This country note provides an overview of the governance of the adult skills system in Ireland. 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 Irish government reviewed the country note in February 2025, and it was published in June 2025.
The role of subnational governments in adult skills systems: Ireland

Table 1. Overall governance and expenditure structure
Copy link to Table 1. Overall governance and expenditure structure
Governance structure |
Levels of governance |
% of general government expenditure at the sub-national level |
---|---|---|
Unitary |
National: State Local: County councils, City councils (31) |
8.9% |
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?
Copy link to How is the adult skills system governed?Ireland has a combined governance model. National ministries set the legislative framework and provide funding across all policy areas, while various bodies at the regional level support local implementation, align provision with regional and local labour market needs, and inform national policies, except in Active Labour Market Policies (ALMPs).
Vocational education and training (VET), Higher VET (HVET), Continuing Education and Training (CET) and adult education (AE) (VET and AE are commonly referred to as further education and training), policies are developed and funded at the national level by national ministries and related agencies (e.g. the Further Education and Training Authority, An tSeirbhís Oideachais Leanúnaigh agus Scileanna (SOLAS)). However, multiple bodies seek to align provision with regional and local needs (e.g. the Education and Training Boards (ETBs), the Regional Skills Fora (Fóraim Réigiúnacha Scileanna) and the Regional Assemblies). Various councils also support national policies, including the National Skills Council (An Chomhairle Náisiúnta Scileanna) and Skillnet Ireland.
The Department for Social Protection (an Roinn Cosanta Sóisialta í) designs and provides funding for Active Labour Market Policies (ALMPs), which are delivered through a structure of deconcentrated local branches of the Irish Public Employment Service (PES), Intreo, and Intreo Partner Contracted Public Employment Services, which target, e.g. the long-term unemployed. The Department of Social Protection is also responsible for targeted schemes, including those for people with disabilities (e.g., the WorkAbility Inclusive Pathways to Employment Programme).
The Department of Rural and Community Development, with the support of the state agency Pobal, is responsible for the Social Inclusion and Community Activation Programme (SICAP), which supports skills development of disadvantaged individuals, including lone parents, travellers and Roma, and refugees.
Table 2. Allocation of responsibilities across policy areas and levels of government
Copy link to 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
Copy link to 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
Copy link to Stakeholders and responsibilities at the national levelAt the national level, several stakeholders have the responsibility for setting the legislative framework and overseeing the local implementation of national adult skills policies.
The Department of Further and Higher Education, Research, Innovation and Science (An Roinn Breisoideachais agus Ardoideachais, Taighde, Nuálaíochta agus Eolaíochta) sets the legislative framework for Further Education and Training (FET) in Ireland via the Further Education and Training Act 2013), and channels state funding to SOLAS, which allocates funding to the 16 regional Education and Training Boards (ETBs). The ETBs coordinate local FET provision. SOLAS, as the state agency responsible for FET in Ireland, sets the national strategy for FET. Under the Education and Training Board Act 2013, the Department of Education is responsible for the corporate governance of the Education and Training Boards.
The national government benefits from input from the Expert Group on Future Skills Needs (Grúpa Saineolaithe ar Riachtanais Scileanna sa Todhchaí), which is supported by the Skills and Labour Market Research Unit (SLMRU), the National Skills Council, the High-Level Skills Implementation Group, Regional Skills Fora and Skillnet Ireland, which provides insights on skills needs in businesses and industries. Skillnet Ireland is also a direct provider of CET, AE, education and training opportunities for the unemployed in partnership with Irish businesses.
Quality and Qualifications Ireland (Dearbhú Cáilíochta agus Cáilíochtaí Éireann) is the body responsible for quality assurance across VET, HVET, CET and AE provisions in Ireland.
The Department of Social Protection designs ALMPs with advice from the Labour Market Advisory Council (An Chomhairle Saineolais um an Margadh Saothair), which provides external oversight in the monitoring of the implementation of ALMPs. The WorkAbility Inclusive Pathways to Employment Programme's targeted scheme was developed with support from Pobal, and Pobal monitors its implementation.
