Timeline
  • 2019Implementation
  • 2020Implementation
  • 2021Implementation
  • 2022Implementation
  • 2023Completed
ID number
36324

Background

A brief overview of the context and rationale of the policy development, explaining why it is implemented or why it is important.

The implementation of the reform needs to be reinforced to support its original objective - to increase the quality of VET.

Objectives

Goals and objectives of the policy development.

The Government Programme 2019-23 states: 'We will reinforce the implementation of the reform of vocational education and training, particularly supporting the provision of […] workplace learning and the development of apprenticeships. Together with the education providers, the Ministry [of Education and Culture] must draw up a model to implement full school days, which may also be delivered by making use of workplace learning and by promoting innovative local solutions. We will increase the number of teachers. In particular, we will take into account the appropriate level of resources for contact teaching and guidance in relation to the changed requirements.'

The objective is also to compensate for the financial cuts made in recent years and to employ more teachers.

Description

What/How/Who/For whom/When of the policy development in detail, explaining its activities and annual progress, main actors and target groups.

A new Act on VET was adopted in June 2017 and entered into force in January 2018. The focus of the implementation of this latest reform is on the following elements:

  1. a single Act on VET, i.e. VET for young people and adults within the same framework;
  2. a single licence to provide education and to award qualifications;
  3. flexible application and admission systems;
  4. a clearer range of qualifications that better meets the needs of working life;
  5. a single competence-based approach to completing qualifications;
  6. competence-based and individual study paths for all;
  7. more versatile learning environments and more study at workplaces based on training agreements and apprenticeship training;
  8. labour policy education to become part of the VET system and targeted at the unemployed or those at risk of unemployment;
  9. one coherent funding system for vocational upper secondary education and training, vocational further education and training, apprenticeship training and labour policy education leading to qualifications that encourage effectiveness of outcomes.

At the end of 2019, the Ministry of Education and Culture granted an additional EUR 20 million for employing VET teachers. Together with the Finnish National Agency for Education, VET providers and representatives of working life, the ministry also decided to collect additional feedback from the world of work (from workplace instructors and employers) to support VET providers' quality assurance...

A new Act on VET was adopted in June 2017 and entered into force in January 2018. The focus of the implementation of this latest reform is on the following elements:

  1. a single Act on VET, i.e. VET for young people and adults within the same framework;
  2. a single licence to provide education and to award qualifications;
  3. flexible application and admission systems;
  4. a clearer range of qualifications that better meets the needs of working life;
  5. a single competence-based approach to completing qualifications;
  6. competence-based and individual study paths for all;
  7. more versatile learning environments and more study at workplaces based on training agreements and apprenticeship training;
  8. labour policy education to become part of the VET system and targeted at the unemployed or those at risk of unemployment;
  9. one coherent funding system for vocational upper secondary education and training, vocational further education and training, apprenticeship training and labour policy education leading to qualifications that encourage effectiveness of outcomes.

At the end of 2019, the Ministry of Education and Culture granted an additional EUR 20 million for employing VET teachers. Together with the Finnish National Agency for Education, VET providers and representatives of working life, the ministry also decided to collect additional feedback from the world of work (from workplace instructors and employers) to support VET providers' quality assurance and financing.

2019
Implementation

The ministry postponed the feedback collection to be used for quality assurance and financing until July 2021.

2020
Implementation

The draft questionnaires were prepared by the education ministry, EDUFI, VET providers and representatives of the world of work and were sent to VET providers for comments in June 2020 - one for workplace instructors and one for employers. The themes of the questions included customer-oriented approaches, the agreement process (the questionnaire to employers also included a question on how 'satisfied [they are] with the way the institution takes care of the practical matters related to drawing up apprenticeship agreements and training agreements'), guidance and support, effectiveness and quality.

The Ministry of Education and Culture appointed, until the end of 2020, an expert group to further develop apprenticeship training. In its final report, the group emphasised the significance of information and guidance and counselling for increasing the popularity of apprenticeship. According to the report, the transition from training agreement to apprenticeship training should be flexibly utilised and a transition to apprenticeship training in particular, should be favoured at the final stage of studies. The recommendations of the group are to help policy makers but in 2020, no concrete measures were implemented. The follow-up to the proposals is to be made through existing data collection systems, such as feedback from students and employers.

Note: The Act on VET has been temporarily amended with regard to the demonstration of skills and competence. If, for reasons attributable to the coronavirus epidemic, a demonstration of the professional skills and competence required to pass a qualification module cannot be conducted in authentic work situations and processes, a student may demonstrate his or her professional skills and competence by performing other practical tasks that are as similar to authentic work situations and processes as possible. In addition, the demonstration of skills and competence can be supplemented with other types of competence assessment more flexibly than at present. The temporary law change was valid from 1 July 2020 to 31 July 2021.

