The role of subnational governments in adult skills systems: Türkiye

This country note provides an overview of the governance of the adult skills system in Türkiye. 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 Türkiye reviewed the country note in February 2025 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: State Provincial: Special provincial administration (İl Özelİdareleri) and provincial metropolitan municipalities (PPM) (81 in total) Local: Municipalities (Belediyeler) (+1400)	8.4%
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 Turkish adult skills system is highly centralised, with the central government playing a leading role in designing and implementing most education and training policies.

• Vocational Education and Training (VET), Continued Education and Training (CET) and adult education (AE) are managed by the Ministry of National Education (Milli Eğitim Bakanlığı). Programmes are implemented by public Vocational and Technical Colleges, Adult Education Centres and Adult Vocational Education Centres operating at regional and local levels under the oversight of the Ministry but sometimes in co-operation with municipalities.

• Higher VET (HVET) is overseen by the Council of Higher Education (Yükseköğretim Kurulu) and provided by universities (Üniversite).

• The Ministry of Labour and Social Security (Çalışma ve Sosyal Güvenlik Bakanlığı), in co-operation with the Public Employment Service (PES) (İŞKUR) manages Active Labour Market Policies (ALMPs). Policies are delivered through a system of deconcentrated offices, often in collaboration with municipalities

• The regional level, including the Special Provincial Administration (İl Özelİdareleri) and Provincial Metropolitan Municipalities (PMM), and provincial municipalities mainly supports skills development through regional development activities. Municipalities play a role in providing services and responding to local needs.

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, multiple ministries and agencies have responsibilities for adult skills policies:

• The Ministry of Labour and Social Security is the main body responsible for labour market policies implemented through the Türkish PES. The PES is centralised but operates through a system of deconcentrated offices at the provincial level.

• The Ministry of National Education oversee formal and non-formal education systems, including VET, CET and AE, in particular through its General Directorate of Lifelong Learning (Yaşam Boyu Öğrenme Genel Müdürlüğü) and the General Directorate for Vocational and Technical Education (Mesleki ve Teknik Eğitim Genel Müdürlüğü). The National Council for Vocational Education and Training supports the Ministry with advice and recommendations on VET policies.

• The Council of Higher Education determines the general policies, strategies and priorities for higher education, including HVET. HVET is provided mainly by Universities operating at the national level.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Labour and Social Security (Çalışma ve Sosyal Güvenlik Bakanlığı)	✓	✓	-	✓		Ministry	VET ALMP	The ministry is responsible for labour market policies, unemployment benefits, social security and active labour market policies. It oversees the operations of the Turkish Public Employment Service (İŞKUR). The Ministry is also responsible for providing VET to employees
Ministry of National Education (Milli Eğitim Bakanlığı)	✓	✓	-	✓		Ministry	VET HVET CET AE	The Ministry oversees the formal and non-formal education systems in Türkiye. This includes AE, CET, VET and other initiatives to improve adult skills. It is not responsible for higher education, including higher VET.
Turkish Employment Agency (İŞKUR)	-	✓	✓	✓	✓	National Agency	ALMP	The Turkish Public Employment Service provides ALMPs, including on-the-job training and vocational training courses. It operates under the Ministry of Labour and Social Security's oversight and through a deconcentrated local office structure.
Vocational Qualifications Authority (Mesleki Yeterlilik Kurumu)	-	-	✓			National Agency	VET HVET	The authority is responsible for setting national qualification standards for VET and HVET. It works with different sectors to develop and certify national occupational standards, which are essential for improving adult skills and ensuring alignment with labour market needs. The agency operates under the oversight of the Ministry of Labour and Social Security.
General Directorate of Lifelong learning (Yaşam Boyu Öğrenme Genel Müdürlüğü)	-	-	✓	✓		National Agency	VET CET AE	The Directorate oversees AE and CET programmes, including literacy and numeracy programmes and other non-formal education opportunities for adults. It also covers VET for adults and those out of formal education. It oversees various initiatives to enhance the skills of adults throughout their lives and allocates funding for specific AE and lifelong learning initiatives. It operates under the oversight of the Ministry of National Education.
General Directorate for Vocational and Technical Education (Mesleki ve Teknik Eğitim Genel Müdürlüğü)	-	-	✓	✓		National Agency	VET	The Directorate oversees secondary and post-secondary VET in Türkiye, including developing curricula and establishing VET centres and schools. It is responsible for designing programmes that align with the labour market's needs. It operates under the oversight of the Ministry of National Education.
National Education Development and Strategy Centre (Millî Eğitim Strateji Geliştirme Merkezi)	-	✓	-	-		National Agency	VET HVET CET AE ALMP	The agency supports strategic planning and the development of policies and practices related to education, including AE, and helps align educational outcomes with national development goals. It conducts research and provides recommendations to improve the effectiveness of educational programmes for adults, particularly in terms of employment and skills development.
Council of Higher Education (Yükseköğretim Kurulu)	-	-	✓	-		National agency	HVET	The Council is responsible for determining higher education policies, strategies, and priorities, including HVET, in Türkiye. It sets national goals for universities and guides the development of academic programmes and curricula at public and private universities. The Council is also responsible for the accreditation process of universities and specific programmes within them, including HVET programmes. The Council also supports the expansion of access to HVET programmes. The Council operates under the Ministry of National Education.
National Council for Vocational Education and Training (Mesleki Eğitim ve Öğretim Kurulu)	-	✓	-	-		Expert Council	VET	The Council advises and recommends vocational education and training policies, ensuring they align with labour market needs and national development goals. It operates under the Ministry of National Education and comprises representatives from various stakeholders, including the Ministry, the Higher Education Council, industry and trade chambers, professional associations, and trade unions.
Universities (Üniversite)	-	-	-	-	✓	Education provider	HVET	The main providers of HVET in Türkiye are public universities offering HVE through their vocational schools and technical faculties. Private universities also offer a range of HVET programmes in fields such as business administration, IT, health sciences and engineering.
Social partners	-	✓	✓	✓		Social partner	VET HVET CET AE ALMP	Social partners, including employers’ organisations and trade unions, play an important role in the adult skills system. Employers’ organisations and, to some extent, trade unions provide insights into the labour market's skills needs, helping to ensure alignment between demand and supply. They collaborate with VET and HVET providers to offer on-the-job training, internships, and apprenticeships. They also work with the PES to create job opportunities for adults.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2023[3]), (OECD, 2017[4]), (Dlugosch, 2023[5]), (Eurydice, 2024[6]), (Eurydice, 2024[7]), (VHS, 2024[8]), (EPALE, 2024[9]), (Educate, 2024[10]), (European Committee of the Regions, 2024[11]), (İŞKUR, 2024[12])

