The role of subnational governments in adult skills systems: Mexico

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

Table 1. Overall governance and expenditure structure

Governance structure	Levels of governance	% of general government expenditure at sub-national level
Federal	National: State Regional: Estados (32) Local: Municipios (2 477)	43.0%
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?

Mexico's skills system is relatively decentralised with national ministries defining overarching strategies and frameworks, while regional/state (estados) and local (municipios) authorities retain some flexibility and strategic autonomy to adapt, implement, and develop programmes that address their specific objectives.

• Vocational Education and Training (VET) and Higher Vocational Education and Training (HVET): The Ministry of Public Education (Secretaría de Educación Pública) and its agencies set national policies, quality standards, and funding for VET and HVET. State Secretariats of Education oversee the implementation at the state level. Delivery takes place through technical high schools (secondary level), while technological universities and technical institutes deliver HVET. Social partners collaborate with providers to align programmes with labour market needs.

• Active Labour Market Policies (ALMP): The Ministry of Labour and Social Welfare (Secretaría del Trabajo y Previsión Social) by National Employment Service (SNE), in partnership with state governments, implements a range of Active Labor Market Policies. These initiatives are formalised through the signing of a Coordination Agreement for the operation of the Employment Support Program (PAE). With a network of 160 National Employment Service offices in the states, the SNE connects employers offering job opportunities with job seekers by providing tailored job offers that match available profiles to existing vacancies. Locally, municipal employment agencies, community development centres, and other institutes deliver targeted employability programmes that often focus on vulnerable populations.

• Adult Education (AE): The Ministry of Public Education coordinates AE through the National Institute for Adult Education (Instituto Nacional de Educación para Adultos). State and local offices of the Institutes for Adult Education adapt these efforts to regional contexts, and implement literacy and certification programmes, often targeting underserved populations.

• Continuing Education and Training (CET): The Ministry of Labor and Social Welfare, through its network of 167 National Employment Service (SNE) offices across the country, offers free training as part of the Employment Support Program (PAE). This program, in collaboration with the country's 32 entities, channels resources to job seekers through a series of complementary initiatives. Training needs vary from state to state. Unlike Continuing Education and Training (ECC) programs, which focus on ongoing skills development throughout a worker's career, SNE services primarily aim to support job seekers and employers in the recruitment process. To this end, the SNE offers a range of free employment placement and support services designed to facilitate job searches and enhance recruitment processes.

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: National level refers to the federal government. Regional level refers to the states. 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, Mexico’s skills system is coordinated by a network of government ministries, specialised agencies, and supporting organisations:

• The Ministry of Public Education oversees VET, HVET, and AE. This includes oversight and coordination of universities and technological institutes, VET at the secondary level, including institutions like the National College of Professional Technical Education (CONALEP), and Colleges of Scientific and Technological Studies (Colegios de Estudios Científicos y Tecnológicos del Estado), and general alignment of education policies across all training levels. The National Institute for Adult Education implements AE, providing literacy and basic education programmes for adults.

• The Ministry of Labour and Social Welfare has overall responsibility for the design of ALMPs and CET.

• Government agencies like the National Institute for Women (Instituto Nacional de las Mujeres), the National Institute of Indigenous Peoples (Instituto Nacional de los Pueblos Indígenas), and the Mexican Youth Institute (Instituto Mexicano de la Juventud) provide CET and ALMPs to support vulnerable groups.

• Multiple employers’ organisations are involved in the skills system, including for example the Employers’ Confederation of the Mexican Republic (Confederación Patronal de la República Mexicana) and the Mexican Council of Business (Consejo Mexicano de Negocios). These organisations conduct labour market research, promote innovative training models, and foster public-private partnerships to strengthen VET, HVET, and CET.

