1. education

Nord-VET – The future of VET in the Nordic Countries
The current state and challenges of
Vocational Education and Training in
Finland
Marja-Leena Stenström and Maarit Virolainen
Finnish Institute for Educational Research
University of Jyväskylä
Research report published 2014 by
Nord-VET – The future of Vocational Education in the Nordic countries
A research project supported by the NordForsk programme “Education for Tomorrow”
Department of Psychology & Educational Studies
Roskilde University, Postbox 260, DK-4000 Roskilde, Denmark
Homepage: http://nord-vet.dk /
© Copyright: the author and Nord-VET
ISBN: 978-87-7349-882-8
Nord-VET – The future of Vocational Education in the Nordic countries
The purpose of the Nordic research project, Nord-VET, is to generate new knowledge on the
strengths and weaknesses of the different models of vocational education and training (VET)
at upper secondary level in the four Nordic countries. This research is expected to strengthen
the knowledge base required for developing VET for the future.
The main purpose of this project is to shed light on the different Nordic ways of handling the
key dilemma of providing double access to the labour market and to higher education in vocational education. More specifically it seeks to determine how the different ways of handling this
dilemma have an impact on social equality, inclusion and the esteem of vocational education.
The project is publishing three sets of country studies on Finland, Denmark, Norway and Sweden. The first set of reports is on the historical emergence of vocational education (VET) in
the four countries. The second set of reports is on the current challenges for VET in the four
Nordic countries. This is the Danish report. The third report to be published February 2015 is
on innovations in VET.
For more information visit the homepage: www.nord-vet.dk
Content
Introduction .................................................................................................................................. 7
1. Current institutional architecture and forms of governance of vocational education
and training in Finland........................................................................................................... 8
1.1 Education system................................................................................................................. 8
1.2 The legal framework: Central institutions, stakeholders and governance of VET.............. 9
1.3 Financing of Finnish VET................................................................................................. 13
2. The main structure of the VET programmes...................................................................... 16
2.1 VET programmes............................................................................................................... 16
2.2 Types of VET..................................................................................................................... 18
2.3 Apprenticeship training ..................................................................................................... 22
3. Transition into VET and completion of VET programmes............................................... 28
4. Enhancing links between VET and working life ................................................................ 32
5. Transition from VET to the labour market ........................................................................ 36
6. Access to higher education.................................................................................................... 41
7. The esteem and position of VET .......................................................................................... 47
8. Socially inclusive VET and dropouts................................................................................... 51
9. Challenges of Finnish VET................................................................................................... 57
References.................................................................................................................................... 59
Appendix 1................................................................................................................................... 70
Appendix 2................................................................................................................................... 72
Appendix 3................................................................................................................................... 76
The current state and challenges of Vocational Education and Training in Finland
List of figures
Figure 1. Formal education in Finland............................................................................................ 9
Figure 2. Organisation of the educational programme................................................................. 10
Figure 3. Example of the structure of VQ in social and health care, 120 cr................................. 17
Figure 4. The number of apprentices in Finland 1997-2013........................................................ 26
Figure 5. Direct transition to further studies of graduates of the 9th grade of comprehensive
school 2005-2012..................................................................................................................... 28
Figure 6. New students in vocational education (curriculum-based) by field of education and
gender in 2013......................................................................................................................... 30
Figure 7. VET graduates’ socio-economic status in the labour market five years after starting
their studies (3-years programme) in 2009 by gender............................................................. 40
Figure 8. VET graduates’ socio-economic status five years after starting their studies with
respect to previous educational background............................................................................ 40
Figure 9. VET graduates’ continuation to UAS by previous education........................................ 44
Figure 10. VET graduates’ continuation to UAS by parents’ educational background................ 44
Figure 11. Immediate continuation of studies in upper secondary education in 2000-2012 in
Finland..................................................................................................................................... 48
Figure 12. New students in education leading to a qualification or degree by sector of
education and gender in 2012.................................................................................................. 50
Figure 13. Progress of studies by field in VET............................................................................. 54
Figure 14. VET students’ careers by gender................................................................................. 55
Figure 15. VET students’ employment status five years after they started their studies.............. 56
4
The current state and challenges of Vocational Education and Training in Finland
List of tables
Table 1. Current Expenditure on Regular Education System by Type of
Expenditure 1995–2012........................................................................................................... 13
Table 2. Real Development of Educational Institutions’ Operational Costs/Students by Sector
in 1995-2012............................................................................................................................ 15
Table 3. Number of VET Students by Type of Education in 2007 and 2010................................ 19
Table 4. VET Students by Type of Education in 2013.................................................................. 19
Table 5. Types of IVET Programmes............................................................................................ 21
Table 6. Apprenticeship Training in Finland 2005-2012.............................................................. 24
Table 7. The Number of Graduates from Apprenticeship Training Compared to the Number of
All Graduates from VET in Finland in 2000-2012.................................................................. 25
Table 8. Age of the New Students in the Curriculum-Based VET Programmes in 2013............. 30
Table 9. Pass Rates by Sector of Education in 2012..................................................................... 31
Table 10. Main Differences Between On-the-job Learning and Practical Training in
Initial VET............................................................................................................................... 33
Table 11. Employment of Graduates One Year After Graduation by Level of Education
in 2007-2012............................................................................................................................ 36
Table 12. Employment of VET Graduates One Year After Graduation in 2007-2012................. 37
Table 13. Employment of Graduates One Year After Graduation by Field of VET in 2012........ 38
Table 14. VET Graduates’ Socio-Economic Status by Graduate Field Five Years After Starting
Their Studies by Study Field................................................................................................... 39
Table 15. VET Graduates’ Continuation to UAS by Field of Education ..................................... 45
Table 16. Attraction of the Upper Secondary Education (Primary Applicants/Study Places) in
2008-2013................................................................................................................................ 49
Table 17. New VET Students by Study Fields in 2013................................................................ 50
Table 18. Discontinuation of Education in Upper Secondary General, Vocational, Polytechnic
and University Education in Academic Years 2000/2001-2011/2012..................................... 52
Table 19. Discontinuation of VET Students by Year and Study Field.......................................... 52
Table 20. Progress of VET Studies by the Different Finnish Regions.......................................... 53
5
The current state and challenges of Vocational Education and Training in Finland
Introduction
In the Finnish educational system, there has been a long tradition that has underlined equal opportunities for participation in education. The establishment of a common nine-year basic education
system started nation-wide at the end of the 1960s and this comprehensive education stabilised
in the 1970s (Antikainen, 2007; Laukia, 2013). It created a firm basis for further expansion of
education at both the upper secondary and tertiary level. Today, Finnish education and science
policy stresses quality, efficiency, equity and internationalism. The priorities in educational development are to raise the level of education among the population and the labour force; to improve
the efficiency of the education system; to prevent children’s and young people’s exclusion; and
to enlarge adults’ opportunities in education and training (Ministry of Education and Culture,
Finland, 2012a).
The focus of this research report is the development of Finnish initial vocational education and
training (VET) during the last two decades. The goal of initial vocational education and training
is to provide solid vocational knowledge and skills, which enable students to move into working
life. In addition, the aim of VET is to support lifelong learning and to improve the skills of the
work force (Ministry of Education and Culture, Finland, 2014b). Lifelong learning has become
increasingly important and its promotion is seen as instrumental in improving and maintaining
people’s employability (Hake, 1999). Accordingly, vocational education and training is expected
to prepare students for an unknown future based on current knowledge. At present, being employable is associated with being a generally knowledgeable and educated person (Bowden & Marton,
2004; Nilsson & Nyström, 2013).
The aim of this research report is several-fold. First, it describes developments in Finnish
initial vocational education and training (VET) during the last twenty years, from the 1990s to
the present day. Second, it aims to analyse and reflect on the challenges that have emerged in
relation to the described developments in vocational education in Finland. Furthermore, the aim
of the descriptions and discussion is to create a basis for Nordic comparison within the NordVET project, and also to foster international comparison more generally.1 The development of
the educational system in general and the changes in the societal environment have both effected
vocational education and its outcomes in a way that demands attention and would benefit from
Nordic comparison.
1
This research report continues the analysis and description of Finnish VET completed in the previous, more historically oriented report prepared for the Nord-VET project. The report, The history of Finnish vocational education and training, by the same authors, is available at: http://nord-vet.dk/indhold/uploads/History-of-Finnish-VET-29062014final.pdf.
7
The current state and challenges of Vocational Education and Training in Finland
1. Current institutional architecture and forms of
governance of vocational education and training in
Finland
The aim of this section is to provide a compact introduction to the institutional architecture of
Finnish VET as a part of the education system. First, the present education system is described in
general in order to put Finnish VET in context. Second, the central institutions, stakeholders and
governance of VET are presented. Third, the financing of Finnish VET is described and recent
changes in it are discussed.
1.1 Education system
The structure of the Finnish education system is built upon basic education (Figure 1). Basic
education, which is compulsory education for all Finnish citizens, is a free nine-year education
provided in comprehensive schools. Completing the basic education syllabus leads to eligibility
for all upper secondary level (post compulsory level) education. Upper secondary education is
divided into general education and vocational education and training, as shown in Figure 1. General upper secondary schools provide a three-year general education programme, which leads to
the national matriculation examination.2 Vocational upper secondary schools (initial vocational
education) also provide three-year study programmes, and these lead to vocational qualifications.
Altogether, there are 119 vocational study programmes leading to 53 different vocational qualifications confirmed by the Ministry of Education and Culture. Vocational education and training is
intended both for young people and for adults already active in working life. A vocational qualification gives general eligibility for polytechnic (university of applied sciences) and university
studies. Accordingly, vocational qualifications in Finland give access to both the labour market
and tertiary education. The opportunity to conclude vocational education that affords eligibility
to higher education is a specific characteristic that differentiates Finnish VET from that of other
Nordic countries, except for Sweden.
Students in general upper secondary schools also have the option of studying for both a vocational qualification and the matriculation examination (a double qualification) at the same time.
Both forms provide eligibility for further studies at polytechnics (universities of applied sciences)
and universities. Adult education and training is available at all levels (Ministry of Education and
Culture, Finland, 2012a).
2
8
The general upper secondary curriculum builds on the basic education syllabus. The scope of the general upper
secondary school syllabus is 3 years, and it should be completed within a maximum of 4 years, unless a student
is granted a continuation of the completion period for a legitimate reason. At the end of general upper secondary
education, students usually participate in the national matriculation examination. It provides general eligibility
for higher education, but does not qualify students for any occupation (see Finnish National Board of Education,
2003).
The current state and challenges of Vocational Education and Training in Finland
Figure 1. Formal education in Finland (adapted from http://www.minedu.fi/OPM/
Koulutus/koulutusjaerjestelmae/?lang=en)
1.2 The legal framework: Central institutions, stakeholders and
governance of VET
In Finland, education policy is defined by Parliament and the Government (Cedefop ReferNet,
2011) (Figure 2). In addition to legislation, the aims of educational policy are specified and defined
in various development plans, documents and in the state budget. A central, regular document in
the educational sector is the Development Plan for Education within the Administrative Field of the
Ministry of Education and University Research (KESU). The Government approves it every four
years, the first year being the year of its approval and the next covering the following five calendar
years. Accordingly, the current plan for the years 2011-2016 was adopted at the end of 2011. In this
plan for the period 2011–2016, specific attention has been given to the alleviation of poverty, inequality and exclusion, stabilising the public economy and fostering sustainable economic growth,
employment and competitiveness (Ministry of Education and Culture, Finland, 2012a).
9
The current state and challenges of Vocational Education and Training in Finland
Figure 2. Organisation of the educational programme (adapted from Cedefop
ReferNet, 2011)
The Ministry of Education and Culture is the highest administrative authority governing the field
of education. It is responsible for the strategic and normative steering of vocational education
and training and leads its national development. It determines the details of the qualifications and
the extent of training and also grants authorisation for educational institutions to provide VET.
In turn, the government determines the national objectives of VET, the structure of the qualifications and the core subjects. The core curricula are designed by the National Board of Education,
which also sets the requirements of competence-based qualifications (adult education) (Ministry
of Education, 2009). Key legislation consists of the Vocational Education and Training Act (Laki
ammatillisesta koulutuksesta 630/1998), the Vocational Adult Education Act (Laki ammatillisesta
aikuiskoulutuksesta 631/1998) and the Act on the Financing of the Provision of Education and
Culture (Laki opetus – ja kulttuuritoimen rahoituksesta 1705/2009).
The Ministry of Education and Culture supervises education and training provision, which
is subsidised by public funding (from primary and secondary general education and vocational
10
The current state and challenges of Vocational Education and Training in Finland
training to polytechnic, university, and adult education). It is responsible for implementing national education policies together with the Finnish National Board of Education (FNBE) (Ministry of Education and Culture, Finland, 2014a). National qualification requirements are drawn up
by the Finnish National Board of Education in cooperation with employers’ organisations, trade
unions, the Trade Union of Education, and student unions (Finnish National Board of Education,
2014c). They are dealt with by the National Education and Training Committees, which are tripartite bodies established for each occupational field by the Ministry of Education and Culture for a
term of 3 years at a time to plan and develop vocational education and training. Qualification requirements for upper secondary vocational qualifications and requirements for competence-based
qualifications are the same for both young and adult students (Stenström, Väisänen, Rossinen,
Tuominen & Laakkonen, 2013).
For the purpose of organising education and training, the Ministry of Education and Culture
grants permission to education providers, determining the sectors of education in which they are
allowed to organise education and their total student numbers. The education providers determine
which vocational qualifications and which study programmes within the sectors of education will
be organised at their vocational institutions (Cedefop Refernet Finland, 2011). VET providers
are responsible, in particular, for organising training in their areas, for matching provision with
local labour market needs, and for devising local curricula based on the core curricula (Cedefop
Refernet Finland, 2011).
Many types of institutions can serve as VET providers: “A VET provider may be a local authority, a municipal training consortium, a foundation or other registered association, or a state
company” (Ministry of Education and Culture, Finland, 2014b). Furthermore, there are five specialised institutes and a training centre in the Saami area run by the government. Swedish-language and bilingual institutions provide Swedish-language training (Ministry of Education and
Culture, Finland, 2014b).
In 2013, there were 120 vocational institutions in Finland. The number of VET providers has
decreased considerably since 2005, when it stood at 182 in total (see Appendix 1, Table 1). The
change in the number of institutions providing VET is the combined outcome of adjusting the
network of educational institutions to the diminishing age cohorts and increasing its effectiveness.
Accordingly, the change in the number of institutions is partly an outcome of administrative reorganisation (merging of institutions) and partly a result of cancelling individual institutions (see
Appendix 1, Tables 2-3). At the same time, the number of general upper secondary institutions
has decreased from 428 (in 2005) to 374 (in 2013, according to Statistics Finland’s database PXWeb Statfin). The majority of vocational institutions (usually VET institutions) are maintained by
local authorities (i.e. municipalities, federations of municipalities and the state). Approximately
25% of the total number is maintained by private organisations if specialist vocational education
and adult education institutions are not included (Appendix 1, Table 1). Therefore, the majority of
vocational institutions are maintained by local authorities and joint municipal boards.
Private vocational institutions operating under the Vocational Education and Training Act are
steered by the Ministry of Education and Culture, and they “receive government subsidies and
have the right to award official qualification certificates” (Cedefop Refernet, 2011, p. 11). Other
private educational institutions do not have the right to award qualification certificates. However,
11
The current state and challenges of Vocational Education and Training in Finland
in Finland there are a number of private educational institutions, for example in the service sector
educating hairdressers. They do not receive public funding even if they fall under the supervision
of the consumer authorities.