Stakeholders and responsibilities at the regional level

Recent governance reforms have resulted in a strengthened role at the regional level through the Special Provincial Administrations and the Provincial Metropolitan Municipalities and in the creation of Provincial Boards of Employment and Vocational Education:

• Special Provincial Administration and Provincial Metropolitan Municipalities are intermediate-level local government units. They are responsible for various policies, including infrastructure, transport, and some public services. These entities are increasingly involved in aligning educational programmes with regional economic needs.

• Provincial Boards of Employment and Vocational Education are chaired by the provincial governor and coordinate employment and vocational education policies at the provincial level. The board consists of representatives from local government, education institutions, chambers of commerce, labor unions, and other relevant stakeholders. Its secretariat services are jointly managed by the provincial directorate and provincial national education directorate within their respective areas of responsibility, with meeting organisation specifically handled by the provincial directorate.

• The Provincial PES office is a local government agency established in each province to execute employment and labor-related services. It operates under the Ministry of Labor and Social Security, implementing national employment policies at the local level while coordinating on-the-job training programs and vocational training programs. Offices are located in 81 provinces.

• Vocational and Technical Colleges (Meslek Yüksekokulları) and Private Vocational Training Centres operate at the regional level to provide VET and HVET programmes to students. Most of the colleges are part of public universities, while the private centres operate independently but under the oversight of the Ministry of National Education.

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Special Pronvincial Administration and Pronvincial Metropolitan Municipalites	-	-	✓	✓	✓	Subnational government	VET	The Special Provincial Administrations are intermediate-level local government units responsible for providing services in rural areas outside municipal jurisdiction. At the same time, the Provincial Metropolitan Municipalities are established to manage urban areas with large populations. These entities oversee policies such as infrastructure development, urban planning, transportation and some public services. The role of these entities has been strengthened through legislative changes in recent years. According to the Law on Metropolitan Municipalities, they shall open vocational training and skills courses and cooperate with universities, colleges, VET schools, public entities and civil society organisations in the provision of such services.
Vocational and Technical Colleges (Meslek Yüksekokulları)	-	-	-	-	✓	Education Provider	VET	Vocational and Technical Colleges are post-secondary institutions that offer associate degree programs focused on specific vocational skills. They provide advanced technical training and prepare students for the labour market. Most colleges are part of public universities. The institutions are located throughout Türkiye, with a higher concentration in urban areas.
Private Vocational Training Centers	-	-	-	-	✓	Education provider	HVET	These centres offer specialised certifications and training programmes in specific technical fields. They often focus on specific industry needs, providing non-degree VET. They operate at regional and local levels but are subject to oversight mainly by the Ministry of National Education. Local governments may be involved in providing support services to these centres, such as spaces for training and funding initiatives for certain groups.
Provincial PES offices	-	-	✓	-	-	National Agency	ALMP	While the PES is centralised nationally, it operates through provincial directorates and service centers. It has provincial offices in all cities and service centers in highly populated areas across Türkiye. These offices are responsible for implementing the agency’s programmes locally.
Provincial Employment and Vocational Training Boards (İl İstihdam ve Mesleki Eğitim Kurulları)	-	✓	✓	-	-	National Agency	VET ALMP	These boards are established in each province to enhance coordination between local stakeholders in employment and vocational training. They operate under the guidance of the Public Employment Service. Their key functions include facilitating collaboration among local stakeholders, contributing to policy creation, and monitoring and evaluating local programmes at provincial level. They typically include representatives from government agencies, employers’ organisations, trade unions, and educational institutions. The boards meet quarterly to decide on employment policies and strategies, prepare local action plans, and monitor implementation.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2023[3]), (OECD, 2017[4]), (Dlugosch, 2023[5]), (Eurydice, 2024[6]), (Eurydice, 2024[7]), (VHS, 2024[8]), (EPALE, 2024[9]), (Educate, 2024[10]), (European Committee of the Regions, 2024[11]), (İŞKUR, 2024[12])

