EN EN

EUROPEAN COMMISSION

Brussels, 10.7.2026 COM(2026) 363 final

REPORT FROM THE COMMISSION TO THE COUNCIL

on the implementation of the Council Recommendation on vocational education and

training (VET) for sustainable competitiveness, social fairness and resilience

{SWD(2026) 181 final}

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1. Introduction - purpose, scope and methodology of the report

Cooperation in vocational education and training (VET) at the European level, in line

with Articles 165 and 166 TFEU, has played an important role over the years. The 2020

Council Recommendation on vocational education and training for sustainable

competitiveness, social fairness and resilience (hereafter: “2020 Council Recommendation on

VET”) set out a vision for VET with relevant long-term reform principles. The Osnabrück

Declaration, adopted in November 2020 as part of the Copenhagen process, complemented

the 2020 Council Recommendation on VET with more concrete, shorter-term actions both at

national and EU levels. It specifically aimed to modernise VET by ensuring its rapid

adaptation to labour market needs, enhancing the flexibility of learning pathways, and

preparing learners for the green and digital transitions. The 2020 Council Recommendation on

VET, together with the Osnabrück Declaration, set the EU VET policy framework for the

2020-2025 period, in combination with other strategic documents and policies, such as the

European Pillar of Social Rights action plan, the European skills agenda, the Digital Decade

and the European Education Area (EEA).

The 2020 Council Recommendation on VET covers the following priorities:

• VET being agile in adapting to labour market changes,

• Flexibility and progression opportunities being at the core of VET,

• VET being a driver for innovation and growth that prepares learners for digital and

green transition, as well as occupations in high demand,

• VET being an attractive choice based on modern and digitalised provision of training

and skills,

• VET promoting equality of opportunities,

• VET being underpinned by a culture of quality assurance.

The priorities of the 2020 Council Recommendation on VET fit into a broader policy

architecture linking VET to employment, economic development and competitiveness,

often with a sectoral approach. The 2026 annual single market and competitiveness report1

explicitly highlights that fostering skills development, including through vocational training,

is essential to address labour shortages. Since 2020, labour and skills shortages have

intensified in sectors linked to vocational training programmes such as construction, transport,

healthcare, manufacturing, clean technologies and defence, making VET even more important

in delivering the skills needed in the labour market. Across sectors, challenges related to skills

are one of the barriers to growth identified by SMEs, and VET is key to delivering the skills

that European companies need to thrive.

1 European Commission (2026) The 2026 Annual Single Market and Competitiveness Report. Available at:

https://single-market-economy.ec.europa.eu/publications/2026-annual-single-market-and-competitiveness-

report_en

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According to the EURES 2024 report on labour shortages and surpluses, nine out of ten of the

main shortage occupations in the EU2 require vocational qualifications. The importance of

VET is therefore illustrated in several EU policies. VET programmes and apprenticeships are

central to sectoral skills strategies under the Pact for Skills for fields such as manufacturing,

construction, tourism, sustainable energy and the digital sectors3. Similarly, the European

Alliance for Apprenticeships (EAfA) organises activities to support economic sectors (e.g.

construction, tourism and hospitality, care/long-term care) in promoting and strengthening

sectoral apprenticeship programmes.

The 2025 Union of Skills communication4 and the 2026 Council Recommendation on human

capital in the European Union5 highlight that VET systems that are closely linked to labour

market needs are key to addressing skills mismatches. The 2025 Clean Industrial Deal6 refers

to the need to address skills shortages in key sectors to support the transition to a low-carbon

economy. The European strategy for housing construction under the Housing package7, under

its Action 7, aims to increase the availability of skilled workforce in construction, including

by supporting partnerships between universities, VET providers, businesses, social partners

and applied research institutes. The 2025 New European Bauhaus communication also

announced support for apprenticeships and vocational training targeting young people8. The

automotive, steel and metals, and chemicals action plans also highlight the importance of

skills and the social dimension for securing the competitiveness of these sectors. VET also

contributes to the objectives of the Net-Zero Industry Act while the Net-Zero Industry

Academies9 help VET adapt to technological innovation and enhance competitiveness

including by developing learning programmes co-designed with industry in specific sectors.

Within this policy context, this report presents the reforms and measures implemented

by Member States following the adoption of the 2020 Council Recommendation on VET.

This report does not aim to evaluate measures and reforms or assess their impact. Its purpose

is rather to take stock of relevant measures five years following the adoption of the 2020

Council Recommendation on VET, in line with its Article 36, building on data available at

national and European level and the annual monitoring carried out by the European Centre for

2 Welders and flame cutters, nursing professionals, cooks, building and related electricians, plumbers and pipe

fitters, heavy truck and lorry drivers, sheet metalworkers, metalworking machine tool setters and operators,

butchers, fishmongers and related food preparers. 3 European Commission (n.d.) Industrial ecosystems and partnerships. Pact for Skills. Available at: https://pact-

for-skills.ec.europa.eu/about/industrial-ecosystems-and-partnerships_en 4 European Commission (n.d.) Union of skills. Available at:

https://commission.europa.eu/topics/competitiveness/union-skills_en 5 Council of the European Union (2026) Tackling the skills shortage: Council adopts recommendation on human

capital. Available at: https://www.consilium.europa.eu/en/press/press-releases/2026/03/09/tackling-the-skills-

shortage-council-adopts-recommendation-on-human-capital/ 6 European Commission (n.d.) Clean Industrial Deal. Available at:

https://commission.europa.eu/topics/competitiveness/clean-industrial-deal_en 7 European Commission (n.d.) The European affordable housing plan. Available at:

https://housing.ec.europa.eu/european-affordable-housing-plan_en 8 European Commission (n.d.) New European Bauhaus: Vision to implementation. Available at: https://new-

european-bauhaus.europa.eu/new-european-bauhaus-vision-implementation_en 9European Commission (n.d.) Industrial ecosystems: strengthening EU competitiveness through partnerships.

Available at: https://ec.europa.eu/newsroom/growth/items/823315/en

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the Development of Vocational Training (Cedefop). Since 2020, Cedefop and the European

Training Foundation (ETF) have been carrying out an integrated monitoring exercise, as

proposed by the European Commission and agreed by the Advisory Committee for Vocational

Training (ACVT), to cover the priorities of the 2020 Council Recommendation on VET as

well as the Osnabrück Declaration. The report largely builds on this monitoring and the

national implementation plans (NIPs) of Member States, which were drawn up following the

adoption of the 2020 Council Recommendation on VET10. In particular, in 2022 Member

States developed NIPs describing the activities they will be implementing to address the EU

priorities in VET in the following years. The reporting largely builds on taking stock of these

activities that have been implemented by Member States.

The report has been consolidated by the European Commission and it is informed by

numerous exchanges with Member States in the ACVT and statistical evidence, in particular

on the state of play of the three quantitative targets set in the 2020 Council Recommendation

on VET. Several policy documents and studies have also been used to inform the report. The

report also covers EU-level actions to support Member States’ efforts to modernise VET

systems, including data on the implementation of measures and reforms supported and funded

by the EU. More details can be found in the accompanying staff working document.

This report represents an important input to inform the forthcoming European strategy

for VET, as announced in the Union of Skills communication of 5 March 2025. The

recently adopted Herning Declaration on attractive and inclusive vocational education and

training for increased competitiveness and quality jobs 2026–2030, and the upcoming

European strategy for VET will, together with the existing 2020 Council Recommendation on

VET, form the new European VET policy framework in the post-2025 period.

2. State of play in achievement of the three quantitative targets

To monitor implementation progress, the 2020 Council Recommendation on VET set

quantitative targets on exposure to work-based learning, employment of VET graduates and

VET mobility defined as EU average values to be achieved collectively by EU Member States

by 2025.

On average in the EU, according to the latest data available:

1. the share of recent VET graduates aged 20-34 benefiting from exposure to work-based

learning reached 66.0% in 202511 and exceeded the target of 60%;

2. the share of employed graduates from VET aged 20-34 reached 80.2% in 202512 and

is close to the target level of 82%;

3. the VET mobility target rate stood at 2.1% in 2021 which was far from the 8% target

value set for 2025 in the 2020 Council Recommendation on VET. The 2024 ‘Europe

10 All EU Member States but Czechia and Ireland have prepared their National Implementation Plan, published

on the Commission website. 11 Eurostat (EU Labour Force Survey). Exposure of VET graduates to work-based learning (tps00215) 12 Eurostat (EU Labour Force Survey). Employment rates of young persons not in education and training by

educational attainment level and years since completion of highest level of education (edat_lfse_24)

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on the Move’ Council Recommendation set a new target of 12% to be reached by

2030 (including a broader set of mobility experiences), with the latest estimate at 5.3%

in 202313.

The level of achievement of the targets and progress over time varies significantly across

countries. While the EU-level target for WBL has been reached, across Europe, countries

show varied progress in expanding WBL participation (Figure 1). While countries such as the

Netherlands (95.4%), France (93.2%), and Germany (93.0%) already far exceed WBL targets,

others—like Romania (9.1%), Czechia (15.2%), and Italy (22.0%) — remain well below the

benchmark.

Figure 1. VET graduates’ exposure to work-based learning, 2025

Source: Eurostat (EU Labour Force Survey). Exposure of VET graduates to work-based learning (tps00215)

Note: The countries are listed in descending order based on 2025 data. Low reliability for Germany, Spain,

Poland, Malta, Hungary, Ireland, Cyprus. No data for Bulgaria, Latvia and Luxembourg.

Countries have made mixed progress towards the employment rate target of VET

graduates (Figure 2). Where progress has been made, this is explained by factors such as

better alignment of vocational programmes with labour market needs and labour market

recovery in recent years leading to vocational profiles being in high demand14, as well as

demographic change. A strong increase between 2021 and 2023 (from 76.0% to 80.9%) was

followed by a slight decline and stabilisation in subsequent years, reaching 80.2% in 2025.

This pattern suggests that there have been specific challenges for young people, including

13 European Commission calculations based on data from the Erasmus+ Dashboard. Date of extraction: June

2025. 14 European Commission (2025) Education and training monitor 2025: Comparative report. Luxembourg:

Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-

/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1

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VET graduates, in entering the labour market from education in a context of a broader

slowdown in overall employment growth.

Figure 2. Employment rates of recent VET graduates, 2025

Source: Eurostat (EU Labour Force Survey). Employment rates of young persons not in education and training

by educational attainment level and years since completion of highest level of education (edat_lfse_24) Note:

The indicator captures the employment rates of 20-34-year-olds no longer in education and training, and who

graduated 1-3 years previously from VET at upper secondary or post-secondary non-tertiary level. Countries

shown in descending order based on the 2024 values. Low data reliability for Malta, Bulgaria, Slovenia and

Cyprus No data available for Luxembourg. Definition differs for France and Spain.

Reaching the VET mobility target, in terms of mobility experiences for medium-level

VET graduates remains a challenge. The mobility rate at the EU level stood at 5.3% and

140.000 mobilities in 2023 (Figure 3), a slight increase from the previous year when it stood

at 5.0% and 134 000 mobilities. However, this is still far from the 12% value set for 2030 in

the 2024 ‘Europe on the Move’ Council Recommendation.

Figure 3 – number of completed mobilities of VET learners, 2023

Source: European Commission calculations based on data from the Erasmus+ Dashboard. Date of extraction:

June 2025. Note: data refer to the number of medium-level VET learners with mobility experiences abroad

started in the reference period, reported in the Erasmus+ Dashboard. Due to the transition between the old and

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new Erasmus+ programmes, 2022 and 2023 estimates are only available at EU level and include projections

based on historical data; data for 2023 are provisional.

This can be partly explained by budgetary constraints at European and national levels. For

example, the budget available under Erasmus+ could only cover 57% of the demand in

mobility of learners and staff in 2024, representing a lower percentage compared to previous

years, due to growing number of applications15. The Staff Working Document accompanying

the ‘Europe on the Move’ recommendation also highlighted specific challenges that affect the

willingness to go abroad, such as the young age of VET learners and psychological barriers

that limit their capacity to spend time abroad. Structural impediments linked to national

regulations and administrative constraints are also limiting VET mobility. Despite these

challenges, the current level of demand would already allow for moving significantly towards

the achievement of the VET mobility targets. Some Member States also show promising

results. For example, in 2024, the overall mobility rate among 16- to 25-year-old initial VET

(IVET) learners in Finland reached 9% following the launch of a new group mobility activity

for VET under the Erasmus+ programme16.

3. Member States’ progress in the implementation of the Recommendation

3.1 General challenges in the implementation of reforms in VET

The analysis of the implementation of VET priorities across EU Member States reveals

some cross-cutting institutional, financial, and cultural barriers that hinder the progress

of VET systems. Certain cross-cutting challenges prevent or slow down the agile response to

changes in the labour market. Responsibilities for VET and upskilling and reskilling

are frequently spread across multiple ministries, institutions and governance levels and

require strong coordination frameworks and actions. These are often not in place, and even

when they are they can be inefficient. While the exact institutional setup differs by country,

responsibilities for VET are shared between the Ministries of Education, the Ministries of

Labour/Employment/Social Affairs and Ministries of Economy/Industry. Combined with

onerous and lengthy bureaucratic processes and resistance to change, fragmented and

uncoordinated work can delay reforms and innovation and limit agile responses to evolving

challenges.

Skills intelligence is an important part of VET governance, however only a few countries are

investing in in this area which hinders flexibility in responding to rapid change in the labour

market. Development of skills intelligence systems which include also the systematic use of

graduate tracking for VET policies and quality assurance (QA), require more concentrated

effort17. While countries worked on establishing or developing QA frameworks and processes

in line with the European Quality Assurance Reference Framework for Vocational Education

15 Data from the Erasmus+ Dashboard (November 2025). 16 Cedefop (2025) Finland: VET learner mobility on the rise. Available at:

https://www.cedefop.europa.eu/en/news/finland-vet-learner-mobility-rise 17 Only BE-NL, CY, EE, FR, HR, HU, LV, MT, PL, RO, SI and SK include and report progress on measures

dedicated to developing skills intelligence systems, including graduate tracking in their NIPs.

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and Training (EQAVET) principles, QA in WBL and apprenticeships in IVET are still in

development phase. In addition, research shows that the disparity between industry

advancement and the rigidity of existing curricula acts as a significant barrier to the

integration of digital and green skills in VET18.

VET systems experience persistent and evolving capacity constraints in their teaching and

training workforce.This is partly explained by lower wages and perceived value of the VET

teacher and trainer profession19 as well as the pressure posed by an ageing teaching

population20. According to Cedefop, only 1 in 2 VET teachers believe that their school

supports them in taking part in continuing professional development21. This lack of support

prevents teachers from effectively implementing new curricula, teaching new skills such as

digital or green skills, and adopting innovative pedagogies, including those based on

advanced technologies, such as virtual reality, or artificial intelligence (AI).

Availability and sustainability of financial resources represent another challenge. Many

initiatives (such as Centres of Vocational Excellence) aimed at modernising VET and

developing innovative approaches rely heavily or fully on EU funding and do not have long-

term funding provision once the EU funding ends.

In the period 2021-2027, the Erasmus+ programme is allocating an indicative budget of EUR

400 million for the creation and development of Centres of Vocational Excellence (CoVEs) -

a European flagship initiative to strengthen and develop VET systems in Europe - signifying a

strong commitment to vocational training excellence across Europe.

Besides Erasmus+, it is estimated that during the period 2021-2027, EUR 62.2 billion together

with national co-financing across EU Member States, including an EU contribution of EUR

40.4 billion from the European Social Fund Plus (ESF+), and EUR 12.1 billion from the

ERDF (including Interreg), including EUR 8.6 billion of EU contributions are programmed to

fund investments, infrastructure and reforms for education, training and skills policies,

including VET.

Stereotypes and the persistent perception that VET is less valued in society continue to limit

VET attractiveness and enrolments.To illustrate this point, the 2023 OECD Review of VET

systems showed that despite the generally strong labour market outcomes of VET students,

70% of interviewees believe that VET is simply about manual work, despite the diversity of

18 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of vocational education and training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 19According to Cedefop’s European vocational teacher survey (EVTS) pilot study, only about 9% of VET

teachers feel their profession is valued. Research by the OECD (2020) Education at a Glance 2020: OECD

Indicators also shows that VET teachers earn nearly 11% less on average than other tertiary-educated workers. 20 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of vocational education and training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 21 Psifidou, I., Papazoglou, M. and Pouliakas, K. (2025) Europe’s first survey for VET teachers: Listening,

learning, acting

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jobs which VET now leads to. The Special Eurobarometer 569 on VET attractiveness

(forthcoming, publication pending) also shows that while 50% of EU residents would

recommend VET to a young person before entering upper secondary education, 75% agreed

with the statement that in their country, general education at upper secondary level has a more

positive image than IVET. Some countries worked to promote gender equality, but there is

less evidence for gender inclusiveness and counteracting gender stereotypes in choosing

occupations, depending on their national contexts and needs. Adult participation in continuous

VET (CVET) is hindered by similar stereotypes to the ones mentioned above and limited

awareness of available opportunities.

Internationalisation and mobility which hold the potential to foster innovation and increase

the attractiveness of VET are growing to an extent22 but remain fragmented with

underdeveloped mobility opportunities23. Research has shown that VET graduates with

foreign mobility experience report that skills acquired abroad were useful in their professional

careers, supporting employability24. In addition, according to Cedefop, international

opportunities (including mobility) are associated with higher attractiveness of VET25.

Mobility of VET staff, such as teachers, trainers, and guidance professionals is less developed

than that of learners. While some initiatives and projects are reported,

internationalisation remains uneven and weakly embedded in national VET systems, despite

its strategic importance for attractiveness and excellence as set out in the 2020 Council

Recommendation on VET.

3.2 Overall assessment of progress and priority areas for the future

There has been notable progress of EU Member States toward the common priorities set

by the 2020 Council Recommendation on VET and confirmed in national

implementation plans. Despite the critical role of VET in addressing both inclusiveness

and labour market challenges – which include labour and skills shortages, an ageing

workforce, as well as ensuring fair green and digital transitions – some challenges

persist.This continues to undermine the potential of VET in driving inclusive and sustainable

growth and competitiveness. Another pressing issue that limits VET’s contribution to

economic growth are the persistent gaps in VET access and outcomes – whether in ensuring

gender inclusiveness, effectively supporting vulnerable groups or expanding lifelong learning.

Member States have made strong efforts to make VET systems agile and resilient in

adapting to rapid labour market changes (Priority 1), but some

22 Only AT, CY, DE, DK, EE, EL, HR, LV, PT and PL report measures aimed at increasing internationalisation in

their NIPs. 23 Only AT, BE-NL, DE, DK, FR, HR, LT, LV, MT, NL and PL report measures aimed at increasing mobility of

learners and staff in their NIPs. 24 Fassl, A., Kirsch, M., Pachocki, M. and Zabko, O. (2020) Tracing VET graduates with foreign mobility

experience. Warsaw: Foundation for the Development of the Education System (FRSE). Available at:

https://erasmusplusresearch.eu/research/tracing-vet-graduates-foreign-mobility-experience 25 Cedefop (n.d.) VET mobility prospects increases VET attractiveness. Available at:

https://www.cedefop.europa.eu/en/tools/vet-toolkit-tackling-early-leaving/resources/vet-toolkit-upskilling-

pathways/best-practices/vet-mobility-prospects

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challenges remain. Progress has been made primarily by modernising VET standards,

curricula and programmes to incorporate a balanced mix of vocational skills and key

competences, with a particular focus on the systematic integration of digital skills. Further

efforts are needed to fully align VET programmes and curricula with labour market needs,

especially in view of megatrends such as increasing digitalisation and automation, as well as

the transition to a net-zero economy. Efforts will continue to be important, especially in the

context of increasing digitalisation and the widespread use of AI. Recent Cedefop analysis of

online job advertisements across EU Member States suggests that occupations relying on

physical presence, manual expertise and applied technical skills such as engineering

technicians, machinery mechanics, construction trades and transport workers have seen their

share of vacancies grow26. This indicates that while the acquisition of digital and AI literacy

skills is important to keep up with labour market change, certain VET-related professions

have remained in demand even as the adoption of AI has increased.

Countries across the EU are strengthening efforts to ensure that learners acquire solid basic

skills throughout VET. However, implementation remains uneven, and many learners still

enter and leave VET without adequate proficiency in literacy, numeracy, science, digital and

citizenship skills, including media and information literacy which are essential both for

employability and active participation in society. At the same time, shortages of qualified

VET teachers and trainers, particularly those able to integrate basic skills into vocational

learning, constrain effective delivery. Evidence from PISA also suggests that many learners

enter VET with weaker foundational skills compared to peers in general secondary

education27. Among countries where comparisons are possible, students in vocational

programmes often perform substantially below their peers in general education programmes,

sometimes due to reasons such as early tracking.

Moreover, progress remains uneven in the delivery of science, technology, engineering and

mathematics (STEM) skills. In medium-level VET, only 36.3% of all students across the EU

are enrolled in STEM programmes, which is 8.7 percentage points below the proposed 2030

EU-level target of at least 45%. Within STEM fields, most VET students are concentrated in

engineering, manufacturing, and construction. Information and communication technologies

(ICT) represent a significant share of STEM enrolment in countries such as Portugal, Malta,

Poland and Italy. Conversely, the field of natural sciences, mathematics, and statistics attracts

a very small proportion of VET students across the EU.

Despite the expansion of WBL and apprenticeship opportunities, some countries report a

decline or limited number of apprentices28, in contrast to the previous periods where the

shortage of available places was the main issue. Expanding apprenticeships

to adults and to higher education has advanced, but the intake is still limited. WBL in VET is

26 Cedefop (2026) Reverse gear: how AI is bringing vocational occupations back. Available at:

https://www.cedefop.europa.eu/en/news/reverse-gear-how-ai-bringing-vocational-occupations-back 27 OECD (2023) Education at a glance 2023: OECD indicators. Paris: OECD Publishing. Available at:

https://www.oecd.org/education/education-at-a-glance/ 28 Countries such as DE, FR, IT, and AT in some sectors, report a decline or limited up-take of apprenticeship

places. EL, HU, CZ and RO are also among the countries with slow uptake of WBL including apprenticeships.

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also more widespread in certain fields of study (notably health and agriculture) than others29.

Policies could better address the imbalances and mismatches of work-placements demand and

supply and invest in in-company trainers’ professional development in pedagogy and support

to learners from vulnerable groups. Another area that could be further developed is the

cooperation between VET and industry. This could help increase both the uptake of

apprenticeships and alignment between VET delivery and the skills needed in the labour

market.

Countries have shown their commitment to enhancing flexibility and progression

opportunities within VET (Priority 2) and increasing upskilling and reskilling

opportunities, but many initiatives remain at an exploratory stage. This flexibility is

being promoted by adopting learning outcome-based approaches, modularising curricula and

programmes, establishing micro-credentials and partial qualifications, and increasing

opportunities for the validation and recognition of learning outcomes acquired outside formal

systems. Countries are diversifying modes of learning by strengthening infrastructure for

digital and blended learning and exploring cutting-edge educational technologies such as

virtual reality and AI. Such integration of emerging technologies into VET can effectively

mitigate the gap between training provision and the evolving labour market but limitations

exist such as keeping up with the quick pace of technological evolution in industry and the

investment needed for equipment, among others30. Measures on micro-credentials and the use

of advanced technologies are still at an early stage and have not yet reached their full potential

in VET. The countries that have not yet advanced in these areas would benefit from

accelerating regulatory developments, piloting digital platforms that provide training content

and interactive resources and promoting mutual recognition of micro-credentials across the

EU31.

European transparency tools aim at making VET better understood by employers and other

stakeholders. Among the main conclusions of the EQF evaluation in 2024 was that EQF is a

well-established reference point that is widely accepted among institutions working with

qualifications32. The EQF and related NQFs are key tools to make VET qualifications more

transparent within and across borders in connection with their level and content. Europass, an

EU tool for career management and lifelong learning, helps VET learners communicate about

their qualifications and skills, including in a context of labour mobility. However, uneven

29 European Commission (2025) Education and training monitor 2025: Comparative report. Luxembourg:

Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-

/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1 30 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of vocational education and training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 31 Only BE-NL, DE, FI, HR, HU, LV, MT, NL, PL, PT and SK report progress on measures in their NIPs

dedicated to advancing micro-credentials and partial qualifications, while only AT, BE-FR, BE-NL, BG, CY, DE,

DK, ES, HU, LU, NL, PL, and PT report progress on developing digital platforms and learning resources. 32 European Commission (2024) European Commission publishes evaluations of Europass and the European

Qualifications Framework. Available at: https://employment-social-affairs.ec.europa.eu/news/european-

commission-publishes-evaluations-europass-and-european-qualifications-framework-2024-03-27_en

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implementation of these instruments is hindering the transparency and understanding of

qualifications and skills across the EU. Among the lessons learned from the Europass

evaluation of 2024 is that the data analysis and AI in Europass could be further developed,

contributing to tackling skills and labour shortages, by which VET occupations are

particularly affected33.

Adult participation rates in training remain low in many countries34. While Member States are

increasing their focus on lifelong learning, the participation rate stood at only 39.5% in 2022

according to the Adult Education Survey (AES) with high variability between countries. This

is below the EU-level target35 of at least 60% by 2030. It is important that CVET addresses

the learning and development needs of all adults. Additionally, further implementation of

lifelong guidance, validation of prior learning, micro-credentials and partial qualifications,

together with well-designed incentives for both individuals and employers could strengthen

learner participation and support. It is also crucial to monitor participation and ensure

synergies and coordination between various providers.

Some progress has been observed in advancing innovation and growth and preparing

learners for the digital and green transition (Priority 3). Some countries are modernising

VET infrastructure by investing in both digital platforms for training and learning and

physical facilities36, aligning them with current industry needs. This includes investing in ICT

infrastructure and modern equipment, as well as integrating advanced technologies in VET.

Support for CoVEs remains limited but is expanding through the establishment of new centres

or the development of existing ones, often through EU support and funding.

A recent analytical report on a selection of Erasmus+ CoVE projects, shows that these can act

as structural enablers for transformation in VET, e.g. through innovation in teaching and

learning, aligning VET with labour market and skills needs, strengthened cooperation

between key stakeholders. To further develop the initiative and its impact, the report presents

some recommendations with regards to engagement of public authorities and more

involvement of learners and workers, as well as diversifying funding, tightening links to other

initiatives and bodies such as the Pact for Skills and the ACVT, scaling pedagogical

innovation, and balanced integration of digital and green skills across all sectors of the

economy.

Member States have implemented measures to ensure that VET is an attractive choice

based on modern and digitalised provision of skills (Priority 4). However, despite efforts

33 Report from the Commission to the European Parliament and the Council on the implementation and impact of

Decision (EU) 2018/646 of the European Parliament and of the Council of 18 April 2018 on a common

framework for the provision of better services for skills and qualifications (Europass); Available at: EUR-Lex -

52024DC0135 - EN - EUR-Lex. 34 According to the latest data available from the Adult Education Survey (2022), BG, EL, RO, PL, CZ, HR, SI,

LT, CY, IT, PT, LV, ES, BE, MT, ET and LU remain below the 2025 EU-level target of 47% of adults aged 25-64

having participated in learning during the past 12 months. 35 Target originating in the 2021 Council Conclusions on a new European agenda for adult learning 2021-2030.

See also the European Pillar of Social Rights Action Plan. 36 AT, BE-NL, BG, CY, DE, DK, EL, HU, LT, LV, PL, PT, and SI report progress on measures focused on

modernising infrastructure in their NIPs.

12

and targeted actions across countries, the perceived lower status of VET compared to general

and academic education persists as a key obstacle to increased participation in both initial and

continuous VET.Supporting innovation and internationalisation can be a key driver to

increase the attractiveness of VET. Strengthening the positive image of VET - and thereby

improving its attractiveness can also be further supported through targeted promotion of its

benefits and graduate employment prospects. This could include awareness campaigns,

participation in international skills competitions, lifelong guidance and mobility

opportunities.

Countries have worked to support VET teachers and trainers, but the low attractiveness of the

profession continues to put VET systems under pressure.Measures taken by Member States

include expanding VET programmes to higher qualification levels (EQF 5-8), improving the

permeability between VET and higher education, and investing in VET teacher and trainer

continuous professional development (CPD). However, available evidence suggests a lack of

systemic approaches to cover the complex learning needs of teachers and trainers;

this includes the systematic monitoring of their professional development in terms of content

and impact on teaching practices.

Increasing the skills and competence of teachers and trainers would require systemic and

multi-faceted continuous professional development, which is often uneven and does not cover

all areas. To address teacher shortages and improve the image of the profession, countries

could work on simplifying pathways of entry into teaching, facilitating the validation and

recognition of qualifications, improving working conditions and adjusting salaries, exploring

revolving doors between professional employment and teaching including the ‘blended

teachers’ models that have so far not been widely explored, and providing diverse and

sufficient professional development opportunities, including internships in companies and

exposure to international experiences through staff mobility. The Herning

Declaration also calls for attention to teacher and trainer mental well-being, a field that has

not been sufficiently explored.