The Vocational Education and Training Act (Laki ammatillisesta koulutuksesta 630/1998) provides that the needs of working life have to be given special attention. Also, it demands that education must be organised in cooperation with representatives from business, industry and the world
of work in general. The most important channels through which the social partners participate in
the planning of VET are the national training committees set up by the Ministry of Education and
Culture and the governing bodies and advisory councils of educational institutions. Usually, vocational institutions have established local networks to become involved in regional business life.
The education providers are the so-called competent bodies when it comes to curriculum-based
vocational qualifications. Accordingly, certificates are awarded by the education provider. Students are awarded a qualification certificate (tutkintotodistus/examensbetyg) upon completion of
all the studies required for the qualification.
In Finland, the centrally organised inspection of educational institutions by state authorities
has been compensated by evaluation aiming to support the development of education. In the
1990s, the national norm-oriented school-inspection system was abolished and the decision-making power of local authorities was increased (Räisänen & Räkköläinen, 2014). Since 1999, the
meaning of evaluation as a method for steering development in education has been enhanced by
law to cover all educational sectors (Rådet för utbildningsutvärdering, 2004). The aim of such
evaluation is to guarantee the fulfilling of the aims for VET defined by law, as well as to support development and circumstances for learning. Providers of education are obliged to organise
self-evaluation and to participate in external evaluations of their actions (Vocational Education
and Training Act 630/1998).
The construction of national evaluating bodies has taken place step by step. Until recently,
there were three different bodies completing evaluations: Finnish Education Evaluation Council,
Finnish Higher Education Evaluation Council and National Board of Education. In May 2014,
these separate evaluative bodies were merged into a single Finnish Education Evaluation Centre
(FINEEC, in Finnish KARVI), which operates in Helsinki and Jyväskylä (The Finnish Education Evaluation Council, 2014; Laki Kansallisesta koulutuksen arviointikeskuksesta 1295/2013).
In its evaluations concerning VET, FINEEC focusses on three approaches. First, evaluations of
learning outcomes and related analyses are completed in order to find out whether the aims of the
curriculum are fulfilled and the demands of working life are met. Second, thematic evaluations
address specific thematic contents or models of organising VET. Third, system evaluations are
completed to evaluate the education system, its parts, or educational policy, its implementation or
developing of education system (KARVI, 2014).
In addition, the Ministry of Education and Culture and the Finnish National Board of Education or an external audit firm, as decided by the Ministry, perform inspections to verify the validity of the criteria for allocation of funds. Furthermore, regional administration (e.g. Centre for
Economic Development, Transport and the Environment) plays an important role in promoting
the relevance and demand-driven approach of vocational adult education and training. Regional
authorities implement government-funded continuous training for teaching staff in their respec-
12
The current state and challenges of Vocational Education and Training in Finland
tive regions and allocate grants for the purposes of vocational institutions’ mission to develop and
serve the world of work. They also manage regional ESF funding, which is allocated for purposes
such as the development of work-based learning (Cedefop ReferNet, 2011).
1.3 Financing of Finnish VET
The Ministry of Education and Culture has the overall responsibility for funding education and
training except for labour market training, which is the responsibility of the Ministry of Employment and the Economy (Cedefop ReferNet, 2011). The funding criteria for VET providers are
uniform irrespective of ownership. VET providers are financed by the State and local authorities
and, in this sense, most private institutions do not differ from publicly maintained institutions.
The allocation of funding is based on the number of students that the education providers report
and on the unit prices that the Ministry of Education and Culture sets. The unit prices are different for different educational fields (Ministry of Education and Culture, Finland, 2014e; Cedefop
ReferNet, 2011). Since performance-based funding for VET was established in 2002, a minor part
of the total financing (3%) has become dependent on the efficiency of the VET provider (Cedefop
ReferNet, 2011; 2012). The models for this kind of steering are developed further.
Since 1995, the level of total expenditure on education as a percentage of Gross Domestic Production (GDP) has remained at almost the same level in Finland. It has decreased slightly, from
6.4% in 1995 to 6.3% in 2012 (see Table 1; Statistics Finland, 2014b).
Table 1. Current Expenditure on Regular Education System by Type of
Expenditure 1995–2012
Type of Expenditure
Year
1995
EUR
million
..
2 379
429
Pre-primary education 1)
Comprehensive school education 2)
Upper secondary general education 2)
Vocational education 3)
1 161
2000
EUR
million
94
2 734
503
2005
EUR
million
269
3 413
600
2010
EUR
million
312
4 120
695
2011
EUR
million
323
4 231
713
2012
EUR
million
342
4 363
727
925
1 183
1 614
1 695
1 736
Apprenticeship training
32
96
132
177
170
171
Polytechnic education
University education and research 4)
Other education 5)
Administration
145
945
265
525
1 364
298
704
1 671
361
896
2 162
442
921
2 330
462
928
2 340
478
143
161
190
242
238
227
Financial aid for students
614
648
732
871
847
837
Total
6 113
7 348
9 253
11 532
11 930
12 149
Current expenditure as a percentage
of GDP, %
6.4
5.6
5.9
6.5
6.3
6.3
3)
13
The current state and challenges of Vocational Education and Training in Finland
Note: 1) Free of charge pre-primary education for 6-year-old children (pre-school education) in day-care centres and
comprehensive schools started in August 2000. Prior to August 2000, expenditure on pre-primary education in
comprehensive schools is included in expenditure on comprehensive school education. 2) Calculatory employers’
contribution fees for pension funds on municipal teaching personnel have been added to the figures for the years
1995–2000. The period 2000–2012 also includes comprehensive school and upper secondary general education
arranged in folk high schools. 3) Expenditure on vocational and polytechnic education does not include small
outlays. 4) Includes universities’ external financing for research. Due to changes caused by the amended Universities Act, the data from 2010 onwards is not fully comparable with that of earlier years. Includes rents of the State
Real Estate Board for only part of 1995. The figures for 2010 exclude transferable appropriations for universities’
operating expenditure and for universities’ joint expenditure. 5) Not including education leading to a qualification
or degree in folk high schools in 2000–2012.
While expenditure on comprehensive school education has constituted the biggest proportion of
expenditure on the regular education system, the next biggest proportions have been university education and research, and vocational education. It is notable that the relative amount of expenditure
on different educational sectors has changed considerably over the years. While expenditure on
comprehensive education has increased to be about 1.83 times as big as it was in 1995, expenditure
on university education and research has increased to be 2.48 times as big as in 1995. The sector of
school-based vocational education has been in a less favourable position. The total expenditure on
vocational education has increased by only 1.5 times compared to expenditure in 1995.
At the same time, expenditure on apprenticeship training has increased by 5.34 with respect
to the level it was at in 1995. Also, expenditure on polytechnic education has increased to be 6.4
times as big as it used to be in 1995. Since upper secondary general education has increased its
share by only 1.7 times, it seems that upper secondary education has increased its financing less
than other educational sectors since 1995 (Table 1, Statistics Finland 2014b). Naturally, these
comparisons have to be treated with caution because the expansion of expenditure on the polytechnic sector is very much an outcome of the fact that the whole sector was established in 1990s.
Also, the apprenticeship system has been expanding strongly since the 1990s (see Table 1).
Still, recent figures on the development of education providers’ operational costs/student/year
for the years 1995–2012 confirm the less favourable economic development in the VET sector
(Table 2, Statistics Finland, 2014g). Vocational education (including apprenticeship training) and
polytechnics’ education are the only sectors of education in Finland where costs/students have
decreased. In VET, as a whole, including all its forms, the costs have decreased by 700€ during
the period 1995–2012 (Table 2, Statistics Finland, 2014g).
These findings may partially explain the changes in the completion rate of upper secondary
education. Comparative data on education has shown that the completion of upper secondary education in Finland has decreased slightly, by 3.5 percentage points, from what it was in 2000 to be
84.2% in 2010, and this trend is not typical to all countries (Education, Audiovisual and Culture
Executive Agency, 2012, p. 171). The relatively low expenditure on VET and the merging of VET
institutions (see previous section) may explain this development to some extent. On one hand,
the level of expenditure on education will eventually affect the quality of education. On the other
hand, a network of upper secondary educational institutions has an effect on the accessibility of
14
The current state and challenges of Vocational Education and Training in Finland
education, which is meaningful to those young people who do not want to move away from home.
Still, earlier research findings on the regional variation of completion rates in upper secondary
education suggest that transition patterns can be very complicated. For example, the completion
rates of VET not only depend on provision but also employment and regional transition opportunities. So, completion rates may be higher in regions where employment opportunities are more
limited and vice versa (Stenström & Valkonen, 2012).
Table 2. Real Development of Educational Institutions’ Operational Costs/Students
by Sector in 1995–20121 (adapted from Statistics Finland, 2014g)
Sector of Education
Year
1995
2000
2005
2010
2011
2012
EUR
EUR
EUR
EUR
EUR
EUR
Pre-primary education
Comprehensive school education 2)
Upper secondary general education 2)
Vocational education 3)
..
7000
5500
5000
7200
5600
6100
7700
5900
5800
8200
5900
5700
8200
5800
5800
8200
5800
11500 11000
11000
10900
10900
10800
Polytechnic education 3)
University education and research 4)
Total
..
7700
12500 13800
7300
12400
7400
13800
7200
14300
7000
13800
8300
8400
8900
8900
8800
8300
Note: 1) Operational costs have been adjusted with respect to price level in 2012, utilising the price index relevant
for the field of operation based on national economic accounting regarding public expenditure on education. 2)
The costs include, computationally, employers’ pension insurance premiums, which municipalities’ have paid for
their faculty 1995–2000. In 2000–2012, it also includes comprehensive education and upper secondary education
organised by folk high schools. 3) Minor projects are not included. 4) Costs/students do not include new entrants
registered absent in universities of applied sciences. Minor projects are not included. 5) The costs include external
financing for universities. Due to the change in the Universities Act (558/2009), the figures since 2010 are not
completely comparable with earlier figures. The costs include rental costs for the state’s real estate organisation for
only part of 1995. Costs for 2010 do not include transferable appropriations for operational costs and universities’
shared costs.
15
The current state and challenges of Vocational Education and Training in Finland
2. The main structure of the VET programmes
2.1 VET programmes
In Finland, the VET curricula are defined by national qualification requirements, education providers’ locally approved curricula and students’ personal study plans. The national qualification
requirements are defined by the Finnish National Board of Education. They determine “composition of studies and objectives, core contents and assessment criteria for study modules”, as well
as “provisions on student assessment, student counselling, on-the-job learning, special education
and training, educational arrangements for immigrants and apprenticeship training” (Finnish National Board of Education, 2014c; Cedefop Refernet, 2011).
The national qualification requirements are drawn up in co-operation between employers’ organisations, trade unions, the Trade Union of Education and student unions. In addition, the local
partners participate in the construction as advisers and consultants on the side of the National
Education and Training Committees (Finnish National Board of Education, 2014c). The National
Education and Training Committees are tripartite bodies established for each occupational field
by the Ministry of Education and Culture for a term of three years at a time. Their duty is to plan
and develop vocational education and training (Cedefop Refernet, 2011). Local curricula are approved by the boards of the education providers.
• VET is organised into eight different fields of vocational education and training as follows:
• Humanities and education;
• Culture;
• Social science, business and administration;
• Natural sciences;
• Technology, communication and transport;
• Natural resources and the environment;
• Social services, health and sport; and
• Tourism, catering and domestic services.
In 2008, there were 53 different vocational qualifications in the above mentioned fields (see Appendix 2). In addition, the different vocational qualifications include one or more study programmes. Accordingly, there are specialisations leading to about 120 study programmes in total (see Appendix 2; Finnish National Board of Education, 2014c). Since 2007, the increases in
student numbers have been the biggest in the two largest fields, namely the fields of technology,
communication and transport, and social services, health and sport (see Appendix 2, Figure 1).
The national core curricula for upper secondary vocational qualifications and the requirements
for competence-based qualifications are common to education and training for young and adult
students. The scope of the qualifications is 120 credits (40 credits per year; 1 credit is equivalent
to 40 hours of study).
According to the present core curricula (which were valid at the time of writing this report in
autumn 2014), a VET qualification includes vocational studies and on-the-job learning, which
varies according to the qualification (90 credits; min. 20 credits on-the job learning); core sub-
16
The current state and challenges of Vocational Education and Training in Finland
jects, common to all qualifications (20 credits, out of which 16 are compulsory and 4 are optional)
and free choice subjects (10 credits) (see Figure 3). These are studies in:
• the native language;
• the other national language;
• foreign language;
• mathematics;
• physics and chemistry;
• social, business and labour-market subjects;
• health education; physical education;
• arts and culture; environmental studies;
• ICT; ethics, other cultures;
• psychology and entrepreneurship;
• free choice studies, which vary (10 credits).
These studies include at least 1.5 credits of student counselling and a final project with a minimum of 2 credits.
Figure 3. Example of the structure of VQ in social and health care, 120 cr
(curriculum-based qualification) (Finnish National Board of Education, 2010,
pp.14-16)
The latest curriculum reform concerning vocational education took place in 2014. The new curricula will be utilised from 1st August 2015 according to the Law on the Change of Law Concerning
Vocational Education 787/2014 and the Decree on the Contents of a Vocational Qualification
801/2014 (Laki ammatillisesta koulutuksesta annetun lain muuttamisesta 787/2014; Valtioneuvoston asetus ammatillisen perustutkinnon muodostumisesta 801/2014; Finnish National Board of
Education, 2014b). In the new curricula, the earlier study credits (study weeks; in Finnish: opintoviikot), which were used for following the progress of studies, have been transformed. Instead
of study weeks, the progress of studies will be counted by collection of so-called competence
credits (osaamispisteet, in Finnish) in the future. The qualifications, which used to be 120 credits
(study weeks), will involve 180 competence points according to the new curricula. The shift in
17
The current state and challenges of Vocational Education and Training in Finland
the names of credits can be interpreted as a shift underlining the competence-based approach in
vocational education.
In the new curricula, a typical qualification of 180 competence points includes vocational
studies (135 competence points), core subjects common for all (35 competence points) and free
choice modules (10 competence points). In other words, the structure of the curriculum and length
of studies is otherwise the same, but in the new curriculum there is less room for free choice and
optionality. Also, the number of vocational qualifications will remain relatively stable and only
be reduced by one, from 53 to 52 (Finnish National Board of Education, 2014b). Furthermore,
the new curricula emphasise more competencies needed in society and the labour market (8 competence credits vs. 1 credit in earlier curricula). This means that students are required to study
skills that support participation in society, looking for jobs and acting constructively at workplace,
commitment to lifelong learning, entrepreneurship as well as sports and health care. The assessment of skills is planned to take place according to a similar scale as earlier, from one to three.
According to the scale, one would be equivalent to satisfactory, two to good and three would be
equivalent to creditable (Finnish National Board of Education, 2014b).
On the side of the curriculum reform, the programme for reorganising the network of upper
secondary education providers has raised a lot of public discussion (Ministry of Education and
Culture, Finland, 2014d). This programme aims at the structural reform of upper secondary and
adult education in order to enhance opportunities for their operation in the future. The demand
for launching this developmental programme has been initiated by demographic changes and
later accelerated by the recession since 2008. In its development plan, the Ministry of Education
and Culture sets the aim that “the programme will contribute to the creation of a vital, functional
network of educational units (Finnish Ministry of Education and Culture, Finland, 2011, p. 32).
In the public discussion, for example, the teachers’ Trade Union of Education in Finland has perceived the suggested law for merging of the education providers’ network to be camouflage for
the cancelling of upper secondary institutions (OAJ, 2014).
