Quality Handbook of Higher Education in Finland and Russia

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3 Quality Handbook of Higher Education in Finland and Russia University of Turku 2009

4 Publisher University of Turku Compiled by Sonja Vainio Cover and layout Henri Terho ISBN (printed version) ISBN (electronic version) Printed in Paino-Salama, Turku Finland 2009

5 Contents Foreword 5 Finland Facts 8 Russia Facts 8 Introduction: Bologna and beyond 9 Part I: International and national contexts Higher education in Finland Structure of the Finnish education system Finnish education system Universities and universities of applied sciences Steering and management Finnish higher education degrees Studying in Finland Admission procedures Studying and student life in Finnish HEIs Financial aid and educational benefits Higher education in Russia Structure of the Russian education system Russian education system Different types of HEIs Steering and management Russian higher education degrees Studying in Russia Admission to higher education Studying and student life in Russian HEIs Student finance Quality assurance of higher education Quality assurance in an international context Global developments European Association for Quality Assurance European Standards and Guidelines European Quality Assurance Register Quality assurance in Finland Quality assurance in Finnish HEIs Finnish Higher Education Evaluation Council Quality audits of Finnish HEIs 107

6 3.3. Quality assurance in Russia Quality assurance in Russian HEIs Quality assurance bodies in Russia State quality assessment of HEIs Curriculum development and quality assurance Qualifications frameworks European qualifications frameworks National qualifications frameworks Curriculum development in Finland Bologna curriculum reform Starting new education Annual curriculum processes Curriculum development in Russia State Educational Standards Developing and implementing standards Internationalisation of higher education Academic mobility in Finland and Russia Recruiting international students Student mobility in figures International practical training Staff mobility Financing mobility Practicalities Recognition Recognition tools Recognition processes Jointly organised degrees Definitions European developments Recognition of joint degrees Quality assurance 205 Part II: Case studies Quality Assurance System in the Finnish-Russian Cross-Border University (CBU) Quality assurance: Translation studies at the University of Turku and Immanuel Kant State University of Russia (Kaliningrad) Finnish - Russian Co-Operation in East Asian Studies Between the University of Turku and the St. Petersburg State University - Perspectives from the Grass-Roots 236

7 Foreword Finland has traditionally been considered an expert on Russia, and Finnish and Russian universities have a substantial number of cooperating relationships. Nevertheless, there are problems in student, as well as teacher and researcher mobility. Reasons for these problems can be found both in cultural differences and in inadequate knowledge of the educational system of the other country, leading to a lack of confidence in each other s educational system. Finland and Russia are both involved in developing the European Higher Education Area, the Bologna Process. In both countries, quality assurance of higher education is being developed as part of the Bologna Process, and both countries will describe their degrees in the form of national qualifications frameworks in the coming years, in line with the European qualifications framework. Systems for the recognition of prior learning are also being developed in both countries. The current situation thus creates a demand and offers an excellent opportunity for improving the comparability and recognition of higher education and degrees in Finland and Russia. The purpose of this Quality Handbook of Higher Education in Finland and Russia, and the whole project on Developing quality assurance of higher education curriculum planning in Finland and Russia, 5

8 has been to facilitate student and teacher mobility from Finland to Russia and from Russia to Finland, and to improve the quality assurance of degrees. The aim is to develop a common understanding on quality criteria, and thus ensure the Bologna compatibility of degrees. The handbook includes descriptions of higher education systems in both countries, the frameworks in which they function, degree systems, quality assurance systems of higher education, processes of curriculum development as well as internationalization processes in both countries. There are also presentations of three different case studies, reflecting the great variety of Finnish-Russian cooperation in higher education, from very practical joint courses or teacher exchange to entire joint degree programmes. Their aim is to open perspectives for future cooperation, which has great possibilities both in fields with similar curricula in Finland and Russia and in fields with curricula that complement the education offered in the other country. During the project a web-site was also created, and seminars, field-specific workshops and working visits were organized. The findings of the project have been used, and the experts of the project have assisted in the EuroFaculty project in Pskov. The final results and the handbook will be presented at the 7th Seminar on Cooperation between Russian and Finnish Institutions of higher Education in Turku, November I express my warmest thanks to CIMO and the international office of the University of Turku for accepting the project as one key theme for this traditional seminar. On behalf of the project I would like to thank the Finnish Ministry of Education for financial support which made the project possible. The project could not manage without the dedication of its coordinator, Ms. Sonja Vainio, MA. The steering board has served as a think-tank and essential support during the project. I am extremely grateful to colleagues from Immanuel Kant State University of Russia in Kaliningrad, Saint- Petersburg State University and the National Accreditation Agency of the Russian Federation, as well as the Finnish Higher Education Evaluation Council and the Recognition and International Comparability of Qualifications unit at the Finnish National Board of Education for help during the whole project. I would especially like to thank Carita Blomqvist, Elena Boyarskaya, Tarja Hyppönen, Outi Jäppinen, Matti Lappalainen, 6

