International Review of Micro‑Credential Systems

3. Bringing aboard employers and learners

Abstract

This chapter examines how micro-credential systems can effectively respond to labour market needs while engaging learners. It highlights the importance of integrating skills intelligence and employer input into the design and delivery of micro-credentials to ensure relevance, quality and labour market recognition. Drawing on international examples, the chapter shows how countries use skills anticipation systems and structured employer partnerships to align training provision with current and emerging skill demands. It also explored how policies can support learner participation through accessible information, targeted outreach and financial incentives. Emphasising a holistic approach, the chapter argues that successful micro-credential systems depend on strong connections between policymakers, providers, employers and learners to create inclusive, responsive and demand-driven training systems.

Micro-credentials and other forms of job-related learning must equip learners with knowledge and skills relevant to the real-world jobs. This has two important implications. Training providers and skill systems require mechanisms to, firstly, feed labour market intelligence and feedback from employers into the development of learning content and, secondly, attract the right learners to develop the knowledge and skills in question. For an adult learning system to succeed, it needs to develop a dynamic relationship both with those seeking to gain skills (learners) and those seeking to integrate skills into the labour market (employers). As such, an effective adult learning system – working in “harmony” – requires policies that accompany individuals throughout the entire upskilling process, from when they start thinking about training opportunities until they are matched with a job where they can use the newly acquired skills. This, in turn, requires policymakers to think beyond simple implementation of micro-credentials to consider a holistic skill system that brings all relevant stakeholders and beneficiaries aboard. Complimentary policies are needed to ensure skill needs are captured accurately, micro-credentials are designed soundly, and learners are engaged effectively.

This chapter will explore the demand side of the equation in the micro-credential ecosystem: how providers interact with both the skill needs in the labour market and the training needs of learners.

3.1. Ensuring micro-credentials are relevant for the labour market

A growing mismatch between available skills and labour market needs has underscored the demand for agile, targeted training solutions. Micro-credentials have emerged as a flexible instrument to tackle specific skill shortages and support lifelong learning. This section analyses the essential role of robust skills intelligence and structured employer engagement in making micro-credentials responsive to labour market demands. International practices show that using skills intelligence to inform strategic planning of training offerings and curriculum design can help systems and providers to offer targeted and agile training solutions. Furthermore, active employer participation in co-design processes can help to ensure micro-credentials are relevant, practical, and trusted by employers, which in turn significantly improves employer buy-in and workforce readiness and increases the chances of addressing immediate and emerging skill gaps.

3.1.1. Skills Intelligence for micro-credentials

Skills Assessment and Anticipation

Skills assessment and anticipation (SAA) systems are structured processes for identifying, gathering, analysing, and interpreting quantitative and qualitative labour market data to anticipate current and future skills needs, and then using that data in policies and decision-making processes (OECD, 2016[3]). SAA systems use tools such as labour force data, administrative data, vacancy surveys, sectoral analyses, expert input, and forecasting models to estimate the current skill needs and skill gaps and forecast future skill needs (OECD, 2016[3]). The insights produced by the SAA exercises inform policy, guide curriculum development, and help align training efforts with evolving labour market demands. SAAs also support national skills strategies by highlighting priority needs and establishing criteria to take into account in curriculum design and quality assurance (Cedefop, 2023[48]).

Use of skills assessment and anticipation in micro-credentials: Two channels

As micro-credentials are smaller, more targeted, and more flexible than traditional education programmes, they are better positioned to respond quickly to labour market changes and address specific skill needs (OECD, 2023[15]). In contrast, traditional adult and vocational education and training often struggle to keep pace with fast-changing job markets (Cedefop, 2022[49]).

However, the capacity of micro-credentials to act as a tool for rapid response to changing skills needs is only made possible if their development is informed by SAAs. Effective SAA exercises often combine hard data – such as job vacancy surveys, labour market forecasts, and employment statistics – with qualitative insights from expert consultations and sector stakeholders (OECD, 2019[50]). This mixed-method approach helps identify both immediate and emerging skills needs, giving policymakers and educators the evidence to create targeted, responsive programmes. By grounding micro-credentials in this kind of SAAs, countries can strengthen their upskilling and reskilling efforts and better prepare their workforce for future challenges.

Skills intelligence systems support micro-credentials in two key ways: strategic development and content design. At the strategic level, SAAs help identify emerging sectors, forecast skills gaps, and guide investment towards priority areas for micro-credential development (European Commission, 2025[51]; OECD, 2023[7]). This alignment ensures that resources are directed to where they can have the most impact, improving labour market performance and supporting economic growth (Conchúr Mac Lochlainn et al., 2022[52]). At the operational level, granular data on skills requirements can inform the design of each micro-credential course by identifying relevant competencies and learning outcomes (OECD, 2023[7]). This ensures that the content is tightly aligned with industry needs, resulting in training that delivers clear, job-ready skills. The value of SAAs in shaping curricula is already well established in vocational education and training (VET) (Cedefop, 2023[48]), and the same principle can be applied to the development of micro-credentials.

The international practices examined below demonstrate varied and effective approaches. The four countries examined in-depth in this report exemplify how systematically combining quantitative data with qualitative insights from stakeholders can produce actionable intelligence, driving the design and strategic deployment of micro-credentials aligned with current and future labour market needs.

Estonia

Estonia’s skills intelligence system is built around OSKA (Oskuste Arendamise Koordinatsioonisüsteem), the Skills Development Co‑ordination System, launched in 2015 to provide a structured and co‑ordinated approach to anticipating future skills needs. OSKA combines quantitative data – such as annual employment forecasts and analyses of labour market supply and demand – with qualitative input from sectoral expert panels. These panels, made up of 20 to 30 representatives from employers, trade unions, education providers, and public bodies, track sector-specific trends and produce detailed reports that feed directly into education and training policy (Cedefop, 2023[53]).

The OSKA Co‑ordination Council, which includes representatives from five key ministries and other stakeholder groups, oversees the system. It decides which sectors to analyse each year and validates the final reports (OSKA, 2023[54]). Administered by the Estonian Qualifications Authority, OSKA ensures the education and training system stays aligned with labour market changes. Its findings are used to guide curriculum development and shape publicly funded vocational training programmes (Cedefop, 2023[53]). Recent reforms aim to integrate skills profiles and digital tools into the national qualifications framework, opening the door to more flexible learning options – including micro-credentials (Cedefop, 2023[55]).

Building directly on OSKA evidence, Estonia is also using the EU Recovery and Resilience Facility (RRF) to finance up- and reskilling activities for the digital and green transition. A EUR 15 million “Green Skills” investment (2023‑2026) has established nine sectoral consortia – bringing together higher-education institutions, VET providers and professional associations – to map the competences with the greatest climate‑transition impact, revise existing curricula in at least five priority sectors, and develop new modules, short courses and micro-credentials. The programme also funds the renewal of occupational and qualification standards and the creation of a national skills register, ensuring that the new learning outcomes can be stacked towards full qualifications and recognised across the labour-market information system. By mid‑2024, the programme had already trained 330 teaching staff and 2 830 employees, with the goal of reaching 6 000 by June 2026 (Ena Drenkhan, 2024[56]; OECD, 2024[57]). Complementary RRF resources (a further EUR 11 million) support digital‑skills provision, including free micro‑credentials in areas such as industrial automation, digital marketing and 3‑D modelling. Together, these green‑ and digital‑skills initiatives show how Estonia translates OSKA findings into flexible learning opportunities that respond quickly to emerging economic priorities (Cedefop, 2023[58]).