2.2 Types of VET
In Finland, VET qualifications can be completed in three major ways: (i) in the form of schoolbased education and training, (ii) apprenticeship training or (iii) competence-based qualifications
which allow adult students to demonstrate their vocational skills regardless of how and where
they have acquired them. A comparison of the size of these different routes is presented in Table 3.
The school-based VET has maintained its position as the most popular system (83.6%) by
which to complete a VET qualification in comparison to apprenticeship training (16.4%) in Finland (see Table 4). Curriculum-based basic VET is aimed at youth education, whereas the other
types of VET are mainly aimed at adults (Finnish National Board of Education, 2010).
18
The current state and challenges of Vocational Education and Training in Finland
Table 3. Number of VET Students by Type of Education in 2007 and 2010 (adapted
from Cedefop ReferNet Finland, 2012, p. 15)
Upper secondary VET
Upper secondary vocational qualification
Competence-based qualifications
Upper secondary vocational qualification
Further vocational qualification
Specialist vocational qualification
Apprenticeship training
Upper secondary vocational qualification
Further vocational qualification
Specialist vocational qualification
Total
Women %
Special needs education
Mother tongue other than Finnish or Swedish
2007
2010
Proportion as a % of all
VET students in 2010
126,025
133,690
49.9
28,041
30,081
6,846
36,931
31,664
6,541
13.8
11.8
2.4
27,169
20,503
14,841
253,524
50.2
6.1
4.2
22,797
19,633
16,461
267,717
50.6
7.2
5.0
8.5
7.3
6.1
100.0
Table 4. VET Students by Type of Education in 2013 (Statistics Finland, 2014j)
Type of VET
Curriculum­based basic VET
Preparatory
initial vocational
education for a
skills examination
Preparatory education for further
qualifications
Preparatory education for a specialist vocational
qualification
Total
Vocational school-based Apprenticeship training
Total
education
(N=51,466, 16.4%)
(N=313,610)
(N=262,144, 83.6%)
Men Women Total Men Women Total Men Women Total
%
%
%
%
%
%
%
%
%
69.1
61.2 65.2
0.9
0.8
0.9 58.8
50.6 54.6
15.4
20.9
18.1
37.4
39.7
38.6
18.7
24.2
21.5
12.5
14.8
13.7
32.8
30.2
31.4
15.6
17.5
16.6
3.0
3.1
3.0
28.9
29.3
29.1
6.9
7.7
7.3
100.0
100.0 100.0 100.0
100.0 100.0 100.0
100.0 100.0
19
The current state and challenges of Vocational Education and Training in Finland
In addition to the major routes of VET described above, there has been a desire to support versatile and flexible study tracks. These have been pursued in order to support, in particular, successful transitions from basic education to upper secondary vocational education. The following
pre-vocational programmes have been developed to be taken before entrance to education leading
to an upper secondary vocational qualification for those who are not able to make an immediate
transition (Finnish National Board of Education, 2014a):
• Preparatory instruction and guidance for VET – VET Start (Ammattistartti in Finnish, 20–40
credits)
◦◦ This programme is aimed at those young people who have no clear idea of their career
choice or insufficient capabilities to apply for vocational studies.
• Rehabilitative instruction and guidance for the disabled (20–120 credits)
◦◦ This programme is directed to the disabled, and it allows them to develop their competencies, acquire capabilities required in vocational studies, working life and independent
living.
• Preparatory education for immigrants (20–40 credits)
◦◦ The purpose of this programme is to improve immigrants’ language and the other skills
required for vocational studies. This education is aimed at immigrants and people of immigrant origin who already have basic language skills (Finnish or Swedish).
• Home economics course (20 credits)
◦◦ The course provides students with capabilities and practical skills required to manage their
everyday lives and households.
These preparatory programmes (20-40 credits) are not comparable with the curriculum-based
VET that comprises 120 credits and leads to a qualification.
The students’ right to flexible and versatile studies has also been underlined in legislation in
several ways. For example, the Act on Vocational Education and Training (Laki ammatillisesta
koulutuksesta 630/1998) contains the provision of a students’ right to make individual choices in
their studies. The Vocational Education and Training Decree (Asetus ammatillisesta koulutuksesta 811/1998) contains the provision of how to inform students of the training offered, of student
counselling, and recognition and validation of prior skills. Also, the new Law on the Change of
Law regarding Vocational Education stipulates students’ right to individualised study plans, right
to have counselling, and recognition of prior learning (Laki ammatillisesta koulutuksesta annetun
lain muuttamisesta 787/2014, §29, §29a, §30). Accreditation of prior learning aims to shorten the
duration of education and to avoid overlaps in education. Recognition is based on learning outcomes and is decided by the VET provider.
Furthermore, there are some special vocational institutions that are primarily responsible for
the education of disabled people and for the above mentioned preparatory and rehabilitative education and guidance. These institutions provide facilities and services for students with severe
disabilities or chronic illnesses. There is a direct application to the institutions and they also accept applications throughout the year (Cedefor ReferNet Finland, 2011).
20
10 credits freechoice subjects
(can be either or)
Manufacturing:
Technology, communica-
tion and transport
ism, catering and domestic
and administration; Tour-
Social science, business
Natural sciences;
es:
Business and other servic-
tion and transport
Technology, communica-
Distribution and transport:
tion and transport
Technology, communica-
Construction
20 credits general;
environment
education
tional;
Natural resources and the
of basic
qualification
90 credits voca-
tional subjects
and orientation/
destination
general and voca-
Balance between
ISCED level
Corresponding
Primary sector and utilities: ISCED 3
requirement
programme
Main economic sectors
Initial vocational Completion
Admission
Name of IVET
Table 5. Types of IVET Programmes (adapted from Cedefop ReferNet, 2011)
learning
credits on-the-job
Minimum 20
based training
school- and work-
Balance between
(=3 years)
120 credits
studies
duration of
Average
Universities
nics,
voc. qual., Polytech-
voc. qual., Specialist
secondary, Further
Work, General upper
other pathways
vertical) to
Access to (horizontal/
The current state and challenges of Vocational Education and Training in Finland
21
The current state and challenges of Vocational Education and Training in Finland
2.3 Apprenticeship training
Development of the legislative framework
In Finland, apprenticeship training has been chosen by adults mainly as further or specialist vocational qualifications (see Figure 4, Table 6). The Finnish tradition of organising VET has not
obliged employers to take a major responsibility for initial training of newcomers to their field of
industry. Accordingly, they have preferred to leave such training to the state and the municipalities as well as to employee representatives (Kivinen & Peltomäki, 1999). By the 1980s, apprenticeship training was considered appropriate as an alternative for those who had not applied or
been accepted for the normal vocational training in institutions (Kaisaniemi, 1987). This approach
to apprenticeship has been enhanced by the latest policy interventions, which will be discussed at
the end of this section (see e.g. Oppisopimuskoulutuksen kehittämistyöryhmä, 2004, p. 9) .
Since the beginning of the 1990s, apprenticeship training has been developed in three major steps. First, the Apprenticeship Act was launched in 1992 (Laki oppisopimuskoulutuksesta
1605/1992). Its aim was to improve the status of apprenticeship training as a work-oriented form
of training in an otherwise mainly institutional vocational education system during a time of recession (Poutanen, 2008). Furthermore, it was hoped that apprenticeship training would help unemployed, unskilled, young people at risk of marginalisation to find jobs and earn their livelihood
(Kivinen & Peltomäki, 1999).
Second, a major step for developing apprenticeship in Finland took place, when the Apprenticeship Act of 1992 (Laki oppisopimuskoulutuksesta 1605/1992) was overruled in 1999 and new
legislation for education was adopted (Oppisopimuskoulutuksen ja työelämäyhteyksien johtoryhmä, 2001). The regulations considering apprenticeships for youth were embedded in the Act
and Decree on Vocational Education (Laki ammatillisesta koulutuksesta 630/1998; Asetus ammatillisesta koulutuksesta 811/1998). The regulations concerning apprenticeship for adults were
embedded in the Act on Adult Education (Laki ammatillisesta aikuiskoulutuksesta 631/1998).
The Law on Vocational Education (Laki ammatillisesta koulutuksesta 630/1998) stipulated
that vocational education could be organised in school-based form in classes, as distant or multi-form learning, as apprenticeship training or otherwise related to completion of practical tasks
at the workplace. Furthermore, it defined that apprenticeship training had to be based on a written
temporary work contract between a young person over 15 and the employer. The employer had to
sign an agreement with the educational provider.
Third, a further development of the apprenticeship scheme took place when it was expanded
to address entrepreneurs and civil servants. Since 1999, entrepreneurs have also had the right to
participate in the apprenticeship scheme while they are working in their own enterprise. They will
not be remunerated for the supervision if the education is arranged in their own enterprise (Laki
ammatillisesta koulutuksesta annetun lain 17 §:n muuttamisesta 1185/1998; Oppisopimuskoulutuksen ja työelämäyhteyksien johtoryhmä, 2001). Later, the legislation was changed so that civil
servants are able to undertake apprenticeship training, without having to take leave of absence
(Lankinen, Rasku & Huhtala, 2007; Laki ammatillisesta koulutuksesta annetun lain 17 ja 19§:n
muuttamisesta 1341/2007). Since 2000, the apprenticeship scheme has also been expanded con-
22
The current state and challenges of Vocational Education and Training in Finland
siderably in financial terms (see Table 1, section 1.2.). These changes have reflected the policy of
organising apprenticeship training mainly as further and specialist education addressing adults.
In the present apprenticeship model, each apprentice is given a personal study plan (Ministry
of Education and Culture, Finland, 2014). The plan is based on a national core curriculum issued
by the Finnish National Board of Education. When a student is targeting competence-based qualification, the curriculum is based on the requirements of competence-based qualifications. Also, in
the new legislation on vocational education, issued in 2014, regulations considering apprenticeships for youth have been embedded in the Act and Decree on Vocational Education. The latest
law states simply that vocational education can be organised in the school-based form or as apprenticeship training (Laki ammatillisesta koulutuksesta annetun lain muuttamisesta 787/2014).
The competence-based qualifications mainly targeted at adults are stipulated by a law of their own
(Laki ammatillisesta aikuiskoulutuksesta annetun lain muuttamisesta 788/2014).
The apprenticeship training in Finland is organised to combine on-the-job learning and theoretical instruction. Accordingly, approximately 70–80% of the learning takes place under the
supervision of an on-the-job instructor in the workplace, while vocational institutions provide the
supplementary theoretical instruction. The trainees receive a salary from the employer according
to salary levels defined by collective agreements (about 80% of the wages of a skilled worker in a
particular field). During the periods that trainees are studying at vocational education institutions,
they are entitled to get, for example, daily allowances and subsidised travelling and accommodation. Employers with trainees are reimbursed for their provision of education (Ministry of Education and Culture, Finland, 2014e).
Gradual expansion of apprenticeship scheme
The Europe-wide good results concerning the employability of apprentices have encouraged the
Finnish policy makers to target increasing the apprenticeship scheme (Vartiainen & Viinisalo,
2009). For example, the development plan for education and research for the years 1995–1999
set the target of increasing participation in apprenticeship training. The aim was that participation
within the apprenticeship scheme would cover 20% of the total of initial vocation education and
training offered to youth (Oppisopimuskoulutuksen ja työelämäyhteyksien johtoryhmä, 2001).
By 2001, it was recognised that the target had not been met. The aim was decreased and it was
instead targeted that the apprenticeship scheme would be the route chosen by 10% of all entrants
starting in initial vocational education and training (Oppisopimuskoulutuksen ja työelämäyhteyksien johtoryhmä, 2001, p. 20). The achievement of this aim depends on the interpretation of the
role that further and specialist VET has, as Tables 6 and 7 confirm.
23
24
21,793
28,375
28,013
20,121
21,674
21,977
20,911
20062
20073
20084
20095
20106
20117
20128
55,554
56,876
59,702
65,997
70,037
63,295
54,632
51,307
Total
53
52
50
47
46
48
49
51
%
Women
Apprentices
cations
cations
36
41
39
43
45
43
40
37
34
30
33
32
32
33
34
35
%
tional qualifi-
tional qualifi%
Further voca-
Initial voca-
30
29
28
25
23
24
26
28
%
qualifications
vocational
Specialist
13,039
13,271
14,306
14,320
12,193
10,980
11,097
10,111
Total
55
55
50
50
52
55
55
55
%
Women
Graduates
31
45
42
39
33
32
30
32
%
cations
tional qualifi-
Initial voca-
Note: All data has been adapted from Statistics Finland. The year and heading of their publication on Statistic Finland’s webpages are as follows:
1) (2006). Oppisopimuskoulutuksessa 51 300 osallistujaa vuonna 2005. http:// www.stat.fi/til/aop/2005/04/aop_2005_04_2006-11-02_tie_004.html.
2) (2007). Oppisopimuskoulutuksessa 54 600 osallistujaa vuonna 2006. http://www.stat.fi/til/aop/2006/04/aop_2006_04_2007-11-01_tie_004.html.
3) (2008b). Oppisopimuskoulutuksessa 63 300 osallistujaa vuonna 2007. http://www.stat.fi/til/aop/2007/04/aop_2007_04_2008-11-03_tie_004.html.
4) (2009a). Oppisopimuskoulutuksessa 70 000 osallistujaa vuonna 2008. http://www.stat.fi/til/aop/2008/04/aop_2008_04_2009-11-03_tie_004.html.
5) (2010). Oppisopimuskoulutuksessa 66 000 osallistujaa vuonna 2009. http://www.stat.fi/til/aop/2009/04/aop_2009_04_2010-11-03_tie_004_fi.html.
6) (2011). Oppisopimuskoulutuksessa 59 700 osallistujaa vuonna 2010. http://www.stat.fi/til/aop/2010/04/aop_2010_04_2011-11-03_tie_004_fi.html.
7) (2012a). Oppisopimuskoulutuksessa 56 900 osallistujaa vuonna 2011. http://www.stat.fi/til/aop/2011/04/aop_2011_04_2012-11-06_tie_004_fi.html.
8) (2013c). Oppisopimuskoulutuksessa 55 600 osallistujaa vuonna 2012. http://www.stat.fi/til/aop/2012/04/aop_2012_04_2013-11-06_tie_004_fi.html.
20,066
Total
entrants
New
20051
Year
Table 6. Apprenticeship Training in Finland 2005–2012: Entrants, Apprentices, and Graduates
39
30
32
37
40
40
39
39
%
cations
tional qualifi-
Further voca-
30
25
26
24
27
28
31
29
%
qualifications
vocational
Specialist
The current state and challenges of Vocational Education and Training in Finland
The current state and challenges of Vocational Education and Training in Finland
Table 7. The Number of Graduates from Apprenticeship Training Compared to the
Number of All Graduates from VET in Finland in 2000–2012
Year
New entrants
(apprentices)
Graduated
apprentices
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
15,3851
16,8471
18,1021
19,3161
19,1421
20,0661
21,7931
28,3753
28,0134
20,1215
21,6746
21,9777
20,9118
7,5011
7,7801
7,9091
8,4891
11,4151
12,4711
12,5611
10,9803
12,1934
14,3205
14,3066
13,2717
13,0398
VET graduates
in total*
55,4772
52,5452
52,0412
54,0792
56,6782
58,1972
60,2802
62,1869
62,4989
66,4279
67,9579
70,5969
70,8039
Proportion of apprentices
as a % of all VET graduates
in the respective year
13.5
14.8
15.2
15.7
20.1
21.4
20.8
17.7
19.5
21.6
21.1
18.8
18.4
Note: *VET graduates in total include not only school-based vocational qualifications but also apprenticeships and
competence-based qualifications. All data has been adapted from Statistics Finland. The year and heading of publication on Statistic Finland’s webpages are as follows:
1) (2008a). Oppisopimuskoulutukseen osallistuneet, uudet opiskelijat ja todistuksen saaneet 1997–2006 (Excel, 21.5.).
http://www.stat.fi/til/aop/2006/04/aop_2006_04_2007-11-01_tie_004.html.
