The role of subnational governments in adult skills systems: Greece

This country note provides an overview of the governance of the adult skills system in Greece. 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 government of Greece reviewed the country note in May and it was published in June 2025.

Table 1. Overall governance and expenditure structure

Governance structure	Levels of governance	% of general government expenditure at the sub-national level
Unitary	National: Ellinikó Kratos Regional: Peripheria Local: Dimos	3.4%
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?

Greece has a combined adult skills system. While national ministries and agencies continue to play a vital role in the design and monitoring of national policies and legislation, recent reforms have been driven by an ambition to devolve responsibilities for Vocational Education and Training (VET) and Lifelong Learning Policies (i.e. Continuous Education and Training (CET) and adult education (AE)) to lower levels of government:

• At the national level, VET, higher Vocational Training (HVT), CET, and AE policies are designed, coordinated and overseen by the Ministry of Education, Religious Affairs and Sports via its General Secretariat for VET and Lifelong Learning. The Ministry/General Secretariat is supported by advisory bodies which, at the national level, include the Central Council for VET and the Central Scientific Committee (ΚΕΕ). To assist the work of the Central Council, Sector Skills Councils may also be established to monitor the needs of the respective sector in terms of professional skills and the improvement of matching between skills demand and supply.

• ALMPs are designed and issued by the Ministry of Labour and Social Security and implemented by the Greek Public Employment Service (DYPA) through its structure of 8 Regional Directorates and 116 decentralised local PES offices (or KPA2). The Greek Public Employment Service is also involved in the provision of VET and Continuing Vocational Training (CVT) programmes.

• At the regional level, the Regional Production-Labour Market Liaison Councils are tasked with aligning the provision of education and training with the specific needs of the local and regional labour markets. Regional authorities may legally establish and run Lifelong Learning Centres. Locally, the municipalities may also run Lifelong Learning Centres, providing general adult education and training programmes (including CET and AE) to individuals within their jurisdiction. The role of regions and municipalities was significantly strengthened through a reform in 2020 and 2024 (Law 4763/2020 as amended by Law 5082/2024), which aimed to enhance the VET and lifelong learning systems to better respond to labour market demand and promote active participation of social partners in VET planning.

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

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

Legend: ✓ = Yes; - = No

Note: 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, the following actors are important for the adult skills system:

• The General Secretariat of VET and LLL of the Ministry of Education, Religious Affairs and Sports in cooperation with the National Organisation for the Certification of Qualifications and Vocational Guidance (EOPPEP) oversee most parts of the education system, including VET, higher VT (HVT), CET and AE.

• The Ministry of Labour and Social Security, in cooperation with the Greek Public Employment Service (DYPA), develops, oversees and implements employment policies and ALMPs.

• Expert councils, including the Central Council for VET and the National Workforce Skills Council, support the work of the ministries and national agencies. It is worthy of note that Law 4921/2022 modernised the system of CVT so that the workforce can effectively respond to the country’s current and projected socioeconomic needs. In particular, a Strategy for Workforce Upskilling and Connection to the Labour Market (2022/2023/forthcoming update) has been issued, and, moreover, a National Workforce Skills Council and a Central Scientific Committee have been established to provide technical and advisory support. Importantly, the Mechanism of Labour Market Diagnosis (originally established pursuant to Law 4368/2016, under the supervision of the National Institute of Labour and Human Resources) was significantly upgraded in 2022 and designated as the scientifically responsible body coordinated by the Unit of Experts in Employment, Social Insurance, Welfare and Social Affairs (MEKY) of the Ministry of Labour and Social Security with the objective of conducting labour market analyses primarily aimed at eliminating skills mismatches and also providing skills anticipation for policymakers and educational institutions.

