A National Skills Strategy and Action Plan for Malta

4. Piloting the policy recommendations in the Maltese maritime sector

Abstract

In parallel with the National Skills Strategy, this TSI project undertook a detailed assessment of skills gaps in Malta’s maritime sector and developed a Skills Action Plan to address them. This chapter summarises the key findings and recommendations, including five strategic recommendations and ten actions aimed at strengthening skills development across all stages of the talent pipeline. A more detailed analysis and description of the proposed actions can be found in the reports Results of the Analysis for Malta’s Maritime Sector (Output 4) and Action Plan Proposal for Reforming Malta’s Maritime Skills Provision (Output 6).

Overview and performance

Malta has achieved notable progress on a number of skills indicators, owing to efforts that put skills at the forefront of the national agenda, including the adoption of national strategies such as Malta Vision 2050 and the National Recovery and Resilience Plan (NRRP). However, challenges still remain and are particularly pronounced in certain sectors, including Malta’s prominent maritime sector. The successful implementation of the National Skills Strategy at the country level will require localised, sector-specific interventions in parallel to ensure a holistic and co‑ordinated approach across the entire Maltese economy.

OECD analysis suggests that while there has a been a rise in demand for workers in the maritime sector in recent years, enrolment in maritime‑related programmes does not appear to be keeping pace with the growth in vacancies. Employers report growing difficulty in filling vacancies for mechanical engineers, engineering technicians, crane operators, and seafarers – occupations that are essential to maintaining safety standards, ensuring compliance with international regulations, and preserving Malta’s competitiveness in maritime trade and services. Overall demand for ancillary maritime occupations, which are indirectly related to the operation and servicing of ships (e.g. finance, logistics, ICT, legal services, and training), also appears to exceed supply.

As the maritime sector undergoes significant transformation – driven by technological advancements, the net-zero transition, and evolving global trade and shipping patterns – its skills needs are evolving. Addressing these emerging needs through a dedicated skills action plan should be a priority for Malta. The development of targeted measures to close skills gaps in the maritime sector is supported by strong political commitment, reflecting the sector’s strategic economic importance.

In parallel with the National Skills strategy, this TSI project undertook a detailed assessment of skills gaps in the maritime sector and formulated a Skills Action Plan to address those gaps. The project involved close engagement with a broad range of government entities and stakeholders, fostering a shared commitment to implementation.

Policy recommendations for the maritime sector

This section presents five strategic recommendations to reduce skills gaps in Malta’s maritime sector, targeting challenges across all stages of the skilled labour pipeline. More specifically, the recommendations described in this chapter aim to enhance Malta’s capacity to systematically monitor, assess, and respond to skills gaps as they emerge across the maritime sector.

Recommendation 1: Raise awareness of maritime careers through education and public engagement

Malta’s maritime sector is poised for substantial growth, with projections indicating it could contribute over 14% of national GDP in the coming years (Malta Maritime Forum, 2020[1]). However, this potential can only be realised if the sector succeeds in attracting new workers – particularly younger workers. Stakeholder consultations and recent analyses confirm that the maritime sector lacks visibility among Malta’s general public, particularly among young people (Malta Maritime Forum, 2020[1]; Ministry for Transport, Infrastructure and Public Works, 2024[2]). This lack of visibility mirrors widespread challenges identified in the broader National Skills Strategy, particularly the limited availability of accessible, up-to-date information on skills demand across strategic industries (see Priority Topics 1 and 2 in Chapter 2).

Analysis of PISA data reveals that fewer than 1% of students intend to pursue a maritime career. Even among students with a parent employed in the sector, fewer than 3% expressed interest in following a similar path (OECD, 2022[3]). This low level of engagement may partly reflect the lack of exposure school students have to maritime themes from an early age. Stakeholders report that students rarely encounter maritime‑related content or career pathways during their education, reducing awareness and interest at a formative stage.

To address these challenges, Malta would benefit from investing in raising awareness of maritime careers through targeted education initiatives and public outreach. The overall aim could be to rebrand the maritime sector and promote its attractiveness as a compelling, future‑oriented career destination. To implement this recommendation, the following specific actions are proposed:

1.1. Integrate maritime themes into schools. The Ministry for Education, Sport, Youth, Research and Innovation (MEYR), in collaboration with the Ministry for Transport, Infrastructure and Public Works (MTIP) and Malta Maritime Forum (MMF), is advised to collaborate to embed maritime content into primary and secondary education. This could include participation in international initiatives such as Adopt a Ship (Adopt a Ship, 2025[4]), as well as local initiatives such as site visits to vessels and maritime companies; school talks from industry professionals; and tailored resources for teachers and guidance counsellors. Implementation could leverage existing structures, including the Personal, Social and Career Development (PSCD) programmes, career guidance sessions, extracurricular competitions, or relevant educational modules.

