Introducing individual learning accounts (ILAs)

Policy development
Strategy/Action plan
Bulgaria
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Timeline
  • 2023Design
  • 2024Design
ID number
46189

Background

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

Bulgaria is facing a relatively low participation rate in adult learning, which poses a significant challenge in the labour market that is increasingly shaped by digital transformation and the green economy. In 2022, the proportion of 25-64-year-olds who participated in adult education and training fell to 1.7% and is significantly below the EU average (11.9%). Furthermore, in 2021, only 31% of the Bulgarian population reported having at least basic digital skills, which is well below the EU average of 54%. According to the Council Recommendation on individual learning accounts (ILAs), member states are encouraged to develop flexible systems that allow individuals to accumulate training entitlements and use them as needed throughout their careers.

Bulgaria has recognised that the current adult education and training system is insufficient to meet the needs of the rapidly evolving job market. Many sectors, particularly those related to digital and green skills, are experiencing labour shortages, and existing training programmes do not adequately address these gaps.

Objectives

Goals and objectives of the policy development.

The key goals and objectives for introducing ILAs in Bulgaria are:

  1. to increase adult participation in learning;
  2. to reduce skills shortages;
  3. to establish a sustainable funding mechanism supporting lifelong learning;
  4. to pilot sector-specific programmes as small-scale pilots, initially targeting specific sectors, with the goal of expanding to other sectors and occupations;
  5. to establish a governance structure with the participation from ministries, social partners, and sectoral skills councils (SSCs) to oversee the development and implementation of ILAs.

Description

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

To facilitate the introduction of individual learning accounts (ILAs) in Bulgaria, the Bulgarian Industrial Capital Association (BICA), developed two pilot models for ILAs.

According to the first model employers may create individual accounts for their employees. These accounts record the qualifications and skills gained through training. It encourages' enterprises to invest in their employees by contributing to these accounts.

The second model envisaged sectoral funds or one state fund to finance training that addresses broader labour market needs rather than focusing on specific companies. These funds aim to provide training opportunities for various groups, including unemployed individuals, marginalised communities, and employees in declining sectors. The financing for these sectoral funds is suggested to come from multiple sources, including enterprises, public funds/ESF+, employee contributions, and external donations. The model supports collective skill development for sectors experiencing labour shortages or requiring a specific skillset for future market needs. The second model is relevant to the ILA Labs, and caters for the development of a comprehensive system for the introduction of individual training accounts at national level through the creation of sectoral funds for qualifications.

As part of the ILAs mutual learning programme of the European Commission a roadmap for ILAs in Bulgaria was developed. It was...

To facilitate the introduction of individual learning accounts (ILAs) in Bulgaria, the Bulgarian Industrial Capital Association (BICA), developed two pilot models for ILAs.

According to the first model employers may create individual accounts for their employees. These accounts record the qualifications and skills gained through training. It encourages' enterprises to invest in their employees by contributing to these accounts.

The second model envisaged sectoral funds or one state fund to finance training that addresses broader labour market needs rather than focusing on specific companies. These funds aim to provide training opportunities for various groups, including unemployed individuals, marginalised communities, and employees in declining sectors. The financing for these sectoral funds is suggested to come from multiple sources, including enterprises, public funds/ESF+, employee contributions, and external donations. The model supports collective skill development for sectors experiencing labour shortages or requiring a specific skillset for future market needs. The second model is relevant to the ILA Labs, and caters for the development of a comprehensive system for the introduction of individual training accounts at national level through the creation of sectoral funds for qualifications.

As part of the ILAs mutual learning programme of the European Commission a roadmap for ILAs in Bulgaria was developed. It was elaborated to provide a structured framework for implementing ILAs in the country, addressing key challenges such as low participation in lifelong learning, skills shortages, and the need for reskilling and upskilling. The roadmap recommends specific actions that include:

  1. developing a governance structure;
  2. launching pilot training programmes in key sectors;
  3. creating a national digital portal for learning accounts;
  4. establishing a public training registry.

ILAs can play a transformative role by providing accessible, tailored learning options to target groups such as young people, individuals with disabilities, adults, older workers, unemployed persons, and those at risk of exclusion, such as minorities or low-skilled workers. By enabling flexible and continuous access to education and training, ILAs can help address the gaps in employability and skill development that these groups may face, thereby supporting a more inclusive and adaptable workforce.

The successful implementation of ILAs in Bulgaria requires the involvement of a wide range of stakeholders, including government institutions, social partners, education providers, and employers. The key actors include the Ministry of Labour and Social Policy, the Ministry of Education and Science, the seven nationally recognised representative organisations of employers and workers in Bulgaria and VET providers. The roadmap emphasises the importance of collaboration between stakeholders to ensure that the ILA system meets the needs of both individuals and the labour market. Sectoral skills councils (SSCs) are expected to play a supportive role in aligning VET programmes with the demands of specific industries. The SSCs are tasked with reviewing and approving educational content to ensure that it is relevant to the needs of the labour market.

