On its path to economic convergence with OECD Members, Bulgaria has taken various steps to reinforce its skills system. These include a National Skills Strategy, large-scale digital skills training for adults, expanded training vouchers for disadvantaged groups, and campaigns to motivate participation in adult learning. Yet, participation remains low and post-secondary non-tertiary education and training offers are limited, contributing to persistent skills imbalances and low productivity. Drawing on OECD experience, this chapter aims to support Bulgaria in advancing its skills agenda amid a rapidly shrinking workforce. It focuses on skills developed outside formal education or after upper-secondary education. The chapter highlights ways to engage employers in designing and investing in adult learning programmes, and to streamline access for disadvantaged, older, and low-educated adults. It also underscores the need to enhance co-ordination of the skills system within and beyond the government and improve the use of skills data for evidenced-informed policymaking.
Education and Skills in Bulgaria
Abstract
Bulgaria is on a trajectory towards economic convergence with OECD members. However, the country faces persistent skills imbalances that are exacerbated by population decline and socio-economic disparities (OECD, 2023[1]; European Commission, 2024[2]). Low rates of participation in skills development at the national level and limited post-secondary non-tertiary education and training offers have contributed to low levels of transversal and digital skills among adults and low productivity rates in comparison to workers from other OECD countries (OECD, 2025[3]). These shortcomings in the skills system have also reinforced the socio-economic disparities that start earlier in life, contributing to weaker labour market outcomes for disadvantaged groups, notably youth, people with lower levels of educational attainment, those living in rural and poor regions, and ethnic minorities (see Chapter 2).
Bulgaria has taken various steps to reinforce the skills system from the demand and supply sides. Among many others, these include providing large-scale digital skills training under the National Recovery and Resilience Plan, increasing use of training vouchers and expanding them to disadvantaged groups, and implementing awareness campaigns to increase motivation to participate in adult learning (OECD, 2024[4]). Furthermore, the development of the National Skills Strategy and its Action Plan for Skills, with support from the OECD and the European Commission, demonstrates Bulgaria’s commitment to taking concrete steps to address skills challenges (OECD, 2024[4]). This chapter aims to further support Bulgaria’s skills policies by drawing on OECD experience of analysing skills information, improving institutional co-ordination, and streamlining procedures for accessing and earning qualifications. While “skills” generally refers to all competencies produced across the life course, this chapter focuses primarily on those skills developed outside of the formal education system or after upper-secondary education, as the previous chapters of this report already cover skills outcomes and policies earlier in life.
Section I: Provides an overview of Bulgaria’s skills system, focusing on how policies compare internationally;
Section II: Compares the sector’s performance with OECD benchmarks on international indicators;
Section III: Provides recommendations on how Bulgaria can learn from OECD evidence and experience to further improve the skills system.
Governance and structure of the skills system
Central governance arrangements for skills policies are complex and fragmented, hindering effective horizontal co-ordination
The provision of youth and adult education and training in Bulgaria implicates a wide range of government and non-governmental stakeholders (see Chapter 2, Figure 2.9). Arrangements at the central level are particularly complex and fragmented. While the Ministry of Education and Science (MES) and the Ministry of Labour and Social Policy (MLSP) are the primary bodies responsible for skills policies, specialised central agencies also have a role. For example, the National Employment Agency (NEA), which operates under the MLSP, oversees the delivery of some vocational education and training (VET) programmes for unemployed adults and the National Agency for Vocational Education and Training (NAVET), which is an independent agency, develops strategies and co-ordinates activities related to other types of continuous VET (OECD, 2023[1]).
Many OECD countries have similar arrangements for sharing responsibilities related to skills development. However, there are signs that co-ordination among Bulgaria’s central ministries and specialised agencies is relatively weaker (see Figure 6.2). Bulgaria also currently lacks important mechanisms and practices that can help strengthen co-operation, such as memoranda of understanding, joint policy projects and delivery teams, and partnership agreements. As a result, there have been a plethora of related projects started by different ministries, some of which are not fully implemented or evaluated once initial project funding expires. This limited cohesion and resulting inefficiencies are exemplified by the Law on Vocational Education and Training (VET Act), which has been amended approximately 30 times since its adoption in 1999, yet implementation and stakeholder awareness of the changes have been limited (European Structural and Investment Funds and World Bank Group, 2020[5]). The current skills governance arrangements also contribute to policy redundancies, limited data sharing and an insufficient ability to determine the effectiveness of Bulgaria’s skills policies (OECD, 2023[1]).
Performance in inter-ministerial co-ordination, 2022
Source: Bertelsmann Stiftung (2022[6]), Sustainable Governance Indicators, https://www.sgi-network.org/2022/Bulgaria (accessed on 9 January 2025).
Vertical co-ordination is also weak and sub-national authorities have limited capacity
Bulgaria has progressively decentralised parts of its education and skills system in recent years, but this move has yielded limited results for the development of more place-based skills policies. While districts have received greater responsibilities for employment and vocational training activities, their status as deconcentrated extensions of the central government leave them with limited autonomy and decision‑making authority (see Chapter 2). At the same time, Bulgarian municipalities have a relatively broader set of powers and autonomy to implement local skills policies. However, their reliance on central fiscal transfers, limited capacity to use labour market information to adapt local training programmes, and difficulties to engage in durable co-operation with social partners and education providers leave many municipal authorities to rely on policy direction from the central government (OECD, 2023[1]). As a result, developing and implementing skills policies in Bulgaria remains largely centralised (OECD, 2021[7]). Vertical co-ordination for skills policies in Bulgaria is further complicated by the absence of a central co‑ordination institution, which some OECD countries have found useful to help steer the overall skills system and facilitate the involvement of sub-national actors (OECD, 2023[1]; CEDEFOP, 2020[8]).
Efforts to engage stakeholders in skills policy development appear to be improving
Like many OECD countries, Bulgaria has established formal consultative processes and platforms to consider the various interests of non-governmental actors (e.g. education and training providers, employers, trade unions, enterprise associations, and non-governmental organisations) in skills policy decisions. For example, there are over 70 advisory councils that engage in policy topics related to labour issues, vocational training, and skills. Nevertheless, the Bertelsmann Foundation’s 2022 SGI ranked Bulgaria’s performance in stakeholder engagement below the OECD average (OECD, 2023[1]). This is partly because Bulgaria’s arrangements for engaging stakeholders are generally fragmented, diluting the collective influence of social partners and making it difficult for the government to reflect their input in policy design and implementation. At the same time, while Bulgaria has a National Council for Tripartite Cooperation to help engage stakeholders in national policy discussions and a Consultative Council for VET, which brings together representatives from trade unions, employers, universities, non‑governmental organisations (NGOs), national and local government representatives, and schools, to provide advice on VET policies, these bodies are currently limited in scope and often focus on commenting on specific draft legislation rather than shaping longer-term policies to meet the country’s evolving skills needs. Moreover, while the Consultative Council for VET convenes regularly and meeting summaries are published on the MES’ website, there is little systematic practice of ensuring meeting decisions taken by consultative bodies and working groups are followed through and translated into concrete policy action. In some cases, public consultations on policy proposals are short or altogether skipped. As a result, it is difficult to assess the overall effectiveness of Bulgaria’s stakeholder engagement mechanisms and to monitor the implementation of their adopted decisions.
Bulgaria is already rethinking some of its skills governance arrangements to help strengthen stakeholder engagement. This includes establishing sectoral councils under Programme Education (2021-2027) to strengthen partnerships between training providers and employers as well as forecast labour market needs at the sectoral and regional levels. As of 2025, 20 sectoral councils have been established and operate under the MES, bringing together industry representatives, employers' organisations and VET institutions, among others. Additionally, Bulgaria started working to establish a new Skills Policy Council in 2024, which will comprise government representatives at the central and local levels, as well as social partners, to oversee implementation of the country’s new National Skills Strategy (OECD, 2024[4]). Rather than replacing existing bodies, the Skills Policy Council aims to provide a more integrated governance structure, improving coherence across these platforms and helping to align their work with national skills objectives. It is expected to oversee the entire skills system and help ensure the achievement of Bulgaria’s skills policy objectives by monitoring and reporting on implementation and outcomes. This includes providing oversight over existing bodies, such as NAVET, and those that are planned, such as the new sectoral skills councils. The Council will also be responsible for publicly reporting on progress to improve stakeholder engagement, the quality of skills needs information, the use of policy evidence, resource allocation, and cost-sharing mechanisms, in line with Bulgaria’s proposed action plan for skills. There are also some recent examples of successful place-based stakeholder engagement initiatives, like the Educational-Industrial Board in the Trakia Economic Zone, which brings together policymakers, businesses, and training providers to align adult learning with labour market needs (OECD, 2023[1]) (see Box 6.2). While the creation of these new governance arrangements is positive, their effectiveness will largely depend on Bulgaria’s ability to put in place mechanisms for accountability (e.g. regular meetings, publishing of results or minutes) and sustainable engagement that move beyond project-based consultations.
Bulgaria’s TEZ unites six industrial zones in the region of Plovdiv (the second-biggest city in Bulgaria) and incorporates 180 companies with over 30,000 employees. In 2016, an Educational-Industrial Board was established in TEZ to bring together policymakers, businesses and providers in the area to ensure the relevance of education more generally to changing labour market needs. The board was created as the result of collaboration between MES, the Plovdiv Municipality, TEZ and the Bulgarian think tank, Industry Watch Group. In 2019, TEZ established a specific VET centre called TrakiaEDU to reskill and upskill employees in the companies that are part of the economic zone with skills specifically relevant to the industries located in TEZ, as well as training courses that teach transferrable soft skills. The VET centre was developed in partnership between TEZ, six local VET schools, seven municipalities, the Regional Education Department (RED), and the regional governor. This initiative demonstrates Bulgaria’s efforts to engage social partners at the local level in addressing skills challenges.
Source: Trakia Economic Zone (n.d.[9]), Trakia Economic Zone, https://tez.bg/ (accessed on 8 January 2025).