• Recent legislative changes (Law 4921/2022) have strengthened the adult skills system's focus on providing programmes for upgrading and enhancing the skills of the workforce, with emphasis on the digital and green transition (notable amongst which is the flagship upskilling/reskilling training programme implemented by the Greek PES for 500,000 employed and unemployed beneficiaries by the end of 2025) and on aligning training provision with labour market needs.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Education, Religious Affairs and Sports	✓	✓	-	✓	-	Ministry	VET HVT CET AE	The Ministry formulates and oversees national policies related to primary and secondary education, higher education, VET and higher VT, CET, and AE in cooperation with other public authorities or competent institutions. It is responsible for developing the curriculum for VET institutions and implementing quality assurance mechanisms to monitor and evaluate programmes. The Ministry is also responsible for developing CET, AE programmes, and youth education programmes.
Ministry of Labour and Social Security	✓	✓	-	✓	-	Ministry	VET CVT ALMP	The Ministry is responsible for developing and overseeing ALMPs to promote job creation, workforce participation, and skills development. It also oversees the operation of the PES (DYPA) and facilitates dialogue with social partners to develop and implement training and employment initiatives. The Ministry also supports the development of work-based learning opportunities, including apprenticeships and internships, and it conducts research and analysis to identify current and future labour market needs, which feeds into the development of VET and CVT programmes.
General Secretariat for Vocational Education and Training and Lifelong Learning	✓	✓	-	✓	-	National agency	VET HVET CET AE	The Secretariat is the governmental body responsible for supporting the design of the National VET System and the implementation of VET and LLL policies. Its mission is to design, coordinate, supervise and evaluate policies, actions and programs in the fields of VET, CET and AE. It operates under the Ministry of Education, Religious Affairs and Sports. It manages funding for various education and training programmes and researches trends and needs in VET, CET and adult education.
Public Employment Service (DYPA)	-	✓	✓	✓	✓	National agency	VET CVT ALMP	The PES provides, inter alia, employment services and implements ALMPs for the unemployed, including job matching and placement services, career guidance and counselling, youth employment programmes and programmes targeting vulnerable groups. The PES is also responsible for developing and providing VET and CVT programmes for jobseekers and employees to improve their skills and enhance their employability. It provides VET and CVT directly through its VET institutions (Apprenticeship Vocational Schools/EPAS, Experimental EPAS/PEPAS, Higher Vocational Training Institutes/SAEK, Lifelong Learning Centres /KDVM, Vocational Training Schools for Persons with Disabilities) and also partners with external training providers. The PES also collects and disseminates labour market information and conducts research and analysis on labour market dynamics in close collaboration with the Mechanism of Labour Market Diagnosis of the Labour Ministry’s MEKY unit.
National Organisation for the Certification of Qualifications and Vocational Guidance (EOPPEP)	-	-	✓	-	-	National agency	VET HVET CET AE	The agency is a regulatory body responsible for developing and improving the national framework for the certification of professional qualifications. It provides certification for various levels of VET, from initial to continuing VET. It is also responsible for monitoring and evaluating the quality of training programmes and institutions and for ensuring alignment with the European Qualifications Framework. The agency also provides scientific support to vocational guidance and counselling services and implements procedures for recognising and validating prior learning (informal and non-formal learning). The Ministry of Education, Religious Affairs and Sports supervises the activities of the agency.
Central Council for Vocational Education and Training	-	✓	-	-	-	Expert council	VET HVET	The Council is a national body consisting of representatives of public policy bodies related to VET and LLL, social partners and representatives of regional and local government authorities. Its mission is to submit proposals and recommendations to the Ministry of Education, Religious Affairs and Sports for the design of the national VET and LLL policy, promotion of knowledge, sustainable development, utilization of human resources' capabilities, and connection of education with the labour market. The Council is supported by the Central Scientific Committee (ΚΕΕ), which conducts scientific research and provides validation for issues related to the improvement of the quality and efficiency of VET and LLL programmes. The Council can also be assisted by Sectoral Skills Councils, which, according to Law 4763/2020, may be established to systematically monitor the needs of the respective sector in terms of professional skills and the improvement of the matching of skills supply and demand.
National Skills Council	✓	-	-	-	-	Expert council	VET CET AE ALMP	The Council's objective is to align the provision of education and training with the labour market's needs. It is responsible for drafting the National Skills Strategy and monitoring its implementation. It is an independent body with 15 members from ministries, national agencies, research institutes, and social partners.
Public Higher Education Institutions/ Centres for Continuing Education and Lifelong Learning	-	-	-	-	✓	Education provider	HVET CET	Some universities and technological educational institutes offer higher vocational programmes, often in collaboration with industry partners, to provide advanced training and research opportunities. Affiliated with higher education institutions, Centres for Continuing Education and Lifelong Learning provide specialized training and certification programmes for adults seeking to enhance their skills.
Social Partners		✓	✓			Social partner	VET CET AE ALMP	Social Partners provide, inter alia, training and produce reports and studies on skills needs and skills foresights at sectoral, as well as regional and local, level, also providing advice and recommendations for national ALMPs and VET/CET/AE programmes

Legend: ✓ = Yes; - = No

Source OECD compilation based on: (European Commission Eurydice, 2023[3]; European basic skills network, 2023[4]; CEDEFOP, 2023[5]; Ministry of Education, Religious Affairs and Sports, 2023[6]; dypa, 2022[7]; CEDEFOP, 2022[8]; European Commission Eurydice, 2023[9]; Ministery of Labour and Social affairs, 2022[10]; CEDEFOP, 2021[11]; Hellenistic Adult Education Association, 2024[12]) (European Commission, EPALE, 2022[13]; DYPA, 2024[14]; European Commission Eurydice, 2023[15]; EOPPEP, 2024[16])

Stakeholders and responsibilities at the regional level

• The primary skills governance body at the regional level is the Regional Production-Labour Market Liaison Council. Each of the 13 administrative regions in Greece hosts a council. The Regions of Attica and Central Macedonia host 2 Councils each. Councils are tasked with aligning the provision of VET and Lifelong Learning with the specific needs of the local and regional labour markets. The 15 councils established under Law 4763/2020 aim to reform and enhance the VET and Lifelong Learning systems to better respond to labour market needs and promote active participation of social partners in VET planning.