2) (2008c). Tutkintotavoitteisen koulutuksen opiskelijamäärän kasvu hidastunut.
http://www.stat.fi/til/opiskt/2007/opiskt_2007_2008-01-25_tie_001.html.
3) (2008b). Oppisopimuskoulutuksessa 63 300 osallistujaa vuonna 2007.
http://www.stat.fi/til/aop/2007/04/aop_2007_04_2008-11-03_tie_004.html
4) (2009a). Oppisopimuskoulutuksessa 70 000 osallistujaa vuonna 2008.
http://www.stat.fi/til/aop/2008/04/aop_2008_04_2009-11-03_tie_004.html.
5) (2010). Oppisopimuskoulutuksessa 66 000 osallistujaa vuonna 2009.
http://www.stat.fi/til/aop/2009/04/aop_2009_04_2010-11-03_tie_004_fi.html.
6) (2011). Oppisopimuskoulutuksessa 59 700 osallistujaa vuonna 2010.
http://www.stat.fi/til/aop/2010/04/aop_2010_04_2011-11-03_tie_004_fi.html.
7) ( 2012a). Oppisopimuskoulutuksessa 56 900 osallistujaa vuonna 2011.
http://www.stat.fi/til/aop/2011/04/aop_2011_04_2012-11-06_tie_004_fi.html.
8) (2013c). Oppisopimuskoulutuksessa 55 600 osallistujaa vuonna 2012.
http://www.stat.fi/til/aop/2012/04/aop_2012_04_2013-11-06_tie_004_fi.html.
9) (2014). Tutkintoon johtavan koulutuksen opiskelijat ja suoritetut tutkinnot.
http://www.stat.fi/tup/suoluk/suoluk_koulutus.html
The popularity of apprenticeship training has increased gradually since the 1990s (Rinne & Järvinen, 2011). The expansion of the apprenticeship scheme since the beginning of 2000 is reflected
25
The current state and challenges of Vocational Education and Training in Finland
in financial terms too (see Table 1, section 1.2), but it has remained predominantly a route for
adult education (see Table 6 and 7). For example, in 2010 and 2011, the share of those aged 16–19
years who participated in apprenticeship training was only 0.46% and 0.49% respectively (based
on the information received from Statistics Finland through personal correspondence with Ms.
Suvi Vainio, Senior Actuary, 17.7.2014).
The expansion and decrease of participation in apprenticeship training in general in 1997-2013
can be seen in Figure 4 (see also Appendix 3, Table 1). While the numbers presented in the Figure
include apprenticeships offered as initial vocational education as well as further and specialist vocational qualifications, the increase in participation in the apprenticeship scheme seems striking at
first. A closer look at the division between initial vocational qualifications, further qualifications,
and specialist vocational qualifications is presented in Table 6 for the years 2005–2012. This
shows that there has been a moderate increase in the participation in the apprenticeship scheme on
the whole. Despite an increase from a total of 10,111 graduates to 13,039 graduates in 2005–2012,
the proportion of those having completed the initial vocational qualification through the apprenticeship scheme has remained between 30–45% of all apprentices.
Figure 4. The number of apprentices in Finland 1997–2013: Students, new
entrants, and graduates who have participated in education for initial, further, and
specialist vocational qualifications (adapted from Statistics Finland, Appendix 3,
Table 1)
The amount of qualifications completed in initial vocational education and training through the
apprenticeship scheme (described above) means that, even though the apprenticeship scheme was
enhanced on the whole in Finland in 2000–2012, it has not become a particularly strong model of
youth education within the Finnish educational system. The relative growth of the apprenticeship
scheme with respect to VET education on the whole can be seen in the Table 7. Around 18% of
26
The current state and challenges of Vocational Education and Training in Finland
all VET qualifications were completed through the apprenticeship scheme in 2012 (Table 7), but
only 36% of them were initial vocational qualifications (see Table 6).
The development of the apprenticeship scheme has not been stable and the numbers of graduates from the apprenticeship scheme considering initial vocational education have varied notably
(see Table 6). The considerable variance in the numbers of graduates is partly an outcome of the
effects that the recession has had on the Finnish economy and employment since 2008. In addition,
the numbers of student places available in institutional education, provision of adult education
motivated by labour policy, and the numerous projects targeted at reducing youth unemployment
and activating youth have had an effect on young people’s interest in the apprenticeship scheme
(see also Kivinen & Peltomäki, 1999; Brunila et al., 2011). As a result, in Finland, apprenticeship
training has been targeted mainly at adult (further) education.
However, the latest policy interventions with respect to apprenticeship training have launched
a programme for apprenticeship training aimed at youth to be combined with the “Social guarantee for young people” (Ministry of Education and Culture, Finland, 2014f). The guarantee provides all young under 25-years-old with employment, internships, education, training, workshops
or rehabilitation activities. Its combination with apprenticeship training aims at developing models which combine traditional, vocational school-based education and apprenticeship training. It
is particularly targeted at youth without upper secondary qualifications (Ministry of Education
and Culture, Finland, 2014f). At the same time, other financing for apprenticeship training has
been reduced and maximum number of study places reduced by 5,900 (Ministry of Education and
Culture, Finland, 2012f). This cut-back will most probably mainly effect adult education organised as apprenticeship training, since apprenticeship training has been taken mostly by adults in
Finland. The latest development programme targeted at the apprenticeship scheme can be interpreted as the fourth important step in the development of apprenticeship scheme since the 1990s.
It seems to be aimed at enhancing the apprenticeship scheme as a training programme for youth.
One of the major challenges in developing the apprenticeship scheme in Finland has been
increasing the completion of qualifications (see Figure 4). Study results on non-completion of
qualifications through apprenticeships have brought up reasons for quitting the contracts (Mäkinen, 2010). Actors participating in the organisation and completion of apprenticeships underline
slightly different reasons for non-completion. From an employers’ perspective, contracts have
been non-completed because of a trial period, students’ decision, change of workplace, unanimous agreement for quitting the contract, no time for studies, changes in the enterprise and law
of employment (Mäkinen, 2010). From the students’ perspective, reasons like lack of time for
studies, lack of support from supervisors and finding motivation for studies were found more
important for ceasing the contract. From an institutional perspective, lack of support and supervising, students’ life situation and problems with theoretical task were seen as the most problematic
issues (Mäkinen, 2010).
The latest development programme of the apprenticeship scheme aims to support completion
of a trial period before making actual apprenticeship contracts in order to encourage employers
to take on apprentices. Furthermore, the completion of parts of qualifications is encouraged, even
if students do not find completion of the entire qualifications meaningful (Ministry of Education
and Culture, Finland, 2012f).
27
The current state and challenges of Vocational Education and Training in Finland
3. Transition into VET and completion of VET
programmes
In this section, the transition patterns into Finnish VET programmes after compulsory education
as well as the completion of VET programmes will be explored. First, the selection procedure for
upper secondary education will be described. Second, the immediate transitions after compulsory
education to VET and elsewhere, and the characteristics of students who have chosen VET will
be presented. Third, the completion of VET programmes is studied.
In Finland, students apply for VET through a national joint application system that is a tool
to rationalise student selection. The entry requirement for vocational upper secondary education
is a leaving certificate from a comprehensive school (basic education) or an equivalent amount
of studies (Laki ammatillisesta koulutuksesta, 630/1998; Ministry of Education and Culture, Finland, 2012b). The Ministry of Education and Culture determines more precise student admissions
criteria. These include a previous study record in basic education or general upper secondary
education (average grades for all subjects and grades emphasised in the relevant field), work experience and entrance or aptitude tests (Cedefop ReferNet, 2011).
Education providers are allowed to use “flexible selection” and to ignore the order of scores
required for admission for individual student-related reasons. If, for example, the providers consider that the applicants have sufficient capabilities to complete the education and training, they
may also admit them as students (Cedefop ReferNet, 2011). Students are free to choose which
educational institution they apply to.
Participation in VET has been steadily increasing in Finland since 2003. In 2003, 37% of
compulsory school leavers went directly to initial vocational education and training, while 55%
continued to general upper secondary schools (Statistics Finland, 2008d). By 2008, the percent-
Figure 5. Direct transition to further studies of graduates of the 9th grade of
comprehensive school 2005– 2012 (Statistics Finland, 2014c)
28
The current state and challenges of Vocational Education and Training in Finland
age of those choosing VET immediately after compulsory education had increased to 42% and it
has remained around 41–42% since then (Cedefop ReferNet, 2011; Statistics Finland, 2014c). At
the same time, the share of those continuing in general upper secondary schools has decreased to
50–51% (Statistics Finland, 2014c). The change in the immediate continuation to general upper
secondary or VET studies is represented in Figure 5 for the years 2005–2012 (see also Figure 11
for a longer time-period).
The students who continue to VET start their studies in one of the eight major educational
fields (or in the minor field of other studies, which refers to safety and security mainly). In 2013,
over 40% of VET students began their studies in the field of technology and transport, 17% in
the field of social services, health and sport, and 12% in the field of business economics and administration (Statistics Finland, 2014a). The distribution of men and women among the students
participating in VET was almost equal on the whole, but varied significantly according to the
fields (Figure 6).
The ages of students who started in curriculum-based VET in 2013 also varied quite a lot
(Table 8). Most of the students (70%) were 15–19 years old and transferred directly from comprehensive (basic) school to vocational education and training, but 30% were 20 years old or
older. Men seem to start VET younger than women. One fifth of those who started their studies in
VET institutions were between 20–24 years old. The variance in the age of entrants shows that,
in Finland, initial VET is quite often also completed by those who change their occupation or are
not satisfied with their initial field of study. Furthermore, young people under 25-years-old are
directed to participate in education or other activities where they would otherwise be unemployed
by regulations such as “Social Guarantee for the Young People” (Ministry of Employment and
the Economy, 2013).
Students’ progress in post-compulsory education varies according to the sector of education
and the field of education. The graduates of general upper secondary education have typically
had the highest pass rate in post-compulsory education. In 2012, 80% of general upper secondary
students completed matriculation examinations and general upper secondary qualifications in at
most 3½ years, whereas 64% of VET students passed their qualifications within the same timeframe (Table 9. Statistics Finland, 2014h). Compared to upper secondary education, the prolongation of studies has been more typical for higher education students. In polytechnics, in 2012,
the pass rate was 43% and in the traditional science universities 49%. Also, the follow-up study
(Stenström et al., 2012) revealed that prolonged studies are more typical for HE students than for
others. Furthermore, the differences between educational fields and between men and women
have appeared persistent (Stenström et al., 2012). The pass rate of education typically increases in
time and, accordingly, when a longer time has passed from the start of education there are more
graduates. For example, in 2012, when additional one year was taken into account (i.e., in 4½
years), 88% of the upper secondary general school students completed their studies, and 73% of
the VET students also completed their studies in 4½ years.
29
The current state and challenges of Vocational Education and Training in Finland
Figure 6. New students in vocational education (curriculum-based) by field of
education and gender in 2013
Table 8. Age of the New Students in the Curriculum-Based VET Programmes in
2013 (Statistics Finland, 2014a)
Age
15–19-year olds
20–24-year olds
25–29- year olds
30–34- year olds
35–39- year olds
40–44- year olds
45–49- year olds
50–54- year olds
55 year olds or
older
Total
30
Men
(n = 3204)
%
76.3
16.5
3.9
1.7
0.8
0.3
0.3
0.1
0.1
Women
(n = 3243)
%
64.1
25.1
5.4
2.3
1.3
0.8
0.6
0.3
0.1
100.0
100.0
Total
(n = 6447)
%
70.4
20.6
4.6
2.0
1.0
0.6
0.5
0.2
0.1
100.0
The current state and challenges of Vocational Education and Training in Finland
Table 9. Pass Rates by Sector of Education in 2012 (Statistics Finland, Education
2014h)
Sector of education
Upper secondary general
education
Vocational education and
training (curriculum-based)
Polytechnic education
University education
Duration of
studies (years)
3.5
Pass rate %
Men
Women
78.7
80.1
Total
79.5
3.5
65.0
63.5
64.3
4.5
5.5
28.0
36.9
55.8
58.6
43.3
49.4
31
The current state and challenges of Vocational Education and Training in Finland
4. Enhancing links between VET and working life
The relation of vocational education and training to working life has changed over time. Historically, learning and work were inseparable during the pre-modern era, whereas during the modern
era a progressive differentiation has taken place between work and learning (Stenström, 2009). In
the modern era, a clear divide between the context of production (work) and the context of reproduction (education) became evident (Lundgren, 1991; Marhuenda, 2000). The two contexts have
developed their own institutions, language, rationale, needs and traditions.
In the late modern era, the differentiation of educational and labour market institutions has become fragmented, and new links between them have been created. As a result, these two systems
(education and labour) have become closer to one another. Learning and work after post-compulsory education have been organised in different forms, and knowledge and skills are also provided
and learnt outside formal education and training (Boud, 2005; Harris & Chisholm, 2011; Tessaring & Wannan, 2004).
In Finland, until the 2000s, initial vocational education had traditionally been organised by
vocational institutes. Practical training and learning have been an element of vocational education,
but the number and implementation of practical training periods have varied from one educational sector to another (Pohjonen, 2002; 2005; Uusitalo, 2001). Since the turn of the millennium, a
number of new initiatives have been created with the aim of strengthening cooperation between
working life and vocational education in Finnish VET. These include the introduction of on-thejob-learning periods and skills demonstrations as part of school-based VET (Räisänen & Räkköläinen, 2014; Virtanen, Tynjälä, & Eteläpelto, 2014). Practical training was also part of school-based
VET earlier. However, as components of initial VET, previously delivered practical training and
the current on-the-job learning differ in several ways. The main characteristics and differences behind these forms of adopting learning from work experience as a part of VET are listed in Table 10.
Traditionally, in vocational education, the previous practical-training-related learning model
was behaviouristic or neo-behaviouristic, and school-based learning was seen as having a central
role in the process of learning vocational skills (Uusitalo, 2001). Accordingly, learning and also
guidance were frequently coincidental. The emphasis was on students’ good adjustment to the
workplace and the carrying out of assignments as instructed. The assessment process focussed on
students’ external behaviour and working methods, rather than learning. In addition, the influence
of context was not adequately taken into consideration (Uusitalo, 2001; Tynjälä, Virtanen, &
Valkonen, 2005).
The incorporation of on-the-job learning (workplace learning) into the curriculum has been
undertaken since 2001. The minimum overall length of this component is 6 months (20 credits)
in the whole of an initial vocational 3-year qualification (120 credits). On-the-job learning is
the guided and goal-oriented study in the workplace. According to the recommendations for its
organisation, on-the-job learning does not demand a contract between an employer and a student
and students do not get paid for duties completed during the on-the-job learning period (Ministry
of Education, Finland, 2005; Tynjälä et al., 2006). On some occasions, providers of education pay
employers a small sum in exchange for the guidance given to students (Ministry of Education,
Finland, 2005; Tynjälä et al., 2006).
