This country note provides an overview of the governance of the adult skills system in Germany. 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 German government reviewed the country note in February 2025, and it was published in June 2025.
The role of subnational governments in adult skills systems: Germany
Note: 31.5% to state level, and 17.4% to local level, counting in total 48.9% to the subnational level. For more information on the definitions of the governance models, please see (OECD, 2025[1]).
Source: (OECD/UCLG, 2022[2])
The German adult skills system operates under a combined structure in which the national level maintains overarching strategic and funding responsibility across all policy areas. In contrast, the states (Länder, regional level) can develop regional strategies and hold funding responsibility in some areas. Implementation responsibilities are entrusted to the states and municipalities (Gemeinden, local level).
Germany has a well-established Vocational Education and Training (VET) and higher VET (HVET) system. The national government is responsible for the strategic framework and legislation for HVET and the company-based part and some parts of full-time school-based VET, while the states are responsible for other parts of school-based VET. VET is delivered in vocational schools (Berufsschulen) operating at the regional level. Systematic cooperation with social partners is central, especially at the national and regional levels.
Continuing Education and Training (CET) is not regulated in Germany but is market-driven and demand-oriented. This is to be distinguished from regulated continued vocational training, which, according to the Vocational Training Act, leads to higher qualifications.
Responsibilities for Active Labour Market Policies (ALMPs) are centralised at the national level in the German Public Employment Service (PES) (Bundesagentur für Arbeit). The PES operates through a system of deconcentrated regional directorates and local offices which is complicated by municipal jobcentres. Additionally, there are 404 Jobcentres. 300 of these Jobcenters (gemeinsame Einrichtungen) are jointly run by a local employment agency operating under the Federal Employment Agency and a municipality. In addition, there are 104 Jobcentres (zugelassene kommunale Träger) managed by municipalities that operate independently of the Federal Employment Agency.
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, please see (OECD, 2025[1])
Source: OECD compilation based on available information.
At the national level, the following stakeholders have essential roles in the adult skills system:
VET is overseen by the Federal Ministry of Economic Affairs and Climate Action or – according to the respective sector – other competent Federal or Länder Ministries. In contrast, the Federal Ministry of Education and Research is responsible for HVET(apart from master examination regulations in the crafts sector). The Federal Ministry of Education and Research is responsible for approving the legislative framework (the Vocational Training Act, Berufsbildungsgesetz) and coordinating the development of VET and HVET with the Federal Institute for Vocational Education and Training (Bundesinstitut für Berufsbildung). After agreement in the Ministry of Education and Research, the Federal Coordinating Committee on Training Regulations (Bund-Länder-Koordinierungsausschuss-Ausbildungsordnungen) – in which representatives from the state government participate – approves the draft training regulations and framework curricula agreed upon by all parties involved.
The Federal Employment Agency is responsible for funding CET. At the same time, innovative further development of continuing vocational education and training is promoted by the Federal Ministry of Education and Research, the Federal Ministry of Economic Affairs and Climate Action or other competent Federal Ministries, as well as the Federal Ministry of Labour and Social Affairs in their respective areas of responsibility. Funding for AE provision is overseen by the Federal Ministry of Education and Research, which benefits from the research in this field conducted by the German Institute for Adult Education (Deutsches Institut für Erwachsenenbildung German Adult Education Association (Deutscher Volkshochschul-Verband), which represents the interests of regional and local providers of CET and AE. The national PES and target workers and unemployed people often manage programs in CET.
The Federal Ministry of Labour and Social Affairs is responsible for the legal framework for ALMPs and overseeing the operations of the Federal Employment Agency. The Institute for Employment Research is responsible for labour market intelligence and operates under the remit of the Federal Employment Agency.
Legend: ✓ = Yes; - = No
The regional level plays a key role in the adult skills system. Each of the 16 state governments (Länder) is responsible for setting educational policies, developing curricula, and overseeing the implementation of VET, HVET, CET and AE policies within their respective states. They have the competencies to legislate and adapt policies to regional needs.
