The role of subnational governments in adult skills systems: Costa Rica

This country note provides an overview of the governance of the adult skills system in Costa Rica. It is part of an extensive review of all 38 OECD countries. The main findings across all countries are summarised in the OECD policy paper The Role of Subnational Governments in Adult Skills Systems.

Table 1. Overall governance and expenditure structure

Governance structure	Levels of governance	% of general government expenditure at sub-national level
Unitary	National: State Regional: Provincias (7) Local: Cantones (84)	3.9%
How is the adult skills system governed?
Centralised ✓	Combined system	Decentralised

Note : For more information on the definitions of the governance models, please see (OECD, 2025[1])

Source: (OECD/UCLG, 2022[2])

How is the adult skills system governed?

Costa Rica has a combined adult skills system, where national ministries and public institutions play the primary role in setting strategies, managing funding, monitoring labour market trends, and implementing and delivering skills policies.

• The Ministry of Public Education (Ministerio de Educación Pública) oversees the Vocational Education and Training (VET) and Higher VET (HVET) system while the National Learning Institute (Instituto Nacional de Aprendizaje) is the primary provider of VET and HVET.

• The Ministry of Labour and Social Security (Ministerio de Trabajo y Seguridad Social) develops adult education (AE) and Continued Education and Training (CET) policies to up- and reskill the workforce. Municipal Training Offices (Oficinas Municipales de Empleo y Capacitación) and local National Learning Institute centres (Instituto Nacional de Aprendizaje) deliver CET programs customised to community and labour market needs. Regional Councils of Development (Consejos Regionales de Desarrollo) also provide intelligence on regional economic and workforce trends, helping to adapt CET offerings to local demands.

• The Ministry of Labour and Social Security, through the National Employment Directorate (Dirección Nacional de Empleo) and the National Employment Agency (Agencia Nacional de Empleo), develops and coordinates Active Labour Market Policies (ALMPs), including job placement services, career counselling, and training referrals. Local branches of the Joint Institute for Social Aid (Instituto Mixto de Ayuda Social) play a significant role in implementing ALMPs targeted at vulnerable populations.

Table 2. Allocation of responsibilities across policy areas and levels of government

		Strategy	Intelligence	Implementation	Funding	Delivery
Policy area	National level
	VET, HVET	✓	✓	✓	✓	✓
	CET	✓	✓	✓	✓	✓
	AE	✓	✓	✓	✓	✓
	ALMP	✓	✓	✓	✓	✓
	Regional level
	VET, HVET	-	-	-	-	-
	CET	-	-	-	-	-
	AE	-	-	-	-	-
	ALMP	-	-	-	-	-
	Local level
	VET, HVET	-	-	-	-	-
	CET	-	-	-	-	-
	AE	-	-	-	-	-
	ALMP	-	-	✓	✓	✓

Legend: ✓ = Yes; - = No

Note: For more information on exact definitions of policy areas and responsibilities, please see (OECD, 2025[1])

Infographic 1. Overview of the adult skills system

Note: Colour code: Dark blue → government/national/subnational agencies, Green → social partners, Lighter blue → private actors and education providers, Yellow → Expert councils/foundations/associations/research institutions. For more information, please see (OECD, 2025[1])

Source: OECD compilation based on available information

Stakeholders and responsibilities at the national level

At the national level, Costa Rica’s adult skills system is divided among national ministries, specialised agencies, and supporting organisations:

• The Ministry of Public Education oversees the strategic framework and quality of education, covering VET, HVET and AE. It is responsible for setting curriculum standards, facilitating accessibility to education, and providing pathways for adults to complete basic education or acquire new skills. Through the Technical Education and Entrepreneurial Skills Directorate (Dirección de Educación Técnica y Capacidades Emprendedoras), it oversees technical high schools, while the National Council of Private Higher Education (Consejo Nacional de Enseñanza Superior Universitaria Privada) oversees private HVET centres (parauniversitarias).

• The Ministry of Labour and Social Security designs ALMP and CET policies. Through agencies like the National Employment Directorate and the National Employment Agency, the Ministry develops policies, coordinates programmes, and facilitates job placement services, training opportunities, and career counselling. These initiatives are further supported by intelligence provided by the Labour Market Observatory (Observatorio del Mercado Laboral), which monitors employment trends and skills needs.

• The National Learning Institute is the primary provider of VET, HVET, and CET in Costa Rica, offering free training programmes across a wide range of sectors to meet the demands of the labour market. The institute works closely with the Ministry of Labour to deliver workforce training and operates centres nationwide.