9 Anne Makkonen, Valery Mitrofanov, Galina Motova and Nikolay Samoylov for their most valuable comments on the handbook draft. The Bologna process is founded on mutual confidence in the quality of higher education. I hope that this handbook not only serves as a tool in Finnish-Russian cooperation in higher education, but also helps to develop cooperation between Russia and other countries. Turku, 30 June 2009 Riitta Pyykkö Professor, Chair of the steering group of the project 7

10 Finland Facts Total area: 338,000 square kilometres Population: 5,326,314 Capital: Helsinki (564,000) Languages: two official languages, Finnish spoken by 91.5% and Swedish by 5.5% of the population Religion: 82.4% Lutheran and about 1.1% Orthodox Currency: euro GDP per capita: 34,718 US dollars Life Expectancy at birth: 79 years Governance: Head of State, President Ms. Tarja Halonen, government headed by the Prime Minister, EU member since 1995 Russia Facts Total area: 17,075,200 square kilometers Population: 140,041,247 Capital: Moscow (10,672,000) Language: Russian Religion: mainly Russian Orthodox, also Muslim and others Currency: Russian ruble (1 euro 43 rubles ) GDP per Capita: 14,743 US dollars Life Expectancy at birth: 66 years Governance: Head of State, President Mr. Dmitry Medvedev, government headed by the Prime Minister, Federation consists of 83 Federal subjects 8

11 Introduction: Bologna and beyond The present volume is not a handbook of the Bologna Process, far from it. However, the themes brought up in this handbook are largely determined by the Bologna Process. Thus, knowing the main Bologna facts is important in order to better understand the developments introduced in this handbook. Throughout the handbook, the Bologna developments are examined mainly from the perspectives of two countries: Finland, which belonged to the first group of countries to sign the Bologna Declaration in 1999, and Russia, which signed the Declaration in First, however, the history of the Bologna Process is recapitulated to present the overall framework. Then, the organisation of the handbook contents is explained. Bologna Process The aim of the Bologna Process is to establish a European Higher Education Area (EHEA). To achieve this goal, ten action lines have been established. The Sorbonne Declaration of 1998 can be seen as the beginning of the Process. The ministers in charge of higher education in France, Germany, the United Kingdom and Italy signed the Sorbonne Joint Declaration on Harmonisation of the Architecture of the European Higher Education System on the 800th anniversary of the Sorbonne 9

12 University in Paris. Key words at the time were two main cycles, credits, life-long learning, student mobility and employability. Moreover, a European area for higher learning was discussed for the first time. Despite the divergent ideas on European developments expressed by the four large countries and the initial criticism of the fact that academia was not involved in the process, the Sorbonne Declaration started a profound reform in European higher education. The Bologna Declaration, from which the Process derives its name, was signed on 19 June 1999 by ministers responsible for higher education in 29 European countries. The countries included the then 15 EU Member States, Iceland, Norway, Switzerland, and 11 EU candidate members. In the Declaration, the need to increase the attractiveness of European higher education is formulated as follows: We must in particular look at the objective of increasing the international competitiveness of the European system of higher education. The vitality and efficiency of any civilisation can be measured by the appeal that its culture has for other countries. We need to ensure that the European higher education system acquires a world-wide degree of attraction equal to our extraordinary cultural and scientific traditions 1. To achieve this goal, six action lines were established in the Bologna Declaration: easily readable and comparable degrees, adoption of a system based essentially on two main degrees, a system of credits, mobility, European cooperation in quality assurance, and the necessary European dimensions in higher education. The action lines differ in nature and complexity, and they are often interrelated, so that an improvement in also one results in improvements in the other action lines. The Bologna Process is designed to become more than a sum of its parts. The Bologna Declaration stated that a follow-up meeting should be organised two years later. Since 1999, ministers have met every second year both to measure progress and to set priorities for action for the following two years. The meeting in 2001 was arranged in Prague, where the academic sector as well as students became closely involved in the Process. The number of signatory countries increased by four in the Prague ministerial meeting, then totalling 33 countries. New action lines introduced in Prague include lifelong learning, higher education institutions and students, and promoting the attractiveness of the European Higher 10 Introduction: Bologna and beyond