32
The current state and challenges of Vocational Education and Training in Finland
Table 10. Main Differences Between On-the-job Learning and Practical Training
in Initial VET (adapted from Santala 2001, p. 50; Stenström, Laine & Kurvonen,
2006; Uusitalo 2001) 3
On-the-job Learning
(Current Workplace Period)
Practical Training
(Previous Workplace Period)
Duration
At least 20 credits3
Varies depending on vocational study
field and qualification
Agreements
Based on a written contract (known as a
tripartite agreement)
No written contract needed
Targets
Learning new things and applying one’s
learning in practice, discussed extensively
on the level of the individual, enterprises
and society
Gaining practical experience
Basis of
Targets­­
Student-defined targets, targets based on
the curriculum, targets linked with the
working environment, integration of different targets, for example in working-life
projects
Targets based on the curriculum or no
defined targets
Learning
Model
Constructive-contextual, experiential and
cooperative learning
Behaviouristic, neo-behaviouristic and
coincidental learning
Student Role
Self-directed and interactive
Mainly other-directed
Teacher Role
Advisor
Supervisor
Sources of
Learning
Work experience, the work environment
and the work community, materials and
equipment, work situations, discussions,
learning from guidance, learning assignments and project work
Theory, work assignments, work performance and learning by observing other
workers
Learning
Methods
Work-based learning, reflective discussions, Performance in work assignments,
learning through projects, team learning,
observation, imitation, repetition, no
learning diaries, essays and reporting
written assignments
Guidance
Targets
Student-defined targets, motivation,
planning of work-based learning, work
performance, student experiences, fostering
reflection, vocational growth and career
planning
Phases of the work process, external
performance in work situations, external
performance models, little connection
between guidance and learning targets
Forms of
Guidance
Guidance in work situations, guidance
discussions (individual students, student
groups), mentoring and vocational skills
demonstrations
Occasional guidance given by VET
institutions and workplaces, the apprentice-master model and discussions
during work
Nature of
Assessment
Continuous, affects the assessment of study
units
Not regulated, can be agreed on between those involved
Evaluators
Workplace trainer, the student, teacher(s)
Workplace trainer, teacher, (student)
Assessment
Targets
Student’s ability to define personal learning
targets, self-regulation skills, performance
at work, social skills, internal models and
reflection skills, ability to grasp the bigger
picture
Adapting to the work community,
mastery of work, work performance,
external behaviour and external activity
of student
3
One credit equals an average of 40 hours of studies
33
The current state and challenges of Vocational Education and Training in Finland
In the present model, on-the-job learning is a learning method that builds on the objectives of
the curriculum. It aims at taking the needs of both the student and the workplace into account as
broadly as possible. The student can establish a personal contact with real work and, correspondingly, the workplace gets the opportunity to influence education and training and, in due time,
gains employees better prepared for practical work than before. The aim is to guarantee vocational skills that stem from working life needs and to promote students’ employment opportunities, as
well as to facilitate the recruitment of skilled labour into enterprises and other workplaces.
Adoption of the new approach has meant a radical change in attitudes and forms of organising
VET both for the institutes and the workplaces (Numminen, 2000b). The social partners have had
to agree with the provision of company-based on-the-job training. The implementation of on-thejob training periods in the vocational curriculum has demanded the provision of supplementary
education for vocational teachers and workplace instructors (Numminen, 2000b). Furthermore,
local organisation of on-the-job learning periods has involved making agreements between employers and vocational education institutions regarding the sharing of duties between participants,
organisation of student guidance, and student assessments as well as possible reimbursements
to the employer (Tynjälä, Virtanen, & Valkonen, 2005). In addition, employers and educational
institutions must have agreed on the aims and essential contents of on-the-job learning together
with its length and timing (Tynjälä et al., 2005).
On the whole, the workplace learning system in Finnish VET has been received very positively. Studies have shown that vocational students have been motivated to learn “real work” during
their workplace learning periods. In particular, students have felt that they have learnt independence and initiative taking and have become more self-confident (Virtanen, 2013). With respect to
adopting professional skills, learning skills, collaboration skills, and self-assessment skills, they
consider themselves as having developed as professional agents more generally (Virtanen, 2013).
In addition, since the system has been introduced, there has been a persistent declining trend in
the number of dropouts from initial VET (Virtanen, 2013). Whereas 13% dropped out from initial
VET in 2000/2001, the number of dropouts from initial VET was 9% in 2011/2012 (Statistics
Finland, 2014f). This trend is different from the trends of dropping out in other forms of education in Finland because it is somewhat stronger. In university education, dropping out has mildly
increased from 4% to 6% during the same years (Statistics Finland, 2014f).
Despite the generally positive development at the system level, the learning environments
of the different vocational fields seem to differ significantly from each other in this respect and
they offer students different settings for on-the-job learning (Anttila et al., 2010; Virtanen, 2013).
This has been prevalent, for example, in comparisons of the field of social services and health
care and the field of technology and transport. Depending on the learning environment provided
by the workplace, students from the field of technology and transport may have to adopt a more
active role in order to receive better learning outcomes than students in the field of social services
and health care (Virtanen, Tynjälä, & Eteläpelto, 2014; Virtanen, Tynjälä & Stenström, 2008).
The long traditions of organising guidance for students in the field of social services and health
care have supported the advent of a strong model of on-the-job learning. Other educational fields
might benefit from benchmarking this model (Virtanen, 2013.) Teachers have considered the task
of finding workplaces and their variance challenging in the organisation of on-the-job learning
34
The current state and challenges of Vocational Education and Training in Finland
(Peltomäki & Silvennoinen, 2003; Tynjälä et al., 2005; Virtanen & Collin, 2007). Also, their roles
have changed. The introduction of the new form of workplace learning has meant that teachers have to increasingly guide, evaluate and complete other duties related to workplace learning
(Vähäsantanen & Eteläpelto, 2009).
Efforts to achieve closer cooperation between VET and the workplace have also included the
adoption of a new form of assessment, which has become known as vocational skills demonstration (Stenström, 2009). This means that, at different points during their training in initial VET,
students demonstrate the skills they have learned in tests arranged as either practical work situations or as practical assignments. These skills demonstrations assess how well the student has
achieved the competencies needed in the labour market. Skills demonstrations also bring together workplace representatives and teachers (Räkköläinen, 2011; Stenström, Laine, & Kurvonen,
2006). Their organisation has affected and enhanced the models of organising on-the-job learning
not only by effecting the timing, contents, guidance, and student assessment, but also through
demanding new forms of learning agreements and documentation. Their adoption has thus also
increased the demands for administration (Anttila et al., 2010).
In sum, the system of on-the-job learning and vocational skills demonstrations has contributed
to the creation of closer links between education and work, closer collaboration between teachers
and workplace instructors (e.g. in the assessment process) and closer integration of theory and
practice (Stenström, 2009). Although Finland has followed the current trend to shift part of the
teaching and learning process from educational institutions to the workplace, on-the-job learning
including vocational skills demonstrations remains within the domain of formal education. This
Finnish practice derives from the school-based nature of the VET system and the egalitarian educational principle that governs assessment (Stenström, 2009).
35
The current state and challenges of Vocational Education and Training in Finland
5. Transition from VET to the labour market
The graduates’ entry to working life can be seen as one of the central criteria when judging how
successful educational institutions have been in achieving their objectives and how useful and
able the holders of the new qualifications have proved themselves in working life (Stenström,
2006). At the same time, the national economic situation is one of the most important factors
effecting opportunities for employment.
The appropriateness of the employment found by individuals entering working life can be
considered from several perspectives: in terms of the policy associated with transition from education to working life; in terms of the interests of the individual making the transition; from a
quantitative as against a qualitative viewpoint; or in terms of objective as against subjective criteria (OECD, 2000, p. 31; Stenström, 2006).
The unemployment rate is a common quantitative indicator of graduate employability, but
there are also many other important dimensions that can be considered in this context (Elias,
McKnight, Pitcher, Purcell & Simm, 1999). For example, external evaluations of the quality of a
job are conducted using objective criteria based on various categories and classifications. Salary
is one of the most common objective indicators. Other indicators include job title, work tasks, and
the employee’s position in the organisation.
Typically, access to the labour market is connected to the graduates’ educational level and
the field of education. In Finland, the comparison of graduates’ educational level in relation to
employment indicates that the highest employment rate was among university and polytechnic
graduates and lowest among those graduates who have only passed the matriculation examination
(see Table 11).
Table 11. Employment of Graduates One Year After Graduation by Level of
Education in 2007–2012 (Statistics Finland, 2014i)
Year
Matriculation
examination
%
IVET
%
2007
2008
2009
2010
2011
2012
44.1
45.4
41.2
43.5
45.0
46.1
74.5
73.8
66.9
69.0
71.5
69.7
Polytechnic
degree
(Bachelor)
%
88.7
89.2
85.0
85.9
87.0
86.5
Lower uniHigher university degree versity degree
(Bachelor)
(Master)
%
%
74.3
87.7
70.4
88.3
68.7
86.4
67.6
87.9
68.7
88.4
67.2
86.8
Doctoral
degree
%
87.4
87.6
87.5
88.7
87.6
89.0
The comparison shows that the same trend has prevailed through 2007–2012, when graduates’
employment has been observed one year after their graduation. The effects of the recession and
its persistency since 2008 are also remarkable: the transition to work was somewhat more difficult
for graduates in 2012 than in the previous year (Statistics Finland, 2014i). Around 70% of VET
36
The current state and challenges of Vocational Education and Training in Finland
graduates were employed, which was two percentage points lower than the year before. Finding
employment also deteriorated slightly among those with tertiary education degrees. Some 87%
found employment among both polytechnic (bachelor’s degrees) and university (master’s degrees) graduates. Employment has only improved for those with doctoral degrees.
Unemployment grew in nearly all levels of education in 2012 (Statistics Finland, 2014i). Of
all graduates, the proportion of unemployed was 8%. The highest proportion (14%) of unemployment was among VET graduates. Nearly 7% of the graduates from polytechnics and close to 6%
of the graduates with university degrees were unemployed.
Access to the labour market is also related to gender. During the period 2007–2012, men’s
transition to working life has increased by two percentage points (Statistics Finland, 2014i).
Women found employment more easily than men. The proportion of employed women was 13
percentage points higher than that of men. Of all graduates, 62% of men and 75% of women were
working. The rate of employment was 62% for men and 77% for women among VET graduates.
The employment rate was higher for higher education graduates. Some 85% of men and 87% of
women with polytechnic degrees were employed, while 88% of men and 86% of women with
university degrees had found jobs.
The yearly comparison between VET graduates (Statistics Finland, 2014i) indicates that the
transition from upper secondary vocational education to the labour market was more difficult for
graduates in 2012 than in the previous year (Table 12). In 2012, around 70% of VET graduates
were employed, when employment was measured one year after their graduation. That was two
percentage points lower than in 2011. At the same time, 13% were unemployed. Another 7%
were still full-time students, while 9% fell into the group “others” (those involved in military
or non-military service, homemakers, or pensioners) (Statistics Finland, 2014 h, i). During the
past 10 years, the employment of graduates has increased and decreased in line with the general
weakening of employment since 2009 (Statistics Finland, 2014 h, i). The comparison of VET
graduates’ status one year after graduation indicates that employment has decreased from 2007 to
2012, while unemployment has increased.
Table 12. Employment of VET Graduates One Year After Graduation in 2007–
2012 (Statistics Finland, 2014i)
Employment
status
Employed
Full-time students
Unemployed
Others
Total N
2007
%
74.5
7.1
2008
%
73.8
6.5
2009
%
66.9
7.7
2010
%
69.0
7.9
2011
%
71.5
7.3
2012
%
69.7
7.4
9.3
9.3
52205
11.0
8.7
53579
15.5
9.9
53404
13.1
10.0
57200
12.1
9.1
57956
13.5
9.4
60917
The comparison of employment between fields of education in VET also revealed differences
(Table 13, Statistics Finland, 2014i). The transition was smoothest for graduates in the fields of
37
The current state and challenges of Vocational Education and Training in Finland
“other” (i.e. safety and security) and social services, health and sport. The unemployment rate was
highest (20%) in the field of natural sciences (ICT) and technology, communication and transport
(18%).
Table 13. Employment of Graduates One Year After Graduation by Field of VET
in 2012 (Statistics Finland, 2014i)
Field
Humanities and education
Culture
Social science, business and
administration
Natural sciences
Technology, communication,
and transport
Natural resources and the
environment
Social services, health, and
sport
Tourism, catering, and domestic services
Other field
Employed
Unemployed
Others
Total
%
Full-time
students
%
%
%
%
77.1
56.4
76.7
7.3
17.9
6.0
10.6
17.3
10.5
5.0
8.4
6.8
100.0
100.0
100.0
45.7
61.8
19.6
7.4
19.6
17.7
15.1
13.1
100.0
100.0
63.8
9.5
14.6
12.1
100.0
85.7
4.6
5.8
3.9
100.0
71.5
6.7
13.1
8.7
100.0
93.4
1.4
4.7
0.5
100.0
In the following, the transition patterns will be described utilising a five-year follow-up study
(Stenström & Valkonen, 2012), where transitions to labour market after VET are observed five
years after starting studies. When the transition period is longer than above, where it is only
one year (Table 13), the employment rates are higher. The highest employment rate (100%) was
found in the field of “other” (i.e. safety and security), which is a small specific field. The second
highest employment rate was among social services, health, and sport graduates where only 6%
were unemployed, whereas about 22% of the technology, communication, and transport graduates
were unemployed (Table 14). These study fields are also gender segregated so that the former is
a female-dominated field while the latter is a male-dominated field. In addition, there are also
field-specific differences between the graduates’ socio-economic and occupational status. Over
half (66%) of the social services, health, and sport graduates were employed as lower-ranking
clerical workers (white-collar jobs), whereas half of the technology, communication, and transport graduates were blue-collar workers.
38
The current state and challenges of Vocational Education and Training in Finland
Table 14. VET Graduates’ Socio-Economic Status by Graduate Field Five Years
After Starting Their Studies by Study Field (Stenström & Valkonen, 2012)
Field of VET
Self-employed
%
Upper
level employees
%
Lower
level employees
%
Manual
workers
Students
Un-employed
Others
Total
%
%
%
%
%
Humanities and
education
0.9
8.0
46.0
19.5
0.9
12.4
5.3
100
Culture
4.8
9.9
21.7
20.4
1.0
14.4
7.7
100
Social science,
business and
administration
3.6
4.0
49.4
15.5
1.1
12.3
3.6
100
Natural sciences
1.7
9.0
25.4
14.7
0.0
17.5
6.8
100
Technology, communication, and
transport
2.1
1.4
7.5
50.3
1.5
22.2
4.4
100
Natural resources
and the environment
11.7
2.8
13.3
40.7
1.2
15.7
2.0
100
Social services,
health, and sport
5.1
1.8
66.1
14.1
0.5
5.5
1.4
100
Tourism, catering,
and domestic
services
2.0
0.8
17.4
48.5
2.2
17.1
5I.7
100
Other field
0.0
3.4
72.4
24.1
0.0
0.0
0.0
100
Total
3.4
2.9
26.9
35.0
1.2
16.1
4.2
100
In addition, the 5-year follow-up study (Stenström & Valkonen, 2012) indicated that 68% of
students who had started in vocational education in 2004 and graduated by 2009 were employed
(Figure 7). Among the rest of these 2004 entrants, 16% were unemployed, 10% were full-time
students, and 5% fell into the group “others” at the end of 2009. However, there are big differences between study fields.
There were also gender differences in the socio-economic status. Men were more often manual
workers, whereas most of the women were lower level employees. The status is connected to the
classification of the occupations (e.g. practical nurse is a lower level employee and mechanic is
a manual worker).