• The Joint Institute for Social Aid supports vulnerable populations by providing training and entrepreneurship programmes as part of broader social inclusion and economic self-sufficiency initiatives. It collaborates with the Ministry of Labour to execute ALMPs and CET targeted at low-income families.

• The National Accreditation Council for Higher Education overlooks the quality of higher education, including VET and HVET, by accrediting institutions and programmes. It also provides intelligence on the effectiveness and alignment of these programmes with national and international standards.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Public Education (Ministerio de Educación Pública)	✓	✓	-	✓	-	Ministry	VET HVET AE	The Ministry oversees the development and quality of the educational system, from basic education to VET, HVET and AE. Its responsibilities include setting curriculum standards and policies for technical high schools and VET centres, and providing pathways for adults to complete basic education or pursue skill development.
Ministry of Labour and Social Security (Ministerio de Trabajo y Seguridad Social)	✓	✓	-	✓	-	Ministry	CET ALMP	Ministry responsible for developing and overseeing ALMPs, with a particular emphasis on improving employment conditions for vulnerable groups. Through its subsidiaries and collaboration with other agencies, this Ministry provides services such as job matching, career counselling, and support for upskilling and reskilling, and uses labour market intelligence to inform policy development and strategy. Additionally, it provides funding and support for job training programmes targeted at improving employability and reducing unemployment.
Technical Education and Enterpreunership Directorate (Dirección de Educación Técnica y Capacidades Emprendedoras)	-	✓	✓	-	-	National Agency	VET	This Directorate works under the Ministry of Public Education to design and develop technical education policies and programmes at the secondary education level. It develops VET curricula, supports teacher training, and promotes entrepreneurial skills among students, preparing them for employment or further education in technical fields. Its focus also includes fostering innovation and creating pathways for students to transition smoothly into HVET or directly into the workforce.
Labour Market Observatory (Observatorio del Mercado Laboral)	-	✓	-	-	-	National Agency	ALMP	Observatory under the Ministry of Labour and Social Security, dedicated to collecting, analysing, and disseminating data on Costa Rica's labour market. The Observatory provides labour market intelligence by monitoring trends in employment, skills demand, and workforce characteristics, supporting the development of ALMPs and informing education and training programmes.
National Employment Directorate (Dirección Nacional de Empleo)	-	✓	✓	-	-	National Agency	CET ALMP	Branch of the Ministry of Labour and Social Security responsible designing, coordinating, and overseeing ALMP and employment programmes to address unemployment and enhance workforce mobility. It is responsible for initiatives that help improve employability, and the development of policies for managing internal and international labour migration While it does not implement programmes directly, the Directorate provides the framework and guidance for operational bodies like the National Employment Agency.
National Employment Agency (Agencia Nacional de Empleo)	-	✓	✓	✓	✓	National Agency	CET ALMP	The National Employment is an implementation body that operates through a network of local offices to deliver ALMP. It provides job placement services, career counselling, and access to training programmes, collaborating with institutions like the National Learning Institute and private training providers. It executes ALMPs developed by the National Employment Directorate, acting as the primary link between job seekers, employers, and training opportunities.
National Learning Institute (Instituto Nacional de Aprendizaje)	-	-	✓	✓	✓	Autonomous Institution	VET HVET CET	The National Learning Institute focuses on providing training that meet the needs of the national labour market. Funded through employer contributions, the Institute offers free VET and HVET programmes across a wide range of sectors, and provides CET for adults who wish to upskill or reskill. It works closely with the Ministry of Labour, and operates training centres across the country.
Joint Institute for Social Aid (Instituto Mixto de Ayuda Social)	-	-	✓	✓	-	Autonomous Institution	CET AE ALMP	Institution, created by the Law 4760, focused on social protection and economic inclusion for vulnerable populations. While the Institute is primarily involved in social assistance, it also supports skills development through training and entrepreneurship programmes aimed at low-income individuals and families. It collaborates with agencies like the National Employment Directorate to execute ALMPs and CET as part of its efforts to improve employability and economic self-sufficiency, and offers funding support for individuals enrolled in these programmes.
National Council of Private Higher Education (Consejo Nacional de Enseñanza Superior Universitaria Privada)	-	✓	✓	-	-	Expert Council	HVET	The National Council of Private Higher Education operates under the Ministry of Public Education and is the regulatory body responsible for overseeing the quality and compliance of private higher education institutions in Costa Rica, including institution for HVET (parauniversitarias). Created under the Law of Private Higher Education Institutions (Law 6693 of 1981), CONESUP safeguards that private universities and institutions adhere to national educational standards, offering programmes that meet the academic and professional needs of the country.
National Council of Rectors (CONARE)		✓	✓					The Council s the institution responsible for regulating and approving the creation of careers from public universities.
National Accreditation Council for Higher Education (Sistema Nacional de Acreditación de la Educación Superior)	-	✓	✓	-	-	Expert council	VET HVET	Expert council responsible for the quality assurance and accreditation of higher education programmes in Costa Rica, including VET and HVET. The Council establishes accreditation standards, evaluates educational institutions against these criteria, and provides intelligence on the quality and effectiveness of programmes.
Chamber of Industries of Costa Rica (Cámara de Industria de Costa Rica)	-	✓	-	-	-	Social Partner	VET HVET CET	Social partner representing the interests of Costa Rica’s industrial sector. The Chamber of Industries advises on policies to align training with industry needs and collaborates with institutions like the National Learning Institute to guide curriculum development. It gathers intelligence on industry-specific skill requirements, providing insights that help shape national training priorities and policies.

