The role of subnational governments in adult skills systems: Denmark

This country note provides an overview of the governance of the adult skills system in Denmark. 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: Staten Regional: Regioner Local: Kommuner	61,4%
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?

Denmark has a combined adult skills system, where the national level sets the strategic priorities and designs legislation across all parts of the system, but where especially the municipalities, independent VET schools (Erhvervsskoler) and adult education and training centres (Voksenuddannelsescentre) play an important role in implementing Active Labour Market Policies (ALMPs), Vocational Education and Training (VET), Continuous Education and Training (CET) and adult education (AE) programmes.

• VET is overseen by the Ministry of Children and Education (Børne- og Undervisningsministeriet) and is delivered through VET programmes (EUD) in independent VET schools.

• The Ministry of Children and Education equally oversees CET and AE provision. CET programmes are mainly vocationally oriented and include Adult Vocational Training (AMU), diploma degree and supplementary professional training. Adult education encompasses programmes such as General Adult Education (AVU), Preparatory Adult Education (FVU) and Higher Preparatory Examination (HF). Courses are typically designed in collaboration with social partners. Programmes are delivered mainly by adult education and training centres.

• Higher VET (HVET) policies are overseen by the Ministry of Higher Education and Science (Uddannelses- og Forskningsministeriet) and implemented by Business Academies (Erhvervsakademier) and University Colleges (Professionshøjskoler) operating regionally.

• ALMPs are overseen by the Ministry of Employment (Beskæftigelsesministeriet) in cooperation with the National Agency for Labour and Recruitment (Styrelsen for Arbejdsmarked og Rekruttering). Policies are implemented locally by the municipalities through local jobcentres.

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, three ministries play an important role in the governance of the skills system:

• The Ministry of Children and Education is responsible for legislation across all levels of education, including VET, HVET, CET and AE. The Ministry oversees the National Agency for Education and Quality, which oversees the quality of VET, CET, and AE. The Ministry is supported by several advisory councils with representation from social partners (e.g. the National Council for Adult Education and Continuing Training, the Council for Vocational Training and the National Trade Committees).

• The Ministry of Higher Education and Science is responsible for CET and HVET provided by universities.

• The Ministry of Employment is responsible for the policy design of ALMPs in cooperation with the National Agency for Labour Market and Recruitment.

• The Danish Evaluation Institute is responsible for external VET and CET quality assurance across the various policy areas.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
The Ministry of Children and Education (Børne- og Undervisningsministeriet)	✓	✓	-	✓	-	Ministry	VET HVET CET AE	The Ministry is responsible for the overall governance and regulatory framework of VET, CET, and AE. It collaborates with social partners to ensure that VET provision meets labour market needs and provides funding for VET schools. It also ensures monitoring and evaluation of programmes in VET, CET and AE.
The Ministry of Higher Education and Science (Uddannelses- og Forskningsministeriet)	✓	✓	-	✓	-	Ministry	CET HVET	The Ministry is the primary governmental authority responsible for policy, oversight, and regulation of HVET and CET programmes provided by universities.
The Ministry of Employment (Beskæftigelsesministeriet)	✓	✓	-	✓	-	Ministry	ALMP	The Ministry is responsible for national legislation on ALMPs and for designing and overseeing initiatives to improve employment opportunities for unemployed people.
Danish Agency for Education and Quality (Styrelsen for Undervisning og Kvalitet, STUK)	-	✓	✓	-	-	National agency	VET CET AE	The agency, part of the Ministry of Children and Education, is critical in overseeing and ensuring the quality of various educational sectors in Denmark. These include VET (at secondary level), CET, and AE (general adult education).
Danish Agency for Higher Education and Science (Uddannelses og forskningsstyrelsen )	-	✓	✓	✓	-	National agency	HVET	The agency is responsible for policies, funding and the overall strategic development of higher education and research. This includes overseeing and allocating funding to HVET institutions such as business academies and university colleges.
Danish Agency for Labour Market and Recruitment (Styrelsen for Arbejdsmarked og Rekruttering)	-	✓	-	✓	-	National agency	ALMP	The agency participates in the policy design of ALMPs at the national level and supports their implementation through support for municipalities. It also supports evidence-based political initiatives and reforms by systematically collecting evidence on the effects of ALMPs.
Danish Evaluation Institute (Danmarks Evalueringsinstitut)	-	✓	-	-	-	Research institution	AE CET VET	The institute is an independent state institution responsible for external evaluation and quality assurance, covering all parts of the Danish education system. It reports to the Ministry of Children and Education
National Council for Adult Education and Continuing Training (Rådet for Voksen- og Efteruddannelse, VEU-rådet)	-	✓	-	-	-	Expert council	AE CET	The council advises the Ministry of Children and Education on CET and adult education policies. It comprises representatives of the social partners.
The Council for Vocational Training (Rådet for de grundlæggende Erhvervsrettede Uddannelser)	-	✓	-	-	-	Expert council	VET	The council is an independent state institution that advises the Ministry of Children and Education on VET. Its members are representatives from the social partners. The council monitors and identifies societal tendencies and the labour market influencing VET provision.
National trade committees (Faglige udvalg)	-	-	✓	-	-	Social partners	VET	The committees are central in shaping and overseeing VET programs' content, standards and quality. They are sector-specific and consist of representatives from employers’ organisations and trade unions. Each committee is affiliated with one or more VET schools.
Continuing education and training committees (Efteruddannelsesudvalg)	-	✓	-	-	-	Expert council	VET CET	The committees are central in overseeing the design, development, and maintenance of continued VET programmes, especially for workers who are already employed but need to update their skills or adapt to new industry demands. They are responsible for designing adult vocational training (AMU) programmes). Members are representatives from employers’ organisations, trade unions, VET schools and AE centres

