The role of subnational governments in adult skills systems: Spain

This country note provides an overview of the governance of the adult skills system in Spain. 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.

Table 1. Overall governance and expenditure structure

Governance structure	Levels of governance	% of general government expenditure at the sub-national level
Quasi-federal	National: el Estado Regional: Comunidad Autónoma (17) Intermediate: Provincias (50) Local: Municipios (8 131)	47.3%
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 Spain is a decentralised system. The national level establishes strategic priorities and frameworks that guide activities across all government levels. Some strategic and implementation responsibilities are delegated to the regional governments to adapt policies to regional needs. At the municipal level, a limited number of stakeholders are engaged in skills provision:

• The Vocational Education and Training (VET) system in Spain covers initial vocational training (FP Inicial), vocational training for employment (FP para el Empleo) and Higher VET (HVET), which is offered in VET centres (often dual programmes including practical training). VET and HVET are implemented by the regional governments supported by tripartite expert councils. The Chambers of Commerce (Cámara de Comercio de España) facilitate cooperation in the VET system between employers and public education institutions.

• Continuing Education and Training (CET) is provided by the Chambers of Commerce, operating between the regional and local level and in regional public adult education centres that are overseen and funded by the regional government. Adult Education (AE) is predominantly funded at the national level, with implementation occurring at regional and local levels through various providers, e.g., adult education centres and local Popular Universities (Universidades Populares).

• The State Public Employment Service (Servicio Publico de Empleo Estatal) provides Active Labour Market Policies (ALMPs) through deconcentrated regional offices.

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

The national level plays an important role across all policy areas in the adult skills system, including by setting general strategies (often in cooperation with the regions), developing core curricula and providing funding for activities across all policy areas:

• The Ministry of Education, Vocational Training and Sports (Ministerio de Educación, Formación Profesional y Deportes) is responsible for VET, HVET, CET and AE and shares competencies with the Ministry of Labour and Social Economy (Ministerio de Trabajo y Economía Social) over the VET for occupations not included in the national VET catalogue. The ministries benefit from recommendations from the General Council for Vocational Training which serves as a tripartite advisory body on VET policies to the government and includes representatives of the regional level, and from the National Education Council that issues opinions on ongoing VET and HVET system reforms.

• The Ministry of Labour and Social Economy is also responsible for developing strategic frameworks and guidelines for ALMPs and overseeing the allocation of resources for ALMPs in cooperation with the national Public Employment Service (Servicio Publico de Empleo Estatal). The Ministry collaborates with the regional governments to implement ALMPs through the Sectoral Conference on Employment and Labour Affairs (Conferencia Sectorial de Empleo y Asuntos Laborales). General strategies for ALMPs are established multiannual (e.g., the Spanish Active Employment Support Strategy 2021-2024) in collaboration with social partners, the national government, and the regional governments.

• Social partners participate in the development of the VET system and the designing of qualifications, e.g. through the General Council for Vocational Training (Consejo General de la Formación Profesional) and the National Education Council (Consejo Escolar del Estado), both advisory bodies to the national government.