The Department of Rural and Community Development is responsible for the Social Inclusion and Community Activation Programme (SICAP) and channels funding to Local Community Development Committees (LCDCs) through the Local Authorities. It sets the policy context, priorities, and programme targets and is the final arbiter concerning SICAP. Pobal manages the programme setup and design on behalf of the department.
Table 3. Stakeholders and responsibilities at the national level
Copy link to Table 3. Stakeholders and responsibilities at the national level
Name of institution |
Responsibilities |
Organisation type |
Areas |
Description |
||||
---|---|---|---|---|---|---|---|---|
Strategy |
Intelligence |
Implementation |
Funding |
Delivery |
||||
Department of Further and Higher Education, Research, Innovation and Science (An Roinn Breisoideachais agus Ardoideachais, Taighde, Nuálaíochta agus Eolaíochta) |
✓ |
✓ |
- |
✓ |
- |
Ministry |
HVET |
The Department is responsible for developing and designing VET and AE policies. The Department funds AE providers, including Education and Training Boards, through SOLAS, the Further Education and Training Authority. The Department is also responsible for policy, funding, and governance of HVET. Two ministers serve the department: the minister for further and higher education, research, innovation, and science, and the minister of state, who is responsible for skills and further education. The Department cooperates closely with the Regional Skills Fora to align HVET provision with regional and local needs. |
Department of Social Protection (An Roinn Cosanta Sóisialta ) |
✓ |
✓ |
- |
✓ |
- |
Ministry |
ALMP |
The Department oversees the design, implementation, and funding of ALMPs and runs the Irish PES (Intreo) through a network of deconcentrated centres and local offices. It also funds the research work carried out by the Labour Market Advisory Council. |
Further Education and Training Authority – SOLAS (An tSeirbhís Oideachais Leanúnaigh agus Scileanna) |
- |
✓ |
✓ |
✓ |
- |
National agency |
VET HVET CET AE |
The Authority operates under the Department of Further and Higher Education, Research, Innovation and Science and is central to the VET, HVET, CET and AE systems. It oversees and allocates funding for the ETBs. Its strategic responsibilities include designing AE policies, approving each ETB's adult education and training plans, and submitting five-year strategies in VET and Further Education and Training. Furthermore, it researches to inform program development. |
Skillnet Ireland |
- |
✓ |
✓ |
- |
✓ |
National agency |
CET AE |
The agency supports businesses in re- and upskilling their employees to enhance productivity, competitiveness, and sustainability. It also provides information, recommendations, and data to inform national and sectoral policies. The state budget and business contributions partly fund the agency. |
Quality and Qualifications Ireland (Dearbhú Cáilíochta agus Cáilíochtaí Éireann) |
- |
- |
✓ |
- |
- |
National agency |
VET HVET AE |
The agency is responsible for developing and publishing guidelines for quality assurance for individual VET and HVET providers and overseeing the quality assurance carried out in individual education institutions, ETBs, and private providers of VET, HVET, and AE. It is also responsible for maintaining the National Framework of Qualifications. The Department of Education and Youth oversees the agency. |
Pobal |
✓ |
✓ |
✓ |
National agency |
AE |
Pobal works on behalf of the Government and in conjunction with communities and local agencies to support social inclusion and local and community development. The agency provides grant management and support services to 41 programmes in Social Inclusion and Equality, Inclusive Employment and Enterprise, and Early Years and Young People on behalf of different Government Departments and several EU bodies. |
||
High-Level Skills Implementation Group |
✓ |
✓ |
- |
Multi-level governance cooperation |
HVET CET AE |
The High-Level Skills Implementation Group is an intra-governmental group that supports setting skills priorities and their implementation across different parts of the government. It aims to promote a whole-of-government approach to skills policy implementation. It comprises members from five different government departments and twelve national agencies with roles and responsibilities in skills policy. |
||
National Skills Council (An Chomhairle Náisiúnta Scileanna) |
- |
✓ |
- |
- |
- |
Expert council |
VET |
