The role of subnational governments in adult skills systems: Luxembourg

This country note provides an overview of the governance of the adult skills system in Luxembourg. 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 Luxembourg Government reviewed the country note in December 2024 and published it 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: L'État Local: Communes (100)	10.5%
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?

The adult skills system in Luxembourg is highly centralised and characterised by a strong tradition of collaboration with social partners:

• Vocational Education and Training (VET), Continued Education and Training (CET) and adult education (AE) are overseen by the Ministry of Education, Children and Youth (Ministère de l'Éducation nationale, de l'Enfance et de la Jeunesse) with support from multiple stakeholders operating under the Ministry, including the National Institute for the Development of Continuing Vocational Training (Institut national pour le développement de la formation professionnelle continue). VET is provided mainly by Vocational Training Centres (Centre de Compétences) while CET and AE are delivered by National Training Centres (CNFPC) (Centre national de formation professionnelle continue).

• Higher VET (HVET) is overseen by the Ministry of Higher Education and Research (Ministère de la Recherche et de l'Enseignement supérieur) and mainly delivered by Higher Technical schools (Brevet de Technicien Supérieur).

• The Ministry of Labour (Ministère du Travail) is responsible for the design of Active Labour Market Policies (ALMPs), which are delivered by the national Public Employment Service, (l’Agence pour le développement de l’emploi (ADEM)).

• There is no regional governance level in Luxembourg, and municipalities operating at the local level have limited responsibilities in the adult skills system. Some municipalities provide non-formal adult learning opportunities for citizens in their area often in cooperation with non-profit organisations and private providers that operate both at local and national levels.

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	✓	✓	✓	✓	✓
	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, three ministries (the Ministry of Education, Children and Youth, the Ministry of Higher Education and Research, and the Ministry of Labour) are responsible for setting the strategy and legal framework for adult skills policies. They do so in close cooperation with various tripartite expert councils that analyse the labour market and skills situation and advise the ministries on new skills policies. These include the Permanent Committee on Labour and Employment (Comité Permanent du Travail et de l’Emploi) and the Tripartite Advisory Committee on Vocational Training (Comité consultative tripartite de la formation professionelle).

• Social partners through the five national Chambers play a central role in the adult skills system. They are responsible for identifying training needs in the labour market, providing guidance and information on training, organising and delivering VET, CET and AE programmes, designing training frameworks, accreditation of training companies, etc. The Chamber of Employees runs the Luxembourg Lifelong Learning Centre, which provides CET programmes.

• Most adult education and training programmes are delivered nationally by the Vocational Training Centres, Higher Technical Schools, the University of Luxembourg Competence Centre (Le Competence Centre), the National Training Centres and the Public Employment Service.

• The European Social Fund Plus (ESF+) in Luxembourg helps people by improving and modernising their education and training, supporting career guidance, fighting early school leaving and boosting the integration of migrants into the school system.