13 Education Area. Moreover, it was decided in 2001 that a Bologna Followup Group (BFUG) be established. The BFUG is responsible for the continuing development of the Bologna Process. Each signatory country and the European Commission have a representative in the group, which is chaired by the rotating EU Presidency. In addition, certain associations have observer status in the Bologna Follow-up Group. In the Berlin Communiqué in 2003, a new action line was introduced: promotion of closer links between the European Higher Education Area and the European Research Area (ERA). The ten Bologna action lines are listed in Table One. In Berlin, seven new signatory countries, including Russia, were included in the Bologna Process. The priorities set for the following two years were quality assurance, starting the implementation of the two-cycle system, recognition of degrees and periods of study, elaboration of a framework of qualifications for the EHEA, and the inclusion of the doctoral level as the third cycle. The Berlin Communiqué states that The quality of higher education has proven to be at the heart of the setting up of a European Higher Education Area. Ministers commit themselves to supporting further development of quality assurance at institutional, national and European level. They stress the need to develop mutually shared criteria and methodologies on quality assurance 2. Thus, the Berlin ministerial meeting proved pivotal in establishing the central role of quality assurance in the Bologna Process. In addition, the BFUG was charged in Berlin with the task of preparing detailed reports on the implementation of the intermediate priorities and organising a stocktaking process before the next ministerial meeting in Bergen in Stocktaking has been an important aspect of the Bologna Process since Berlin, enabling a fair evaluation of the progress made. Ten action lines to establish a European Higher Education Area 1. A system of easily readable and comparable degrees. 2. A system essentially based on two cycles. 3. A system of credits. 4. Promotion of mobility. 5. European cooperation in quality assurance. 6. Promotion of the European dimension in higher education. Introduction: Bologna and beyond 11

14 7. Focus on lifelong learning. 8. Inclusion of HEIs and students. 9. Promotion of the attractiveness of the EHEA. 10. Doctoral studies and the synenergy between the EHEA and the ERA. Table One. Bologna Process action lines. Yet another five countries joined the Process in the Bergen meeting in May No new action lines were established in Bergen, but the following priorities were set for the period: reinforcing the social dimension, implementing national frameworks of qualifications, joint degrees, and flexible learning paths. Moreover, the Standards and Guidelines for Quality Assurance in the European Higher Education Area were adopted in Bergen. At the ministerial meeting in London in May 2007, the key features were the focus on social and global dimensions, approval for a European register of quality assurance agencies, accession of Montenegro as the 46th participating country, and the challenges beyond The meeting emphasised consolidation of the existing structures and practices instead of new innovations, as the EHEA target date of 2010 was fast approaching. The latest ministerial meeting was held in the Benelux countries, in Leuven and Louvain-la-Neuve, in April The Leuven Communiqué defines the aims of the process until Although the Bologna Process has considerably accelerated higher education reforms and international cooperation, not all of the targets will be achieved by 2010 as originally planned. For example, constructing qualifications frameworks, developing practices regarding recognition of prior learning and improving the quality assurance of higher education are areas that require further advancement. The Leuven Communiqué emphasises the social aspect of higher education and the importance of mobility. The Bologna anniversary conference will be organised in March 2010 in Budapest and Vienna, and the next regular ministerial conference will take place in Bucharest in Ministerial meetings will also be held in 2015, 2018 and The timeline of the Bologna Process is presented in Figure One. 12 Introduction: Bologna and beyond

15 A common framework of qualifications A common two-cycle system Mobility of students and teachers Easily readable and comparable degrees A system of credits (ECTS) Mobility of researchers European cooperation in quality assurance European dimension in higher education Lifelong learning Social Dimension added Involvement of higher education institutions and students Promotion of the European Higher Education Area Quality assurance at institutional, national and European level Inclusion of doctoral level as third cycle Recognition of degrees and periods of studies (Diploma Supplement) European framework of qualifications Closer links between education and research Reinforcement of the social dimension Standards and guidelines for quality assurance National frameworks of qualifications Award and recognition of joint degrees Flexible learning paths in higher education Creation of a European Quality Assurance Register (EQAR) Strategy to improve the global dimension of the Bologna process Commitment to produce national action plans with effective monitoring of the social dimension Emphasis on social dimension: equitable access and completion Lifelong learning Employability Enhancing mobility 1998 Sorbonne Declaration 1999 Bologna Declaration 2001 Praque Communiqué 2003 Berlin Communiqué 2005 Bergen Communiqué 2007 London Communiqué 2009 Leuven Communiqué Figure One. Timeline of the Bologna Process 3. What is noteworthy about the Bologna Process is, first of all, that it is a voluntary process, based on intergovernmental cooperation rather than orders from a supranational body. Another important aspect of the Bologna Process is that it is a pan-european process which is not limited to the European Union. The inclusion of countries such as the Ukraine and Georgia shows that the process stretches far beyond EU boundaries. In addition to the 46 countries 4, there are nine participating organisations, such as the European Commission, the Council of Europe, the European University Association (EUA), the European Students Union (ESU), the European Association for Quality Assurance in Higher Education (ENQA) and the European Association of Institutions in Higher Education (EURASHE). The involvement of these organisations shows that although the Bologna Process began as a political development, representatives of higher education institutions and students have gradually become more involved. Introduction: Bologna and beyond 13