Box 3.1. Reform of the Estonian professional qualifications system

The skills and professional qualifications system OsKuS

Estonia’s new skills and qualifications reform, known as OsKuS, is a major initiative led by the Estonian Qualifications Authority under the ESF 2022‑2029 funding cycle. The project merges the OSKA skills forecasting system with the country’s existing professional qualifications framework. Instead of relying on rigid, occupation-based standards, the reform introduces flexible skills profiles supported by digital tools – such as a national skills register and digital certificates. The aim is to improve the system’s ability to respond to fast-changing labour market needs and to create more adaptable learning pathways, including micro-credentials.

Source: Cedefop (2023[55]), Estonia: Skills and professional qualifications system reform, https://www.cedefop.europa.eu/en/news/estonia-skills-and-professional-qualifications-system-reform; Estonian Qualifications Authority (2023[59]), ESF 2022‑2029, https://www.kutsekoda.ee/en/esf-2022-2029-2/.

Ireland

Ireland has built a well-co‑ordinated skills intelligence system to track current skills shortages and anticipate future labour market needs. This is led by the Skills and Labour Market Research Unit within SOLAS, which compiles data on job vacancies, education and training flows, and other key labour market indicators (Cedefop, 2023[60]).

The Expert Group on Future Skills Needs (EGFSN), operating under the Department of Enterprise, Trade and Employment, adds strategic depth to this framework. Based on a partnership model, the EGFSN brings together stakeholders from trade unions, business, representative bodies, government, and education to deliver analysis and regular reports on emerging skill needs (Cedefop, 2023[60]).

Oversight comes from the Department of Further and Higher Education, Research, Innovation and Science (DFHERIS), which co‑ordinates the broader system and is advised by the National Skills Council. The department works closely with SOLAS and the 16 Education and Training Boards (ETBs) – the entities responsible for delivering micro-qualifications – and nine Regional Skills Fora to ensure the information gathered is translated into actionable policies and targeted training initiatives (Cedefop, 2023[60]; SOLAS, 2024[33]).

An example of this approach is the development of SOLAS micro-qualifications in the field of the green economy. As part of the findings of the Green Skills 2030 initiative (Box 3.2), these micro-qualifications are designed to address emerging green skills within the Irish economy. These programmes provide targeted, industry-relevant training that supports both individual career transitions and broader labour market needs (SOLAS, n.d.[61]).

Box 3.2. Skills Assessment and Anticipation to support the green transition

Green Skills 2030 in Ireland

Ireland’s Green Skills 2030 strategy sets out how the FET system will support the country’s transition to a low-carbon economy. Developed by SOLAS in partnership with KPMG, the 16 ETBs, public bodies and industry stakeholders, the strategy identifies the knowledge, skills and consequently the micro-qualifications needed for Ireland to meet its climate targets, including halving greenhouse gas emissions by 2030. It uses SAA to identify critical skill gaps in key sectors such as construction, agriculture, transport, energy, hospitality and finance. Based on this analysis, the FET system aims to deliver targeted, sector-specific training that helps workers and employers prepare for emerging green jobs (SOLAS, n.d.[61]).

The strategy outlines strategic priorities, including integrating green and transversal competences into all FET programmes, developing environmental, social and governance (ESG) reporting and compliance skills, and promoting green career pathways from secondary education onwards. It also puts forward sector-specific actions, such as expanding specialist FET centres in areas like renewable energy and sustainable agriculture, and developing higher education micro-credentials and FET micro-qualifications in these key sectors. Emphasis is placed on embedding the European GreenComp framework to equip learners with the competences needed to navigate the green transition. The strategy is underpinned by extensive stakeholder engagement, ensuring that training provision is aligned with evolving labour market demands and policy goals at both national and European levels (SOLAS, 2024[62]).

Note: To better understand the distinction between micro-credentials and micro-qualifications in the Irish system, see the explanatory footnote on page 59 of SOLAS (2024[62]) Green Skills 2030, https://www.solas.ie/f/70398/x/135e0f3789/solas-green-skills-strategy-2030.pdf.

Finland

Finland’s skills intelligence system operates through a networked approach that brings together public bodies at national, regional, and local levels, and includes several anticipation mechanisms both for short term and long-term needs. Some of the bodies involved in this system include JOTPA, the Ministry of Economic Affairs and Employment, the Ministry of Education and Culture, the Finnish National Agency for Education, Regional Councils, Centres for Economic Development, Transport and the Environment, and municipal authorities. Together, they contribute to both qualitative and quantitative skills forecasting (Cedefop, 2023[63]). The Skills Anticipation Forum (Osaamisen Ennakointifoorumi) played a key role in linking education to the labour market. The Forum was operational between 2017 and 2024 and included nine sectoral anticipation groups made up of employers, unions, researchers, and education providers. This structure improved forecasting methods and ensured that educational strategies were aligned with labour market needs (Cedefop, 2023[63]; Opetushallitus, 2025[64]). At the beginning of 2026, the Ministry of Education and Culture appointed a working group to develop the anticipation of educational needs. Its task is to create preconditions for knowledge‑based discussion and decision making concerning the targeting of educational provision.

JOTPA is a multi-ministerial agency, reporting directly to the Ministry of Education and Culture and the Ministry of Economic Affairs and Employment, and it places particular emphasis on the Skills Needs Compass (Osaamistarvekompassi) as its primary tool for skills needs anticipation (JOTPA, 2025[65]). Launched in beta in December 2023 and under active development until Q3 2025, the Skills Needs Compass is a data reporting system that consolidates insights from AI-processed big data, labour market transitions, qualification completions, and sectoral trends, supporting short and medium-term labour and skills needs. It supports education providers, career practitioners, regional employment services and policymakers by offering timely, user-oriented analysis to better align supply with evolving labour-market demands (OECD, 2023[15]; JOTPA, 2025[66]).

The former Occupational Barometer was relaunched in November 2023 as the Labour Force barometer (Työvoimabarometri), offering a more comprehensive view by combining occupational outlooks with skills-specific needs and a sectoral focus, providing robust short-term insights on labour market and skills needs (Ministry of Economic Affairs and Employment of Finland, n.d.[67]). Produced jointly by the Ministry of Economic Affairs and Employment, the KEHA Centre (Employment, Development and Administration Centre, the national development centre for the Economic Development Centres), and the Economic Development Centres (regional centres for development), it provides expert-based short-term forecasts at both regional and national levels, reflecting the inputs from a range of stakeholders such as education providers and employers. Since 2 March 2025, the KEHA Centre has taken over responsibility for its development and maintenance (Ministry of Economic Affairs and Employment of Finland, n.d.[67]; Ministry of Economic Affairs and Employment of Finland; KEHA Centre; ELY Centres, n.d.[68]).

JOTPA uses these forecasts and situational data to allocate state grants for short training programmes that address identified skills gaps. These programmes are shorter than full degrees and focus on equipping the working-age population with relevant skills (OECD, 2023[15]; JOTPA, 2025[69]). For the micro-credential pilot, skills assessment was used primarily by higher education providers, the primary aim of the pilot is to test the national micro-credential framework and related quality processes rather than to dictate priority sectors in advance. Accordingly, HE providers were free to propose topics but must indicate the specific labour-market demand their micro-credentials will address, drawing on local or sector-specific analysis.

This provider-level skills intelligence is supported by institutional monitoring of labour-market outcomes and co‑operation with employers and other labour-market stakeholders. In VET, programme‑specific committees with labour-market representation contribute to the monitoring and development of provision, while graduate employment outcomes are also incorporated into the funding models of higher education institutions (Cedefop, 2023[63]). Many higher education institutions also regularly conduct employer and alumni surveys and participate in ESF-funded skills anticipation projects to identify emerging skills needs. These decentralised activities, together with co‑operation and co-creation between education providers and industry, can inform the design and adaptation of micro-credentials to regional and sectoral needs.