The National Skills Council, initially launched in April 2017, has recently been reformed based on recommendations from the OECD Skills Strategy Review to strengthen the governance of Ireland’s national skills system. A Council with reconfigured membership acts as a platform for strategic engagement with industry, social partners, community pillars and other non-governmental stakeholders with a strong interest in skills and workforce development policy, facilitating a high-level and broad perspective on skills challenges, policies and priorities. |
The Expert Group on Future Skills Needs (Grúpa Saineolaithe ar Riachtanais Scileanna sa Todhchaí) |
- |
✓ |
- |
- |
- |
Expert council |
VET |
The Expert Group comprises representatives of government departments, social partners, VET, and higher education authorities and advises the Irish Government on education policies to match the labour market's needs at the national level and in specific sectors. It reports to the Irish Government, including the Department of Education and Youth, and is funded by the Department of Education and Youth. |
The Labour Market Advisory Council (An Chomhairle Saineolais um an Margadh Saothair) |
- |
✓ |
- |
- |
- |
Expert council |
ALMP |
The council, established in 2020, is tasked with supporting the development of employment policies and programmes in cooperation with the Department of Social Protection. Members include academics, representatives from business, unions and civil society, and representatives of various ministerial departments. |
Legend: ✓ = Yes; - = No
Source: OECD compilation based on (Condon, 2020[3]; OECD, 2021[4]; Cedefop; SOLAS - Further Education and Training Authority, 2022[5]; European Commission, Eurydice, 2023[6]; National Enterprise Hub, 2024[7]; OECD, 2024[8])
Stakeholders and responsibilities at the regional level
Copy link to Stakeholders and responsibilities at the regional levelThe regional level comprises three regional assemblies formed by the local governments and includes the Eastern and Midland Regional Assembly, the Northern and Western Regional Assembly, and the Southern Regional Assembly. The regional assemblies have no statutory responsibilities for designing or implementing adult skills policies. Still, they are in charge of regional development, including adopting long-term Spatial and Economic Strategies, managing EU funds, linking general local and national educational and skills objectives, and helping coordinate local authorities' work. In addition to the regional assemblies, the following bodies operate at the regional level:
The Regional Skills Fora plays a key role in the adult skills system by providing bottom-up information on regional skills needs to guide the national skills agenda and align provision with the needs of regional and local areas. The Skills Fora also plays a key role in supporting employers in re-skilling their workforce.
The ETBs are the leading provider of publically funded VET, CET and AE programmes in Ireland. They operate at the regional level to adjust education and training provision to regional and local needs.
Vocational schools operate regionally to provide VET and are coordinated by the ETBs.
Table 4. Stakeholders and responsibilities at the regional level
Copy link to Table 4. Stakeholders and responsibilities at the regional level
Name of institution |
Responsibilities |
Organisation type |
Areas |
Description |
||||
---|---|---|---|---|---|---|---|---|
Strategy |
Intelligence |
Implementation |
Funding |
Delivery |
||||
Regional assemblies |
- |
- |
- |
- |
- |
VET CET AE |
The regional assemblies were set up by the Local Government Reform Act 2014 and are part of the local government structure. They operate independently to provide a range of functions for the Region, including regional policy-making, monitoring and oversight and promoting enhanced regional coordination. The regional assemblies have no statutory responsibilities for designing or implementing adult skills policies in Ireland. However, they support the implementation of skills policies in local areas and aim to link national and local policy objectives. The assemblies develop long-term (12-year) strategies for regional development, which also cover questions on skills provision. They also produce research on several issues, including education and training, and set general educational objectives for the regions. |
|
Regional Skills Fora (Fóraim Réigiúnacha Scileanna) |
- |
✓ |
✓ |
- |
- |
National agency |
VET HVET CET AE |