While progress on promoting equality of opportunities and gender-inclusive VET

systems is seen as modest (Priority 5), countries are implementing targeted measures for

vulnerable groups. Erasmus+ supports the development of transferable skills, such as

communication, adaptability and intercultural skills through mobility of VET learners and

staff, cooperation partnerships, and capacity building activities. Meanwhile, there is less

evidence of progress on gender inclusiveness and counteracting gender stereotypes in

choosing occupations. The lack of gender balance and the underrepresentation of women in

STEM fields and in VET have significant labour market consequences such as persistent

skills shortages, limited economic productivity, and reinforcing structural inequalities in

employment and wages. Addressing inclusion in VET is crucial to ensure that vulnerable

groups (e.g. long-term unemployed, persons with disabilities, young people not in education

or training) can complete relevant and adequate training so that they are well equipped to

enter the labour market, thereby increasing overall employment rates and productivity, as well

as reducing poverty rates. To ensure inclusion, effective VET systems need to provide targeted

13

support based on learner needs, strengthen links to stable, quality jobs and expand

opportunities for inclusive work-based learning.

Countries focusing on quality assurance in VET (Priority 6) have also made some

progress. About half of the countries have worked on new strategies to align national quality

assurance systems with the EQAVET priorities, strengthening self-assessment by VET

providers (e.g. internal evaluation processes, continuous improvement and feedback loops),

and improving stakeholder involvement in governance. Continuity and increased investments

are key to achieve the objectives under this priority and to unlock their full potential for

learners and VET systems.

Social partners are central to the governance and implementation of VET policies,

contributing to policy development, curriculum design, quality assurance, funding

decisions, and career guidance. There is scope to further expand their role, in full respect of

social partners’ autonomy, in the implementation of measures. This is particularly the case in

regard to skills intelligence and identification of skill needs, provision of apprenticeships and

employment opportunities for vulnerable groups, reskilling and upskilling, as well as

the recognition and validation of non-formal and informal learning.

4. Conclusion

The reporting of the implementation of the 2020 Council Recommendation on VET across

Member States reveals a mixed picture of progress and persistent challenges, highlighting the

potential but also some weaknesses of VET in driving inclusive and sustainable development

that is closely aligned with labour market needs. While many Member States have launched

important reforms often leveraging EU support and funding opportunities, the pace of

modernisation and progress is uneven. Gaps still exist in digitalisation including the

integration of technologies such as AI, skills intelligence, WBL/apprenticeships, VET teacher

and trainer capacity, and the persistently low societal perception and attractiveness of VET

leading to skills mismatches. To make the most of VET’s potential to support the EU’s

competitiveness, VET excellence and strengthened partnerships with businesses and social

partners need to be promoted. Mobility opportunities for VET learners and

internationalisation should also be strengthened. Another area that needs further attention is

the delivery of basic skills and citizenship competence as well as STEM competences, which

are crucial to foster VET graduates’ employability37 and to ensure alignment with labour

market needs. The upcoming European Strategy for VET will pave the way to addressing all

these challenges.

37 Confederation of German Employers’ Associations (BDA) (2025) For our democracy – democracy education

throughout all levels of education. Available at: https://www.arbeitgeber.de

EN EN

EUROPEAN COMMISSION

Brussels, 10.7.2026 SWD(2026) 181 final

COMMISSION STAFF WORKING DOCUMENT

Accompanying the

REPORT FROM THE COMMISSION TO THE COUNCIL

on the implementation of the Council Recommendation on vocational education and

training (VET) for sustainable competitiveness, social fairness and resilience

{COM(2026) 363 final}

1

Contents

1 Introduction ..................................................................................................................................... 3

1.1 Purpose, scope and methodology of the reporting ................................................................. 4

2 Quantitative targets – state of play .................................................................................................. 6

3 Progress of reforms at national level ............................................................................................... 9

3.1 VET’s agility in adapting to labour market changes .............................................................. 9

3.1.1 Modernising VET standards, curricula, programmes, and training courses (including

integrating digital and green skills and competences) ................................................................... 10

3.1.2 Acquiring key competences ..............................................................................................11

3.1.3 Establishing and developing skills intelligence systems, including graduate tracking.... 13

3.1.4 Reinforcing WBL, including apprenticeships ................................................................. 14

3.2 Flexibility and progression opportunities at the core of VET .............................................. 15

3.2.1 Diversifying modes of learning ....................................................................................... 15

3.2.2 Using modularisation and learning-outcome-based approaches ..................................... 17

3.2.3 Providing for individuals’ re- and upskilling needs ......................................................... 17

3.2.4 Advancing Micro-credentials and Partial Qualifications to align VET with Labour

Market Needs ................................................................................................................................ 19

3.2.5 Learners’ possibilities to validate and recognise learning outcomes acquired informally

and non-formally ........................................................................................................................... 19

3.3 VET as a driver for innovation and growth, preparing learners for the digital and green

transitions and occupations in high demand ...................................................................................... 20

3.3.1 Modernising VET infrastructure ...................................................................................... 20

3.3.2 Supporting Centres of vocational excellence................................................................... 21

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

23

3.4.1 Permeability between Initial Vocational Education and Training (IVET) and Continuous

Vocational Education and Training (CVET) and general and vocational pathways, higher

education and higher VET ............................................................................................................. 24

3.4.2 Expanding VET programmes to EQF levels 5-8 ............................................................. 26

3.4.3 Teachers and trainers: attractiveness of the profession, initial and continuing professional

development (CPD) ....................................................................................................................... 28

3.4.4 VET internationalisation strategies, transnational VET initiatives, and enhancing

mobility of learners and staff ......................................................................................................... 30

3.4.5 Lifelong guidance ............................................................................................................ 33

3.5 VET for equality of opportunities ........................................................................................ 34

3.5.1 Focus on vulnerable groups ............................................................................................. 34

3.5.2 Addressing gender stereotypes ........................................................................................ 35

2

3.6 VET is underpinned by a culture of quality assurance......................................................... 37

4 Governance at national level ......................................................................................................... 38

5 EU level support actions, funding and governance ....................................................................... 39

5.1 European Alliance for Apprenticeships ................................................................................ 40

5.2 Centres of vocational excellence (CoVEs) .......................................................................... 40

5.3 VET attractiveness ............................................................................................................... 41

5.4 Other VET relevant initiatives/developments ...................................................................... 41

5.4.1 Micro-credentials ............................................................................................................. 41

5.4.2 Transparency tools ........................................................................................................... 42

5.4.3 International cooperation ................................................................................................. 43

5.5 Alignment of VET policy to other relevant policy areas ..................................................... 44

5.6 EU funding for VET ............................................................................................................ 46

5.6.1 Erasmus+ ......................................................................................................................... 46

5.6.2 Cohesion policy funds: European Social Fund Plus (ESF+), European Regional

Development Fund (ERDF) and Just Transition Fund (JTF) ........................................................ 47

5.6.3 Recovery and Resilience Fund and Technical Support Instrument ................................. 48

5.7 Governance of the EU level VET policy framework ........................................................... 49

5.7.1 Advisory Committee for Vocational training (ACVT) .................................................... 49

5.7.2 Directors-General for Vocational Training (DGVT) ........................................................ 50

5.7.3 Expert group of EU level associations of VET providers ................................................ 50

5.7.4 EQAVET network ............................................................................................................ 50

5.8 Monitoring of the implementation of the 2020 Council Recommendation on VET ............ 51

6 Conclusions ................................................................................................................................... 51

6.1 General challenges in the implementation of reforms in VET ............................................. 51

6.2 Overall assessment of progress and priority areas for the future ......................................... 54

7 Sources .......................................................................................................................................... 58

8 Annex – Overview of national reform measures per priority topics ............................................. 60

3

1 Introduction

Over the years, co-operation in vocational education and training (VET) at the European

level, provided for in Articles 165 and 166 TFEU, has played an increasingly important role.

In 2002, the Copenhagen process was launched to align VET systems with EU-wide goals for

sustainable economic growth, lifelong learning, and social inclusion. It responded to the need

for transparent qualifications across Europe and support for the quality of VET systems. This

process was brought forward through a series of declarations adopted at informal meetings of

the ministers in charge of VET, European social partners and the European Commission. At

the same time, a need to consolidate policy developments in the field of VET became more

evident. This paved the way for the first ever Council Recommendation in the field of VET,

adopted in November 2020 as the Council Recommendation on vocational education and

training (VET) for sustainable competitiveness, social fairness and resilience (hereafter:

“2020 Council Recommendation on VET”).

The 2020 Council Recommendation on VET defined a vision for VET with relevant long-

term reform principles. The Osnabrück Declaration, also adopted in November 2020 as part of

the Copenhagen process, complemented the 2020 Council Recommendation on VET with

more concrete, shorter-term actions at both national and EU level, specifically aimed at

modernising VET by ensuring its rapid adaptation to labour market needs, enhancing

flexibility of learning pathways, and preparing learners for the green and digital transition.

The 2020 Council Recommendation on VET and the Osnabrück Declaration framed the EU

VET policy cycle from 2020 until 2025, in combination with other strategic documents and

policies, such as the European Pillar of Social Rights action plan and the European skills

agenda.

The 2020 Council Recommendation on VET covers the following priorities:

• VET being agile in adapting to labour market changes,

• Flexibility and progression opportunities being at the core of VET,

• VET being a driver for innovation and growth that prepares learners for digital and

green transition, as well as occupations in high demand,

• VET being an attractive choice based on modern and digitalised provision of training

and skills,

• VET promoting equality of opportunities,

• VET being underpinned by a culture of quality assurance.

More recently, the 2025 Competitiveness Compass highlighted skills and quality jobs as a

horizontal enabler for competitiveness and innovation policy. The 2025 Clean Industrial Deal

also aims to turn decarbonisation into a driver of economic growth. Since 2020, labour and

skills shortages have intensified in sectors linked to vocational training programmes such as

construction, transport, healthcare, manufacturing, defence and clean technologies, making

VET even more important for economic growth. According to the EURES 2024 Report on

4

Labour Shortages and Surpluses, nine out of the ten main shortages occupations in the EU1

require vocational qualifications. These shortages are due to the rapid transition to a green

economy and a digital society, a changing geopolitical landscape as well as demographic

change and an ageing population.

Since VET systems are closely related to the industries that are adapting to these

developments, they are essential for preparing a workforce that can support productivity,

adapt to these transformations, and support European competitiveness. VET systems are also

crucial in facilitating practical training opportunities for people to rapidly enter the labour

market, thereby increasing overall employment rates, and in providing flexible learning

opportunities for the existing workforce, including workers who need to re-train in sectors

that are emerging or fundamentally transforming.

To address these challenges and to ensure that VET can deliver the skills needed for the

competitiveness of the EU, its social resilience and sustainability, the 2025 Communication

on the Union of Skills announced the upcoming European strategy for VET. Furthermore, in

September 2025, the ministers in charge of VET of the Member States of the EU, the EU

candidate countries and the European Economic Area (EEA) countries, the European social

partners and the European Commission endorsed the Herning Declaration on attractive and

inclusive VET for increased competitiveness and quality jobs during the period 2026-2030.

The report on the implementation of the 2020 Council Recommendation on VET represents

an important input to the forthcoming European VET strategy announced in the Union of

Skills. This staff working document (SWD) accompanies that report and builds on the

national implementation plans (NIPs) of Member States which were developed following the

adoption of the 2020 Council Recommendation on VET2.

1.1 Purpose, scope and methodology of the reporting

Purpose

In line with Article 36 of the 2020 Council Recommendation on VET, the purpose of this

exercise is to report on the implementation of European VET policies by tracking relevant

measures implemented by Member States five years after its adoption. This reporting does not

aim to evaluate measures and reforms or assess their impact. Its purpose is rather to take stock

of relevant measures five years following the adoption of the 2020 Council Recommendation

on VET. This was done based on the qualitative and quantitative monitoring of the common

objectives defined in the Recommendation.

1 Welders and flame cutters, nursing professionals, cooks, building and related electricians, plumbers and pipe

fitters, heavy truck and lorry drivers, sheet metalworkers, metalworking machine tool setters and operators,

butchers, fishmongers and related food preparers. 2 All EU Member States but Czechia and Ireland have prepared their National Implementation Plan, published

on the Commission website.

5

Scope

The report is built on data that is available at national and European level including through

the Education and Training Monitor and evidence collected and analysed by the European

Centre for the Development of Vocational Training (Cedefop). It is informed by numerous

exchanges with Member States in the Advisory Committee for Vocational Training (ACVT)

since 2020 and statistical evidence, notably on the three quantitative targets set in the 2020

Council Recommendation on VET. Cedefop has a long-term mandate and expertise in

following the implementation of EU common priorities in VET, which the 2020 Council

Recommendation on VET reaffirmed. Since 2020, Cedefop and the European Training

Foundation (ETF) have been conducting an ‘integrated monitoring’ proposed by the European

Commission and agreed by the ACVT to cover the priorities of the 2020 Council

Recommendation on VET and the Osnabrück Declaration. The report has been consolidated

by the European Commission and it also covers the Commission’s reporting on EU level

actions to support VET policies including policy guidance, governance, tools and networks,

and funding.

Methodology

The current SWD provides a detailed overview of the Member States’ implementation of

measures related to the EU priorities between 2020 and 2025. It is based on the VET policy

monitoring carried out by Cedefop and on the analysis of about 450 policy developments

reported by ReferNet, Cedefop’s European network of expertise in VET, between 2020 and

2025. It also builds on EU level actions including the European Alliance for Apprenticeships

(EAfA) which aims to enhance the supply, quality and image of apprenticeships, as well as

the learning mobility of apprentices; the activities organised by the EQAVET network to

foster quality assurance arrangements in VET; the Erasmus+ Centres of Vocational Excellence

(CoVEs) which aim to foster innovation, skills development, and regional cooperation in

VET; and measures to raise VET attractiveness through campaigns, events and forward-

looking projects. The analysis is supported by findings from Cedefop’s interviews with

national VET stakeholders, carried out from April until September 2024. Representatives of

ministries of education, labour and employment, national agencies for VET and other areas,

employer and employee organisations, economic chambers, VET providers, public

employment services, and local authorities as well as ReferNet national representatives and

coordinators took part in these interviews. Some representatives also took part in the

validation workshop that took place in October 20243.

The structure of this SWD mirrors that of the 2020 Council Recommendation on VET.

Chapter 2 presents the state of play regarding the three quantitative objectives set under the

2020 Council Recommendation on VET. Chapter 3 provides an overview of Member States’

progress in implementing the 21 reform principles set out in the Recommendation. Chapter 4

3 Disclaimer: the countries indicated in the footnotes in this staff working document are those that have dedicated

measures in their NIPs directly addressing the issue and have reported progress on those measures. Other

countries might have actions implemented, but they have not been reported because they were not included in

the NIPs.

6

examines VET governance at national level, while Chapter 5 reviews EU-level support

measures, funding instruments and governance arrangements. Chapter 6 concludes by

summarising progress, outlining key challenges, and setting out considerations for the

forthcoming EU VET policy cycle.

2 Quantitative targets – state of play

The 2020 Council Recommendation on VET aims to make VET more adaptive, more modern

and better linked to labour market needs. To monitor the implementation progress of Member

States, the 2020 Council Recommendation on VET set quantitative objectives on employment

rates of VET graduates, work-based learning (WBL) and mobility of VET learners. These

targets are important for several reasons. The high employment rates of recent VET graduates

imply that VET systems are responsive and match labour market needs. WBL is another

important element of vocational learning pathways as it allows learners to obtain hands-on

experience in a professional context, thereby better equipping them for their successful

transition to the labour market. Finally, mobility opportunities strengthen cross-border

collaboration, foster the exchange of innovative practices, improve the attractiveness of VET

and help learners acquire relevant technical skills but also transversal skills (e.g. intercultural

awareness, linguistic skills and adaptability) to be better prepared for work. The targets are

defined as EU average values to be achieved collectively by EU MS by 2025.

Based on the most recent data, the EU average is as follows:

1. the share of recent VET graduates aged 20-34 benefiting from exposure

to WBL reached 66.0% in 20254 and exceeded the target of 60%;

2. the share of employed graduates from VET aged 20-34 reached 80.2% in 20255 and is

close to the target of 82%;

3. the VET mobility target rate stood at 2.1% in 2021 which is far from the 8% target set

for 2025 in the 2020 Council Recommendation on VET. The 2024 ‘Europe on the

Move’ Council Recommendation set a new target of 12% to be reached by 2030

(including a broader set of mobility experiences), with the latest estimate at 5.3% in

20236.

Table 1 – EU average levels of the three quantitative targets

Quantitative targets in

EU-27

2020 2021 2022 2023 2024 2025 EU target

2025

4 Eurostat (EU Labour Force Survey). Exposure of VET graduates to work-based learning (tps00215) 5 Eurostat (EU Labour Force Survey). Employment rates of young persons not in education and training by

educational attainment level and years since completion of highest level of education (edat_lfse_24) 6 European Commission calculations based on data from the Erasmus+ Dashboard. Date of extraction: June

2025.

7

Exposure of recent

VET graduates to

work-based learning

(%)

- 60.3 60.1 64.6 65.2 66.0 At least 60

Employment rate of

recent VET graduates

(%)

75.9 76.1 (b)

79.7 81 80 80.2 At least 82

Initial VET (IVET)

learners with learning

mobility abroad (%)

1.2 2.1

(d)

5.0

5.3 At least 8

NB: (b) break in time series, (d) definition differs.

Source: Eurostat, based on the EU Labour Force Survey for work-based learning and employment rate.

European Commission based on Erasmus+ and UOE data for learning mobility.

The level of achievement of the targets and progress over time varies across countries. Across

Europe, countries show highly varied progress in expanding WBL participation and

improving employment outcomes for VET graduates (Figure 1). While countries such as the

Netherlands (95.4%), France (93.2%) and Germany (93.0%) already far exceed WBL targets,

others—like Romania (9.1%), Czechia (15.2%) and Italy (22.0%) — remain well below the

benchmark, and some have even experienced recent declines7.

Several countries have been implementing related national reforms to expand and improve

WBL. For instance, in Poland, employer engagement in WBL has been strengthened while

Hungary has consolidated dual training by setting up Sectoral Training Centres (AKKs),

which foster cooperation between VET institutions and businesses (Cedefop & ETF, 2026).

Cyprus has emphasised personalised career guidance as a cornerstone of youth employability

in its NIP, and since 2023 career counselling has been institutionalised as a regular service

through youth information centres in all five districts (Cedefop & ETF, 2026).

7 Some countries have been experiencing a decline in WBL participation between 2021 and 2025, e.g. from

31.8% to 22.0% in Italy.

8

Figure 1. VET graduates’ exposure to work-based learning, 2025

Source: Eurostat ( EU Labour Force Survey). (Exposure of VET graduates to work-based learning tps00215)

Note: The countries are listed in descending order based on 2025 data. Low reliability for

Germany, Spain, Poland, Malta, Hungary, Ireland, Cyprus. No data for Bulgaria, Latvia and

Luxembourg.

Regarding the employment rate of VET graduates, countries made steady progress toward this

target (at least 82% by 2025) over time but many did not reach it. A strong increase between

2021 and 2023 (from 76.0% to 80.9%) was followed by a slight decline and stabilisation in

subsequent years, reaching 80.2% in 2025 (Figure 2). Several countries had surpassed the

82% benchmark by 2025, including Germany, Denmark and the Netherlands.

Figure 2. Employment rates of recent VET graduates, 2025

Source: Eurostat (EU Labour Force Survey). (Employment rates of young persons not in education and training

by educational attainment level and years since completion of highest level of education edat_lfse_24). Note:

The indicator captures the employment rates of 20-34-year-olds no longer in education and training, and who

9

graduated 1-3 years previously from VET at upper secondary or post-secondary non-tertiary level. Countries

shown in descending order based on the 2024 values. Low data reliability for Malta, Bulgaria, Slovenia and

Cyprus No data available for Luxembourg. Definition differs for France and Spain.

The level of achievement of the VET mobility target, which concerns mobility experiences in

relation to the number of medium-level VET graduates of the same year, remains a challenge.

The mobility rate at the EU level stood at 5.3% in 2023, a slight increase from a year prior

(5.0%), but far from the 12% value set for 2030 in the 2024 ‘Europe on the Move’ Council

Recommendation. For more information, please see Figure 7 further down in this document.

3 Progress of reforms at national level

3.1 VET’s agility in adapting to labour market changes

VET systems must adapt swiftly to evolving skill needs to ensure both immediate

workforce readiness and long-term economic and social resilience. Global mega-trends

such as demographic shifts, increasing digitalisation, climate change and environmental

degradation are transforming the skills needed in the labour market. Training systems are

often too slow to respond, which may widen skills shortages in crucial sectors such as

construction, healthcare, ICT and energy, leading to productivity losses and a lack of

competitiveness. At the same time, many workers need flexible learning pathways to keep up

with labour market demands and to prevent their skills becoming obsolete. This

transformation requires developing and updating learning resources, building robust skills

intelligence systems, and strengthening stakeholder partnerships.

Several policy developments and measures have made VET more agile and responsive to

the labour market’s skill needs, but certain areas remain underdeveloped. Most

countries have been working on modernising VET standards, curricula, programmes, and

training courses8 to ensure a balanced mix of vocational skills and key competences9,

including integrating digital skills, and reinforcing WBL, including apprenticeships10.

Meanwhile, green skills, entrepreneurial and citizenship competences remain less emphasised

and progress in skills intelligence has been uneven. While countries are investing in graduate

tracking systems to monitor learner outcomes and inform programme improvement, broader

labour-market-aligned intelligence systems remain in their early stages, with limited

integration into VET governance11.

These are all important areas that deserve further attention. Entrepreneurial and citizenship

skills can play an important role in supporting employability and self-employment and may

contribute to innovation and competitiveness more broadly. In line with the 2018 Council

Recommendation on key competences for lifelong learning, skills for citizenship competence

8 AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, EL, ES, FI, FR, HR, HU, IT, LT, LU, LV, MT, NL, PL, PT, RO,

SE, SI and SK. 9 AT, BE-FR, BE-NL, BG, CY, DE, DK, ES, FR, HU, IT, LT, LU, NL, PL, PT, RO and SK. 10 AT, BE-FR, BE-NL, CY, DE, DK, EE, EL, ES, FR, HR, HU, IT, LT, LV, NL, PL, PT, RO, SI and SK. 11 BE-NL, CY, EE, FR, HR, HU, LV, MT, PL, SI and SK.

10

relate to the ability to engage effectively with others in common or public life, including for

the sustainable development of society. This involves critical thinking and integrated problem-

solving skills. All these skills can help learners integrate more smoothly into diverse

workplaces and adapt to organisational change as they become more adaptable and better

prepared for the labour market. Green skills in VET are also central to sustainable

competitiveness as many VET profiles, even traditional ones (such as plumbers and

electricians) are undergoing changes linked to the green transition. Finally, skills intelligence

in VET is crucial as it supports VET institutions in identifying emerging occupations and

skills needs and produces relevant information to adjust curricula and prevent or respond to

skills mismatches.

3.1.1 Modernising VET standards, curricula, programmes, and training courses

(including integrating digital and green skills and competences)

One area of progress involves updating VET curricula and programmes, particularly to

integrate digital skills, but a shortage of skilled trainers and lengthy procedures remain

a challenge. Many countries12 have been revising educational standards and occupational

profiles to embed competences related to the digital transition. In some countries all newly

revised or created VET qualifications systematically include digital competences. However,

many countries face shortages of qualified teachers and trainers to teach those competences,

particularly in rapidly evolving areas such as digital technologies. Teachers and trainers

require robust pedagogical and technical support to navigate the complexities of digitalisation

(e.g. training offer adjusted to their needs and freeing working time to practice the new skills

and explore new technologies)13. Fragmented governance and coordination, heavy and

lengthy bureaucratic processes and resistance to change, and fragmented and uncoordinated

work also delay reforms and innovation and limit agile response to the evolving challenges.

The integration of green skills and sustainability is another area of modernising VET

standards and curricula, though observed to a lesser extent compared to digital skills.

This includes embedding sustainability competences in activities including workshops,

competitions and conferences aimed at strengthening green skills, initiating pilot projects to

develop vocational competences in sustainability, implementing new occupational profiles in

(dual) VET courses14, and establishing climate vocational schools15.

Changes in the curricula have been supported by developing and updating learning resources

and materials, for learners, teachers and trainers. These efforts can help respond to the

shortages of qualified trainers in digital and green skills that are observed in many countries.

It should be noted that the focus of these actions has been on the digitalisation and

modularisation of learning content. This includes the development of interactive digital

12 AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, FI, FR, HU, IT, LV, MT, PL, PT, RO, SI and SK. 13 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 14 AT, DE, DK, EE, FR, HU, PL, PT, SE and SI. 15 DK.

11

platforms and digital learning resources, e-curricula built in modules16 and the use of

innovative tools and applications, such as virtual reality (VR), augmented reality (AR) and

extended reality (XR) in a limited number of countries.

Modernising VET through integrating sectoral, digital and green skills: Bulgaria and

Portugal

In Bulgaria, amendments to the VET Act aim were made in 2024 to strengthen the labour

market relevance of VET through a sectoral approach. As part of this effort, pilot Sector Skills

Councils (SSCs) are being set up. These councils bring together representatives from VET

schools, branch associations, employers, higher education (HE) institutions, and local

authorities. The SSCs will contribute expert input to the development of state educational

standards, support the modernisation of VET curricula - particularly with the integration of

digital and green skills - and assist in introducing new state educational standards. These

activities are being carried out under the European Social Fund+ (ESF+) for the period 2023-

2027 and have been supported by the Technical Support Instrument (TSI). The expected

adoption of a new list of professions and corresponding standards demonstrates Bulgaria’s

structured commitment to modernising its VET system. The 20 SSCs, representing all

economic sectors, are a key step towards establishing strong partnerships and ensuring

continuous dialogue between different stakeholders.

Portugal continues to expand the ‘Youth + Digital’(Jovem + Digital) programme, which

provides digital skills training for young adults aged 18 to 35. The strategic objective of the

Youth + Digital training programme is to reinforce the quality and effectiveness of vocational

training and professional qualifications. By 2024, thousands of individuals had received

training in key digital areas, including cybersecurity, e-commerce, and data analysis.

Moreover, Portugal is implementing the ‘Green Skills and Jobs’ (Trabalhos & Competências

Verdes) programme. This initiative offers short- and medium-duration training courses

targeting two main groups: employees of companies directly or indirectly affected by rising

energy costs, and unemployed individuals aged 18 or older who are registered with the Public

Employment Service (PES). The courses, focused on the environment and energy sectors, are

included in the national qualifications catalogue (CNQ) and have a maximum duration of 375

hours.

Source: Cedefop & ReferNet. (2025).

3.1.2 Acquiring key competences

Countries across the EU are fostering the acquisition of certain key competences and

basic skills throughout life, with the number of countries addressing this increasing

compared to 2020, but focus on fostering green, entrepreneurial and citizenship skills is

limited. At the same time, the limited availability of suitably qualified VET teachers and

trainers constrains the effective delivery of these skills. The most addressed key competences

are digital, science, technology, engineering and maths (STEM), and literacy. Developments

16 AT, BE-FR, BE-NL, BG, CY, DE, DK, ES, HU, LU, NL, PL and PT.

12

to integrate green and sustainability skills in VET have been advancing at a slower pace, with

most actions registered in the past two years. The focus on key competences is expected to

increase in line with the Union of Skills, the action plan on basic skills and work on the

priorities of the Herning Declaration that emphasises the need for basic and transversal skills

in VET specifically.

The most common way to support the acquisition of key competences and basic skills

involves systematically embedding them into qualifications and curricula17. Countries also

worked on developing digital competences18 by modernising VET delivery and putting in

place recognised certification pathways for digital skills, as well as by investing in online

learning tools. Some countries have prioritised the acquisition of STEM competences, often

through targeted strategies and incentives19 to expand access to STEM pathways, seeking to

address the growing demand for technical skills and support long-term economic

competitiveness.

Despite this, at medium-level VET, only 36.3% of all students across the EU are enrolled

in STEM programmes (Figure 3) which is 8.7 percentage points below the proposed

2030 EU-level target of at least 45%. Most VET students in STEM are in the field of

engineering, manufacturing and construction. Information and communication technologies

(ICT) represents a considerable share in countries like Portugal, Malta, Poland and Italy.

Meanwhile,the field of natural sciences, mathematics and statistics represents a very small

share of VET students across the EU.

Figure 3 - Share of students in medium-level VET enrolled in STEM

Source: Eurostat (UOE joint data collection 2023) (Pupils enrolled in vocational upper secondary and post-

secondary non-tertiary education by education level, sex and field of education duc_uoe_enrs10). Note: Share of

17 AT, BE-NL, BG, CY, DE, DK, ES, FI, FR, HR, HU, IT, LT, LU, NL, PT and RO. 18 AT, BG, CY, DE, ES, FR, IT, LT, LU, PL, PT and SI. 19 BE-NL, CY, LT, NL, PL and PT.

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students in medium-level VET (upper secondary or post-secondary non-tertiary education, with a vocational

orientation) enrolled in STEM fields, by narrow field. Definition differs for data in Czechia and the Netherlands.