Financial resources for skills
Spending on adult learning is generally low in Bulgaria, with learners and employers shouldering most of the costs of training
Although data are limited, available information indicates that public funding for various types of adult learning in Bulgaria is low and the share of private spending has increased over the last decade. At only 10%, Bulgaria’s public funding for post-secondary non-tertiary education (ISCED 4), which caters to both youth and adults, is much lower than most OECD countries with available data, except for Israel (OECD, 2024[4]). Bulgaria’s public funding for active labour market policies for unemployed persons also appears low and not well-targeted in some instances. For example, Bulgaria’s expenditure in this area mainly focuses on direct employment creation programmes rather than employment incentives and training measures, which research suggests tend to be more effective (OECD, 2022[10]; OECD, 2023[1]). As a result, most adult education and training in Bulgaria is privately funded, with costs often covered by learners, employers, or, in some cases, through EU sources. However, both individuals and employers cite cost as a central barrier to participating in and providing adult education and training.
Bulgaria uses a range of subsidies, tax incentives and a voucher scheme to offset private costs. Some subsidies target specific groups or training areas (e.g. training for employees working in high-tech and ICT sectors), and others, like the voucher scheme, offer employed adults greater choice among available education and training opportunities (OECD, 2023[1]). While an evaluation of these financial incentives was found to benefit to individuals, it also revealed shortcomings, such as high co-financing costs and difficulty reaching those with low qualifications, low-incomes, older workers, and individuals in occupations at risk of automation (Hristova, A. et al., 2022[11]). Moreover, employers in Bulgaria, especially small and medium enterprises (SMEs), struggle to provide adequate and high-quality training within their company and release employees for training during paid work time (OECD, 2023[1]). Considering that SMEs provide employment to 75% of the Bulgarian workforce (Commission, 2024[12]), these difficulties help explain why so few Bulgarian employers provide training compared to the EU average (see Figure 6.3).
It has been difficult for Bulgaria to take a more strategic approach to funding the adult learning system, partly because there is not a clearly defined and sustainable financing model and principles for cost‑sharing between the state, employers, and individuals (OECD, 2023[1]). Previous OECD analysis has highlighted the need for such funding arrangements, which have helped some OECD countries share the costs of funding upskilling and reskilling programmes (OECD, 2023[1]; OECD, 2019[13]; OECD, 2024[14]). At present, the current funding arrangements in Bulgaria contribute to the limited and fragmented provision of adult education and training opportunities, as well as to low rates of participation in lifelong learning.
Share of enterprises providing training, 2020
Note: The EU average includes all 27 member states of the EU as of 2020, after Brexit.
Source: Eurostat (2020[15]), Continuing Vocational Training Survey 2020: Enterprises providing training by type of training and size class - % of all enterprises, https://doi.org/10.2908/TRNG_CVT_01S.
The EU is an important source of financing for adult learning in Bulgaria
As with other levels of the education system, Bulgaria draws on significant funding from the European Union (EU) to finance a variety of skills programmes, including the subsidies and voucher schemes mentioned above. While aggregate data is not available, the share of EU funding in Bulgaria’s total VET expenditure increased from 0.8% in 2011 to 12.3% in 2018 (OECD, 2023[1]; European Commission ESIF & World Bank, 2020[16]). Most recently in 2023, EU funding sources have led to preliminary discussions about introducing individual learning accounts to finance nationwide adult training courses. It has also supported training programmes for unemployed persons, and on-the-job training for employees in areas like digital, business and soft skills (European Commission, 2024[2]). While these are positive contributions, the expected continuation of EU support for Bulgaria’s skills policies in the coming years highlights the need for sustainable funding and planning mechanisms to ensure programme continuity.
Education and training offer
Among the few adults in Bulgaria who participate in education and training, most engage in formal learning opportunities
Overall participation in adult education and training in Bulgaria is limited (see Figure 6.6). However, most adult learning opportunities are formal and typically provided by tertiary education institutions (i.e. universities), and VET centres (853 of them across the country), although the latter are mainly private. As with secondary and tertiary education in Bulgaria, adult VET programmes in the country offer limited work-based learning opportunities, especially for learners in more rural and remote areas. This is partly because local economies in these parts of the country are mainly composed of micro and small businesses, making it more difficult for employers to engage in the provision of education and training (World Bank, 2021[17]).
Employers provide most non-formal education and training for adults in Bulgaria and have few incentives to support outside learning opportunities
While fewer adults in Bulgaria participate in non-formal education and training, there are several types of providers. Universities in Bulgaria, as well as other training institutions, also offer non-formal education opportunities, such as short-term training without acquiring a professional qualification. Local community centres (chitalishta), trade unions, employers’ organisations or chambers of commerce play an important role but represent a relatively smaller share of the provider landscape for non-formal education and training in Bulgaria compared to similar institutions on average across the EU (OECD, 2023[1]; Eurostat, 2022[18]). Bulgarian enterprises (20%) are more likely to report a lack of suitable adult VET courses in the market than in the EU on average (14%) (Eurostat, 2020[19]). Because suitable courses are scarce, many enterprises—especially larger ones—fill the gap with in-house provision: employer-financed non‑formal education and training is well above the EU average (see Figure 6.4) (Eurostat, 2022[18]).
Distribution (%) of non-formal education and training activities by provider type, 2022
Note: The share of non-formal education and training provided by an ‘individual’in Bulgaria is from latest available year, 2016.
Source: Eurostat (2022[20]), Distribution of non-formal education and training activities by provider, https://doi.org/10.2908/TRNG_AES_170.
There are challenges related to Bulgaria’s reliance on employers to provide education and training to adults. Notably, in-company training tends to be firm-specific and is not accessible to unemployed Bulgarians. Moreover, employers face particular challenges that may disincentivise them from supporting the upskilling and reskilling of their employees (see Figure 6.5). For most companies, particularly small and medium-sized enterprises, the main obstacles are cost and the difficulty of releasing staff to attend training. Negative perceptions around the value of adult learning among employers also play a role, with only 29% of Bulgarian companies rating training as highly important, a smaller share than the EU average of 35%. Many employers also report not providing training because their skills needs are already met (see Figure 6.5). Taken together, these factors restrict employer support for upskilling and reskilling. As a result, only 17% of enterprises in Bulgaria had a plan, budget, or staff responsible for continuous learning in 2022, compared to an EU average of 44% (Eurostat, 2020[19]; OECD, 2023[1]).
Share of enterprises that do not provide training, by reason for non-provision, 2020
Note: CVT stands for ‘continuing vocational training’; IVT stands for ‘initial vocational training’.
Source: Eurostat (2020[21]), Enterprises not providing training by reason for non-provision and size class - % of non-training enterprises, https://doi.org/10.2908/TRNG_CVT_02S.
Unemployed and inactive youth and adults from disadvantaged groups have little incentive to participate in NEA trainings
The NEA plays a key role in developing and implementing programmes for employment and training that specifically target unemployed individuals. However, unemployed and inactive adults from disadvantaged groups in Bulgaria do not have strong incentives to register with the NEA and therefore many do not benefit from the agency’s training programmes (OECD, 2023[1]). In 2019, only about 22% of inactive or unemployed 25- to 64-year-olds were in contact with the Bulgarian NEA, compared to 35% of job seekers on average across the EU being in contact with a public employment service (OECD, 2023[1]). This gap was even greater among young people who are not in education, employment, or training (NEET). In the same year, only 12% of 15 to 24-year-olds in Bulgaria who were NEET registered with the NEA, compared to 47% of youth on average in the EU. The share is similarly low (around 13%) among inactive and unemployed Roma in Bulgaria (OECD, 2022[10]).
Several factors contribute to these low rates of engagement with the NEA. One is that disadvantaged adults often do not meet the high requirements to receive full unemployment benefits, for example because they may have short contribution records, have quit their job or are returning claimants (OECD, 2023[1]). Another factor is the low value of social assistance in Bulgaria, which in 2019 started at BGN 75 (Bulgarian lev, about EUR 38) per month for a single person (OECD, 2023[1]). This translates to low incentives for people to claim benefits and, therefore, register with the NEA. It also leads some unemployed and inactive adults, especially those from disadvantaged groups, to engage in informal work, further undermining their access to social protection and employer-supported training.
Additionally, once in contact with the NEA, unemployed adults from disadvantaged groups do not receive intensive and tailored support to activate their skills in the labour market nor are they provided with access to high-quality and relevant training (OECD, 2023[1]). The NEA aims to meet its clients who are furthest from the labour market and who are most likely to come from disadvantaged groups more frequently than other clients, but there are reports that this does not happen in practice (OECD, 2023[1]).
Information on the skills system and its use
Skills data collection has been improving, but there is a limited culture of analysing and using evidence to inform skills policy
Bulgaria has expanded available evidence on its skills system in recent years and several practices for collecting and analysing skills information now align with those of OECD countries. For example, the MES tracks the labour market outcomes of VET programmes and graduates. Bulgaria’s MLSP, sometimes with support from external contractors, conducts skills assessment and anticipation (SAA) activities that now include quantitative forecasts, assessments of workforce skillsets and needs, and (privately funded) surveys of employers and sectoral studies (CEDEFOP, 2020[8]; OECD, 2023[1]). However, there is notably little data on the quality of adult education and training programmes and providers.
While improvements to Bulgaria’s skills information systems are positive, the co-ordination and use of data for strategic decision making remains limited (European Commission ESIF & World Bank, 2020[16]; OECD, 2023[1]). Bulgaria’s skills data is collected by a range of different agencies and actors but there is no system for linking information across data systems. Previous OECD analysis also found that Bulgaria has limited capacity to rigorously and systematically analyse data and conduct research on VET (Bergseng, 2019[22]; OECD, 2023[1]). Moreover, skills policy evaluation appears to only consider input from experts on an ad-hoc basis and the country’s SAA activities also sometimes lack detail or relevance for end users. These factors make it difficult for education and training providers to update their programmes, for counsellors to provide advice and guidance to learners and workers, and for the government to build a shared understanding about challenges and priorities in the skills system (CEDEFOP, 2020[8]; OECD, 2023[1]).
Fragmented governance arrangements and weak strategic planning capacity contribute to limited use of skills information
Bulgaria’s governance co-ordination challenges in the skills sector and limited planning capacity have made it harder to develop effective mechanisms for analysing and using skills information. Overall, there is limited awareness about the importance of labour market information, limited understanding of the roles and responsibilities of various actors involved in analysing skills data, and limited participation from regional and local stakeholders in these activities (European Commission ESIF & World Bank, 2020[16]; OECD, 2023[1]). Moreover, many of Bulgaria’s skills data investments are unable to sustain long-term initiatives. One significant example is the pilot project to establish a new research unit within MLSP that was designed to collect and analyse labour market information. Initiated with EU support, this new research unit was supposed to be sustained by the State budget once the pilot project was completed. However, the unit’s existence was ultimately limited to the duration of the pilot and subsequent forecasting exercises were assigned to subcontractors (CEDEFOP, 2020[8]). As a result, Bulgaria is yet to establish governance mechanisms that are responsible for data across the skill system and sustainably funded.
