Bulgaria's Higher Education Act: structure and analysis
Review of Bulgaria's Higher Education Act: academic autonomy, types of universities, accreditation, academic staff and the 2025 to 2026 changes.
The Higher Education Act (ЗВО) is the framework act that defines the whole architecture of higher education in Bulgaria: from academic autonomy and the types of higher schools to accreditation, degrees and funding. For university lawyers, rectorates and academic councils it is an everyday working tool, not a theoretical text.
This analysis systematises the version in force chapter by chapter and outlines the latest changes of 2025 to 2026. It is addressed to lawyers in administrative and education law, in-house counsel and HR departments of higher schools, and law students studying the structure of higher education. The text of the law is quoted verbatim from the consolidated version on lex.bg.
❓What does the Higher Education Act regulate?
What the ЗВО regulates: subject and structure
The subject of the law is outlined already in Art. 1. It does not regulate a single element but the whole regulation of higher education as a system: structure, functions, management and funding. Art. 2 adds the framework of purpose, which serves for interpreting the specific provisions.
Higher Education Act (ЗВО)
Art. 1
The subject provision, which determines the scope of the whole regulation.
Official Bulgarian text
„С този закон се уреждат устройството, функциите, управлението и финансирането на висшето образование в Република България.“
Higher Education Act (ЗВО)
Art. 2
A purpose provision, a guide for interpreting the remaining provisions.
Official Bulgarian text
„Цел на висшето образование е подготовката на висококвалифицирани специалисти над средното образование и развитието на науката и културата.“
The structure of the law is built from twelve chapters, which follow the logic from the general regulation to specific institutions and relations. Chapter One regulates the general provisions, Chapter Four academic autonomy, Chapter Ten accreditation, and Chapter Eleven property and finances. Chapter Twelve was repealed by ДВ issue 13 of 2008, but the numbering of the chapters is kept.
12 chapters
the structure of the ЗВО, from General Provisions (Chapter One) to Property and Finances (Chapter Eleven); Chapter Twelve is repealed
Source: ЗВО, ДВ issue 112/1995, current version
Types of higher schools and how they are opened
One common practical misunderstanding is the number of types of higher schools. After the amendment by ДВ issue 17 of 2016, Art. 17(1) provides not for three but for four types, because the category of “research universities” was added to them, defined in Art. 17(4).
Higher Education Act (ЗВО)
Art. 17(1)
Four types of higher schools; the category of research universities was added by ДВ issue 17/2016 and is defined in para. 4.
Official Bulgarian text
„Висшите училища са университети, изследователски университети, специализирани висши училища и самостоятелни колежи.“
Every higher school is a separate legal entity. This determines its legal capacity, its property independence and its standing to sue and be sued.
Higher Education Act (ЗВО)
Art. 6(1)
The legal personality of the higher school.
Official Bulgarian text
„Висшето училище е юридическо лице с предмет на дейност: 1. подготовка на специалисти...“
| Type of higher school | Scope of training | Degrees (ОКС/ОНС) |
|---|---|---|
| University | A wide range of professional fields from different areas of higher education | bachelor, master; doctoral students (ОНС “doctor”) |
| Research university | A university with significant and recognised research activity (Art. 17(4)) | bachelor, master; doctoral students (ОНС “doctor”) |
| Specialised higher school | Training in one or several professional fields | bachelor, master; doctoral students where accredited |
| Independent college | Training in a shorter cycle in professional fields | professional bachelor (ОКС) |
The four types of higher schools under Art. 17(1) ЗВО
Opening, transforming and closing a higher school is not a matter of administrative discretion. It is done through the legislative procedure, after a preliminary assessment by the National Evaluation and Accreditation Agency (НАОА).
Opening a higher school
Assessment by НАОА
The National Evaluation and Accreditation Agency assesses the project for opening or transformation.
Proposal by the Council of Ministers
The Council of Ministers submits a reasoned proposal to the National Assembly.
Decision of the National Assembly
The National Assembly opens, transforms or closes the higher school.
Academic autonomy: limits and content
Academic autonomy is among the constitutionally protected values of higher education and is regulated in Chapter Four of the law. It is not an abstract principle but a concrete content of three components.
Higher Education Act (ЗВО)
Art. 19(3)
The three elements of academic autonomy.
Official Bulgarian text
„Академичната автономия включва академични свободи, академично самоуправление и неприкосновеност на територията на висшето училище.“
Autonomy does not exclude accreditation and oversight
Degrees and the organisation of studies
The educational and qualification degrees (ОКС) and the educational and scientific degree “doctor” (ОНС) are regulated in Art. 42. The distinction between ОКС and ОНС is significant, because it determines access to the next degree and the professional capacity of graduates.
Higher Education Act (ЗВО)
Art. 42
ОКС “bachelor” and “master”; ОНС “doctor” under para. 4.