• Foundations and non-profits provide CET and ALMP initiatives, support entrepreneurship, workforce upskilling, and digital skills development, particularly for underserved populations.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Public Education (Secretaría de Educación Pública)	✓	✓	-	✓	-	Ministry	VET HVET AE	The Ministry of Public Education oversees the national education system, including VET, HVET1, and AE. It establishes national education policies, curriculum standards, and quality assurance frameworks for technical and vocational training at primary, secondary and higher education levels. The Ministry also coordinates AE initiatives and collaborates with state-level entities for implementation.
Ministry of Labour and Social Welfare (Secretaría del Trabajo y Previsión Social)	✓	✓	-	✓	-	Ministry	ALMP CET	The Ministry of Labour and Social Welfare oversees labour market policies, focusing on promoting decent work, social welfare, and workforce development. It develops and coordinates ALMP and CET initiatives to enhance employability and reduce unemployment.
General Directorate of Vocational and Technical Education (Dirección General de Educación Tecnológica e Industrial)	-	-	✓	✓	-	National Agency	VET HVET	The General Directorate of Vocational and Technical Education operates technical high schools across Mexico, offering VET and HVET to prepare students for immediate entry into the workforce or further technical studies. Its work is coordinated by the Ministry of Public Education.
National Employment Service (Servicio Nacional de Empleo)	-	✓	✓	✓	✓	National Agency	ALMP CET	The National Employment Service is part of the Ministry of Labour and Social Welfare. It and implements ALMPs (such as helping job-seekers in finding job opportunities and aiding employers in recruiting talent all across the country, through its collaboration with State-level authorities) and it also promotes CET initiatives aimed at the development of job-searching skills.
National Institute for Adult Education (Instituto Nacional para la Educación de los Adultos)	-	-	✓	-	-	National Agency	AE	The National Institute for Adult Education is a decentralised public organisation coordinated by the Ministry of Public Education. It is responsible for AE, focusing on literacy programmes and elementary and secondary education for adults who have not completed their formal schooling. It develops educational materials, implements programmes, and coordinates with adult education institutes to reach underserved populations.
National Coordination of Scholarships for Welfare (Coordinación Nacional de Becas para el Bienestar)	-	-	-	✓	-	National Agency	VET AE	This agency manages scholarship programmes, including those for VET and AE. It provides financial aid to students from low-income families, helping to reduce educational inequalities and improve access to skills development opportunities.
National Institute for Women (Instituto Nacional de las Mujeres - INMUJERES)	-	-	✓	✓	✓	National Agency	CET ALMP	Operating under the Ministry of Women (Secretaría de las Mujeres), the National Institute for Women promotes economic empowerment for women through skills development, financial literacy, and employment training. It collaborates with the National Employment Service and regional governments to provide women with tailored training and resources for entering or re-entering the workforce, particularly in rural and underserved areas.
Mexican Youth Institute (Instituto Mexicano de la Juventud - IMJUVE)	-	-	✓	✓	-	National Agency	CET ALMP	Operating under the Ministry of Labour and Social Welfare, the Mexican Youth Institute addresses youth unemployment through training, internships, and entrepreneurship initiatives. It offers scholarships and coordinates with public and private sector partners to create job opportunities and promote skill-building programmes for people aged 15-29.