Quality assurance for adult learning and recognition of prior learning
Bulgaria’s quality assurance mechanisms for adult learning remain underdeveloped
Despite concerns about the quality and relevance of adult learning (see Section II below), Bulgaria’s quality assurance arrangements at this level of the education and skills system are underdeveloped. While formal VET is regulated under the VET Act and overseen by NAVET and the MES, non-formal adult learning lacks structured oversight. All VET centres in Bulgaria must establish internal quality assurance systems and submit annual self-assessment reports to NAVET. Bulgaria is also currently developing a regulation to introduce a self-assessment methodology based on an indicator framework for internal quality assurance in VET colleges, as well as VET centres. However, external quality assurance mechanisms, such as independent accreditation or quality labels, are absent, unlike in many OECD countries (World Bank, 2021[17]; OECD, 2023[1]). Moreover, while Bulgaria’s VET Act recommends that the quality of adult education and training be assessed by a three-pronged panel involving representatives from government, employers, and training providers, previous OECD analysis found that this usually does not happen in practice (OECD, 2023[1]). While Bulgaria’s National Youth Strategy for 2021-2030 aims to improve the recognition of skills acquired through non-formal and informal learning, this does not yet constitute a comprehensive quality assurance framework.
Training for adult educators is limited in Bulgaria, undermining the quality of offers
Like many OECD countries, Bulgaria struggles to keep VET and adult educators abreast of the industry specific skills and knowledge while also equipping them with pedagogical skills. This challenge is particularly relevant for adult educators, as they require specialised andragogical (the teaching of adults) training to effectively engage adult learners, who often have diverse backgrounds, prior work experience, and specific learning needs. Although adult educators in Bulgaria must have a university degree in the field they teach, there are no mandatory initial or continuing professional development requirements in areas like pedagogy or adult learning methodologies. Bulgaria also has very few training programmes that offer qualifications in andragogy (OECD, 2023[1]). Therefore, holding a university degree alone may not guarantee that educators are fully equipped to deliver high-quality adult education.
This context creates a risk that some adult educators may not be well prepared or suited to teach adults. However, there are currently no mechanisms to monitor or evaluate the quality of instruction in adult education and training programmes. Beyond formal training and evaluation policies, previous OECD analysis also found that adult educators in Bulgaria have limited support and tools to conduct their work, since textbooks and classrooms are often not adapted to adult learners (OECD, 2023[1]). These factors influence the quality of adult learning in Bulgaria. However, at present, there are no systemic plans in place to address the low qualifications and capabilities of adult educators (OECD, 2023[1]).
Although notable steps have been taken to strengthen the validation of formal, non-formal and informal learning, work remains to be done
Recognition of prior learning (RPL) is a tool for giving adults credit for skills they have acquired non‑formally and informally through work or other experiences. Skills are identified, documented, assessed, and validated through a formal procedure, and the output can be a full or partial formal qualification. In Bulgaria, most RPL is regulated under the VET Act and implemented through VET centres under the supervision of NAVET. These centres can validate professional competences acquired outside formal education. In 2024, Bulgaria undertook significant reforms to its VET system by amending the VET Act in March. This reform facilitates the validation of prior learning and the acquisition of partial qualifications, enabling learners to accumulate and transfer units of learning outcomes. These efforts align with the Council Recommendation on VET and the Osnabrück Declaration, reflecting a positive step towards modernising Bulgaria's VET system and enhancing the recognition of skills acquired through non-formal and informal learning.
However, several factors still limit the full potential of RPL policies in Bulgaria. One such factor is the Bulgarian Qualifications Framework (BQF). While the BQF aligns with the European Qualifications Framework and provides a structured reference for assessing and validating acquired skills, it is largely restricted to the formal education system, limiting the integration of non-formal and informal learning. Moreover, Bulgaria does not have RPL validation arrangements for higher education (Dzhengozova, 2019[23]), which limits the extent to which RPL policies can support the overall upskilling of Bulgaria’s workforce. Despite these factors, participation in Bulgaria’s RPL programmes has been rising. However, it remains quite low by international comparison (OECD, 2023[1]). The low up-take further undermines the potential of Bulgaria’s RPL policies to give adults credit for skills they already have, shorten the time and effort required to engage in training, and therefore potentially increase participation in adult learning.
Reasons contributing to the low uptake of RPL in Bulgaria include the cumbersome administrative and financial burdens existing policies place on individuals and training providers (Dzhengozova, 2019[23]) (Dzhengozova, 2019[23]; OECD, 2023[1]). For example, the cost of RPL can be greater for an individual than the cost of enrolling in a full training course for the same qualification because training programmes are often eligible for some public subsidy while RPL is generally paid directly by individuals or their employers (World Bank, 2021[17]; Dzhengozova, 2019[23]; OECD, 2023[1]). These factors also discourage many providers from offering RPL services (OECD, 2023[1]). Positively, Bulgaria is taking steps to ensure greater coherence across the high number of VET programmes and specialisations that currently exist (see Chapter 4). This change can help facilitate vertical and horizontal mobility, as well as pave the way for partial qualifications. However, the biggest challenge facing RPL in Bulgaria is perhaps that employers and individuals seem to have little confidence in the RPL process (OECD, 2023[1]). Even though an individual with an RPL certificate officially has the same rights as someone with a formal qualification, the certificates from RPL are easily distinguishable from formal education certificates (they have different designs), and because employers are often not well aware of the equal status of RPL certificates, they tend to undervalue qualifications acquired through RPL (Cedefop, 2018[24]; OECD, 2023[1]).
Use of digital education technology
Digital technologies can enable greater participation in adult learning and Bulgaria has introduced measures to address barriers to successful uptake
Expanding online learning opportunities has the potential for more adults in Bulgaria to access education and training, especially those living in rural and remote areas who may otherwise face high participation barriers. However, the percentage of individuals who report taking an online course or using online learning materials in Bulgaria is less than half the EU average (12% compared to 28%) (Eurostat, 2021[25]). The country’s low levels of online learning are driven by a number of factors, including limited online learning platforms, resources, and tools; limited digital skills among the adult population; low quality of instruction and the inability of providers to monitor and control the quality of online training (OECD, 2023[1]). Bulgaria is already taking steps to address some of these challenges and has leveraged EU funding to expand online learning programmes for adults and improve their accessibility. For example, the MyCompetence website provides information on the competencies required for different positions and sectors, self-assessment tools and an array of non-formal online courses for jobseekers and employed individuals (Bulgarian Industrial Association, 2014[26]; OECD, 2023[1]). Bulgaria is also developing a new online platform to raise the digital skills of adults (Dobreva and Lilyanova, 2022[27]; OECD, 2023[1]; MLSP, 2023[28]).
Further reinforcing these efforts, the recent amendments to the VET Act introduce crucial regulatory changes that support the expansion of digital education. One of the most significant updates is the formalisation of distance learning in vocational education for individuals over the age of 16. By explicitly allowing ICT-based training in the theoretical component of VET programmes, the amendments provide a legal foundation for the development and use of online learning resources, facilitating broader access to training. The reforms also update the List of Professions for Vocational Education and Training (LPVET), incorporating new digital and green skills to align vocational education with evolving labour market needs. Additionally, the restructuring of national educational standards to include units of learning outcomes introduces greater flexibility in the way digital competencies are acquired, making it possible for learners to accumulate partial qualifications through online and blended learning formats. Moreover, the amendments introduce measures to improve the quality assurance of VET, ensuring that online training providers adhere to national standards. This is particularly relevant given concerns about the quality of digital instruction and the difficulty of monitoring learning outcomes in online environments. The regulatory framework now includes clearer guidelines for the validation of prior learning, which may facilitate the recognition of digital competencies acquired through non-formal and informal learning. While these are positive initiatives, expanding adult learning through online platforms in Bulgaria will also require that more adults have Internet access and sufficient digital skills.
Main reform priorities
Bulgaria has prioritised expanding participation in adult learning, while reform efforts to improve the quality of instruction remain limited
Improving adult skills and raising participation in lifelong learning have been identified as primary objectives in several of Bulgaria’s national strategies (see Chapter 2). The government has set a target to raise the share of adults aged 25 to 64 participating in education and training from 20.6% to 35.4% by 2030, as measured by the Adult Education Survey (AES), which captures participation over the previous 12 months (National Agency for Vocational Education and Training, 2025[29]). Bulgaria is also allocating significant EU funds to various skills initiatives as part of its strategy for achieving this goal. Policies are mainly focused on making adult learning opportunities more accessible to all (including through digital means), raising awareness about the benefits of lifelong learning, as well as improving quality assurance mechanisms and the validation of non-formal or informal learning (OECD, 2023[1]). Such efforts are important to help reskill and upskill Bulgaria’s workforce in order to address skills imbalances and raise productivity in the face of growing population decline and socio-economic disparities. However, relatively limited attention has been given to policies aimed at raising the quality of instruction in adult education and training programmes and establishing more strategic funding and planning arrangements for the sector.
Access and participation
Participation in adult education and training in Bulgaria is low relative to EU countries and highly concentrated in formal learning opportunities
In 2022, only 2.9% of adults aged 25 to 64 years in Bulgaria participated in education and training in the last 12 months. This was the lowest in the EU and well below the national target of reaching over 35% by 2030 (Bulgarian National Employment Strategy 2021-31). Trend data also suggests that Bulgaria’s participation rates in adult education and training (those who participated in the last four weeks) have been historically low since 2014, at around 2.1%. In contrast, this share has risen on average across the EU by 2 percentage points over the past decade (Eurostat, 2023[30]). While many countries experienced an overall drop in participation in adult education and training during the height of the COVID-19 pandemic in 2020, the EU average has since recovered but Bulgaria’s rates remain significantly low among 25- to 64-year-olds at only 1.4% in 2023 (Eurostat, 2023[30]). Among the few adults in Bulgaria who do participate in education and training, most engage in formal learning opportunities (see Figure 6.6). Many OECD countries have wider participation in non-formal education and training, which offers more flexibility in terms of format and design in comparison to formal learning opportunities.