A network of nine Regional Skills Fora was established in the National Skills Strategy: Ireland’s Future 2025, launched in 2016. The Regional Skills Fora aim to provide bottom-up labour market information and analysis to inform national skills policy and development. The fora also serve as regional one-stop-shops for re- and upskilling for employers. They collect data on employers’ skills needs and help design tailor-made reskilling/upskilling programmes. They work closely with the Further Education and Training Authority and set regional skills development strategies. Members include employers, education and training providers, e.g. the ETBs, Skillnet Ireland, Chambers of Commerce and Government bodies, e.g. the Local Authorities. They work closely with the Department of Further and Higher Education, Research, Innovation and Science to align with the national skills policies and objectives. |
Education and Training Boards - ETBs |
- |
- |
✓ |
✓ |
✓ |
National agency |
VET CET AE |
The 16 ETBs operate at the regional level but are constituted by the local government. They are the driving bodies for developing, implementing and funding VET, CET and AE policies in their respective areas. Each board has 21 members comprising local authority representatives, members from bodies representing community and business interests, staff representatives, and parents’ representatives. The activities of the ETBs are coordinated and overseen by the Further Education and Training Authority. For VET provision, the boards are responsible for administering the vocational schools offering VET at the upper-secondary level. For AE, the boards run a range of adult and further education centres. The ETBs are also responsible for quality control of the VET and adult education offers. |
Vocational schools |
- |
- |
- |
- |
✓ |
Education provider |
VET |
The schools which offer secondary-level education are established by the state but administered and coordinated by the ETBs. The 248 vocational schools are organised in a specific regional structure coordinated by the 16 regional ETBs. |
Legend: ✓ = Yes; - = No
Source: OECD compilation based on (etbi, 2024[9]; Irish Government, 2024[10]; 2024[11]; OECD, 2024[8]; Skills Ireland, 2024[12])
Stakeholders and responsibilities at the local level
Copy link to Stakeholders and responsibilities at the local levelThere are 31 local authorities in Ireland; most are county councils with limited responsibility in the adult skills system. However, while the ETBs operate at the regional level, they are constituted by local government. In addition, various providers operate locally to deliver VET, HVET, CET and ALMPs.
Community and comprehensive schools (Scoileanna Pobail agus Cuimsitheacha) are funded by the national government and offer a mix of VET and AE programmes. Institutes of Technology and Technological Universities mainly provide HVET and some VET and CET programmes.
Other AE providers include specialist training providers targeting people with disabilities and assisting individuals entering or re-entering the labour market. The regional ETBs are responsible for operating a wide range of ETB adult education providers, including, e.g. community training centres providing inclusive AE and VET locally to early school leavers between 16 and 21 years, which benefit from a mix of government funds and EU funds. Other providers, overseen by the ETBs, include second-level schools, further education colleges, Training Centres and a range of adult and further education centres operating across Ireland. At the same time, AE is also offered in e.g. Higher Education Institutions. In general, a range of programmes in AE and CET are provided at the local level, such as the Post Leaving Certificate programme, which provides job-specific training and targets adults looking to re-establish and upskill and people who have finished second-level education.
Intreo centres are administered by the Department of Social Protection and operate in a deconcentrated network to provide ALMPs to mainly short-term unemployed people. The National and Local Area contracted employment services target and support long-term unemployed people and other vulnerable groups to enter or re-enter the labour market.
57 organisations are delivering WorkAbility at a local level. Providers are community and voluntary not-for-profit organisations.
SICAP is managed at the local level by the LCDCs, which are multi-agency committees established under the Local Government Reform Act 2014, made up of representatives from the statutory and community and voluntary sectors.