Legend: ✓ = Yes; - = No

Sources: (Ministerio de Educación Pública, 2024[3]); (Ministerio de Trabajo y Seguridad Social, 2024[4]); (Ministerio de Trabajo y Seguridad Social, 2024[5]); (Instituto Nacional de Aprendizaje, 2024[6]); (Ministerio de Trabajo y Seguridad Social, 2024[7]); (Ministerio de Trabajo y Seguridad Social, 2024[8]); (Agencia Nacional de Empleo, 2024[9]); (Instituto Mixto de Ayuda Social, 2024[10]); (CINDE, 2024[11]); (Cámara de Industrias de Costa Rica, 2024[12]); (SINAES, 2024[13]),

Stakeholders and responsibilities at the regional level

Costa Rica is divided into seven provinces (provincias) that serve an administrative role. In the adult skills system, these are primarily focused on providing intelligence and implementation support, while strategy and funding are mostly managed at the national level.

• Regional Education Directorates (Direcciones Regionales de Educación) are regional offices of the Ministry of Education that oversee the implementation of VET, HVET, and AE. These offices manage public schools and technical high schools and provide administrative support to educational institutions.

• The National Learning Institute operates nine regional training centres across Costa Rica’s provinces which adapt national training frameworks to meet specific regional needs.

• While not exclusively focused on skills, Regional Councils of Development provide intelligence on regional workforce and economic needs. They coordinate with the Ministry of National Planning and Economic Policy and act as advisory bodies, offering insights that inform workforce development and sector-specific training programmes.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Regional Education Directorates (Direcciones Regionales de Educación)	-	✓	✓	✓	✓	National Agency	VET HVET AE	The Ministry of Education maintains regional offices in each province to oversee the implementation of AE, VET and HVET. These offices are responsible for managing public schools and technical high schools, applying national education standards to the local level, providing administrative and operational support for educational institutions within each region.
National Learning Institute Units (Instituto Nacional de Aprendizaje)	-	-	-	-	✓	National agency	VET HVET	The National Learning Institute operates nine regional training centres across the seven provinces. These centres provide VET and CET programmes aligned with local labour market needs, focusing on skills in areas such as agriculture, tourism, and industrial trades that are relevant to each province.
Regional Councils for Development (Consejos Regionales de Desarrollo - COREDES)	-	✓	-	-	-	Expert council	ALMP CET	Regional Councils of Development coordinate with the Ministry of National Planning and Economic Policy and play a role in regional development strategies. While they do not focus exclusively on skills or training, they often identify regional needs, including workforce development and sector-specific skills relevant to the local economy. They act as advisory bodies and provide insights into regional economic needs, which can inform skills development programmes.

Legend: ✓ = Yes; - = No

Sources: (Ministerio de Educación Pública, 2024[14]); (Instituto Nacional de Aprendizaje, 2024[15]); (Ministerio de Planificación Nacional y Política Económica, 2024[16]).

Stakeholders and responsibilities at the local level

At the local level, Costa Rica’s skills system functions through the 82 municipalities in its 84 cantones. In Costa Rica’s skills system, these municipalities focus on implementing and delivering services based on local needs, leveraging local knowledge and proximity to citizens.