In addition, new small-scale skill developments are being developed under the umbrella of the TE2024 reform. The reform, implemented in January 2025, transferred responsibility for organising employment services to municipalities and 45 employment areas, with the aim of strengthening the responsiveness of services to local labour-market needs. Employment areas work with employers and other regional actors and draw on labour-market and skills-foresight information to identify emerging workforce needs and inform employment services. This includes targeting labour market training and other skills-development measures towards identified skills shortages, with shorter training offers potentially providing opportunities for more modular, small-scale skills development (Ministry of Economic Affairs and Employment, 2025[70]).

Box 3.3. Finland’s Skills Needs Compass (Osaamistarvekompassi)

The Skills Needs Compass is one of Finland’s national tools for skills anticipation, developed by the Service Centre for Continuous Learning and Employment (JOTPA), which has been used during the micro-credential pilot. The tool was launched in beta in December 2023 and, following the completion of its development phase in June 2025, has entered a maintenance phase supported by national funding. While no new features are currently planned, the Compass continues to be updated annually with new data and is complemented by targeted analyses and learning materials.

Data sources, structure and institutional use

The Compass is a data-driven system that uses artificial intelligence to analyse a broad range of sources (investment data, job advertisements, qualification completions, career transitions, etc.) to generate insights into short- and medium-term skills needs. The underlying dataset is updated annually by the service provider HeadAI, ensuring the tool remains responsive to the evolving labour market. The latest data update was completed in June 2025.

The tool features a profession-based taxonomy, adapted from ESCO and manually refined by JOTPA, which ensures meaningful associations between skills and occupations that supports education planning and career guidance. Although the taxonomy is static by design, discussions are already underway on how to keep it aligned with emerging job titles and roles.

The full dataset is openly licensed and available upon request via JOTPA’s website. The Compass is informing the Finnish National Agency for Education’s development of new AI-based tools and supports JOTPA’s funding decisions. Regional anticipation professionals are regularly convened in a network to discuss emerging themes based on the data.

Main user groups and applications

In practice, the Compass is primarily used by professionals in education planning, career guidance, and regional employment services.

• Educational planning: despite limited formal usage data, many education providers report using the tool to inform the design of continuing learning provision, particularly in the context of grant applications. In addition, JOTPA is currently supporting the Ministry of Education and Culture in exploring ways to integrate the Compass into its steering mechanisms for vocational institutions, with the aim of establishing it as a standard reference in programme planning and negotiations.

• Career guidance: career guidance professionals have also emerged as a key user group. JOTPA actively promotes the Compass through professional networks and events and is developing tailored resources to support its use in client advising.

• Employment Services: in the field of employment services, the Compass is being introduced to the newly established municipal unemployment services, following the decentralisation of employment responsibilities in 2025.

Integration with Osaamispolku.fi

The Compass is linked to the newly launched Osaamispolku.fi platform, a public-facing service designed to help students and jobseekers navigate education and employment opportunities. Launched in early 2026, Osaamispolku features an AI engine to match users’ skills profiles with relevant opportunities, with the Compass providing supplementary labour market intelligence.

Language and regional development

Despite challenges in developing international or regional versions of the Compass, plans are underway to expand Swedish-language support and improve the availability of English-language materials.

Australia

Australia’s skills intelligence system is broad and well-developed. SAA methods inform employment, migration, education, and training policies. For example, in employment policy, job vacancy data and employer feedback help revise occupational standards and shape apprenticeship, re‑training, and on-the‑job training programmes. In this way, information on skills needs is directly linked to policy actions to address both immediate shortages and longer-term structural imbalances (OECD, 2018[71]). Although micro-credential providers are not required to apply the result of SAAs directly in their curriculum design, the SAAs influence micro-credential delivery indirectly through skill taxonomies. The National Microcredentials Framework requires providers to clearly stipulate the learning outcomes of micro-credential courses and encourages them to use certain skill taxonomies, such as the Australian Core Skills Framework, which describes foundation, general or core skills/capabilities. For example, the description of a micro-credential learning outcome might include information such as: “to achieve Reading Level 1 within the Australian Core Skills Framework, a reader would meet Indicator 1.03: “Identifies personally relevant information and ideas from texts on highly familiar topics.” (Australian Government - Department of Education, Skills and Employment, 2021[30]). Australia uses a mix of quantitative and qualitative data – employer, worker, and graduate surveys, forecasting models, and methods like the Delphi method1 – to understand emerging skill needs (OECD, 2018[71]). This mixed-method approach allows policymakers to capture not only statistical trends but also nuanced insights from employers regarding emerging skill needs. Occupational forecasts, such as the Skills Shortage Lists, are instrumental in identifying sectors with current and anticipated shortages, and guide migration policy and funding decisions (OECD, 2018[71]).

SAA data informs funding allocations in both tertiary education and VET. In higher education, the use of SAA has ushered a shift from a demand-driven funding model to one based on labour market needs. Under this system, fees were increased for humanities, business, and law, and reduced for STEM, education, and health (Innovative Research Universities, 2021[72]; Australian Academy of the Humanities, 2024[73]). In the VET sector, SAA plays an even more direct role in determining what courses are offered and how they are funded. At the national level, The National Skills Agreement mandates the use of skills intelligence to inform strategic investments, evaluate outcomes, and determine eligible VET Student Loans (OECD, 2018[71]; Australian Government, 2023[74]). At the regional level, each Australian state and territory sets its own VET funding priorities based on SAA data (OECD, 2018[71]). There are three bodies that are central in Australia’s SAA activities for the VET sector: Jobs and Skills Australia provides national labour market intelligence through tools like the Jobs and Skills Atlas (Australian Government, 2024[75]); Jobs and Skills Councils, industry-led bodies, offer sector-specific planning, training development, and workforce insights (Australian Government, 2025[76]); and The National Centre for Vocational Education Research serves as the VET sector’s national data and research centre (NCVER, 2024[77]).

Box 3.4. Using skills intelligence to inform funding in higher education

The National Priorities and Industry Linkage Fund (NPILF)

The National Priorities and Industry Linkage Fund (NPILF) was a major initiative launched under Australia’s Job-Ready Graduates higher education reform package (Australian Government, 2024[78]). Running from 2022 to 2025, its primary goal was to strengthen ties between universities and industry, ensuring that graduates are equipped with the skills employers actually need.

Through block grants, the NPILF funded universities to:

• Expand work-integrated learning (WIL), such as internships and assessed workplace projects;

• Enhance STEM skills development, including capabilities like critical thinking, collaboration, creativity, and discipline‑specific expertise;

• Build stronger, long-term industry partnerships.

The programme explicitly supported the embedding of industry engagement into university curricula by encouraging real-world experience as a formal, credit-bearing part of study programmes.

NPILF was structured around a performance‑based implementation model. From 2022 to 2025, participating universities were required to submit SMART-based implementation plans – setting out Specific, Measurable, Achievable, Relevant, and Time‑bound targets, including metrics, case studies, and progress milestones. These plans were reviewed annually, with funding incentives tied to graduate employment outcomes, levels of industry involvement and satisfaction, and innovation in programme delivery.

Crucially, NPILF complemented Australia’s broader skills assessment and anticipation (SAA) strategy. It integrated labour market data and stakeholder feedback to promote evidence‑based programme design and delivery. By aligning education directly with economic priorities – especially in technology, engineering, health, and teaching – NPILF helped produce job-ready graduates and reinforces the country’s skills intelligence system.