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, Vocational Training and Sports (Ministerio de Educación, Formación Profesional y Deportes)	✓	✓	-	✓	-	Ministry	VET HVET CET AE	The Ministry is newly established and has since 2020 been responsible for overseeing and funding the VET system. The Ministry is responsible for establishing learning outcomes and core curriculum. objectives and assessment criteria. Furthermore, it sets general guidelines for accreditation and certification in VET, HVET, CET and AE. In AE, the Ministry gathers intelligence and information and develops and organises AE offers as distance learning. The Ministry also manages the National Qualifications Framework and ensures coordination across the regions. The Ministry is responsible for overseeing and managing education and training provision across policy areas in the Autonomous Cities of Ceuta and Melilla.
Ministry of Labour and Social Economy (Ministerio de Trabajo y Economía Social)	✓	✓	-	✓	-	Ministry	VET CET ALMP	The Ministry is responsible for ALMPs, and for VET within the scope of its duties related to ALMPs, aimed at upskilling and reskilling employed and unemployed individuals, particularly in occupations not included in the national VET catalogue. Additionally, the Ministry conducts labour market analyses and produces studies on the current labour market situation, which include surveys focused on VET for employment.
The State Public Employment Service (Servicio Publico de Empleo Estatal, SEPE)	✓	-	✓	✓	-	National Agency	ALMP AE	The agency operates as an autonomous body under the Ministry of Labour and Social Economy. Its primary responsibilities include designing ALMPs and developing and funding programmes to enhance adults' employability. The agency allocates funding to the regional PES branches. Additionally, the agency manages VET programmes for employed, and unemployed adults, integrating these initiatives withn the broader ALMP framework. The Observatory of Occupations under the national PES (Observatorio de las Ocupaciones del SEPE) analyses the trends and training needs in the labour market, and monitor skills supply and demand and works in coordination with the regions, and the social partners.
State Foundation for Training and Employment (Fundación Estatal para la Formación en el Empleo, FUNDAE)	✓	-	✓	✓	-	Foundation	VET HVET CET	The Foundation operates under the auspices of the Ministry of Labour and Social Economy. It is central in promoting and managing training and employment initiatives within the VET and CET framework. The Foundation collaborates with various stakeholders, including the PES, employers, trade unions, and individual institutions, to develop training programmes that align with labour market needs. It is funded through contributions from companies and workers (indirectly through social security payments). The funds are used to develop, implement and support various vocational training programmes and initiatives for employed and unemployed individuals.
The General Council for Vocational Training (Consejo General de la Formación Profesional)	-	✓	-	-	-	Expert council	VET HVET	The council operates at the national level as a tripartite advisory body on VET policies. It comprises representatives of the education and employment authorities (operating at both national and regional levels) and social partners (enterprises and trade unions). The National Institute of Qualifications (El Instituto Nacional de las Cualificacions) sorts under the council, and is responsible for identifying current and future skills needs for specific professions, in the Observatory of Professions in the institute. The council provides oversight for quality assurance in VET and HVET.
The National Education council (Consejo Escolar del Estado)	-	✓	-	-	-	Expert council	VET HVET	The council is an advisory body to the Ministry of Education and Vocational Training. It issues opinions on ongoing reforms in the education system.
The sectoral conferences	-	✓	-	-	-	Multilevel governance cooperation	VET HVET ALMP	The conferences coordinate education policies across the national and regional levels. The conferences are composed of the Minister for Education and Vocational Training and the relevant representatives of each of the regional governments. They distribute funding between the Spanish regions. The decisions of the conferences are implemented by the regional governments. The conferences are chaired by the national government, also responsible for scheduling meetings in the conference that typically occur several times a year.
The National Vocational Training Centres of Excellence Network (Red de Centros de Excelencia de Formación Profesional)	-	-	✓	-	-	Association	VET	The network of public VET schools operates under the guidance of the Ministry of Education, Vocational Training and Sports, which is responsible for appointing participating schools. The network facilitates coordination among schools, the Ministry, and the regional government. Its focus is on the development of educational methodologies and the digital transformation of the VET system. Additionally, it implements innovative projects in close cooperation with local businesses, business associations and unions, and other schools.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (Ministry of Labour and Social Economy, 2024[3]) (Servicio Publico de Empleo Estatal, 2024[4]) (CEDEFOP, 2023[5]) (European Commission, Eurydice, 2024[6]) (OECD, 2015[7]) (CEDEFOP, 2021[8]) (Ministery of Labour and Social Economy, 2024[9]) (Preply Business, 2024[10]), (SEPE Public State Employment Service, 2023[11])

Stakeholders and responsibilities at the regional level

The regional governments have substantial autonomy in adapting national policies to regional needs across all areas of the education system.

• The regional governments are in charge of implementing, developing, and allocating funding for VET policies and running regional VET and HVET institutions. The Regional Councils for Vocational Training (Consejos Regionales de Formación Profesional) are tripartite expert councils supporting regional governments in developing VET policies. VET and HVET are provided mainly in public VET Centres, integrated VET Centres and private training centres. One in four Spanish students enrol in private institutions.

• The Chambers of Commerce run 86 institutions operating between regional and local levels, which collect intelligence on labour market trends and advise employers on where to access necessary skill courses. They are also direct providers of CET and facilitate cooperation in the VET system between employers and public education institutions.