Legend: ✓ = Yes; - = No

Source: OECD compilation based on: (Uddannelses- og Forskningsministeriet, 2021[3]), (Børne- og Undervisningsministeriet, 2024[4]; 2024[5]),

(European Commission Eurydice, 2024[6]; 2024[7]; 2024[8]), (Ministry of Higher Education and Science, 2024[9]), (Styrelsen for Undervisning og Kvalitet, 2024[10]), (Uddannelses- og Forskningsministeriet, 2024[11])

Stakeholders and responsibilities at the regional level

At the regional level, the regions and regional PES offices play a role:

• Until the end of 2024, Denmark’s regional level consisted of five regions, each governed by an elected regional council. However, a recent governance reform has merged two of these regions, reducing the total number of regions to four. In the adult skills system, the primary responsibility of the regions is to coordinate and align the provision of VET, CET and AE with the needs of regional labour markets. The regions are also responsible for managing the Regional Labour Market Councils (Regionale Arbejdsmarkeds Råd), which guided municipalities on how to adapt their labour market activities to better meet regional labour market demands.

• The PES has three Regional Labour Market Offices, which oversee the implementation of ALMPs at the local level and provide support for employers in finding skilled labour.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Regions (regioner)	-	✓	✓	-	-	Subnational government	VET CET AE	The regions are responsible for coordinating the provision of VET, CET and AE to ensure alignment with regional labour market needs and in promoting lifelong learning activities, especially among adults who need to update their skills or shift careers.
Regional labour market councils (de regionale arbejdsmarkedsråd).	-	✓	✓	-	-	Expert council	VET CET ALMP	The eight councils coordinated employment initiatives in dialogue with municipalities and the VET centers. They assessed companies' specific skills needs and identified areas for further coordination. The recent governance reform of the regions dismantled the councils.
Regional Labour Market Offices (Arbejdsmarkedskontorer)	-	✓	✓	-	✓	National agency	CET ALMP	The Labour Market Offices operate under the PES and the Ministry of Employment. They are responsible for overseeing and coordinating municipalities' implementation of ALMPs. The offices also support employers in their recruitment efforts and help find available skilled jobseekers across municipalities.
Business Academies (Erhvervsakademier) and University Colleges (Professionshøjskoler)	-	-	-	-	✓	Education provider	HVET	Business academies and university colleges are the main providers of HVET. They provide students with the technical and practical skills needed in specific industries. They operate at a regional level but provide education services that cater to regional labour market needs and national priorities. They are independent institutions with their own governance structure but under the oversight of the Danish Ministry of Higher Education and Science.

Legend: ✓ = Yes; - = No

Source OECD compilation based on: (Danske Regioner, 2024[12]), (Styrelsen for Arbejdsmarked og Rekruttering, 2024[13]), (De Regionale Arbejdsmarkedsråd - BM, 2024[14]), (Akademikerne, 2020[15]), (Styrelsen for Arbejdsmarked og Rekruttering, 2024[16])

Stakeholders and responsibilities at the local level

The local level encompasses the 98 municipalities governed by an elected municipal council and a mayor.

• Municipalities are responsible for implementing ALMPs through local job centres and for supporting young people entering the labour market. Municipalities also have a role in funding adult education programs aimed at improving basic skills such as literacy, numeracy, and digital skills.