1.2. Launch a public awareness campaign to promote maritime careers. A campaign could be developed to raise the profile of the maritime sector and present it as a modern, innovative and purpose‑driven industry. Branded as the “Choose Maritime” campaign, it would showcase the wide range of opportunities available at sea and on shore, linking the sector to themes such as sustainability and national heritage. It could position the sector as modern, dynamic, and purpose‑driven. Storytelling and presenting role models would be central, using platforms such as YouTube, social media and radio to share career journeys that emphasise progression, adventure and innovation. The campaign’s primary audiences would be secondary students, their parents and entry-level workers. However, the campaign could also target mid-career adults who may be considering a career change. The campaign could also promote new incentives and programmes outlined in subsequent recommendations: hands-on learning (Recommendation 2), upskilling opportunities (Recommendation 3) and career mobility (Recommendation 4).

Recommendation 2: Strengthen career entry pathways by incentivising cadetships, apprenticeships and internships

One of the most pressing barriers to entering the maritime sector in Malta is the limited availability of accessible, high-quality hands-on learning opportunities. While a vast majority of maritime employers (78%) indicate that they value hands-on learning more than academic credentials, only slightly more than half of maritime employers in Malta report offering any form of hands-on training, with sea-time opportunities for cadets being particularly scarce (Ministry for Transport, Infrastructure and Public Works, 2024[2]). Although apprentices currently receive both employer-paid wages and government top-ups, stakeholders agree that the financial burden on employers remains a deterrent. Employers often view the cost of providing structured training, particularly onboard placements, as outweighing the benefits.

Due to the lack of learning opportunities, over half (52%) of maritime employers in Malta cite a lack of necessary skills among applicants as a leading recruitment challenge. Additionally, 41% report that new hires struggle to adapt to their roles. These findings reflect a shortage of both practical training prior to employment and structured onboarding processes once in the workplace (OECD, 2025[5]; Ministry for Transport, Infrastructure and Public Works, 2024[2]). Alongside strengthening industry-specific skills, it is important to integrate future skills such as transversal, digital and green skills into hands-on maritime training programmes, supporting the development of a future‑ready workforce throughout the broader Maltese economy (see Priority Topic 4 in Chapter 2).

Expanding access to cadetships, apprenticeships, and internships – both at sea and on land – is essential to build a more skilled, job-ready maritime workforce. These opportunities would not only increase the sector’s appeal to students but also help reduce skills gaps and improve recruitment and retention. To implement this recommendation, the following specific actions are proposed:

2.1. Introduce targeted financial incentives for employers to provide hands-on learning. The government could introduce direct grants, potentially complemented where appropriate by tax incentives, to encourage high quality hands-on learning such as cadetships, apprenticeships, and internships. Grants could be aligned with strategic priorities identified through SAA exercises for the maritime sector (Recommendation 5), with higher subsidies offered for high‑cost training (e.g. cadetships at sea) or occupations with acute skill shortages. Malta could offer direct subsidies for all cadetships, apprenticeships, and internships, with differentiated amounts by occupation or type of training. Additional top-up grants could be provided for creating new apprenticeship places or for recruiting individuals from under-represented groups. These measures could be further reinforced by linking tonnage tax policies to minimum training requirements.

2.2. Develop a national maritime mentorship programme to strengthen skills transfer, support workforce entry, and retain workers. MEYR, in partnership with the MMF, training providers and MTIP, could launch a national mentorship scheme for the maritime sector. The programme would involve one‑to‑one pairings between apprentices, interns, and cadets with experienced professionals, including retired or near-retirement professionals, serving as volunteer mentors. Government funding could support mentor training and programme co‑ordination, while ensuring that participation remains free of charge to trainees, companies, and schools. This scheme could be piloted in the maritime sector, with a view to expanding it into other strategic sectors in Malta at a later stage.

Recommendation 3: Enhance lifelong learning in the sector through national and workplace initiatives

In a sector shaped by evolving international standards, technological advancements, and regulatory updates, continuous training is essential. Yet Malta’s maritime sector lags in providing effective lifelong learning opportunities. While most maritime companies in Malta (84%) provide some form of training to their employees, 71% still report significant skills gaps in their workforce and a nearly half of employers (49%) consider current training opportunities insufficient to meet upskilling needs.