• The regional governments are responsible for AE provision, overseeing educational institutions, developing curricula, and staff management. In some regions, the responsibilities for formal AE have been devolved to the municipalities. AE is mostly delivered through Adult Education Centres, overseen by the regions and funded by a mix of national and regional resources, while some provision also happens in private AE institutions supported by public funds,

• ALMPs are implemented and delivered by the regional governments through regional/local PES offices (Servicios Públicos de Empleo Autonómicos) that oversee training provisions for adults and refer the unemployed to training, although they are not direct providers. They have substantial autonomy to adapt instruments to regional needs.

Table 3. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Regional government (Gobierno Autonómico)	✓	✓	✓	✓	-	Subnational government	VET HVET AE ALMP	The regional government is responsible for implementing AE policies and overseeing the provision of AE in dedicated Adult Education Centres. It manages European Union funds, such as those from the European Social Fund, to promote skills development, particularly for unemployed and disadvantaged groups. The regional governments implement and adapt curricula following state policies, provide funding and maintain educational facilities. They also ensure alignment with local industry needs within the national framework. Furthermore, the regional government receives state-allocated funds to implement VET programmes and issues certifications in VET.
Regional PES offices (Servicios Públicos de Empleo Autonómicos, SPEA)	✓	✓	✓	-	✓	National Agency	VET AE ALMP	Each region is responsible for managing its own public employment service (SPEAs), which are responsible for delivering ALMPs within the legal and strategic framework set at the national level. The regional governments have full competences over the SEPAs, which operate with a high degree of autonomy to design and implement regional employment programmes, job placement service and vocational training. However, they dependen heavily on funding from the national PES. They also oversee the management of AE provisions as part of the implementation of ALMPs.
Regional Councils for Vocational Training (Consejos Regionales de Formación Profesional)	-	-	✓	✓	-	Expert council	VET HVET	The regions have full autonomy to design, finance and implement vocational education in schools and centres. Each region operate a council for vocational training that is responsbiel for designing and implementing regional VET policies. They facilitate coordination among various stakeholders involved in VET provision, oversee the operation of VET centres, develop curricula, and manage funding for VET initiatives. Most councils follow a tripartite structure with members from government representatives, business organisations, labour unions and education experts.
Chambers of commerce (Cámara de Connercio de España)	-	✓	✓	-	✓	Social partner	VET CET	86 Chambers of Commerce operate as intermediaries to connect VET schools with training companies, e.g. local businesses. They are direct providers of CET, provide professional training for employed people, and assist in gathering data and assessing the skills needs of the companies in a local economy. They receive funding from the European Social Fund to offer training opportunities to young people.
Adult education centres (Centros de Educación de Personas Adultas, CEPA)	-	-	-	-	✓	Education provider	CET AE	There are approximately 1450 public adult education centres. They offer a variety of courses, including basic adult education, adult vocational training, and preparation courses for university entrance tests. The centres are overseen and funded by regional government.
Public Vocational Training Centres and Integrated Vocational Training Centres	-	-	✓	-	✓	Education provider	VET HVET	Two types of public VET providers operate in the system. The Public Vocational Training Centres (Centros Públicos de Formación Profesional) are the main providers of HVET and intermediate-level VET. The centres are typically owned and run by the regional government and are members of a Vocational Training Centres of Excellence Network. The Integrated Vocational Training Centres (Centros Integrados de Formación Profesional) are providers of VET and HVET. They operate under the supervision of the regional government. They are centres specialising in VET and HVET, and are privately run, and exclusively privately funded. The Integrated vocational training centres have more autonomy regarding their organisation and management of centres.
Private training centres (Centros Privados de Formación Profesional)	-	-	✓	-	✓	Education provider	VET HVET	The private training centres are authorized and accredited by regional governments to provide formal vocational education programmes in various sectors. They are run and managed by private educational institutions, training companies or independent entrepreneurs. Funding comes from a mix of student fees (primary source), public funding and subsidies from regional, national or EU level and collaboration with private companies. One in four of students attend the private centres.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (European Commission, Eurydice, 2024[12]) (CEDEFOP, 2023[5]) (Región de Murcia, 2024[13]), (Comunidad Madrid, 2024[14]), (Ministerio de Educación, Formación Profesional y Deportes, 2024[15])

Stakeholders and responsibilities at the local level

The local level in Spain is composed of 8 131 municipalities (municipio) and two Autonomous Cities (ciudades autónomas). They play a minor, but complementary role in the adult skills system:

• The municipalities have a limited formal role when it comes to funding, implementing or delivering adult skills policies, but they play a co-ordinating role in ensuring that adult education programmes are accessible and relevant to the local population. They collaborate with regional authorities to support the implementation of programmes.

