Beyond Traditional Governance Actors in VET Policy Transfer: An Analysis of Fundación Bertelsmann's Role as a Policy Entrepreneur in Dual VET Adoption in Spain

Abstract

Purpose: Following the Great Recession and in response to EU pressures, Spain initiated processes to adopt or expand Dual VET, beginning with the approval of Royal Decree 1529/2012. This decree established the legal framework for Dual VET and granted Autonomous Communities the authority to determine its implementation within their respective regions. The process culminated in the enactment of Organic Law 3/2022, which made Dual VET the nationwide standard, transforming it from an optional modality into the central pillar of the VET system. Throughout this process, foundations operating outside official governance structures have emerged as active agents in promoting Dual VET. This article examines the role of Fundación Bertelsmann in advancing these policies and explores its interactions with other VET governance actors.

Methods: The research adopts Reflexive Thematic Analysis to analyze qualitative data from various sources. These include grey literature produced by Fundación Bertelsmann, testimonies before the Education and Vocational Training Commission regarding the forthcoming Organic Law on the Regulation and Integration of Vocational Training, and semi-structured interviews. The interviews involved senior representatives from the foundation and stakeholders from Spain's central, Andalusian, and Basque VET governance. 

Findings: The findings show how Fundación Bertelsmann positioned itself as an actor in the transfer of Dual VET to Spain. This involved a clear strategic vision, the use of pilot projects as its main way of operating, and the creation of alliances with established governance actors. Its work focused on three areas: Supporting implementation, promoting the Spanish model and the concept of duality, and producing practical publications. While business organizations praised these efforts, other actors (especially governments and unions) were more skeptical, even if they acknowledged the value of certain activities such as advisory services and guide development. 

Conclusion: Fundación Bertelsmann has played the role of a policy entrepreneur in the process of adopting Dual VET in Spain. There is no detailed evidence of another nationally autonomous foundation taking on a similar role. However, the work of this foundation parallels that of development aid agencies, organizations, and foundations from Central Europe or directed from this region in the processes of Dual VET adoption on a global scale.