Stakeholders and responsibilities at the local level

The local level in Türkiye is close to 1 400 municipalities. The municipalities play a supportive and complementary role in the adult skills system:

• Municipalities do not have statutory responsibilities for implementing and funding adult skills policies. However, in practice, they often partner with the national PES or other national agencies to implement ALMPs, CET and AE policies on the ground, including through the operation of Adult Education Centres.

• Adult Education Centres and Adult Vocational Education Centres are public institutions under the Ministry of National Education. They provide non-formal adult education, often in cooperation with municipalities. In recent government strategies, adult education centres have been empowered to work directly with local stakeholders to align training programmes with regional and local labour market needs.

• Local PES offices are service centers which operate under provincial PES units and implement employment services with on-the-job training programs and vocational training programs within their designated service areas, functioning as accessible points of contact for employment and labor services at the district level.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities	-	-	✓	-		Subnational government	CET AE ALMP	Municipalities play a supportive and complementary role in meeting regional and local needs. They often partner with the PES and other national agencies to implement ALMPs and AE policies locally, including through Adult Education Centres. Municipalities are also often involved in providing social integration programmes for marginalised adult groups, which may include skills training programmes that increase access to employment.
Adult education centres (Halk Eğitim Merkezleri)	-	-	-	-	✓	Education provider	CET AE	Adult Education Centers primarily focus on non-formal education aimed at improving general skills and life skills for adults. The centres are typically public institutions under the Ministry of National Education, often in cooperation with municipalities.
Adult Vocational Education Centers (Mesleki Eğitim ve Öğretim Merkezleri)	-	-	-	-	✓	Education provider	VET ALMP	These centres offer non-formal adult education, training in various vocational areas and other skill-based programmes. These centres are primarily public institutions under the Ministry of National Education. There are some private providers, which are typically for specialised certifications or short-term training programmes. The centres are available in both urban and rural areas across Türkiye, focusing on providing lifelong learning opportunities.
Local PES offices	-	-	-	-	✓	National agency	ALMP	The PES also has numerous local branches and service points in districts , particularly in areas with high population.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2023[3]), (OECD, 2017[4]), (Dlugosch, 2023[5]), (Eurydice, 2024[6]), (Eurydice, 2024[7]), (VHS, 2024[8]), (EPALE, 2024[9]), (Educate, 2024[10]), (European Committee of the Regions, 2024[11]), (İŞKUR, 2024[12])

References

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[10] Educate (2024), Adult Education in Turkey, https://educatehub.eu/wp-content/uploads/2023/10/Adult-Education-Turkey.pdf (accessed on 3 December 2024).

[9] EPALE (2024), A brief assessment of Adults’ Skills in Turkey, https://epale.ec.europa.eu/en/resource-centre/content/brief-assessment-adults-skills-turkey-results-survey-adult-skills-piaac (accessed on 3 December 2024).

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

[11] European Committee of the Regions (2024), Turkey - Vocational Training, https://portal.cor.europa.eu/divisionpowers/Pages/Turkey-Vocational.aspx (accessed on 3 December 2024).

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[7] Eurydice (2024), Eurydice Türkiye - Ongoing reforms and policy developments, https://eurydice.eacea.ec.europa.eu/national-education-systems/turkiye/ongoing-reforms-and-policy-developments (accessed on 3 December 2024).

[12] İŞKUR (2024), History, https://www.iskur.gov.tr/en/corporate/history/ (accessed on 3 December 2024).

[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.

[3] OECD (2023), OECD Economic Surveys: Türkiye 2023, OECD Publishing, Paris, https://doi.org/10.1787/864ab2ba-en.

[4] OECD (2017), Employment and Skills Strategies in Turkey, OECD Reviews on Local Job Creation, OECD Publishing, Paris, https://doi.org/10.1787/9789264279506-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/republic_of_turkiye.html.

[8] VHS (2024), Community Learning in Turkey, https://www.dvv-international.de/en/adult-education-and-development/editions/aed-812014-communities/community-learning-in/community-learning-in-turkey (accessed on 3 December 2024).

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