The state governments/länder are responsible for the school-based part of VET, including providing funding for and overseeing VET schools (Berufsschulen), developing and adapting curricula, and general quality assurance of schools. They benefit from recommendations from the tripartite Vocational training committees (Der Landesausschuss für Berufsbildung) and co-ordinate their policies in the Standing committee of the states (Kultusministerkonferenz). Co-operation between the national and länder happens through the Standing Conference of the Ministers of Education and Cultural Affairs of the Länder (Kultusministerkonferenz).
Social partners (employers, unions, Länder) play a substantial role in VET, HVET, and CET and participate in vocational training comitees and develop, together with the federal ministries, develop and define training programs (Ausbildungsordnungen). Social partners, like trade unions, provide CET as well. The largest group of the ‘Competent Bodies’ comprises the chambers of commerce and craft. Competent Bodies are tasked to monitor in-company training, develop and define training programs and carry out examinations.
The state governments/länder have the political responsibility for CET and AE and co-ordinate their activities through the standing conference of ministers (Fachministerkonferenzen). Both CET and AE programmes are developed in the individual states and target various groups, including older employees, less qualified individuals, and individuals with limited education. The regional CET and AE provider landscape is highly fragmented. They include the competent bodies, VET schools, adult education centres, private providers and higher education institutions.
Regional ALMPs are delivered through 10 regional self-governing branches of the PES (Regionadirektionen). The regional directorates adapt delivery to the regional labour market and economy.
Legend: ✓ = Yes; - = No
Source: OECD compilation based on (European Commission, Eurydice, 2024[11]; 2024[8]), (Lauringson, 2021[12])
The local level consists of around 11 000 municipalities that do not hold strategic or intelligence responsibility in the skills system. Municipalities play a complementary role in the adult skills system. They are involved by overseeing and co-funding adult education centres that deliver AE and CET locally and overseeing a small part of VET schools. Municipalities are also responsible for facilitating access to skills development for adult immigrants by referring to various local providers, e.g. adult education centres, social economy organisations, local businesses and the Chambers of Commerce and Industry.
ALMPs are provided by local employment agencies and municipal job centres.
Legend: ✓ = Yes; - = No
Source: OECD compilation based on (European Commission, Eurydice, 2024[11]; Lauringson, 2021[12])
References
[6] Cedefop (2024), Vocational education and training policy briefs 2023 - Germany, https://doi.org/10.2801/035346.
[4] Cedefop (2023), Skills anticipation in Germany (2023 Update), https://www.cedefop.europa.eu/en/data-insights/skills-anticipation-germany-2023-update.
[11] European Commission, Eurydice (2024), 2.7 Administration and governance at local and/or institutional level, https://eurydice.eacea.ec.europa.eu/national-education-systems/germany/administration-and-governance-local-andor-institutional-level.
[8] European Commission, Eurydice (2024), 8.1 Distribution of responsibilities, https://eurydice.eacea.ec.europa.eu/national-education-systems/germany/distribution-responsibilities.
[7] IAB - Institute for Employment research (2024), Education and the Labour Market, https://iab.de/en/topics/education-and-the-labour-market/.
[9] Kultusminister Konferenz (2024), The Standing Conference of the Ministers of Education and Cultural Affairs (KMK), https://www.kmk.org/kmk/information-in-english/standing-conference.html.
[12] Lauringson, A. (2021), Institutional set-up of active labour market policy provision in OECD and EU countries: Organisational set-up, regulation and capacity, OECD Publishing, Paris, https://doi.org/10.1787/9f2cbaa5-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 (2023), ““Who does what” for active labour market policies: A zoom on the role of subnational governments”, OECD Publishing, Paris, https://doi.org/10.1787/d8d6868d-en.
[3] OECD (2020), Strengthening the Governance of Skills Systems: Lessons from Six OECD Countries, OECD Publishing, Paris, https://doi.org/10.1787/3a4bb6ea-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/germany.html.
[10] vhs Deutscher Volkshochshul-Verband (2024), Information in English: The German Adult Education Association, https://www.volkshochschule.de/verbandswelt/dvv-english/dvv-The-German-Adult-Education-Association.php.
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