One factor influencing the graduates’ socio-economic status seems to be their previous educational background (Figure 8). Those who had completed more than one qualification before their
latest VET programme were more typically employed in white-collar jobs (47%) than their peers
with no prior qualification (21%). Many studies (Livingstone, 2010; Nilsson & Nyström, 2013;
Tomlinson, 2008) have indicated an inflation of formal educational requirements. This rapid expansion of education has led to underemployment and an opportunity trap (Brown, 2003).
39
The current state and challenges of Vocational Education and Training in Finland
Figure 7. VET graduates’ socio-economic status in the labour market five years
after starting their studies (3-years programme) in 2009 by gender
Figure 8. VET graduates’ socio-economic status five years after starting their
studies with respect to previous educational background (basic education, upper
secondary vocational education, upper secondary general education, at least two
qualifications)
40
The current state and challenges of Vocational Education and Training in Finland
6. Access to higher education
In Finland, the development of initial vocational education as a route that leads to eligibility for
tertiary education has taken place through several measures of educational policy since the 1990s.
First, the experiments of youth and polytechnic education were established in the 1990s. They offered the opportunity to combine general upper secondary and vocational upper secondary studies
so that eligibility to higher education could be achieved through participating in the matriculation
examination (of general upper secondary schools). In Finland, the matriculation examination of
general upper secondary schools has been the gold standard for access to studies in traditional
science universities. Later, the curricula of VET were developed and VET graduates, who had
completed a three-year curriculum-based qualification, were also awarded eligibility to higher
education. In addition, the establishment of polytechnics in the 1990s created a more practice-oriented route to higher education on the side of the traditional science universities. In this chapter,
these developments are described in more detail. Thereafter, the transitions to higher education
are described with the help of quantitative data.
Double qualification
In Finland, double qualifications (combination of general upper secondary and VET qualification)
have been offered since the 1990s. In the 1990s, a so-called jam of matriculated general upper
secondary students was discussed more and more as a problem for educational policy. There were
not enough study places available for general upper secondary graduates to get into traditional
science universities (Ahola, 1997). In order to find solutions for the development of the education
system, two experimental projects were started in parallel: the youth education pilot project and
the polytechnics experiment. The idea of the youth education pilot project was to allow general
upper secondary and vocational upper secondary students to combine studies from both of the
schools. An Act was promulgated in order to allow upper secondary institutions to cooperate for
this purpose, both locally and regionally, in 1991 (Laki nuorisoasteen koulutuksen ja ammattikorkeakoulujen kokeiluista 391/1991; Numminen, 1997; Virolainen & Valkonen, 1999).
The aim of the experiment was to identify ways to promote individuality and flexibility. The
evaluations of the educational system had pointed out needs such as to raise level of education,
decrease boundaries between educational sectors, give credit for earlier and other studies, decrease dropouts and number of double qualifications, shorten study times, decrease boundaries
between practice-oriented and theoretical studies, and address internationalisation (Numminen,
1997). The justifications for the Act further underlined: changes in the labour market and skills
demands, need to raise attractiveness of post-compulsory education and to enhance local governance of education at the municipality level (Numminen, Lampinen, Mykkänen, & Blom, 1999).
As a result of educational institutions’ collaborative efforts, three major models of collaborative
networks emerged: 1) a city model where educational institutions situated close to one another collaborated; 2) a regional model of collaboration where distances between institutions could be short
but also vary between 20-40 kilometres; and 3) a collaborative unit of two educational institutions
(general upper secondary school and vocational education institution) (Numminen, 1997; 2000a).
The pilot project increased the range of options available in the vocational and general upper
41
The current state and challenges of Vocational Education and Training in Finland
secondary curricula by allowing 30-40% flexibility into the curricula (Virolainen & Valkonen,
1999). The educational institutions allowed students to use the flexibility: 1) to pursue studies that
would enrich the curriculum with subjects and contents that their own institution was not able to
provide; 2) to adopt studies giving eligibility to higher education (upper secondary VET qualifications did not then give general eligibility to higher education); 3) to take professional studies that
relate to their primary study field and vocation and enrich competences; and 4) to have hobby-related studies such as music studies included in the qualification (Virolainen & Valkonen, 1999).
Based on the experiments, some important shifts took place in the organisation of the education system. In particular, the development of vocational education so that it would give general
eligibility to higher education was important. Furthermore, polytechnics were made permanent
when the Polytechnics Act was promulgated in 2003 (Ammattikorkeakoululaki 351/2003). Later,
they started to use the English translation “Universities of Applied Sciences”. Enhancement of the
accreditation of prior learning was also important.
As a result, the youth education pilot project did not become a model practiced in the whole
of the country (see Meriläinen, 2011). In 2005–2006, 63% of vocational institutions and 83% of
general upper secondary schools reported that they were collaborating (Mäensivu et al., 2007).
They had formed 102 collaborative networks altogether. Some general upper secondary schools
have also collaborated with higher education institutions regionally. The opportunity to complete
the double qualification (matriculation examination and vocational qualification combined) has
been more common in some of the larger cities and smaller cities committed to offer them, for
example in Helsinki, Jyväskylä, Kotka, Tampere, and Rovaniemi.
The number of students who had completed both the vocational upper secondary qualification
and the matriculation examination was estimated to be an average of 5% when the issue was
studied in areas where schools had formed networks in 2004–2005 (Mäensivu et al., 2007). The
differences between areas where collaborative networks have been formed and where they do not
exist seem to be considerable. According to nationwide data, the amount of students who studied
both in general and vocational upper secondary schools had increased from 2,047 students in
2002 to 3,805 students, in 2009 (Opetushallitus, 2012, p. 90). In the academic year 2008–2009,
there were 1,935 young people who completed both a vocational qualification and the matriculation examination of general upper secondary schools (Opetushallitus, 2012).
The latest Development Plan for Education and Research by the Ministry of Education and
Culture (Ministry of Education and Culture, Finland, 2012a) still mentions the need to enhance
collaboration between general upper secondary and vocational institutions. However, the focus of
that collaboration has shifted from educational content to joint use of “facilities, support services and teacher resources across institutional boundaries and with higher education institutions”
(Ministry of Education and Culture, Finland, 2012a, p. 32). Accordingly, upper secondary qualifications will be developed separately but institutions are encouraged to collaborate in order to
increase cost-efficiency and the accessibility of education.
The Finnish polytechnics (universities of applied sciences, UAS) were created in the 1990s
as a parallel tertiary education track with a competitive status but distinct profiles and missions.
By 2000, all polytechnics were established on a permanent basis. The principles underlying polytechnic education derive from a need for a highly trained expert workforce (Numminen, Lamp-
42
The current state and challenges of Vocational Education and Training in Finland
inen, Mykkänen & Blom, 1999). The rapid growth of industry in the field of technology and
information technology in particular was linked with changes in occupational qualifications. Employees were seen to face the challenge of developing competences that allow them to function
as knowledge workers.
The Finnish polytechnics were developed from former vocational colleges and higher vocational education institutions. They have no direct international model although they do resemble
the German Fachhochschulen and the Dutch HBO system (Salminen & Ylä-Anttila, 2010). At
the time of the establishment of the polytechnics, the objective of the educational policy was that
about 65% of each age group would complete a tertiary degree (Ahola, 1997; Lampinen, 1998).
The legacy of these educational reforms seems to be continuing. One of the key objectives of
the Finnish Educational Development Plan for the period 2011–2016 includes supporting lifelong
learning (Ministry of Education and Culture, Finland, 2014b). The principle of lifelong learning
entails that everyone has sufficient learning skills and opportunities to develop their knowledge
and skills in different learning environments throughout their lifespan. This viewpoint is integrated into education policy and other policy sectors relating to education and training.
As a results of the commitments undertaken in educational policy, the Finnish education system
has no dead-ends. Students’ opportunities to progress from one level of education to the next are
safeguarded by legislation. Both general and vocational upper secondary certificates (120 credits)
provide eligibility for further studies (Finnish Ministry of Education and Culture, Finland, 2014b).
The entry requirement of the polytechnics (universities of applied sciences, UAS) is a certificate from an upper secondary school or the matriculation certificate, a vocational qualification
or corresponding foreign studies. The extent of polytechnic degree studies is generally 210−240
study points (ECTS), which means 3.5 – 4 years of full-time study. It is also possible to gain
entrance to UAS if the UAS considers the applicant’s former knowledge and skills sufficient for
studies. Typically, for example, students who have completed studies in the open UAS would be
accepted into some fields. The most popular track from upper secondary education to university
of applied sciences is from upper secondary general schools, but many VET graduates also continue their studies in the UAS, as the following findings confirm.
Since their permanent establishment, the UAS offer a systematic route to continue vocational
graduates’ studies in higher education. The follow-up study (Stenström et al., 2012) indicated that
about 14% of graduates with a VET qualification from the upper secondary level have moved on
to higher education at a university of applied sciences within two years of their graduation. If we
look at the entrants to UAS, the picture is different. In 2003, 24% of entrants to UAS had a VET
qualification as their former education background, and 13% had completed both general and
vocational upper secondary education (Virolainen & Stenström, 2014; Virolainen & Valkonen,
2012, p. 122). This means that it is typical for VET graduates to apply to UAS after some years
of work experience.
The following figures (Figure 9 and Figure 10) and Table 15 describe those VET graduates
(14%) who entered into UAS within two years of their graduation in more detail. There seems to be
a number of background factors involved in these transitions. First, the choice was more typical for
female VET graduates (15%) than for males (12%). Second, the previous educational background
seems to be connected to the transition to universities of applied sciences (Figure 9). Those who
43
The current state and challenges of Vocational Education and Training in Finland
have gained the matriculation examination before VET graduation were more eager (30%) to move
to higher education than others. Also, the younger graduates who had only a basic education (13%)
moved to the UAS more than the others. These results are derived from additional follow-up data
considering 2009, which was connected to data from the project of Stenström et al. (2012).
Figure 9. VET graduates’ continuation to UAS by previous education
Figure 10. VET graduates’ continuation to UAS by parents’ educational
background
In addition, the parents’ education level is reflected in VET graduates’ further studies: the higher
the parents’ educational level, the more likely it is that the graduates will continue their studies
at UAS (Figure 10). Furthermore, there are differences between the fields of VET with respect to
access from VET to UAS (Table 15). These differences in transitions reflect not only the individu-
44
The current state and challenges of Vocational Education and Training in Finland
als’ and their parents’ aspirations, or differences in the grades of attendees in different educational
fields, but also employment opportunities and availability of study places.
Despite the number of factors involved in the transitions processes, the figures show how overall structural factors in society still have a strong influence on people’s educational opportunities
(e.g. Furlong & Cartmel, 1997; Stenström et al., 2012; Vanttaja, 2005). Still, education policy
measures are influential in shaping the degree of equity in each country’s education system. The
Nordic model of comprehensive school seems to have led to smaller differences than the schools
in liberal market economies (Antikainen, 2008).
Table 15. VET Graduates’ Continuation to UAS by Field of Education
Field of VET
Men
%
Women
%
Total
%
Total
n
Humanities and education
Culture
Social sciences, business and administration
Natural sciences
Technology, communication and transport
Natural resources and the environment
4.8
24.0
19.2
34.8
9.2
10.0
17.4
21.6
23.4
21.4
10.7
10.9
15.0
22.4
22.1
31.6
9.5
10.5
113
313
470
177
1709
248
Social services, health and sport
Tourism, catering and domestic services
Other
Total
25.0
5.5
9.1
12.3
13.6
12.5
0
15.3
14.4
11.0
6.9
13.9
765
592
29
4416
The following example shows how support for VET students can increase the transition from
VET to UAS. In Central Finland, nearly a quarter (22%) of the graduates from the Jyväskylä vocational institute applied to a university of applied sciences in 2013 (Stenström, 2014). This number of applicants is bigger than the above mentioned number of UAS students with a vocational
qualification. One reason for this is probably the Acceleration Lane Project (ALP) coordinated
by JAMK University of Applied Sciences. Its aim was to diversify and strengthen the vocational know-how (competence) of vocational education and training students in Central Finland by
creating and enabling flexible educational careers, and enhancing and rebuilding the structures of
VET at secondary and tertiary level.
A starting point in ALP was to make the educational system more effective and to enhance the
permeability of the secondary and tertiary vocational education so as to shorten the graduation/
study times as well as the transition from upper secondary education to tertiary education, along
with reduced educational overlaps and better recognition and validation of prior learning (Stenström, 2014). For example, the Degree Programmes of Nursing, Engineering and Business introduced differentiated higher education study modules that were offered to the initial VET students
of Jyväskylä Educational Consortium.
These study modules were aimed at motivating the VET students to move on to (vocational)
45
The current state and challenges of Vocational Education and Training in Finland
higher education, and to shorten students’ transition from vocational upper secondary education
to higher education in their chosen subject field (Stenström, 2014). These study periods also
offered a possibility for students to see what higher education studies include and what kind of
skills are needed.
At the upper secondary level, the focus was particularly on the design and implementation of
courses oriented toward studies in vocational higher education so that students would get a chance
to gain personal experience of tertiary level studies while also obtaining competencies in line
with higher education objectives at the upper secondary school (Stenström, 2014). ALP courses
were targeted at general and vocational upper secondary students alike. In addition, the measures
for upper secondary education involved a number of support practices for the implementation of
specific courses. For example, in the practical nurse programme the teachers of this field acted as
liaisons between the students and the teachers of the polytechnic and also as a kind of tutor during
the specific courses.
In higher education (in the University of Applied Sciences), the development was focused
on recognition of prior learning and the validation of non-formal and informal learning and the
procedures for identification of previously acquired competencies. The emphasis was also on the
procedures of student counselling, curriculum planning, and creating possibilities to pursue studies across the educational organisations (Stenström, 2014).
46
The current state and challenges of Vocational Education and Training in Finland
7. The esteem and position of VET
In recent years, Finnish education policy has paid much attention to the transitions from comprehensive education to further educational levels. Almost all young people finishing comprehensive school at the age of 16 years have access either to general upper secondary education or
to upper secondary vocational education and training (Cedefop ReferNet Finland, 2012). Nearly
all comprehensive school graduates apply for further studies, as barely 2% do not do so (Statistics Finland, 2014d). Respective admission statistics show that a total of 91% go on to further
studies aiming at a qualification or degree after comprehensive school (Statistics Finland, 2014c;
Myrskylä, 2011). The immediate discontinuation of studies has remained at around 9% in the
2000s (Figure 10, see also Figure 5). Traditionally, the general upper secondary education has
been more popular among graduates of the 9th grade of comprehensive schools, but the amount
of such applicants has decreased in the 2000s. At the same time, continuing studies in vocational
upper secondary education have become more popular. A long tradition has existed in Finnish
education that there is a division between general (academic) and vocational education (Lahelma,
2009). The general upper secondary education prepares students for the matriculation examination giving eligibility to traditional universities, whereas the vocational education provides
skills and competences for students leading mainly to working life. The general upper secondary
education has long been appreciated in Finnish culture, for example by the celebration with the
white student cap (Brunila, Kurki, Lahelma, Lehtonen, Mietonen & Palmu, 2011). In addition, the
general upper secondary culture has become more familiar to students in lower secondary school
where the academic school culture exists. Vocational education has been restructured in recent
years, whereas the general upper secondary education has held its position relatively unchanged
(Brunila et al., 2011). In Finland, the dichotomy between general and vocational studies has been
seen to diminish as an outcome of restructuring vocational education to allow continuation of
studies in tertiary education (Brunila et al., 2009). Despite the change, young people still have
to choose between more academically-oriented general or vocational education when they move
to the upper secondary level. Also, in tertiary education the routes (UAS and traditional science
university) have related connotations. In accordance with this, educational policy defines the
curricula of educational routes as more theory or practice-oriented, preparing for more or less
academic or manual work. As a result, the structural division of upper secondary education into
two routes, general upper secondary and vocational upper secondary education, has been reflected
in the metaphors through which young people speak about these routes and their choices related
to them. In general, in Finland the division is dichotomised in metaphors related to theory and
practice, heads and hands, or doing rather than reading, and the metaphors are repeated by teachers, study counsellors and young people themselves (Lahelma, 2009; Brunila et al., 2011). Young
people may, however, question the dichotomy when they have more experience of education and
work (Lahelma, 2009).