Ultimately, NPILF exemplifies how higher education reform can be used as a tool to meet future workforce needs, strengthen STEM pipelines, and make university-industry collaboration a standard part of the education landscape (Australian Government, 2021[79]).

Note: The Job-ready graduates Package, introduced by the Australian Government in 2020, restructured higher education funding to better align with national labour market demands. It adjusted student contribution amounts and government subsidies across disciplines, aiming to incentivise enrolment in fields with strong employment prospects, such as STEM, health, and education (Australian Government - Department of Education, 2024[80]).

Micro-credentials are still in an early implementation phase in many OECD and EU countries. Until pilot programmes reach scale, the direct, systematic use of SAA evidence in micro-credential design will likely remain limited. Nevertheless, several advanced SAA frameworks already generate the granular, forward-looking intelligence that providers will eventually need to steer investment and create curricula tailored to labour-market demand. Box 3.5 illustrates some further examples of these exercises.

Box 3.5. How mature skills anticipation systems can support emerging micro-credential ecosystems

France: Multi-level skills intelligence architecture

National institutions such as France Stratégie, DARES (Directorate for Research, Studies, and Statistics) and Céreq (Centre for Studies and Research on Qualifications) carry out regular forecasting. The Réseau Emplois-Competénces (the “Jobs-Skills Network”) harmonises methods and promotes knowledge sharing. Regional and sectoral observatories deepen the evidence base, and large companies are legally required to conduct forward-looking workforce planning (Cedefop, 2023[81]). The resulting high-resolution data could readily be channelled into micro-credential development to target niche skill gaps.

Germany: Integrated forecasting and VET monitoring

The Federal Ministry of Labour and Social Affairs leads national labour-market forecasting in close collaboration with the Institute for Employment Research (IAB) and the Federal Institute for Vocational Education and training (BIBB). Germany’s annual Vocational Education and Training Report tracks the training market, while the Federal Employment Agency surveys regional and sectoral labour markets to pinpoint shortages. The QuBe project, a collaboration between BIBB and IAB, models long-term employment trends by qualification and occupation, informing measures such as STEM-promotion campaigns and digital tools like the Berufswahlpass 4.0 app. Special programmes also help disadvantaged youth enter apprenticeships and vocational training (European Commission, 2025[82]).

Sweden: Combined quantitative and qualitative foresight

Sweden stands out among OECD countries for its robust SAA system, jointly led by Statistics Sweden and the Swedish Public Employment Service. Drawing on an integrated mix of qualitative and quantitative approaches – ranging from employer surveys to forecasting models – the two bodies analyse present and future skill needs across national, regional and sectoral levels, triangulating multiple data sources to improve reliability and policy relevance. These results are further strengthened by structured dialogue with social partners, with trade‑union and employer representatives helping validate survey scenarios, ensuring that forecasts reflect workplace realities and sector-specific demands. The resulting intelligence feeds directly into education and employment strategies: it guides the annual planning of vocational education, shapes adult-learning initiatives and informs labour-market integration measures, including targeted support for migrants (OECD, 2016[83]).

European Union: Harmonised cross-country projections

Cedefop’s Skills Forecast provides EU-wide, internationally comparable employment projections by sector, occupation and qualification up to 2035. Using a single methodological framework and validated by national experts, the forecast complements – rather than replaces – more detailed national exercises. Its forward-looking evidence on the skills implications of the green and digital transitions offers a ready-made reference for countries and providers seeking to prioritise micro-credential development in areas of EU-wide labour-market demand (Cedefop, 2025[84]).

3.1.2. Employer engagement in micro-credentials

Employer engagement in micro-credentials refers to structured collaboration between education providers, industry, and sector bodies to ensure that the skills taught reflect actual labour market needs (Matthias Bauer, Elena Sisto and Renata Zilli, 2024[85]). This can take the form of advisory boards, co-design processes, or regular consultations.

Employer engagement is a recognised quality requirement across adult education and training, but it is particularly critical for micro-credentials given their short format and labour-market focus (Cedefop, 2023[86]). When employers are actively involved in design and delivery, micro-credentials are more likely to target in-demand skills, remain affordable (Matthias Bauer, Elena Sisto and Renata Zilli, 2024[85]), and attract new learner groups (Cedefop, 2023[86]).

Partnering directly with industry ensures micro-credentials target the skills that employers actually need – benefiting both learners and businesses, no matter their current place in the labour market (Cedefop, 2023[86]). Employer co-design can help micro-credentials to remain relevant, agile, and practical. This helps fill immediate skills gaps, improve employability, and support lifelong learning for people across different sectors (OECD, 2023[7]). Critically, it also builds employer trust in the quality and usefulness of micro-credentials (Cirlan, 2023[12]).

There are two main ways in which employers can engage in labour market-oriented training:

1. Providing feedback through surveys and consultations: employers can provide valuable insights into the skills and competencies required in the workforce by participating in surveys and consultations. This feedback enables public institutions and education providers to design micro-credentials that address specific industry needs, ensuring training is both relevant and up to date. Employer surveys help identify not only current skill gaps and workforce needs, but also anticipate future requirements by gathering data on occupational structures, recruitment challenges, and training practices – thus informing the direction of upskilling and reskilling programmes. When conducted regularly and using robust methodologies, these surveys offer critical input for the design of curricula in vocational and higher education, continuing (adult) training, and active labour market programmes. To be effective, employer surveys should be tailored to specific contexts – such as sector, region, or firm size – and developed in collaboration with employer representatives to ensure clarity, relevance, and high response rates (European Training Foundation, 2017[87]).

2. Participating in programme design and content development: the most active form of employer engagement. The purpose of employer engagement in training design is twofold. The main objective is to encourage dialogue that will identify the gap between which skills are needed in the labour market and which skills are taught through training programmes. Identifying this gap allows training providers to update curricula and implement new technologies and working methods in the training courses. The second objective is to encourage employer buy-in. If employers and industry representatives are involved in the design and implementation of training courses, they are more likely to recognise and reward workers who train.

Such partnerships can lead to the creation of programmes that not only provide learners with theoretical knowledge but also develop the practical skills necessary for immediate application in the workplace, warranting value in the labour market (OECD, 2023[7]) and recognition by the employers themselves (OECD, 2023[88]).

Estonia

In Estonia, employer engagement is integrated into the governance and design of education programmes. HAKA, Estonia’s quality assurance agency, includes employer representatives from the Estonian Chamber of Commerce and Industry and the Estonian Employers’ Confederation on its Supervisory Board (Estonian Quality Agency for Education (HAKA), 2023[89]). Employer feedback is also considered in the accreditation and development of continuing education programmes (Tuma, Señal and Bakonyi, 2023[90]). Estonia’s national framework for micro-credentials, currently under development and expected to be published in 2026, is likely to require higher education institutions to involve employers and industry representatives in the design of micro-credential curricula.

Some micro-credential partnerships go even further. A handful of initiatives have negotiated arrangements under which industry partners guarantee that applicants who have completed the partner micro-credential may bypass the first stage of their recruitment process. This fast-tracking mechanism both strengthens the labour-market signal of the credential and provides a powerful incentive for learner participation (OECD, 2023[88]).

A standout example is the Green Skills Programme, launched as part of the Recovery and Resilience Facility. This programme brings together universities, VET providers, and employer associations in sector-based consortia. These groups identify green skills needs, update curricula, and develop new modules – delivered via both formal training and micro-credentials (The Education and Youth Board (Estonia), 2024[91]). A steering committee – including ministries, trade unions, and employers – ensures alignment with labour market needs. This model shows how employer involvement strengthens curriculum relevance and ensures training meets real-time demand (The Education and Youth Board (Estonia), 2024[91]).

