The current state and challenges of Vocational Education and Training in Finland

Transcription

1 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

2 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: / Copyright: the author and Nord-VET ISBN: 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:

3 Content Introduction Current institutional architecture and forms of governance of vocational education and training in Finland Education system The legal framework: Central institutions, stakeholders and governance of VET Financing of Finnish VET The main structure of the VET programmes VET programmes Types of VET Apprenticeship training Transition into VET and completion of VET programmes Enhancing links between VET and working life Transition from VET to the labour market Access to higher education The esteem and position of VET Socially inclusive VET and dropouts Challenges of Finnish VET References Appendix Appendix Appendix

4 List of figures Figure 1. Formal education in Finland... 9 Figure 2. Organisation of the educational programme Figure 3. Example of the structure of VQ in social and health care, 120 cr Figure 4. The number of apprentices in Finland Figure 5. Direct transition to further studies of graduates of the 9th grade of comprehensive school Figure 6. New students in vocational education (curriculum-based) by field of education and gender in 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 Figure 9. VET graduates continuation to UAS by previous education Figure 10. VET graduates continuation to UAS by parents educational background Figure 11. Immediate continuation of studies in upper secondary education in in Finland Figure 12. New students in education leading to a qualification or degree by sector of education and gender in Figure 13. Progress of studies by field in VET Figure 14. VET students careers by gender Figure 15. VET students employment status five years after they started their studies

5 List of tables Table 1. Current Expenditure on Regular Education System by Type of Expenditure Table 2. Real Development of Educational Institutions Operational Costs/Students by Sector in Table 3. Number of VET Students by Type of Education in 2007 and Table 4. VET Students by Type of Education in Table 5. Types of IVET Programmes Table 6. Apprenticeship Training in Finland Table 7. The Number of Graduates from Apprenticeship Training Compared to the Number of All Graduates from VET in Finland in Table 8. Age of the New Students in the Curriculum-Based VET Programmes in Table 9. Pass Rates by Sector of Education in Table 10. Main Differences Between On-the-job Learning and Practical Training in Initial VET Table 11. Employment of Graduates One Year After Graduation by Level of Education in Table 12. Employment of VET Graduates One Year After Graduation in Table 13. Employment of Graduates One Year After Graduation by Field of VET in Table 14. VET Graduates Socio-Economic Status by Graduate Field Five Years After Starting Their Studies by Study Field Table 15. VET Graduates Continuation to UAS by Field of Education Table 16. Attraction of the Upper Secondary Education (Primary Applicants/Study Places) in Table 17. New VET Students by Study Fields in Table 18. Discontinuation of Education in Upper Secondary General, Vocational, Polytechnic and University Education in Academic Years 2000/ / Table 19. Discontinuation of VET Students by Year and Study Field Table 20. Progress of VET Studies by the Different Finnish Regions

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7 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 Nord- VET 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: 7

8 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 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). 8

9 Figure 1. Formal education in Finland (adapted from 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 was adopted at the end of In this plan for the period , 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

10 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

11 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 PX- Web 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

12 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

13 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 Type of Expenditure Year EUR million EUR million EUR million EUR million EUR million Pre-primary education 1) EUR million Comprehensive school education 2) Upper secondary general education 2) Vocational education 3) Apprenticeship training Polytechnic education 3) University education and research 4) Other education 5) Administration Financial aid for students Total Current expenditure as a percentage of GDP,

14 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 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 The period 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 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 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 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 At the same time, expenditure on apprenticeship training has increased by 5.34 with respect to the level it was at in Also, expenditure on polytechnic education has increased to be 6.4 times as big as it used to be in 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 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 (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

15 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 (adapted from Statistics Finland, 2014g) Sector of Education Year EUR EUR EUR EUR EUR EUR Pre-primary education Comprehensive school education 2) Upper secondary general education 2) Vocational education 3) Polytechnic education 3) University education and research 4) Total 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 In , 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 Costs for 2010 do not include transferable appropriations for operational costs and universities shared costs. 15

16 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

17 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 The new curricula will be utilised from 1 st 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

18 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 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

19 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 Proportion as a of all VET students in 2010 Upper secondary vocational qualification 126, , Competence-based qualifications Upper secondary vocational qualification 28,041 36, Further vocational qualification 30,081 31, Specialist vocational qualification 6,846 6, Apprenticeship training Upper secondary vocational qualification 27,169 22, Further vocational qualification 20,503 19, Specialist vocational qualification 14,841 16, Total 253, , Women Special needs education Mother tongue other than Finnish or Swedish Table 4. VET Students by Type of Education in 2013 (Statistics Finland, 2014j) Type of VET Vocational school-based education Apprenticeship training (N=51,466, 16.4) Total (N=313,610) (N=262,144, 83.6) Men Women Total Men Women Total Men Women Total Curriculumbased basic VET Preparatory initial vocational education for a skills examination Preparatory education for further qualifications Preparatory education for a spe- cialist vocational qualification Total

20 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, 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 ( 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