National Institute of Indigenous Peoples (Instituto Nacional de los Pueblos Indígenas)	-	-	✓	✓	✓	National Agency	CET AE ALMP	The National Institute of Indigenous Peoples is a decentralised public body whose purpose is to guide, coordinate, promote, support, encourage, and evaluate projects, strategies and actions for the sustainable development of indigenous peoples and communities. It was created in 2018, and provides training programmes in traditional crafts, agriculture, and entrepreneurship, as well as basic AE. The Institute also provides grants and technical assistance to support these initiatives, and collaborates with local governments, NGOs, and other national agencies to deliver employment and education services aligned with indigenous peoples needs.
National College of Professional Technical Education (Colegio Nacional de Educación Profesional Técnica - CONALEP)	-	-	✓	-	✓	Education provider	VET CET	The National College of Professional Technical Education is a key institution for VET in Mexico, offering technical high school programmes that prepare students for both the workforce and higher education. It operates a national network of campuses providing industry-aligned training. It collaborates closely with private-sector partners and often incorporates dual education models, blending classroom instruction with practical, on-the-job training. The institution also supports CET through professional certification programmes aimed at upskilling and reskilling workers.
Colleges of Scientific and Technological Studies (Colegios de Estudios Científicos y Tecnológicos del Estado - CECyTEs)	-	-	-	-	✓	Education provider	VET	Colleges of Scientific and Technological Studies provide VET at the upper secondary level, offering a dual curriculum that combines general academic education with VET. These colleges aim to prepare students for both higher education and direct entry into the workforce. Colleges in each state's system adapts its programmes to local labour market needs, and maintain strong partnerships with local industries, often incorporating hands-on learning and internships into their curricula.
Employers' Confederation of the Mexican Republic (Confederación Patronal de la República Mexicana)	-	✓	✓	-	-	Social Partner	VET HVET CET	The Employers' Confederation of the Mexican Republic collaborates with the government and educational institutions to align training programmes with industry needs. It conducts labour market studies, supports curriculum design, and promotes public-private partnerships to enhance workforce development, as well as VET, HVET and CET training.
Mexican Council of Business (Consejo Mexicano de Negocios)	-	✓	-	-	-	Social Partner	VET HVET CET	The Mexican Council of Business represents large businesses in Mexico and advocates for aligning educational programmes with industry needs. It collaborates with government institutions to identify skill gaps, promote innovative training models, and influence national training strategies.
Council of Standardisation and Certification of Labour Competences (Consejo Nacional de Normalización y Certificación de Competencias Laborales )	-	✓	✓	-	-	Expert Council	VET HVET CET	The Council develops and certifies labour competence standards. It establishes sectoral committees to define human capital priorities, creates competency frameworks outlining the skills and knowledge needed for various roles, and registers them in the National Registry of Competency Standards. It collaborates with public and private educational institutions, businesses, and labour sectors to expand training, evaluation, and certification programmes nationwide. Additionally, it shares best practices to promote competency-based management models, supporting workforce development and national competitiveness.