Ireland

In Ireland, employer engagement is central to Further Education and Training (FET), development and delivery of micro-qualifications. The development of these micro-qualifications involves joint working groups with ETBs, industry, sector bodies, and employers working to co-design micro-qualifications, which are then presented to Quality and Qualifications Ireland (QQI) for validation. The development of micro-qualifications is a centrally guided process which ensures that industry partners are involved in the co-design of micro-qualifications. In order to design a micro-qualification or a set of micro-qualifications, a working group is convened, which must include at least three ETBs, as well as enterprise organisations and industry bodies, sector partners (e.g. protection agencies for micro-qualifications on sustainability and the green transition). In some cases, such as for micro-qualifications for AI and digital skills, the working group can include prominent employers in the relevant sector. The strategy behind convening such wide working groups assures the quality and relevance of micro-qualifications and ensure micro-qualification certificates are recognised and valued by both learners and employers. In addition, dedicated Skills to Advance teams act as brokers between employers and ETBs. This model seeks to professionalises collaboration with employers and ensures a direct feedback loop for industry skills needs and the relevance of micro-qualification training for employees. The result is a responsive, demand-led system that delivers targeted upskilling and deepens employer relationships across the FET landscape.

Finland

Employers in Finland participate in national forecasting efforts that shape adult learning in the country. Together with employees, they played a central role in the Skills Anticipation Forum until its mandate ended in 2024, and now supply data and expert insights for the Labour Force Barometer. Besides that, both sides of the industry sit on the JOTPA Council, which sets annual funding priorities on the basis of foresight evidence (Ministry of Justice of Finland, n.d.[92]). At the moment, training providers are not required to engage employers in micro-credential design, however, interesting examples are emerging (Box 3.6).

Box 3.6. Employers’ engagement ensures labour market relevance in Finland

Chips for Game Skills

The Chips for Game Skills project (2017‑2020) aimed to define the future skills needs of Finland’s game industry by bridging gaps between education and the realities of working life. It brought together higher education institutions, vocational education providers, companies, and industry NGOs to tackle the competence gaps junior professionals often face in entering the sector.

At the core of the project was direct employer input. Industry partners highlighted the importance of skills beyond technical know-how – such as understanding how recruitment works, knowing how to navigate companies, recognising and articulating one’s own achievements, and communicating effectively. This focus helped ensure the project stayed grounded in what employers actually expect from new entrants.

One of the project’s key innovations was the creation of a digital badge system. These badges were awarded once learners showed they had acquired the relevant skills through work-based tasks and clear assessment criteria. They covered both job-specific and transferable skills, allowing learners to collect evidence of competence across multiple sources and experiences.

This modular and flexible approach gave learners the ability to personalise their learning paths, responding to the evolving demands of the games industry. It also showed how employer-led initiatives can reshape education. By working closely with industry, the project built a model where “micro-credentials” – in the form of digital badges – became part of a broader, work-integrated learning framework.

Source: Brauer (2023[93]), Case study Finland: Microcredentials for labour market education and training. First look at mapping microcredentials in European labour-market-related education, training and learning: take‑up, characteristics and functions, https://www.cedefop.europa.eu/files/finland_microcredentials_mapping.pdf.

Australia

Employer engagement is central to Australia’s strategy for adult learning and micro-credentials. It underpins national policy frameworks, funding decisions, and programme design at both federal and state levels. The National Microcredentials Framework was shaped through consultations with over 120 individuals from around 70 organisations, including representatives from higher education, vocational education, industry, peak bodies, and government. Led by the Microcredentials Working Group, which brings together experts from across sectors, the framework sets out key principles to ensure micro-credentials are industry-relevant and learner-focussed. These principles include clear industry support; alignment with recognised occupational frameworks, and; a strong focus on addressing specific skills gaps and broader sectoral needs, the framework provides a structured foundation for the consistent design, delivery and recognition of micro-credentials across the country.

One of the core requirements is that, where applicable, micro-credentials must clearly state their industry recognition – whether this involves alignment with professional standards, industry certification, or recognition by a professional body (Section 5.5.1 of the National Microcredentials Framework). In addition, micro-credentials listed on the national MicroCred Seeker must include information on industry involvement, such as co-branding partnerships, endorsements, or development by an industry provider (Section 4, Figure 1 of the National Microcredentials Framework). The framework also recommends indicating the industry and occupational pathways a micro-credential relates to, as well as its alignment with relevant industry competency frameworks (e.g. the Skills Framework for the Information Age) and statements of support from employers or sector bodies (Section 4, Figure 2 of the National Microcredentials Framework). This emphasis ensures that credentials are not only pedagogically sound, but also meaningful in the labour market (Australian Government - Department of Education, Skills and Employment, 2021[30]).

Building on this foundation, the Australian Government has invested over AUD 18.5 million into a higher education micro-credential pilot. This initiative targets skills shortages identified by employers and supports the development and delivery of micro-credentials in national priority areas – such as teaching, nursing, IT, engineering and science. A core aim is to strengthen collaboration between universities and industry by funding short, targeted learning opportunities directly shaped by labour market demand (Australian Government, 2022[94]).

At the state level, employer-driven models are also embedded into policy. In Queensland, the state government has launched a dedicated micro-credential programme under the Good people, Good jobs: Queensland Workforce Strategy 2022‑2032 (Queensland Department of Trade, Employment and Training, 2024[95]), expanded through Good Jobs, Great Training: Queensland Skills Strategy 2024‑2028 (Queensland Department of Trade, Employment and Training, 2024[96]). This programme prioritises co-design with employers to ensure every micro-credential is directly tied to labour market needs. Employer involvement is formally required through letters of support confirming industry demand and co-contribution funding, reinforcing shared responsibility for workforce development.

Employers also shape course content and structure, ensuring micro-credentials are immediately usable and recognised within their sectors. Their role extends into implementation, including supporting employee participation, providing feedback on outcomes, and offering on-the‑job training support. By embedding employers in both the design and delivery phases, the Queensland model ensures that micro-credentials are not only responsive to current skills shortages but also practical, modular, and sector specific. This approach strengthens the credibility of micro-credentials while helping businesses upskill and retain talent in a fast-changing economy (Queensland Department of Trade, Employment and Training, 2025[97]).

Box 3.7. Employer engagement as the gold standard in short-form adult learning

Italy

In Italy, tourism employers are developing training systems through national and European partnerships. Federturismo, which represents tourism businesses in the Confindustria system (OECD, 2024[57]), leads national and EU-level talent strategies, including the Erasmus+ funded PANTOUR (Pact for Next Tourism Generation Skills) initiative, to develop sector-wide skills intelligence, map upskilling and reskilling supports, and analyse digitalisation and employment trends in tourism (OECD, 2024[57]). In co‑operation with UnionCamere, Federturismo launched the first Italian tourism skills forum to explore employers’ needs in digital, green, and social skills. Through this forum, stakeholders design and refine training programmes, connect with European funds, and align with emerging policies such as the EU’s Pact for Skills (OECD, 2024[57]; NTG Skills Alliance, 2019[98]). Federturismo Confindustria also supports employers by collaborating with policymakers to shape tourism laws and funding, and by facilitating professional development courses that respond to rapidly evolving skill requirements (NTG Skills Alliance, 2019[98]; PANTOUR, 2023[99]).

