- 2025Legislative process
Background
Ireland’s National Training Fund (NTF) was enacted by legislation in 2000. The fund is a levy on employers, currently 1% on reckonable earnings of employees and collected through social insurance. The NTF provides an important source of funding for further education and training (EUR 609 million in 2025). Originally, expenditure from the NTF was ring-fenced for FET provision, but over time NTF funding has expanded to a broader base funding including Higher Education and programmes delivering enterprise and employment supports.
The main purpose of the NTF is to support: the training of those in employment; the training of those seeking employment; lifelong learning.
The NTF also allocates funding for research to provide information on existing and likely future skills requirements of the economy. The NTF is also part funded through the European Social Fund (ESF).
The NTF has built up a significant surplus (EUR 1.77 billion by the end of 2024). The reconvened National Skills Council’s first 2025 publication giving strategic advice to government recommended leveraging the NTF to provide a forum for the optimisation of enterprise engagement, for the maximal effectiveness of NTF expenditures.
In order to leverage the NTF, a Regulatory Impact Assessment Report was released in 2025. The recommendation made was to amend the original legislation to enable the NTF to expand its funding remit, including for capital expenditure.
The FET sector is expected to benefit from the NTF legislation, with anticipated uplifts to current and capital expenditure.
Objectives
The 2025 budget announced a six-year plan to spend part of the NTF surplus of EUR 1.485 billion over six years (starting in 2025). Legislation to amend the NTF legislation was laid before the Irish Parliament in October 2025, with a commitment to retain existing services and to ensure spending aligns to the core objectives of the NTF to:
- raise the skills of those in employment;
- provide training to those who wish to acquire skills for the purposes of taking up employment; or
- provide information in relation to existing, or likely future, requirements for skills in the economy.
The main provisions of the legislation National Training Fund (Amendment) Bill 2025 include:
To allow NTF to allocate capital expenditure e.g. on the acquisition of lands, premises, furniture or equipment or the upgrading, construction or reconstruction of facilities or premises for the purposes of:
- raising the skills of those in employment; or
- providing training to those who wish to acquire skills for the purposes of taking up employment; or
- providing information in relation to existing, or likely future, requirements for skills in the economy.
That research and innovation payments and core funding for higher education may be provided from the National Training Fund for the purposes of schemes to raise the skills of those in employment or to provide training to those who wish to acquire skills for the purposes of taking up employment or to provide information in relation to existing, or likely future, requirements for skills in the economy. Research and innovation payments are defined under the act as follows:
- 'innovation' means the development and use of new ideas, methods, products, processes, policies and services where they have not been used previously;
- 'research' means creative and systematic work in any discipline that is undertaken in order to increase the stock of knowledge (including knowledge of humankind, culture and society) and to devise new applications of available knowledge.
In the October 2025 parliamentary debate on the National Training Fund Amendment Bill, the Minister for Further and Higher Education outlined:
'The NTF surplus package announced in budget 2025 is a six-year plan to reduce this surplus through spending a total of EUR 1 485 billion progressively over the period commencing this year. This significant NTF investment package provides for expenditure on new training and skills provision areas that were not previously funded.'
The Minister included further details:
'Budget 2025 delivered a total NTF funding package of EUR 1.485 billion over a six-year period from 2025 to 2030 for the tertiary sector, including EUR 885 million in current funding, an increase in funding for higher education by a further EUR 150 million per annum up to 2030, and one-off current funding of EUR 235 million for the tertiary sector including skills and apprenticeships. Additionally, a EUR 600 million capital uplift was provided to enable skills development, including facilities, in the areas of healthcare, veterinary skills and further education skills, and to support universal access to skill provision. In the research and innovation sector, there was an increase to the PhD stipend among other things. This funding will provide key education and training facilities and opportunities for employees and those seeking employment. The funding will also assist in meeting the existing and future skills needs for employers. The National Training Fund is a strategic national asset for reskilling and upskilling our existing workforce and the NTF funding package of nearly EUR 1.5 billion will deliver a substantial and impactful investment to deliver the critical skills needed for the 21st century."