47
The current state and challenges of Vocational Education and Training in Finland
Figure 11. Immediate continuation of studies in upper secondary education in
2000–2012 in Finland (Statistics Finland, 2009b; 2014c)
In educational policy, the two upper secondary routes are described as equal options, but culturally expectations related to the routes and their different outcomes seem to have a strong hold.
For example, in the educational discussion on educability two competing representations of intelligence, underlining the natural or social construction of intellectual abilities, have appeared
persistent (Räty, Komulainen, & Hirva, 2012).
The popularity of vocational education and training has increased little by little since the early
2000s. The year 2009 was the first year when the majority of applicants listed a VET programme
as their primary choice (Cedefop ReferNet, 2011, p. 27). While interest in vocational education has increased, after basic education one half of youths continue in general upper secondary
schools in 2012 and 42% in IVET (Statistics Finland, 2009b; 2014c). Correspondingly, in 1992,
52% of students completing the comprehensive school immediately continued in general upper
secondary schools and 32% in IVET (Lasonen & Stenström, 1995).
The following facts may explain the VET’s increased parity of esteem with respect to general
upper secondary education: 1) upper secondary vocational education and training has been developed more clearly towards the world of work during the last decade; 2) there have been several
campaigns organised by the Ministry of Education and Culture and social partners to improve the
image of vocational education; 3) skills competitions, like the annual Finnish National Skills
Competition “Taitaja”, have also increased the popularity of VET (Cedefop ReferNet Finland,
2011); and also 4) eligibility to higher education, 5) establishment of the UAS, 6) internationalisation of VET education (Stenström & Virolainen, 2014; Virolainen & Stenström, 2014). One
factor that has strengthened the status of vocational education, in particular, is the establishment
of universities of applied sciences in the 1990s, as they offer an attractive route to higher education for those interested in more practice-oriented studying.
Although the attraction of vocational education and training has been steadily growing, there
48
The current state and challenges of Vocational Education and Training in Finland
are some challenges to developing Finnish vocational education and training. One challenge is
that the increased popularity of VET alongside the changing working life and competence requirements creates new demands on VET (Laukia, 2013). There is a need to develop the VET
system to be more responsive to a heterogeneous student population, to meet the needs of those
aiming to participate in skills competitions (Ruohotie, Nokelainen, & Korpelainen, 2008), and
those at risk of dropping out (e.g., Kuronen, 2010).
Differences in the parity of esteem of the upper secondary education routes, and between
general and vocational education, can be described by a number of their attractions (primary applicants/study places) (Table 16).
Table 16. Attraction of the Upper Secondary Education (Primary Applicants/Study
Places) in 2008–2013 (Finnish National Board of Education, 2014)
Study Field
Upper secondary general education
Humanities and education
Culture
Social science, business and administration
Natural sciences
Technology, communication, and transport
Natural resources and the environment
Social services, health, and sport
Tourism, catering, and domestic services
Total
2008
0.85
1.81
1.59
1.06
0.90
1.24
0.91
1.88
0.80
1.05
2009
0.83
1.71
1.82
1.14
0.99
1.20
1.00
1.90
0.85
1.08
2010
0.84
1.75
2.01
1.22
1.06
1.25
1.13
2.13
1.02
1.15
2011
0.83
2.09
2.02
1.33
1.05
1.29
1.20
2.16
1.13
1.19
2012
0.82
1.94
2.08
1.44
1.15
1.27
1.10
2.19
1.14
1.19
2013
0.84
2.03
2.02
1.46
1.25
1.23
1.15
2.18
1.08
1.19
The indicators of the attraction of upper secondary education show that the attraction of general
education has remained stable from 2008 until now. Upper secondary general (academic) schools
have more study places than applicants, whereas the vocational institutions have less study places
than applicants. The situation in VET varies between different educational fields. The most attractive field is social services, health and sport, then come the fields of humanities and education,
and culture. The least attractive field in VET seems to be tourism, catering, and domestic services.
However, the increased number of applicants to VET may partially be an outcome of unemployment, and recession since 2008.
In addition, there are differences between the VET study fields by gender (Table 17). The female-dominated fields are social services, health, and sport, humanities and education, tourism,
catering, and domestic services, culture, whereas the male-dominated fields are technology, communication, and transport, other field (e.g. security sector), and natural sciences (ICT).
It seems that vocational education often follows the gender-segregated patterns of the labour market (Stenström, 1997). Women work chiefly in social and personal services, whereas
male-dominated areas are industry-related. A basic feature of gender-based divisions in occupations and in the labour market is that women are mainly engaged in work that involves other
49
The current state and challenges of Vocational Education and Training in Finland
people and their immediate well-being and maintenance. Women and men work in different fields
and, even within the same field, in different positions.
Table 17. New VET Students by Study Fields in 2013 (Statistics Finland, 2014d)
Field of VET
Humanities and education
Culture
Social science, business and administration
Natural sciences
Technology, communication, and transport
Natural resources and the environment
Social services, health, and sport
Tourism, catering, and domestic services
Other field
Total
Men
(N=25463)
%
23.7
34.0
40.4
87.2
80.4
44.8
12.9
30.3
82.4
52.0
Women
(N=23472)
%
76.3
66.0
59.6
12.8
19.6
55.2
87.1
69.7
17.6
48.0
Total
(N=48935)
%
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
On the whole, the percentage of women among all new students in education leading to a qualification was 54% in 2012 (Figure 12). Of students in upper secondary general schools, 57% were
women and in vocational education 51% were women. Among polytechnic students, the percentage of women was 57% and among university students 56%.
Figure 12. New students in education leading to a qualification or degree by sector
of education and gender in 2012 (Statistics Finland, 2014a)
50
The current state and challenges of Vocational Education and Training in Finland
8. Socially inclusive VET and dropouts
In the Nordic universalistic regime, which is dominant in Finland, education and training pathways are planned to be inclusive and flexible to individual choice (Walther, 2006; 2009). Young
people are not regarded as just a future resource, but they are supported in their individual choices
and transitions, and the purpose is to provide everyone with at least a secondary level education
(Sweet, 2009; Walther, 2006). The Finnish model encourages lifelong education, so that transitions between educational levels and to work would be as flexible as possible (Stenström et al.,
2012).
Dropping out can be examined from the respective viewpoints of individuals, schools, the education system, and society (Kouvo, Stenström, Virolainen & Vuorinen-Lampila 2011; Kuronen,
2011). At the level of the education system and society, dropping out is reflected in a slower transition to employment, possible decrease in educational attainment, and general experience of failure for the young people who dropped out of education and consequently are at risk of exclusion
(Komonen, 2012; Stenström et al., 2012). Dropout rates have been decreasing since the beginning
of the 21st century, but the absolute number of dropouts has not fallen much, nor has the number
of students who gain their qualifications in the target time been growing as desired (Ministry of
Education and Culture, Finland, 2012b).
Despite the increased popularity of the Finnish vocational institutes and the fact that dropping
out has diminished during the first decade of the 21st century, vocational schools still have the
highest dropout rates in upper secondary education in Finland (Rinne & Järvinen, 2011). Dropping out was highest (8.7%) in VET as compared to the other educational levels and sectors
(general upper secondary education 3.5%, UAS 8.5%, and universities 6.4%) during the academic
year 2011/2012 (Statistics Finland, 2014a). Men discontinued more often than women, except for
vocational education (women 9.3% and men 8.3%).
Table 18 describes the trend of discontinuation in different educational levels in ten academic
years, from 2000/2001 to 2011/2012. The percentage of discontinuation of upper secondary general education seems to be quite stable at around 4% during these ten years. The discontinuation
in vocational education has decreased from 13.1% to 8.7%. In 2011/2012, the percentage of discontinuation among polytechnic students was almost the same (8.5%) as in VET. Although the
discontinuation of university education is lower (6%) than in the polytechnics, it seems to have
increased slightly in recent years.
Closer inspection of discontinuation by VET study fields indicates that education was discontinued most often in the field of natural sciences (ICT) (Table 19). Discontinuation was, in relative
terms, the least in the field of humanities and education, social sciences, health and sports, and
in the field of “other” that includes fire and rescue training. As a whole, the discontinuation has
decreased in VET in recent years.
51
The current state and challenges of Vocational Education and Training in Finland
Table 18. Discontinuation of Education in Upper Secondary General, Vocational,
Polytechnic and University Education in Academic Years 2000/2001–2011/2012
(Statistics Finland, 2014e)
Academic year
2000/2001
2001/2002
2002/2003
2003/2004
2004/2005
2005/2006
2006/2007
2007/2008
2008/2009
2009/2010
2010/2011
2011/2012
Upper secondary
general education
%
4.2
4.1
3.7
3.8
3.9
4.2
4.2
4.5
3.9
4.0
4.0
3.5
Vocational
education
%
13.1
12.3
11.3
10.7
10.5
10.5
10.2
9.8
8.5
9.1
9.1
8.7
Polytechnic
education
%
9.5
7.6
8.2
8.4
8.7
9.2
9.0
9.2
8.6
8.6
8.8
8.5
University
education
%
4.2
5.3
5.0
4.8
5.4
5.8
5.6
6.1
6.2
5.9
6.5
6.4
Table 19. Discontinuation of VET Students by Year and Study Field (Statistics
Finland, 2014e)
Field of VET
Humanities and education
Culture
Social science, business and
administration
Natural sciences
Technology, communication,
and transport
Natural resources and the
environment
Social services, health, and
sport
Tourism, catering, and domestic services
Other field
Total
2007/2008
6.0
9.3
9.5
2008/2009
5.9
7.9
8.3
2009/2010
6.8
8.0
8.2
2010/2011
7.5
8.2
7.7
2011/2012
6.4
7.9
7.7
13.5
8.3
11.3
6.8
11.6
7.6
12.4
7.6
10.6
7.5
11.6
11.6
10.2
10.6
9.7
7.0
10.6
6.2
9.2
6.5
10.6
6.9
10.0
6.4
9.4
2.0
8.9
2.2
7.6
1.9
8.1
2.0
8.1
1.3
7.8
The regional differences in the discontinuation and completions of studies are pictured in Table
20. They reflect the complexity of factors effecting the completion of studies. For example, in
52
The current state and challenges of Vocational Education and Training in Finland
the only metropolitan area of Finland, which is situated in the Uusimaa, the completion rate
is the lowest. There, young people have more employment opportunities, which may result in
non-completion. On the contrary, in North-Carelia, where youth unemployment has been high,
the completion rates of VET are very high.
Table 20. Progress of VET Studies by the Different Finnish Regions (Statistics
Finland, 2014h)
Region
Uusimaa
East-Uusimaa
South-West Finland
Satakunta
Häme
Tampere region
Päijät-Häme
Kymenlaakso
South Karelia
South Savo
North Savo
North Karelia
Central Finland
South Ostrobothnia
Ostrobothnia
Central Ostrobothnia
North Ostrobothnia
Kainuu
Lapland
Åland
Completion of
qualification
%
59.0
59.2
67.7
66.0
66.5
69.7
60.8
66.0
68.1
58.4
73.3
78.6
68.7
73.3
74.2
74.1
68.5
71.9
69.4
64.7
Prolonged
studies
%
11.3
11.1
4.7
8.2
8.3
8.0
14.0
8.0
8.4
11.5
6.0
6.0
6.4
5.7
6.5
6.9
8.5
10.9
9.4
0.0
Dropped
out
%
29.7
29.7
27.6
25.9
25.3
22.3
25.2
26.1
23.5
30.1
20.7
15.5
24.9
21.0
19.4
19.0
23.1
17.1
21.3
35.3
Total
(n=6447)
%
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
100.0
n
1326
135
487
306
289
539
222
226
166
226
348
219
342
318
201
131
520
82
330
34
The non-completion of studies provides a complementary picture of the progress of VET studies.
It can be seen from the perspective of progress of studies when one starting cohort is followed
through their expected study time. In Figure 13, the progress of studies is described year by year
differentiated by educational fields (Stenström & Valkonen, 2012). Furthermore, in Figure 14 different age-groups are compared and it can be seen how, among the students starting in vocational
education in 2004, almost a quarter (23%) discontinued their studies in 2004–2009, as revealed
by a recent study (Stenström & Valkonen, 2012). In the study, a cohort of those who started their
studies in 2004 was followed throughout the expected span of their VET programme, and the
resulting figures are in line with the general dropout rate of the starting cohort of VET students
(25% in 5½ years in 2012) (Statistics Finland, 2014h).
53
The current state and challenges of Vocational Education and Training in Finland
Figure 13. Progress of studies by field in VET (Stenström & Valkonen, 2012)
The results of the study indicate that a primary factor connected to graduation or dropping out was
the student’s starting age (see Figure 14; Stenström & Valkonen, 2012). The older the students
were when starting, the more likely they discontinued their studies. The background factors had
different connections to graduation for different age groups. The youngest were more likely to
complete their studies, especially when compared to the older ones with prior education higher
than just the compulsory school. In other age groups too, previous education had a connection to
the completion of the VET programme. These results are consistent with earlier research findings
(Mehtäläinen, 2001). Besides age, dropping out has been connected with gender.
54
The current state and challenges of Vocational Education and Training in Finland
Figure 14. VET students’ careers by gender
One of the current debates with respect to education concerns male students becoming excluded
from society as labour market requirements increase (Cedefop ReferNet Finland, 2011). Dropping
out was more common for men (25%) than for women (20%). In addition, dropping out showed a
connection to previous education; those having a vocational qualification before pursuing another
one ended up discontinuing their studies more often than others (Figure 15). Dropping out also
seems to be connected with employment. Compared to the graduating students, the dropouts were
more often unemployed 5 years after the start of their studies (Stenström & Valkonen, 2012).
In a society where the significance of education and qualifications is highlighted, young people
without such attainments have less choice of available jobs and they end up with low paying jobs
with little educational demands and poor prospects for career advancement more often than others
(Christle, Jolivette, & Nelson, 2007).
During the last few decades, there have been attempts to reduce young people’s dropping out
of education as well as the interruption of vocational schooling, for example by increasing career
guidance and individual counselling both in basic and upper secondary education and by paying
special attention to the teaching and learning of certain “risk-groups” of young people. A similar
kind of special education that has been available in basic education for decades has now been introduced in vocational education and training as well (Rinne & Järvinen, 2011; Vanttaja & Rinne,
2008, p. 45).
55
The current state and challenges of Vocational Education and Training in Finland
Figure 15. VET students’ employment status five years after they started their
studies
56
The current state and challenges of Vocational Education and Training in Finland
9. Challenges of Finnish VET
Although the attraction of vocational education and training has been steadily growing, there
are some challenges to developing the Finnish vocational education and training. On one hand,
dropouts create a challenge. On the other hand, the increased popularity of VET with the changing
working life and competence requirements create new demands on VET (Laukia, 2013).