Countries are shown in descending order based on the total share of STEM graduates.

Enhancing STEM learning: Latvia

Latvia is working to digitalise the training process by developing a digital platform and

database to support STEM programmes. The initiative is supported by the Digi4VET project,

which focuses on integrating digital tools into teaching, learning, assessment, and validation

across VET and WBL. While not specifically limited to STEM, ‘Digi4VET’ supports a wide

range of IVET, Continuous VET (CVET), and WBL programmes.

3.1.3 Establishing and developing skills intelligence systems, including

graduate tracking

Efforts across the EU Member States in this area are limited and they primarily focus on

building graduate tracking systems. The development of broader skills intelligence

systems has been less advanced. In particular, actions to embed skills intelligence into VET

governance structures that could help better connect VET with the labour market remain

limited and fragmented. Responsibilities for VET and lifelong learning (LLL) are frequently

spread across multiple ministries, institutions and governance levels, thereby limiting agile

responses to evolving labour market needs.

Only six countries worked on developing and strengthening their skills intelligence tools20 to

provide key labour market data, anticipate future skills needs, inform training provision and

analyse graduate employability. However, most systems are at an early stage. Work on

developing graduate tracking systems has been observed in some countries. Such actions

aim to collect and analyse data on graduate outcomes, including for VET graduates, to inform

programme development and improvement, support institutional self-assessment, and guide

learners in their career pathways21.

Strengthening graduate tracking and skills forecasting: Croatia, Estonia, and Slovakia

In Croatia, efforts to improve VET quality include introducing graduate tracking at the

provider level. Following pilot phases and the development of a tracking application, work

began on the fully fledged system in 2023. Once completed, the app is expected to support

self-assessment by training providers and strengthen the monitoring of graduate outcomes.

In Estonia, the OSKA skills forecasting system has been enhanced through reforms

introduced in 2022. Key improvements include developing region-specific forecasting

methodologies, sectoral labour market demand surveys, and monitoring how OSKA

recommendations are implemented. The dissemination of research findings has also been

broadened to better inform policymaking and planning processes. During interviews with

20 CY, EE, FR, PL, RO and SI. 21 BE-NL, CY, HR, HU, LV, PL, RO, SI and SK.

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national VET stakeholders, it was confirmed that OSKA is actively used by PES to support

the alignment of training with labour market needs.

In Slovakia, the lifelong learning and counselling strategy introduces a three-pillar model for

graduate tracking. The first pillar, which relies on administrative data, has already been

integrated into the draft Act on Lifelong Learning. The second pillar, involving national

graduate surveys, was in development throughout 2024. The third pillar, centred on school-

based tracking activities, was piloted and partially implemented between 2023 and 2024. This

pillar aims to provide feedback for adjusting secondary and tertiary programmes, which will

be taken into account by supervising bodies, such as the Slovak Accreditation Agency for

Higher Education.

3.1.4 Reinforcing WBL, including apprenticeships

Countries across the EU focused on enhancing the quality and stability of

apprenticeship provision, extending WBL opportunities into CVET, and expanding

WBL to support inclusion. Countries continued to build on the work started before 2020

with the support of the European Alliance for Apprenticeships (EAfA). Despite the expansion

ofWBL and apprenticeshipopportunities, some countries report a decline in the number of

apprentices taking up available posts, in contrast to the previous periods where the shortage of

available places was the main issue. Expanding apprenticeships to higher education and adults

has advanced, but the intake is still limited.

A major area of focus involves improving the quality and ensuring stability of

apprenticeship offers. Countries have been assigning greater responsibility to VET schools

for securing apprenticeship placements, formalising cooperation with employer organisations,

and introducing new access points for adult learners into dual training systems22. Several

countries worked to expand apprenticeships and WBL to also cover adults. Common

measures include the development of dual training programmes, piloting of new schemes, and

the promotion of on-the-job learning23. Many of these measures are also accompanied by

curriculum updates, increasing the scope and intake in dual training, and improved support for

learners.

Many countries also adapt apprenticeships to make this route accessible for vulnerable

groups, thereby promoting social inclusion24. This includes adapting WBL approaches for

early school leavers, migrants, low-qualified adults, and individuals outside traditional

education and training pathways, assigning vocational training assistants, supporting access to

education, and expanding school-work exchange schemes.

Advancing WBL: Italy

Italy is working to enhance the personalisation of curricula in professional institutes by

fostering closer collaboration with production sectors. As part of the Good School (La Buona

22 AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, HU, LT, LV, NL, PL, PT, RO and SI. 23 AT, BE-FR, BE-NL, BG, CY, DE, EE, EL, ES, FR, HR, HU, IT, LT, LV, NL, PL, PT, RO, SI and SK. 24 AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FR, HU, IT, LT, NL, PT and RO.

15

Scuola) reform adopted in 2015, Pathways to transversal competence and guidance (PCTO),

previously school-to-work exchange programmes, have been expanded up to 2024. In this

pathway, students of both general and vocational and technical schools are obliged to spend

time in companies as part of their studies.

Source: Cedefop & ReferNet. (2025).

3.2 Flexibility and progression opportunities at the core of VET

Flexibility in VET is a core principle for enabling continuous upskilling and reskilling in the

face of the digital, green and demographic transitions. Flexible systems can quickly adapt to

technological change, climate challenges, demographic shifts and crises such as the COVID-

19 pandemic. It also contributes strongly to making VET attractive and inclusive.

Almost all the countries have started to work on making their VET systems more

flexible to facilitate access, ensure learning progression and contribute to making

lifelong learning (LLL) a reality for all learners, but some challenges remain. Progress is

mixed in areas such as green skills, where many countries reference sustainability in their

NIPs but implement fewer concrete actions. Micro-credentials and partial qualifications are

gaining ground but are still at an early stage of development in most countries. Flexibility has

been implemented by diversifying modes of learning25; the use of learning-outcome-based

approaches and modularisation26; and providing individuals with opportunities for re- and

upskilling27. Countries have also worked on developing and applying micro-credentials,

qualifications smaller/shorter than full28 and on enhancing learners’ possibilities for the

validation, recognition and accumulation of learning outcomes acquired non-formally and

informally29, including the use of EU transparency tools30.

3.2.1 Diversifying modes of learning

Some countries have supported the integration of digital and blended learning into

training processes, but most actions are at an early stage and progress is uneven across

Member States. Approaches include developing innovative and open educational resources

such as online learning platforms while reforming VET curricula and teaching materials31.

Some countries32 are increasingly focusing on digital-only learning models, investing in the

expansion of e-learning and distance learning opportunities and in modern equipment, while

others33 focus more on blended learning. Some countries are leveraging digital solutions to

develop new learning methodologies and resources, and to integrate advanced technologies

into the learning process.

25 BE-FR, BE-NL, BG, DE, EL, ES, FI, HU, MT, PT and SI. 26 BE-FR, BE-NL, CY, ES, HU, LT, LU, LV, PT, and RO. 27 AT, BE-FR, BG, CY, DE, DK, EE, ES, FR, HU, LU, LV, NL, PL, PT, SE and SK. 28 BE-NL, DE, FI, FR, IT, LV, MT, NL, PL, PT and SK. 29 AT, BE-NL, BG, CY, DE, ES, FR, HU, IT, MT, PT, SE and SK. 30 AT, BG, ES and PL. 31 BE-FR, BE-NL, DE, ES, HU and SI. 32 BG, CY, EL, FR and PT. 33 FI, LU and LV.

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In terms of technological advancement, only a small number of countries are beginning

to explore the use of cutting-edge educational technologies34, experimenting with

extended reality (XR), virtual reality (VR), and AI tools to enrich training methods and

boost learner engagement. Moreover, these advanced technologies are still in their early

stages. An analysis of Strategic Partnerships for VET (Erasmus+ Key Action 202) reveals that

in the last three years to 2025, only between 8% and 12% of projects specifically worked with

advanced technologies such as AI or XR35. Another challenge is the limited availability and

sustainability of financial resources for infrastructure modernisation and the digitalisation of

VET, which are often provided at EU level.

Integrating advanced technology solutions: Belgium-Flanders (Belgium-FL) and Malta

Belgium-FL is advancing the digital transformation of IVET through its digital education

action plan by equipping students, particularly those from vulnerable groups, and teachers

with appropriate ICT infrastructure, equipment and services. The initiative also promotes the

development and use of XR technologies in VET. In 2022, part of this initiative was

implemented, providing learners and teaching staff with digital learning materials and access

to virtual platforms. In 2022, the Flemish government developed an XR Action Plan, which

includes the creation of a Learning Network XR. This learning network combines the

knowledge of researchers at several universities or university colleges who are experts in XR

and other digital fields. Its expertise is offered in information sessions and one-on-one

guidance of schools which focus on the professionalisation of teachers and users through the

use of evidence. The use of XR tools is expected to enhance course quality and increase

learner engagement. The monitoring data of the XR Plan implementation shows an increased

willingness among school leaders, teachers, and students to sustainably integrate ICT into

their educational practices. However, the XR Plan encounters implementation challenges,

especially in finalising agreements for hardware and software, with strict deadlines and

diverse provincial stakeholders. This requires frequent coordination to ensure alignment and

the timely resolution of problems.

Malta is working to enhance the accessibility and flexibility of VET by putting in place a

national fund, that VET institutions and providers can access by submitting project proposals

aimed at supporting digital education. These projects may include the integration of advanced

technologies such as AI, XR and VR. In addition, a key development highlighted during

national VET stakeholder interviews is the Institute for Education’s introduction of dedicated

modules on information technology (IT)-enhanced learning across all courses. This initiative

ensures that teachers are equipped with the skills and knowledge to effectively use digital

tools and methodologies in their teaching.

Source: Cedefop & ReferNet. (2025).

34 BE-NL, DE and MT. 35 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881

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3.2.2 Using modularisation and learning-outcome-based approaches

Only a few countries have been working on further establishing modular approaches36

and continued embedding learning outcomes in IVET in qualification descriptors in

National Qualifications Frameworks (NQF) sectoral occupational standards and VET

curricula. A limited number of countries have also been introducing modular programmes in

CVET to support adult learning, upskilling, and reskilling allowing not only the acquisition of

partial qualifications but also adjustment to regional labour market needs37. In addition, in

certain countries modules have been particularly instrumental in integrating the digital and

green transitions into VET programmes38.

Certified modular training courses in the environmental, energy and digitalisation

areas: Portugal

The programme ‘Green Skills and Jobs’, launched in 2022 in Portugal, comprises short and

medium-duration training courses, addressed to employees of companies directly or indirectly

affected by the increase in energy costs, in addition to the unemployed, aged 18 or over,

registered at PES. Four pathways in the environment and energy areas can be selected: green

hydrogen; renewable energies – solar thermal; renewable energies – solar photovoltaic; and

renewable energies – wind. All pathways are delivered as certified modular courses by public

or private providers in online or face-to-face format.

Source: Cedefop & ReferNet. (2025).

3.2.3 Providing for individuals’ re- and upskilling needs

Countries have been adapting existing CVET programmes or creating new ones to better

meet the evolving needs of the labour market, but only a few countries are investing in skills

intelligence. Some countries have developed digital solutions to enhance access to CVET

opportunities and facilitate the issuance of CVET credentials and certificates, while green skills

remain less targeted through specific actions. In addition, countries have developed targeted

information that promotes the benefits of CVET and LLL and created opportunities for learners to

assess their skills before starting training.

Digital literacy and career transition support are most prominent in re-skilling and

upskilling actions. Digital literacy is widely recognised as essential for individuals to

effectively participate in the modern workforce and contribute to digital transformation. To

this end, countries offer digital skills training to various groups39 or provide financial support

to companies, in particular small and medium enterprises (SMEs)F40. Accelerated by the

COVID-19 pandemic, countries41 have further worked on adopting digital solutions to access

36 CY, ES, LT and LV. 37 DE, ES and PT. 38 ES, HU, LV and PT. 39 BE-FR, CY and DE. 40 DE, NL, PL, PT and SE. 41 BG, CY, DE, ES, FR, HU, LV, LU, PL and PT.

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CVET and skill certification, by e-learning platforms, digital resources, and innovation hubs to

facilitate distance and blended learning.

Green skills development, while mentioned in many countries' NIPs, remains less

widespread in terms of specific actions. A small number of countriesF42 introduced training

programmes aimed at employees in green sectors, as well as upskilling and reskilling services

for workers affected by the challenges of the twin transition. Some countries also offer career

guidance and training for young people in emerging professions and sectors, including those

related to ecology and sustainability.

Some countries are developing new CVET programmes specifically designed to address high-

demand skills43 and are updating their existing CVET offer to meet emerging skill needs44.

Supporting individuals in career transitions through reskilling is another widely recognised

need and some countries45 have implemented initiatives to promote career mobility and

workforce adaptability.

To encourage participation in reskilling and upskilling, especially among low-qualified adults,

targeted information campaigns and incentives have been implemented to highlight the benefits of

CVET46 to the public, employers, and employees. These measures have been put in place

through sectoral skills centres, free hotlines, workshops, and cooperation with social partners,

by raising awareness of digital skills, and providing skill assessments47.

Career mobility through re-skilling and upskilling: Luxembourg

In Luxembourg, the FutureSkills initiative, comprises three key components. One of these

focuses on upskilling and reskilling employees. Through this effort, the PES raises awareness

among companies and their employees about the impact of major trends, such as

technological advancements, on skills and occupations, emphasising the importance of a

strategic approach to workforce planning. PES often help identify viable pathways for internal

job transitions, enabling companies to retain employees by adapting roles to evolving needs.

Advisers support businesses in anticipating and developing the skills required for the future.

In 2023, PES published sector-specific skills studies for social work and health and care.

Following this, in 2024, it released a skills study on information technology (IT) professions.

This IT study was conducted in close collaboration with the Chamber of Commerce, the

Luxembourg Bankers’ Association, and the Digital Skills and Jobs Coalition initiative. Unlike

previous sectoral studies, it analysed trends across IT professions regardless of the industry

sector.

Source: Cedefop & ReferNet. (2025).

42 CY, FR, LV, PL and PT. 43 CY, DE, FR and LV. 44 BE-FR, ES and FR. 45 BG, DE, DK, EE, ES, FR, FI, LU, PT and SK. 46 BE-FR, DE, DK, FR, HU, IT, LU, PL and PT. 47 BE-FR, DE, FR, PL, PT and SK.

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3.2.4 Advancing Micro-credentials and Partial Qualifications to align VET with

Labour Market Needs

Some countries worked on the introduction and use of micro-credentials, partial

qualifications, and digital badges but many initiatives are still at an early stage of

implementation. As regards micro-credentials, countries have been developing legal

frameworks and new regulations to embrace those48, exploring the field49 through preparatory

studies and pilot projects, and developing digital platforms for issuing and accumulating

micro-credentials. Other countries are working on partial qualifications by creating and

updating procedures for their development, establishing nationwide standardised partial

qualifications, including for low-skilled and unskilled adults, in cooperation with employer

organisations, and revising vocational occupation registers to incorporate partial

qualifications50 aligned with labour market needs.

Chamber initiative for partial qualifications: Germany

In Germany, the chambers of industry and commerce (DIHK) initiated USE

OPPORTUNITIES! to establish nationwide standardised partial qualifications for low-skilled

and unskilled adults aged over 25. The initiative aims to develop training modules geared to

regional needs and certification of partial qualifications to give low-skilled and unskilled

adults the opportunity to acquire a complete vocational qualification or at least an upgradable

qualification. These qualifications were developed in consultation with the employer

associations, and they are implemented with the participation of German employers,

associations, and business-related education institutions. It acts a quality seal for partial

qualification offer. Launched in 2017 with only half of the DIHKs, the initiative has grown to

expand country-wide and most DIHKs now participate. In 2023, the initiative relaunched its

three projects. In addition, a written part of digital competence assessment for partial

qualifications was developed.

Source: Cedefop & ReferNet. (2025).

3.2.5 Learners’ possibilities to validate and recognise learning outcomes

acquired informally and non-formally

Several countries have adopted systemic approaches for validating and recognising prior

non-formal and informal learning. There has been stronger emphasis on adult learners and

their learning outcomes, including those acquired through WBL. The systemic approach

includes adopting national strategies and legal frameworks to regulate validation processes,

set standards, ensure quality and integrate recognition into formal qualification frameworks51.

Other actions include involving chambers and employers in validation and recognition,

providing financial incentives to adults seeking validation, offering guidance and piloting

48 BE-NL, HR, HU, LV, PL and SK. 49 LV, MT and NL. 50 BE-Nl, DE, FI, HU and PT. 51 AT, BE-NL, BG, CY, DE, ES, FR, HU, IT, LT, MT, PT, SE and SK.

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recognition mechanisms in selected sectors52. A few countries53 implemented projects to

recognise competences gained through volunteering.

Validation and recognition of learning outcomes: Italy

Italy began the process of validating non-formal and informal learning in 2012, marking a

major milestone in 2018 with the introduction of interoperability guidelines for awarding

bodies. By 2022, most regions had integrated these guidelines into their skills certification

systems, supported by both the Italian National Qualifications Framework and the National

Regional Qualifications. Implementation continues to expand today. In 2024, a new decree

was introduced to govern the recognition of competences acquired through non-formal

learning. All qualifications databases from the regions and autonomous provinces are

accessible online via their respective regional websites.

Source: Cedefop & ReferNet. (2025).

3.3 VET as a driver for innovation and growth, preparing learners for

the digital and green transitions and occupations in high demand

To promote innovative and excellent VET, some countries have started to support centres of

vocational excellence (CoVEs)54 and the modernisation of VET infrastructure,55 often with

the support of EU funding.This includes to a certain extent equipping VET institutions for the

digital and green transitions.

3.3.1 Modernising VET infrastructure

Modernisation efforts across the countries concern both IVET and CVET. The focus is on the

improvement of digital infrastructure for VET provision while the greening of

infrastructure remains limited. Some countries have invested in information and

communication technology (ICT) infrastructure56, distributed digital devices such as laptops

and tablets to students and teachers, and integrated advanced technologies in VET. One

challenge is that some of these investments rely on EU funding, with limited support in place

once the EU funding is phased out.

In addition to digitalisation, some countries are also investing in modernising the

physical infrastructure of VET institutions57, particularly to align it with the current

labour market and industry58. This includes rebuilding or renovating VET schools,

upgrading laboratories with modern equipment, supplying new training machinery, investing

in infrastructure, including new facilities and modern equipment, and establishing sectoral

skills centres that support hands-on, industry-relevant training.

52 BE-NL, CY, DE, FR, HU, MT, PT and SE. 53 AT, CY and ES. 54 AT, BG, DK, EE, ES, HR, HU, LT and SK. 55 AT, BE-NL, BG, CY, DE, DK, EL, HU, LT, LV, PL, PT and SI. 56 AT, BE-NL, DE, EL and LV. 57 CY, LT, PL and SK. 58 BG, DK, IT and PT.

21

Only a few countries59 reported dedicated efforts to greening the VET infrastructure.

These include energy efficiency upgrades, installation of renewable energy systems, and the

transformation of institutions into environmentally sustainable campuses. Although limited in

number, these initiatives are likely to expand as green policies continue to evolve.

Enhancing learning environments: Greece and Cyprus

In Cyprus, efforts to modernise VET physical infrastructure are well underway. The country

is upgrading classrooms and laboratories in vocational schools and providing students with

digital technical equipment. As part of the Cyprus recovery and resilience plan (RRP), a new

technical VET school is planned. Construction of the school in Limassol began in 2023.

In Greece, an advanceddigital platform is being developed for both IVET and CVET.

Launched in 2023 and expected to be completed by 2025, the platform aims to significantly

enhance e-learning opportunities for both students and professionals. By providing a flexible,

accessible, and modern learning environment, this initiative aims to transform VET through

the use of advanced digital infrastructure. The platform is designed to better align training

with the evolving needs of the labour market, supporting a more dynamic and future-ready

workforce.

Source: Cedefop & ReferNet. (2025).

3.3.2 Supporting Centres of vocational excellence

Centres of Vocational Excellence (CoVEs) are a European flagship initiative to strengthen and

develop Vocational Education and Training (VET) systems in Europe. They are collaborative

networks of local and international partners that make VET innovative and responsive to the

evolving requirements of learners, businesses and communities. Across certain countries,

support for CoVEs is being pursued in two main directions: either by creating entirely new

centres60 or to a limited extent by establishing them based on existing VET centres61often

inspired by the work done at European level on vocational excellence. However, this is still at

an early stage of development and implementation.

Actions include CoVEs funded through Erasmus+, reported less frequently, and national

equivalents that serve similar objectives of addressing regional disparities and needs by

aligning training more closely with the labour market needs, fostering platforms for

innovation, experimentation, and collaboration between educational institutions and industry

stakeholders. A key feature across countries is the use of European support and funding

mechanisms, Erasmus+, the Recovery and Resilience Fund (RRF), the Technical Support

Instrument (TSI), the European Social Fund Plus (ESF+), and the European Regional

Development Fund (ERDF) to support CoVE infrastructure, equipment, innovation projects,

59 DK, HU, PT and SI. 60 AT, BE-FR, BG, ES, HR, HU and SK. 61 DE, DK, EE, FR and LT.

22

and stakeholder cooperation. For examples, under the Structural Reform Support Programme,

the Commission provided technical support to France in 2021-2022 to improve their Centres

of Excellence (Campus des Métiers). The project aimed to increase the quality and

effectiveness of these centres by reforming their implementation framework. It resulted in a

more sustainable involvement of the business community, increased quality and labour market

relevance of VET in France62.

In general, there is a strong focus on creating the institutional conditions that support

excellence. Actions aim to consolidate networks, improve infrastructure, expand partnerships,

and embed CoVEs more firmly in the national or regional VET systems. This includes

empowering centres to play a broader role in areas such as curriculum development, teacher

training, applied research, and cross-sector collaboration. Common efforts also include

aligning CoVEs with emerging economic sectors and increasing their role in supporting the

continuous upskilling and reskilling of the workforce. In some cases, this involves

transforming existing VET institutions into competence centres with extended responsibilities

and improved capacity to serve learners and employers.

Building innovation hubs for skills: Austria, Bulgaria, and Spain

Austria aims to establish CoVEs specifically for green innovation. Austria plans to define

cluster areas for centres of excellence, determining in which areas of Austria's Green Deal

these clusters can be set up. The implementation of the projects of the Competence Centres is

planned for 2024-29. The Green Tech Academy (GRETA), coordinated by the Graz

University of Technology and the Joanneum University of Applied Sciences, was established

in 2022. GRETA promotes cooperation and networking within the knowledge triangle of

research, economy, and education, in which regional vocational schools are also integrated.

In Bulgaria, CoVEs are being established to foster local partnerships and enhance regional

training ecosystems. Supported by the RRF, the initiative includes the modernisation and

equipping of 28 VET schools in all 28 regions in the country, with completion expected by

2026. The CoVEs will provide modern and innovative education and training for professions

and skills in demand in the local/regional labour market and offer opportunities for a smooth

transition from school to work. They are intended to operate through collaborative

partnerships involving vocational schools, universities, businesses, local authorities and other

educational institutions. As of 2024, additional funding has been allocated to further support

this measure.

In Spain, the objective was to establish a network of 52 National Reference Centres - public

institutions specialising in various professional fields. These centres are tasked with driving

VET innovation and experimentation, as well as providing training for teachers and tutors. As

of 2024, this network had grown to include 66 centres. The network of centres of excellence

62 The Structural Reform Support Programme (SRSP) operated from 2017 to 2020 and is the predecessor of

the Technical Support Instrument (TSI), which runs from 2021 to 2027. Link to the project: https://reforms-

investments.ec.europa.eu/technical-support-instrument-0/labour-market-and-social-protection/improving-

quality-and-effectiveness-centres-vocational-excellence-campus-des-metiers-france_en

23

comprised strategic sectors such as aeronautical, agri-food, audiovisual, automobile,

cybersecurity, building and energy sustainability, social and care economy, renewable

energies, automated manufacturing, catering, AI and big data, maritime-fisheries,

mechatronics, chemistry, sanitary, IT, transport and logistics, and tourism.

Source: Cedefop & ReferNet. (2025).

3.4 VET as an attractive choice based on modern and digitalised

provision of training and skills

Increasing the attractiveness of VET continues to be high on the agenda of most

countries even though some see decline in IVET enrolments and low participation in

CVET despite significant efforts made in previous periods. Attractive VET plays a crucial

role in motivating learners, teachers, and trainers, reducing early school dropout, and

increasing participation in education and training. The attractiveness of the teaching

profession and teacher shortages that many countries structurally report in the past years are

another area of attention. Fewer young people aspire to start teaching careers and the teaching

force is ageing, while attracting professionals from the labour market to teach in VET is often

a challenge. Most countries63 worked to advance this priority through investing in teachers

and trainers, their initial and continuing professional development (CPD), and enhancing the

attractiveness of the teaching and training professions. However, it is becoming increasingly

difficult to retain skilled teaching and training professionals as VET often offers less attractive

working conditions and low wages64 compared to the private sector and higher education.

Since the adoption of the 2020 Council Recommendation on VET, some countries565

have worked on increasing permeability and smooth transitions between IVET and

other education pathways but some of those arrangements already existed before 2020.

Other areas of action included expanding VET programmes to higher qualification levels

(EQF levels 5 to 866 in a few countries), internationalisation of VET through dedicated

strategies and international initiatives67; promoting and supporting mobility of learners and

staff68; lifelong guidance5F69 and targeted promotion and campaigns for VET and LLL60F70.

Despite these advances, progress remains uneven: expansion of VET at EQF levels 6 - 8, dual

pathways at higher levels and mobility for VET staff are limited in many countries, while

some struggle to fully embed green competences, ensure inclusive career guidance, or provide

systematic CPD aligned with digital and technological advancements.

63 AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, ES, FI, FR, HR, HU, IT, LT, LV, NL, PL, PT, RO, SI and SK. 64 The European Vocational Teacher Survey pilot conducted by Cedefop (2025), which gathered responses from

735 teachers across 23 countries, shows that only 13% of teachers feel their salary reflects their work. 65 AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FI, FR, HU, LT, NL, PT, RO, SE and SK. 66 AT, DE, PT, RO and SK. 67 AT, DE, EE, HR, and LV. 68 AT, BE-NL, DE, DK, FR, HR, LV, MT and PL. 69 AT, BE-FR, CY, DE, DK, ES, FR, HU, MT, NL and PL. 70 AT, BG, DE, DK, EE, HR, LV, MT, NL, PL, PT and RO.

24

3.4.1 Permeability between Initial Vocational Education and Training (IVET)

and Continuous Vocational Education and Training (CVET) and general

and vocational pathways, higher education and higher VET

To ensure permeability between general and vocational pathways, only a few countries

set up arrangements to enable learners to complete upper secondary education in

parallel with or following vocational training. Examples include preparing and taking

school leaving examinations71 to enable access to higher education. However, it is worth

mentioning that the number of these countries is small and some of them already had such

arrangements before 2020. Efforts to strengthen the permeability between VET and higher

education vary and remain rather limited. A small number of countries72 have been working to

establish or reform higher VET pathways, while a few others are working to raise the status

and excellence of higher VET provision73 by creating closer links; recognising prior learning

and validating work experience; broadening eligibility criteria for higher education entry; and

developing short-cycle higher technical programmes aligned with EQF level 5. There are

major differences across the EU in access of VET graduates to tertiary education, ranging

from all VET graduates having direct access in some EU countries, to fewer than half in

others (Figure 4).

Figure 4 – Share of graduates from upper secondary with direct access to tertiary

education

Source: Eurostat (UOE joint data collection 2023) (Graduates by education level, programme orientation,

completion, sex and age educ_uoe_grad01). Note: Only graduates from programmes leading to full level

completion are considered. Data for Hungary in vocational programmes presents a certain degree of upward bias.

Some professional bachelor programmes are intended as a direct complement to upper

secondary education. For example, the Finnish National Qualifications Framework aligns

VET qualifications with the rest of the education system, ensuring that they are formally

recognised and valued. In other systems (such as in Germany), VET graduates typically gain

71 AT, BE-FR, CY, DE, LT and PT. 72 AT, CY, DK and FR. 73 BE-NL, EE, FI, PT and SE.

25

work experience for several years in their chosen profession, before entering tertiary

programmes to upskill or pass a professional examination74.

In recent years, several countries have developed access pathways to higher education by

adapting curricula for upper secondary vocational education. They have done so by providing

modules or additional years of study to offer VET students the opportunity to meet the

entrance requirements of higher education institutions. Other countries have introduced

additional VET programmes to bridge the gap between upper secondary and tertiary education

or have extended apprenticeship-like programmes to higher levels. In Czechia, for example,

there has been an increase in applications for programmes leading to a school leaving

examination that entitles VET students to apply for tertiary studies. In Romania, the extension

of work-based learning creates new opportunities for accessing higher VET. However, direct

access to tertiary education does not necessarily cover all levels of tertiary education. Spain

and the Netherlands, for instance, have dedicated programmes at short-cycle tertiary level

designed to help learners progress to bachelor’s and master’s levels as well. Moreover, access

to tertiary education might be impeded by additional factors, including formal qualification

requirements for medium-level VET learners or limited information on study options. VET

students may also need to strengthen their academic skills and adjust to different teaching

methods.