Share of adults (aged 25-64) who participated in education and training in the past four weeks, by type of training, 2022
Source: Eurostat (2022[31]), Participation rate in education and training (last 4 weeks) by type, sex and age, https://doi.org/10.2908/TRNG_LFS_09.
Bulgarian adults and employers report some of the lowest motivation levels to participate in education training across the EU
Low participation in adult education and training in Bulgaria is influenced by particularly low motivation to engage in lifelong learning and a lack of its perceived usefulness (OECD, 2023[1]). Survey data shows that 68.7% of adults in Bulgaria aged 25 to 64 years old do not participate and do not want to participate in education and training, compared to only 44.9% on average in the EU (OECD, 2023[1]) (see Figure 6.7). Among EU countries, Bulgaria has the highest share of individuals responding that they do not participate in adult education and training because there is “no need” (see Figure 6.7). Adults in Bulgaria also do not seem to regard training as a way to gain the skills they need for work. In fact, in the European Working Conditions Survey, Bulgaria had the smallest share of respondents who reported needing “further training to cope well with my duties” at work (Eurofound, 2019[32]).
Share of adults (aged 25-64) by will to participate in education and training and reasons for not wanting to participate, 2022
Source: Eurostat (2022[33]), Population by will to participate in education and training, https://doi.org/10.2908/TRNG_AES_175; Eurostat (2022[34]), Population not wanting to participate in education and training by main reason and sex, https://doi.org/10.2908/TRNG_AES_192.
At the same time, previous OECD analysis found that adults in Bulgaria would be more motivated to participate in adult learning if they perceived tangible benefits, such as higher wages or improved status in the labour market (OECD, 2023[1]). Indeed, public survey data support the notion that Bulgarian adults view career progression and better income as central reasons to participate in education and training (OECD, 2023[1]). Some 67% of surveyed adults in Bulgaria completely agree that adult learning and continuing VET are important to progress in a career (compared to 55% across the EU on average), and 65% completely agree that these are important to achieve a better income (compared to 49% on average across the EU) (CEDEFOP, 2020[8]). However, it was reported that motivation remains low as adults do not see such benefits in practice (OECD, 2023[1]).
Motivational barriers to adult learning also encompass the supply side in Bulgaria. Employers are also not motivated to provide adult learning to their employees, as they perceive that time away from work and spent on training may harm firm productivity, or they may experience additional costs in adjusting to employees’ absence due to training ( (OECD, 2023[1]). Training is even less valued by smaller companies in Bulgaria, largely because of the costs associated with providing training and/or allowing employees to train during paid work time. At the same time, many employers in Bulgaria report that while they expect new recruits have all the required skills to do their job, many do not (Eurofound, 2019[32]).
Various barriers hinder participation in adult education and training
Individuals in Bulgaria who are motivated to participate in adult education and training face a number of barriers to doing so, most notably time (i.e. schedule) and financial constraints (Eurostat, 2016[35]) (see Figure 6.8). The relatively long duration of adult education and training programmes in Bulgaria, most of which are formal learning opportunities, make it even more difficult for individuals to fit learning into their work and personal schedules. In addition to time, cost barriers continue to discourage or prevent many Bulgarian adults from reskilling or upskilling. Cost is a greater barrier for individuals with lower educational attainment levels. While training costs are completely covered for the unemployed, current financial arrangements (e.g. subsidies and vouchers) do not sufficiently reduce cost barriers for other disadvantaged groups, such as employed individuals with low-incomes and those who participate less in adult learning, such as older workers (aged 54+) (OECD, 2023[1]).
Share of adults (aged 25-64) wanting to participate in education and training, by reason for not participating, 2022
Note: The share of adults not participating due to lack of support from employer or public services in Bulgaria is from latest available year, 2016.
Source: Eurostat (2022[36]), Population wanting to participate in education and training, by reason for not participating and sex, https://doi.org/10.2908/TRNG_AES_176.
Quality and outcomes
Despite signs that the quality and relevance of adult learning is a concern, relatively few enterprises in Bulgaria systematically assess the outcomes of their training activities
It is difficult to assess the quality and relevance of adult learning opportunities in Bulgaria because of a lack of relevant evidence for doing so. Nevertheless, there are signs of concern. For example, the MES found that half of surveyed employers were skeptical about both the quality of training offered by adult VET centres and the relevance and benefits of training provided (MES, 2021[37]; OECD, 2023[1]). There are also reports from both individual participants and providers that acquiring or providing a training certificate is more important than truly developing skills (CEDEFOP, 2020[8]; OECD, 2023[1]). At the same time, Bulgaria’s share of individuals who find the quality of adult learning generally good or very good (64%) is only slightly below the EU average (69%) and the share who report a lack of suitable training offers (20.2%) is only slightly above the EU on average (18.6%) (OECD, 2023[1]; Eurostat, 2016[35]; CEDEFOP, 2020[8]). A commonly cited reason for the perceived low quality and relevance of Bulgaria’s adult education and training programmes includes the strong emphasis on firm-specific (rather than transversal) training and limited employer engagement in designing other types of adult learning programmes.
The declining share of Bulgarian enterprises that assess the outcomes of their education and training activities further contributes to the limited availability of information on the quality and relevance of adult learning. In Bulgaria, this share dropped from 68.4% in 2015 to 34.2% in 2020, compared to the EU average decline from 59.3% to 52.3% during the same period. While there are various methods to assess outcomes of training offers, only a limited number of Bulgarian enterprises undertake them compared to the EU average (Eurostat, 2020[19]) (see Figure 6.9).
Share of enterprises that offer training and assess participation outcomes, 2020
Note: The EU average in assessment of participants' behaviour or performance in relation to training objectives is from the latest available year, 2015.
Source: Eurostat (2020[38]), Enterprises which assess the outcomes of CVT activities by assessment method and size class - % of training enterprises, https://doi.org/10.2908/TRNG_CVT_32S.
Bulgarian adults have low levels of digital skills and transversal skills, which are needed to cope with a rapidly changing world of work
While 57% of individuals in the EU, on average, have basic or above-basic digital skills, in Bulgaria, this figure stands only at 34% (see Figure 6.10). Similarly, Bulgaria has one of the highest shares in the EU of 16-24-year-olds with limited basic digital skills (5% versus 3% in the EU in 2021) (Eurostat, 2023[39]) and only 11% of Bulgarian adults had above-basic digital skills in 2021, about one-third of the EU average (OECD, 2023[1]). The low level of digital skills could become a growing problem in the coming years, as research finds the typical Bulgarian employee more likely to be in a job at risk of automation (68% probability) than the typical employee in any other EU country (Pouliakas, 2018[40]). Additionally, the level of transversal skills of adults in the country is concerning, more particularly interpersonal skills and public speaking (OECD, 2023[1]).
Share of adults (aged 25-64) with basic or above-basic digital skills, 2023
Source: Eurostat (2023[39]), Individuals' level of digital skills (from 2021 onwards), https://doi.org/10.2908/ISOC_SK_DSKL_I21.
Furthermore, data suggest that adults in Bulgaria use their skills less frequently at work and in life than most adults in the EU. Although data are limited, the European Working Conditions Survey 2015 (Eurofound, 2019[32]) showed that work intensity was lower in Bulgarian workplaces than in every EU country except Latvia (OECD, 2023[1]). A more recent skills survey in selected high-carbon-emitting industries also showed a low intensity of Bulgarians using transversal cognitive skills (reading, writing and numeracy skills) at work (Hristova, A. et al., 2022[11]). Over half of Bulgarian workers declare that they almost never use computers, laptops, or smartphones at work. Improving digital skills will be crucial if Bulgaria’s investments in expanding online learning opportunities for adults is to succeed in making education and training more accessible.
Bulgaria’s economy faces widespread and persistent skills imbalances
Low participation rates in adult education and training limit the ability of Bulgarian individuals to make their skills more labour market relevant and improve their employment prospects. The shortage of skilled workers is considered the most serious challenge employers face when hiring staff (Ministry of Education and Science of Bulgaria, 2019[41]). Recent employer surveys show that around 70% of employers face difficulties filling vacancies, well above previous levels (see Figure 6.11). Skills shortages are common for medium- and high-skilled occupations (e.g. in manufacturing and information and communications technology [ICT]) in Bulgaria. In contrast, skills surpluses are more common in low-skilled occupations (e.g. in agriculture and construction) (OECD, 2021[42]). Skills mismatches are also common in the Bulgarian labour market. For example, only a relatively low (albeit increasing) share of tertiary graduates (53%) work in a position requiring tertiary education (Ministry of Education and Science of Bulgaria, 2021[43]).
Indicators of skills imbalance, 2019
Source: OECD calculations based on ManpowerGroup (2021[44]), ManpowerGroup Employment Outlook Survey Q3 2021: Bulgaria Results, https://go.manpowergroup.com/hubfs/Talent%20Shortage%202021/MPG_2021 _Outlook _Survey-Bulgaria.pdf (accessed on 22 January 2025); OECD (2022[45]), Mismatch by country, http://data-explorer.oecd.org/s/1vg (accessed on 19 May 2025).
Equity
Adults with lower levels of educational attainment have poorer labour market outcomes and are less likely to participate in education and training
Despite improvements over the last decade, the gap in employment outcomes between low- and high‑educated adults in Bulgaria remain among the largest in the EU. Youth and adults with lower educational attainment face significant challenges entering the labour market, with only 56% of upper secondary and post-secondary non-tertiary graduates employed within two years of graduation—well below the OECD average of 75%—and those without upper secondary education struggling even more to secure stable employment and never catch up (see Chapter 2). In 2021, 25- to 54-year-olds who had attained a tertiary qualification had employment rates that were nearly double those of adults with less than an upper secondary education (OECD, 2023[1]) (see Figure 6.12). Among those who are employed, low levels of educational attainment are linked with lower wages. In Bulgaria, 42% of 25- to 64-year-olds with below upper secondary educational attainment earn at or below half the median income in comparison to 28% across the OECD (OECD, 2024[14]).