16 The purpose of the Bologna Process is not to harmonize European higher education, but rather to create a framework for different national systems, which can then develop along the same lines in a coordinated way. Thus, the aim is not identical education throughout Europe, but education that is easily comparable and compatible, yet takes into account the specific cultural and regional needs of each country. As the Process involves as many as 46 countries, it comes as no surprise that both the starting point and the progress made vary to a great extent. For example, in some countries the degree structure already followed the basic pattern of two cycles, and studies were measured on a system largely compatible with the European model adopted, while in others a one-tier degree structure was in use and student workload was not based on credits but on a predefined curriculum. Therefore, some countries had to make substantial changes to their degree structures while others only needed to slightly adjust their existing structures. Finland not only signed the Declaration as early as 1999, four years ahead of Russia, but also had a higher education system where the twotier system was in principle already in use. Moreover, the European credit system had been in use in student exchanges already since the 1980 s. As for Russia, the degree structure was to a large extent onetier, and credits were not used as measures of student workload. Thus, unsurprisingly, the road towards a European Higher Education Area has been more straightforward in Finland than in Russia. Handbook contents Like the aims of the Bologna Process, many of the topics covered in this handbook are intertwined. For example, qualifications frameworks are related to quality assurance and curriculum development, but they also facilitate mobility. Similarly, joint degrees should unquestionably be considered in relation to curriculum development, but their recognition is also an issue of importance. Thus, the placement of different topics can be justifiably questioned, although the aim was to organise the handbook in such a way that it would be as clear and easily readable as possible. To enhance the readability of the volume, illustrative figures have been added throughout the handbook. Moreover, in the beginning of each section, there is an information box which condenses the content of the chapter. 14 Introduction: Bologna and beyond

17 There are two main parts in the handbook: the first part introduces the international and national contexts of quality assurance of curriculum development in higher education, while the second part presents case studies of joint curriculum development between Finland and Russia. The handbook begins by introducing the higher education systems of the two countries. The purpose is not to endorse one education system over the other, but rather to point out that there are certain differences between Finland and Russia. The background information is arranged so that the first chapter is concerned with Finland, while Chapter Two has the Russian higher education system as its focus. Quality assurance of higher education is the topic of the third chapter, and curriculum development forms the content of Chapter Four. In Chapter Five, internationalisation of higher education is examined from different perspectives; academic mobility, recognition and jointly developed programmes are all included. Relevant sources are listed at the end of each chapter. For a more comprehensive list of web sources related to quality assurance, curriculum development or the internationalisation of higher education, the interested reader is advised to see This site contains more than 700 links that are tagged to enable easy searches. Some of the more common tags include Finland, Russia, Europe, quality_assurance, higher_education, and statistics, but there are also plenty of links to study experiences abroad, mostly in Russia. Although the main aim of this handbook is to promote student mobility between Finland and Russia, it is also intended to serve other purposes. For example, in the section on academic mobility, mobility is also examined from the teacher s and researcher s viewpoint, as these are closely related to the success of student mobility. The stand taken here is that mobility is such a complex phenomenon that several matters should be taken into account. Therefore, the handbook aims to draw a clear picture of the main developments in Europe aimed at promoting mobility, with a special emphasis on Finland and Russia. There are a few words of caution that should be kept in mind when reading the handbook. First of all, there is no escaping the fact that Russia is a huge country. Therefore, the description has to be on a very general level. The Russian Federation consists of more than 80 federal subjects, and throughout the volume, a reference to a regional authority Introduction: Bologna and beyond 15