In addition, some VET students may have a preference or a financial need to enter the labour

market earlier instead of continuing their education and training. This typically results in far

fewer VET graduates entering tertiary education than those who could do so based on

qualification requirements alone. For example, in Italy, more than 70% of graduates from

general secondary school enrol in tertiary education, whereas only 15% from vocational

tracks do75.

Supporting permeability between education and training pathways: Romania and

Sweden

Romania is working to strengthen LLL and the recognition of competences by introducing a

transferable credit system for adult professional training. The system defines how transferable

credits are granted based on a methodology that covers key, technical, and occupation-specific

competences. It supports mobility and ensures compatibility with national education and

training frameworks. A new framework law, adopted in 2023, laid the foundation for this

system. In 2024, the methodology was updated to include revised calculations for translating

study hours into transferable credits.

In 2022, Sweden adopted the amendment to the Education Act that requires all VET

programmes to include all necessary subjects for tertiary education eligibility, thereby

74 European Commission (2025), Education and Training Monitor 2025: Comparative Report. Available at:

https://op.europa.eu/en/publication-detail/-/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1

Luxembourg: Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-

detail/-/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1 75 ibid

26

increasing permeability between VET and higher education. These expanded programmes

offer both more content and additional teaching time. The goal is to increase VET enrolment

in upper secondary school, improve skills supply, and make it easier for young people to enter

the labour market.

Source: Cedefop & ReferNet. (2025).

Among young people (aged 20-34) with a tertiary degree in the EU, nearly one out of four

(23.2%) had a vocational medium-level education (and 76.8% a ‘general’ medium level

education). EU-wide, tertiary graduates who had a vocational medium-level degree have a

slightly higher employment rate (83.6%) than those with a general degree (82.2%).

Figure 5 – Tertiary graduates with a vocational degree at medium level education, 2024

Source: Eurostat, based on EU Labour Force Survey, ad hoc module on young people in the labour market

(Persons with tertiary education by medium educational attainment qualifications (2024) lfso_24tert01)

3.4.2 Expanding VET programmes to EQF levels 5-8

The expansion of VET programmes to EQF levels 5 to 8 remains relatively limited across

countries. Interest and the number of targeted actions are gradually increasing (see the figure

below). Most countries are currently focusing on EQF level 5, which is widely viewed as a

strategic entry point into higher level VET. Fewer countries are actively pursuing VET

development at EQF levels 6 and 764F76 and only a couple are setting dual training pathways

at EQF level 577.

Figure 6 – Share of tertiary students enrolled in professional programmes

76 AT, DE, IT, PT, RO and SK. 77 AT and PT.

27

Source: Eurostat (UOE joint data collection 2023) (Students enrolled in tertiary education by education level,

programme orientation, sex, type of institution and intensity of participation educ_uoe_enrt01). Note: No data

available for Master's or equivalent for Belgium, Bulgaria, Czechia, Greece, Slovenia; both missing for Estonia,

Spain, Italy, Cyprus, Hungary, Austria, Portugal, Romania, Slovakia, Finland, and Sweden. Definition differs in

Luxembourg (both). Countries are sown in descending order based on Bachelor's values.

At tertiary level, an international definition of vocational education currently only exists for

‘short-cycle tertiary education’. Indeed, this level of education is predominantly vocational

(98.4% of all students enrolled across the EU)78. Across the EU, enrolment in short-cycle

tertiary programmes has expanded from 1 125 042 students in 2015 to 1 414 654 in 2023.

Still, it remains a relatively small section of vocational education overall (11.9%) as well as of

tertiary education (7.7%). In specific countries, such as Spain, Latvia, France, Austria,

Denmark and Slovenia, short-cycle tertiary programmes now make up more than 10% of both

the VET sector and the tertiary education sector79

No international definition of programme orientation currently exists at higher levels of

tertiary education (bachelor, master, and doctoral)80. Rather than ‘vocational’ or ‘general’, the

common approach is to distinguish between ‘professional’ and ‘academic’ programmes. Due

to a lack of internationally agreed definitions, many countries do not provide any data that

disaggregate tertiary education. Nevertheless, several EU countries do provide information

based on their own definitions. At bachelor’s degree level, professionally oriented

programmes make up most enrolments in the Netherlands, Denmark, Belgium and Latvia.

78 European Commission (2025), Education and Training Monitor 2025: Comparative Report. Luxembourg:

Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-

/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1 79 ibid 80 The 2020 Council Recommendation on VET includes the aim to develop vocational education and training

programmes at tertiary levels to support a growing need for higher vocational skills. It should be noted that it

defines such programmes based on the European Qualifications Framework (rather than educational levels). See

also a 2025 UNESCO report providing advice on the classification of national education programmes and related

qualifications.

28

Professional master’s programmes are less widespread across EU countries, although a

significant number of these programmes are offered in Latvia, France and Luxembourg81.

Establishing higher VET in Austria

Austria has been establishing higher VET as a separate education segment since 2019. The

main objectives of this initiative are consolidation of the heterogeneous field of higher VET;

establishing a legal basis for a common understanding of higher VET; introducing higher

VET as a label with a clear message to make the qualifications more visible and better known.

A first draft of the Act was prepared by autumn 2022, and after many consultations with

national stakeholders, the Higher VET Act was published on 28 February 2024 and came into

effect on 1 May 2024. The implementation started in the second half of 2024 with the

development of guidelines and aids for the implementation of the Act at the level of the

qualification providers. Work also began on developing pilot qualifications.

Source: Cedefop & ReferNet. (2025).

3.4.3 Teachers and trainers: attractiveness of the profession, initial and

continuing professional development (CPD)

Most countries developed VET teachers’ CPD, with a particular emphasis on digital

skills, but qualified trainer shortages and the attractiveness of the profession remain a

challenge. VET systems experience persistent and evolving capacity constraints in their

teaching and training workforce. Many countries still face shortages of qualified teachers and

trainers, particularly those with expertise in fast-evolving areas like digital technologies and

green skills. Career schemes or incentives to attract teachers and trainers to VET remain

relatively limited in application. In addition, flexible entry pathways to teaching from the

labour market and the ‘blended teachers’ models are not yet widely explored.

Teacher and trainer CPD plays a crucial role in embracing all the evolving changes and

challenges that VET is facing, and there is a trend towards more needs-oriented CPD. A few

countries82 worked to modernise CPD content by introducing innovative teaching methods

and personalised learning approaches, such as practical experience in companies, internships

in VET schools, or school-industry exchanges. However, increasing skill and competence

demands on teachers and trainers call for systemic and multi-faceted CPD, which is often

uneven and does not cover all areas. Combined with the lack of support, this prevents teachers

from effective implementation of new curricula, teaching new skills, e.g. digital or green, and

adopting innovative pedagogies, including those based on advanced technologies, such as VR,

XR or AI. Teachers' roles are evolving, especially due to the digital transition, and they are

moving towards being guides and instructional designers rather than knowledge transmitters.

81 ibid 82 BE-NL, CY, HR, HU, IT and LV.

29

Teachers' professional development plays a crucial role to support VET teachers and trainers

in this process83.

Digital competence remains a cross-cutting theme, with initiatives in only a few

countries incorporating immersive technologies such as XR. Countries are also responding

to the demands of digital and blended learning environments and preparing teachers to work

in those through upskilling teachers in ICT, hybrid teaching, and integrating advanced

technologies such as AI, robotics and programming. Some have introduced or updated digital

competence frameworks and self-assessment tools to ensure CPD is tailored to current

technological needs84. Other actions involve the creation and development of digital

infrastructure, digital resources and content databases, and secure platforms for teaching68F85

that support teachers in accessing techno-pedagogical tools and promote the sharing of best

practices. To stimulate participation in CPD, some countries86 worked on diversifying CPD

provision through flexible formats such as e-learning, massive open online courses (MOOCs),

and modular courses. These approaches integrate pedagogical, technical, and transversal

competences.

CPD has also been developed to prepare teachers for the green transition, albeit to a

lesser extent. Countries provided dedicated teacher training aligned with new or adapted

curricula that integrate green skills, climate response, and STEM-related sustainability

topics87. Alongside CPD focused on green competences, countries are adapting curricula,

developing teaching principles related to sustainability, creating new green-related teaching

professions, and integrating sustainability themes into apprenticeships and VET programmes.

Some countries extend CPD to include school leaders to train in implementing new curricula

or effective management while company managers and mentors are trained on ensuring

quality WBL in companies, e.g. legal frameworks, student rights, pedagogical approaches,

support to learners from vulnerable groups88.

To increase the attractiveness of the teacher profession and address teacher shortages, some

countries are modernising their initial teacher training89 through implementing screening or

entrance tests to tailor training to individual needs from the outset; defining or reinforcing

competence requirements, particularly in digital skills and providing structured support, such

as mentoring and coaching. Several countries90 are targeting professionals from the labour

market to enter teaching by introducing flexible career entry pathways, financial incentives,

recognition schemes for skills acquired on the job, and other supportive initiatives. However,

83 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 84 BE-FR, BE-NL, BG, CY, DE and EE. 85 ES, FI, IT, LT, LV, PT and SI. 86 BG, DK, EE, ES, LT, PT, RO and SK. 87 AT, DE, DK, ES, FR and SI. 88 AT, BG, DE, EE, HR, PT and RO. 89 AT, BE-NL, LV, NL and RO. 90 BE-NL, BG, CZ, DE, HU, LU, LV, NL, PL and SK.

30

it is becoming more difficult to retain skilled teaching professionals, as VET often offers less

attractive working conditions and low wages compared to the private sector.

Supporting teachers’ professional development: Belgium-FR, Estonia and Hungary

Estonia is placing strong emphasis on strengthening in-service training for VET teachers and

trainers. Key activities focus on enhancing schools’ capacity for VET content development,

delivering pedagogical, methodological, and subject-specific training, and supporting school

teams, support staff, and traineeship instructors. Additional efforts target content training,

language-integrated learning, and language teaching methods. In 2023, two ESF measures

were introduced: the VET and Higher Education Development Programme (PRÕM+) and the

initiative on teacher succession, pedagogical approaches, and learning environments. PRÕM+

supports traineeships and WBL by offering training, seminars, and counselling to VET

providers. In 2024, a new phase of CPD for VET teachers and trainers was launched.

Hungary is working to enhance the relevance, scope and quality of in-service training for

teachers and mentors, while also introducing a new model of hybrid teachers and trainers.

Since 2021, training has been delivered through the unified Teacher Further Training System

(OTR) and sectoral training centres. By 2024, a wide range of online courses had been made

available, covering digital competences, language skills, vocational and in-company training,

and teaching methodologies. A digital content and learning materials database have also been

developed.

In Belgium-FR, the Pedagogical Resource Centre (CRP) supports teachers for digital

preparedness by offering techno-pedagogical resources. In non-compulsory education, e-

learning implementation is facilitated through a good practice sharing platform for adult

education institutions. The 'e-classe' platform complements this by publishing content on

topics such as women in the digital world and cybersecurity in schools. A partnership with

Pix, a public online platform, is also exploring the use of Pix as a tool for teacher self-

evaluation. Introduced in 2023, the Pix tool helps teachers identify suitable training and online

resources by assessing their digital skills. In 2024, further actions were introduced, including

new publications on AI and XR, an extension of the Pix pilot project, and additional initiatives

targeting non-compulsory education.

Source: Cedefop & ReferNet. (2025).

3.4.4 VET internationalisation strategies, transnational VET initiatives, and

enhancing mobility of learners and staff

Only a few countries have been working to open their VET systems to international

cooperation through VET internationalisation strategies91. Increased mobility of VET

learners and personnel could help boost the attractiveness of VET. In some countries,

internationalisation is part of broader education and training strategies and plans, while others

build transnational projects. Internationalisation policies and activities follow different goals –

91 DE, EE and HR.

31

not only do they relate to promoting VET and education broadly, but they also support

business interests of national companies in other countries, e.g. supplying skilled workforce or

ensuring the same quality of training as in the home country. Some countries92 have been

increasingly using international skills competitions where learners can showcase their VET-

related skills, such as EuroSkills and WorldSkills, to showcase VET skills and enhance the

profile and attractiveness of VET. Another important competition is the Abilympics for

professionals with special needs which is held every four years, where only a limited number

of Member States participate93.

Strategic approach to internationalisation: Germany

Germany’s internationalisation strategy for VET, operational since 2013 and updated in

2019, aims to strengthen the global vocational competences of VET students and graduates.

As part of this strategy, the Federal Government’s Central Agency for International Vocational

Training Cooperation (GOVET), which is the Federal Government’s central coordination

office, and the Round Table for International Vocational Training Cooperation, managed by

GOVET, have been established.

Under this strategy, numerous bilateral cooperation projects are funded and coordinated with

countries including China, Costa Rica, Ghana, Greece, India, Italy, Mexico, Portugal, South

Africa, and the USA. The aim of the Federal Government's bilateral VET cooperation is to

help partner countries effectively integrate elements of practice-oriented or dual VET into

their respective systems by sustainable support in line with the partner country's context and

needs. Examples of good practice are developed and tested on various VET topics and can

stimulate reforms in the partner countries. In 2023 and 2024, Germany further expanded its

international engagement by launching new projects, reinforcing governance structures,

promoting sustainability, and deepening global partnerships through events, bilateral

initiatives and publications. Key programmes such as ‘Skills Experts’, ‘CooperationVET’,

and the ‘Competence Centre for International VET’ (KIBB) supported training across more

than 50 countries. Designed to promote excellence within the country while supporting

German businesses and VET providers abroad, it stands out for its structured, long-term

commitment.

In addition, iMOVE (International Marketing of VET), a networking platform initiated by the

German Federal Ministry of Research, Technology and Space, informs interested parties

around the world about German competence in the field of vocational training and continuing

education, along with ‘made in Germany’ qualifying opportunities.

Source: Cedefop & ReferNet. (2025) and Cedefop (2025c).

The EU aims to increase the number of learners in VET programmes who go abroad as part of

their studies. Such mobility provides VET learners with opportunities to learn about

92 AT, CY, DE, DK, EL, HR, LV, PT and PL. 93 The 10th edition of the Abilympics took place in 2023 in Metz (France), with the participation of 24 countries

worldwide including France, Finland, China, Japan, Malaysia, Canada, India and Australia.

32

innovative practices and technologies and foreign languages and to understand different

cultures. For VET providers and other organisations active in VET, learner mobility supports

internationalisation and institutional development in terms of gaining new experiences and

knowledge from different contexts. Research has also shown that VET graduates with foreign

mobility experience report that skills acquired abroad were useful in their professional

careers, supporting employability94. In addition, according to Cedefop, international

opportunities (including mobility) are associated with higher attractiveness of VET95. This

points to mobility prospects being one of several mechanisms that can improve VET’s

reputation — including relative esteem compared to academic tracks.

The 2030 EU-level VET mobility target covers a wide range of mobility opportunities funded

under Erasmus+, such as short-term learning mobility, group mobility, blended mobility and

mobility linked to participation in VET skills competitions. In 2023, around 140 000 VET

learner mobility experiences that were in line with this wider definition took place. This is a

slight increase from 2022, when there were 134 000 such mobility experiences. The most

recent data continue an upward trajectory that was interrupted by the COVID-19 pandemic

(Figure 7).

Figure 7 – Number of completed mobilities of VET learners, 2023

Source: European Commission calculations based on data from the Erasmus+ Dashboard. Date of extraction:

June 2025. Note: data refer to the number of medium-level VET learners with mobility experiences abroad

started in the reference period, reported in the Erasmus+ Dashboard. Due to the transition between the old and

new Erasmus+ programmes, 2022 and 2023 estimates are only available at EU level and include projections

based on historical data; data for 2023 are provisional.

The VET mobility target considers mobility experiences in relation to the number of medium-

level VET graduates of the same year. The mobility rate stood at 5.3% in 2023, a slight

increase from a year prior (5.0%), but far from the 12% target value for 2030. This increase

94 Fassl, A., Kirsch, M., Pachocki, M. and Zabko, O. (2020) Tracing VET graduates with foreign mobility

experience. Warsaw: Foundation for the Development of the Education System (FRSE). Available at:

https://erasmusplusresearch.eu/research/tracing-vet-graduates-foreign-mobility-experience 95 Cedefop (n.d.) VET mobility prospects increases VET attractiveness. Available at:

https://www.cedefop.europa.eu/en/tools/vet-toolkit-tackling-early-leaving/resources/vet-toolkit-upskilling-

pathways/best-practices/vet-mobility-prospects

33

in 2023 is not only due to increased mobility but it also reflects a declining number of VET

graduates.

Most Member States’ actions in supporting mobility focus on VET learners96, mostly in

IVET, including also apprentices. Fewer targeted efforts have been made to promote the

mobility of VET staff, such as teachers, trainers, and guidance professionals97. Staff mobility

promotes the modernisation of teaching practices, cross-sectoral exchange and enhancing

experience to increase the attractiveness of the profession. To facilitate mobility for staff and

learners, countries implement national or regional projects to operationalise exchanges and

strengthen transnational cooperation through the EU, mainly Erasmus+, and international

programmes. Mobility is increasingly embedded and institutionalised in VET systems, and

monitoring is in place to track it. Some countries have also expanded mobility beyond the EU,

targeting third countries98.

Expanding VET mobility: Lithuania

In Lithuania, group mobility consisting of more than one learner, a new, more flexible VET

option under Erasmus+, has been implemented since 2024. It focuses on life competences,

cultural understanding, and networking with peers from other schools, not only on WBL

activities. This more flexible approach to mobility aims to benefit students with fewer

opportunities. Other mobility support actions are also present. For example, in 2022, Pro Met

network experts drafted a publication on how to prepare training contracts for mobility. To

add, a national mobility scheme was set up to support the practical skills of VET students at

sectoral practical training centres which are spread throughout the country.

Source: Cedefop & ETF (2026). [forthcoming].

3.4.5 Lifelong guidance

Most countries primarily focus on enhancing career support for students, especially

adolescents. Actions include the development and provision of targeted and user-friendly

information about careers in VET and available financial support. It should be noted that

lifelong guidance is not limited to VET only. However, for lifelong guidance and outreach to

be fully effective, it should start during the early stages of school education. Some countries

worked on developing their career guidance in a systemic way99 to increase accessibility and

quality, ensuring good outreach to all learners. In addition, some countries have embraced

digitalisation to improve their career guidance services100 through developing digital

platforms, applications, and online tools that provide career information, personalised advice,

and interactive resources. Lifelong guidance has been crucial for adult learners and

countries101 focused on expanding access to tailored guidance and flexible training,

96 AT, BE-NL, DK, FR, HR, LV, MT and PL. 97 BE-NL, DE, HR, LT, LV, MT, NL and PL. 98 AT, DE and MT. 99 BE-FR, CY, DE, ES, HU, MT, NL, PT and SE. 100 AT, DE, ES, HU, MT, NL, PL, SE and SK. 101 DE, MT, NL. RO, SE and SK.

34

particularly for vulnerable groups such as older adults and low-skilled workers. Some

countries102 invested in developing the competences of career guidance professionals through

specialised training and CoVEs, often promoting collaboration among stakeholders and

ensuring guidance is inclusive, particularly for vulnerable populations.

Developing lifelong guidance: Hungary and Slovenia

Hungary aims to enhance learners’ understanding of transversal competences and available

progression pathways. Likewise, career guidance and counselling continue to be strategic

priorities. Between 2023 and 2024, key initiatives to this end progressed under the GINOP

framework, including the development of the Career Orientation Portal, the expansion of the

career path development programme, and the introduction of dedicated modules designed to

highlight the benefits of VET.

In Slovenia, digital tools are being developed to identify labour market needs and support

career decision-making. A national tool under development in 2024 as part of the ‘NOO

project’ aims to forecast VET-related labour market demands and includes features such as

graduate tracking, enrolment statistics, academic performance data, application deadlines, and

exchange opportunities. This tool is designed to guide students in making informed career

choices, help VET schools adapt open curricula and support the broader modernisation of

vocational standards and programmes across the VET system.

Source: Cedefop & ReferNet. (2025).

3.5 VET for equality of opportunities

3.5.1 Focus on vulnerable groups

Inclusive VET is a priority across the EU, aimed at ensuring equal access to quality

education and lifelong learning, particularly for vulnerable and underrepresented

groups, but progress remains modest, and more coordination is needed. Most countries103

worked on this priority. The approaches focus on making VET systems accessible to people

with disabilities, migrants, ethnic minorities, those with low skills or qualifications, and

individuals from disadvantaged socio-economic backgrounds to increase their participation in

lifelong learning. Inclusiveness is closely linked with flexible, agile and attractive VET and

aims to support smoother transitions from education or unemployment to employment and to

prevent early leaving from education and training.

Specific policies and targeted vulnerable groups vary across countries based on their national

contexts.For example, countries with large migrant populations or experiencing significant

migration inflows often implement more targeted measures for these groups while those with

marked urban-rural disparities tend to prioritise actions that address these regional

inequalities.

102 BE-FR, DK, ES, HU, MT, RO and SE. 103 AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FI, FR, HU, LT, LU, LV, NL, PL, PT, RO, SE and SK.

35

Some countries worked on awareness raising and lifelong guidance104 for young people,

migrants, refugees, and other at-risk groups, often cooperating with local stakeholders,

including schools, training providers, companies, and public services. A few countries105

invested in the professional development of trainers to enable those to better support learners

with special education needs and disabilities. These efforts include in-service training,

education programmes and national initiatives to adapt teaching methods and educational

content, as well as infrastructure upgrades to ensure accessibility.

Preventing early leaving from education and training, particularly among vulnerable

groups, has been yet another area of action across the countries. Three main approaches have

beenwidely adopted to address this challenge: early identification and monitoring systems,

provision of social support and guidance, and development of tailored competence

development programmes. Early identification and monitoring systems106 help detect students

at risk of dropping out through data-driven tools, early warning mechanisms and tracking

systems, enabling timely and targeted interventions. Such systems not only help identify those

at risk but have also contributed to refining the definition of target groups. Social support and

guidance measures include mentoring, counselling, and individualised education, often

extending this support until young people have completed their studies or successfully entered

the labour market107. Tailored competence development programmes108 exist in a few

countries allowing for more flexible durations based on student ability, differentiated teaching

methods, and the use of distance learning to help maintain learner engagement and reduce

dropout rates.

3.5.2 Addressing gender stereotypes

Addressing gender stereotypes in learning and career choices is key to addressing skills

mismatches and enlarging the pool of potential workers for various shortage

occupations. Some countries worked to promote gender equality, but there is less evidence

for gender inclusiveness and counteracting gender stereotypes in choosing occupations,

depending on their national contexts and needs.According to evidence109, gender segregation

hampers labour shortages. Most shortage occupations are either dominated by men or by

women as around 86% of these occupations are not gender balanced. This also mirrors gender

segregation in the respective field of studies, which is why the pool of people to fill vacancies

is limited. In initial VET, while boys’ most chosen field in initial VET is engineering,

104 AT, BE-FR, CY, DE, ES, FR, LU, NL, PT and RO. 105 DE, EE, LT and PL. 106 AT, BE-NL, HU and SK. 107 AT, DE, DK, NL, RO and SK. 108 FR, HU and SK. 109 European Commission (2023) Employment and social developments in Europe: Review 2024. Luxembourg:

Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-

/publication/17b34170-8138-11ef-a67d-01aa75ed71a1/language-en

36

manufacturing and construction (45%), for girls the most common fields are (21%) health and

welfare (26%), services (22%), business, administration and law (21%)110.

In medium-level VET, female students are severely underrepresented in STEM fields.

Fewer than one in six students (15.4%) is female, compared to a proposed 2030 EU-level

target of at least one in four (Figure 6). This rate decreased 0.6 percentage points between

2020 and 2023. Only Romania (36.4%) and Bulgaria (27.4%) reached the proposed EU-level

target value. By contrast, fewer than one in ten are studying VET STEM fields in Cyprus

(8.3%), Ireland (9.0%), Lithuania (9.0%) and Germany (9.5%). The underrepresentation of

female students in STEM is much larger than in medium-level VET overall, where on average

44.2% of students in the EU are female. The small STEM subfield in VET of ‘natural

sciences, mathematics and statistics’ enjoys a more favourable gender balance, with women

accounting for 45.5% of students. However, the underrepresentation of women is more

pronounced in the other two STEM subfields, with the rate of female students dropping to

14.6% in ‘engineering, manufacturing and construction’ and to 14.0% in ICT111.

Figure 8 – Share of women in STEM fields in initial medium-level VET and tertiary

education

Source: Eurostat (UOE joint data collection 2023) (Pupils enrolled in vocational upper secondary and post-

secondary non-tertiary education by education level, sex and field of education educ_uoe_enrs10, Distribution of

students enrolled at tertiary education levels by sex and field of education educ_uoe_enrt04). Note: Data in 2022

does not include students enrolled in doctoral programmes in the Netherlands.

110 European Commission (2025) Education and training monitor 2025: Comparative report. Luxembourg:

Publications Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-

/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1 111 ibid

2017 2018 2019 2020 2021 2022 2023

Tertiary education

STEM Natural sciences, mathematics and statistics Information and communication technologies Engineering, manufacturing and construction

0%

10%

20%

30%

40%

50%

2020 2021 2022 2023

Sh ar

e of

w om

en

Initial medium-level VET

37

While few countries explicitly address gender stereotypes, some have launched

initiatives to build more gender-inclusive VET systems112. These include support for

women in sectors where they are underrepresented and efforts to challenge gender stereotypes

in education and the workplace through awareness raising, mentoring, career guidance, and

financial incentives such asscholarships or fully funded programmes. Some countries also

provide flexible training options and support the development of entrepreneurial skills,

particularly for disadvantaged women.

Fostering gender equality in apprenticeships: Austria

In Austria, since 2016, the Austrian Economic Chamber, on behalf of the Federal Ministry of

Digital and Economic Affairs (BMDW), has offered up to 100% financial support for

initiatives aimed at improving the quality, gender balance, and social integration of

apprenticeship programmes. A core focus has been on supporting the placement and

successful completion of apprenticeships for young women and men in fields where their

gender is underrepresented (30% or less).

Additionally, the project ‘Women Entrepreneurs Go to School‘ encourages girls to explore

entrepreneurial paths by connecting them with female business leaders and promoting

leadership opportunities in non-traditional sectors. The ministries and institutions involved

planned to initiate at several relevant measures, some of which are already in progress or are

being implemented, and which are especially relevant VET including the establishment of the

SMART training firm pilot in VET schools.

Source: Cedefop & ReferNet. (2025).

3.6 VET is underpinned by a culture of quality assurance

Quality assurance (QA) in VET is essential for building trust, consistency, and

transparency across the different systems in the EU. It guarantees that qualifications

remain relevant to global labour market demands and rapid technological changes, making

them transferable across countries.

Half of countries113 worked on this priority and have shown progress. Countries worked

on establishing or developing QA frameworks and processes in line with the European

Quality Assurance Reference Framework for Vocational Education and Training (EQAVET)

principles, albeit mostly in IVET and mostly building on the work started in the previous

periods. QA in WBL and apprenticeships in IVET are still being developed at national level.

The policies to promote QA include developing external evaluation processes, including in

WBL114, strengthening self-assessment by VET providers115 and introducing graduate

tracking as part of their overall QA system116. QA for WBL has been advanced through self-

112 AT, BE-NL, CY, DE, DK, FR, MT, NL, and SI. 113 AT, BE-FR, BE-NL, CY, EE, FR, HR, HU, LT, LV, PL, PT, RO, SI, and SK. 114 BE-NL, CY, EE, HU, IT, LT, LV, MT, PL, PT, and RO. 115 HU, LV, SI, and SK. 116 HR, HU, LV, and SK.

38

assessment tools for apprentice training centres, WBL-specific QA principles and indicators,

verification procedures and accreditation methodologies for companies. Moreover, some

countries strengthened QA in CVET, higher VET and adult education117 by introducing self-

assessment and external assessment of adult education providers and introducing a quality

label for CVET providers. Some have also expanded accreditation of providers and

programmes to non-formal and informal VET provision118.

Key trends in further developing national QA systems include the adoption of new strategies

and legislation that address both IVET and CVET, aligning national QA systems with

EQAVET, setting quality awards and incentives to providers for continuous quality

improvement119. Since 2022, many countries participated in EQAVET peer reviews, as

stipulated in the 2020 Council Recommendation on VET, aiming at sharing best practices,

providing mutual learning opportunities, furthering the development of quality assurance and

promoting trust in VET systems among EU Member States. Specifically, 21 countries hosted

a peer review in the first cycle (2022–2023), and 20 peer reviews are taking place in the

second cycle (2024–2026), enabling the collection of targeted feedback from peer countries

on specific quality assurance arrangements in host countries.

Further development of QA: Lithuania and Slovenia

Lithuania has launched the IT platform ‘Coursework’ by the Ministry of Education and

Sports to facilitate individual learning accounts. This platform focuses on QA, ensuring that

training providers maintain high standards. Training providers listed on this platform are

subject to regular quality checks and validation by responsible institutions, leading to an

overall improvement in the quality of VET programmes across the country.