The primary beneficiaries are employed and unemployed adults in need of skilling, reskilling, and upskilling, including NEETs and people from vulnerable backgrounds particularly in sectors facing skills shortages.

The roadmap includes a SWOT analysis with challenges and opportunities. As major challenges in implementing ILAs, the absence of a regulatory framework and the lack of a dedicated funding mechanism are identified. As significant opportunities the past experiences with training voucher schemes are identified., as these provided valuable lessons that can be applied to the ILA initiative. Also, one of the main opportunities for Bulgaria is the potential to leverage European Social Fund Plus (ESF+) funding to support the initial pilot programmes. This funding could be used to create a system that is scalable and sustainable in the long term. Additionally, the creation of SSCs offers the potential to develop sector-specific training funds, which could be used to support the ILA system.

The roadmap outlines activities from 2023 to 2026, with pilot programmes expected to be launched in 2024 and full implementation of the ILA system following the evaluation of these pilots.

The attempt to build a broader national consensus on the need for ILAs, has already been initiated through discussions with the Economic and Social Council (ESC). In this regard, the Economic and Social Council of Bulgaria tasked the social partners with developing an opinion on the adoption of the European recommendation for the introduction of ILAs, which was unanimously approved in May 2023 by representatives of the state, social partners, and civil society organizations. The ESC exemplifies in its opinion policy areas closely aligned with the Council Recommendation on ILAs. The ESC is supporting a coordinated, inclusive, and adaptable approach to VET and lifelong learning and stresses the importance of effective governance and coordination between VET and other policy areas to ensure a streamlined approach to lifelong learning. It also points out the need to optimise funding, engage stakeholders and develop robust skills intelligence systems. These actions support ILAs by creating a strong foundation for sustainable VET policies that are responsive to labour market demands. Diversifying learning modes (face-to-face, digital, blended) and providing adaptable training formats align with the Council's emphasis on flexible, accessible learning pathways. By modernising VET provision, ILAs can cater to a wider audience and adapt to different learning needs and preferences. Acquiring key competences and reinforcing work-based learning, including apprenticeships, ensures that the skills gained are practical, relevant, and directly applicable in the workplace. Promotion strategies and campaigns are crucial to raising awareness about the importance of lifelong learning, as recommended by the Council. Financial and non-financial incentives, alongside opportunities for re- and upskilling, are essential for encouraging participation across diverse groups. Providing lifelong guidance and ensuring inclusiveness in education and training aligns with the Recommendation's goal of making learning accessible to all, regardless of background or socio-economic status.

2023
Design

In 2023, the foundations for the implementation of the ILAs in Bulgaria were set through meetings and documents drafted by the social partners. This 'material' was discussed with government representatives, but no concrete actions were taken by the government.

2024
Design

With Order No RD-02-18 dated 2 February 2024, the labour minister established an interdepartmental working group (IWG) tasked with developing a draft national approach for the introduction of ILAs in the Republic of Bulgaria by 31 December 2024. Each member of the IWG was required to contribute to the drafting of specific texts in accordance with the functions and competencies of the institution or organisation they represent. The IWG is composed of approximately 30 representatives from various ministries, agencies, and social partners.

During the reporting period, three meetings of the IWG were held. At the first meeting, the IWG approved the already prepared roadmap, and the group began developing a concept for the implementation of ILAs. This concept was based on the second model created by the social partner BICA in 2023 and the approved roadmap. By September 2024, feedback was gathered from the majority of IWG members. This feedback, which is currently being summarised, was discussed during the last meeting of the IWG, resulting in an updated and refined concept for the introduction of ILAs.

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 Labour and Social Policy(MLSP)
  • National employer organisations
  • National employee organisations

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

  • 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)

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.

Coordinating VET and other policies

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.

Optimising VET funding

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.

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.

Establishing and developing skills intelligence systems

High-quality and timely skills intelligence is a powerful policy tool, helping improve economic competitiveness and fostering social progress and equality through the provision of targeted skills training to all citizens (Cedefop, 2020). Skills intelligence is the outcome of an expert-driven process of identifying, analysing, synthesising and presenting quantitative and/or qualitative skills and labour market information. Skills intelligence draws on data from multiple sources, such as graduate tracking systems, skills anticipation mechanisms, including at sectoral and regional levels. Actions related to establishing and developing such systems fall under this thematic 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.

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.

Acquiring key competences

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).

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.

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.

Financial and non-financial incentives to learners, providers and companies

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).

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.

Lifelong guidance

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.

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.

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.
Economic and Social Council (ESC). (2023). Opinion on the necessary amendments and supplements to the VET Act. Possible approaches for the national application of the Council Recommendation on individual learning accounts (ILAs) and micro-credentials

Country

Bulgaria

Type of development

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

Cedefop, & ReferNet. (2025). Introducing individual learning accounts (ILAs): 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/46189