18 in Russia refers to an authority at the level of the federal subject. What is meant by a local authority is an authority functioning in a more limited space; local can often be used synonymously with municipal. Second, the information presented in this handbook has been verified in June Regrettably, some of the information or the web sources may be outdated by the time of publication. In this handbook, the term higher education is taken to refer to all programmes at ISCED level 5A and 6 5. Therefore, both university and university of applied sciences education in Finland are discussed. The emphasis is on Finnish university education, but any significant exceptions in the university of applied sciences sector are mentioned. In Russia, higher education offered in universities, academies and institutes is included. The term higher educational institution (HEI) or simply institution is employed to refer to all types of educational institutes offering higher education. Occasionally, the word university may be used to refer to all types of HEIs. Defining the prospective reader for the handbook has proved to be challenging. The handbook is meant for both higher education students and staff, as well as others interested in the themes. Due to practical constraints, it was not possible to prepare the handbook in several different editions. However, it is hoped that the web sources provided will help in differentiating the reading experience. Those interested in particular themes can look for further information elsewhere, while others may choose to read only the information box and skip the rest of the chapter. Most likely, no reader will study the handbook from cover to cover, but will rather concentrate on the chapters that are most relevant for their personal situation. It is hoped that the handbook will encourage students from both sides of the border to choose the neighbouring country as their destination. If the handbook makes life a bit easier for those who have chosen to be mobile, it has fulfilled its mission. Endnotes 1 The Bologna Declaration of 19 June 1999: For more information on the Bologna Process, see 16 Introduction: Bologna and beyond

19 2 Communiqué of the Conference of Ministers responsible for Higher Education in Berlin on 19 September Adapted from Higher Education in Europe 2009: Developments in the Bologna Process pdf 4 For a full list of participating countries and organisations, see 5 For more information on the ISCED classification, see ev.php?id=3813_201&id2=do_topic. Introduction: Bologna and beyond 17

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23 1. Higher education in Finland In this chapter, the Finnish higher education system will be introduced. Although the main focus will be on higher education, a brief introduction will also be given of the education system more generally. The chapter is divided into two main sections, of which the first describes the structure of the education system, including the differences between universities and universities of applied sciences, the steering and management of higher education, and Finnish higher education degrees. The second part focuses on studying, dealing with matters such as admission, the study process, student financial aid, and educational benefits. Thus, the perspective in the first part is more general, while the second part examines the higher education system mostly from the students point of view Structure of the Finnish education system This section gives a fairly comprehensive view of education in Finland. First, the education system as a whole will be introduced. Second, the Finnish higher education sector will be presented, concentrating especially on the distinctions between universities and universities of applied sciences. The third section focuses on the steering and management of 21

24 higher education. Finnish higher education degrees, with an emphasis on university degrees, are discussed in section four Finnish education system Education in Finland - preschool education, basic education, upper secondary education and higher education - compulsory basic education 9 years - more than 90% continue studies after basic education - general upper secondary education usually 3 years in length, ends with matriculation examination - half of the population aged participate in adult education - As can be seen in Figure Two, the education system in Finland consists of preschool education, basic education, general and vocational upper secondary education, and higher education. All education from preschool to higher education is free of charge. Preschool education is organised in kindergartens and primary schools. Children go to preschool at the age of six and the education takes one year. Although preschool education is voluntary, the participation rate is nearly 100% 1. Compulsory basic education begins the year a child turns seven and lasts for nine years. There is also an optional tenth year, aimed mostly for those who wish to raise their grades because they have not found a study place. The municipalities have some authority in deciding the exact dates of the school year, but studies typically begin by mid-august and end in the beginning of June. After compulsory education, the great majority of the age group continue their studies either at vocational upper secondary education, or general upper secondary education. For example in 2007, 40.7% chose vocational education and 50.8% general upper secondary education. Only 2.0% continued studies in the tenth grade of comprehensive school, while the remaining 6.5% did not take up further studies in the same year 2. Vocational upper secondary education, which leads to a vocational qualification, has gained in popularity during the last decade. The aim is that after completing their vocational qualifications, students will possess the skills needed for working life. Studies take three years to 22 Higher education in Finland