In Slovenia, the Institute of the Republic of Slovenia for Vocational Education and Training

(CPI) is actively working with the Ministry of Education to promote QA in VET. It is working

with school principals and the directors of VET schools to establish QA systems. It also

implemented an activity which is called ‘networking for quality’ for VET schools’ through

which schools present to other schools their achievements in the field of QA and learn from

each other. The same approach applies to WBL and apprenticeships. Slovenia also actively

participates in the EQAVET peer reviews.

Source: Cedefop & ReferNet. (2025).

4 Governance at national level

Stakeholder involvement plays a crucial role in VET and skills governance and

implementing policies. Countries continue to increase this involvement and institutionalised

cooperation at all levels between governments, businesses, VET providers, experts and the

117 AT, FR, HR, LV, PT, and RO. 118 BE-NL and CY. 119 BE-FR, BE-NL, EE, HR, HU, LT, LV, PL, SI and SK.

39

social partners, whose participation is of great importance in most reported policy

developments.

However, governance and coordination remain fragmented. Responsibilities for VET and

upskilling and reskilling are frequently spread across multiple ministries, institutions and

governance levels and require strong coordination frameworks and actions, which are often

inefficient, or non-existent. In combination with heavy and lengthy bureaucratic processes and

resistance to change, fragmented and uncoordinated work can delay reforms and innovation

and limit agile response to the evolving challenges. Several countries98F120 have worked on

establishing and developing formal stakeholder engagement mechanisms by setting up

national platforms, activating advisory councils, and strengthening the role of sectoral

committees and expert councils in shaping VET policy and programme content. In addition to

formal cooperation, many countries fostered informal cooperation121 through partnerships,

networks and awareness raising campaigns.

Social partners participate across Member States in policy development and reform,

curriculum development, quality assurance, funding and resource allocation, and in providing

career guidance as mentioned in the relevant sections of this report. Employers tend to voice

the skill demands in revising occupational standards and VET curricula and make WBL

possible while trade unions, in some countries, advocate learner rights, quality of learning and

access and equality issues. It is observed that trade union representatives are less frequently

involved than employer organisations at the level of implementation (Cedefop & ETF, 2025).

There is scope to further expand the role of both of employer organisations and trade unions,

in the implementation of measures, in particular on skill intelligence and identification of skill

needs, provision of apprenticeships and employment opportunities for vulnerable groups,

reskilling and upskilling, and the recognition and validation of non-formal and informal

learning.

5 EU level support actions, funding and governance

The EU has advanced a comprehensive framework of VET policies and initiatives to

strengthen VET across Member States. Key initiatives include the EAfA to enhance the

supply, quality, and image of apprenticeships, as well as to promote the mobility of

apprentices; the Erasmus+ CoVEs to foster innovation, skills development, and regional

cooperation; and measures to raise VET attractiveness through campaigns, events, and

forward-looking projects.

The development of micro-credentials and the use of transparency tools such as Europass

have supported lifelong learning, employability and the recognition of skills across borders.

International cooperation, including engagement with candidate countries, the Eastern and

Southern neighbourhoods, and various global organisations such as the

United Nations Educational, Scientific and Cultural Organization (UNESCO), the

120 BE-FR, BE-NL, CY, EL, FR, HU, IT, LT, LU, LV, MT, PL, PT and RO. 121 BE-FR, BE-NL, BG, CY, DE, DK, EE, ES, FR, HU, IT, LT, LV, NL, PL, PT and RO.

40

International Labour Organization (ILO), and the Organisation for Economic Co-operation

and Development (OECD), has ensured alignment of EU VET policy with global best

practices. VET policies have been closely linked to broader priorities such as the green and

digital transitions, with initiatives targeting the development of relevant skills, integration of

advanced technologies, and digitalisation of VET systems. Substantial funding from

Erasmus+ and ESF+ have supported mobility, institutional modernisation, inclusive VET

provision, and alignment with labour market needs.

5.1 European Alliance for Apprenticeships

The Commission continued to promote the supply, quality and image of apprenticeships,

as well as the mobility of apprentices through EAfA. Since its launch in 2013, EAfA

members have pledged to provide over 5.1 million apprenticeship opportunities. More than

530 pledges from umbrella organisations, large businesses, SMEs, education and training

providers and sectoral social partners, have been made in total, of which 180 were between

2021 and 2025. 43 national commitments were made by governments from all over Europe

and beyond of which 7 since 2021. The EAfA has facilitated networking, cooperation and

sharing of good practices, with Cedefop and ETF providing strategic expert support. As a

follow-up action of the 2018 Council Recommendation on a European Framework for Quality

and Effective Apprenticeships, the Commission provided technical support to Member States

within the Benchlearning process to launch new or reform existing apprenticeship schemes. A

total of 14 Member States took part in a series of online meetings and a country visit between

2020 and 2022. Since 2020, there have been synergies between EAfA and the Pact for Skills

in terms of membership and different actions and events. As announced in the communication

for the Union of Skills, the reinforced Pact for Skills will improve linkages between skills

initiatives, including, among others, EAfA and the CoVEs.

5.2 Centres of vocational excellence (CoVEs)

The Erasmus+ CoVEs are international collaborative networks that bring together local and

regional VET stakeholders (VET institutions, employers, social partners, authorities, higher

education institutions, etc.) in public-private partnerships, thereby creating comprehensive

skills ecosystems for innovation, regional development, and social inclusion and supporting

European competitiveness. The CoVEs initiative is firmly anchored in the European Pillar of

Social Rights, the European Green Deal, and the Digital Decade policy programme. It

supports the industrial and SME strategies, the Council Recommendation ‘Europe on the

Move’ – learning mobility opportunities for everyone, the STEM education strategic plan and

the Clean Industrial Deal.

The CoVEs have developed innovative VET practices, e.g. for use of digital technologies

including AI, to develop skills for the green and digital transitions, to contribute to VET

attractiveness and inclusion and applied research, and to facilitate mobility and

apprenticeships and the professional development of teachers and trainers. They also work on

validation and recognition of skills, micro-credentials and qualifications as well as graduate

tracking systems.

41

In the period 2021-2027, the Erasmus+ programme is allocating an indicative budget of

EUR 400 million for the creation of and the collaboration among CoVEs, signifying a

strong commitment to vocational training excellence across Europe. From 2021 to 2024, 57

CoVEs projects benefited from Erasmus+ programme funding, each contributing to the

regional and sectoral development of vocational excellence. In the 2025 call, at least 15 new

Erasmus+ projects will be selected and launched.

An analytical report on the CoVEs122 showed that the CoVE initiative has emerged as a

powerful driver of systemic change in VET, acting as a structural enabler of transformation by

modernising curricula, fostering ecosystems of collaboration, and contributing to EU policy

priorities relating to VET attractiveness, upskilling and reskilling, digitalisation,

environmental sustainability and inclusion.

CoVEs are also enhancing the quality and relevance of VET through modular programmes,

micro-credentials, stakeholder collaboration on identifying labour market needs, and applied

research by enhancing the capacity of SMEs to become more competitive. They innovate

pedagogies such as challenge-based learning, AR/VR simulations, and blended formats – all

directly aligned with industry demands. In this context, CoVEs are strategic drivers of

resilient and future-proof skills ecosystems, as highlighted in the Draghi and Letta reports.

Erasmus+ CoVEs have fostered upward convergence, through collaboration among

organisations at different levels on their path towards vocational excellence. Some CoVEs

have learned from their more developed partners, pioneering more systematic transnational

cooperation between CoVEs to address European skills needs in targeted sectors and

occupations.

5.3 VET attractiveness

Several activities have been undertaken to improve the image of VET. Since 2016, the

European Vocational Skills Week has taken place to raise the attractiveness of VET and to

showcase good practices, focusing on themes such as VET and the green transition in 2022. In

2023, there was a call under Erasmus+ forward-looking projects with a priority on VET

attractiveness. Several projects were selected under this priority and ran until 2025. Other

actions to promote VET attractiveness included the organisation of events such as the ‘Forum

on Vocational Excellence’ which took place in September 2024 and the ‘Meet the Champions’

event that took place in February 2024 to encourage young people to choose VET as an

effective learning and career path.

5.4 Other VET relevant initiatives/developments

5.4.1 Micro-credentials

In June 2022, the Council Recommendation on a European Approach to micro-

credentials for lifelong learning and employability was adopted. It proposes a common

122 European Commission (2025) Advancing European Centres of Vocational Excellence (CoVE): An analysis of

Erasmus+ projects: report. Luxembourg: Publications Office of the European Union. Available at:

https://op.europa.eu/en/publication-detail/-/publication/ea56f110-f678-11f0-b9bc-01aa75ed71a1/language-en

42

definition, standard elements to describe a micro-credential and a list of guiding principles to

design and issue micro-credentials. This common EU approach was intended to boost the

comparability, trust and uptake of micro-credentials in the EU and includes specific references

to VET. Following this Council Recommendation, the European Commission organised

several peer learning activities to facilitate sharing of good practices among Member States

around different topics related to VET and the labour market, after which a synthesis report

was officially published. Cedefop has continued its extensive research on micro-credentials,

also focusing on VET and the labour market.

The development of micro-credentials in line with the EU approach has been supported by

EU funds, including the ESF+, ERDF, RRF and Erasmus+. Under the Technical Support

Instrument (TSI), in 2023 Hungary and in 2024 Czechia have received support to develop

national frameworks for micro-credentials in line with the EU approach123. The European

Commission has launched a questionnaire for Member States to inform on their progress on

the implementation of the Council Recommendation, covering also VET and the labour

market. A report based on this data will be published soon.

5.4.2 Transparency tools

Europass is a European tool that helps people communicate their skills, qualifications

and experiences. The Europass platform was relaunched on 1 July 2020 as one of the

flagship actions of the 2020 European Skills Agenda. Users, including VET learners, can use

Europass to record their skills, store files, receive tailored job and learning suggestions via

EURES and prepare CVs and cover letters. The tool also allows users including VET learners

to share their profile with prospective employers and VET institutions, and to discover in-

demand skills and occupations across Europe. As part of the Europass framework, the

Commission has developed a set of software and services for education and training

institutions to issue authentic, tamper-proof digital credentials (e.g. qualifications, diplomas,

certificates). European Digital Credentials for Learning can support ‘paperless’ processes

and the easier recognition and understanding of qualifications and credentials across the EU.

Some VET providers have started to make use of the tool to digitalise VET certificates.

Europass Mobility, first introduced in 2004, is a well-established template which describes the

skills acquired abroad during mobility experiences for learning or work in a way that allows

for easy comparison. Following a consultation of the National Europass Centres and

Erasmus+ National Agencies in 2021, a project group was set up to modernise and simplify

the template and to pave the way for its digitisation. The revised template makes it possible to

use Europass standards throughout the whole cycle of mobility activities, from preparation to

follow-up. This was achieved by combining and aligning the existing Europass Mobility

template with the learning agreement model from Erasmus+, creating a single document for

both pre- and post-mobility.

123 Project description summaries are available online: https://reforms-investments.ec.europa.eu/technical-

support-instrument-0/skills-education-and-training/developing-single-micro-credential-system-facilitate-

lifelong-learning-hungary_en and https://reforms-investments.ec.europa.eu/technical-support-instrument-

0/labour-market-and-social-protection/towards-harmonised-micro-credential-ecosystem-czechia_en.

43

At EU level, the European vocational core profiles have existed since the Erasmus+

programme started to provide support to Sector Skills Alliances and their joint developments.

The interest in the concept of European vocational core profiles has become more pronounced

when it featured both in the 2020 Council Recommendation on VET and in the European

skills agenda, setting out that that ‘European vocational core profiles would define a certain

share of a common training content at European level’ with the goal of supporting excellence

and internationalisation of VET.

Between 2021 and 2022, the Commission carried out a study to develop the concept and

explore technical feasibility of developing European vocational core profiles. The main idea

for the European vocational core profiles was to compare the content of qualifications, find

the common part and show to which extent VET qualifications are similar/identical. The idea

was to increase transparency and facilitate acceptance and recognition of qualifications. The

ACVT discussed the suggestions of the exploratory study and decided to put this work on

hold due to the lack of support of the ACVT members, and in particular of the government

and workers representatives. Since then, development of common training content continues

to be supported in specific areas through the Erasmus+ Blueprint Alliances.

In the Political Guidelines 2024-2029, the intention to put forward a Skills Portability

Initiative was announced. In March 2025, the European Commission announced the Skills

Portability Initiative as part of the Union of Skills. Action 1 of the Skills Portability Initiative

aims to remove barriers to workers’ mobility in non-regulated professions and facilitate

digitalised portability of qualifications and skills. Action 2 aims to modernise and streamline

the existing recognition processes under Directive 2005/36/EC for access to regulated

professions, including through leveraging digital tools and by expanding automatic

recognition to additional professions. Action 3 explores setting common rules for recognising

qualifications and validating skills for people from outside the EU. This will ensure that they

do not have to deal with 27 fragmented systems.

5.4.3 International cooperation

By end of 2025, a total of 43 governments had joined EAfA, through national commitments,

many of them being EU candidate countries as well as Eastern and Southern neighbourhood

countries. EAfA is gradually becoming a reference in the development of national

apprenticeship policies in these countries, including through the annual organisation of the

EAfA-ETF joint seminars that focus on apprenticeships in countries outside the EU.

Ongoing cooperation and policy coordination and exchanges with international organisations

have taken place through the Inter-Agency Group on Technical and Vocational Education

and Training (IAG-TVET) and its four working groups (focused on career guidance, the

future of technical and vocational education and training (TVET), skills mismatch in digitized

labor markets, and work-based learning). The IAG-TVET brings together key international

organisations involved in the delivery of policy advice, programmes and research on VET

(e.g. UNESCO, OECD, and the World Bank). Beyond the joint products by the working

groups, there has been close bilateral cooperation with international organisations. For

example, the 2018 Council Recommendation on a European Framework for Quality and

44

Effective Apprenticeships served as a model for the ILO when developing the apprenticeships

standards (ILO Recommendation nr 208) in 2023. The European Commission is also part of

the Conference Coalition of the WorldSkills International Conferences which aims to elevate

TVET to the top of the global policy agenda.

In 2024 and 2025, the Commission also collaborated with the OECD to explore the

potential benefits and risks of using AI to support VET learners. The projects in question

focused on the role that AI and other advanced technologies can play in supporting

neurodivergent VET learners and in helping update VET curricula and professional

qualifications. The reports of these projects are expected to be published in the course of

2026.

ETF regularly collects information relevant for the point on ‘Supporting internationalisation

of vocational education and training systems also with regard to EU candidate countries and

to European Neighbourhood countries’ in the 2020 Council Recommendation on VET. In

most countries, the internationalisation of VET is recognised as a priority, it is backed up by

legal and strategy documents, and deployed through participation in international processes

(such as the Copenhagen process, recognition of qualifications) and projects (notably

Erasmus+ and the establishment of CoVEs), although structural barriers such as limited

capacity, funding limitations and language barriers make its implementation limited and

uneven.

For CoVEs, ETF has set up the ENE network to facilitate international peer exchange and

peer learning. In the ENE Atlas | Open Space it is possible to see from which countries

members are coming. ETF provides policy advice activities on centres of vocational

excellence to foster international peer exchange and peer learning. In 2026, ETF has dedicated

strands of works with Moldova, Jordan, Ukraine, Montenegro, Algeria and North-Macedonia.

5.5 Alignment of VET policy to other relevant policy areas

VET has an important role to play in many relevant policy areas, notably those related

to the green and digital transition but also in provision of training, reskilling and

upskilling which are fundamental for citizens and workers to succeed in the twin

transition124. As stressed in the Green Deal industrial Plan and in the European skills agenda,

and more recently in the Competitiveness Compass, Clean Industrial Deal and Union of

Skills, being prepared for the green and digital transition means that workers will need new

skills and competences, many of which can be delivered through VET.

The relevance of VET has also been highlighted in several Council Recommendations

related to the green and digital transition. The 2022 Council Recommendation on learning

for the green transition and sustainable development125 invites Member States to support VET

124 González Vázquez, I., Milasi, S., Carretero, S., Napierała, J., Robledo Bottcher, N., Jonkers, K., Goenaga

Beldarrain, X. et al. (2019) The changing nature of work and skills in the digital age. Luxembourg: Publications

Office of the European Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC117505 125 Council of the European Union (2022) Council Recommendation of 16 June 2022 on learning for the green

transition and sustainable development (2022/C 243/01). Official Journal of the European Union.

45

and other education providers in integrating, where appropriate, the green transition and

sustainable development across all their activities and operations. The 2022 Council

Recommendation ensuring a fair transition towards climate neutrality126 recommends

ensuring the provision of high-quality accessible, affordable and inclusive initial education

and training, including in VET. The 2023 Council Recommendation on the provision of

digital skills and competences in education and training127 recommends seeking a coherent

and age-appropriate approach to the provision of digital skills and competences throughout all

levels and types of education and training including VET.

Since 2021, the European Education Area (EEA) Working Group on VET and the Green

Transition has been devoted to this topic by bringing together Member States, candidate

countries and other stakeholders such as social partners for technical exchanges. In July 2025,

the Commission published the final report of the Working Group128 which presents key

insights and lessons from its peer learning activities, webinars and regular meetings. It also

draws on the two editions of its Compendium of Inspiring Practices in 2023129 and 2024130,

which provide over 120 examples of concrete policies and practices from across Europe.

VET’s digital transformation is essential for maintaining competitiveness and to

leverage digital opportunities. In 2021, the Commission launched a module for work-based

learning under the SELFIE131 (self-reflection on effective learning by fostering the use of

innovative educational technologies) tool. The aim is to help VET schools and companies that

offer work-based learning improve the way they use digital technologies in their training and

apprenticeship programmes.

Between 2021 and 2023, under the Digital Education Action Plan, a structured dialogue on

digital education and skills was held between the Commission and EU countries, to help

Europe deliver on the targets for 2030 under the Digital Decade policy programme. This

dialogue included in-depth meetings with all 27 Member States on the status of digital

education and skills, also focusing on the VET sector. During a workshop in March 2024132,

126 Council of the European Union (2022) Council Recommendation of 16 June 2022 on ensuring a fair

transition towards climate neutrality (2022/C 243/04). Official Journal of the European Union. 127 Council of the European Union (2023) Council Recommendation of 23 November 2023 on improving the

provision of digital skills and competences in education and training (2023/C 414/01). Official Journal of the

European Union. 128 European Commission (2025) VET’s role in the green transition: Transformative practices for tomorrow’s

workforce: final publication of the Working Group on VET and the green transition. Luxembourg: Publications

Office of the European Union. Available at: https://op.europa.eu/en/publication-detail/-/publication/398179fd-

5880-11f0-a9d0-01aa75ed71a1/language-en 129 European Commission (2023) Vocational education and training and the green transition: A compendium of

inspiring practices. Luxembourg: Publications Office of the European Union. Available at:

https://op.europa.eu/en/publication-detail/-/publication/9ffbca44-0e5d-11ee-b12e-01aa75ed71a1/language-en 130 European Commission (2024) VET and the green transition: A compendium of inspiring practices (2024

edition). Luxembourg: Publications Office of the European Union. 131 European Commission (n.d.) SELFIE for work-based learning. Available at:

https://education.ec.europa.eu/selfie/selfie-for-work-based-learning 132 Herrero, C., Villar Onrubia, D., Cosgrove, J., Kluzer, S., Centeno, C., Castaño Muñoz, J., Romero Rodríguez,

S., Moreno Morilla, C., Weikert García, L., Arroyo Sagasta, A., Zubizarreta Pagalday, A., Wisniewski, D. and

Fabe, N. (2024) Digital transformation of vocational education and training (VET) workshop. Luxembourg:

46

the Commission also promoted the use of the European Digital Competence Framework

(DigComp133), which was updated in 2025, by VET institutions to frame digital skills

development and assessment. In July 2025, the European Commission published a report

about the enablers for VET's digital transformation, emerging trends134, and the use of the

SELFIE tool to foster collaboration between VET institutions and companies. In 2025, to

better understand the implications of AI integration in VET and to inform the upcoming

European Strategy for VET, the Commission also launched some explorative work to analyse

use cases on the use of AI in VET. This was joint work between the Directotate-General of

Employment, Social Affairs and Inclusion and the Joint Research Centre at the European

Commission and included insights from Cedefop and the OECD. The goal is to draw

evidence-based conclusions from the field to understand how AI can be safely and effectively

integrated in VET.

5.6 EU funding for VET

5.6.1 Erasmus+

The 2021-2027 Erasmus+ programme substantially reinforced its support for VET, with

21,5% of the education and training budget going to learning mobility of VET learners

and staff as well as partnerships for cooperation in this sector. Since 2021, the programme

has supported learning periods abroad for 768 000 VET learners and staff, and almost 6 000

VET organisations have been accredited to provide mobility opportunities. In addition to

these opportunities, the programme has supported the creation of more than 57 CoVEs,

fostering more cooperation between companies and VET providers and the VET ecosystems

at local, national and European levels. Erasmus+ has also supported numerous innovative

projects aimed at matching the provision of skills to labour market needs, updating curricula

and educational programmes in line with the green and digital transitions and improving the

employability and entrepreneurship in VET (through policy experimentation, alliances for

innovation and forward-looking projects).

The 2024 annual work programme of Erasmus+ included an action under ‘European policy

experimentations’ to promote support structures and networks for apprentices’ mobility, as

well as to develop ways to overcome the obstacles preventing girls and women from pursuing

a VET career in the green/Net-Zero Technology sector. Six projects were selected to promote

apprentice mobility structures and networks, and four projects were selected to support girls

in green VET careers.

Publications Office of the European Union. Available at:

https://publications.jrc.ec.europa.eu/repository/handle/JRC138603 133 Cosgrove, J. and Cachia, R. (2025) DigComp 3.0: European Digital Competence Framework (Fifth edition).

Luxembourg: Publications Office of the European Union. Available at:

https://publications.jrc.ec.europa.eu/repository/handle/JRC144121 134 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881

47

VET mobility activities supported by Erasmus+ have contributed to strengthening the

resilience and capacity of national VET systems. Demand for VET mobility continues to be

much higher than what can be funded. . Between 2021 and 2025, the budget for VET mobility

under Erasmus+ Key Action 1 increased in line with the legal percentage established in the

Erasmus+ Regulation. Despite these increasesmost Member States maintained high efficiency

in absorbing the funding. This shows that, non-withstanding the barriers identified by the

Europe on the Move Communication, the institutional capacity to scale up mobility

opportunities and meet the growing demand for VET has increased.

5.6.2 Cohesion policy funds: European Social Fund Plus (ESF+), European

Regional Development Fund (ERDF) and Just Transition Fund (JTF)

It is estimated that during the period 2021-2027, EUR 62.2 billion together with national co-

financing across EU Member States, including an EU contribution of EUR 40.4 billion from

the European Social Fund Plus (ESF+) and a total of EUR 12.1 billion from ERDF (including

Interreg), with EUR 8.6 billion of EU contributions, are programmed to fund measures,

infrastructure and reforms for education, training and skills policies, including VET, which

are planned in almost all Member States. This underscores the importance of cohesion policy

funds, such as the ESF+ as the main EU budget source supporting education, training and

labour market skills measures. Funded measures include the financing of VET institutions,

reforms of VET systems, the digitalisation of VET and measures aiming at making VET more

inclusive.

Specifically, Member States are using the ESF+ to adapt VET to the needs and expectations of

young people and the labour market135, to support reforms or further improvement of the

vocational qualification system136 and to apply digital solutions to promote the quality and

accessibility of vocational education137. Another area of support is offering scholarships or

social and financial incentives to pupils of VET institutions138. The ESF+ is also used to

provide professional training for adults, including jobseekers139. Poland provides vocational

training to help people with (chronic or rare) illnesses, disabilities or mental health disorders

to return to work. Germany offers low-threshold vocational preparation for young adults who

are not yet ready for training. Support is also focused on the provision of apprenticeships or

internships140, including in rare/dying out141 and green142 professions. Several Member States

integrate digital tools and science, technology, engineering, art and mathematics (STEAM)

skills in apprenticeships143.

135 BE, CY, EE, LU, PL, SK and SI. 136 EE, FR and SE. 137 LV and EL. 138 EL, ES, LT and PL. 139 DE, ES, FR, NL, PL, RO and SI. 140 AT, CZ, DK, EL, FR, IT, MT, NL, PL, PT, RO and SK. 141 FR and PL. 142 FR. 143 BE, CZ and PL.

48

Since 2020, the ESF and the ESF+ have also provided support for VET across Member States.

For example, the ESF+ is investing over EUR 1.5 billion in VET in Portugal by 2027, a

significant commitment aimed at expanding training opportunities. As of 2024, the ESF+ had

supported over 101 000 VET students since 2021 and aims to support at least 366 000 by

2029144. Funded by the ESF, the Marijampole VET school works with local industry partners

to tackle skills shortages in Lithuania. It supported nearly 2000 VET students in the period

2020-2022. In La Rinconada, just outside Seville in Spain, the ESF+ is supporting a new VET

centre in aircraft engineering. More than 23 500 students across the region are expected to

benefit145.

Moreover, the European Regional Development Fund is supporting VET through direct

investments in infrastructure, equipment, skills development, including in the area of cross-

border cooperation, in particular for the benefit of SMEs. In the case of Greece and Croatia,

CoVEs are being financed by ERDF resources. The Just Transition Fund (JTF) is being used

to enhance VET and support infrastructure across the EU.17

5.6.3 Recovery and Resilience Fund and Technical Support Instrument

Reforms and investments related to adult learning and skills, included in Member States’

recovery and resilience plans (RRPs) amount to around EUR 37.1 billion146 while reforms and

investments in general, vocational and higher education amount to around EUR 43.4

billion147.

Reforms receiving support from the RRF have seen significant progress over the years148. For

example, in Bulgaria, as part of its RRP, the regulatory framework for VET is being amended

to support the adaptation of VET to the labour market needs. Throughout 2023, Spain worked

under its RRP on the digital transformation, innovation, and internationalisation of VET, by

investing in digital and green training of VET teachers and creating a network of 50 centres of

excellence stimulating research and innovation. In Lithuania, an apprenticeship and work-

144 European Commission (2024) Transforming vocational education in Portugal: A strategic investment for a

skilled workforce and a competitive economy. Available at: https://european-social-fund-

plus.ec.europa.eu/en/news/transforming-vocational-education-portugal-strategic-investment-skilled-workforce-

and 145 European Commission (2025) Training for take-off: Preparing young people for careers in aircraft

engineering. Available at: https://european-social-fund-plus.ec.europa.eu/en/projects/training-take-preparing-

young-people-careers-aircraft-engineering 146 Figure as of 15 April 2026. Data is based on the pillar tagging methodology for the Recovery and Resilience

Scoreboard and corresponds to the measures allocated to the ‘adult learning, including continuous VET and

recognition and validation of skills’, ‘human capital in digitalisation’ and ‘green skills and jobs’ policy areas as

primary or secondary policy areas. These figures are based on the ex ante estimated cost of the relevant RRF

measures. 147 Figure as of 15 April 2026. Data is based on the pillar tagging methodology for the Recovery and Resilience

Scoreboard and corresponds to the measures allocated to the ‘general, vocational and higher education’ policy

area as primary or secondary policy area. These figures are based on the ex ante estimated cost of the relevant

RRF measures 148 European Commission (2025) REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT

AND THE COUNCIL on the implementation of the Recovery and Resilience Facility (COM(2025) 637 final);

European Commission (2025) Recovery and Resilience Scoreboard, Thematic Analysis on adult learning and

green skills; Thematic Analysis on Education; Joint Employment Reports 2024 & 2025.

49

based learning support scheme with a particular focus on small and medium-sized enterprises

was set up under its RRP following the adoption of the apprenticeship scheme in September

2022. Poland has been investing EUR 360 million from the RRF to set up 120 sectoral skills

centres. The centres, introduced formally into the Polish education system, are acting as links

between schools, universities, and specific industries, to support implementing its reform to

improve the relevance and quality of VET. In addition, 16 regional coordination teams have

been set up to make sure what is being taught matches what local businesses need.

Member States have also applied for technical support to reform their VET systems, focusing

on modernising frameworks, improving quality assurance, enhancing governance and

attractiveness, and developing innovative funding models and skill roadmaps. Since 2020, the

TSI149, supported 20 projects in 12 Member States for a total of EUR 9 073 350.

5.7 Governance of the EU level VET policy framework

The EU’s VET policy framework is underpinned by a network of collaborative

structures designed to ensure coherence, quality and adaptability. Central to this

framework are key bodies such as the ACVT, the Directors-General for Vocational Training

(DGVT), the Expert Group of EU Level Associations of VET Providers, and the EQAVET

network. These entities have served as forums for structured dialogue, coordination and

implementation of the priorities set out in the 2020 Council Recommendation on VET since

its adoption, while ensuring inclusive stakeholder engagement at the EU level. They have

been instrumental in facilitating regular exchanges between Member States and other

stakeholders such as VET providers and social partners about their responses to common

challenges in line with the EU policy framework. The tripartite nature of the ACVT has also

helped to ensure that VET policies remain closely aligned with the 2020 Council

Recommendation on VET in an inclusive way that is responsive to the needs of both VET

systems and labour markets. This collaborative approach has strengthened the legitimacy and

coherence of EU VET initiatives.