While adult education and training could help improve individuals’ labour market prospects, adults with lower levels of education are less likely to participate in learning opportunities. They are less likely than their higher-educated peers to actively search for information about adult learning and tend to have more difficulty identifying their skills gaps and needs ( (Eurostat, 2016[35]; OECD, 2023[1]; Windisch, 2015[46]). Consequently, only 3.1% of Bulgarian individuals aged 25 to 54 years old who have finished upper secondary education participate in adult education and training, compared to 6.2% among those who have a tertiary degree (Eurostat, 2022[18]).
Employment rates by age group and educational level, 2023
Source: Eurostat (2023[47]), Employment rates by sex, age and educational attainment level (%), https://doi.org/10.2908/LFSA_ERGAED.
Older adults in Bulgaria are less likely to participate in education and training
Across most EU countries, older adults participate in education and training at lower rates than younger age groups (OECD, 2023[1]). However, this trend is particularly strong in Bulgaria: the share of 25- to 34‑year-olds participating in adult education and training is nearly five times greater than the share of 35- to 44-year-olds who participate. The situation is especially marked among the oldest adults. In fact, the share of 45+-year-olds participating in education and training in Bulgaria is nearly zero, compared to the EU average of 5.7% (Eurostat, 2021[25]). As older workers make up a large share of Bulgaria’s out-of-work-population, these adults may need more tailored and intensive support to activate their skills in the labour market (OECD, 2022[10]).
Participation in adult education and training, as well as learning outcomes, are unequal across regions and among disadvantaged groups
There are persistent inequalities among disadvantaged groups in Bulgaria, notably among individuals with low levels of educational attainment, those living in rural and poor regions, and ethnic minorities (see Chapter 2). Roma face extremely high levels of joblessness and barriers to employment, with illiteracy rates nearly 13 percentage points higher than Bulgaria’s overall adult population (aged 25 to 64) (OECD, 2023[1]). There are also large urban-rural gaps, as people in rural and remote parts of Bulgaria face higher rates of early school leaving and NEET (see Chapter 2 and Figure 6.13). These factors of disadvantage intersect but some of Bulgaria’s current policies create additional barriers for disadvantaged adults to participate in upskills and reskilling opportunities. For example, individuals must have an equivalent of fourth grade-level literacy to enroll in an adult VET programme. This often makes adult learning inaccessible to the groups who could benefit most from upskilling and reskilling opportunities.
Young people (aged 15-34) in NEET by degree of urbanisation, 2023
Source: Eurostat (2023[48]), Young people neither in employment nor in education and training by sex, age and degree of urbanisation (NEET rates), https://doi.org/10.2908/EDAT_LFSE_29.
Quality of programmes and outcomes: Increasing the quality and relevance of adult learning for in-demand skills
Access to quality and relevant adult learning opportunities is crucial to addressing low levels of digital and transversal skills among Bulgarians, helping improve their labour market outcomes and promoting their wellbeing more generally. Moreover, having an adult workforce with a strong and relevant skillset can boost economic growth and help Bulgaria adapt to macro-level challenges, such as population decline and rapidly changing labour demands (OECD, 2023[1]). Bulgaria has already taken steps to improve the quality and relevance of adult learning programmes and improve educational and labour market outcomes of citizens, including conducting SAA exercises to forecast skills needs and making RPL a political priority. This section draws on OECD evidence to provide insights on other policies that Bulgaria could consider to strengthen the skills among the adult population and further improve the quality and relevance of adult learning programmes.
Recommendation 6.1: Strengthen employer engagement in designing adult learning programmes and support adult educators to develop a mix of knowledge and skills
The quality and relevance of adult education and training is a key issue in Bulgaria, with many individuals and employers reporting dissatisfaction with the range of training available. The involvement of employers in the design and delivery of adult learning opportunities is a good practice in many OECD countries, as they have valuable insight into the world of work and first-hand knowledge of the most critical skills needed in the labour market. However, such employer engagement mechanisms are still limited in Bulgaria and many employers either do not value nor support adult learning opportunities or prefer to offer non-formal education and training within their firms. In light of the rapidly evolving world of work, Bulgaria could rethink the way it engages employers in designing adult learning programmes and providing the system with educators who have the right mix of pedagogical and practical vocational skills. These efforts could help improve the quality of adult education and training programmes and more closely align Bulgaria’s skills policies with other OECD countries.
Using sectoral councils to involve employers in the design of adult learning programmes
Adult learning opportunities in Bulgaria can be made more responsive to current and future labour market needs by more actively involving employers in the design of programmes. One way that many OECD countries do this is through the establishment of dedicated structures for adult learning providers and employers (or employer organisations) to discuss skills needs and develop adult learning programmes that meet these needs. Positively, sectoral councils established under Bulgaria’s Programme Education will be responsible for forecasting sectoral and regional labour market needs and supporting partnerships between vocational schools and employers. These sectoral councils provide an opportunity for Bulgaria to steer adult education and training providers to develop and offer programmes that more closely align with relevant labour demands. Moreover, the planned establishment of the Skills Policy Council can provide a means for employers and other stakeholders to more deeply engage in shaping skills policy at the national, sectoral and local levels (OECD, 2024[14]).
Throughout the OECD, skills governance bodies, such as sectoral skills councils and advisory councils, have been used to engage employers in various skills policymaking. Some activities and corresponding success factors include the following (Windisch, 2015[46]):
Sectoral skills councils (Ágazati Készszégtanácsok) in Hungary: The Hungarian Chamber of Commerce coordinates the work of the sectoral skills councils, which are involved in the collection of data on skills demand in different sectors, the preparation of labour market forecasts, and the provision of expert opinions regarding the design of vocational training programmes (e.g. duration, training outcomes, content of learning materials). Key success factors involve having a sound methodology and reliable data to enable an accurate mapping of labour market needs (MKIK, 2021[49]; Cedefop, 2018[24]).
Sector councils (Sektorové rady) in the Czech Republic: The Confederation of Industry cooperates with sector councils, which are co-funded by the Ministry of Education, Youth and Sports and are meant to function as a platform for systematic cooperation between the demand and supply sides of the labour market. Expert groups in the councils monitor skills shortages and meet regularly (i.e. quarterly or once a year, depending on the sector) to provide advice on corresponding policy measures. A key factor in its success includes a close and focused cooperation of the companies, associations, and experts involved in the functioning of the councils (Cedefop, 2018[24]).
Alliance for Initial and Further Training (Allianz für Aus- und Weiterbildung) in Germany: Employers lead the development of specific training profiles by employers and their associations in cooperation with government, in order to ensure that training regulations meet the immediate needs of the company. Over the years, Germany has succeeded in combining employers’ perspectives with the interests of unions, which tend to devise broader skills profiles. This balance has allowed Germany to strike a balance between developing job-specific needs and promoting labour mobility for workers (OECD, 2020[50]).
Strengthening initial and continuing professional development for adult educators
Another way Bulgaria could improve the quality of adult learning programmes is by strengthening the initial and continuing professional development of adult educators to ensure they possess both pedagogical expertise and practical vocational skills. In the short term, Bulgaria could consider expanding pathways for formal training in adult pedagogy. This approach could be complimented by measures to incentivise participation in these initiatives through cost subsidies for individuals and raising awareness about the benefits of such courses among education and training providers. Bulgaria could also leverage RPL as a mechanism to validate the professional experience of vocational experts seeking to transition into teaching roles, ensuring that those with strong industry knowledge but limited teaching credentials can integrate into the adult learning system. Austria (see Box 6.3) offers an example of how Bulgaria could use RPL to professionalise adult educators in the country, as well as to refer them to relevant continuing professional development programmes. Once training and RPL programmes are more widely available, Bulgaria could consider revising the qualification requirements for adult educators. These measures could help equip educators with the ability to teach adult learners effectively, combining modern instructional methods with industry-relevant expertise.
In the medium term, Bulgaria could consider revising qualification requirements for adult educators, ensuring a balanced mix of pedagogical proficiency and sector-specific expertise. In the meantime, softer support measures could be made available to improve their instructional practices. For example, this might include more information, guidance, peer-learning opportunities, and sharing best practices on teaching in adult education (OECD, 2023[1]). Positively, Bulgaria already takes part in the Electronic Platform for Adult Learning in Europe, which connects adult learning professionals across Europe to learn from each other and offers open educational courses and resources.
The Academy of Continuing Education (Weiterbildungsakademie Österreich, WBA) in Austria offers RPL for adult educators, guidance for acquiring any missing skills, and two types of accreditations to standardise and professionalise the quality of adult educators in the country. As the first step in the process, adult educators submit evidence of their existing competencies and practical experience. Practical experience working in adult education training is required to receive WBA accreditation. The WBA then assesses these documents and proof of competencies based on standards they have developed from qualification profiles. Wherever competencies are lacking, the WBA refers candidates to relevant courses offered by other adult learning providers (the WBA does not offer training programmes to adult educators) to fill in the gaps. Finally, the WBA accredits the skills of adult educators through two types of awards: a certificate of basic competencies in adult education and a more high-level diploma in adult education in a specific field. This allows adult educators to receive accreditation in adult learning while recognising the relevant competencies they have built through their work and teaching experience. It also creates country-wide standards for adult educators without instituting strict training requirements that could discourage trainers from teaching in adult education. Furthermore, certification from the WBA can have the added benefit of serving as a quality assurance signifier to adult learners.
Source: Austrian Academy of Continuing Education (2022[51]), Austrian Academy of Continuing Education, https://wba.or.at/de/english/about-us.php (accessed on 28 November 2024); Eurydice (2022[52]), Austria: Institutions, https://eurydice.eacea.ec.europa.eu/national-education-systems/austria/institutions#WBA (accessed on 28 November 2024).
Recommendation 6.2: Improve access to adult learning opportunities and enhance the skills of disadvantaged and older adults
Bulgaria could prioritise equipping its population with essential skills, such as transversal and digital skills, that will allow them to adapt to a rapidly changing and increasingly digitalised world. The current low levels of transversal and digital skills among the general population in Bulgaria, and in particular among seniors, has important implications for participation in education and training opportunities and labour market outcomes, especially in the context of a rapidly ageing population. To address these challenges, Bulgaria could more systematically integrate transversal skills into adult education and training programmes, as well as advance ongoing efforts to strengthen digital skills, especially among older adults.