Both government support mechanisms and employer engagement in the maritime industry fall short, creating a mismatch between workforce skills and industry needs. Many firms are reluctant to invest in training that does not yield immediate returns, especially when there is a risk of trained workers being recruited by competitors. Moreover, smaller firms are also less likely to have the financial or human resources to sustain regular or specialised training. These challenges extend beyond the maritime sector and are evident across the Maltese economy, prompting the broader National Skills Strategy to explore policy measures that incentivise individuals to participate in learning (see Priority Topic 5 in Chapter 2) and support employers to provide work-based learning opportunities (see Priority Topic 6 in Chapter 2).

While Malta has several schemes at the national level to support upskilling (e.g. Get Qualified, Skills Development, Investing in Skills), maritime programmes are not accredited under the Malta Qualifications Framework (MQF) and are legally mandated, making them ineligible for these schemes. Furthermore, while Jobsplus will be relaunching a scheme similar to Training Pays – which accepted Transport Malta‑accredited STCW training – in early 2026, the new scheme will also exclude legally mandated training.

To remain competitive and resilient, Malta’s maritime sector must approach lifelong learning as a strategic investment rather than a discretionary expense. Achieving this will require targeted reforms to government funding schemes, alongside stronger public and private sector commitment to delivering relevant, high‑quality, and responsive training opportunities. To implement this recommendation, the following specific actions are proposed:

3.1. Adapt national skills incentive schemes for lifelong learning to better meet sector-specific needs. It is recommended that national skills development schemes be adapted to address the specific needs of priority sectors, including maritime. Existing schemes must be revised to reflect the distinct requirements of maritime training. For example, Transport Malta‑accredited courses, such as STCW training, could be eligible under the Get Qualified scheme. These changes would better align financial incentives with actual industry demands and reduce financial barriers for both individuals and employers.

3.2. Develop short, modular, and responsive training programmes, including on-the‑job learning. Rapid-response training programmes are recommended and could be developed in partnership between the MMF, maritime education and training providers, and the National Skills Council. This collaboration would enable the timely identification of urgent skills gaps and the co-design of tailored training interventions. Training programmes would be short modular, and particularly relevant for training needs arising from new STCW regulations, evolving international safety standards, or the introduction of new maritime technologies. Training delivery should be flexible, taking place either on company premises or at education and training institutions, depending on the subject matter. In parallel, the National Skills Council could partner with employers to develop structured on-the‑job training programmes. To encourage employer participation, salary subsidies could support workers undertaking place‑and-train, reskilling, or job redesign opportunities. Additionally, the sector could implement standardised payback clauses to minimise the risk of poaching and foster greater employer investment in training.

Recommendation 4: Support career progression and transitions in the maritime sector

Certain sub-sectors and occupations within Malta’s maritime sector are growing in size (e.g. occupations in management and logistics, finance, ICT, mechanical engineering technicians, freight handlers) while other areas of the sector are stagnant or declining in prevalence. However, career mobility within the sector remains limited, with few structured pathways for workers to transition between different roles or specialisations. Although maritime experience is highly valued across the sector, practical barriers, such as training gaps, the absence of formal recognition for prior experience, and limited access to upskilling opportunities, often impede career progression. Aligning elements of the broader National Skills Strategy – particularly flexible training options, industry placements, RPL and targeted qualifications (see Priority Topics 4 and 5 in Chapter 2) – to the needs of the maritime sector can facilitate lateral movement and upward progression.

Additionally, a common concern among seafarers is the lack of formal recognition for their sea-based experience. This challenge limits career progression and discourages long-term engagement in the sector. At the same time, the demanding lifestyle associated with long-term seafaring deters many young people from entering maritime careers in the first place. Establishing clearer, well-supported pathways from sea to shore could enhance the overall appeal of maritime careers, especially for those who may not wish to spend their entire working lives at sea.

To strengthen career development and improve workforce adaptability across the maritime sector, Malta should improve pathways that enable movement between different maritime occupations. To implement this recommendation, the following specific actions are proposed:

4.1. Establish a career transition and placement scheme for maritime workers. MTIP and MMF could jointly develop a programme to support industry placements and short-term work experience opportunities across the maritime sector. This scheme would target professionals transitioning into high-growth or strategically important areas and would combine classroom-based training with structured on-the‑job learning. Mentorship and systematic employer engagement would be integral components. The programme would focus on mid-career professionals, both those already employed in the maritime industry and those entering from other sectors. Participation could be incentivised through government-funded salary support. The initiative could also be promoted as part of a broader campaign to showcase the diverse career pathways available in the sector (see Recommendation 1).

