The role of subnational governments in adult skills systems: Japan

Table of contents

• How is the adult skills system governed?
• Stakeholders and responsibilities at the national level
• Stakeholders and responsibilities at the regional level
• Stakeholders and responsibilities at the local level
• About the Local Employment and Economic Development Programme (LEED)
• About the Centre for Entrepreneurship, SMEs, Regions and Cities

This country note provides an overview of the governance of the adult skills system in Japan. 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 Japanese government reviewed the country note in March, 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: the state Regional: Prefectures (todofuken) (47) Local: municipalities (shikuchouson) (1747)	15.2%
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: https://www.sng-wofi.org/country-profiles/

How is the adult skills system governed?

Japan has a long history of investing in lifelong learning policies. Given the country's demographic challenges, the system strongly focuses on education for the elderly.

• The central government, primarily through the Ministry of Health, Labour and Welfare and the Ministry of Education, Culture, Sports, Science and Technology, sets overarching policies and strategic directions of adult skills development across all policy areas. The central government establishes standards and regulations for educational institutions and training programmes, allocates funding for national programmes, and provides subsidies to local government initiatives. In addition, many Vocational Education and Training (VET) and Higher VET (HVET) programmes are managed and delivered at the national level by Colleges of Technology (kōtō-senmon-gakkō) and Specialised Training Colleges (senmon-gakkō).

• Local governments (prefectures and municipalities) are responsible for adapting and implementing national strategies to meet regional and local needs. Prefectures and municipalities oversee some public vocational schools, including Colleges of Technology, Specialised Training Colleges and Junior Colleges (Tanki Daigaku). They also operate adult education centres that provide adult education (AE) and Continued Education and Training (CET). Local governments are responsible for securing funding through regional/local budgets and partnerships.

• Active Labour Market Policies (ALMPs) are mainly overseen by the public employment services offices (named Hello Work) and the Japan Organization for Employment of the Elderly, persons with Disabilities and Job Seekers (JEED). Both agencies focus not only on general job seekers but also on vulnerable ones, including the elderly and persons with disabilities, and are connected to regional and local areas through a nationwide network.

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, the following stakeholders play a key role in the adult education system:

• The Ministry of Health, Labour, and Welfare oversees most of VET programmes and ALMPs, while the Ministry of Education, Culture, Sports, Science, and Technology is responsible for most of the education system, including higher education institutions and adult education.

• National agencies include the Japan Organization for Employment of the Elderly, Persons with Disabilities and Job Seekers (JEED), which is responsible for implementing ALMPs and some VET programmes, and the National Institution for Academic Degrees and Quality Enhancement of Higher Education, which is responsible for quality assurance of higher education and vocational education.

• Multiple expert councils, including the Central Council for Education, the Labour Policy Council, and its Branch Council for Human Resources Development, provide the government with advice and intelligence on adult education policies.