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, Children and Youth, (Ministère de l'Éducation nationale, de l'Enfance et de la Jeunesse)	✓	✓	✓	✓	-	Ministry	VET CET AE	The ministry is responsible for setting the legislative framework, allocating funds, and designing curricula and training programmes for VET, CET, and adult education. It does so in close cooperation with social partners. The ministry is also responsible for training job seekers in cooperation with the Ministry of Employment. The Ministry implements adult education through the Adult Education Service (Service de la Formation des Adultes).
Ministry of Higher Education and Research (Ministère de la Recherche et de l'Enseignement supérieur)	✓	✓	✓	-	-	Ministry	HVET	The Ministry is responsible for the co-ordination of the provision of HVET programmes provided by the University of Luxembourg
Ministry of Labour (le Ministère du Travail)	✓	✓	✓	✓	-	Ministry	VET ALMP	The ministry is responsible for ALMPs and guidance, counselling services, and adult skills development programmes. It oversees the Public Employment Service (ADEM) and administers the training institute École Supérieure du Travail, which provides training for employees, self-employed people, employers seeking to upskill their workers, jobseekers, and apprentices.
National Institute for the Development of Continuing Vocational Training (Institut national pour le développement de la formation professionnelle continue)	-	✓	-	-	-	National agency	CET AE ALMP	The institute, overseen by the Ministry for Education, Children, and Youth, focuses on up- and re-skilling adults to meet labour market needs. It conducts information campaigns, publishes adult education and CET analyses, and includes members from foreign ministries and chambers. The institute manages an adult education information portal and monitors training provision through the Training Observatory, which studies and analyses training and employment policies.
The Public Employment Service, (l’Agence pour le développement de l’emploi, ADEM)	-	✓	✓	✓	✓	National Agency	VET AE ALMP	ADEM operates under the supervision of the Ministry of Labour and is responsible for providing vocational guidance services and implementing ALMPs. The agency supports placements into initial and continued VET programs (e.g. apprenticeships). ADEM organises and offers several training schemes for job seekers, carries out in-house training for specific sectors, and supports on-the-job training.
Permanent Committee on Labour and Employment (Comité Permanent du Travail et de l’Emploi)	-	✓	-	-	-	Expert council	VET HVET CET AE ALMP	A tripartite consultative body with the primary role of bringing together representatives from the government, employers and employees to discuss and coordinate policy related to employment, working conditions and labour market issues. The committee analyses skills demands and provides recommendations on adjustment of policies to labour market needs to the government
VET steering group (groupe de pilotage)	-	✓	-	-	-	Expert council	VET	The VET steering group is responsible for guiding and overseeing the implementation of VET policies and initiatives. It brings together various stakeholders, including representatives from government, the chambers of commerce, employer organisations and trade unions. It plays a key role in updating and designing VET curricula, and in monitoring the performance and outcomes of VET programmes. It is overseen by the Ministry of Education, Children and Youth
Tripartite Advisory Committee on Vocational Training (Comité consultative tripartite de la formation professionelle)	✓	-	-	-	-	Expert council	VET	The committee comprises representatives from trade unions, employers’ organisations and the government and is supervised by the Ministry of Education, Children and Youth. Its main role is to provide consultation and advice on policies related to VET.
Professional chambers (Chamber of Commerce, Chamber of Trades and Skilled Crafts, Chamber of Agriculture, Chamber of Employees, Chamber of Civil Servants and Public Employees)	-	✓	✓	-	✓	Social partner	VET CET AE	The chambers are created by law and act as self-governing institutes. There are five chambers (listed to the left) supervised by the government but enjoying financial autonomy. Membership is compulsory for employees and private companies. Among their responsibilities are identifying training needs in the labour market, providing guidance and information on training, organising and delivering training, designing training frameworks, accreditation of training companies, etc. The Chamber of Employees operates the Luxembourg Lifelong Learning Centre (LLLC), a continuous vocational training centre that offers short-term training courses.
Vocational Training Centres (Centre de Compétences)	-	-	-	-	✓	Education provider	VET	The centres are overseen by the Ministry of Education, Children and Youth, collaborating with the chambers to provide VET for youth and adults.
Higher Technical schools (Brevet de Technicien Supérieur)	-	-	-	-	✓	Education provider	HVET	These institutions are overseen by the Ministry of Education, Children and Youth and offer higher VET programmes for students who have completed secondary education. The programmes are industry-focused and designed to prepare students for professional careers.
University of Luxembourg Competence Centre (Le Competence Centre)	-	✓	✓	-	✓	Education provider	CET AE	The centre was created with the Ministry of Higher Education and Research and the University of Luxembourg (UL). It offers tailored education programmes aimed at upskilling and addressing the evolving needs of various industries. The centre also conducts regular studies and analyses on skills needs in the labour market and is responsible for training provision in various sectors (e.g., health, law, and technology) in adult education.
National Training Centres (Centre national de formation professionnelle continue)	-	-	✓	-	✓	Education provider	CET AE	The national centres (four nationwide) offer professional continuing training, e.g., in Digital Skills, the Green Transition, and “soft skills.” They are overseen by the Ministry of Education, Children, and Youth. The courses’ target groups are mainly low-skilled adults and job seekers. The training courses include preparatory classes for initial VET students without apprenticeship contracts. The Ministry of Education, Children and Youth is establishing two additional National Centres for Continuous Vocational Training CNFPC) to bring training offers closer to citizens.
Luxembourg Lifelong Learning Center	-	-	-	-	✓	Social partner/ education provider	CET	The centre is managed by the Chamber of Employees and is dedicated to providing CET programmes for Luxembourgish employees. It offers a wide range of training programmes to support lifelong learning in the workforce.