Table 5. Stakeholders and responsibilities at the local level
Copy link to Table 5. Stakeholders and responsibilities at the local level
Name of institution |
Responsibilities |
Organisation type |
Areas |
Description |
||||
---|---|---|---|---|---|---|---|---|
Strategy |
Intelligence |
Implementation |
Funding |
Delivery |
||||
County councils |
- |
- |
- |
- |
- |
Subnational government |
N/A |
The county councils constitute the ETBs, and representatives of the county councils participate in the ETBs and the Regional Skills Fora at the regional level. |
Intreo centres |
- |
✓ |
✓ |
- |
✓ |
National agency |
ALMP |
The local network of deconcentrated centres delivers ALMPs and job search assistance to (mainly) short-term unemployed and is established as a one-stop shop for job seekers. The Department of Social Protection administers the centres. Individual offices allocate training support grants to jobseekers and make referrals to short-term training and courses for in-demand skills. The centres are not direct training providers but refer the unemployed to re- and upskilling opportunities, including VET and AE. |
The National and Local Area Employment Services |
- |
✓ |
✓ |
- |
✓ |
National agency |
ALMP |
The Intreo Partner National and Local Area Employment Services target the long-term unemployed and other disadvantaged groups and provide a range of services and facilities to assist them in entering or re-entering employment. They serve as a single point of contact for all employment and income support. |
Community and comprehensive schools (Scoileanna Pobail agus Cuimsitheacha) |
- |
- |
- |
- |
✓ |
Education provider |
VET AE |
The 96 schools offer vocational education and academic courses and are funded by the Department of Education. AE is typically provided in vocational schools as an ‘add-on service’ and provided as evening and night classes across Ireland. It targets a wide range of qualifications, including formal and informal learning. |
Institutes of technology & Technical Universities |
- |
- |
- |
- |
✓ |
Education provider |
VET HVET CET |
The institutions and universities provide HVET and some VET and CET programmes. They receive funding from various sources, including the national government, EU funds and industry partnerships. They are overseen by the Department for Further and Higher Education, Research and Innovation. |
ETB Adult education providers |
- |
- |
- |
- |
✓ |
Education provider |
AE |
The ETBs run several adult education centres of varying sizes throughout Ireland. These centres provide basic adult education for adults, including courses on literacy, numeracy, community education, and specific upskilling for employment. The ETBs also run community education providers providing adult learning outside the formal adult education system. The community education offering is a national response to vulnerable groups, educationally or economically disadvantaged, and provides second chance education and training for early school leavers aged 16-21 years. Training and education offered in the community centres are funded via the national government, EU funds, and the ETBs. The centres are run locally by community groups and organisations. |
Legend: ✓ = Yes; - = No
Source: OECD compilation based on (Condon, 2020[3]; OECD, 2021[4]; Cedefop; SOLAS - Further Education and Training Authority, 2022[5]; European Commission, Eurydice, 2023[13]; European Commission, Eurydice, 2023[6]; OECD, 2023[14]; OECD, 2024[8])
References
[5] Cedefop; SOLAS - Further Education and Training Authority (2022), Vocational education and training in Europe - Ireland: system description, [From Cedefop; ReferNet. Vocational education and training in Europe database], https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/ireland-u2.
[3] Condon, N. (2020), Vocational education and training for the future of work: Ireland, Cedefop ReferNet thematic perspectives series., https://www.solas.ie/f/70398/x/e9031eaddf/vocational_education_training_future_work_ireland_cedefop_refernet.pdf.
[9] etbi (2024), About ETBs, https://www.etbi.ie/etbs/.
[13] European Commission, Eurydice (2023), 8. Adult education and training, https://eurydice.eacea.ec.europa.eu/national-education-systems/netherlands/adult-education-and-training.
[6] European Commission, Eurydice (2023), Adult Education and Training Funding, https://eurydice.eacea.ec.europa.eu/national-education-systems/ireland/adult-education-and-training-funding.
[11] Irish Government (2024), Find support to train your staff with Regional Skills, https://www.gov.ie/en/service/a54e5-find-support-to-train-your-staff-with-regional-skills/?referrer=https://www.gov.ie/regionalskills/.
[10] Irish Government (2024), Regional Skills Fora Insights, https://www.gov.ie/en/publication/53d74-regional-skills-fora-2023-insights/.
[7] National Enterprise Hub (2024), Skillnet Ireland, https://www.neh.gov.ie/business-supports/skillnet-ireland-training-programme.
[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.
[8] OECD (2024), Report on relevant international practices in the field of skills governance, OECD Publishing, Paris, https://www.oecd.org/content/dam/oecd/en/about/programmes/dg-reform/sweden/Strengthening-the-governance-of-the-Swedish-skills-system-report-on-relevant-international-practices-in-the-field-of-skills-governance.pdf.
[14] 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.
[4] OECD (2021), Disability, Work and Inclusion in Ireland: Engaging and Supporting Employers, OECD Publishing, Paris, https://doi.org/10.1787/74b45baa-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/ireland.html.
[12] Skills Ireland (2024), All Publications, https://www.skillsireland.ie/all-publications/.
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