25 DOCTORAL DEGREES Licentiate degrees MASTER S DEGREES (120 ECTS) BACHELOR S DEGREES Universities (180 ECTS) MATRICULATION EXAMINATION General upper secondary Additional basic education UNIVERSITY OF APPLIED SCIENCES MASTER S DEGREES (60 90 ECTS) work experience 3 years BASIC EDUCATION (comprehensive schools) 7 16 year olds UNIVERSITY OF APPLIED SCIENCES BACHELOR S DEGREES UASs ( ECTS) Work experience VOCATIONAL QUALIFICATIONS Vocational institutions and apprenticeship training Specialist vocational qualifications Further vocational qualifications Work experience Duration in years Pre-primary education, 6 year olds Figure Two. Finnish system of education. complete and they include around six months of work placement. Those who have completed general upper secondary education can complete the vocational education in a shorter period of time. Vocational qualifications may also be obtained in the form of apprenticeships which include on-the-job learning complemented by theoretical studies. The aim of general upper secondary education is to provide students with competence needed to continue on to higher education. The standard duration of studies is three years, but students are given some flexibility so that the education is 2-4 years in length. The studies end with a matriculation examination, the purpose of which is to determine whether the necessary knowledge and skills have been acquired and whether Higher education in Finland 23

26 students have achieved a sufficient level of maturity to continue their studies at higher education institutions 3. The examination is taken by more than half of the age group each year. For example, in 2008 around 32,500 students passed the matriculation examination. Although the great majority of students take the examination as part of their general upper secondary studies, those in vocational upper secondary education may also take the matriculation examination if certain criteria are met. The preparation and administration of the matriculation exams, as well as the final assessment of the exam papers is the responsibility of the Matriculation Examination Board, whose members are appointed by the Ministry of Education. The examination is held every spring and autumn at the same time in all general upper secondary schools in Finland. There is a fixed charge of 23 euros for taking part in the examination, and a charge of 27 euros per each exam 4. The candidates have six hours to complete each test. All the exams are written, except for a listening comprehension section in the foreign language tests. The tests are first checked by the school s own teachers and then sent for the Matriculation Examination Board for a recheck. To receive the Matriculation Examination Certificate, the student must pass at least four exams in a maximum of three consecutive examination periods. Only the test in the candidate s mother tongue is obligatory; the rest may be chosen from among the test in the second national language, foreign language tests (English, German, French, Russian, Spanish, Italian, Latin and Portuguese), the mathematics test, and tests in the general studies battery of tests (sciences and humanities). The candidates may also take optional tests. Most candidates take part in two examination periods and take at least one or two optional tests in addition to the four which are required for the Matriculation Examination Certificate. Following the principles of lifelong learning, adult education is an important aspect of the Finnish education system. Adult education encompasses all education that is designed especially for adults and it is offered at all levels of education from basic education to higher education. There are approximately 800 educational institutions in Finland offering adult education, some of which specialize in adult education 5. In 2006, half of the Finnish population aged 18 64, nearly 1.7 million people, took part in some form of adult education 6. There is a centre for continuing 24 Higher education in Finland

27 education in every university. Adult education is also provided in universities of applied sciences both in the form of degree studies and as continuing professional education. Adult education is often at least partially financed by municipalities or the state, but fees may also be collected. For example, Open University and Open University of Applied Sciences studies are liable to charges, but there are no tuition fees in education leading to a degree Universities and universities of applied sciences Universities and universities of applied sciences in Finland - 21 universities and 28 universities of applied sciences across the country - structural development under way - new Universities Act will increase autonomy - research, education and societal impact are the universities main functions - universities of applied sciences more geared towards the needs of working life - The Finnish higher education system is comprised of two parallel sectors: there are currently 21 universities and 28 universities of applied sciences in Finland, but there are plans to reduce the number of institutions in the coming years as part of the structural development of Finnish higher education. On 1 January 2010, three university mergers will take place, reducing the number of universities to 17. Universities of applied sciences were previously known as polytechnics, but the term university of applied sciences (UAS) is preferred in this publication as it is used by the institutions themselves. In some instances, for example when referring to laws, the term polytechnic is used as the official translation. The higher education network covers all parts of Finland. Of the 21 research universities, ten are multi-faculty institutions, three universities of technology, three schools of economics, four art universities and one, the National Defence University, offers higher education in the military field. All universities are state-run and they enjoy extensive autonomy. The Finnish universities are located in 11 different cities and they offer education altogether in 23 localities across the country. Most Higher education in Finland 25

