lower education.
- lifelong learning was promoted through training with vouchers and the development of a national implementation model for Individual learning accounts(ILAs).
Also in 2024, the following actions were taken to increase employment and reduce unemployment:
- employment programmes targeting vulnerable groups: youth under 29, people with disabilities, individuals over 55, and the long-term unemployed.
- regional programmes were created to reduce disparities in employment and support economically disadvantaged regions.
- entrepreneurship was supported through funding and consultations.
In 2024, the action related to the implementation of activities related to the evaluation and monitoring of the employment strategy was the launching of the Addressing the challenges of the labour market project (under the Human resources development programme 2021-27.This project focuses on assessing the effectiveness of active labour market policies, developing data-driven methodologies and conducting of labour market forecasting, and undertaking skillset analyses in regions impacted by the low-carbon transition, including Stara Zagora, Kyustendil, and Pernik.
Bodies responsible
- Ministry of Labour and Social Policy(MLSP)
Target groups
Learners
- Young people (15-29 years old)
- Young people not in employment, education or training (NEETs)
- Learners with migrant background, including refugees
- Learners with disabilities
- 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)
Entities providing VET
- Companies
- Small and medium-sized enterprises (SMEs)
- VET providers (all kinds)
Other stakeholders
- Social partners (employer organisations and trade unions)
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.
This thematic sub-category refers to the ways VET is funded at the system level. Policies include optimisation of VET provider funding that allows them to adapt their offer to changing skill needs, green and digital transitions, the social agenda and economic cycles, e.g. increasing the funding for VET or for specific programmes. They can also concern changing the mechanism of how the funding is allocated to VET schools (per capita vs based on achievement or other criteria). Using EU funds and financial instruments for development of VET and skills also falls into this sub-category.
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.
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.
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.
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.
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).
This thematic sub-category refers to updating VET curricula and programmes to incorporate skills related and needed for the digital transition, including sector- and occupation-specific ones identified in cooperation with stakeholders.
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.
This thematic sub-category refers to the application of EU transparency tools that allow recognition of qualifications among EU Member States (EQF, Europass, ESCO, ECTS). Among others, it includes linking national VET platforms and databases to Europass in accordance with the Europass Decision and EQF Recommendation and the use of the ECVET principles and tools, such as memoranda of understanding or learning agreements applied in mobility actions. The sub-category also covers measures on recognition of foreign/third-country qualifications for specific target groups, e.g. migrants or highly skilled professionals.
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.
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 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
VET Recommendation
- VET agile in adapting to labour market challenges
Osnabrück Declaration
- Establishing a new lifelong learning culture - relevance of continuing VET and digitalisation
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). Employment strategy of the Republic of Bulgaria 2021-30: Bulgaria. 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/41904