• Local offices of the Ministry of Labour and Social Security and of the National Employment Directorate implement ALMP and provide job placement services, career counselling, and connections to training programs. They serve as a bridge between job seekers, employers, and training institutions.

• Operated by municipalities, Municipal Training Offices focus on local ALMP, offering basic skills training and linking job seekers to training opportunities in collaboration with the National Learning Institute, other trainer providers and employers.

• Training centres of the National Learning Institute provide VET, HVET, and CET programmes tailored to community and industry needs, with a focus on practical skills development.

• Local branches of the Joint Institute for Social Aid deliver training and entrepreneurship programmes for low-income individuals, providing funding to support skill development and self-sufficiency.

• Integrated Centres for Adult Education are public institutions offering AE, helping adults complete basic or secondary schooling and improve employability.

• Community Development Associations are grassroots organisations that promote local economic development through small-scale training initiatives tailored to specific community industries, such as agriculture and crafts.

• Private education and training providers complement public efforts by offering VET, HVET, AE and CET programmes, often working in collaboration with local institutions and targeting to specific local labour market needs.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Local Offices of the Ministry of Labour and Social Security (Ministerio de Trabajo y Seguridad Social)	-	✓	✓	-	✓	National agency	CET ALMP	The Ministry of Labour and Social Security operates local offices that deliver employment support services, including job placement, and career counselling. These regional units work with the National Employment Directorate to implement national labour policies and help residents find employment or connect to training programmes. These offices also act as a liaison between local job seekers, employers, and training institutions.
Local offices, Employment Directorate (Dirección Nacional de Empleo)	-	-	-	-	✓	National agency	CET ALMP	Local offices of the National Employment Directorate serve as the primary point of contact for delivering ALMPs directly to individuals at the community level. These offices focus on facilitating job placement, providing career counselling, and connecting job seekers with training opportunities offered by institutions.
Municipal Training Offices (Oficinas Municipales de Empleo y Capacitación)	-	-	✓	✓	-	Subnational government	CET ALMP	Many municipalities operate training and employment offices that provide job placement services, career counselling, and basic skills training for local residents. These offices often partner with the National Learning Institute or collaborate with local employers to address specific workforce needs. They primarily serve as the link between job seekers and available training resources within the community.
National Learning Institute – Training Centres (Instituto Nacional de Aprendizaje	-	-	-	-	✓	National agency	VET HVET CET	The National Learning Institute operates local training centres equipped to deliver VET, HVET and CET programmes tailored to the needs of local industries and often include practical, hands-on courses. The local branches of the National Learning Institute may collaborate with municipalities and businesses to adjust programmes based on local labour market demands.
Joint Institute for Social Aid - Local Branches (Instituto Mixto de Ayuda Social)	-	-	-	-	✓	Public Institution	CET ALMP	The Joint Institute of Social Aid has local branches in many municipalities that focus on social protection and economic empowerment for low-income residents. These branches deliver training and entrepreneurship support programmes aimed at improving employability and self-sufficiency. They provide assistance with funding for small-scale entrepreneurship and skill-building initiatives, often targeting those who are unemployed or facing economic hardship.
Integrated Centres for Adult Education (Centros Integrados de Educación de Adultos)	-	-	-	-	✓	Education provider	AE	Educational institutions specifically designed to adults who did not complete their formal education. Their programmes are structured to support adults in obtaining basic education, improving literacy, and, in some cases, gaining vocational skills that enhance employability. The institutions are funded by the Ministry of Public Education.
Community Development Associations (Asociaciones de Desarrollo Comunal)	-	-	-	-	✓	Association	CET ALMP	Community Development Associations are grassroots organisations that work to promote local economic development and may offer small-scale training programmes or workshops tailored to local industries, such as agriculture or artisanal crafts. They operate under the Department for Community Development and Social Affairs and often collaborate with national and local institutions to address community needs.
Private education and training providers	-	-	-	-	✓	Education provider	VET HVET CET AE	Private education and training providers operate locally to provide adult education, upskilling opportunities, and reskilling courses on the local level.

Legend: ✓ = Yes; - = No

Sources: (Instituto Mixto de Ayuda Social, 2024[10]); (Ministerio de Trabajo y Seguridad Social, 2024[17]); (Instituto Nacional de Aprendizaje, 2024[15]); (Ministerio de Trabajo y Seguridad Social, 2024[18]); (Municipalidad de Alajuela, 2024[19]); (Ministerio de Educación Pública, 2024[20]); (Dirección Nacional de Desarrollo de la Comunidad, 2024[21]).

