Agile Occupational and Training Standards for Responsive Skills Policies

In Germany, dual training, which combines practical training in companies with theoretical learning in vocational schools, is at the heart of the VET system.1 Occupational and training standards play a fundamental role in the quality assurance of vocational training nationwide, as they are used to design curricula in vocational schools and company-based training (BIBB, 2014[16]). Occupational and training standards in Germany are defined in two documents, the training regulation, and the skeleton curriculum. The training regulation provides a description of the occupation – including information on its tasks, and required skills and qualifications – and a training framework plan – a description of the corresponding vocational training programme.2 The training regulations also guide the assessment and certification of trainees, which are standardised in all industries. This ensures that all apprentices receive the comparable training regardless of region and company (BMBF, 2023[17]). The skeleton curriculum is the basis for vocational instruction at the vocational school and is harmonised in terms of time and content with the training framework plan. This aims to ensure that vocational training is closely aligned with actual job requirements (BIBB, 2023[18]). The implementation of vocational training in private companies and public administrations is monitored by the competent authorities (usually the chambers), whose tasks include monitoring vocational training, checking the suitability of the training personnel and the training centre and conducting intermediate and final examinations.

The development and regulation of occupational standards are guided by the Vocational Training Act (BBiG) and the Crafts and Trades Regulation Code (HwO) (BMBF, 2022[19]). The BBiG provides the legal framework for vocational training and outlines the requirements for vocational education and training, including the structure and content of training programmes. The HwO specifically governs the skilled crafts and trades sector in Germany. It sets out the requirements for training and qualification in this sector, which is a significant part of the vocational training landscape. These legislative frameworks provide the legal and regulatory backbone for the development, maintenance, and adaptation of occupational and training standards in Germany, ensuring that vocational training remains responsive to the evolving demands of the labour market. They also set the foundation of occupational standards and ensure uniformity and standardisation across the country.

The Federal Institute for Vocational Education and Training (BIBB) plays a central role in the development of occupational and training standards in Germany. The BIBB is overseen by the Federal Ministry of Education and Research (BMBF) and operates within the scope of the education policy of the Federal Government (Ulmer, 2021[20]). Its responsibilities include contributing to the VET system by carrying out academic research and supporting the preparation of training regulations and other legal ordinances (Ulmer, 2021[20]). The BIBB collaborates with a wide array of stakeholders including industry associations, trade unions, federal and state governments to update and adapt occupational and training standards to changing labour market demands (BIBB, 2023[18]).

Other stakeholders are involved in the production and update of occupational and training standards. For instance, the Federal Ministry for Economic Affairs and Climate Action (BMWK) leads the implementation and observance of the Crafts and Trades Regulation Code (HwO) in collaboration with the Federal Ministry of Education and Research (BMBF). It includes the federal states in the updating and harmonisation process. The German Employers’ Organisation for Vocational and Further Training (KWB) co‑ordinates and represents the position of employers’ associations and trade and industry associations. It appoints policy co‑ordinators and experts for the development of new training regulations. The German Trade Unions Confederation (DGB) co‑ordinates and represents trade unions. As KWB, it also appoints policy co‑ordinators and experts for the development of new training regulations. Finally, federal states (Standing Conference of the Ministers of Education and Cultural Affairs in the Federal Republic of Germany, KMK) provide feedback and inputs on the initiatives put forward by social partners and respond to the drafts that have been prepared. They appoint experts for the preparation of skeleton training curricula.

The process of creating and updating occupational and training standards is typically initiated by the social partners, represented by KWB and DGB, as stakeholder within the VET field, motivated by new developments or emerging challenges (BIBB, 2014[16]). To foster the modernisation of occupational and training standards, BIBB sometimes carries out an occupation-specific preliminary study upon request formulated by the responsible federal ministries.

The detailed process is shown in Figure 2 and outlined below:

• Initiation: The process is typically initiated by KWB and DGB as representatives of the social partners, who recognise the need for new or updated training standards based on technological, economic, and social developments. This need can be brought to attention by trade associations, employers’ organisations, trade unions, the BIBB itself or relevant ministries.

• Preliminary discussions: Initial discussions and co‑ordination take place internally among social partners. These discussions aim to establish benchmarks for the new developments, which are essential for setting the direction of new or revised standards. These benchmarks include occupational title, duration of training, structure and composition of training, assessment type, catalogue of skills, knowledge and abilities.

• Application discussions: Benchmarks are then debated in so-called ‘application discussions’ involving responsible ministries, the BMBF and the KMK, alongside the BIBB. The outcomes of these discussions are then forwarded to the Federal Government/Federal States Co‑ordination Committee for Training Regulations/Skeleton Curricula (KoA).

• Advisory council formation: The BIBB forms an advisory council by asking experts from the KWB and the DGB to collaborate in processing the new developments. These experts, who represent the interests of the social partners, draft the new training regulations.

• Curriculum development committee: Federal state experts draft the skeleton curriculum for vocational schools. The co‑ordination of training regulations and the curriculum takes place through joint participation in meetings, often chaired by the BIBB as the project lead.

• Final consultation and harmonisation: A joint meeting between federal government, federal state experts and other experts, who represent the interests of the social partners, is held to finalise and harmonise the drafts of the training regulations and the skeleton curriculum.

• Approval and recommendation: The draft training regulations are submitted to the BIBB Board, whose positive response also acts as a recommendation to the federal government for enactment. KoA’s approval is obtained, and the Federal Ministry of Justice checks the legal form.

• Enactment and publication: Responsible ministries enact the training regulations in agreement with the BMBF and publish them in the Federal Law Gazette. The skeleton curriculum is typically adopted directly by the individual federal states or implemented as state‑specific curricula for vocational schools.

While the development of standards is in the hands of experts, the BIBB guides the full process through dedicated project managers who play a moderating and advisory role, in particular for the advisory council formation and for the development of the training regulations.