Adult learning is a complex policy field. Different stakeholders are involved in the policy definition and design process, such as ministries of education, labour and welfare, the social partners and other agencies. Decisions are made at central, regional or local level, and sometimes at different levels concurrently. The different types of stakeholders and levels of government involved may result in conflicting interests, policies that run counter to the objectives of improving adult skills, and wasteful public expenditures. To avoid duplication, ensure effective use of public finances and develop user-friendly systems, adult learning must be co-ordinated with related areas where policy will complement rather than conflict – i.e. initial education, employment and other social policies. The creation of adapted institutions for adult learning policy formulation and programme delivery and the establishment of clear policy priorities through target-setting are effective ways to get a diverse range of actors to work towards common goals.