France

In France, sector-specific networks help employers co-design training. In the cosmetics and perfume sector, training is co‑ordinated by Cosmetic Valley, a non-profit organisation that links research institutions, higher education institutions, training providers, and businesses (OECD, 2024[57]). Cosmetic Valley consults its member companies through site visits, workshops, and enquiries to develop brief, practitioner-led training modules (OECD, 2024[57]). Since 2005, it has launched joint initiatives between businesses and public research bodies, and encouraged the design of training programmes that meet the needs of cosmetics manufacturers (Ministère de l'Économie, des Finances et de la Souveraineté industrielle et numérique: Direction générale des Entreprises, 2024[100]).

United Kingdom

In the United Kingdom, public funding helped launch a digital training model co-led by employers. The Institute of Coding (IoC) is a consortium of higher education institutions, employers, industry groups, and charities in England, which was established in 2018 with GBP 20 million in public funding (OECD, 2024[57]). Employers participate in collaborative course design, provide input on curricula through advisory boards, and form partnerships with educators to align programmes with industry needs (Institute of Coding, 2021[101]). This process includes working with small and medium-sized enterprises (SMEs) to create training that supports staff development (Institute of Coding, 2021[101]). Many IoC offerings also include employment support, connecting learners to job opportunities (OECD, 2024[57]). Since its launch, the IoC has shifted to more private funding and enrolled over 900 000 learners in courses co-created with businesses, which helps address the digital skills gap and improve employability (OECD, 2024[57]).

Canada

In Canada, flexible training platforms are linking SMEs with short courses. Employer engagement in training is supported by eCampusOntario, a non-profit funded by Ontario’s Ministry of Colleges and Universities (OECD, 2024[57]). Its Microcredentials Portal connects both employers and employees with short, flexible courses linked to specific industry needs, thereby bridging the supply and demand of upskilling and reskilling (eCampusOntario, 2025[102]). Recognising that over 90% of Ontario’s businesses are SMEs, eCampusOntario also created the Ontario Collaborative Innovation Platform (OCIP), an AI-based system that links organisations with academic experts, identifies government funding, and recommends relevant micro-credentials (OECD, 2024[57]; eCampusOntario, 2024[103]). With funding from the Future Skills Centre (FSC), a R&D centre funded by the Government of Canada, eCampusOntario enhanced its Microcredentials Portal by tagging courses according to the skills they develop and mapping them to relevant occupations. As a result, users can now search by job title and receive tailored training recommendations alongside labour market information related to their chosen occupation (McDonough, 2025[104]). Beyond Ontario, FSC, advances similar partnerships across Canada, supporting innovative workforce development solutions through collaboration with employers, training providers, unions, and government (Government of Canada, 2023[105]). FSC tests the use of micro-credentials as flexible, short-duration, industry-relevant training that can support upskilling and reskilling in response to evolving labour market needs. Through these partnerships, FSC generates evidence on how these innovative solutions can address labour shortages, support workforce development, create pathways to employment and career advancement, and improve access to training for underrepresented groups and Indigenous Peoples (McDonough, Williams and Cayabyab, 2025[106]).

European Union

Across the European Union, employers contribute directly to curriculum development and applied learning. Employers engage in upskilling and reskilling by partnering with higher education institutions under the European Institute of Innovation and Technology (EIT). These partnerships include direct enterprise input into curriculum design, teaching activities, and the joint supervision of Master’s and Ph.D. projects, ensuring that new knowledge and skills remain closely tied to workplace needs (EIT, n.d.[107]). Through its Knowledge and Innovation Communities, such as the Digital Academy and EIT Food, the EIT connects businesses, universities, and research centres to align training with emerging industry requirements and supports Europe’s broader objectives for digital and green transitions (OECD, 2024[57]; EIT, 2022[108]).

3.2. Engaging learners in micro-credentials

The value of micro-credentials lies not only in their flexibility and relevance to labour market needs, but also in their potential to widen access to learning. However, realising this potential requires deliberate actions to ensure that micro-credentials are inclusive by design and implementation, and that support measures for adult learners, such as career guidance and financial support, are also applied in the context of micro-credentials. Without targeted policies and support structures there is a risk that micro-credentials may reinforce existing inequalities and benefit those who are already well-positioned to engage in lifelong learning while failing to engage those further removed from upskilling and reskilling. In fact, early-stage data from the pilot project on micro-credentials in higher education in Australia shows that this training form is most popular among well-educated and high-earning women (Australian Department of Education, 2025[109]).

According to data from the OECD Survey of Adult Skills, time barriers due to family or work responsibilities and cost are the highest barriers to participation in adult education and training (OECD, 2023[4]). Micro-credentials are by design shorter and more flexible courses and are often delivered online, which can help address time constraints. Some micro-credential courses provide learners with the option to learn at their own pace, or at least at a location and time that suits them, making them useful for under-represented groups with significant time constraints (OECD, 2023[4]). However, short courses are in and of themselves not enough to ensure the success of micro-credential systems. Policy efforts to address information gaps, financial barriers and motivational issues are necessary to support both the uptake of micro-credentials and adult learning more generally.

3.2.1. Developing information portals for learners and providers

In the age of digital information online portals have become the go-to place for information on education and training. However, due to the low levels of harmonisation of micro-credentials, information on these training courses can be harder to find than for traditional degree programmes. The Australian Government opted to create a portal dedicated exclusively to micro-credentials. The Microcredentials Marketplace (“MicroCred Seeker”) operational as a pilot in 2021‑2026 was a national website that contained information on micro-credentials available across a range of training providers. The website contained information on course level (from beginner to expert), delivery mode (online, on-campus and hybrid) and duration for each course, giving learners a range of choices. The platform also indicated whether a course offers credit points and whether it is stackable, as some micro-credentials can be combined with other courses offered by the same or a different provider, facilitating personalised learning pathways. Other details listed included course fees (and any discounts available), language of instruction, start and end dates, and course details such as syllabus and assessment structure (Australian Government - Department of Education, 2023[31]). The platform was intended to feature all micro-credentials from the higher education and VET sector, giving learners the information and freedom to not only chose which micro-credentials to follow but also which level of education best corresponds with their individualised career and training pathways.

Centralised information portals across education and training sectors might help lower the mental barriers to participation, as potential learners with lower confidence can receive information about training opportunities from the VET sector and adult education institutions. However, in the Australian example, strict reporting requirements to be featured on the website mean many providers reported not being able to advertise their micro-credential on the website despite offering micro-credentials in line with the requirements of the pilots. Although strict reporting requirements are necessary to ensure learners have information of high enough quality on which to base their decisions, policymakers should take care to balance standards and requirements towards providers with institutional capacity and policy support to ensure such portals do not become barriers to information themselves.

In Ireland, despite the similarity in name, the MicroCreds platform only covers micro-credential offering in partner universities in the higher education sector. Like in Australia, the Irish MicroCreds platform contains information on delivery mode (online, on-campus, hybrid or blended), course duration, level (according to the National Qualification Framework), provider and whether or not the course is eligible for a fee subsidy (Irish Universities Association, 2025[110]). The micro-qualifications in the FET sector, on the other hand, are listed both on SOLAS’ website under micro-qualifications and on the online platform Further Education and Training Course Hub (fetch courses) together with all other training offered in the FET sector (Government of Ireland, 2025[111]).

