Serbia
The European Training Foundation (ETF) cooperates with, and complements the work of the European Commission and the European External Action Service in its support to Serbia, including providing assistance to the Delegation of the European Union to Serbia, contributing to the EU-Serbia bilateral policy dialogue.
The ETF is actively supporting the implementation of actions in the Osnabrück Declaration in the region, in close cooperation with its sister agency Cedefop. The Osnabrück Declaration sets out policy actions for the 2021–25 period, in support of the Council Recommendation on vocational education and training (VET) for sustainable competitiveness, social fairness and resilience. The national implementation plan for Serbia describes how the country plans to address EU priorities and achieve its national objectives in VET.
The ETF also gives input to EU policy monitoring mechanisms, providing progress on training and employment developments and wider human capital developments reported in the Torino Process, and gives input to the annual Economic Reform Programme review. It supports Serbian actors participation in European platforms and dialogue processes such as the Youth Guarantee, entrepreneurship schemes, European Alliance for Apprenticeship, and Erasmus+.
The ETF provides expertise and collaborates closely with public/private institutions assessing the future of skills for youth in the country through high-level policy dialogue reform structures, operational strategic national coordination structures, and technical working groups with key stakeholders supported by EU projects and programmes.
Read our 2025 update on Key policy developments in education, training and employment (ETF, 2025). For a quick overview, see below:
2025 developments at a glance
🏛️ Political context and EU integration: Serbia continues to identify EU membership as a strategic objective, although progress in the accession process remains gradual. The EU Growth Plan and Reform Agenda have become central frameworks for policy reform and convergence with EU standards. At the same time, large-scale protests that began in late 2024 following the Novi Sad railway station tragedy have had a significant impact on public life, including the education sector.
✅ Early school leaving and educational participation: Serbia continues to maintain a low rate of early school leaving, at 6.2% in 2024, below the EU average. Participation in secondary education remains high, while vocational education continues to be the dominant pathway at upper-secondary level. However, persistent inequalities remain for Roma communities and other vulnerable groups.
👩🎓 Education reform and policy developments: Despite a challenging context, Serbia adopted several important legislative reforms in 2025, including amendments to laws on VET, adult education, the National Qualifications Framework and primary education. A new education strategy was drafted, while career guidance reforms advanced through the adoption of new occupational standards and a national career management skills framework.
🏫 Vocational education and training (VET): Serbia continues to strengthen VET through reforms linked to the National Qualifications Framework of Serbia (NQFS), dual education and qualifications development. The proportion of students enrolled in VET remains among the highest in Europe, with approximately 75% of secondary students attending vocational programmes. Efforts continue to modernise curricula, improve labour market relevance and strengthen vocational excellence.
🛠️ Work-based learning (WBL): Dual education continued expanding in 2025, supported by the amended Law on Vocational Education and the creation of the Dual Education Support Fund. New measures aim to improve student participation, strengthen employer engagement and enhance the quality of practical training. Serbia also continues to expand work-based learning opportunities through pilot programmes and employer partnerships.
💼 Labour market developments: Labour market indicators improved further in 2024. Employment rose to 51.4%, while unemployment declined to 8.6%. However, labour shortages, demographic decline, emigration and skills mismatches continue to affect economic development. Employers report difficulties recruiting workers with the required technical, digital and transversal competences.
👦 👧 Youth in focus: Serbia continues implementing the Youth Guarantee, initially piloted in selected municipalities. NEET rates declined to 14.9% in 2024, but remain above the EU average. Particular attention is being given to young people from disadvantaged backgrounds and regions with weaker labour markets.
💻 Digital skills development: Serbia continues implementing digital transformation reforms under the Strategy for Digital Skills Development and the broader education modernisation agenda. Investments in school connectivity, digital infrastructure, EdTech tools and teacher training are helping to strengthen digital competences across the education system, although significant gaps remain.
🌿 Green skills development: Green skills development is increasingly supported through vocational education reforms, new qualifications linked to renewable energy and sustainability, and initiatives aligned with the European Green Deal and the new Herning Declaration. Programmes such as Green Skills for Green Jobs continue to connect education reforms with economic and environmental priorities.
Priorities for 2026
👉 Strengthen implementation of the National Qualifications Framework, with a particular focus on quality assurance, recognition of prior learning, non-formal education and improved links with labour market needs.
👉 Continue the rollout of the Youth Guarantee, strengthening outreach, interinstitutional cooperation and support for vulnerable young people.
👉 Expand and improve dual education and work-based learning, including stronger employer participation and quality assurance mechanisms for practical training.
👉 Improve skills anticipation and labour market intelligence to better address skills shortages, demographic challenges and labour market mismatches.
👉 Strengthen digital and green skills development across education, vocational training and adult learning systems to support Serbia’s economic transformation and EU integration objectives.