Legend: ✓ = Yes; - = No

Source: (European Commission, 2023[3]), (Cedefop, 2024[4]), (Cedefop; INFPC - National Institute for the Development of Continuing Vocational Training, 2022[5]), (The Government of the Grand Duchy of Luxembourg, 2024[6]), (The Government of the Grand Duchy of Luxembourg, 2024[7]), (OECD, 2023[8]), (OECD, 2023[9]), (Digital Skills and Jobs Platform, 2024[10]), (Cedefop, 2024[11]), (European Commission, 2024[12]), (European Commission, 2024[13]), (INFPC, 2024[14]), (The Government of the Grand Duchy of Luxembourg, 2019[15]),

Stakeholders and responsibilities at the local level

• Luxembourg's local government consists of 100 municipalities. They play a complementary role in the adult skills system, particularly by promoting lifelong learning for adults within their local communities. While the formal oversight of the AE system is managed at the national level, municipalities contribute by offering accessible, community-driven learning opportunities that focus on digital literacy and language acquisition. Municipalities focus more on formal AE and community-based learning opportunities than national-level institutions.

• Many municipalities collaborate with local organisations, cultural centres, libraries, and private or non-profit adult education providers to offer training courses for the community. The municipalities are also responsible for providing language and other courses for migrants to promote integration. Municipalities often act as facilitators by linking residents to national adult education services, e.g. provided by the Luxembourg Centre for Lifelong Learning or the University of Luxembourg Competence Centre. The allocation of funds for AE activities is determined by municipal councils, which assess community needs and set priorities.

Table 4. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities (Communes)	-	-	✓	-	✓	Subnational government	AE	Municipalities provide non-formal adult learning opportunities for citizens in their area.
Non-profit providers/private provider	-	-	-	-	✓	Education provider	AE VET	Non-profit organisations and private providers work both at local and national levels often in cooperation with public institutions and municipalities to provide adult education, especially for more vulnerable groups. Private providers also play a role in delivering VET programmes.

Legend: ✓ = Yes; - = No

Source: (European Commission, Eurydice, 2023[16])

References

[11] Cedefop (2024), National skills strategy, https://www.cedefop.europa.eu/en/tools/timeline-vet-policies-europe/search/41398.

[4] Cedefop (2024), Vocational education and training policy briefs 2023, https://doi.org/10.2801/16323.

[5] Cedefop; INFPC - National Institute for the Development of Continuing Vocational Training (2022), Vocational education and training in Europe - Luxembourg: system description, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/luxembourg-u2.

[18] Cedefop; National Institute for the Development of Continuing Vocational Training (2019), Vocational education and training in Europe: Luxembourg, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/luxembourg-2019.

[10] Digital Skills and Jobs Platform (2024), University of Luxembourg Competence Centre, https://digital-skills-jobs.europa.eu/en/organisations/university-luxembourg-competence-centre.

[12] European Commission (2024), Service de la formation professionnelle - SFP, https://vocational-skills.ec.europa.eu/ncps/service-de-la-formation-professionnelle_en.

[13] European Commission (2024), Skillsdësch, https://commission.europa.eu/projects/skillsdesch_en.

[3] European Commission (2023), Main providers, https://eurydice.eacea.ec.europa.eu/national-education-systems/luxembourg/main-providers.

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

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

[14] INFPC (2024), Who we are, https://www.infpc.lu/qui-sommes-nous/en#toc3.

[19] Ministry of Education, Children and Youth (2024), The Ministry, https://menej.gouvernement.lu/en/le-ministere.html.

[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 (2023), “Who does what” for active labour market policies, OECD Publishing, Paris, https://doi.org/10.1787/d8d6868d-en.

[9] OECD (2023), OECD Skills Strategy Luxembourg: Assessment and Recommendations, OECD Publishing, Paris, https://doi.org/10.1787/92d891a4-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/luxembourg.html.

[7] The Government of the Grand Duchy of Luxembourg (2024), Luxembourg Lifelong Learning Center (LLLC), https://guichet.public.lu/en/entreprises/organismes/organismes_entreprises/lllc.html.

[6] The Government of the Grand Duchy of Luxembourg (2024), National Institute for the Development of Continuing Vocational Training (INFPC), https://guichet.public.lu/en/entreprises/organismes/organismes_entreprises/infpc.html.

[15] The Government of the Grand Duchy of Luxembourg (2019), Participating in adult learning courses, https://guichet.public.lu/en/citoyens/famille-education/formation-adultes/non-diplomante/cours-generaux.html.

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