5.7.1 Advisory Committee for Vocational training (ACVT)

Since its creation in 1963, and in accordance with Article 2 of Council Decision 2004/223/CE

of 26 February 2004, the ACVT assists the Commission in implementing EU VET policy. The

ACVT is a forum where Member States, social partners and the Commission exchange

information, discuss and steer policy on VET, as well as on skills and qualifications.

Particularly for the purpose of the 2020 Council Recommendation on VET, since 2020 the

ACVT has annually discussed the progress in implementing the Recommendation based on

the input from Cedefop and the ETF.

As requested by the 2020 Council Recommendation on VET, the ACVT rolling work

programme is shared and updated for each ACVT meeting to monitor the objectives laid

down in the skills agenda, the 2020 Council Recommendation on VET and the Osnabrück and

149 While the Structural Reform Support Programme (SRSP) operated from 2017 to 2020, it was succeeded by

the Technical Support Instrument (TSI) which runs from 2021 to 2027.

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Herning Declarations, as well as the Union of Skills launched in 2025. This allows the ACVT

to assess progress, ensure coordination between the different work strands (including the links

with the EEA), and provide additional steering where needed.

5.7.2 Directors-General for Vocational Training (DGVT)

The DGVTs meet every six months, once during each EU presidency. The meetings are

prepared and co-chaired by the Presidency and the Commission and serve to discuss topics

related to EU VET policy including the priorities set out in the 2020 Council

Recommendation on VET. The DGVT meetings are attended by high-level civil servants

responsible for VET and adult learning in the participating countries (EU Member States, 9

Candidate and 4 EEA countries) and the 4 EU-level social partners (BusinessEurope, ETUC,

SGI Europe, and SMEunited). TheDGVTprovides a forum to discuss ongoing policy

initiatives at the European level. The main role of the DGVT is to support the development

and implementation of VET and adult learning policies and to follow up on the priorities

established in the framework of the Copenhagen Process through the 2020 Council

Recommendation on VET and the Osnabrück Declaration, which from 2026 will be replaced

by the Herning Declaration.

5.7.3 Expert group of EU level associations of VET providers

The Commission expert group Platform of European Associations of VET Providers was

created in 2015 to obtain a structured dialogue at the European level with VET providers as

well as higher VET/professional education and training institutions at higher levels. The main

purpose of the VET providers expert group is to advise and support the Commission in the

field of VET, to allow its members to inform the Commission of the associations’ involvement

in initiatives and projects at EU level and to discuss the latest developments related to the

European VET policy. Since 2020, the focus of the expert group concerned different aspects

related to the implementation and monitoring of the 2020 Council Recommendation on VET.

5.7.4 EQAVET network

EQAVET was established in 2009 and updated by the 2020 Council Recommendation on

VET. It supports continuous quality improvement in VET systems across Europe. It offers a

set of indicative descriptors and common quality indicators enabling Member States and VET

providers to develop, monitor and improve the quality, effectiveness and labour-market

relevance of VET provision.

Since 2020, the implementation of EQAVET has been strengthened through a more structured

approach to cooperation and capacity building. EQAVET peer reviews of quality assurance

arrangements at VET system level have been implemented, helping countries identify

strengths and areas for improvement. These peer reviews have encouraged the use of learning-

outcome-based evaluation, stakeholder involvement and continuous improvement cycles.

Recent work under EQAVET has supported the priorities of the 2020 Council

Recommendation on VET, including improving quality assurance for apprenticeships and

strengthening the use of data for monitoring and evaluation. In addition, several EQAVET

51

peer learning activities have focused on topics high on the EU policy agenda, such as micro-

credentials, citizenship education and basic skills, further promoting shared approaches to

emerging challenges in VET.

5.8 Monitoring of the implementation of the 2020 Council

Recommendation on VET

The 2020 Council Recommendation on VET invites the Commission to ‘report to the Council

on the implementation of the Recommendation every five years, building on data available at

national and European level and annual monitoring by Cedefop’.

The 2020 Osnabrück Declaration reaffirmed the role of Cedefop – and the ETF and tasked the

agencies to monitor implementation of the agreed actions and report annually to the ACVT

and DGVT. The ACVT agreed on an integrated process by combining the monitoring of the

implementation of the 2020 Council Recommendation on VET and of the Osnabrück

Declaration, and entrusted Cedefop and the ETF with this exercise.

The Herning Declaration, agreed by the ministers responsible for VET of countries

participating in the Copenhagen process in September 2025, confirms the current monitoring

arrangements, as it ‘call[s] upon Cedefop and the ETF to continue supporting the Commission

and countries by monitoring and analysing the implementation of agreed actions and reporting

regularly to the Advisory Committee on Vocational Training and the Directors-General for

Vocational Education and Training’. Since 2021, Cedefop and the ETF report once per year

(the ACVT meets twice a year) on the implementation of countries’ national implementation

plans. This annual monitoring has contributed to the five-yearly reporting by the Commission.

6 Conclusions

6.1 General challenges in the implementation of reforms in VET

The analysis of the implementation of VET priorities across EU countries reveals some

common and interconnected institutional, financial and cultural barriers that cut across all the

priorities and hinder modernisation of VET systems. This section highlights these more

general, cross-cutting challenges.

All Member States report measures to allow their VET systems to be agile in adapting to

labour market change driven by factors such as the transition to climate neutrality and

technological transformation (Priority 1). Approaches vary greatly, from

Bulgaria and Slovakia's Centres of Vocational Excellence on the twin digital and green

transition to Belgium, Austria, Germany, Poland, Sweden, Slovenia, and Spain experimenting

with AI and immersive technologies in VET150. However, certain cross-cutting challenges

prevent or slow down the agile response to changes in the labour market. Responsibilities for

150 Cedefop (2025) National VET reforms: accelerating progress to meet renewed EU priorities. Available at:

https://www.cedefop.europa.eu/en/news/national-vet-reforms-accelerating-progress-meet-renewed-eu-priorities

52

VET and upskilling and reskilling are frequently spread across multiple ministries, institutions

and governance levels and require strong coordination frameworks and actions. These are

often not in place, and even when they are they can be inefficient. While the exact

institutional setup differs by country, responsibilities for VET are shared between the

Ministries of Education, the Ministries of Labour/Employment/Social Affairs and Ministries

of Economy/Industry. Combined with onerous and lengthy bureaucratic processes and

resistance to change, fragmented and uncoordinated work can delay reforms and innovation

and limit agile responses to evolving challenges.

In terms of priority 2 (Flexibility and progression opportunities being at the core of

VET), countries have worked on making their VET systems more flexible, ensuring

learning progression and contributing to lifelong learning (LLL), but some challenges

remain. Progress is mixed in areas such as green skills, where many countries reference

sustainability in their NIPs but implement fewer concrete actions. Micro-credentials and

partial qualifications are gaining ground, but they are still at an early stage of development in

most countries. Flexibility has primarily been implemented through diversification of modes

of learning151; the use of learning-outcome-based approaches and modularisation152; and

providing opportunities for individuals’ re- and upskilling needs153. Countries have been

adapting existing CVET programmes or creating new ones to better meet the evolving needs of

the labour market, but only a few countries are investing in skills intelligence which hinders

flexibility in responding to rapid change in the labour market. The development of skills

intelligence systems, including the systematic use of graduate tracking for VET policies and

quality assurance, require more concentrated effort154. Along this line, research shows that the

disparity between industry advancement and the rigidity of existing curricula acts as a

significant barrier to the integration of digital and green skills in VET155.

When it comes to Priority 3 (VET is a driver for innovation and growth that prepares

learners for the green and digital transition and occupations in demand), countries are

investing in innovative practices and excellence initiatives such as Centres of Vocational

Excellence (CoVEs). However,availability and sustainability of financial resources pose a

challenge, in particular to infrastructure modernisation and digitalisation of VET. Many

initiatives for modernising VET and developing innovative approaches rely heavily or fully

on EU funding156 and do not have long-term funding provision once the EU funding ends.

This is especially the case for maintenance costs of physical and digital infrastructure as well

as for mainstreaming initiatives based on financial incentives to learners, providers or

151 BE-FR, BE-NL, BG, DE, EL, ES, FI, HU, MT, PT, and SI. 152 BE-FR, BE-NL, CY, ES, HU, LT, LU, LV, PT, and RO. 153 AT, BE-FR, BG, CY, DE, DK, EE, ES, FR, HU, LU, LV, NL, PL, PT, SE, and SK. 154 Only BE-NL, CY, EE, FR, HR, HU, LV, MT, PL, RO, SI, and SK include and report progress on measures

dedicated to developing skills intelligence systems, including graduate tracking in their NIPs. 155 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 156 Cedefop (2025) National VET reforms: accelerating progress to meet renewed EU priorities. Available at:

https://www.cedefop.europa.eu/en/news/national-vet-reforms-accelerating-progress-meet-renewed-eu-priorities

53

companies. This has potential negative effects on the engagement of learners from vulnerable

groups who may not be able to afford training without those incentives. Excellence initiatives

and other initiatives for systemic development of VET are still at an early stage of

implementation in several countries.

When it comes to being an attractive choice based on modern and digitalised provision

of training and skills (Priority 4), there has been some progress in digitalisation but VET

systems experience persistent and evolving capacity constraints in their teaching and

training workforce. Many countries are facing shortages of qualified teachers and trainers,

particularly those with expertise in fast-evolving areas like digital technologies and green

skills. Teachers and trainers require robust pedagogical and technical support to navigate the

complexities of digitalisation (e.g. training offer adjusted to their needs and freeing working

time to practice the new skills and explore new technologies)157. In addition, it is becoming

increasingly difficult to retain skilled teaching professionals as VET often offers less

attractive working conditions and lower wages than the private sector. The increasing skill

and competence demands that are placed on teachers and trainers call for systemic and multi-

faceted CPD, which is often uneven and does not cover all areas. The lack of appropriate

support prevents teachers from the effective implementation of new curricula, teaching new

skills, e.g. digital or green, and adopting innovative pedagogies, including those based on

advanced technologies, such as VR, XR, or AI.

The persistent perception that VET is less valued in society continues to limit VET

attractiveness and enrolments. VET is still perceived by learners, their families, and society at

large as less prestigious than academic pathways. To illustrate this point, the 2023 OECD

Review of VET systems showed that despite the generally strong labour market outcomes of

VET students, 70% of interviewees believe that VET is simply about manual work, despite

the diversity of jobs which VET now leads to. The Special Eurobarometer 569 on VET

attractiveness (forthcoming) also shows that while 50% of EU residents would recommend

VET to a young person before entering upper secondary education, 75% agreed with the

statement that in their country, general education at upper secondary level has a more positive

image than IVET. Adult participation in lifelong learning is hindered by similar stereotypes

and limited awareness of available opportunities.

When it comes to tangible outcomes of participation in VET, data shows that employment

rates of recent graduates range from less than 70% in Italy, Spain, Romania and Greece to

more than 90% in the Netherlands, Germany and Malta158. With an employment rate of 80.2%

in 2025, vocational graduates fall between general secondary graduates (66.9%) and tertiary

graduates (87%) placing them in an intermediary position in the labour market. VET is thus

perceived by learners, their families, and society at large as less prestigious than academic

pathways, despite evidence showing that VET can offer favourable employment outcomes.

157 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J. et al. (2025) Supporting the

digital transformation of Vocational Education and Training. Luxembourg: Publications Office of the European

Union. Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC141881 158 Eurostat (EU Labour Force Survey). Exposure of VET graduates to work-based learning [tps00215]

54

When it comes to VET promoting equality of opportunities (Priority 5), actions have

been implemented to increase access to VET, but progress remains modest. Approaches

focus on making VET systems accessible to different vulnerable groups and specific actions

include awareness raising, early identification systems to prevent early leaning and lifelong

guidance but more coordination is needed. Some countries worked to promote gender

equality, but there is less evidence for gender inclusiveness and counteracting gender

stereotypes in choosing occupations, depending on their national contexts and needs. For

instance, in medium-level VET, female students are severely under-represented in STEM

fields. Fewer than one in six students (15.4%) is female, compared to a proposed 2030 EU-

level target of at least one in four.

Regarding VET being underpinned by a culture of quality assurance (Priority 6), only

half of countries159 worked on this priority and have shown progress. Countries worked

on establishing or developing QA frameworks and processes in line with the EQAVET

principles, albeit mostly in IVET and mostly building on the work started in the previous

periods. Implemented measures include internal evaluation processes, continuous

improvement and feedback loops) and improving stakeholder involvement in governance. QA

in WBL and apprenticeships in IVET are still being developed at national level.

6.2 Overall assessment of progress and priority areas for the future

There has been notable progress of EU Member States toward the common priorities set

by the 2020 Council Recommendation on VET and confirmed in national

implementation plans. However, despite the critical role of VET in addressing both

inclusiveness and labour market challenges – which include labour and skills shortages, an

ageing workforce, as well as ensuring fair green and digital transitions – some challenges

persist.This continues to undermine the potential of VET in driving inclusive and sustainable

growth and competitiveness. Another pressing issue that limits VET’s contribution to

economic growth are the persistent gaps in VET access and outcomes – whether in ensuring

gender inclusiveness, effectively supporting vulnerable groups or expanding lifelong learning.

There has been notable progress of EU Member States toward the common priorities set

by the 2020 Council Recommendation on VET and confirmed in national

implementation plans but there are variations among priorities and countries, regions,

territories and challenges persist. Monitoring shows progress towards the quantitative

targets on employment rates and WBL set by the 2020 Council Recommendation on VET.

However, there has not been enough progress on the mobility target and the implementation

of national measures to make VET systems excellent and inclusive including gender balanced,

attractive and quality-assured. As recognised in the 2020 Council Recommendation, VET

systems are defined by national legal and administrative frameworks dependent on national

socio-economic contexts, and they largely differ between and within countries. This diversity

of VET systems is both a weakness and a strength. While it contributes to differential capacity

159 AT, BE-FR, BE-NL, CY, EE, FR, HR, HU, LT, LV, PL, PT, RO, SI, and SK.

55

and paths in tackling shared challenges it is also instrumental to ensure tailored national

responses that are closely aligned with local labour market needs.

Member States have made strong efforts to make VET systems agile and resilient and

adapting to rapid labour market changes (Priority 1), but some

challenges remain. Progress has been achieved primarily by modernising VET standards,

curricula, and programmes to incorporate a balanced mix of vocational skills and key

competences, with particular focus on the systematic integration of digital skills. While

progress in digitalisation has been observed in most countries, developments with the

integration of green and sustainability skills have been advancing at a slower pace, with most

of them registered in the past two years. Meanwhile, the establishment and development of

robust skills intelligence systems, including the systematic use of graduate tracking for VET

policies and quality assurance, require more targeted effort as only few countries have

implemented measures directly focused on skills intelligence.

Despite the expansion of WBL and apprenticeship opportunities, some countries report

a decline in the number of apprentices, in contrast to the previous periods where the

shortage of available places was the main issue. Expanding apprenticeships to adults, and

to higher education has advanced, but the intake is still limited. Policy could better

address further improvements of the quality and effectiveness of apprenticeships, in line with

the Council Recommendation of 2018 on a European Framework for Quality and Effective

Apprenticeshipsto tackle the imbalances and mismatches of work-placements’ demand and

supply, especially for occupations relevant to the twin transition. Policy could also better

explore incentives for employers and apprentices and invest in in-company trainers’

professional development in pedagogy and support to learners from vulnerable groups, thus

promoting social inclusion. Building on the Union of Skills, EafA could also further tackle

gender stereotypes in apprenticeships in STEM fields and develop basic skills of apprentices.

Countries have shown their commitment to enhancing flexibility and progression

opportunities within VET (Priority 2) and making upskilling and reskilling a reality for

all, but many initiatives remain at an explorative stage. This flexibility is being advanced

through the adoption of learning-outcome-based approaches and curricula and programme

modularisation; establishing micro-credentials and partial qualifications and increasing

opportunities for validation and recognition of learning outcomes acquired outside formal

systems. Countries are diversifying modes of learning by strengthening infrastructure for

digital and blended learning and exploring cutting-edge educational technologies such as VR,

AR and AI. However, measures on micro-credentials and the use of advanced technologies

are still at an early stage and have not yet reached their full potential in VET. Many countries

would benefit from accelerating regulatory developments to speed up the legal and policy

frameworks that enable micro-credentials and advanced technologies to be used effectively in

VET, piloting digital platforms, and promoting mutual recognition of micro-credentials across

EU.

European transparency tools aim at making VET better understood by employers and other

stakeholders. Among the main conclusions of the EQF evaluation in 2024 was that EQF is a

56

well-established reference point that is widely accepted among institutions working with

qualifications160. The EQF and related NQFs are key tools to make VET qualifications more

transparent within and across borders in connection with their level and content. Europass, as

EU tool for career management and lifelong learning, helps VET learners to communicate

about their qualifications and skills, including in a context of labour mobility. However,

uneven implementation of these instruments is hindering the transparency and understanding

of qualifications and skills across the EU. Among the lessons learned from the Europass

evaluation of 2024 is that the data analysis and AI in Europass could be further developed,

contributing to tackling skills and labour shortages, by which VET occupations are

particularly affected161.

Adult participation rates in training remain low in many countries. While Member States

are increasing their focus on lifelong learning, the participation rate stood at only 39.5% in

2022 according to the Adult Education Survey (AES) with high variability between

countries. This is below the EU-level target162 of at least 60% by 2030. It is important that

CVET addresses the learning and development needs of all adults. Additionally, further

implementation of lifelong guidance, validation of prior learning, micro-credentials and

partial qualifications, together with well-designed incentives for both individuals and

employers could strengthen learner participation and support. It is also crucial to monitor

participation and ensure synergies and coordination among various providers.

Some progress has been observed in advancing excellence, innovation, and quality

assurance across the VET sector (Priority 3), but not enough countries have invested in

modernised infrastructure and in CoVEs. Countries are modernising VET infrastructure by

investing in both digital platforms and physical facilities, aligning them with current industry

needs. Support for CoVEs remains limited but is expanding through the creation of new

centres or the development of existing ones, often through EU funding. Continuity and

upscaling where possible are key to achieve the objectives in these fields and to unlock their

full potential for learners and VET systems as well as to increase the attractiveness of VET.

Availability and sustainability of national financial resources remain a key concern, especially

for upgrading infrastructure and advancing digitalisation in VET.

A recent analytical report on a selection of Erasmus+ CoVE projects, shows that these can act

as structural enablers for transformation in VET, e.g. through innovation in teaching and

learning, aligning VET with labour market and skills needs, strengthened cooperation

between key stakeholders. To further develop the initiative and its impact, the report presents

some recommendations with regards to engagement of public authorities and more

160 European Commission (2024) European Commission publishes evaluations of Europass and European

Qualifications Framework. Available at: https://employment-social-affairs.ec.europa.eu/news/european-

commission-publishes-evaluations-europass-and-european-qualifications-framework-2024-03-27_en 161 Report from the Commission to the European Parliament and the Council on the implementation and impact

of Decision (EU) 2018/646 of the European Parliament and of the Council of 18 April 2018 on a common

framework for the provision of better services for skills and qualifications (Europass); EUR-Lex -

52024DC0135 - EN - EUR-Lex. 162 Target originating in the 2021 Council Conclusions on a new European agenda for adult learning 2021-2030.

See also the European Pillar of Social Rights Action Plan.

57

involvement of learners and workers, as well as diversifying funding, tightening links to other

initiatives and bodies such as the Pact for Skills and the ACVT, scaling pedagogical

innovation, and balanced integration of digital and green skills across all sectors of the

economy.

Countries have worked to support VET teachers and trainers (Priority 4), but

the low attractiveness of the profession continues to put VET systems under pressure.

Measures include investing in VET teacher and trainer CPD. However, available evidence

suggests a lack of systemic approaches to cover complex learning needs of teachers and

trainers including the systematic monitoring of their professional development in terms of

content and impact on teaching practices. To address teacher shortages and improve the image

of the profession, countries could work on improving working conditions and adjusting

salaries, provide diverse and sufficient professional development opportunities, including

internships in companies and exposure to international experiences through staff mobility. In

addition, flexible entry pathways to teaching from the labour market and the ‘blended

teachers’ models are not yet widely explored. The Herning Declaration also calls for attention

to teacher and trainer mental well-being, a field not much explored so far.

Despite efforts and targeted actions across countries, the perceived lower status of VET

compared to general and academic education persists as a key obstacle to modernisation

and increased participation in VET, both in IVET and CVET. Measures to increase the

attractiveness of VET include expanding VET programmes to higher qualification levels

(EQF 5-8) to move beyond traditional upper secondary VET and to develop vocationally

oriented pathways at tertiary level through for example developing short-cycle higher

technical programmes and improving the permeability between VET and higher education.

Supporting innovation and internationalisation can be a key driver to increase the

attractiveness of VET. Mobility of VET staff, such as teachers, trainers, and guidance

professionals is less developed than that of learners. While some initiatives and projects are

reported, internationalisation remains uneven and weakly embedded in national VET systems,

despite its strategic importance for attractiveness and excellence as set out in the 2020

Council Recommendation on VET. Strengthening the positive image of VET and thereby

improving its attractiveness — can also be further supported through targeted promotion of

benefits and graduates’ employment prospects including via awareness campaigns, lifelong

guidance mobility opportunities, and participation in international skill competitions.

Strengthening mobility schemes and institutionalising internationalisation, including through

the recognition of learning outcomes acquired in mobility as part of VET programmes or of

professional development for staff, combined with awareness raising can help close the gaps.

While progress on promoting equality of opportunities and gender-inclusive VET

systems is seen as modest (Priority 5), countries are implementing targeted measures for

vulnerable groups. Examples include preventing early school leaving through early

identification and social support, using flexible learning pathways to increase participation in

lifelong learning, lifelong guidance and financial incentives. Meanwhile, there is less

evidence for gender inclusiveness and counteracting gender stereotypes in choosing

occupations, depending on national contexts and needs. The lack of gender balance and the

58

underrepresentation of women in STEM fields and in VET have significant labour-market

consequences. These imbalances contribute to persistent skills shortages, limit economic

productivity, and reinforce structural inequalities in employment and wages. Addressing

inclusiveness in VET is crucial to ensure that vulnerable groups (e.g. long-term unemployed,

people with disabilities, young people not in education or training) can complete quality

training so that they are well equipped to enter the labour market, thereby increasing overall

employment rates and productivity at large. Countries would benefit from more coordination

among policies, responsible bodies and services. Financial incentives should be combined

with information, lifelong guidance and effective outreach from early stages.

Countries focusing on quality assurance in VET (Priority 6) have also made some

progress. About half of the countries working on new strategies to align national quality

assurance systems with the EQAVET priorities, strengthening self-assessment by VET

providers (e.g. internal evaluation processes, continuous improvement and feedback loops),

and improving stakeholder involvement in governance. Continuity and increased investments

are key to achieve the objectives in terms of advancing excellence, innovation and quality

assurance and to unlock their full potential for learners and VET systems.

Social partners are central to the governance and implementation of VET policies,

contributing to policy development, curriculum design, quality assurance, funding

decisions, and career guidance. There is scope to further expand their role (Cedefop & ETF,

2025), both of employer organisations and trade unions, to the implementation of measures, in

particular on skill intelligence and identification of skill needs, provision of apprenticeships

and employment opportunities for vulnerable groups, reskilling and upskilling, recognition

and validation of non-formal and informal learning.

7 Sources

Arregui Pabollet, E. et al. (2019) The changing nature of work and skills in the digital age.

Edited by I. Gonzalez Vazquez et al. Luxembourg: Publications Office of the European Union

Cedefop. (2017). VET mobility prospects increase VET attractiveness.

Cedefop. (2024a). Moving towards common policy goals and aligned progress reporting.

Publications Office of the European Union.

Cedefop. (2024b). Vocational education and training policy briefs 2023: National policy

developments in vocational education and training.

Cedefop. (2024, 17 April). VET in Action: Evidence from implementing EU priorities in

national VET plans [Virtual Get Together].

Cedefop. (2024, 31 October). Implementation of EU-27+ national plans for VET: Interim

findings of Cedefop’s policy monitoring [Workshop].

Cedefop. (2025a). European VET policy dashboard [Online tool].

59

Cedefop. (2025). European Vocational Teacher Survey (EVTS) pilot project [Survey project].

Cedefop. (2025b). Mobility Scoreboard [Online database].

Cedefop. (2025c). VET internationalisation: a strategic imperative for EU competitiveness

[Headline]. 4 July 2025.

Cedefop & ETF. (2025). Towards EU priorities: 2021-25 progress: insights from monitoring

and analysis. Publications Office of the European Union. Policy brief. DOI:

10.2801/3786859.

Cedefop, & ETF. (2026). Synthesis report on the implementation of the EU priorities in VET.

[forthcoming]

Cedefop, & ReferNet. (2024a). Implementing European priorities in vocational education and

training [Thematic perspectives].

Cedefop, & ReferNet. (2024b). Vocational education and training in Europe: VET in Europe

database – detailed VET system descriptions [Database].

Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].

European Commission (2023), Employment and Social Developments in Europe Review 2024,

Publications Office of the European Union, Luxembourg

European Commission (2024), An in-depth overview of the EU cohesion funds’ investments in

skills in the context of the European Year of Skills, Directorate-General for Employment,

Social Affairs and Inclusion, Publications Office of the European Union.

European Commission. (2025). Education and Training Monitor 2025: Comparative report -

Publications Office of the European Union.

European Labour Authority. (2025). EURES Report on labour shortages and surpluses 2024.

EURES

Fassl, A., Kirsch, M., Pachocki, M., & Zabko, O. (2020). Tracing VET graduates with foreign

mobility experience (FRSE Research Reports). Foundation for the Development of the

Education System.

Herrero, C. et al. (2024) Digital Transformation of Vocational Education and Training (VET)

Workshop. Luxembourg: Publications Office of the European Union.

60

8 Annex – Overview of national reform measures per priority topics

Thematic priorities Countries that reported implementation as per NIPs163

VET is agile in adapting to labour market changes

Modernising VET standards, curricula, programmes and training

courses

AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, EL, ES, FI, FR, HR, HU, IT,

LT, LU, LV, MT, NL, PL, PT, RO, SE, SI and SK.

• integrating digital skills and competences in VET curricula

and programmes

AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, FI, FR, HU, IT, LV, MT, PL,

PT, RO, SI and SK.

• integrating green transition and sustainability in VET

curricula and programmes

AT, DE, DK, EE, FR, HU, PL, PT, SE and SI.

Developing and updating learning resources and materials, mostly

digital

AT, BE-FR, BE-NL, BG, CY, DE, DK, ES, HU, LU, NL, PL and PT.

Establishing and developing skills intelligence systems, including

graduate tracking

BE-NL, CY, EE, FR, HR, HU, LV, MT, PL, RO, SI and SK.

Engaging VET stakeholders and strengthening partnerships in VET BE-FR, BE-NL, BG, CY, DE, DK, EE, EL, ES, FR, HU, IT, LT, LU, LV,

MT, NL, PL, PT and RO.

Acquiring key competences AT, BE-FR, BE-NL, BG, CY, DE, DK, ES, FI, FR, HR, HU, IT, LT, LU,

NL, PL, PT, RO, SI and SK.

163 Disclaimer: the countries indicated are those that have dedicated measures in their NIPs directly addressing the issue and have reported progress on those measures. Other

countries might have actions implemented, but they have not been reported because not included in the NIP.

61

Thematic priorities Countries that reported implementation as per NIPs163

Reinforcing work-based learning, including apprenticeships AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, EL, ES, FR, HR, HU, IT, LT,

LV, NL, PL, PT, RO, SI and SK.

Flexibility and progression opportunities are at the core of VET

Providing for individuals’ re- and upskilling needs AT, BE-FR, BG, CY, DE, DK, EE, ES, FI, FR, HU, LU, LV, NL, PL, PT,

SE and SK.

Financial and non-financial incentives to learners, VET providers

and companies

BE-NL, CY, DE, DK, FR, HU, MT, NL, PT, RO, SE and SK.

Diversifying modes of learning: face-to-face, digital and/or blended

learning; adaptable/flexible training formats

BE-FR, BE-NL, BG, CY, DE, EL, ES, FI, FR, HU, LU, LV, MT, PT and

SI.

Using learning-outcome-based approaches and modularisation BE-FR, BE-NL, CY, ES, HU, LT, LU, LV, PT and RO.

Developing and applying qualifications smaller/shorter than full BE-NL, DE, FI, FR, HR, HU, IT, LV, MT, NL, PL, PT and SK.

Learners’ possibilities of accumulation, validation and recognition

of learning outcomes acquired non-formally and informally

AT, BE-NL, BG, CY, DE, ES, FR, HU, IT, LT, MT, PT, SE and SK.