Facilitating access to adult learning programmes, especially among disadvantaged adults
In comparison to other EU countries, Bulgaria has a significantly lower share of individuals who are equipped with the skills needed to adapt to a rapidly changing and increasingly competitive labour market, such as transversal skills (i.e. interpersonal skills, public speaking) and digital skills (Eurostat, 2021[25]). Bulgaria could therefore consider ways to integrate such skills more systematically in the delivery of adult learning programmes. This would be especially beneficial to disadvantaged groups, who may have lower levels of educational attainment, be in low-paid jobs and face higher barriers to participating in adult education and training.
To do this, Bulgaria could consider alternative funding arrangements to make adult basic education for low-skilled and low-educated adults available free of charge – or at least heavily subsidised, as is currently the case for unemployed adults. These learning programmes could be offered in a wide range of educational institutions that provide adult learning, including general education schools, VET gymnasiums, VET colleges, universities and tertiary colleges, VET centres, and community cultural centres (chitalishta) (OECD, 2023[1]). This approach could help reduce Bulgaria’s reliance on employers to provide and support adult education and training while strengthening key skills within the existing workforce.
Other policies to facilitate greater access to adult learning programmes that Bulgaria might consider include adjusting enrolment requirements for continuous VET, so that not only those with a fourth-grade equivalent education level are eligible to enroll, and making programmes more modular and flexible. Mexico’s Education Model for Life and Work provides flexible and modular training to help learners combine basic education and training with other reskilling and upskilling opportunities (see Box 6.4). This example could provide helpful insights to Bulgaria, especially if combined with efforts to expand the use of partial qualifications (see Recommendation 6.3 below).
Mexico’s Education Model for Life and Work (Modelo Educación para la Vida y el Trabajo, MEVyT) is a programme that provides basic education for those aged 15 and older. The programme is meant to help individuals close educational gaps and to provide adults with an opportunity to earn a primary or secondary education degree. MEVyT offers learning opportunities in basic literacy skills, numeracy skills, communications, science, citizenship, and business and environmental training. The MEVyT programme is innovative in that it provides a model of basic education for adults that integrates basic education, such as literacy, with more vocational skills training for adults. It is not intended to be a literacy programme but an integrated part of the country’s adult education and training system. Furthermore, the programme is innovative in that learning is modular, allowing for greater flexibility for adult learners. The learners can choose among self-contained modules that can also build on one another towards accreditation in primary or secondary education. Furthermore, the programme also includes modules adapted to reflect the specific linguistic, cultural or social specificities particular to disadvantaged groups. Learners can also choose their preferred learning mode, including self-study, in groups in community learning centres or online learning. An evaluation of the programme indicated that 92% of learners were satisfied with the learning modules in MEVyT, and 63% reported occupational advancement as a result of participating in the programme.
Source: OECD (2019[53]), Getting Skills Right, https://doi.org/10.1787/9789264311756-en.
Strengthening the digital skills of Bulgarian adults, especially older individuals
Among EU countries, Bulgaria has the lowest share of adults with only basic or above basic digital skills (Eurostat, 2021[25]). In a world where digital technologies are becoming increasingly important drivers of innovation and economic growth, Bulgarian adults will need strong digital skills to thrive and achieve productivity gains. It is positive that Bulgaria has already made significant investments in digital technologies at the school level (see Chapter 4), however, there is currently a lack of specific initiatives aimed at improving the digital skills of adults, especially senior citizens. This demographic group falls outside the conventional education and working-age population yet constitutes an increasingly larger share of Bulgaria’s demographic as the country rapidly ages (OECD, 2023[1]).
To address this challenge, Bulgaria could consider a targeted digital literacy programme focused on improving the digital skills of seniors. This programme could ensure a structured and standardised approach to digital training across the country while providing equitable access to learning opportunities, regardless of their geographical location or socio-economic status, allowing them to benefit from some of the other online learning programmes Bulgaria has already developed. The programme could include free or subsidised training courses on basic computer use, internet navigation, online safety, and the use of digital tools for everyday tasks. These courses could be integrated into existing senior welfare and social programmes, by offering them as training sessions in senior community centres, retirement homes, and during health check-ups. Such integration ensures that digital education becomes a routine part of seniors' engagements and activities, increasing the likelihood of participation and learning retention. Slovenia offers an example of how Bulgaria might further develop plans to improve the digital skills of seniors (see Box 6.5).
Slovenia’s largest organisation of pensioners, the Union of Pensioners’ Associations of Slovenia, is the leading partner in a project called ‘Digitally included’. It addresses the integration of older persons into the information society, while simultaneously reducing the digital divide between generations. It does this through an inter-generational digital platform that offers older people the opportunity to: (1) acquire functional digital skills; (2) learn how to use e-services; (3) access active and healthy ageing content and programmes; and (4) participate and learn in inter-generational virtual meetings, which also fosters social inclusion.
Source: European Union Agency for Fundamental Rights (2023[54]), Fundamental rights of older people: ensuring access to public services in digital societies, https://fra.europa.eu/en/publication/2023/older-people-digital-rights?page=6&pid=59f6b1c7-bf37-46aa-a951-4a1dfefa2f4f (accessed on 29 November 2024); Union of Pensioners Associations of Slovenia (2022[55]), Digitally included, https://zdus-zveza.si/programi-in-projekti/digitalno-vkljuceni/ (accessed on 29 on November 2024).
Equality of opportunity and access: Supporting disadvantaged Bulgarians and SMEs to participate in adult education and training
Bulgaria has committed to increasing access and raising participation in lifelong learning. Considering the large disparities in learning and labour market outcomes among different population groups within the country, achieving these goals will require reaching the most disadvantaged. These groups include, among others, adults with low levels of education attainment, unemployed individuals, ethnic minorities such as Roma, and individuals living in rural and poor regions (see Chapter 2). Equally important is supporting employees in SMEs, which is crucial not only for improving job quality and career prospects for the majority of Bulgaria’s workforce but also for enhancing productivity and driving economic growth. This section explores how Bulgaria could implement more targeted measures to increase access to and participation in adult education and training. Such policies can not only promote more inclusive education and labour market outcomes in Bulgaria, but also expand the share of high-skilled individuals that could contribute to its national growth.
Recommendation 6.3: Improve access to education and training for adults with low levels of education and weak literacy, numeracy and digital skills
Disadvantaged adults in Bulgaria, as in many other countries, face greater barriers to participation in adult education and training. This includes not only time and scheduling conflicts, but also attitudinal barriers, such as being hesitant to re-enter a formal learning environment due to negative past experiences with school (Windisch, 2015[46]). Furthermore, many of these adults may have a range of skills they have acquired informally or through experience that have not been recognised previously (OECD, 2019[13]). By recognising previously acquired skills through RPL, Bulgaria can shorten the duration of training for individuals and offer more personalised learning pathways to facilitate the upskilling and mobility of adults, especially those who did not complete school or tertiary education (OECD, 2022[10]). In this context, it is important for Bulgaria to reform its system for RPL to facilitate access among disadvantaged groups. It is also important to address barriers to participation in adult education and training by making learning opportunities and pathways to qualifications more flexible and accessible, for instance through the provision of partial qualifications and their widespread recognition.
Reforming the RPL system for low-skilled adults to encourage greater uptake of RPL services
One of the central challenges contributing to the low take-up of RPL arrangements in Bulgaria is the cumbersome administrative and financial burdens (Dzhengozova, 2019[23]). Bulgaria is already planning to develop RPL policies in the coming years, for example, by establishing centres to validate and certify skills acquired through non-formal and informal learning and improve RPL services. This is intended to improve the skills and employability of disadvantaged individuals, particularly those with low education and skill levels. Furthermore, the establishment of new infrastructure related to RPL presents an opportunity for Bulgaria to institute a suite of reforms related to RPL to broaden its scope and impact (OECD, 2023[1]).
To make the most of this opportunity, Bulgaria could benefit from implementing more streamlined and effective RPL processes and incentivise greater take-up of RPL services. This could be done by simplifying and shortening the administrative process for both individuals and providers, altering the design of RPL certificates to match it more closely to that of other learning certificates, collecting data on RPL outcomes through the data and evidence centre, and targeting RPL services to specific disadvantaged groups, such as low-skilled adults. To incentivise greater take-up of RPL, Bulgaria could consider the experience of Türkiye (see Box 6.6) which has provided subsidies to make RPL more affordable for individuals. Furthermore, grants could be available to adult education and training providers that offer RPL services (OECD, 2023[1]).
Türkiye has developed a comprehensive qualifications system that aims to provide individuals with up-to-date qualifications and recognise learning conducted in the workplace. A new public institution, the Vocational Qualifications Authority (VQA) was established to oversee the qualifications system and bring together the government, employees and employers. The VQA authorises Vocational Test Centres, which do not offer training but conduct assessment, evaluation and certification. Vocational Test Centres may be public (e.g. ministries) or private (chambers of commerce and industry, trade unions, employers’ associations and private companies), with most of the centres being private companies. Because of this multi-stakeholder nature of the RPL system, financing for RPL services is diverse and spread across the government and special funds (e.g. Unemployment Insurance Fund), the private sector, organisations and education and training providers, EU funding, and individuals, who contribute towards validation expenses. In Türkiye, it is widely accepted that the private sector should help finance vocational training and RPL, as they recognise the value that skills standards can bring when, for example, attracting investors into the country. Companies, trade unions and employer associations invest directly in the RPL system. An annual fee is paid by the centres to VQA depending on the number of RPL certificates issued.
Source: European Training Foundation (2022[56]), Recognition of prior learning: New developments and financing approaches, https://www.etf.europa.eu/sites/default/files/2022-05/4236072_ETF_prior_learning_A4_K8.pdf (accessed on 29 November 2024).
Making adult education and training more flexible and accessible for adults by strengthening the system of partial qualifications
Partial qualifications could also be more widely recognised in Bulgaria across professions and institutions to support modular and individualised learning pathways for adults. The recent amendments to the VET Act mark an important step in this direction by introducing a clearer structure for partial qualifications and strengthening their validation. The Law on Amendments and Supplements to the VET Act establishes new provisions to improve flexibility, including the possibility to validate units of learning outcomes, validate part of a profession based on a minimum of three units of learning outcomes and accumulate and transfer units of learning outcomes. These measures ensure that partial qualifications are better structured and more transferable between institutions and professions, facilitating modular learning. There are several ways Bulgaria could further improve and promote partial qualifications as a flexible form of learning and promote uptake among adults, particularly among those from disadvantaged groups, such as (OECD, 2023[1]):
Increasing the affordability of partial qualification courses by including them on the list of approved courses for which individuals can redeem training vouchers. Such vouchers could be differentiated to suit the needs of disadvantaged groups (e.g. adults with average or below qualification levels, older workers, low-income Bulgarians, individuals in occupations at risk of automation, and ethnic minorities) and better target them, such as by reducing the co-finance rate, when enrolling in partial qualification courses.