• VET and HVET are provided by Colleges of Technology and Specialised Training colleges operated by the national government, local governments or (to a large extent) private providers.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Health, Labour and Welfare (MHLW)	✓	✓	-	✓	-	National government	VET CET ALMP	The Ministry oversees vocational training programmes, employment services, and ALMPs. It plays a key role in setting labour market policies and strategies for skills development. It also provides funding to the Public Employment Service, vocational training programmes, and other initiatives related to job creation and retraining programmes.
Ministry of Education, Culture, Sports, Science and Technology (MEXT)	✓	✓	-	✓	-	National government	VET HVET CET AE	The Ministry plays a key role in comprehensively promoting education policies from early childhood to higher education, including universities and vocational colleges. It formulates policies and guidelines for educational institutions and develops policies aimed at enhancing lifelong learning and continuing education. It also provides financial support through various funding schemes.
Japan Organization for Employment of the Elderly, Persons with Disabilities and Job Seekers (JEED)	-	✓	✓	✓	-	National agency	VET AE ALMP	This is an independent agency under the Ministry of Health, Labour, and Welfare focused on employment support and skills development for vulnerable populations, including the elderly and persons with disabilities. It administers employment support programmes and vocational training initiatives, working closely with the Public Employment Service. The agency operates local offices across Japan.
National Institution for Academic Degrees and Quality Enhancement of Higher Education (NIAD-QE)	-	✓	✓	-	-	National agency	HVET	The institution is responsible for quality assurance in Japan's higher education and vocational education. It sets national standards for academic degrees and ensures the overall quality of higher education institutions, including vocational colleges and universities. The institution operates under the Ministry of Education, Culture, Sports, Science and Technology.
Japan Vocational Ability Development Association (JAVADA)	-	✓	✓	-	-	Association	VET HVET	This non-profit organisation promotes vocational ability development through competitions, skills tests, and research, contributing to the enhancement of vocational skills nationwide.
The Central Council for Education	-	✓	-	-	-	Expert council	VET HVET CET AE	The council advises the Ministry of Education, Culture, Sports, Science and Technology on all matters related to education policy, including AE, VET and lifelong learning. It provides recommendations on the national educational framework, curricula, and reforms. It comprises experts in education, academia, government officials, industry representatives and representatives from trade unions
The Labour Policy Council	-	✓	-	-	-	Expert council	ALMP	The council, operating under the Ministry of Health, Labour and Welfare, provides expert advice and recommendations on labour policies, including ALMPs. Its members include government representatives, academics, labour unions, business representatives, and social policy and economics experts.
Branch Council for Human Resources Development		✓				Expert council	VET HVET AE	This is one of the branch councils of the Labour Policy Council and is a government advisory body on policies relating to development and improvement of vocational skills, including public vocational training, skills test and others.
The Japan Industrial Training Association	-	✓	-	-	-	Association	VET	The association is focused on improving the industrial training system in Japan. It provides guidance on developing and enhancing vocational training programmes, with a specific focus on the manufacturing and industrial sectors. It includes experts from industries, vocational training providers and government agencies.
Colleges of Technology/ polytechnic schools (kōtō-senmon-gakkō)	-	-	-	-	✓	Education provider	VET	There are 63 technology colleges in Japan, a mix of national, public (local government), and private institutions. They are typically located in major cities within the prefecture. Students are primarily high school graduates or adults seeking to gain technical skills for specific industries. They provide upper vocational education and technical training.
Specialised Training Colleges (Senmon Gakkou)	-	-	-	✓	✓	Education provider	HVET	These educational institutions offer specialised higher vocational training in various fields, including agriculture, medical care and social welfare. They provide practical, hands-on education to prepare students for specific careers or industries. They typically offer more focused programmes than universities and emphasise practical training and internships. They are run by the state and local governments, private institutions, and non-profit organisations.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2021[2]), (OECD, 2024[3]), (OECD, 2023[4]), (Eswein, Alexander and Pilz, 2023[5]), (Unesco, 2024[6]), (NIAD-QE, 2025[7]) (JEED, 2025[8]), (JACEEX, 2025[9]), (MEXT, 2025[10]), (Tokhimo, 2025[11]), (Japan Living Guide, 2025[12]), (Japan Living Guide, 2025[13]), (VHS, 2025[14]), (Hai Le and Billet, 2022[15])

Stakeholders and responsibilities at the regional level

At the regional level, the prefectural governments (todōfuken) are responsible for translating national education, vocational training, and employment policies into regional initiatives. They operate in parallel with regional branches of national government agencies and some providers:

• The prefectural governments, in the form of a Board of Education, operate some Colleges of Technology, Specialised Training Colleges and Junior Colleges, as well as some public educational institutions for adult learning. They often co-operate with the regional PES (Hello Work offices) to implement employment services. They support providing vocational education and guidance to job seekers, especially in sectors with local demand for skilled workers.