Advancing Micro-credentials and Partial Qualifications BE-NL, DE, FI, HR, HU, LV, MT, NL, PL, PT and SK.

VET is a driver for innovation and growth and prepares learners for the digital and green transitions and occupations in high demand

Supporting Centres of vocational excellence (CoVEs)

AT, BE-FR, BG, DE, DK, EE, ES, FR, HR, HU, LT and SK.

Modernising infrastructure for vocational training, including for AT, BE-NL, BG, CY, DE, DK, EL, HU, IT, LT, LV, PL, PT, SI and SK.

62

Thematic priorities Countries that reported implementation as per NIPs163

digital and green

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

Permeability between IVET and CVET and general and vocational

pathways, academic and professional higher education

AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FI, FR, HU, LT, NL, PT, RO,

SE and SK.

Expanding VET programmes to EQF levels 5-8 AT, DE, IT, PT, RO and SK.

Systematic approaches to and opportunities for initial and

continuous professional development of school leaders, teachers

and trainers, including for digital and green skills

AT, BE-FR, BE-NL, BG, CY, DE, DK, EE, ES, FI, FR, HR, HU, IT, LT,

LU, LV, NL, PL, PT, RO, SI and SK.

Lifelong guidance AT, BE-FR, CY, DE, DK, ES, FR, HU, MT, NL, PL, PT, RO, SE and SK.

Mobility of learners and staff AT, BE-NL, DE, DK, FR, HR, LT, LV, MT, NL and PL.

Internationalisation in education and VET, including international

skill competitions

AT, CY, DE, DK, EE, EL, HR, LV, PT and PL.

Promotion and targeted campaigns for VET and LLL AT, BG, DE, DK, EE, HR, LV, MT, NL, PL, PT and RO.

VET promotes equality of opportunities

Ensuring equal opportunities and inclusiveness in education and

training

AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FI, FR, HR, HU, IT, LT, LU,

LV, MT, NL, PL, PT, RO, SE, SI and SK.

Focus on vulnerable groups AT, BE-FR, BE-NL, CY, DE, DK, EE, ES, FI, FR, HU, LT, LU, LV, NL,

PL, PT, RO, SE and SK.

Building more gender-inclusive VET systems

AT, BE-NL, CY, DE, DK, FR, MT, NL and SI.

63

Thematic priorities Countries that reported implementation as per NIPs163

VET is underpinned by a culture of quality assurance

Further developing national quality assurance systems AT, BE-FR, BE-NL, CY, EE, FR, HR, HU, IT, LT, LV, MT, PL, PT, RO, SI

and SK.

Governance

Establishing and developing formal stakeholder engagement BE-FR, BE-NL, CY, EL, FR, HU, IT, LT, LU, LV, MT, PL, PT and RO.

Fostering informal cooperation BE-FR, BE-NL, BG, CY, DE, DK, EE, ES, FR, HU, IT, LT, LV, NL, PL,

PT and RO.

ET ET

EUROOPA KOMISJON

Brüssel, 10.7.2026 COM(2026) 363 final

KOMISJONI ARUANNE NÕUKOGULE

nõukogu soovituse 2020/C 417/01 (jätkusuutlikku konkurentsivõimet, sotsiaalset õiglust

ja toimetulekut toetava kutsehariduse kohta) rakendamise kohta

{SWD(2026) 181 final}

1

1. Sissejuhatus – aruande eesmärk, ulatus ja metoodika

Euroopa tasandi koostööl, mida on tehtud kutsehariduse valdkonnas kooskõlas ELi

toimimise lepingu artiklitega 165 ja 166, on olnud aastate jooksul tähtis roll. Nõukogu

2020. aasta soovituses jätkusuutlikku konkurentsivõimet, sotsiaalset õiglust ja toimetulekut

toetava kutsehariduse kohta (edaspidi „nõukogu 2020. aasta soovitus“) on esitatud

kutsehariduse visioon koos asjakohaste pikaajalise reformi põhimõtetega. 2020. aasta

novembris Kopenhaageni protsessi osana vastu võetud Osnabrücki deklaratsiooniga täiendati

nõukogu 2020. aasta soovitust nii riigi kui ka ELi tasandil võetavate konkreetsemate ja

lühemaajaliste meetmetega. Selle deklaratsiooni eesmärk oli kutseharidust ajakohastada,

tagades selle kiire kohanemise tööturu vajadustega, suurendades õppimisvõimaluste

paindlikkust ning valmistades õppijaid ette rohe- ja digiüleminekuks. Nõukogu 2020. aasta

soovituse ja Osnabrücki deklaratsiooniga loodi ELi kutsehariduse poliitikaraamistik

aastateks 2020–2025, mida rakendatakse koos muude strateegiliste dokumentide ja

poliitikameetmetega, nagu Euroopa sotsiaalõiguste samba tegevuskava, Euroopa oskuste

tegevuskava, digikümnend ja Euroopa haridusruum.

Nõukogu 2020. aasta soovitus hõlmab järgmisi prioriteete:

• kutsehariduse paindlikkus tööturu muutustega kohanemisel;

• paindlikkuse ja edasiminekuvõimaluste seadmine kutsehariduse keskmesse;

• kutseharidus kui innovatsiooni ja majanduskasvu liikumapanev jõud, mis tagab

õppijatele ettevalmistuse digi- ja roheüleminekuks ning väga nõutavate kutsealade

jaoks;

• kutseharidus kui atraktiivne valik, mis põhineb koolituse ja oskuste nüüdisaegsel ja

digitaliseeritud pakkumisel;

• kutseharidus kui võrdsete võimaluste edendaja;

• kutsehariduse tuginemine kvaliteedi tagamise kultuurile.

Nõukogu 2020. aasta soovituse prioriteedid sobivad laiemasse poliitikaraamistikku,

ühendades kutsehariduse tööhõive, majandusarengu ja konkurentsivõimega, sageli

valdkondlikku lähenemisviisi rakendades. 2026. aasta ühtse turu ja konkurentsivõime

aruandes1 rõhutatakse sõnaselgelt, et tööjõupuuduse vähendamiseks on oluline edendada

oskuste arendamist, sealhulgas kutseõppe kaudu. Alates 2020. aastast on tööjõupuudus ja

oskuste nappus kutseõppeprogrammidega seotud sektorites, nagu ehitus, transport, tervishoid,

tootmine, puhas tehnoloogia ja kaitse, suurenenud, mis muudab kutsehariduse tööturul

vajaminevate oskuste pakkumisel veelgi olulisemaks. Eri sektorite VKEd on nimetanud ühe

kasvu pärssiva takistusena probleeme, mis on seotud oskustega. Kutseharidus on keskse

tähtsusega selliste oskuste pakkumisel, mida Euroopa ettevõtjad vajavad edu saavutamiseks.

1 Euroopa Komisjon, „2026. aasta ühtse turu ja konkurentsivõime aruanne“, 2026. Kättesaadav aadressil

https://eur-lex.europa.eu/legal-content/ET/TXT/?qid=1782458557849&uri=CELEX%3A52026DC0046.

2

Vastavalt EURESe 2024. aasta aruandele tööjõupuuduse ja -ülejäägi kohta on kümnest

kutsealast, kus tööjõupuudus on ELis kõige suurem, üheksa2 puhul vajalik

kutsekvalifikatsioon. Seepärast pööratakse kutsehariduse tähtsusele tähelepanu mitmes ELi

poliitikavaldkonnas. Kutsehariduse programmid ja õpipoisiõpe on kesksel kohal oskuste pakti

valdkondlikes oskuste strateegiates tootmis-, ehitus-, turismi-, kestliku energia ja digisektori

jaoks3. Samuti astub Euroopa Õpipoisiõppe Liit samme, et toetada majandussektoreid (nt

ehitus, turism ja majutus, hooldus / pikaajaline hooldus) valdkondlike õpipoisiõppe

programmide edendamisel ja tugevdamisel.

2025. aasta teatises oskuste liidu kohta4 ja nõukogu 2026. aasta soovituses inimkapitali kohta

Euroopa Liidus5 rõhutatakse, et oskuste tööturu nõudlusele mittevastavuse probleemi

lahendamisel on keskse tähtsusega kutseharidussüsteemid, mis on tihedalt seotud tööturu

vajadustega. 2025. aasta puhta tööstuse kokkuleppes6 osutatakse vajadusele tegeleda oskuste

nappusega peamistes sektorites, et toetada üleminekut vähese CO2 heitega majandusele.

Eluasemete paketi alla kuuluva Euroopa elamuehituse strateegia7 7. meetme eesmärk on

suurendada kvalifitseeritud tööjõu kättesaadavust ehitussektoris, sealhulgas toetades

partnerlusi ülikoolide, kutsehariduse pakkujate, ettevõtjate, sotsiaalpartnerite ja

rakendusuuringute instituutide vahel. 2025. aasta teatises „Uus Euroopa Bauhaus“8 teatatakse

noortele suunatud õpipoisiõppe ja kutseõppe toetamisest. Oskuste ja sotsiaalse mõõtme

tähtsust konkurentsivõime tagamisel rõhutatakse ka autotööstust, terast ja metalle ning

kemikaale käsitlevates tegevuskavades. Kutseharidus aitab kaasa ka nullnetotööstuse määruse

eesmärkide saavutamisele, samal ajal kui nullnetotööstuse akadeemiad9 aitavad kohandada

kutseharidust tehnoloogilise innovatsiooniga ja suurendada konkurentsivõimet, sealhulgas

arendades edasi konkreetsetes sektorites koos tööstusega välja töötatud õppeprogramme.

Selles poliitilises kontekstis esitatakse käesolevas aruandes ülevaade reformidest ja

meetmetest, mida liikmesriigid on rakendanud pärast nõukogu 2020. aasta soovituse

vastuvõtmist. Aruande eesmärk ei ole neid meetmeid ja reforme või nende mõju hinnata.

Selle eesmärk on teha kooskõlas soovituse punktiga 36 viis aastat pärast soovituse

2 Keevitajad ja leeklõikajad, õendusspetsialistid, kokad, ehituselektrikud, torulukksepad, veoautojuhid,

lehtmetalli töötlejad, tööpinkide seadistajad ja operaatorid, liha- ja kalatöötlejad jms töölised. 3 Euroopa Komisjon | Oskuste Pakt | Tööstusökosüsteemid ja partnerlused. Kättesaadav aadressil https://pact-for-

skills.ec.europa.eu/about/industrial-ecosystems-and-partnerships_en. 4 Euroopa Komisjon, „Oskuste liit“. Kättesaadav aadressil

https://commission.europa.eu/topics/competitiveness/union-skills_et. 5 Euroopa Liidu Nõukogu, „Oskuste nappus:nõukogu võttis vastu soovituse inimkapitali kohta“, 2026.

Kättesaadav aadressil https://www.consilium.europa.eu/et/press/press-releases/2026/03/09/tackling-the-skills-

shortage-council-adopts-recommendation-on-human-capital/. 6 Euroopa Komisjon, „Puhta tööstuse kokkulepe“. Kättesaadav aadressil

https://commission.europa.eu/topics/competitiveness/clean-industrial-deal_et. 7 Euroopa Komisjon, „The European affordable housing plan“ (Euroopa taskukohaste eluasemete kava).

Kättesaadav aadressil https://housing.ec.europa.eu/european-affordable-housing-plan_en. 8 Euroopa Komisjon, „Uus Euroopa Bauhaus –visioonist teostuseni“. Kättesaadav aadressil https://eur-

lex.europa.eu/legal-content/ET/TXT/?uri=COM%3A2025%3A1026%3AFIN. 9 Euroopa Komisjon, „Industrial ecosystems:strengthening EU competitiveness through partnerships“

(Tööstusökosüsteemid: ELi konkurentsivõime tugevdamine partnerluste kaudu). Kättesaadav aadressil

https://ec.europa.eu/newsroom/growth/items/823315/en.

3

vastuvõtmist kokkuvõte asjakohastest meetmetest, tuginedes riikide ja Euroopa tasandil

kättesaadavatele andmetele ning Euroopa Kutseõppe Arenduskeskuse (Cedefop) iga-aastase

seire tulemustele. Cedefop ja Euroopa Koolitusfond (ETF) on teinud alates 2020. aastast

Euroopa Komisjoni ettepanekul ja kutseõppe nõuandekomitee nõusolekul integreeritud seiret,

mis hõlmab nõukogu 2020. aasta soovituse ning Osnabrücki deklaratsiooni prioriteete.

Aruanne tugineb suures osas sellele seirele ja pärast nõukogu 2020. aasta soovituse

vastuvõtmist koostatud liikmesriikide riiklikele rakenduskavadele10. Neis 2022. aastal välja

töötatud rakenduskavades kirjeldavad liikmesriigid meetmeid, mida nad kavatsevad

lähiaastatel võtta, et tegeleda ELi kutsehariduse prioriteetidega. Aruandluse aluseks on

suuresti ülevaade meetmetest, mida liikmesriigid on rakendanud.

Euroopa Komisjon on aruande konsolideerinud. Aruanne põhineb kutseõppe

nõuandekomitees liikmesriikidega peetud arvukatel aruteludel ja statistilistel tõenditel,

eelkõige nõukogu 2020. aasta soovituses püstitatud kolme kvantitatiivse eesmärgi

saavutamise hetkeseisu kohta. Lisaks kasutati aruande koostamisel mitut poliitikadokumenti

ja uuringut. Aruanne hõlmab ka ELi tasandi meetmeid, millega toetatakse liikmesriikide

püüdlusi ajakohastada kutseharidussüsteeme, sealhulgas andmeid ELi toetatavate ja

rahastatavate meetmete ja reformide rakendamise kohta. Üksikasjalikumat teavet leiab

aruandele lisatud komisjoni talituste töödokumendist.

Käesolev aruanne sisaldab olulist teavet tulevase Euroopa kutsehariduse strateegia

kujundamiseks, millest teatati 5. märtsi 2025. aasta teatises oskuste liidu kohta. Hiljuti

vastu võetud Herningi deklaratsioon, mis käsitleb atraktiivset ja kaasavat kutseharidust

aastatel 2026–2030 konkurentsivõime ja kvaliteetsete töökohtade edendamiseks, ning

tulevane Euroopa kutsehariduse strateegia moodustavad koos nõukogu 2020. aasta

soovitusega uue Euroopa kutsehariduse poliitikaraamistiku 2025. aasta järgseks perioodiks.

2. Kolme kvantitatiivse eesmärgi saavutamise hetkeseis

Selleks et jälgida rakendamisel tehtavaid edusamme, püstitati nõukogu 2020. aasta soovituses

kvantitatiivsed eesmärgid töökohapõhises õppes osalemise, kutsehariduse omandanute

tööhõive ning kutsehariduse omandajate õpirände kohta. Need eesmärgid on esitatud ELi

keskmiste väärtustena, mille ELi liikmesriigid peaksid ühiselt saavutama 2025. aastaks.

Viimaste kättesaadavate andmete kohaselt olid ELi keskmised näitajad järgmised:

1. nende hiljuti kutsehariduse omandanud 20–34aastaste isikute osakaal, kellel oli olnud

võimalus osaleda töökohapõhises õppes, oli 2025. aastal 66,0 %,11 mis ületas 60 %

eesmärki;

2. tööga hõivatud kutsehariduse omandanud 20–34aastaste isikute osakaal oli

2025. aastal 80,2 %,12 mis on lähedal 82 % eesmärgile;

10 Riikliku rakenduskava (mis on avaldatud komisjoni veebisaidil) on koostanud kõik ELi liikmesriigid peale

Tšehhi ja Iirimaa. 11 Eurostati ELi tööjõu-uuring „Exposure of VET graduates to work-based learning“ (tps00215) (Kutsehariduse

omandanute osalemine töökohapõhises õppes).

4

3. õpirändes osalenud kutsehariduse omandajate osakaal oli 2021. aastal 2,1 %, mis on

kaugel nõukogu 2020. aasta soovituses 2025. aastaks seatud 8 % eesmärgist.

Nõukogu 2024. aasta soovituses „Liikuvus Euroopas“ on püstitatud 2030. aastaks uus

12 % eesmärk (mis hõlmab laiemat kogumit õpirändekogemusi), mille saavutamisel

oli uusima hinnangu kohaselt jõutud 2023. aastal 5,3 %ni13.

Eesmärkide saavutamise tase ja aja jooksul tehtud edusammud on riigiti väga erinevad.

Kuigi ELi tasandi eesmärk seoses töökohapõhise õppega on Euroopas saavutatud, olid riikide

edusammud selles õppes osalemise laiendamisel erinevad (joonis 1). Kui mõni riik on

töökohapõhise õppega seotud eesmärgi juba märkimisväärselt ületanud (Madalmaad (95,4 %),

Prantsusmaa (93,2 %) ja Saksamaa (93,0 %)), siis mõni teine on sihttasemest väga kaugel

(Rumeenia (9,1 %), Tšehhi (15,2 %) ja Itaalia (22,0 %)).

Joonis 1. Kutsehariduse omandanute osalemine töökohapõhises õppes, 2025

Allikas: Eurostati ELi tööjõu-uuring „Exposure of VET graduates to work-based learning“ (tps00215).

Märkus: riigid on loetletud kahanevas järjekorras 2025. aasta andmete põhjal. Saksamaa, Hispaania, Poola,

Malta, Ungari, Iirimaa ja Küprose puhul on usaldusväärsus väike. Bulgaaria, Läti ja Luksemburgi kohta andmed

puuduvad.

Riikide edusammud kutsehariduse omandanute tööhõive määra eesmärgi saavutamisel

on olnud ebaühtlased (joonis 2). Tehtud edusammud on seletatavad sellega, et

kutseõppeprogrammid on viidud paremini vastavusse tööturu vajadustega ja tööturg on

viimastel aastatel taastunud, mis on viinud selleni, et kutseoskustega inimeste järele on suur

12 Eurostati ELi tööjõu-uuring „Employment rates of young persons not in education and training by educational

attainment level and years since completion of highest level of education“ (edat_lfse_24) (Mittetöötavate ja

mitteõppivate noorte tööhõive määr haridustasemete ja kõrgeima haridustaseme omandamisest möödunud

aastate kaupa). 13 Euroopa Komisjoni arvutused, mis põhinevad programmi „Erasmus+“ tulemustabeli andmetel (2025. aasta

juuni seisuga).

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nõudlus,14 aga ka demograafiliste muutustega. Aastatel 2021–2023 aset leidnud suurele

tõusule (76,0 %-lt 80,9 %-le) järgnes järgmistel aastatel väike langus ja stabiliseerumine

2025. aastal 80,2 %-le. See areng osutab sellele, et noortel, sealhulgas kutsehariduse

omandanutel, on üldise tööhõive kasvu aeglustumise tõttu olnud haridussüsteemist tööturule

sisenemisel teatavaid raskusi.

Joonis 2. Hiljuti kutsehariduse omandanute tööhõive määr, 2025

Allikas: Eurostati ELi tööjõu-uuring „Employment rates of young persons not in education and training by

educational attainment level and years since completion of highest level of education“ (edat_lfse_24). Märkus:

näitaja kajastab nende õpingud lõpetanud 20–34aastaste inimeste tööhõive määra, kes on omandanud 1–3 aasta

eest kutsekeskhariduse või keskharidusejärgse kutsehariduse, mida ei tunnustata kõrgharidusena. Riigid on

loetletud kahanevas järjekorras 2024. aasta väärtuste põhjal. Malta, Bulgaaria, Sloveenia ja Küprose andmete

usaldusväärsus on väike. Luksemburgi kohta andmed puuduvad. Prantsusmaa ja Hispaania puhul on määratlus

teistsugune.

Endiselt on probleemiks kutsehariduse valdkonnas seatud õpirände eesmärgi

saavutamine, kui vaadelda kesktaseme kutsehariduse omandanute õpirändekogemusi.

2023. aastal oli õpirändes osalenute osakaal ELi tasandil 5,3 % ja õpiränne toimunud

140 000 korral (joonis 3), mis on veidi parem tulemus kui aasta varem, kus need näitajad olid

5,0 % ja 134 000. See on siiski kaugel 12 % eesmärgist, mis on püstitatud 2030. aastaks

nõukogu 2024. aasta soovituses „Liikuvus Euroopas“.

Joonis 3. Õpirände läbinud kutseõppurite arv, 2023

14 Euroopa Komisjon, „Education and training monitor 2025:comparative report“ (Hariduse ja koolituse

valdkonna ülevaade 2025, võrdlev aruanne), Luxembourg, Euroopa Liidu Väljaannete Talitus. Kättesaadav

aadressil https://op.europa.eu/en/publication-detail/-/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1.

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Allikas: Euroopa Komisjoni arvutused, mis põhinevad programmi „Erasmus+“ tulemustabeli andmetel

(2025. aasta juuni seisuga). Märkus: andmed osutavad nende kesktaseme kutseõppurite arvule, kelle õpiränne

välismaal algas tulemustabelis käsitletud ajavahemikul. Vanalt programmilt uuele programmile „Erasmus+“

ülemineku tõttu on 2022. ja 2023. aasta hinnangud kättesaadavad ainult ELi tasandil ja need sisaldavad

varasematel andmetel põhinevaid prognoose; 2023. aasta andmed on esialgsed.

See on osaliselt seletatav eelarvepiirangutega Euroopa ja liikmesriikide tasandil. Näiteks

2024. aastal suudeti katta programmi „Erasmus+“ eelarvest õppurite ja töötajate õpirände

nõudlusest vaid 57 % ehk väiksem osa taotlustest kui eelmistel aastatel, kuna taotluste arv

suurenes15. Soovitusele „Liikuvus Euroopas“ lisatud komisjoni talituste töödokumendis on

toodud esile ka konkreetsed tegurid, mis mõjutavad valmisolekut välismaale minna, nagu

kutsehariduse omandajate noorus ja psühholoogilised tõkked, mis piiravad nende suutlikkust

välismaal viibida. Kutsehariduse omandajate õpirännet piiravad ka riiklike õigusnormide ja

halduspiirangutega seotud struktuursed takistused. Hoolimata neist raskustest võimaldaks

nõudluse tase juba praegu liikuda tublisti lähemale kutsehariduse valdkonnas seatud õpirände

eesmärgile. Mõnes liikmesriigis on saavutatud paljutõotavaid tulemusi. Näiteks Soomes

jõudis üldine õpirändes osalemise määr16–25aastaste esmakutseõppes osalejate seas

2024. aastal 9 %ni, pärast seda kui programmi „Erasmus+“ raames käivitati kutsehariduse

valdkonnas uus rühmaviisilise õpirände meede16.

3. Liikmesriikide edusammud soovituse rakendamisel

3.1 Üldised probleemid kutseharidusreformide elluviimisel

Analüüsides kutsehariduse prioriteetide rakendamist ELi liikmesriikides, ilmnesid

mõned valdkonnaülesed institutsioonilised, rahalised ja kultuurilised tõkked, mis

takistavad kutseharidussüsteemide arengut. Teatavad valdkonnaülesed probleemid

pärsivad või aeglustavad kiiret reageerimist tööturul toimuvatele muutustele. Kutsehariduse

ning oskuste täiendamise ja ümberõppe eest vastutavad tihti mitu ministeeriumi, institutsiooni

ja juhtimistasandit, mistõttu on vaja tugevaid koordineerimisraamistikke ja -meetmeid. Sageli

selliseid raamistikke ja meetmeid ei ole ja isegi kui need olemas on, võivad nad olla

ebatõhusad. Kuigi täpne institutsiooniline ülesehitus on riigiti erinev, on vastutus

15 Programmi „Erasmus+“ tulemustabeli andmed (2025. aasta novembri seisuga). 16 Cedefop, „Finland:VET learner mobility on the rise“ (Soome: kutseõppurite õpiränne on tõusuteel), 2025.

Kättesaadav aadressil https://www.cedefop.europa.eu/en/news/finland-vet-learner-mobility-rise.

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kutsehariduse eest jagatud haridusministeeriumide, töö-/tööhõive-/sotsiaalministeeriumide

ning majandus-/tööstusministeeriumide vahel. Killustatud ja kooskõlastamata töö koos

koormavate ja pikalevenivate bürokraatlike protsesside ning vastuseisuga muutustele võib

lükata edasi reforme ja innovatsiooni ning piirata paindlikku reageerimist muutuvatele

probleemidele.

Kutsehariduse juhtimise oluline osa on oskuste prognoosimine. Paraku investeerib sellesse

valdkonda vaid mõni üksik riik, mis takistab paindlikku reageerimist kiiretele muutustele

tööturul. Rohkem tuleb keskenduda oskuste prognoosimise süsteemide arendamisele,

sealhulgas kutsehariduse omandanute karjääriseire süstemaatilisele kasutamisele

kutsehariduspoliitika kujundamisel ja kvaliteedi tagamisel17. Kuigi riigid tegid tööd, et luua

või arendada kvaliteedi tagamise raamistikke ja protsesse kooskõlas kutsehariduse valdkonnas

rakendatava Euroopa kvaliteeditagamise võrdlusraamistiku (EQAVET) põhimõtetega, on

kvaliteedi tagamine esmakutseõppe raames toimuvas töökohapõhises õppes ja õpipoisiõppes

alles arendusetapis. Lisaks näitavad uuringud, et vastuolu tööstuse arengu ja olemasolevate

õppekavade jäikuse vahel takistab märkimisväärselt digi- ja roheoskuste integreerimist

kutseharidusse18.

Kutseharidussüsteemides seistakse silmitsi püsiva ja areneva õpetajate ja koolitajate

suutlikkuse piiratusega.See on osaliselt seletatav neis süsteemides töötavate õpetajate ja

koolitajatete madalamate palkade ja tajutava väärtusega19 ning survega, mida põhjustab

õpetajaskonna vananemine20. Cedefopi andmetel leiab vaid iga teine kutseharidussüsteemis

töötav õpetaja, et kool toetab tema pidevat kutsealast arengut21. Toetuse puudumine takistab

õpetajatel tõhusalt rakendada uusi õppekavasid, õpetada uusi oskusi, nagu digi- või

roheoskused, ning rakendada uuenduslikke pedagoogikameetodeid, sealhulgas neid, mis

põhinevad tipptehnoloogial, nagu virtuaalreaalsus, või tehisintellektil.

Teine probleem on rahaliste vahendite kättesaadavus ja jätkusuutlikkus. Paljud algatused (nt

kutsehariduse tipptaseme keskused), mille eesmärk on kutseharidust ajakohastada ja töötada

17 Riikliku rakenduskava meetmetest, mille eesmärk on arendada oskuste prognoosimise süsteeme, sealhulgas

kutsehariduse omandanute karjääriseiret, ja edusammudest nende meetmete rakendamisel on teatanud BE-NL,

CY, EE, FR, HR, HU, LV, MT, PL, RO, SI ja SK. 18 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J., et al., „Supporting the digital

transformation of vocational education and training“ (Kutseharduse digipööde toetamine), 2025. Luxembourg,

Euroopa Liidu Väljaannete Talitus. Kättesaadav aadressil

https://publications.jrc.ec.europa.eu/repository/handle/JRC141881. 19 Cedefopi korraldatava Euroopa kutseõpetajate uuringu katseuuringu kohaselt tunneb vaid ligikaudu 9 %

kutseharidussüsteemis töötavatest õpetajatest, et nende elukutset hinnatakse. OECD 2020. aasta uuringust

„Education at a Glance 2020:OECD Indicators“ (2020. aasta ülevaade haridusest: OECD näitajad) on näha, et

kutseharidussüsteemis töötavad õpetajad teenivad keskmiselt peaaegu 11 % vähem kui muud kolmanda taseme

hariduse omandanud töötajad. 20 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J., et al., „Supporting the digital

transformation of vocational education and training“ (Kutseharduse digipööde toetamine), 2025. Luxembourg,

Euroopa Liidu Väljaannete Talitus. Kättesaadav aadressil

https://publications.jrc.ec.europa.eu/repository/handle/JRC141881. 21 Psifidou, I., Papazoglou, M., ja Pouliakas, K., „Europe’s first survey for VET teachers: Listening, learning,

acting“ (Euroopa esimene kutseharidussüsteemis töötavate õpetajate uuring: kuulamine, õppimine, tegutsemine),

2025.

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välja uuenduslikud lähenemisviisid, sõltuvad suurel määral või täielikult ELi rahastusest ja

nende jaoks ei ole ette nähtud pikaajalist rahastamist pärast ELi rahastuse lõppemist.

Ajavahemikus 2021–2027 eraldatakse programmist „Erasmus+“ ligikaudu 400 miljonit eurot,

et luua ja arendada kutsehariduse tipptaseme keskusi, mis on Euroopa juhtalgatus

kutseharidussüsteemide tugevdamiseks ja arendamiseks Euroopas. See näitab kindlat

pühendumust tipptasemel kutseharidusele kogu Euroopas.

Lisaks on selleks ajavahemikuks kavandatud haridus-, koolitus- ja oskuste poliitika,

sealhulgas kutsehariduse investeeringute, taristu ja reformide rahastamiseks hinnanguliselt

62,2 miljardit eurot koos riikliku kaasrahastamisega ELi liikmesriikides, sealhulgas

40,4 miljardit eurot Euroopa Sotsiaalfond+-ist (ESF+) ja 12,1 miljardit eurot ERFist (sh

Interreg) ning 8,6 miljardit eurot ELi toetusi.