4.2. Introduce flexible, accredited top-up qualifications to facilitate career transitions. In collaboration with MEYR, the National Skills Council, and MFHEA, education and training providers could be supported to develop modular top-up qualifications tailored to the maritime sector. These qualifications would be designed to address current and emerging skills gaps, with a focus on high-growth or strategically important areas. The programmes could formally recognise prior learning and professional experience, granting credit exemptions where appropriate and enabling experienced maritime professionals to complete qualifications at an accelerated pace. Structured into modules, the programmes would allow individuals to progress gradually while working, with the option to test out of modules based on existing competencies. To ensure recognition and transferability, qualifications could be accredited nationally and aligned with European or international standards. Importantly, they should be accessible to all maritime professionals – not only those transitioning from sea-based roles – thereby enhancing career mobility and workforce adaptability across the sector.

Recommendation 5: Pilot a Maritime Skills Alliance as a formal co‑ordinating body for the maritime sector

Sustained alignment between maritime education, industry needs, and national policy requires structured, ongoing collaboration among key stakeholders. The reconstitution of the MMF Sub-Committee on Education in 2023 represents a positive development in Malta. However, its informal status and lack of decision making authority significantly limit its impact. Malta’s existing Sectoral Skills Units (SSUs) also play an important role, particularly in areas such as occupational standards and the recognition of prior learning, but they lack the mandate to lead broader skills strategy or workforce planning. The need for a formal co‑ordinating body, proposed in the broader National Skills Strategy (see Priority Topic 8 in Chapter 2), can support Malta’s maritime sector in bringing relevant actors together to guide skills development, anticipate future needs, and co‑ordinate training efforts.

Currently, there is also limited comprehensive data on training participation, skills gaps, or workforce mobility across the maritime sector, mirroring broader nation-wide SAA challenges discussed in the main National Skills Strategy (see Priority Topic 1 in Chapter 2). Skills planning for the sector remains short term and reactive, and systematic efforts to anticipate future skills needs, such as sectoral SAA exercises, have yet to be undertaken. Without forward-looking analysis, education and training systems risk falling out of step with industry developments, leaving workers underprepared for emerging demands. Beyond improving data and addressing mismatches, a co‑ordinated approach is essential to oversee the implementation of the broader set of skills-related recommendations outlined in this report.

To enable co‑ordinated and forward-looking skills development in Malta’s maritime sector, a Maritime Skills Alliance (MSA) should be established as a pilot initiative. This Alliance would serve as a formal platform for collaboration among key stakeholders and could later be replicated in other sectors facing similar workforce challenges. To implement this recommendation, the following specific actions are proposed:

5.1. Create the Maritime Skills Alliance (MSA). It is recommended to pilot an enhanced role of the thematic committee for the maritime sector established under the Smart Specialisation Strategy. The maritime committee could effectively act as a Maritime Skills Alliance, serving as a formal structure bringing together key actors in maritime education and training, workforce planning, and industry development. It could convene social partners, education and training institutions, and relevant ministries and agencies. Its remit could include: overseeing implementation of skills-related recommendations of the forthcoming Maritime Transport Strategy; advising on training standards, qualifications, and career pathways; facilitating data-sharing and stakeholder alignment; and, leading strategic workforce planning, including developing a sectoral skills forecast. To ensure continuity and follow-up, the MSA could be supported by a dedicated secretariat, ideally housed within the National Skills Council.

5.2. Conduct a sectoral skills forecast study. It is recommended that the maritime sector be prioritised for an early sectoral skills forecast as part of Malta’s broader national SAA framework. Led by the MSA, the SAA exercise is advised to include: structured stakeholder consultations; employer surveys and company visits to identify real-time and emerging skills needs; and a comprehensive review of existing education and training programmes to assess gaps, overlaps, and misalignments. The study could generate both short- and long-term projections of the skills required across the sector, highlighting critical bottlenecks and workforce mismatches. These insights will provide a robust evidence base to guide policy decisions and targeted interventions across education, training, and employment systems.

References

[4] Adopt a Ship (2025), Homepage, https://www.adoptaship.org/ (accessed on 18 December 2025).

[1] Malta Maritime Forum (2020), “Maritime Malta: Realising the Potential of the Maritime Sector Towards the Growth and Development of the Maltese Economy”, https://mmf.org.mt/the-maritime-sectors-potential-towards-economic-growth/ (accessed on 21 October 2025).

[2] Ministry for Transport, Infrastructure and Public Works (2024), Skills Gap Analysis Report: Malta’s Maritime Industry.

[5] OECD (2025), Shaping Malta’s Future Through a National Skills Strategy and Targeted Maritime Sector Measures: Analysis Report (Output 2), OECD, Paris, https://www.oecd.org/content/dam/oecd/en/about/programmes/dg-reform/malta/Analysis-Report.pdf.

[3] OECD (2022), PISA data and methodology, https://www.oecd.org/en/about/programmes/pisa/pisa-data.html.