Description
The National Training Fund (Amendment) Bill 2025 was published in October and is at the fifth (final) stage of the lower house of the Irish Parliament.
The National Training Fund (Amendment) Bill 2025 was published in October and is at the fifth (final) stage of the lower house of the Irish Parliament.
Bodies responsible
- Department of Further and Higher Education, Research, Innovation and Science (DFHERIS)
- Further Education and Training Authority (SOLAS)
- Higher Education Authority (HEA)
Target groups
Learners
- Learners in upper secondary, including apprentices
- Young people (15-29 years old)
- Young people not in employment, education or training (NEETs)
- Learners with migrant background, including refugees
- Learners at risk of early leaving or/and early leavers
- Learners with disabilities
- Adult learners
- Older workers and employees (55 - 64 years old)
- Unemployed and jobseekers
- Persons in employment, including those at risk of unemployment
- Low-skilled/qualified persons
- Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)
Entities providing VET
- Companies
- Small and medium-sized enterprises (SMEs)
- VET providers (all kinds)
Other stakeholders
- Social partners (employer organisations and trade unions)
- National, regional and local authorities
Otros
Thematic categories
Governance of VET and lifelong learning
This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.
This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.
The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.
This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
This thematic sub-category refers to the ways VET is funded at the system level. Policies include optimisation of VET provider funding that allows them to adapt their offer to changing skill needs, green and digital transitions, the social agenda and economic cycles, e.g. increasing the funding for VET or for specific programmes. They can also concern changing the mechanism of how the funding is allocated to VET schools (per capita vs based on achievement or other criteria). Using EU funds and financial instruments for development of VET and skills also falls into this sub-category.
This thematic sub-category refers to further development of national quality assurance (QA) systems for IVET and CVET, for all learning environments (school-based provision and work-based learning, including apprenticeships) and all learning types (digital, face-to-face or blended), delivered by both public and private providers. These systems are underpinned by the EQAVET quality criteria and by indicative descriptors applied both at system and provider levels, as defined in Annex II of the VET Recommendation. The sub-category concerns creating and improving external and self-evaluation of VET providers, and establishing criteria of QA, accreditation of providers and programmes. It also covers the activities of Quality assurance national reference points for VET on implementing and further developing the EQAVET framework, including the implementation of peer reviews at VET system level.
High-quality and timely skills intelligence is a powerful policy tool, helping improve economic competitiveness and fostering social progress and equality through the provision of targeted skills training to all citizens (Cedefop, 2020). Skills intelligence is the outcome of an expert-driven process of identifying, analysing, synthesising and presenting quantitative and/or qualitative skills and labour market information. Skills intelligence draws on data from multiple sources, such as graduate tracking systems, skills anticipation mechanisms, including at sectoral and regional levels. Actions related to establishing and developing such systems fall under this thematic sub-category.
Modernising VET infrastructure
This thematic category looks at how VET schools and companies providing VET are supported to update and upgrade their physical infrastructure for teaching and learning, including digital and green technologies, so that learners in all VET programmes and specialities have access to state-of-the-art equipment and are able to acquire relevant and up-to-date vocational and technical skills and competences. Modernising infrastructure in remote and rural areas increases the inclusiveness of VET and LLL.
This thematic sub-category refers to measures for modernising physical infrastructure, equipment and technology needed to acquire vocational skills in VET schools and institutions that provide CVET or adult learning, including VET school workshops and labs.
This thematic sub-category focuses on establishing and upgrading to state-of-the-art digital infrastructure, equipment and technology, such as computers, hardware, connectivity and good broadband speed that should ensure quality and inclusive VET provision, especially in blended and virtual modes. It also includes specific measures to remove the digital divide, e.g. supporting geographically remote or rural areas to ensure social inclusion through access to such infrastructure for learning and teaching. It also includes support measures for learners from socially disadvantaged backgrounds to acquire the necessary equipment.