References

[9] Agencia Nacional de Empleo (2024), “Plataforma del Sistema Nacional de Empleo”, https://www.ane.cr/.

[12] Cámara de Industrias de Costa Rica (2024), “Misión y Visión”, https://cicr.com/quienes-somos/#valores\\.

[11] CINDE (2024), “Acerca”, https://www.cinde.org/es/acerca.

[21] Dirección Nacional de Desarrollo de la Comunidad (2024), “Líderes y lideresas comunales impulsan bienestar socioeconómico, cultural y ambiental en toda Costa Rica”, Gobierno de Costa Rica, http://www.dinadeco.go.cr/doc/281024.pdf.

[22] European Commission, Eurydice (2023), 8. Adult education and training, https://eurydice.eacea.ec.europa.eu/national-education-systems/netherlands/adult-education-and-training.

[10] Instituto Mixto de Ayuda Social (2024), “Capacitación”, https://www.imas.go.cr/es/beneficios/capacitacion-0.

[6] Instituto Nacional de Aprendizaje (2024), “Información”, https://www.ina.ac.cr/BusquedaCursos/SitePages/Sedes.aspx.

[15] Instituto Nacional de Aprendizaje (2024), “Unidades Regionales y Centros de Formación”, https://www.ina.ac.cr/SiteAssets/docs/PDF/Regionales_Centros_Formacion_INA.pdf.

[20] Ministerio de Educación Pública (2024), “Centros Integrados de Educación de Adultos (CINDEA)”, https://ddc.mep.go.cr/centros-integrados-educacion-adultos-cindea.

[3] Ministerio de Educación Pública (2024), “Misión”, https://www.mep.go.cr/.

[14] Ministerio de Educación Pública (2024), “Oficinas”, http://www.mep.go.cr/oficinas.html.

[16] Ministerio de Planificación Nacional y Política Económica (2024), “Consejos Regionales de Desarrollo”, https://www.mideplan.go.cr/coredes.

[8] Ministerio de Trabajo y Seguridad Social (2024), “Dirección Nacional de Empleo”, https://www.mtss.go.cr/elministerio/estructura/direccion-empleo/direccion-nacional-empleo.html.

[17] Ministerio de Trabajo y Seguridad Social (2024), “Dirección Nacional de Empleo”, https://www.mtss.go.cr/elministerio/estructura/direccion-empleo/direccion-nacional-empleo.html#:~:text=Direcci%C3%B3n%3A%20Barrio%20Tourn%C3%B3n%2C%20Goicoechea.,Benjam%C3%ADn%20N%C3%BA%C3%B1ez%2C%20segundo%20piso.

[7] Ministerio de Trabajo y Seguridad Social (2024), “Dirección National de Empleo”, https://www.mtss.go.cr/elministerio/estructura/direccion-empleo/direccion-nacional-empleo.html#:~:text=Direcci%C3%B3n%3A%20Barrio%20Tourn%C3%B3n%2C%20Goicoechea.,Benjam%C3%ADn%20N%C3%BA%C3%B1ez%2C%20segundo%20piso.

[4] Ministerio de Trabajo y Seguridad Social (2024), “Empleo y formación”, https://www.mtss.go.cr/empleo-formacion/index.html.

[5] Ministerio de Trabajo y Seguridad Social (2024), “Observatorio del Mercado Laboral”, https://www.mtss.go.cr/empleo-formacion/oml.html.

[18] Ministerio de Trabajo y Seguridad Social (2024), “Oficinas regionales”, https://www.mtss.go.cr/contactenos/mapa-oficinas.html.

[23] Ministerio Nacional de Política Económica (2024), “Misión”, https://www.mideplan.go.cr/.

[19] Municipalidad de Alajuela (2024), “Capacitación y Empleabilidad”, https://www.munialajuela.go.cr/servicios/ciudadania/capacitacion-empleabilidad.

[1] OECD (2025), “From national to local: Exploring the role of subnational governments in adult skills systems across OECD countries”, OECD Local Economic and Employment Development (LEED) Papers, No. 2025/XX, OECD Publishing, Paris.

[2] OECD/UCLG (2022), 2022 Country Profiles of the World Observatory on Subnational Government Finance and Investment., https://www.sng-wofi.org/country-profiles/costa_rica.html.

[13] SINAES (2024), “Misión”, Sistema Nacional de Acredicatión de la Educación Superior, https://www.sinaes.ac.cr/sobre-sinaes/pilares-estrategicos/#mision-vision.

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