Official Bulgarian text
„...степени: 1. образователно-квалификационна степен „бакалавър”...; 2. ...„магистър”...; (4) ...образователната и научна степен „доктор”...“
| Degree | Category | Place in the structure of studies |
|---|---|---|
| “professional bachelor” | ОКС | Awarded by colleges; a short cycle of study |
| “bachelor” | ОКС | The basic university degree; gives access to “master” |
| “master” | ОКС | A further degree after “bachelor” or integrated studies |
| “doctor” | ОНС | An educational and scientific degree; acquired in doctoral studies |
Degrees under the ЗВО and their place in the structure
The organisation of the study process and the credit system (ECTS) are regulated in Chapter Five. The credit system ensures comparability and transferability of studies, including within the European Higher Education Area.
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Accreditation of higher schools (НАОА)
Accreditation is the recognition of a higher school’s right to provide training and issue diplomas of state significance. It is regulated in Chapter Ten and carried out by НАОА, which should not be confused with НАЦИД (the National Centre for Information and Documentation): the latter maintains registers but does not accredit.
Higher Education Act (ЗВО)
Art. 75(1)
The accrediting body is НАОА (not НАЦИД).
Official Bulgarian text
„Акредитацията е признаване от Националната агенция за оценяване и акредитация...“
Accreditation cycle (НАОА)
Application and project
The higher school submits an application for institutional or programme accreditation.
Evaluation by НАОА
The agency carries out an evaluation under approved criteria and procedures.
Decision and rating
НАОА issues a decision with an accreditation rating.
Period of validity
Accreditation is given for a set period, after which a new procedure follows.
Academic staff, students and funding
The status of the academic staff is regulated in Chapter Six of the ЗВО, but the acquisition of academic degrees and the holding of academic positions (habilitation) is governed by a separate law. This is one of the most common mistakes in practice: mixing the ЗВО with the regulation of the academic career.
Academic Staff Development in the Republic of Bulgaria Act
ЗРАСРБ
A complementary law that regulates the acquisition of academic degrees and the holding of academic positions. The ЗВО regulates the structure; the ЗРАСРБ regulates the academic career.
The admission of students and doctoral students is carried out by competition within an approved number of places. Art. 68 is the main provision on admission.
Higher Education Act (ЗВО)
Art. 68(1)
Competitive admission within the approved intake.
Official Bulgarian text
„Приемането на студенти и докторанти се извършва чрез конкурсен изпит в рамките на утвърдения брой...“
Property and financial relations are in Chapter Eleven. The funding of state higher schools is ensured through a state subsidy and own revenue, including tuition fees.
Higher Education Act (ЗВО)
Art. 89(1)
Chapter Eleven: Property and Finances of Higher Schools.
Official Bulgarian text
„Имуществото на висшето училище се състои от право на собственост и от други вещни и имуществени права.“
Latest changes: employer contracts and fees
Among the newer institutions in the law is state funding of the training of students who have a contract with an employer. The regulation was introduced by Art. 95а (new, ДВ issue 17 of 2020) and developed further by subsequent amendments connected with tuition fees.
Higher Education Act (ЗВО)
Art. 95а
State funding under a contract with an employer; the employer must be included in a list adopted by the Council of Ministers.
Official Bulgarian text
„(Нов - ДВ, бр. 17 от 2020 г.) (1) Със средства от държавния бюджет се осигурява... заплащането на разходите за обучение на студенти..., които имат сключен договор с работодател...; (2) ...работодател, който... е включен в списък, приет от Министерския съвет.“
An important clarification for practice: the text of Art. 95а neither regulates nor names an information system or a register. The condition is that the employer appears in a list adopted by the Council of Ministers. The portal of contracts concluded under Art. 95а maintained by НАЦИД (based on data from МОН) is an administrative register that is external to the law, not an institution created by the provision itself. When preparing an opinion, this distinction should be kept.
Check the latest version before citing
Practical guidance for lawyers
In a university or academic case, a systematic approach saves mistakes. The following checklist covers the key checks before you form a legal opinion under the ЗВО.
Checklist for a ЗВО case
Determine which chapter of the ЗВО governs the question (structure, autonomy, degrees, accreditation, staff, finances)*
Check the version in force directly on lex.bg: last amended by ДВ issue 51 of 5 June 2026*
Free online references often lag behind the latest amendments.
Distinguish the ЗВО (structure of higher education) from the ЗРАСРБ (academic career and habilitation)*
Check the applicable secondary legislation: the higher school’s own rules, МОН ordinances and the Rules for the Implementation of the ЗРАСРБ (ППЗРАСРБ)
For an employer contract under Art. 95а, check whether the employer is included in the list adopted by the Council of Ministers
* Mandatory documents
Sources and official registers
The official consolidated text of the law is available on lex.bg, and the full text of the complementary Academic Staff Development in the Republic of Bulgaria Act is also on lex.bg. Information on accreditation is maintained by the National Evaluation and Accreditation Agency (НАОА), and on state policy in higher education by the Ministry of Education and Science. The register of employer contracts under Art. 95а is kept by НАЦИД.
Pravko provides legal information but does not replace consultation with a lawyer. For important legal questions, consult a licensed lawyer.
⚠️ Important
Pravko provides legal information, but it does not replace advice from a lawyer. For important legal matters, consult a licensed lawyer.