28 of the universities of applied sciences are regional multidisciplinary institutions. About half of the 28 institutions are run by private organisations, while the rest are either run by local authorities or owned by joint municipal bodies. In addition to the actual universities and universities of applied sciences, there is the Finnish Virtual University 7 and the Finnish Online University of Applied Sciences 8, which are run by networks of higher education institutions. Structural development of the Finnish higher education system is currently under way. Higher education degrees and study programmes are being developed to better meet societal needs. As there are differences between the regions of Finland, the same organisational system is not necessarily optimal in each instance. Thus, different solutions are needed. The purpose is, however, the same in all regions: reducing overlapping education and forming efficient units which serve the educational needs of the area. Decisions have already been made on combining higher education institutions and reinforcing cooperation. The restructuring of higher education takes different forms: full mergers, consortiums, regulated relationships and voluntary cooperation have all either already taken place, or are being planned. The new higher education structure should be in place by The Ministry of Education offers economic incentives for carrying out the reforms 9. The Bologna Process is not the only development that has had a profound impact on the Finnish higher education system during recent decades. Other important changes have been the emergence of the universities of applied sciences and the gradual change towards what has been referred to as mass university. In the late 1980s, the Finnish education structure was not felt to satisfactorily respond to the needs of the labour market and the rapidly changing international environment. Thus, the Ministry of Education proposed the establishment of universities of applied sciences alongside the research universities to diversify the higher education system. The purpose was to channel the increase in higher education provision to universities of applied sciences instead of universities. Prior to the emergence of universities of applied sciences, vocational education in Finland was divided into separate fields with their own small units. Cooperation between different fields was rare, and the role and status of post-secondary vocational education was unclear. 26 Higher education in Finland

29 The UAS reform got underway in During the experimental period in the early 1990s, 22 temporary universities of applied sciences were set up. Permanent legislation on the UAS system was approved in 1995, and a strategy was defined for carrying out the reform. The reform was to take place by 2000 so that most post-secondary vocational education would take the form of UAS studies, and vocational education at the post-secondary or intermediate level would be closed down. The vocational training offered prior to 1991 was classified as level 5B in the International Standard Classification of Education (ISCED) system, whereas UAS studies like university studies are regarded as level 5A 10. Thus, the UAS reform changed both the organisation and the level of education offered. The first permanent universities of applied sciences began their work in 1996, and by August 2000 all universities of applied sciences functioned on a permanent licence. To obtain the licence, the universities of applied sciences had to demonstrate high quality and good performance. The Finnish Higher Education Evaluation Council was involved in assessing the applications for a permanent licence 11. As shown in Table Two, the number of students enrolled in higher education institutions has grown drastically in recent decades. In 1981, 85,877 students were enrolled in Finnish universities. The number of university students first exceeded 100,000 in 1988, and was at its highest in 2006, with as many as 176,555 students. The number of university Year Universities UASs , , , , , , , ,573 58, ,062 78, ,734 96, , , , , , , , , , , , , , , , , , ,500 Table Two. Number of students enrolled in Finnish HEIs 13. Higher education in Finland 27

30 students dropped in 2008 with a new record in the number of graduates: the number of university graduates increased by 71% from the previous year 12. This was due to the fact that the Bologna transitional period ended in Finland and many students who had been in working life for years wanted to complete their studies before the degree structure changed. The number of UAS students has grown from an initial 58,590 students in 1997 to 132,500 students in The number of higher education students is not expected to grow in the future. With three exceptions, higher education institutions in Finland belong to the Ministry of Education sector. The National Defence University is under the supervision of the Ministry of Defence, and thus different legislation applies to it. Similarly, there is separate legislation for the Police College of Finland, which comes under the Ministry of the Interior and for Åland University of Applied Sciences, which is subordinate to the autonomous government of the Province of Åland. The Police College is also exceptional because it offers both non-higher education diploma programmes and UAS-level Bachelor s degrees. Other institutions offer degrees only at ISCED level 5A or higher. The Finnish Parliament passes educational legislation and adopts education policy. The Universities Act and Universities Decree are the main legal documents concerning the universities, whereas the Polytechnics Act and the Government Decree on Polytechnics guide the universities of applied sciences. In June 2009, the Parliament passed a new Universities Act, which will come into effect on 1 January The new Universities Act means a radical change in the Finnish university system, and thus it will naturally affect higher education legislation more widely. However, at the time of writing it was uncertain exactly what changes will take place, and thus this section regrettably may contain information that is outdated by the time of publication. According to the Universities Act (2009), universities promote free research and scientific and artistic education. They provide higher education based on research, and interact with the surrounding society in carrying out their mission. Universities promote lifelong learning, as well as the societal impact of research findings and artistic activities. Universities must aim for a high international level of research, education and teaching in compliance with good scientific practice and ethical principles. 28 Higher education in Finland