Legend: ✓ = Yes; - = No

Sources: (Gobierno de México, 2024[3]; Gobierno de México, 2024[4]; Gobierno de México, 2024[5]; CONOCER, 2024[6]; Gobierno de México, 2024[7]; COPARMEX, 2024[8]; Consejo Mexicano de Negocios, 2024[9]; Gobierno de México, 2024[10]; Gobierno de México, 2024[11]) (SEP Educación, 2024[12]; SEP Educación, 2024[13]; CONALEP, 2024[14]; CECYTEM, 2024[15]; Fundación ProEmpleo, 2024[16]; Fundación Televisa, 2024[17]; Gobierno de México, 2024[18]; Gobierno de México, 2024[19]; Gobierno de México, 2024[20])

Stakeholders and responsibilities at the regional level

Mexico’s 32 states (estados) serve as intermediary bodies between the national and municipal levels. At the regional level, Mexico’s skills system is coordinated by State Secretariats and regional branches of federal government agencies:

• State Secretariats are state-level government departments responsible for implementing and managing public policies, programmes, and services while aligning with federal guidelines and addressing the unique priorities of their respective states. They have responsibilities across the different areas of the skills system, including VET, HVET, AE, ALMP and CET policies.

• Regional branches of federal government agencies include the State Delegations of the Institutes for Adult Education, which deliver AE programmes for underserved communities; and the Federal Labour Representation Offices and Subordinate Units, which enforce labour policies, resolve disputes, and oversee ALMPs and CET initiatives in collaboration with local stakeholders.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
State Secretariats (Secretarías Estatales)	✓	✓	✓	✓	✓	Subnational Government	VET HVET CET AE ALMP	State Secretariats operate with significant autonomy implementing national policies while tailoring strategies to regional needs. Each address specific responsibilities within the skills system. The State Secretariats of Education are responsible for overseeing the implementation of VET, HVET, and AE programmes, improving educational quality, aligning training with workforce demands, reducing educational disparities, and promoting teacher training and innovation. The State Secretariats of Labour and Social Welfare focus on managing ALMP and CET, promoting access to decent employment, facilitating demand-driven training, fostering self-employment, and ensuring labour justice. The State Secretariats for Social Assistance are tasked with designing and implementing social inclusion programmes, which integrate educational and skills initiatives, and support vulnerable populations, such as families and communities in precarious situations. The State Secretariats of Economic Development play a role in identifying regional industry needs, aligning skills training with economic strategies, facilitating workforce development, and fostering public-private partnerships.
State Institutes for Training and Work Development (Centros Estatales de Formación para el Trabajo)	-	-	-	-	✓	National Agency	CET ALMP	Operating under the Ministry of Public Education, State Institutes for Training and Work Development are training institutions responsible for delivering short-term, sector-specific training courses and ALMP. Their goal is to enable people to acquire, strengthen or increase their skills for work and employability. They work closely with local employers and municipalities to provide workforce development opportunities, focusing on practical, hands-on learning.
National Employment Service Offices at state level (Sucursales Estatales del Servicio Nacional de Empleo)	-	-	✓	-	✓	National Agency	CET ALMP	National Employment Service of the National Employment Service offices (OSNE) in the states implement ALMPs by offering job placement, career counselling, and training referrals.. needs. Through the OSNE, the SNE provides personalized attention from Employment Counselors who guide and inform job seekers about available job openings that match their professional profile, and inform companies about the profiles available to fill their positions.
State Delegations of the Institutes for Adult Education (Delegaciones Estatales de los Institutos Educación para los Adultos)	-	✓	✓	-	✓	National Agency	AE	The National Institute for Adult Education operate through 26 state institutes. These institutes work to improve literacy, provide basic and secondary education certifications, and offer skills training to enhance employability for adults, particularly those in vulnerable communities. They also collect and report data on educational outcomes at the state level.
Federal Labour Representation Offices and Subordinate Units (Oficinas de Representación Federal del Trabajo y Unidades Subalternas)	-	✓	✓	-	-	National Agency	CET ALMP	The Federal Labour Representation Offices and their subordinate units operate under the Ministry of Labour and Social Welfare and are responsible for implementing federal labour policies at the state level. These offices enforce labour regulations, support dispute resolution, and oversee the implementation of ALMP and CET initiatives. They collaborate with local governments, employers, and training institutions to adapt national programmes to each region. Additionally, they gather intelligence on local labour market trends to inform national strategies.

Legend: ✓ = Yes; - = No

Sources: (Gobierno del Estado de Jalisco, 2024[21]; Instituto de Capacitación para el Trabajo de la Ciudad de México, 2024[22]; Gobierno de Mexico, 2024[23]; Gobierno de Mexico, 2024[24]; Gobierno de México, 2024[25])

Stakeholders and responsibilities at the local level

At the local level, Mexico’s 2 477 municipalities (municipios) co-operate with multiple stakeholders to implement policies locally:

• Municipalities are responsible for implementing CET and ALMP initiatives at the municipal level. These include examples such as Municipal Employment Agencies, Municipal Secretariats for Human Development and Substantive Equality, Municipal Women’s Institutes, and Municipal Entrepreneurship Centres.

• OSNEs deliver ALMPs, including job placement, employability workshops, training referrals, as well as support job seekers in preparing their CVs to secure placement in a vacancy that suits their job profile. while Local Offices of the Institutes for Adult Education implement AE programmes such as literacy, basic education, and competency certification.

• Municipal Training Institutes deliver VET and CET tailored to local economic needs and collaborate with state and federal employment services to support ALMP. Private education providers offer VET, HVET, CET, and AE programmes outside the public system.