• The Prefectural Labour Bureau are regional branches of the MHLW. They operate to coordinate services across prefectures. In addition, JEED operates prefectural offices and large regional centres for persons with disabilities.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Prefectural Governments/ Board of Education	-	-	✓	✓	✓	Subnational government	VET	The prefectural government operates some vocational training centres and collaborates with the local PES offices (Hello Work offices) to implement employment services. It supports providing vocational education and guidance to job seekers, especially in sectors with local demand for skilled workers. It also manages the regional funding allocation for educational and training programmes, including subsidies.
Prefectural Labour Bureaus	-	-	-	-	✓	National agency	ALMP	These are regional centres that coordinate efforts across different prefectures. They ensure the integration of services with local employment initiatives, tailoring services to meet regional labour market needs.
JEED prefectural offices			✓			National agency	VET ALMP	JEED operates prefectural offices in all prefectures. Many of these offices have polytechnic centres, which assist various stakeholders in providing job seekers with support, training, and examining training plans, as well as implementing training programmes.
JEED large regional centres for persons with disabilities				✓	✓	National agency	VET ALMP	These centres function as both vocational centres for individuals with disabilities and as centres for developing vocational abilities for individuals with disabilities. They accept individuals with disabilities who require specialised support for vocational training from across the country and offer vocational rehabilitation services, including vocational guidance.
Junior colleges (Tanki Daigaku)	-	-	-	✓	✓	Education provider	HVET	The junior colleges are overseen by the Ministry of Education, Culture, Sports, Science, and Technology at the national level. They tend to be operated by municipal or prefectural governments or private organisations.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2021[2]), (OECD, 2024[3]), (OECD, 2023[4]), (Eswein, Alexander and Pilz, 2023[5]), (Unesco, 2024[6]), (NIAD-QE, 2025[7]) (JEED, 2025[8]), (JACEEX, 2025[9]), (MEXT, 2025[10]), (Tokhimo, 2025[11]), (Japan Living Guide, 2025[12]), (Japan Living Guide, 2025[13]), (VHS, 2025[14]), (Hai Le and Billet, 2022[15])

Stakeholders and responsibilities at the local level

The local government level in Japan is the municipalities, which includes cities, special wards, towns and villages (known collectively as shikuchōson). They focus on delivering services and programmes that meet the specific needs of their local populations, including in the adult education area:

• Municipalities manage lifelong learning centres (Shōgai Gakushū Sentā) and public community learning centres (kōminkan) to provide basic adult education programmes and community learning programmes to citizens. They may also operate vocational schools.

• The MHLW operates local Hello Work offices to provide job placement, counselling and training support. These offices tend to collaborate with municipalities to support local delivery. In addition, JEED runs local vocational centres for persons with disabilities/human resources development promotion centres.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities/local board of education	-	-	✓	✓	✓	Subnational government	CET AE	Municipalities are directly responsible for providing a range of adult education programmes which focus on promoting lifelong learning and helping individuals acquire new skills or improve existing ones. They operate adult education centres (sometimes called community learning centres) that offer general education, literacy programmes, and continuing education for adults. Municipalities may also be involved in vocational training programmes and may operate local vocational training centres
Hello Work offices (PES offices)	-	-			✓	National agency	ALMP	Hello Work offices (public employment service offices), operated by the Ministry of Health, Labour and Welfare, provide job placement services, career counselling, job search support and employment-related training. They are integral to the implementation of ALMPs. With over 600 offices connected through a nationwide network, they ensure that jobseekers can register and access various PES services in urban and rural areas
Local JEED vocational centres for persons with disabilities/human resources development promotion centres	-	-	-	-	✓	National agency	VET ALMP	The JEED operates local centres across Japan to deliver services to its target groups. These offices often work closely with Hello Work offices, local governments, vocational schools and other partners.
Lifelong Learning Centres (Shōgai Gakushū Sentā)					✓	Education provider	CET AE	These centres are municipally run institutions designed to promote lifelong learning within communities. They offer various educational opportunities for people of all ages, focusing on social inclusion, skills development, and community engagement, including for older citizens.
Community learning centres (Kōminkan)	-	-	-	-	✓	Education provider	AE	These centres are often run by municipal governments or local boards of education and provide a broad range of public education programmes and community activities. They focus mostly on community engagement, public services, and informal learning activities. Municipalities are directly responsible for managing the centres, including funding, curriculum development, and training programme provision.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2021[2]), (OECD, 2024[3]), (OECD, 2023[4]), (Eswein, Alexander and Pilz, 2023[5]), (Unesco, 2024[6]), (NIAD-QE, 2025[7]) (JEED, 2025[8]), (JACEEX, 2025[9]), (MEXT, 2025[10]), (Tokhimo, 2025[11]), (Japan Living Guide, 2025[12]), (Japan Living Guide, 2025[13]), (VHS, 2025[14]), (Hai Le and Billet, 2022[15])

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