Improving the recognition of partial qualification awards to allow transferability between learning institutions or from one profession of study to another. The new provisions in the VET Act provide a stronger foundation for this by establishing a structured framework for the accumulation and transfer of units of learning outcomes. To further enhance recognition, Bulgaria could work towards ensuring that certificates issued for partial qualifications match those awarded through full education and training programmes, including at the tertiary level.
Strengthening the quality assurance of partial qualification courses to overcome the limited regulations for these courses, as well as build confidence among learners and employers to participate in them. This may include establishing an ex-post assessment process (with an external evaluation team) for adult learning providers that provide partial qualifications, and awarding quality labels to partial qualification courses that exceed minimum certification requirements.
Raising awareness about partial qualifications, and flexible courses (e.g. online courses) more generally, among employers, employed individuals, and education and training providers. This could be done through holistic career guidance services, as well as other existing communication channels, such as businesses associations, trade unions and sectoral skills councils. It would be useful to conduct targeted outreach efforts for disadvantaged groups.
Recommendation 6.4: Improve career guidance for disadvantaged groups and incentivise SMEs to invest in adult learning
Low motivation to participate in adult education and training offers is one of the biggest challenges in Bulgaria, as the country has some of the lowest levels of motivation and participation across the EU. In this context, it is important to enhance demand-side measures, such as career guidance services offered by various Bulgarian ministries and agencies to disadvantaged groups to help them find high-quality adult learning offers and jobs. Additionally, it is also important to introduce supply-side incentives to encourage employers, especially SMEs, to provide more adult learning opportunities for their employees.
Enhancing career guidance services for disadvantaged groups to help them find quality training and jobs
In OECD countries, career guidance has been shown to be highly effective at improving adults’ skills outcomes, with participants reporting progression within their job and enrolment in adult education and training programmes (OECD, 2021[57]). It has also been effective in matching disadvantaged adults, such as those with low levels of education, to education and training opportunities (OECD, 2019[13]). To help increase the demand for adult education and training, Bulgaria could offer better guidance to increase adults’ motivation to participate and improve their disposition towards lifelong learning (OECD, 2023[1]). Bulgaria currently has some infrastructure and policies to support adult career guidance, but the system is substantially underdeveloped, making it largely ineffective. To strengthen the capacity of NEA counsellors to provide intensive and tailored support to adults from disadvantaged groups, Bulgaria could consider:
Increasing the intensity and frequency of NEA employment services for disadvantaged groups (e.g. caseworker meetings) such as unemployed adults, low-skilled workers and ethnic minorities. It could do this by, for example, freeing up existing resources and allocating them more efficiently (e.g. by using modern statistical profiling tools). This will likely require expanding the number of caseworkers in the NEA to reduce staff caseload (OECD, 2023[1]; OECD, 2024[14]).
Expanding the reach of services offered by guidance centres through multiple channels by providing resources, support, and incentives for these centres to deliver guidance and registration for guidance through in-person, phone and online means, such as what is being done in Japan (OECD, 2023[1]) (see Box 6.7). The measure could support such centres’ efforts reach disadvantaged employed individuals such as older Bulgarians, low-skilled workers and individuals working in sectors at risk of automation.
In 2020, the Japanese government created career development support centres (37 around the country) to provide career guidance for all adults. There are multiple ways to receive career guidance, including in person and via Zoom. Workers can also request guidance in various ways, including registering online or by phone. Guidance is provided to adults free of charge. While the sessions are open to all adults, they are targeted at specific priority groups (young workers, older workers and workers in SMEs). These centres were created through a government programme but are outsourced to private companies. The centres are complemented by an online portal called Cari-con-Search, which helps adults find career guidance counsellors outside the free system.
Source: OECD (2021[58]), Creating Responsive Adult Learning Opportunities in Japan, https://doi.org/10.1787/cfe1ccd2-en; OECD (2023[1]), OECD Skills Strategy Bulgaria: Assessment and Recommendations, https://doi.org/10.1787/c2eb2f34-en.
Introducing incentives for employers, especially SMEs, to increase adult education and training opportunities for employees
Bulgaria already employs a range of subsidies, voucher programmes, and some tax incentives to help offset the private costs of adult learning. Although these measures have benefited individuals, they do not sufficiently address the need for a clearly defined and sustainable financing model, in which the state, employers, and individuals share costs more equitably. This gap is especially pronounced among Bulgaria’s SMEs, which employ 75% of the country’s workforce yet often lack both the resources and flexibility to provide high-quality training. As a result, Bulgaria has one of the lowest rates of employer‑provided training in the EU.
One promising strategy for improving cost-sharing arrangements – and more effectively engaging SMEs – is the use of training levies or funds. Bulgaria previously experimented with a national training levy in the 1990s, but it was discontinued due to limited employer support. Reintroducing a levy at the national level would require strong commitment from employers, who need to be confident that the benefits outweigh the costs of contributions. This is particularly important for SMEs, which must release employees for training while ensuring business continuity. Box 6.8 provides examples of how OECD countries have developed such incentives.
A more focused approach is to pilot sectoral training funds, in which government and enterprises (with smaller contributions from smaller firms) co-finance training for workers in specific industries or occupational groups. Sectoral funds help ensure that training aligns with industry needs and fosters buy‑in from employers with similar skills requirements. Contributions from both employers and government can also reduce Bulgaria’s reliance on EU funds, making adult learning more sustainable in the long run. Moreover, a well-designed sectoral approach can mitigate the risk that larger firms reap disproportionate benefits by tailoring investment and training support to the needs of SMEs.
To launch this effort, Bulgaria could pilot one or two sectoral funds, overseen by a dedicated institution -such as an expanded sectoral council recommended later in this report. This council would manage the funds, monitor outcomes, and help participating SMEs identify training needs and opportunities. An initial voluntary contribution model could be adopted to encourage buy-in from employers. Should participation remain low, Bulgaria might consider making contributions mandatory through a levy scheme.
By calibrating the level of employer contributions according to firm size, sectoral training funds would help smaller enterprises in shouldering the costs of training while boosting overall adult learning participation. Over time, this approach could strengthen Bulgaria’s cost-sharing arrangements and bolster the skills of the workforce.
Financial incentives for employers are used in numerous EU and OECD countries include the following:
In Croatia, companies that provide adult education and training receive tax breaks. The Croatian State Subsidy for Education and Training Act allows for a deduction from the tax base of up to 50% (70% in the case of SMEs) of the cost of general adult learning, and 25% (35% for SMEs) of the cost of specific employee education and training.
In Czechia, companies receive direct subsidies – employers may receive 15% of the costs of training from the government.
In Japan, several programmes provide greater subsidies to SMEs, including Career Keisei Sokushin Joseikin, which covers half the training costs of SMEs, compared to just a third for large firms.
In Denmark, France, Italy, and the Netherlands, training levies are collected from employers through the payroll. The funds are then administered by social partners and re-distributed to fund employer-led training.
Source: OECD (2019[53]), Getting Skills Right, https://doi.org/10.1787/9789264311756-en; OECD (2020[59]), OECD Skills Strategy Slovak Republic: Assessment and Recommendations, https://doi.org/10.1787/bb688e68-en; OECD (2021[60]), OECD Skills Strategy Lithuania: Assessment and Recommendations, https://doi.org/10.1787/14deb088-en;
Good governance: Strengthening the adult learning system through improved co-ordination and use of evidence in policymaking
Skills systems are complex and multi-faceted and require effective co‑ordination between a wide variety of actors to design, implement, monitor and evaluate, and fund skills policies. However, Bulgaria’s skills system is especially complex and fragmented, rendering horizontal and vertical co-ordination across government weaker than in many other OECD countries (OECD, 2023[1]). Frequent government turnover and limited capacity to connect data systems, conduct analysis and disseminate evidence on the skills system also make it difficult to steer adult education and training providers to develop and offer programmes that more closely align with labour demands. In response to these challenges, Bulgaria could learn from the experience of OECD countries to improve the co-ordination of the skills system within and beyond government, as well as to enhance the quality and accessibility of skills data for policymaking.
Recommendation 6.5: Improve co-ordination of the skills system within and beyond government
There is significant opportunity for Bulgaria to improve the co-ordination of its skills system across ministries and levels of government, as well as with external stakeholders who have a stake in skills policies. In this context, Bulgaria could improve the co-ordination of its skills system by advancing plans to create a permanent Skills Policy Council. This body has the potential to strengthen whole‑of‑government leadership, oversight and co-ordination over the skills system. Furthermore, it could also make skills policies more inclusive by engaging stakeholders effectively in skills policymaking.
Improving horizontal co-ordination for skills policies at the central level
At the central level, existing horizontal arrangements, such as the Council of Ministers and ad-hoc bilateral co-ordination between ministries and agencies, do not ensure that skills policies are coherent and complementary (OECD, 2023[1]). In response to this challenge, it would be useful for the Bulgarian government to identify bilateral inter-ministerial relationships that are critical for effective skills and related policies, such as boosting economic growth and productivity, managing the digital and green transitions, and improving equity. These key bilateral relationships are likely to include, for example, connecting the MES and Ministry for Innovation and Growth on innovation policies, and between MES and the MLSP on employment and skills forecasting. These ministries could engage in active horizontal co-ordination at the central level, beginning with regular bilateral meetings at the minister and technical level, joint working groups and developing into joint projects and funding.
One way some OECD countries have encouraged stronger bilateral relationships is by forming an overarching coordination body, such as the Skills Policy Council in Norway (Box 6.9). Bulgaria is already planning to establish a Skills Policy Council, which could encourage stronger relationships between ministries, agencies, regional and municipal representatives, and key non-government actors with a stake in skills policies (OECD, 2023[1]). The council could oversee the skills system and ensure the achievement of Bulgaria’s skills policy objectives, for example, by monitoring and reporting on skills policy implementation and outcomes. This could also involve oversight of existing skills bodies (e.g. NAVET) and those that are planned (e.g. sectoral skills councils). Finally, the Skills Policy Council could also oversee and publicly report on initiatives to improve stakeholder engagement, skills information, policy evidence, and resource allocation and cost sharing.