This thematic sub-category refers to initiatives where VET institutions or companies providing VET not only ‘teach’ about environmental and social sustainability but implement green and sustainable principles in their physical infrastructure, e.g. using renewable energy, applying organic agriculture on their premises, recycling, using learning and training materials sustainably, etc.
Modernising VET offer and delivery
This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.
The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.
This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.
Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.
VET standards and curricula define the content and outcomes of learning, most often at national or sectoral levels. VET programmes are based on standards and curricula and refer to specific vocations/occupations. They all need to be regularly reviewed, updated and aligned with the needs of the labour market and society. They need to include a balanced mix of vocational and technical skills corresponding to economic cycles, evolving jobs and working methods, and key competences, providing for resilience, lifelong learning, employability, social inclusion, active citizenship, sustainable awareness and personal development (Council of the European Union, 2020). The thematic sub-category also refers to establishing new VET programmes, reducing their number or discontinuing some. It also includes design of CVET programmes and training courses to adapt to labour market, sectoral or individual up- and re-skilling needs.
This thematic sub-category refers to expanding VET to higher levels and developing VET programmes leading to qualifications at EQF levels 5-8.
This thematic sub-category covers all developments related to work-based learning (WBL) elements in VET programmes and apprenticeships which continue to be important in the policy agenda. It includes measures to stabilise the offer of apprenticeships, the implementation of the European framework for quality and effective apprenticeships, and using the EU on-demand support services and policy learning initiatives among the Member States. It also covers further expansion of apprenticeships and WBL to continuing VET (CVET), for transition to work and inclusion of vulnerable groups, and for improving citizens’ qualification levels.
Supporting lifelong learning culture and increasing participation
Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.
This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.
This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.
This thematic sub-category refers to initiatives that promote VET and lifelong learning implemented at any level and by any stakeholder. It also covers measures to ensure and broaden access to information about VET to various target groups, including targeted information and promotional campaigns (e.g. for parents, adult learners, vulnerable groups). Among others, it includes national skill competitions and fairs organised to attract learners to VET.
This thematic sub-category refers to ensuring smooth transitions (permeability) of learners within the entire education and training system, horizontally and vertically. It includes measures and policies allowing learners easily or by meeting certain conditions to move from general education programmes to VET and vice versa; to increase qualification levels in their vocation through the possibility of attending vocational programmes at higher levels, including professional degrees in higher education. It also covers opening up learning progression by introducing flexible pathways that are based on the validation and recognition of the outcomes of non-formal and informal learning.
This thematic sub-category refers to all kinds of incentives that encourage learners to take part in VET and lifelong learning; VET providers to improve, broaden and update their offer; companies to provide places for apprenticeship and work-based learning, and to stimulate and support learning of their employees. It also includes measures addressing specific challenges of small and medium-sized enterprises (SMEs) willing to create work-based learning opportunities in different sectors. Incentives can be financial (e.g. grants, allowances, tax incentives, levy/grant mechanisms, vouchers, training credits, individual learning accounts) and non-financial (e.g. information/advice on funding opportunities, technical support, mentoring).
This thematic sub-category refers to providing the possibility for individuals who are already in the labour market/in employment to reskill and/or acquire higher levels of skills, and to ensuring targeted information resources on the benefits of CVET and lifelong learning. It also covers the availability of CVET programmes adaptable to labour market, sectoral or individual up- and reskilling needs. The sub-category includes working with respective stakeholders to develop digital learning solutions supporting access to CVET opportunities and awarding CVET credentials and certificates.
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2026). National Training Fund (NTF): Legislation to unlock EUR 1.5b surplus for capital, innovation and research to upskill/reskill employed and unemployed: Ireland. In Cedefop, & ReferNet. (2026). Timeline of VET policies in Europe (2025 update) [Online tool].
https://www.cedefop.europa.eu/es/tools/timeline-vet-policies-europe/search/50885