• Popular universities are renowned providers of AE at local level. Other AE providers include adult education centres, trade unions, local corporations, and universities for adults.

Table 4. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities (Municipio)	-	-	-	-	-	Subnational government	AE	Municipalities do not have formal responsibility for the funding or direct delivery of adult education programmes. However, they play a role in facilitating local delivery in co-operation with regional authorities and other stakeholders. They may take part in informing local populations about available AE opportunities. There is no common structure for the municipalities to carry out education and skills functions, although most municipalities have education departments.
Popular Universities (Universidades Populares)	-	-	-	-	✓	Education provider	AE	They are providers of AE, and part of a coordinated network of Popular Universities (Federación Española de Universidades Populares) that oversee the universities’ activities, and collaborates with local government. They offer a wide range of courses for adults. They are typically managed by local governments.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (CEDEFOP, 2023[5]; European Commission, Eurydice, 2024[12]; The Spanish Chamber of Commerce, 2024[16])

References

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

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

[14] Comunidad Madrid (2024), La oferta formativa en la Educación de Personas Adultas (CEPA), https://www.comunidad.madrid/servicios/educacion/oferta-formativa-educacion-personas-adultas-cepa.

[12] European Commission, Eurydice (2024), Administration and governance at central and/or regional level, https://eurydice.eacea.ec.europa.eu/national-education-systems/spain/administration-and-governance-central-andor-regional-level.

[6] European Commission, Eurydice (2024), Spain, Lifelong learning strategy, https://www.cedefop.europa.eu/en/data-insights/skills-anticipation-spain-2023-update.

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

[18] European Commission, YouthWiki (2023), 3. Employment & Entrepreneurship, https://national-policies.eacea.ec.europa.eu/youthwiki/chapters/spain/3-employment-entrepreneurship.

[15] Ministerio de Educación, Formación Profesional y Deportes (2024), Centros Integrados de Formación Profesional, https://www.todofp.es/sobre-fp/informacion-general/centros-integrados.html.

[9] Ministery of Labour and Social Economy (2024), What is the observatory, https://sepe.es/HomeSepe/en/que-es-el-sepe/que-es-observatorio.html.

[3] Ministry of Labour and Social Economy (2024), Homepage Ministry of Labour and Social Economy, https://www.mites.gob.es/en/index.htm.

[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.

[7] OECD (2015), OECD Skills Strategy Diagnostic Report: Spain 2015, OECD Skills Studies, OECD Publishing, Paris, https://doi.org/10.1787/9789264300262-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/.

[10] Preply Business (2024), FUNDAE State Foundation for Employment Training in Spain explained, https://preply.com/en/blog/b2b-fundae-state-foundation-employment-training-explained/#:~:text=credit%20you%20need.-,What%20is%20FUNDAE%20in%20Spain%3F,training%20for%20employment%20in%20Spain.

[13] Región de Murcia (2024), Consejo Asesor Regional de Formación Profesional, https://www.carm.es/web/pagina?IDCONTENIDO=227&IDTIPO=200&__PLANT_PERSONALIZADA=/JSP/CARM/carm2018/organigramas/plantillaDetalleOrganigrama.jsp&IDESTRUCTURAJERARQUICA=1185&RASTRO=c77$m22725,22761,5782.

[11] SEPE Public State Employment Service (2023), What is the observatory?, https://www.sepe.es/HomeSepe/en/que-es-el-sepe/que-es-observatorio.html.

[4] Servicio Publico de Empleo Estatal (2024), Active Employment Policies State Public Employment Service, https://www.sepe.es/HomeSepe/en/Personas/encontrar-trabajo/politicas-de-empleo-normativa.html.

[16] The Spanish Chamber of Commerce (2024), Training and employment, https://www.camara.es/en/training-and-employment.

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