The advantage of listing micro-credentials together with all other training courses in the sector is that learners can have a full overview of all the types of training courses that are available in their desired field (e.g. sustainability) and are able to see a catalogue of courses that tackle different learner needs (e.g. timing, length, delivery mode, training methods). This enables them to choose based on their ability, motivation and need, without having to compromise on their desired upskilling topic. However, one drawback of having a central database that includes micro-qualifications, other short-form training and full qualification programmes is that it requires the learner to understand the differences between these types of courses and what are the benefits and drawbacks of each one. For example, as an individual is scrolling the site, there is no indication in the database that a course is a micro-qualification, as it is just listed with the title and technical information about the training. The learner has to interpret the information of duration to identify the course as a micro-qualification. This can have a negative effect on awareness building around micro-qualifications as these courses are hard to distinguish from other types of courses.

Finland has developed several interconnected digital initiatives to support continuous learning, skills development and career transitions. The Digitalisation Programme for Continuous Learning (JOD) has supported the development of a national digital service ecosystem intended to bring together information and services related to individuals’ skills, education and employment, and to facilitate the use of data across continuous-learning services. Within this wider ecosystem, Digivisio 2030 has developed Opin.fi as a national platform bringing together open courses offered by Finnish universities and universities of applied sciences, allowing learners to search and combine modular learning opportunities across institutions. The platform’s design explicitly supports modular learning, including small competence modules and micro-credentials, which can be combined into broader learning pathways (Eurydice, 2026[112]; Digivisio, n.d.[113]). The Competency Path (Osaamispolku), launched in early 2026, complements these services by providing an individual-facing digital service for education and career planning (Ministry of Education and Culture, 2026[114]). Users can map their skills, interests and experience, explore education and employment opportunities, and, when logged in, maintain a personal competence profile; the service also uses AI to support the identification of skills and generate tailored suggestions for education and work opportunities. Its information service brings together statistics, forecasts and other information on skills, education and labour-market developments, while linking with Studyinfo, Job Market Finland and Opin.fi as part of a broader service package supporting learning, career planning and job search.

Box 3.8. Micro-credential registers promote awareness

Canada: Micro-credentials portal

In Canada, some provincial governments have opted to commit to centralising information on micro-credentials. In the province of Ontario, Canada, the eCampusOntario (a nonprofit organisation that aims to strengthen Ontario’s post-secondary education system) received funding from the provincial government to establish a portal on all micro-credentials offered by universities, colleges and technical institutions in Ontario. With support from the Future Skills Centre, the initiative was further enhanced by linking labour market information with the micro-credential programmes (McDonough, 2025[104]). This project has also inspired the province of British Columbia to begin developing a similar initiative. Similar to other countries, in Ontario, micro-credentials must meet specific criteria to be listed on the portal. For instance, all those accessible via the portal are less than 12 weeks in training duration. The portal focusses on industries currently experiencing large labour shortages, such as technology, healthcare and manufacturing.

The Government of Canada’s Job Bank is modernizing its tools and has recently introduced new ones, such as the National Training Finder, which is now in place to connect Canadians with short-term upskilling and reskilling opportunities. Jobseekers and employers now have access to almost 5 000 short-duration training courses, including over 200 AI-related courses from 25 post-secondary institutions and private sector organisations.

Poland: Odznaka+

In Poland, the Educational Research Institute (IBE) is implementing the Odznaka+ (Badge+) project – currently in pilot phase – which will create a public register of micro-credentials and digital badges. The IBE ensures the quality of credentials and badges by verifying providers on the registry. The inclusion of micro-credentials on the register will be based on meeting certain requirements, although this process will remain much easier than integrating micro-credentials into Poland’s NQF. The Badge+ application also provides users with additional value beyond being a public registry by allowing them to create and share their digital portfolio of credentials and badges.

Portugal: Oferta Formativa

Portugal has developed a national digital platform, Oferta Formativa, that enables users to search and explore education and training opportunities available across the Portuguese education and training system. The platform allows users to search for qualifications, micro-credentials and other learning opportunities and provides a personalised search function to help users identify relevant offers. By bringing information on provision together in a single platform, Oferta Formativa can make micro-credentials and other flexible learning opportunities more visible and easier for learners to compare and access.

The United States: Credential Engine

Credential Engine is a non-profit organisation based in the United States working to create a clear and consistent informational map of the credential landscape, to help learners find educational pathways. It collects and collates data on credentials from partner training providers into a cloud-based, freely available Credential Registry. The registry uses a common language, the Credential Transparency Description Language, which was developed to provide a common language to describe all programmes in their database and thereby make it easier for learners, businesses and researchers to discover and understand various credentials within a common and consistent schema. Furthermore, Credential Engine also operates a Credential Finder platform to help learners discover credentials available to them. Users can filter by credential type, geography, or focus area, and are provided with information on the provider, accreditation, time and financial costs, audience level, and delivery method of any given credential in the registry. This platform combined with Credential Engine’s common schema supports learner access to information, expanding understanding.

Further information on the Micro-credentials Portal (Ontario, Canada) is available here: https://microlearnontario.ca/ and here: https://fsc-ccf.ca/projects/ecampusontario/.

Further information on Odznaka+ is available here: https://odznakaplus.ibe.edu.pl/.

Further information on Oferta Formativa is available here: https://www.ofertaformativa.gov.pt/#/home.

Further information on Credential Engine is available here: https://credentialengine.org/.

3.2.2. Raising awareness: Guidance and outreach

Alongside platforms and websites, policymakers and providers can extend their outreach efforts to target groups by, for example, creating targeted media campaigns to broaden take‑up of micro-credentials. During the launch of the MicroCreds platform, the Irish Universities Association launched a nationwide information campaign which included advertisement tools such as ads at commuter points (displays on buses and train stations). This was accompanied by an editorial campaign with several articles on the initiative in national newspapers (Irish Universities Association, 2023[115]).

Even though information and marketing campaigns are key to raise awareness of micro-credentials and adult learning, this might not be sufficient to engage harder to reach groups which might be in need of upskilling and reskilling. More than three in four adults with low skills across the OECD do not participate in job-related education and training (OECD, 2019[116]). Yet, low-skilled jobs remain at greatest risk of automation (Lassébie and Quintini, 2022[117]). Having regional training offices that focus on maintaining connections with the local labour market can be crucial for upskilling and reskilling initiatives.

The implementation of micro-qualifications in the FET sector in Ireland has taken advantage of existing outreach initiatives by SOLAS (Ireland’s FET funding agency) and the education and training boards (ETBs, adult learning providers). Through the Skills to Advance programme, the ETBs have built strong connections and collaboration with local enterprises, and the ETBs carry out outreach activities to inform enterprises and their employees of the need and value of training, including micro-qualifications. Currently, ETBs can offer micro-qualifications and other training to enterprises specific to their upskilling needs and with flexible schedules tailored to the employees’ time constraints.

The Skills to Advance Innovation through Collaboration Fund supports ETBs in implementing the Skills to Advance initiative, which includes activities to support employees (particularly those in low-skilled jobs or in sectors vulnerable to displacement, and in emerging sectors), SMEs who need assistance in investing and developing their workforce, or industry sectors with skills needs arising from emerging opportunities or economic vulnerability (SOLAS, 2021[118]). This allows ETBs to maintain a client relationship management system and track engagement with enterprises. According to stakeholder interviews, around one‑third of adults that participate in training through the Skills to Advance initiative present through the enterprise outreach initiatives. Further, the ETBs offer a range of support services to adult learners to encourage the uptake of lifelong learning including micro-qualifications and other training courses. These support services include career guidance, literacy and numeracy support, ICT device schemes, language support, grant application support, learner forums, disability support, and RPL mentoring (Education and Training Boards Ireland, n.d.[119]).