Study results considering inter-school reasons for dropping out have underlined the meaning
of well-being and how it affects schools’ atmospheres. It has been noted that teachers’ motivation
affects the quality of education and interaction with students and vice versa. Heterogeneous student groups create a challenge for organising education (Rantanen & Vehviläinen, 2007). Youth
has also become more demanding with respect to education, while the post-Second World War
period has been reflected in the welfare-states’ shift from a generation of limited educational resources (the generation born before 1935) to a generation of multiple opportunities and welfare
(the generation born post-1956) (Kauppila, 2013).
In order to tackle the exclusion of young people, the Finnish Youth Guarantee was launched at
the beginning of 2013 (Ministry of Education and Culture, Finland, 2013). It will offer everyone
under the age of 25, as well as recent graduates under 30, a job, on-the-job training, a study place
or rehabilitation within three months of their becoming unemployed. Its intention is to prevent
young people from being excluded from society.
In addition, the instrument of preparatory instruction has been developed to lower the threshold of education and training and to reduce dropouts. The aim of this instruction is to improve
students’ capacities to obtain a place in vocational education and training. Such instruction takes
six months between basic education and vocational education and training (ReferNet Finland,
2012). In addition, so-called youth workshops offer training and work experience placements to
unemployed young people under 29 years of age. They offer a place for young people to learn life
skills, grow into adulthood and get hands-on work experience, encouraging and helping them to
seek further training.
In order to respond to the requirements of the changing world of work, the flexibility of vocational qualifications has been further increased, for example diversifying opportunities to include
modules from other vocational qualifications (further and specialist vocational qualifications) or
UAS degrees (ReferNet Finland, 2012). Furthermore, students will be supported by implementing flexible and supportive practices such as improved recognition of prior learning.
Several reforms are ongoing in the Finnish education system. They challenge the present status of Finnish VET and they deserve follow-up. These include the restructuring of the network
of upper secondary education providers (Ministry of Education and Culture, Finland, 2014d); the
curriculum reform which will be implemented from August 2015 (Laki ammatillisesta koulutuksesta annetun lain muuttamisesta 787/2014; Valtioneuvoston asetus ammatillisen perustutkinnon
muodostumisesta 801/2014; Finnish National Board of Education, 2014b); effects of the Social
Guarantee for Young People (Ministry of Education and Culture, Finland, 2013; Ministry of Education and Culture, Finland, 2014f); and redirection of apprenticeship training toward youths
(Ministry of Education and Culture, Finland, 2014f). All of these changes may affect the transition patterns of young people. The network of educational institutions affects the accessibility of
57
The current state and challenges of Vocational Education and Training in Finland
upper secondary education in the regions and may result in uneven provision of VET in different
regions, unless it is carefully planned. The restructuring of the curriculum aims to introduce more
a competence-based orientation in VET, but it should still provide young people with academic
skills that allow the continuation of studies in tertiary education. The recent policy aiming to target apprenticeship training combined with school-based training to youths without employment
or education seems to be quite a contradictory shift. Traditionally, apprenticeship has been a route
for adult education and thus served the needs of further and specialist education. It remains to be
seen whether the shift suggested by educational policy is welcomed by employers.
Several studies have indicated that transitions from youth to adulthood and from studies to
work have changed (e.g. Raffe, 2008; Thomson et al., 2002). Today, transitions involve movement
back and forth, and individual educational paths may lead in many different directions before establishing a more permanent position in the labour market. In the course of an individual’s life in
our post-modern society, the transitions can be characterised by individualisation, inconsistency,
prolongation and fragmentation (Walther, 2006). Youth transitions have not only been prolonged
but also de-standardised. According to Walther (2006), this process is related to such factors as
extended periods in education, labour market flexibility and the trend of individualisation. These
characteristics have been referred to using the metaphorical term of “yo-yo transitions” (Walther,
2006). These yo-yo transitions represent the period of shift between youth and adulthood.
Transitions between youth and adulthood can be examined as involving a complex system
of socio-economic structures, institutional arrangements and cultural patterns. The characteristic
welfare system of each country influences transitions at the macro level. Walther (2006) examines
the transition regimes of 11 countries on the basis of the welfare regime categories of Gallie and
Paugam (2000). He divides transition regimes into four groups: 1) universalistic regimes, 2) liberal regimes, 3) employment-centred regimes, and 4) regimes of low security.
The universalistic transition regime in Nordic countries is based on a comprehensive school
system. At the individual level, young adults are encouraged and supported in experimenting with
yo-yo transitions by individualised education and welfare options. Youth is associated with active
self-development through education. Young people are not regarded as just a future resource, but
instead are supported in their individual choices and transitions, and the purpose is to provide
everyone with at least a secondary level education (Walther, 2006; Sweet, 2009).
The Finnish policy is in line with the universalistic regime, in which young people’s individual
choices and transitions are supported. The results of the five-year follow-up study (Stenström et
al., 2012) show that yo-yo transitions are evident in the Finnish education system as well (Walther,
2006). Young people proceed from one educational level to another in a nonlinear fashion. This
finding seems to be in line with Beck’s (1999) feature of risk society (i.e. individualisation),
although the social background could also still be seen as connected to the young people’s educational careers. Structural factors and the educational opportunities provided in a society have a
strong influence on people’s educational choices (Furlong & Cartmel, 1997; Vanttaja, 2005). In
accordance, education policy measures are influential in shaping the degree of equity, transition
patterns and people’s employability in each country’s education system.
58
The current state and challenges of Vocational Education and Training in Finland
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66
The current state and challenges of Vocational Education and Training in Finland
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The current state and challenges of Vocational Education and Training in Finland
Appendix 1
Table 1. The change in the numbers of vocational institutions 2005, 2010, and 2013
(adapted from Official Statistics of Finland, Statistical Database PX-Web Statfin,
Koulutuksen järjestäjät ja oppilaitokset [Providers of education and educational
institutions])
Ownership¹
2005
Private
State
Municipality
Federation of Municipalities
County of Åland
Total
2010
Private
State
Municipality
Federation of Municipalities
County of Åland
Total
2013
Private
State
Municipality
Federation of Municipalities
County of Åland
Total
¹
70
Vocational
institutes
Special needs
vocational
institutes
Specialised
vocational
institutes
Vocational
adult education centres
30
0
29
7
5
0
37
2
1
15
0
6
117
6
182
1
0
13
0
0
40
17
0
38
30
2
13
6
0
0
32
2
0
11
0
3
81
6
132
0
0
6
0
0
34
11
0
25
30
2
8
6
0
0
32
2
0
12
0
3
79
1
120
0
0
6
0
0
34
10
0
25
Includes the whole country and all teaching languages.
The current state and challenges of Vocational Education and Training in Finland
Table 2. Students and vocational institutions 2005, 2010, and 2013
Year
Vocational
institutes, with
1-99 students
100-299
students
300-499
students
500-999
students
more than 1000
students
2005
12
48
35
47
38
2010
3
30
20
28
49
2013
2
26
19
30
41
Note: Adopted from Statistics Finland’s Statistical Database PX-Web Statfin, Koulutuksen järjestäjät ja oppilaitokset
[Providers of education and educational institutions].
Table 3. Number of students in vocational institutions 2010, 2013
Institutions
2010
2013
Vocational institutes
182 800
173 200
5 300
5 000
Specialised vocational institutes
22 900
12 900
Vocational adult education centres
43 100
36 500
Special needs vocational institutes
Note: Adopted from Official Statistics of Finland. 2011. Providers of education and educational institutions [e-publication] http://www.stat.fi/til/kjarj/2010/kjarj_2010_2011-02-17_tie_001_en.html and Official Statistics of Finland. 2014. Providers of education and educational institutions [e-publication http://www.stat.fi/til/kjarj/2013/
kjarj_2013_2014-02-13_tie_001_en.html]
71
The current state and challenges of Vocational Education and Training in Finland
Appendix 2
The fields of VET and their study programmes
Humanities and Education
• Vocational Qualification in Child Care and Education and Family Welfare, Children’s Instructor 2009
• Vocational Qualification in Sign Language Instruction 2010
• Vocational Qualification in Youth and Leisure Instruction 2009
Culture
• Vocational Qualification in Audio-Visual Communication 2010,
◦◦ Amendments 2012
• Vocational Qualification in Crafts and Design, Artisan 2009
• Vocational Qualification in Circus Arts 2010
• Vocational Qualification in Dance 2010
• Vocational Qualification in Music 2010
• Vocational Qualification in Visual Expression, Visual Artisan 2010
• Further Qualification in Handicraft 2007
Social Sciences, Business and Administration
• Vocational Qualification in Business and Administration 2009
• Further Qualification in Estate Agency Services 2011
• Further Vocational Qualification in Foreign Trade 2012
Natural Sciences
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
72
Vocational Qualification in Information and Communications Technology 2010
Technology, Communication and Transport
Vocational Qualification in Air Traffic Control 2010
Vocational Qualification in Aircraft Maintenance 2010
Vocational Qualification in Boat-building 2009
Vocational Qualification in Building Maintenance Technology 2010
Vocational Qualification in Construction 2009
Vocational Qualification in Electrical Engineering and Automation Technology 2009
Vocational Qualification in Food Production 2009
Vocational Qualification in Information and Telecommunications Technology 2009
Vocational Qualification in Laboratory Technology, Laboratory Technologist 2009
Vocational Qualification in Land Surveying 2010
Vocational Qualification in Logistics 2009
Vocational Qualification in Metalwork and Machinery 2010
Vocational Qualification in Mining 2009
The current state and challenges of Vocational Education and Training in Finland
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Vocational Qualification in Plastics and Rubber Technology 2010
Vocational Qualification in Processing Industry 2010
Vocational Qualification in Property Maintenance Services 2010
Vocational Qualification in Publishing and Printing 2010
Vocational Qualification in Safety and Security 2010
Vocational Qualification in Seafaring 2010
Vocational Qualification in Surface Treatment Technology 2010
Vocational Qualification in Technical Design 2010
Vocational Qualification in Textiles and Clothing 2009
Vocational Qualification in Upholstery and Interior Design 2009
Vocational Qualification in Vehicle Technology 2009
Vocational Qualification in Watchmaking and Micromechanics 2010
Vocational Qualification in Wood Processing 2010
Specialist Qualification in Management 2011
Natural Resources and the Environment
•
•
•
•
•
•
•
•
Vocational Qualification in Agriculture 2009
Vocational Qualification in Fishery 2010
Vocational Qualification in Forestry 2009
Vocational Qualification in Horse Care and Management 2009
Vocational Qualification in Horticulture 2010
Vocational Qualification in Natural and Environmental Protection 2009
Further Qualification in Hiking and Nature Services 2012
Further Qualification for Riding Instructors 2012
Social Services, Health and Sport
•
•
•
•
•
•
•
•
•
Vocational Qualification in Beauty Care 2009
Vocational Qualification in Dental Technology, Dental Laboratory Assistant 2010
Vocational Qualification in Hairdressing, Hairdresser 2009
Vocational Qualification in Pharmaceutics 2010
Vocational Qualification in Social and Health Care, Practical Nurse 2010
◦◦ Amendments 2011
Vocational Qualification in Sports, Sports Assistant 2010
Further Qualification for Chiropodists 2010
Further Qualification for Masseurs/Masseuses 2011
Specialist Qualification in Beauty Care 2011
◦◦ For example the study programmes or specialisations (the third year) for vocational qualification (VQ) in Social and Health Care, Practical Nurse are as follows:
▫▫ Customer Services and Information Management
▫▫ Emergency Care
▫▫ Rehabilitation
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The current state and challenges of Vocational Education and Training in Finland
▫▫
▫▫
▫▫
▫▫
▫▫
▫▫
Children’s and Youth Care and Education
Mental Health and Substance Abuse Welfare Work
Nursing and Care
Oral and Dental Care
Care for the Disabled
Care for the Elderly
Tourism, Catering and Domestic Services
• Vocational Qualification in Hotel, Restaurant and Catering Services 2010
• Vocational Qualification in Household and Cleaning Services 2010
• Vocational Qualification in the Tourism Industry 2009 Further Qualification for Hotel Receptionists 2011
• Further Qualification for Tourist Guides 2011
Adapted from:
Finnish National Board of Education. (2011). Requirements for Vocational Qualifications. Vocational qualification in social and health care, practical nurse. Publications, 21. Helsinki: Finnish National Board of Education. Retrieved from http://www.oph.fi/download/140436_vocational_qualification_in_social_and_healthcare_2010.pdf
Finnish National Board of Education. (2014). Vocational upper secondary education. Retrieved
from http://www.oph.fi/english/curricula_and_qualifications/vocational_upper_secondary_
education
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Figure 1. Students in curriculum-based basic vocational education by field of education in 2007, 2010 (further and specialist
vocational qualifications are not included; adapted from Opetushallitus, 2012)
The current state and challenges of Vocational Education and Training in Finland
75
The current state and challenges of Vocational Education and Training in Finland
Appendix 3
Table 1. The number of apprentices in Finland 1997–2012: Students, new entrants,
and graduates who have participated in education for initial, further, and specialist
vocational qualifications
Year
Students
New entrants
Graduates
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
20071
20082
20093
20104
20115
20126
20137
27,613
38,908
35,316
36,029
38,963
41,459
45,321
47,685
51,307
54,632
63,295
70,037
65,997
59,702
56,876
55,554
51,466
15,128
19,764
11,058
15,385
16,847
18,102
19,316
19,142
20,066
21,793
28,375
28,013
20,121
21,674
21,977
20,911
18,228
4,171
8,142
7,986
7,501
7,780
7,909
8,489
11,415
12,471
12,561
10,980
12,193
14,320
14,306
13,271
13,039
12, 869
Note: All data have been adapted from Statistics Finland.
Years 1997–2006: Statistics Finland (2008a). Oppisopimuskoulutukseen osallistuneet, uudet opiskelijat ja todistuksen
saaneet 1997–2006 (Excel, 21.5.). Http://www.stat.fi/til/aop/2006/04/aop_2006_04_2007-11-01_tie_004.html.
1) (2008b). Oppisopimuskoulutuksessa 63 300 osallistujaa vuonna 2007.
http://www.stat.fi/til/aop/2007/04/aop_2007_04_2008-11-03_tie_004.html.
2) (2009a). Oppisopimuskoulutuksessa 70 000 osallistujaa vuonna 2008.
http://www.stat.fi/til/aop/2008/04/aop_2008_04_2009-11-03_tie_004.html.
3) (2010). Oppisopimuskoulutuksessa 66 000 osallistujaa vuonna 2009.
http://www.stat.fi/til/aop/2009/04/aop_2009_04_2010-11-03_tie_004_fi.html.
4) (2011). Oppisopimuskoulutuksessa 59 700 osallistujaa vuonna 2010.
http://www.stat.fi/til/aop/2010/04/aop_2010_04_2011-11-03_tie_004_fi.html.
5) (2012). Oppisopimuskoulutuksessa 56 900 osallistujaa vuonna 2011.
http://www.stat.fi/til/aop/2011/04/aop_2011_04_2012-11-06_tie_004_fi.html.
6) (2013c). Oppisopimuskoulutuksessa 55 600 osallistujaa vuonna 2012.
http://www.stat.fi/til/aop/2012/04/aop_2012_04_2013-11-06_tie_004_fi.html.
7) (2014). Ammatillisessa koulutuksessa 313 600 opiskelijaa vuonna 2013. Liitetaulukko 1. Ammatillisen koulutuksen uudet opiskelijat koulutuslajeittain 2013, Liitetaulukko 2. Ammatillisen koulutuksen opiskelijat koulutuslajeittain 2013, Liitetaulukko 3. Ammatillisen koulutuksen tutkinnon suorittaneet koulutuslajeittain 2013.
http://www.stat.fi/til/aop/2013/aop_2013_2014-09-23_tie_001_fi.html.
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