• The councils’ core functions include collecting and analysing labour market and skills data to provide evidence-based recommendations to the national government institutions on tailoring provision to meet regional and local needs. Councils submit proposals and recommendations to the Central Council for VET on several aspects of VET, especially on those related to the fields and specializations available in public Higher VT Schools (SAEK), Post-Secondary – Apprenticeship Programme, public VT Schools (ΕSΚ), DYPA Apprenticeship Vocational Schools (EPAS), as well as for special courses, programmes and activities, outside the formal VET system. Additionally, the councils play a pivotal role in connecting various stakeholders at both local and regional levels, thereby facilitating the implementation of policies and programmes. It is important to note that the councils do not possess legislative powers and are not direct providers of VET services.

• At the regional level, there are various types of schools (Higher Vocational Training Schools [SAEK], Vocational Upper Secondary Schools [EPAL], Vocational Training Schools [ESK] and Post-Secondary Apprenticeship Classes), which however are not, strictly speaking, “regional” VET institutions. Thus, the public ESK and SAEK of the Ministry of Education, Religious Affairs and Sports operate as decentralised services under the General Secretariat for VET and LLL, which is responsible for their supervision. Public EPAL are secondary education units operating under the General Secretariat for Primary and Secondary Education of the Ministry of Education, Religious Affairs and Sports. DYPA EPAS, SAEK and KDVM also cater for regional (and local) VET and CVT needs.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Regional Production-Labour Market Liaison Councils	✓	✓	-	-	-	Education provider	VET CET AE	The Regional Councils operate in Greece's 13 regions, aiming to connect VET, CET, and AE provision with local and regional labour market needs. The councils collect labour market intelligence to identify local VET and lifelong learning needs and, based on this, submit recommendations on how to address these needs to the Central Council for VET. The Councils also play an important role in engaging local enterprises in traineeships and apprenticeships. The Ministry of Education, Religious Affairs and Sports and the Central Council for VET oversee the councils' activities.
VET Institutes at regional level	-	-	✓	✓	✓	Education provider	VET CET AE	There are several types of VET institutions providing VET at the regional level; these include Higher Vocational Training Schools (SAEK, formerly IEK), Vocational Upper Secondary Schools (EPAL), Vocational Training Schools (ESK) and Post-Secondary Apprenticeship Classes, as well as DYPA Apprenticeship Vocational Schools. The institutions operate under the supervision of the Ministry of Education, Religious Affairs and Sports in cooperation with other relevant competent Ministries or agencies. At the same time, regional authorities (regional education directorates) play a key role in managing and supporting the day-to-day operation of the institutions
Regional Directorate of the PES	-	-	✓	✓	✓	National agency	ALMP VET CET	At the regional level, the PES operates seven Regional Directorates.

Legend: ✓ = Yes; - = No

Source OECD compilation based on: OECD compilation based on (European Commission Eurydice, 2023[3])

Stakeholders and responsibilities at the local level

• The municipalities are the lowest level of government in Greece. As of 2021, there were 332 municipalities, further divided into 1036 municipal units and 61636 communities. The municipalities have responsibilities across various policy domains, including adult education and youth services. Municipalities may legally operate Lifelong Learning Centres, which offer a variety of education programmes, chiefly centred on general adult education and designed to enhance personal development and employability. Municipalities may also provide career guidance and counselling services and collect and analyse data on local labour market needs and trends within their jurisdiction.

• Law 4763/2020 (see above) sought to create a unified framework for VET and Lifelong Learning (CET and adult education) policies and ensure these systems are closely linked with local and regional labour market needs. In particular, the said law provided for a governance system which ensures the substantial participation of local government authorities and social partners in the design of policies both at the national and regional levels (e.g. representatives of regional and municipal authorities are members of the Central Council for VET and the Regional Production-Labour Market Liaison Councils). In 2024, pursuant to Law 5082/2024, further strengthening of the National VET System was attempted by expanding the cooperation between vocational education and vocational training and improving synergies between different levels of the National Qualifications Framework.