3.2.3. Financial incentives: Loans, vouchers and individual learning accounts

Barriers faced by under-represented groups in training are complex, and financial constraints go beyond just the cost of training. For low-income and low-skilled adults, the costs associated with training are not just the course fee, but also aspects such as the cost of travelling to and from training centres, the cost of forgoing paid work in favour of studying, and the cost of arranging childcare. Micro-credentials can, by design, help address some of these barriers. As micro-credentials can more easily be delivered online and with a flexible time schedule, there is a reduction in cost of commuting and the adult can take the training outside of working hours. Yet, costs associated with micro-credentials can become a financial barrier for learners.

Often considered a non-traditional course type, for many public institutions micro-credentials fall outside the scope of free, publicly funded courses they have to offer, and thus decision arise on whether to make micro-credential courses free of charge. For example, in Finland, the courses offered through the pilot on micro-credentials in higher education were free. This is because the costs are covered by the project funding by the JOTPA. However, for the future viability of micro-credentials, the national framework for micro-credentials in higher education stipulates that the providers should be able to charge a fee for the courses in the future, under the assumption that they are valued products of competence development that people are willing to pay for (Ministry of Education and Culture, 2023[16]). For countries like Finland with a tradition of free or low-cost education, introducing fee‑based micro-credentials comes with the risk of these being less appealing, especially if their labour-market recognition is not yet established. Furthermore, in Finland, certain employer-specific training needs are already met through partially publicly funded channels, such as jointly acquired training available at regional public employment offices (OECD, 2023[15]).

In the early stages of the pilot in Estonia, providers were free to charge tuition for micro-credentials. However, seeing that micro-credentials have to be accessible if they are to address the skills needs of the labour market rapidly, in 2026 the Ministry of Education and research extended existing financial schemes to enable fee‑free training for micro-credentials as well. As of June 2026, there are eight VET institutions and six higher education institutions in Estonia offering free micro-credentials. In Ida‑Viru County, six additional micro‑credential programmes tailored to regional needs will be launched with the support of the Just Transition Fund, alongside expanded opportunities to acquire green and digital skills (Eurydice, 2026[29]).

One way to provide financial support to learners is the inclusion of micro-credentials into existing loan systems. In Australia, students who are enrolled with an approved higher education provider may be eligible for Higher Education Loan Program (HELP) to assist paying for the cost of study. HELP is an income‑contingent loan paid scheme administered by the Australian Government to assist students in covering course feed. Repayments are made through the Australian tax system with the rate of repayments determined by the borrower’s annual income (Australian Government - Department of Education, 2024[120]). The micro-credential pilot in higher education is the first non-traditional course type that has been eligible for HELP, and this was authorised through legislative and regulatory changes.

Preliminary evidence from the pilot reveals interesting information about the use of HELP and cost as a barrier to training (Australian Department of Education, 2025[109]). For instance, 42% of students in the pilot self-reported that their course was being offered free of charge by the provider. Of the courses that are charging fees for enrolment, 71% of students report that their employers are paying for their micro-credential course. This indicates that Australian employers value the skills and knowledge gained through micro-credentials enough to cover the cost of the employee’s training, a positive development given that the country does not have statutory paid training leave (OECD, 2019[121]) and that employers are likely covering the costs on a voluntary basis. 13% of students are using HELP to pay student fees. Of those using HELP, 93% self-reported that access to help was either “completely” of “significantly” important to their ability to access the micro-credential course. This shows that such financial assistance is vital for the socio-demographic groups that are targeted by the scheme, even if 93% of students are already employed and 90% have a higher education degree. Only 16% of students are personally funding their micro-credential studies (Australian Department of Education, 2025[109]).

Box 3.9. Financial incentives

Inclusion of micro-credentials into existing loan schemes

In the United Kingdom (England) the planned “Lifelong Loan Entitlement (LLE)”, which will launch in January 2027, will allow learners to use their loan entitlement to the equivalent of four years of post‑18‑year‑old education at their own pace over their lifetime. The LLE loan will be available for both full courses (at UK qualification Level 4 to 6) and modules of high-value technical courses (at Level 4 to 5). Under the LLE, eligible learners will be able to access a tuition fee loan (GBP 38 140 – equal to 4 years of study based on academic year 2025 to 2026 fee rates) and an additional maintenance loan to cover living costs, for courses with in-person attendance. Extra financial help will also be available for learners with disabilities and for support with childcare. The aim of this initiative is to permit more flexible learning, particularly for adult learners with work, family and personal responsibilities, to train, retrain and upskill and make a significant contribution to the economy over a longer period of time. LLE tuition loans will be available for people up to the age of 60, however, learners over 60 ay still qualify for maintenance support but not a tuition fee loan.

Inclusion of micro-credentials in individual learning schemes

In Singapore, for instance, all citizens aged 25 and above have been entitled to receive a credit of SGD 500 in their account on the government lifelong learning portal called “MySkillsFuture” since 2015. The credit can be used to participate in government-approved training programmes, many of which are often heavily subsidised by the government (maximum 90% of course fees) and therefore offer affordable prices. The courses on offer are typically short courses/micro-credentials in the SkillsFuture series. This initiative is supported by the government’s Lifelong Learning Endowment Fund, which was created in 2001 for the purpose of pooling funding for continuing education and training.

France supports participation in short courses – which meet some of the criteria for micro-credentials – through its Personal Training Account (Compte Personnel de Formation, CPF). Introduced in 2015, The CPF is one of the earliest individual learning accounts in Europe and aims to reduce inequalities in access to training, increase personal autonomy and improve skills. The CPF is funded by compulsory contributions from enterprises and flat-rate contributions from the self-employed. Workers can accumulate up to EUR 5 000 in their account to be used for a selected list of quality-assured learning opportunities.

Inclusion of micro-credentials in voucher schemes

In Croatia, a voucher scheme was launched in 2022 with EUR 60 million allocated for green and digital skills development, targeting 40 000 users by 2026, including 12 000 from disadvantaged groups. Since June 2023, up to EUR 100 million from ESF+ funding has been made available to support an additional 75 000 target users by 2030, covering in-demand skills beyond green and digital competences. Vouchers for lifelong learning are awarded primarily for micro-credentials and partial qualifications aligned with Croatian qualification framework standards and skills mappings. Programme completion is verified through final assessments and course attendance, monitored by the public employment service. Learners who fail to complete their programmes are required to reimburse the voucher cost, along with any additional financial support received. Despite support mechanisms (career guidance, financial aid for the unemployed – including allowances and transportation costs), participation by disadvantaged groups in voucher-based short-form learning remains low. While most voucher users (75%) are employed, only 7% of approved requests came from NEETs, 2% from inactive individuals, and 2% from the long-term unemployed.

Source: OECD (2023[7]), “Public policies for effective micro-credential learning”, https://doi.org/10.1787/a41f148b-en; UK Department of Education (2025[122]), Lifelong Learning Entitlement overview, https://www.gov.uk/government/publications/lifelong-learning-entitlement-lle-overview/lifelong-learning-entitlement-overview#next-steps; Perez & Vourc’h (2020[123]), Individualising training access schemes: France – the Compte Personnel de Formation (Personal Training Account – CPF), https://doi.org/10.1787/301041f1-en; ReferNet Croatia & Cedefop (2025[124]), Croatia: vouchers for adults boost interest in lifelong learning, https://www.cedefop.europa.eu/en/news/croatia-vouchers-adults-boost-interest-lifelong-learning.

Note

← 1.  The Delphi method is a survey-based research approach that gathers information from experts in a specific field. Its primary purpose is to resolve differing opinions or contentious issues by working towards a collective consensus about practical knowledge on a particular subject. Essentially, this technique involves administering multiple rounds of questionnaires aimed at converging a shared viewpoint on the topic at hand (Chuenjitwongsa, 2017[125]).