31 There is a Decree on University Degrees (2004), which determines the responsibility for education, degree titles, the aims and content of degrees, and the structure and extent of degrees. Each university is allowed to offer higher education only in certain academic fields. The degrees are usually awarded by a faculty-level administrative body, depending on the administrative system of each university. Finnish university degrees enjoy the same legal status irrespective of the institution that has awarded them. Thus, for instance, when public posts require a university degree, all Finnish university degrees are accepted without regard to the degree-awarding institution. As stated in the Universities Act, research is one of the three main functions of universities together with education and societal impact. Finnish universities are responsible for a significant proportion of all research conducted in Finland. In 2007, the total expenditure on R&D of the gross national product was 3.47%. Of the total expenditure, approximately 72% was spent in the enterprise sector, 9% in the public sector and 19% in the higher education sector. The research conducted in the higher education sector amounted to a total of 1,165 million euros 14. An important funding body for the research carried out in the universities is the Academy of Finland 15, which provides funding for scientific research in all disciplines and serves as an expert in science and science policy. Through its activities, the Academy aims to strengthen the position of science and research in Finland. According to the Polytechnics Act (2003), the aim of UAS education is that students gain professional skills and a good competence in their field of study. Graduates with UAS degrees are qualified for professional expert positions. The education offered at universities of applied sciences is based on the requirements of working life, and the goal is that graduates are well prepared for professional expert assignments. Universities of applied sciences also carry out applied research and development work in their fields of speciality. Universities of applied sciences take into account the economic structure of their region in their activities, and supporting the world of work is an important aspect of their mission, as determined in the Polytechnics Act. Higher education in Finland 29

32 Steering and management Steering and management of Finnish higher education - results-based management and steering between HEIs and the Ministry of Education - state funding and external funding, no tuition fees in Finnish HEIs - university autonomy guaranteed by the Constitution - universities of applied sciences co-financed by the government and local authorities - universities of applied sciences either municipally or privately run - The highest education authority in Finland is the Ministry of Education, which implements the policy adopted by the Finnish Parliament and the Government. The Government adopts a Development Plan for Education and Research every four years 16. The plan defines the main principles of education and science policy for that and the following five calendar years. The Ministry of Education is responsible for drafting legislation on education and research, and it prepares the budget and other government decisions pertaining to them. Almost all publicly subsidised education in Finland is either subordinate to, or at least supervised by the Ministry of Education. The Academy of Finland also functions under the Ministry of Education. In addition to the legislation and the Development Plan, Finnish higher education institutions are governed by results-based management and steering between the institutions and the Ministry of Education. The Ministry and the HEIs agree on objectives of national relevance that are set for the universities and universities of applied sciences. The steering system highlights the role of evaluation and is thus a central component of the quality assurance of HEIs. An essential tool in the process is the national KOTA database 17, which is maintained by the Ministry of Education. The KOTA database offers information on universities and fields of education from 1981 onwards in Finnish, Swedish and English. Universities are required to submit their data to KOTA regarding, for example, the number of applicants and admitted students, foreign students, degrees, median graduate times, university premises and scientific publications. There is a similar system for the universities of applied sciences, the AMKOTA database. 30 Higher education in Finland

33 Previously, universities were part of the state administration, but with the new Universities Act, universities will become independent legal personalities. Most universities will become corporations subject to public law as of 1 January 2010, while two universities will turn into foundations subject to private law. This will further enlarge the autonomy of the universities. The steering of universities by state administration will decrease, and universities will take the place of the state as employers. Civil-service employment relationships will become contractual employment relationships, and universities will negotiate in collective bargaining. According to the new Universities Act, university internal regulations will play a more important role in the future. Each university can decide independently on matters that were previously defined in the legislation. Financing Finnish universities are primarily financed from the state budget. Universities have received three main types of funding from the government: core funding, project funding and performance-based funding. The core funding has covered a major part, approximately 87%, of the universities operational expenditure, while project funding has formed approximately 6.5% of the government funding for universities. A substantial part of university resource allocation has been performancebased, which means that universities have been awarded for the quality and effectiveness of their operations. The aim has been to give universities an incentive to further develop their operations. Funding has been allotted according to performance criteria appertaining to education and research policy objectives. Performance-based funding currently forms 23.5% of government funding for universities 18. As of 1 January 2010, universities will no longer receive project funding and the criteria for performance-based funding will change. Universities will have more latitude in the management of their finances. Finnish universities will be capitalised so that they can make best use of their income from capital and supplement their financing with donations and business activities. This will allow universities to develop stronger profiles on the basis of their strengths 19. Currently, external funding forms approximately one third of all funding, and around one half of all research funding in universities, although there are considerable differences between institutions and fields. The main providers of external Higher education in Finland 31