Table 3. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities	-	✓	✓	✓	✓	Subnational government	VET CET AE	The municipalities may run Lifelong Learning Centres and provide a range of education and training programmes for adults, including CET, and adult education. The role of the LLL centres was strengthened with the adoption of Law 4763/2020. Municipalities also collect and analyse local labour market data and provide career guidance and counselling to individuals
Lifelong Learning Centres	-	-	-	-	✓	Education provider	VET CET AE	Lifelong Learning Centres, which provide a range of education and training programmes for adults, including CET, VET, and adult education. The role of the centres was strengthened with the adoption of Law 4763/2020.
Employment promotion centres	-	-	-	-	✓	National agency	ALMP	The PES operates a network of 116 local public employment services offices known as Employment Promotion Centres.
Apprenticeship VET schools (EPAS)/ Vocational Training Institutes (IEK)	-	-	-	-	✓	National agency	VET	The PES operates a network of 50 Apprenticeship VET Schools and 30 Vocational Training Institutes (IEK)
Continuous VET Centers	-	-	-	-	✓	National agency	CET	The PES operates 6 Continuous VET Centres and 2 Continuous VET Centres for disabled persons.
Private providers	-	-	-	-	✓	Education provider	VET CET	Some vocational training programmes are provided by private schools (private IEKs) and accredited by the National Organisation for the Certification of Qualifications and Vocational Guidance.
Second chance schools (SDE)	-	-	-	-	✓	Education provider	AE	Administered by the Ministry of Education, these schools offer adults who did not complete their lower secondary education an opportunity to earn equivalent qualifications.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (European Commission Eurydice, 2023[15]) (inedivim, 2024[17]) (UNESCO, 2021[18]) (European Commission, Eurydice, 2023[19]) (CEDEFOP, 2019[20]) (DYPA, 2024[21])

References

[5] CEDEFOP (2023), Skills anticipation update 2023, https://www.cedefop.europa.eu/en/data-insights/skills-anticipation-greece-2023-update.

[8] CEDEFOP (2022), Law reforming CVET system, https://www.cedefop.europa.eu/en/news/greece-2022-law-reforming-cvet-system.

[11] CEDEFOP (2021), Vocational education and training in Europe, Greece, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/greece-u2.

[20] CEDEFOP (2019), EPAS apprenticeships, https://www.cedefop.europa.eu/en/tools/apprenticeship-schemes/scheme-fiches/epas-apprenticeships#group-governance-2019.

[21] DYPA (2024), Institute of Vocational Training of the Greek Public Employment Service, https://www.dypa.gov.gr/en/iek-dypa-arkhiki-epaghghelmatiki-katartisi.

[14] DYPA (2024), provided services, https://www.dypa.gov.gr/en.

[7] dypa (2022), National Skills Council, https://www.dypa.gov.gr/en/ethniko-simvoulio-deksiotiton-1.

[16] EOPPEP (2024), NATIONAL ORGANISATION FOR THE CERTIFICATION OF QUALIFICATION & VOCATIONAL GUIDANCE, https://eoppep.gr/index.php/en.

[4] European basic skills network (2023), Ministry of Education and Religious Affairs General Secretariat for VET and Lifelong Learning, https://basicskills.eu/current-members/ministry-of-education-and-religious-affairs-general-secretariat-for-vet-and-lifelong-learning/.

[9] European Commission Eurydice (2023), Distribution of responsibilities, https://eurydice.eacea.ec.europa.eu/national-education-systems/greece/distribution-responsibilities.

[3] European Commission Eurydice (2023), Greece, Lifelong learning strategy, https://eurydice.eacea.ec.europa.eu/national-education-systems/greece/lifelong-learning-strategy.

[15] European Commission Eurydice (2023), Main types provision, https://eurydice.eacea.ec.europa.eu/national-education-systems/greece/main-types-provision.

[13] European Commission, EPALE (2022), Electronic Platform for Adult Learning in Europe, Hellenic Adult Education Association, https://epale.ec.europa.eu/en/organisations/hellenic-adult-education-association.

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

[19] European Commission, Eurydice (2023), Organisation private education, https://eurydice.eacea.ec.europa.eu/national-education-systems/greece/organisation-private-education.

[23] Eurpean Commission EPALE (2022), Electronic Platform for Adult Learning in Europe, https://epale.ec.europa.eu/en/organisations/hellenic-adult-education-association.

[12] Hellenistic Adult Education Association (2024), Teacher’s training, https://adulteduc.gr/en/.

[17] inedivim (2024), lifelong learning centres municipalities regions, https://www.inedivim.gr/en/programmes-actions/lifelong-learning-centres-municipalities-regions-central-greece-and-south-aegean.

[10] Ministery of Labour and Social affairs (2022), Responsibilities, https://www.gov.gr/en/upourgeia/upourgeio-ergasias-kai-koinonikon-upotheseon.

[6] Ministry of Education, Religious Affairs and Sports (2023), responsibilities, https://www.gov.gr/en/upourgeia/upourgeio-paideias-kai-threskeumaton.

[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/greece.html.

[18] UNESCO (2021), Non State Actors in Education, Greece, https://education-profiles.org/europe-and-northern-america/greece/~non-state-actors-in-education.

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