As part of the Norwegian Strategy for Skills Policy 2017-2021, a new governance structure was introduced in the country, at the centre of which sits the newly formed Skills Policy Council. The role of the council, established only for the duration of Norway’s current Skills Strategy, is twofold: to follow up on the strategy, and to facilitate greater horizontal and vertical co-ordination between stakeholders in Norway’s skills ecosystem. In practice, the council acts as a purely advisory body to the officials and stakeholders with responsibilities for skills, with the goal of co-ordinating and improving existing and new skills policy measures, whether provided by government or non-government actors. The Minister of Education chairs the council, allowing council members to influence senior policy decisions.
Source: OECD (2020[50]), Strengthening the Governance of Skills Systems, https://doi.org/10.1787/3a4bb6ea-en; OECD (2023[1]), OECD Skills Strategy Bulgaria: Assessment and Recommendations, https://doi.org/10.1787/c2eb2f34-en/.
Engaging stakeholders more effectively in skills policymaking
Bulgaria has a growing number of consultative processes and advisory bodies for policymaking that involve stakeholders and experts. However, there are concerns that stakeholders are still not being fully engaged in the skills policymaking process, and effective co-ordination mechanisms for involving stakeholders at all levels are still missing and/or slow to develop. In addition to the sectoral skills councils discussed in Recommendation 6.1 above, Bulgaria could also explore ways to engage stakeholders in other advisory bodies and processes related to skills policymaking. Despite the broad representation in the Consultative Council for VET, which includes the MLSP, the MEI, and other key stakeholders, its role could be further strengthened to ensure a more comprehensive approach to skills development across all life stages. Making it a permanent council would help guarantee ongoing and much-needed whole‑of‑government coordination on skills policies beyond the life of individual policies or programmes. More specifically, the Consultative Council for VET could evolve into a formal committee with an expanded mandate, placing greater emphasis on skills development beyond school, including adult learning and training opportunities for out-of-work adults. An expanded Consultative Council could also support and advise the proposed Skills Policy Council, for example, by providing research and analysis of skills issues, consolidating knowledge and data from social partners, and assisting with campaigns and communication on skills topics (OECD, 2023[1]).
Poland has successfully utilised sectoral skills councils, particularly in the finance sector, to engage stakeholders in skills policymaking. SSCs in Poland were created in 2016 in collaboration between the Polish Agency for Enterprise Development (PARP) and business representatives in various sectors, including health, construction, finance, tourism, fashion, ICT and automotive. The roles of SSCs include: identifying skills needs within the sector; facilitating dialogue between sectoral entities, such as employers’ organisations, trade unions, and training providers; developing strategies and plans to upskill workers and improve relevant adult education and training; determining funding priorities for sectoral training; and informing employers and employees on sector-level changes. While SSCs are responsible for co-ordination within their respective sectors, the national Programme Council on Competences helps to co-ordinate work across the SSCs in Poland. The Council on Competences comprises 19 members, incorporating representatives from key ministries involved in Poland’s skills ecosystem.
Source: Fundacja Warszawski Instytut Bankowości (2018[61]), Homepage, https://rada.wib.org.pl/; Polish Agency for Enterprise Development (2018[62]), Assessment of the functioning of the Sectoral Skills Councils: Final Report, https://poir.parp.gov.pl/storage/publications/pdf/2018_POWER_ocena_sektorowych_rad.pdf (accessed on 29 November 2024); OECD (2023[1]), OECD Skills Strategy Bulgaria: Assessment and Recommendations, https://doi.org/10.1787/c2eb2f34-en/.
Recommendation 6.6: Enhance the relevance and use of skills data for policymaking
Insufficient co‑ordination between ministries and with stakeholders in Bulgaria appears to have contributed to, and been amplified by, the fragmented and inconsistent collection and use of skills information and evidence. While there are examples of good practices of SAA practices in Bulgaria, they are not comprehensive and not used systematically in decision making and programme design (Tividosheva, 2020[63]) (Tividosheva, 2020[63]; OECD, 2023[1]). In this context, Bulgaria could enhance the quality and accessibility of the skills data it generates by improving the capacity to conduct skills assessment and anticipation for use by all key actors in the skills system. Furthermore, the country could also benefit from creating an inter-institutional data and evidence centre responsible for collating and improving skills data and evaluation evidence.
Making skills assessment and anticipation information more accessible and useful for a range of key actors in the skills system
Bulgaria could develop a more comprehensive and consolidated SAA system to serve the needs of all key stakeholders in the skills system. This would require different ministries (MES, MLSP, the NEA and other relevant ministries and agencies) and stakeholders to discuss and define the SAA data and information they need. The proposed Skills Policy Council, broadened Consultative Council for VET, and sectoral skills councils could support this process. Based on this assessment, Bulgaria could improve its SAA methods and information, for example, by generating more sectoral, occupational, educational, demographic, regional and temporal insights on skills supply and demand, and utilising qualitative analysis and foresight techniques to garner insights from employers and other stakeholders. Ireland and Estonia have well‑developed SSA systems that could provide insights for Bulgaria to consider (see Box 6.11). Such improved SAA information could feed into career guidance for adults. It could also be offered to employers to inform their decisions about training, hiring and other matters.
Ireland and Estonia have relatively well-developed SAA systems, which rely on a range of methodologies and sources, and produce SAA information for various users. Ireland, for example, has a history of utilising qualitative and foresight techniques to test and deepen quantitative estimates of labour market needs. Ireland’s Expert Group on Future Skills Needs, established in 1997, provides strategic advice to the Irish Government on the economy’s current and future skills needs. It comprises business representatives, experts, trade unions and policymakers. In co‑operation with the SOLAS Skills and Labour Market Research Unit, it conducts its own research using a wide variety of quantitative and qualitative methods for skills anticipation. In addition, it carries out sector-specific foresight exercises using an approach that draws on interviews and focus groups with sectoral experts and actors involved in developing and using skills, including sectors such as green and digital economies.
Estonia also has a mixed methodology approach and identifies policy implications from its SAA information as part of this approach. In 2014, the Estonian Qualification Authority launched the System of Labour Market Monitoring and Future Skills Forecasting (OSKA) project to map out skills provision based on labour market needs. OSKA uses both quantitative and qualitative methods to determine the skills that will be most relevant to Estonia’s future labour market. In addition to using available administrative data and quantitative forecasts to determine these skills, OSKA collects qualitative insights through sector-level surveys and expert panels to understand skills needs across five sectors. OSKA publishes annual reports on labour market trends and skills needs based on its quantitative and qualitative analyses. Beyond identifying future in-demand skills, OSKA is also involved in developing policy recommendations about how to meet the demand for these skills.
Source: OECD (2023[1]), OECD Skills Strategy Bulgaria: Assessment and Recommendations, https://doi.org/10.1787/c2eb2f34-en/.
Creating an inter-institutional data and evidence centre responsible for collating and improving skills data and evaluation evidence
Currently, Bulgaria has limited evidence on the outcomes achieved by its skills policies, programmes, institutions and agencies, and lacks a strong culture and practice of evidence-based skills policymaking (European Commission ESIF & World Bank, 2020[16]; OECD, 2023[1]). To improve its practice of producing evidence on the performance of skills policies and programmes, Bulgaria could consider establishing an Inter-Institutional Data and Evidence Centre (DEC), similar to those that exist in Denmark and Lithuania (see Box 6.12). The proposed Skills Policy Council could oversee the creation of this centre, while the DEC itself would be responsible for storing, centralising and quality-assuring skills‑related data within a dedicated management information system. The data collected could also support Bulgaria’s existing SAA activities, which are currently conducted by the MLSP and various actors, helping them to forecast labour market needs, identify skills gaps, and align training provision with emerging economic and technological trends. The centre could also be responsible for analysing and commissioning research on primary and secondary data on skills policy, allowing it to transform data into actionable insights for more evidence‑based decision-making. The Skills Policy Council, in turn, could help disseminate findings to ministries, agencies, and other stakeholders.
The DEC could be staffed with a dedicated team. This could include secondments from key ministries and agencies involved in skills policy, including the MEI, the MES, the MLSP, NAVET, and the National Employment Agency. Drawing on staff from different bodies in this way could help the centre consolidate necessary expertise while also fostering inter-ministerial collaboration. Bulgaria could also consider formalising a network of experts, including employers’ and industry organisations, academics, consultants and other stakeholders that currently collect and generate information and data on skills, which could provide the centre with additional capacity. To be effective, Bulgaria could consider giving the DEC a degree of autonomy, similar to models in Denmark, with a professional head, an independent governance structure, and a dedicated budget.
Denmark and Lithuania have created centres/agencies focused on improving data and evidence in the skills system, including by integrating and analysing skills data from diverse sources. In Denmark, the DREAM project group acts as an “independent semi-governmental institution” to produce a set of simulation and projection models for the economy, from population demographics via education to the labour market. Making use of data sources available in Denmark (e.g. Danish population data), these models provide robust estimations of important development trends in the Danish economy. The microsimulation model SMILE (simulation model for individual lifecycle evaluation) is part of a set of models in the DREAM system. It draws on data from seven different data sources made available through Statistics Denmark, which allows for robust estimates on the trajectories of individual life courses, in particular educational and employment decisions.
In Lithuania, the National Monitoring of Human Resources system was launched to integrate existing administrative data from a variety of sources onto a singular platform, to be used for SAA. The data came from a variety of sources, including the State Social Insurance Fund, State Tax Inspectorate, Public Employment Service and Education Management Information System, among others. State authorities are obliged to use the system when making policy decisions related to education and the labour market. In 2017, Lithuania also restructured the Research and Higher Education Monitoring and Analysis Centre (MOSTA) into a new Government Strategic Analysis Centre (STRATA), which now fulfils general functions regarding evidence-informed policymaking across all policy fields, as well as several tasks exclusive to the field of skills policy.
Source: DREAM (2019[64]), The Danish Institute for Economic Modelling and Forecasting, www.dreammodel.dk/default_en.html (accessed on 2 December 2024); OECD (2021[60]), OECD Skills Strategy Lithuania, https://doi.org/10.1787/14deb088-en; OECD (2023[1]),OECD Skills Strategy Bulgaria: Assessment and Recommendations, https://doi.org/10.1787/c2eb2f34-en/.
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