This country note provides an overview of the governance of the adult skills system in Estonia. 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. Representatives from the Estonian government reviewed the country note in May 2025 and it was published in June 2025.
The role of subnational governments in adult skills systems: Estonia
Note : For more information on the definitions of the governance models, please see (OECD, 2025[1]).
Source: (OECD/UCLG, 2022[2])
The adult skills system in Estonia has a centralised structure. The national government has general responsibility for strategic planning, intelligence, and funding across all policy areas and is also involved in policy implementation and delivery. Municipalities have very limited responsibilities for implementation and delivery of adult skills policies.
The Ministry of Education and Research (Haridus—ja Teadusministeerium) plans, funds, and partly implements VET, higher VET (HVET), and adult education (AE)1 policies. Providers include VET schools, universities and private continuing education institutions.
The Ministry of Economic Affairs and Communication (Majandus- ja Kommunikatsiooniministeerium) and the Estonian Unemployment Insurance Fund (Eesti Töötukassa) share responsibility for planning, funding, and implementing the Active Labour Market Policies (ALMPs). The Estonian Unemployment Insurance Fund acts as the Public Employment Service (PES) and is a quasi-governmental organisation. It has a two-level structure – a central head office and 15 regional departments across the country.
National agencies and other stakeholders play a key role in providing intelligence and advice at the national level to inform the strategic planning of the adult skills system across all policy areas.
Legend: ✓ = Yes; - = No
Note: For more information on exact definitions of policy areas and responsibilities, please see (OECD, 2025[1]).
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, see (OECD, 2025[1]).
Source: OECD compilation based on available information.
The Ministry of Education and Research is responsible for strategic planning, funding, and implementing VET, HVET and AE policies.
The Ministry of Economic Affairs and Communications (Majandus—ja Kommunikatsiooniministeerium) sets the legal framework for and funds employer training.
A range of stakeholders support the activities of the ministries, including the Estonian Qualification Authority (Kutsekoda), the Education and Youth Board of Estonia (Haridus– Ja Noorteamet), the Estonian Quality Agency for Education (Eesti Hariduse Kvaliteediagentuuri), the Adult Education Council (Täiskasvanuhariduse Nõukogu), the Association of Estonian Adult Educators (Eesti Täiskasvanute Koolitajate Assotsiatsioon Andras), and the Estonian Vocational Education Promotion Association (Eesti Kutseõppe Edendamise Ühing).
VET schools (Keskharidus ja keskharidusjärgne kutseharidus) implement VET, and AE. The majority of schools are state-owned and managed by the Ministry of Education and Research. Meanwhile, professional higher education institutions (Rakenduskõrgkoolid ja ülikoolid) deliver HVET.
Source: OECD compilation based on (Cedefop, 2017[3]) (Musset et al., 2019[4]) (OECD, 2021[5]) (Cedefop, 2023[6]) (Cedefop, & Estonian Ministry of Education and Research, 2023[7]) (Association of Estonian Adult Educators Andras, 2024[8]) (Cedefop, 2024[9]) (Directorate-General for Communications Networks, Content and Technology, 2024[10]) (Enterprise Estonia, 2024[11]) (Estonian Quality Agency for Education, 2024[12]) (Estonian Vocational Education Promotion Association, 2024[13]) (Eurydice, European Commission, 2024[14]) (Ministry of Education and Research, 2024[15])
The local level in Estonia comprises 79 municipalities. There are (64 rural municipalities (vald) and 15 urban municipalities (linn).
While some adult education policies are designed and funded at the national level, municipalities support implementation on the ground, e.g., by ensuring access and providing additional support measures. Municipalities may finance or co-finance local training centres (e.g., community centres), organise language training for non-native speakers, or provide career counselling in cooperation with VET schools or employment services.
The PES has a network of local offices responsible for providing employment services, including job and career counselling, as well as facilitating and intermediating the provision of training.
References
[8] Association of Estonian Adult Educators Andras (2024), Webpage, https://www.andras.ee/en/association-estonian-adult-educators-andras.
[9] Cedefop (2024), Vocational education and training – Policy briefs 2023 – Estonia, Publications Office of the European Union, https://data.europa.eu/doi/10.2801/096244.
[6] Cedefop (2023), Inventory of lifelong guidance systems and practices - Estonia, https://www.cedefop.europa.eu/en/country-reports/inventory-lifelong-guidance-systems-and-practices-estonia-0.
[3] Cedefop (2017), Vocational education and training in Estonia: short description, Luxembourg: Publications Office, https://doi.org/10.2801/15844.
[7] Cedefop, & Estonian Ministry of Education and Research (2023), Vocational education and training in Europe – Estonia: system description, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/estonia-u3.
[10] Directorate-General for Communications Networks, Content and Technology (2024), Digital Skills & Jobs Platform Webpage, https://digital-skills-jobs.europa.eu/en/organisations/education-and-youth-board-estonia-harno.
[11] Enterprise Estonia (2024), Webpage, https://eis.ee/en/.
[12] Estonian Quality Agency for Education (2024), Webpage, https://haka.ee/en/.
[13] Estonian Vocational Education Promotion Association (2024), Webpage, https://ekey.ee/en/about/.
[16] European Commission, Eurydice (2023), 8. Adult education and training, https://eurydice.eacea.ec.europa.eu/national-education-systems/netherlands/adult-education-and-training.
[14] Eurydice, European Commission (2024), National Education Systems, https://eurydice.eacea.ec.europa.eu/national-education-systems/estonia/overview.
[15] Ministry of Education and Research (2024), Webpage, https://www.hm.ee/en/ministry/ministry/introduction-and-structure.
[4] Musset, P. et al. (2019), Vocational Education and Training in Estonia, OECD Reviews of Vocational Education and Training, OECD Publishing, Paris, https://doi.org/10.1787/g2g9fac9-en.
[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.
[5] OECD (2021), Improving the Provision of Active Labour Market Policies in Estonia, Connecting People with Jobs, OECD Publishing, Paris, https://doi.org/10.1787/31f72c5b-en.
[2] OECD/UCLG (2022), 2022 Country Profiles of the World Observatory on Subnational Government Finance and Investment., https://www.sng-wofi.org/country-profiles/estonia.html.
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← 1. In Estonia, there is no distinction between adult education and continued education and training policies. For this note, the term adult education is used to the combined policy area.