• Other actors operating at the local level are VET schools and adult education and training centres.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities (Kommuner)	-	-	✓	✓	✓	Subnational government	AE ALMP	Municipalities are responsible for implementing ALMPs in local job centres. Their primary tasks are to support the unemployed and job seekers and help companies recruit skilled labour. Municipalities are also responsible for supporting young people who are not employed in education and funding AE programmes aimed at improving basic skills.
VET schools (Erhvervs-skoler)	-	-	-	-	✓	Education provider	VET	There are approximately 120 VET schools across the country They are self-governing institutions with a governance board and independent responsibility for the education activities in the school (within the framework of national legislation).
Local education committees (Lokale uddannelsesudvalg - LLU)	-	-	✓	-	-	Expert council	VET	The local committees are composed of employers and employee representatives appointed by national trade committees and VET schools. They advise the VET schools on the skills needs of the local employers.
Adult education and training centres, (Voksenuddannelsescenter, VUC)	-	-	-	-	✓	Education provider	CET AE	The centres are self-governing institutions that offer, inter alia, preparatory basic education and training for adults.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (Børne- og undervisningsministeriet, 2020[17]), (Cedeop; University College Copenhagen, 2022[18]), (Jobcentret.dk, 2023[19]), (Børne- og Undervisningsministeriet, 2024[20]; 2024[21]; 2024[22])

References

[15] Akademikerne (2020), De regionale arbejdsmarkedsråd, https://akademikerne.dk/wp-content/uploads/2020/01/rar_pjece-maj-2018-2.pdf.

[25] Beskæftigelsesministeriet (2014), Lov om organisering og understøttelse af beskæftigelsesindsatsen m.v., https://www.retsinformation.dk/eli/lta/2014/1482.

[4] Børne- og Undervisningsministeriet (2024), Ansvar og aktører, https://www.uvm.dk/arbejdsmarkedsuddannelser/regelsaet-og-aktoerer/ansvar-og-aktoerer.

[21] Børne- og Undervisningsministeriet (2024), Den kommunale ungeindsats, https://www.uvm.dk/vejledning-og-stoettemuligheder/vejledning/ansvar-og-aktoerer/den-kommunale-ungeindsats.

[20] Børne- og Undervisningsministeriet (2024), Formål og opgaver, https://www.uvm.dk/erhvervsuddannelser/ansvar-og-aktoerer/raad-og-udvalg/de-faglige-udvalg-og-lokale-uddannelsesudvalg/formaal-og-opgaver.

[5] Børne- og Undervisningsministeriet (2024), Rådet for de grundlæggende Erhvervsrettede Uddannelser (REU), https://www.uvm.dk/erhvervsuddannelser/ansvar-og-aktoerer/raad-og-udvalg/reu.

[22] Børne- og Undervisningsministeriet (2024), Spørgsmål og svar, https://www.uvm.dk/almen-voksenuddannelse-avu/spoergsmaal-og-svar.

[17] Børne- og undervisningsministeriet (2020), VEJLEDNING TIL EFTERUDDANNELSESUDVALG, https://www.uvm.dk/-/media/filer/uvm/udd/anden/200701-vejledning-til-efteruddannelsesudvalgene-juli-2020-ua.pdf.

[18] Cedeop; University College Copenhagen (2022), Vocational education and training in Europe - Denmark: system description, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/denmark-u2.

[12] Danske Regioner (2024), Uddannelse, https://www.regioner.dk/regional-udvikling/uddannelse/.

[14] De Regionale Arbejdsmarkedsråd - BM (2024), De Regionale Arbejdsmarkedsråd, https://rar-bm.dk/.

[8] European Commission Eurydice (2024), Adult education programmes, https://eurydice.eacea.ec.europa.eu/national-education-systems/denmark/management-staff-working-adult-education-and-training.

[6] European Commission Eurydice (2024), Distribution of responsibilities, https://eurydice.eacea.ec.europa.eu/national-education-systems/denmark/distribution-responsibilities.

[7] European Commission Eurydice (2024), Funding in education, https://eurydice.eacea.ec.europa.eu/national-education-systems/denmark/funding-education.

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

[19] Jobcentret.dk (2023), Uddannelses- og jobmuligheder for unge i samarbejde med jobcentret, https://jobcentret.dk/uddannelses-og-jobmuligheder-for-unge-i-samarbejde-med-jobcentret/.

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[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/denmark.html.

[24] Retsinformation (2019), Lov om en aktiv beskæftigelsesindsats, https://www.retsinformation.dk/eli/lta/2019/548.

[13] Styrelsen for Arbejdsmarked og Rekruttering (2024), Den regionale uddannelsespulje, https://star.dk/indsatser/stars-nationale-job-og-uddannelsesteam/uddannelsesordninger-for-ledige/den-regionale-uddannelsespulje/.

[16] Styrelsen for Arbejdsmarked og Rekruttering (2024), Regionale kontorer i Styrelsen for Arbejdsmarked og Rekruttering, https://star.dk/om-styrelsen/organisation-og-strategi/regionale-kontorer.

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[11] Uddannelses- og Forskningsministeriet (2024), Efter- og videreuddannelse, https://ufm.dk/uddannelse/videregaende-uddannelse/overblik-over-det-videregaende-uddannelsessystem/efter-og-videreuddannelse.

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