Kutsehariduse atraktiivsust ja kutseõppeasutusse õppima asumist piiravad jätkuvalt

stereotüübid ja selle tajumine, et kutseharidust väärtustatakse ühiskonnas vähem.Näiteks

OECD 2023. aasta kutseharidussüsteemide ülevaatest on näha, et ehkki kutsehariduse

omandanutel läheb tööturul üldiselt hästi, arvab 70 % küsitletutest – hoolimata kutsekoolides

omandatavate ametite mitmekesisusest –, et kutseharidus tähendab lihtsalt käsitsi tehtavat

tööd. Peagi avaldatavast Eurobaromeetri eriuuringust nr 569 kutsehariduse atraktiivsuse kohta

selgub, et kuigi 50 % ELi elanikest soovitaks noorel kaaluda enne keskharidust omandama

asumist kutseharidust, nõustub 75 % väitega, et nende riigis on keskhariduse tasemel

pakutaval üldharidusel positiivsem kuvand kui esmakutseõppel. Mõni riik tegi tööd soolise

võrdõiguslikkuse edendamiseks, vähem tõendeid on soolisest kaasatusest ja võitlusest

soostereotüüpide vastu kutsealade valimisel, sõltuvalt riiklikust kontekstist ja vajadustest.

Täiskasvanute osalemist jätku-kutseõppes takistavad sarnased stereotüübid kui eespool

nimetatud ja piiratud teadlikkus olemasolevatest võimalustest.

Rahvusvahelistumine ja õpiränne, millel on potentsiaal edendada innovatsiooni ja suurendada

kutsehariduse atraktiivsust, on mõnevõrra suurenenud,22 kuid on endiselt killustatud, kuna

õpirändevõimalused on välja arendamata23. Kutsehariduse omandanud isikud, kellel on

välismaal õpirändes osalemise kogemus, on teatanud uuringutes, et välismaal omandatud

oskused on nende tööalases karjääris kasulikud, toetades nende tööalast konkurentsivõimet24.

Cedefopi andmetel aitavad rahvusvahelised võimalused (sh õpiränne) lisaks suurendada

22 Riikliku rakenduskava meetmetest, mille eesmärk on suurendada rahvusvahelistumist, on teatanud AT, CY,

DE, DK, EE, EL, HR, LV, PT ja PL. 23 Riikliku rakenduskava meetmetest, mille eesmärk on suurendada õppijate ja töötajate õpirännet, on teatanud

AT, BE-NL, DE, DK, FR, HR, LT, LV, MT, NL ja PL. 24 Fassl, A., Kirsch, M., Pachocki, M., ja Zabko, O., „Tracing VET graduates with foreign mobility experience“

(Välismaal õpirändes osalenud kutsehariduse omandanute jälgimine), 2020. Varssavi, Haridussüsteemi

Arendamise Sihtasutus (Foundation for the Development of the Education System, FRSE). Kättesaadav aadressil

https://erasmusplusresearch.eu/research/tracing-vet-graduates-foreign-mobility-experience.

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kutsehariduse atraktiivsust25. Kutseharidussüsteemis töötajate, näiteks õpetajate, koolitajate ja

nõustajate õpiränne on vähem arenenud kui õppijate oma. Mõnest algatusest ja projektist on

küll teatatud, kuid rahvusvahelistumine on endiselt ebaühtlane ja nõrgalt lõimitud riiklikesse

kutseharidussüsteemidesse, hoolimata selle strateegilisest tähtsusest atraktiivsuse ja

tipptaseme vaatenurgast, millele on osutatud nõukogu 2020. aasta soovituses.

3.2. Üldine hinnang edusammudele ja prioriteetsed valdkonnad tulevikus

ELi liikmesriigid on teinud nõukogu 2020. aasta soovituses kindlaks määratud ja

riiklikes rakenduskavades kinnitatud prioriteetide elluviimisel märkimisväärseid

edusamme. Ent hoolimata kutsehariduse tähtsast rollist nii kaasatuse edendamisel kui ka

toimetulekul tööturul esinevate väljakutsetega, mis hõlmavad tööjõu ja oskuste nappust,

tööjõu vananemist ning õiglase rohe- ja digiülemineku tagamist, on mõni probleem endiselt

lahendamata.See vähendab jätkuvalt kutsehariduse potentsiaali edendada kaasavat ja

kestlikku majanduskasvu ning konkurentsivõimet. Pakiline probleem, mis piirab

kutsehariduse panust majanduskasvu, on ka püsivad lüngad kutsehariduse kättesaadavuses ja

tulemustes nii soolise kaasatuse tagamisel, haavatavate rühmade tõhusal toetamisel kui ka

elukestva õppe laiendamisel.

Liikmesriigid on teinud suuri jõupingutusi, et muuta kutseharidussüsteemid

paindlikuks ja vastupidavaks kohanemisel kiirete muutustega tööturul (1. prioriteet),

kuid mõni probleem püsib. Edusamme on tehtud eeskätt kutsehariduse standardite,

õppekavade ja programmide ajakohastamisega, mille eesmärk on olnud tagada

tasakaalustatud kombinatsioon kutseoskustest ja võtmepädevustest, pöörates erilist tähelepanu

digioskuste süstemaatilisele integreerimisele. Selleks et viia kutsehariduse programmid ja

õppekavad täielikult kooskõlla tööturu vajadustega, pidades eelkõige silmas selliseid

megatrende nagu suurenev digiteerimine ja automatiseerimine ning üleminekut

kliimaneutraalsele majandusele, on vaja teha lisapingutusi. Jõupingutustega on oluline jätkata,

eelkõige võttes arvesse suurenevat digiteerimist ja tehisintellekti laialdast kasutamist.

Cedefopi hiljutisest analüüsist, kus vaadeldakse internetis avaldatud töökuulutusi ELi

liikmesriikides, on näha, et vabade töökohtade hulgas on suurenenud selliste kutsealade

osakaal, mille puhul on vajalikud füüsiline kohalolek ning manuaalsed ja rakenduslikud

tehnilised oskused (nt masinaehitustehnikud, tööstusmasinate mehaanikud, ehitusettevõtjad ja

transporditöötajad)26. See näitab, et kuigi tööturul toimuvate muutustega sammu pidamiseks

on oluline omandada digikirjaoskus ja tehisintellektipädevus, püsib nõudlus teatavate

kutseharidusega töötajate järele, hoolimata sellest, et suurenenud on tehisintellekti

rakendamine.

25 Cedefop, „VET mobility prospects increases VET attractiveness“ (Võimalused osaleda õpirändes suurendavad

kutsehariduse atraktiivsust). Kättesaadav aadressil https://www.cedefop.europa.eu/en/tools/vet-toolkit-tackling-

early-leaving/resources/vet-toolkit-upskilling-pathways/best-practices/vet-mobility-prospects. 26 Cedefop, „Reverse gear:how AI is bringing vocational occupations back“ (Tagasikäik: kuidas tehisintellekt

toob tagasi kutseharidust eeldavad ametikohad), 2026. Kättesaadav aadressil

https://www.cedefop.europa.eu/en/news/reverse-gear-how-ai-bringing-vocational-occupations-back.

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Riigid kõikjal ELis suurendavad jõupingutusi, kandmaks hoolt selle eest, et õppijad

omandavad kutseharidussüsteemis kindlad põhioskused. Paraku on rakendamine endiselt

ebaühtlane ning paljud õppijad sisenevad kutseharidussüsteemi ja lahkuvad sealt ikka veel

ilma piisava kirja-, arvutus-, teadus-, digi- ja kodanikuoskusteta, sealhulgas ilma meedia- ja

infopädevuseta, mis on olulised nii tööalase konkurentsivõime kui ka aktiivse ühiskonnas

osalemise jaoks. Samal ajal piirab kutsehariduse tulemuslikku pakkumist see, et kutsehariduse

valdkonnas napib kvalifitseeritud õpetajaid ja koolitajaid, eelkõige neid, kes suudaksid

lõimida kutseõppesse põhioskused. PISA uuringu raames kogutud tõendid osutavad ka sellele,

et paljud õppijad alustavad kutsehariduse omandamist nõrgemate põhioskustega kui nende

eakaaslased, kes hakkavad omandama üldkeskharidust27. Riikides, kus selline võrdlemine on

võimalik, on kutseõppeprogrammides osalevate õppijate tulemused üldharidusprogrammides

osalevate eakaaslaste omadest sageli oluliselt viletsamad, mõnikord sellistel põhjustel nagu

varane diferentseerimine.

Lisaks on edusammud endiselt ebaühtlased matemaatika, teaduse, tehnoloogia, ja inseneeria

(MATI) valdkonna oskuste pakkumisel. MATI-programmides osaleb vaid 36,3 % kesktaseme

kutsehariduse omandajatest ELis, mida on 8,7 protsendipunkti vähem kui 2030. aastaks

kavandatud ELi tasandi eesmärk, milleks on vähemalt 45 %. MATI-valdkonnas keskendub

enamik kutsehariduse omandajaid inseneeriale, tootmisele ja ehitusele. Portugalis, Maltas,

Poolas ja Itaalias on märkimisväärne osa MATI-valdkonna õpilastest valinud info- ja

kommunikatsioonitehnoloogia (IKT). Seevastu loodusteaduste, matemaatika ja statistika

valdkonda peab atraktiivseks väga väike osa kutsehariduse omandajatest kogu ELis.

Hoolimata töökohapõhise õppe ja õpipoisiõppe võimaluste laienemisest, on mõni riik

teatanud, et õpipoisse on vähem või vähe,28 vastupidiselt varasematele perioodidele, mil

peamine probleem oli õpipoisiõppe kohtade nappus. Õpipoisiõppe laiendamine

täiskasvanutele ja kõrghariduse valdkonda on edenenud, kuid pakutavaid võimalusi

kasutatakse endiselt vähe. Samuti on kutsehariduses rakendatav töökohapõhine õpe teatavates

valdkondades (eelkõige tervishoius ja põllumajanduses) rohkem levinud kui teistes29.

Poliitikameetmetes võiks paremini käsitleda praktikakohtade nõudluse ja pakkumise

tasakaalustamatust ja mittevastavust. Lisaks tuleks investeerida ettevõttesiseste koolitajate

kutsealasesse arengusse pedagoogika valdkonnas ja haavatavatest rühmadest pärit õppijate

toetamisse. Veel üks valdkond, mida võiks edasi arendada, on kutseharidussüsteemi ja

tööstuse vaheline koostöö. See võib aidata edendada nii õpipoisiõppe võimaluste kasutamist

kui ka kutsehariduse pakkumise ja tööturul vajaminevate oskuste vastavusse viimist.

27 OECD, „Education at a glance 2023:OECD indicators“ (2023. aasta ülevaade haridusest: OECD näitajad),

Pariis, OECD Publishing. Kättesaadav aadressil https://www.oecd.org/education/education-at-a-glance/. 28 Õpipoiste arvu vähenemisest või õpipoisiõppe kohtade piiratud kasutamisest mõnes sektoris on teatanud DE,

FR, IT ja AT. EL, HU, CZ ja RO on riigid, kus töökohapõhise õppe, sealhulgas õpipoisiõppe rakendamine

edeneb aeglaselt. 29 Euroopa Komisjon, „Education and training monitor 2025:comparative report“, Euroopa Liidu Väljaannete

Talitus, Luxembourg, 2025. Kättesaadav aadressil https://op.europa.eu/en/publication-detail/-

/publication/30c1ccaa-bfdd-11f0-a612-01aa75ed71a1

11

Riigid on näidanud oma pühendumust paindlikkuse ja edasiminekuvõimaluste

edendamisele kutsehariduse valdkonnas (2. prioriteet) ning oskuste täiendamise ja

ümberõppe võimaluste suurendamisele, kuid paljud algatused on endiselt

ettevalmistavas etapis. Paindlikkuse edendamiseks rakendatakse õpiväljunditel põhinevaid

lähenemisviise, muudetakse õppekavu ja programme moodulipõhiseks, luuakse

mikrokvalifikatsioonitunnistusi ja osalisi kvalifikatsioone ning suurendatakse väljaspool

ametlikke süsteeme saavutatud õpiväljundite valideerimise ja tunnustamise võimalusi. Riigid

mitmekesistavad õppeviise, tugevdades digi- ja põimõppe taristut ning uurides tipptasemel

haridustehnoloogiaid, nagu virtuaalreaalsus ja tehisintellekt. Selline kujunemisjärgus

tehnoloogia integreerimine kutseharidusse võib tulemuslikult vähendada lõhet koolituse

pakkumise ja areneva tööturu vahel, kuid esineb ka piiranguid, mis on tingitud näiteks

suutlikkusest pidada sammu tööstussektoris toimuva kiire tehnoloogilise arenguga või teha

seadmete jaoks vajalikke investeeringuid30. Mikrokvalifikatsioonitunnistusi ja tipptehnoloogia

kasutamist käsitlevad meetmed on alles algusjärgus ega ole veel saavutanud kutsehariduses

oma täit potentsiaali. Riigid, kes ei ole neis valdkondades veel edusamme teinud, saaksid kasu

regulatiivse arengu kiirendamisest, koolitussisu ja interaktiivseid ressursse pakkuvate

digiplatvormide katsetamisest ning mikrokvalifikatsioonitunnistuste vastastikuse

tunnustamise edendamisest kogu ELis31.

Euroopa läbipaistvusvahendite eesmärk on muuta kutseharidus tööandjatele ja muudele

sidusrühmadele paremini mõistetavaks. 2024. aastal toimunud Euroopa

kvalifikatsiooniraamistiku hindamise üks peamisi järeldusi oli see, et Euroopa

kvalifikatsiooniraamistik on hästi toimiv võrdlusalus, mis on pälvinud laialdase heakskiidu

kvalifikatsioonidega tegelevate asutuste seas32. Euroopa kvalifikatsiooniraamistik ja

seonduvad riiklikud kvalifikatsiooniraamistikud on olulised vahendid, mille abil muuta

kutsekvalifikatsioonide tase ja sisu läbipaistvamaks nii riigi sees kui ka piiriüleselt.

Europass – ELi vahend karjääri juhtimise ja elukestva õppe jaoks – aitab kutsehariduse

omandanutel tutvustada oma kvalifikatsiooni ja oskusi, sealhulgas tööjõu liikuvuse kontekstis.

Paraku pärsib nende vahendite ebaühtlane rakendamine kvalifikatsioonide ja oskuste

läbipaistvust ja mõistmist ELis. 2024. aastal korraldatud Europassi hindamisel jõuti

järeldusele, et andmeanalüüsi ja tehisintellekti kasutamist Europassi puhul saaks edasi

30 Herrero, C., Arroyo Sagasta, A., Castaño Muñoz, J., Centeno, C., Coenen, J., et al., „Supporting the digital

transformation of vocational education and training“ (Kutseharduse digipööde toetamine), 2025. Luxembourg,

Euroopa Liidu Väljaannete Talitus. Kättesaadav aadressil

https://publications.jrc.ec.europa.eu/repository/handle/JRC141881. 31 Edusammudest seoses riikliku rakenduskava meetmetega, mille eesmärk on edendada

mikrokvalifikatsioonitunnistusi ja osalisi kvalifikatsioone, on teatanud BE-NL, DE, FI, HR, HU, LV, MT, NL,

PL, PT ja SK. Edusammudest digiplatvormide ja õppematerjalide arendamisel on teatanud AT, BE-FR, BE-NL,

BG, CY, DE, DK, ES, HU, LU, NL, PL ja PT. 32 Euroopa Komisjon, „European Commission publishes evaluations of Europass and the European

Qualifications Framework (Euroopa Komisjon avaldab Europassi ja Euroopa kvalifikatsiooniraamistiku

hindamise tulemused), 2024. Kättesaadav aadressil https://employment-social-

affairs.ec.europa.eu/news/european-commission-publishes-evaluations-europass-and-european-qualifications-

framework-2024-03-27_en.

12

arendada, millega aidataks vähendada oskuste ja tööjõu nappust, mis mõjutab eriti valdkondi,

kus on vaja kutseharidust33.

Täiskasvanute koolituses osalemise määr on paljudes riikides endiselt madal34. Kuigi

liikmesriigid keskenduvad üha enam elukestvale õppele, oli see määr täiskasvanuhariduse

uuringu andmete kohaselt 2022. aastal vaid 39,5 %, kusjuures riikide vahel esines suuri

erinevusi. Seda on vähem kui 2030. aastaks seatud ELi tasandi eesmärk, milleks on vähemalt

60 %35. On oluline, et jätku-kutseõppes võetaks arvesse kõigi täiskasvanute õppimis- ja

arenguvajadusi. Lisaks võiks õppijate osalemist ja toetamist tugevdada elukestva nõustamise,

varasemate õpingute valideerimise, mikrokvalifikatsioonitunnistuste ja osaliste

kvalifikatsioonide edasine rakendamine koos hästi kavandatud stiimulitega nii üksikisikutele

kui ka tööandjatele. Samuti on väga oluline jälgida osalemist ning tagada eri teenuseosutajate

vaheline koostoime ja koordineerimine.

Teatavaid edusamme on tehtud innovatsiooni ja majanduskasvu edendamisel ning

õppijate digi- ja roheüleminekuks ettevalmistamisel (3. prioriteet). Mõned riigid

ajakohastavad kutsehariduse taristut, investeerides nii digitaalsetesse koolitus- ja

õppeplatvormidesse kui ka füüsilistesse rajatistesse,36 et viia need kooskõlla praeguste

tööstuse vajadustega. See hõlmab investeerimist IKT-taristusse ja tänapäevastesse

seadmetesse ning tipptehnoloogia integreerimist kutseharidusse. Toetus kutsehariduse

tipptaseme keskustele on endiselt piiratud, kuid seda laiendatakse uute keskuste loomise või

olemasolevate keskuste arendamise kaudu, sageli ELi toetuse ja rahastamise toel.

Hiljutisest analüütilisest aruandest mõningate Erasmus+ kutsehariduse tipptaseme keskuste

projektide kohta on näha, et need keskused võivad toimida kutsehariduse ümberkujundamist

võimaldavate struktuuridena, näiteks aidates edendada innovatsiooni õpetamise ja õppimise

valdkonnas, viies kutsehariduse vastavusse tööturu vajaduste ja oskuste vajadusega ning

tugevdades peamiste sidusrühmade vahelist koostööd. Kutsehariduse tipptaseme keskuste

algatuse ja selle mõju edasiarendamiseks on selles aruandes esitatud mõned soovitused, mis

puudutavad avaliku sektori asutuste kaasamist ning õppijate ja töötajate suuremat kaasamist,

samuti rahastamise mitmekesistamist, seoste tugevdamist muude algatuste ja organitega, nagu

oskuste pakt ja kutseõppe nõuandekomitee, pedagoogilise innovatsiooni laiendamist ning

digi- ja roheoskuste tasakaalustatud integreerimist kõikidesse majandussektoritesse.

33 Komisjoni aruanne Euroopa Parlamendile ja nõukogule Euroopa Parlamendi ja nõukogu 18. aprilli 2018. aasta

otsuse (EL) 2018/646 (milles käsitletakse oskuste ja kvalifikatsioonidega seotud paremate teenuste pakkumise

ühist raamistikku (Europass) ning millega tunnistatakse kehtetuks otsus nr 2241/2004/EÜ) rakendamise ja mõju

kohta. Kättesaadav aadressil EUR-Lex – EL – 52024DC0135 – ET – EUR-Lex. 34 Viimaste kättesaadavate täiskasvanuhariduse uuringu (2022) andmete kohaselt jääb see määr sellistes riikides

nagu BG, EL, RO, PL, CZ, HR, SI, LT, CY, IT, PT, LV, ES, BE, MT, ET ja LU allapoole 2025. aastaks seatud

ELi tasandi eesmärki, mille kohaselt peaks viimase 12 kuu jooksul olema osalenud elukestvas õppes vähemalt

47 % täiskasvanutest vanuses 25–64. 35 See eesmärk on pärit nõukogu 2021. aasta resolutsioonist, mis käsitleb uut Euroopa täiskasvanuhariduse

tegevuskava 2021–2030. Vt ka Euroopa sotsiaalõiguste samba tegevuskava. 36 Edusammudest seoses riikliku rakenduskava meetmetega, mis keskenduvad taristu ajakohastamisele, on

teatanud AT, BE-NL, BG, CY, DE, DK, EL, HU, LT, LV, PL, PT ja SI.

13

Liikmesriigid on võtnud meetmeid tagamaks, et kutseharidus on atraktiivne valik, mis

põhineb oskuste nüüdisaegsel ja digitaliseeritud pakkumisel (4. prioriteet). Hoolimata

jõupingutustest ja sihipärastest meetmetest eri riikides on peamine takistus, mis pärsib

suuremat osalemist nii esma- kui ka jätku-kutseõppes, endiselt kutsehariduse tajutav madalam

staatus võrreldes üld- ja akadeemilise haridusega. Kutsehariduse atraktiivsuse suurendamisel

võib olla oluline edasiviiv samm innovatsiooni ja rahvusvahelistumise toetamine. Samuti saab

tugevdada kutsehariduse positiivset kuvandit ja seeläbi suurendada kutsehariduse atraktiivsust

kutsehariduse eeliste ja kutsehariduse omandanute tööväljavaadete sihipärase tutvustamisega.

See võib hõlmata teadlikkuse suurendamise kampaaniaid, osalemist rahvusvahelistel

kutseoskusvõistlustel, elukestvat nõustamist ja õpirände võimalusi.

Riigid on teinud tööd kutseharidust andvate õpetajate ja koolitajate toetamiseks, kuid

kutseharidussüsteemid on nende kutsealade vähese atraktiivsuse tõttu endiselt surve all.

Liikmesriigid on näiteks laiendanud kutseharidusprogramme kõrgematele

kvalifikatsioonitasemetele (Euroopa kvalifikatsiooniraamistiku tasemed 5–8), parandanud

üleminekut kutsehariduse ja kõrghariduse vahel ning investeerinud kutseharidussüsteemis

töötavate õpetajate ja koolitajate pidevasse kutsealasesse arengusse. Olemasolevad tõendid

osutavad siiski sellele, et õpetajate ja koolitajate keerukate õpivajaduste rahuldamiseks

puuduvad süsteemsed lähenemisviisid. Muu hulgas ei jälgita süstemaatiliselt nende tööalase

enesetäiendamise sisu ja mõju õpetamistavadele.

Õpetajate ja koolitajate oskuste ja pädevuse suurendamiseks oleks vaja pidevat süsteemset ja

mitmekülgset täienduskoolitust. Praegu on pakutav koolitus sageli ebaühtlane ega hõlma kõiki

valdkondi. Õpetajate nappuse probleemi lahendamiseks ja õpetajakutse maine parandamiseks

võiksid riigid teha tööd, et lihtsustada õpetamistöö alustamist, hõlbustada kvalifikatsioonide

valideerimist ja tunnustamist, parandada töötingimusi ja kohandada palku, uurida oma

kutsealal töötamise ja õpetamistöö vahel liikumise võimalusi, sealhulgas kombineeritud

õpetamise mudeleid, mida ei ole seni laialdaselt uuritud, ning pakkuda mitmekesiseid ja

piisavaid kutsealase arengu võimalusi, sealhulgas praktikat ettevõtetes ja võimalust saada

rahvusvahelisi kogemusi, osaledes töötajate õpirändes. Herningi deklaratsioonis kutsutakse

üles pöörama tähelepanu ka õpetajate ja koolitajate vaimsele heaolule – valdkonnale, mida ei

ole piisavalt uuritud.

Kuigi võrdsete võimaluste ja sooliselt kaasavate kutseharidussüsteemide edendamisel

(5. prioriteet) tehtud edusammud on tagasihoidlikud, rakendavad riigid meetmeid, mis

on suunatud haavatavatele rühmadele. Programmi „Erasmus+“ raames toetatakse

ülekantavate oskuste, näiteks suhtlemis-, kohanemis- ja kultuuridevahelise suhtlemise oskuste

arendamist, rakendades kutseharidussüsteemis õppijate ja töötajate õpirännet,

koostööpartnerlusi ja suutlikkuse suurendamise meetmeid. Tõendeid edusammudest soolise

kaasatuse valdkonnas ja võitluses soostereotüüpide vastu kutsealade valimisel on

vähem. Soolise tasakaalu puudumisel ning naiste alaesindatusel MATI-valdkonnas ja

kutseharidussüsteemis on märkimisväärsed tagajärjed tööturule, näiteks püsiv oskuste nappus,

piiratud majanduslik tootlikkus ning struktuurse ebavõrdsuse suurenemine tööhõives ja

palkades. Väga oluline on pöörata tähelepanu kutsehariduse kaasavusele, kandmaks hoolt

selle eest, et haavatavatesse rühmadesse kuuluvad isikud (nt pikaajalised töötud, puuetega

14

inimesed, mittetöötavad ja mitteõppivad noored) saaksid läbida asjakohase ja piisava

koolituse, et nad oleksid tööturule sisenemiseks hästi ette valmistatud, tänu millele suureneks

üldine tööhõive määr ja tootlikkus ning väheneks vaesuse määr. Kaasavuse tagamiseks tuleb

tõhusates kutseharidussüsteemides pakkuda õppijate vajadustel põhinevat sihipärast toetust,

tugevdada seoseid stabiilsete ja kvaliteetsete töökohtadega ning laiendada kaasava

töökohapõhise õppe võimalusi.

Mõningaid edusamme on teinud ka riigid, kes keskenduvad kvaliteedi tagamisele

kutsehariduses (6. prioriteet). Ligikaudu pooled riigid on töötanud välja uusi strateegiaid, et

viia riiklikud kvaliteedi tagamise süsteemid kooskõlla EQAVETi prioriteetidega, tugevdada

kutsehariduse pakkujate enesehindamist (nt sisemised hindamisprotsessid, pidev täiustamine

ja tagasisideahelad) ning parandada sidusrühmade kaasamist juhtimisse. Et saavutada selle

prioriteedi eesmärgid ning vallandada õppijate ja kutseharidussüsteemi jaoks nende täielik

potentsiaal, on väga tähtsad järjepidevus ja suuremad investeeringud.

Kutsehariduspoliitika juhtimisel ja elluviimisel on kesksel kohal sotsiaalpartnerid, kes

aitavad kaasa poliitika väljatöötamisele, õppekavade koostamisele, kvaliteedi

tagamisele, rahastamisotsustele ja karjäärinõustamisele. Sotsiaalpartnerite rolli meetmete

rakendamisel saaks veelgi laiendada, austades igati nende autonoomiat. Seda eelkõige seoses

oskuste prognoosimise ja oskuste vajaduse kindlakstegemisega, haavatavatele rühmadele

õpipoisiõppe ja töövõimaluste pakkumisega, ümberõppe ja oskuste täiendamisega ning

mitteformaalse ja informaalse õppimise tunnustamise ja valideerimisega.

4. Kokkuvõte

Aruandlus nõukogu 2020. aasta soovituse rakendamise kohta liikmesriikides annab kirju pildi

edusammudest ja püsivatest probleemidest, tuues esile kutsehariduse potentsiaali, aga ka

mõned kutsehariduse puudused tööturu vajadustega tihedalt kooskõlas oleva kaasava ja

kestliku arengu edendamisel. Kuigi paljud liikmesriigid on käivitanud olulised reformid,

kasutades sageli ELi toetust ja rahastamisvõimalusi, on ajakohastamise ja edusammude tempo

ebaühtlane. Endiselt esineb lünki digiteerimises, sealhulgas tehnoloogia, näiteks tehisintellekti

integreerimises, oskuste prognoosimises, töökohapõhises õppes / õpipoisiõppes,

kutseharidussüsteemis töötavate õpetajate ja koolitajate suutlikkuses. Lisaks põhjustab

ühiskonnas pidevalt tajutav kutsehariduse madal staatus ja väike atraktiivsus oskuste

mittevastavust tööturu vajadustele. Et kasutada maksimaalselt ära kutsehariduse potentsiaali

toetada ELi konkurentsivõimet, tuleb edendada kutsehariduse tipptaset ning tugevdatud

partnerlusi ettevõtjate ja sotsiaalpartneritega. Samuti tuleks edendada kutsehariduse

omandajate õpirändevõimalusi ja rahvusvahelistumist. Lisatähelepanu vajab ka põhioskuste,

kodanikuoskuste ja MATI-valdkonna oskuste andmine, mis on ülioluline, et edendada

kutsehariduse omandanute tööalast konkurentsivõimet37 ja tagada kooskõla tööturu

37 Saksamaa tööandjate ühenduste keskliit, „For our democracy – democracy education throughout all levels of

education“ (Demokraatia hüvanguks – demokraatiaalane haridus kõigil haridustasanditel), 2025. Kättesaadav

aadressil https://arbeitgeber.de/en/portfolio-item/for-our-democracy-democracy-education-throughout-all-levels-

of-education/.

15

vajadustega. Kõigi nende probleemide lahendamisele sillutab teed tulevane Euroopa

kutsehariduse strateegia.