• Community Development Centres focus on providing CET and ALMP to underserved populations, promoting social inclusion. Non-Governmental and private Actors play a significant role in skills development. Foundations and non-profit organisations address gaps in public provision by offering AE, CET, and ALMPs, focusing on skills training, entrepreneurship, and literacy for underserved populations.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities (municipios)	-	-	✓	✓	✓	Subnational Government	ALMP CET	Municipalities in Mexico play an important role in implementing employment and skills initiatives adapted to local contexts, often focusing on social inclusion and economic development. They provide services such as job placement and career counselling through Municipal Employment Agencies, including examples like Employment Zapopan (Empleo Zapopan) and Monterrey’s employment portal. Municipal Secretariats for Human Development and Substantive Equality implement ALMPs and CET workshops to support vulnerable groups, including women, indigenous populations, and individuals with disabilities. Additionally, Municipal Entrepreneurship Centres offer training, mentorship, and access to microloans to promote small business growth, while Municipal Women Institutes deliver skills training, entrepreneurship support, and initiatives that address gender-based barriers.
Community Development Centres (Centros de Desarrollo Comunitario)	-	-	-	✓	✓	Subnational Government	ALMP CET	Community Development Centres are local facilities established by municipal governments or community organisations to foster community engagement and improve the quality of life for residents. These programmes often provide skills training and educational opportunities to underserved populations, such as youth, women, and older adults, to promote social inclusion and economic mobility.
Municipal Training Institutes (Institutos Municipales de Capacitación y Empleo)	-	-	-	-	✓	Subnational Government	VET CET ALMP	These refer to the training centres under the State Institutes for Training and Work Development. They cater to local economic needs by delivering workforce training and facilitating job placements.
National Employment Service Offices at the local level (Oficinas del Servicio Nacional de Empleo)	-	-	✓	-	✓	National Agency	ALMP CET	OSNE function as decentralised extensions of the federal employment service, operating at the municipal level. Their primary role is to implement ALMPs such as job placement services, and unemployment support. These offices are responsible for tailoring services to their specific communities. Typical services include job fairs, workshops on employability skills.
Local Offices of the Institutes of Adult Education (Oficinas de los Institutos de Educación para los Adultos)	-	-	✓	-	✓	National Agency	AE	Local offices of the Institutes of Adult Education are decentralised entities that operate under the direction of the federal National Institute for Adult Education. These offices implement AE programmes at the municipal or community level, focusing on literacy, primary and secondary education, and certification of competencies for individuals who have not completed basic education.
Local Technical and Vocational Schools (Escuelas Técnicas y Vocacionales Municipales)	-	-	-	-	✓	Education provider	VET	These schools provide hands-on education and skills training, primarily targeting students and adults seeking to enter the workforce or advance their careers. They deliver VET integrated with secondary-level training. Programmes typically combine theoretical knowledge with practical training.
Foundations and Non-profit organisations	-	-	-	✓	✓	Foundation	AE CET ALMP	Foundations and non-profit organisations play an important role in supporting skills development and education at the community level. These organisations often address gaps left by public systems. They develop independent strategies and operate flexibly to respond to local needs. Typical activities include CET, literacy and AE programmes, entrepreneurship support, and advocacy for inclusive education. Many non-profits collaborate with governments, private companies, and international donors to secure funding and expand their impact.
Private education providers	-	-	-	-	✓	Education provider	VET HVET CET AE	Private education providers deliver most education outside the conventional education system. This includes AE, CET, as well as VET and HVET.

Legend: ✓ = Yes; - = No

Sources: (Gobierno de Nuevo León, 2024[26]; Empleo Zapopan, 2024[27]; Gobierno de Monterrey, 2024[28]; Gobierno de Monterrey, 2024[29]; Gobierno de Monterrey, 2024[30]; Ayuntamiento León, 2024[31]; Gobierno de México, 2022[32]; Gobierno de México, 2024[33]; Baja California, 2024[34])

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Note

← 1.  In Mexico, VET is at the upper secondary level, usually 2 years, and graduates receive the Professional Technical Baccalaureate (Profesional Técnico-Bachiller), which gives access to higher education. HVET is at the higher education level, usually 3 years, and leads to the Technologist Degree (Técnico Superior Universitario).