2021
Implementation

Learner path to working life and the competences that meet the needs of businesses play a key role in ensuring the long-term sustainability of central government finances. The VET reform brought about a major change in the operating culture, while financing was weakened. The job profile of vocational teachers was changed radically by the reform. The day-to-day tasks of teaching decreased and teachers instead focused on training individual students in various challenges, keeping in touch with learning places in working life and performing student administrative tasks. The National Audit Office of Finland recommended using the Income Register as a source of information when monitoring the effectiveness of VET (by verifying the employment of VET graduates).

2022
Implementation

In 2022, the national feedback system was completed. The collection of feedback from workplaces was supplemented with a survey for employers. This survey was used to monitor the satisfaction of employers with the activity of a particular vocational institution to organise education in cooperation with the working life.

In 2022, it was five years since the reform of vocational education started and evaluation of its implementation was published. The Finnish Education Evaluation Centre (FINEEC) carried out two evaluations.

The first one produced information on the functionality of the practices related to personalisation, guidance, as well as identification and recognition of prior learning, and on the implementation of opportunities for choice for students. The second evaluation focused on processes and practices related to cooperation with workplaces. It provided information about the implementation of workplace education and training, the ways in which it has been implemented and its functionality and effectiveness. This evaluation also produced information on the structures and forms of cooperation between VET providers and employers, their effectiveness and related development needs.

FINEEC also started an overall evaluation of the qualifications structure of VET (to be completed in 2023).

2023
Completed

The follow-up of the VET reform was conducted in 2023 by the National Audit Office of Finland. Based on the audit, the reform's objectives were achieved.

The Finnish Education Evaluation Centre (FINEEC) conducted an evaluation of the development processes and effectiveness of the VET qualification system (The qualification system and changing competence needs). The evaluation examined how effective the processes for developing the qualification system are in responding to the vocational skills needs of working life and society. In addition, the evaluation reviewed the functionality of the current qualification system in terms of developing the skills of those already in the workforce.

The main finding of the report was that while the qualification system for vocational education in Finland largely meets the needs of working life, there is a need for more flexibility. This includes offering more modular education opportunities, enabling the combination of different qualification parts, and increasing stakeholder involvement, particularly from employers and students. The report also highlighted that better use of predictive data and clearer communication between various actors is required to improve the system's responsiveness to rapidly changing skill demands in the workforce.

Bodies responsible

This section lists main bodies that are responsible for the implementation of the policy development or for its specific parts or activities, as indicated in the regulatory acts. The responsibilities are usually explained in its description.
  • Ministry of Education and Culture
  • Finnish National Agency for Education (EDUFI)
  • Finnish Education Evaluation Centre (FINEEC)
  • National Audit Office of Finland

Target groups

Those who are positively and directly affected by the measures of the policy development; those on the list are specifically defined in the EU VET policy documents. A policy development can be addressed to one or several target groups.

Learners

  • Learners in upper secondary, including apprentices
  • Young people (15-29 years old)
  • Young people not in employment, education or training (NEETs)
  • Learners with migrant background, including refugees
  • Learners at risk of early leaving or/and early leavers
  • Learners with disabilities
  • Low-skilled/qualified persons
  • Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)

Education professionals

  • Teachers
  • Trainers
  • School leaders
  • Adult educators
  • Guidance practitioners

Entities providing VET

  • VET providers (all kinds)

Thematic categories

Thematic categories capture main aspects of the decision-making and operation of national VET and LLL systems. These broad areas represent key elements that all VET and LLL systems have to different extents and in different combinations, and which come into focus depending on the EU and national priorities. Thematic categories are further divided into thematic sub-categories. Based on their description, policy developments can be assigned to one or several thematic categories.

Governance of VET and lifelong learning

This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.

This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.

The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.

Coordinating VET and other policies

This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.

Optimising VET funding

This thematic sub-category refers to the ways VET is funded at the system level. Policies include optimisation of VET provider funding that allows them to adapt their offer to changing skill needs, green and digital transitions, the social agenda and economic cycles, e.g. increasing the funding for VET or for specific programmes. They can also concern changing the mechanism of how the funding is allocated to VET schools (per capita vs based on achievement or other criteria). Using EU funds and financial instruments for development of VET and skills also falls into this sub-category.

Further developing national quality assurance systems

This thematic sub-category refers to further development of national quality assurance (QA) systems for IVET and CVET, for all learning environments (school-based provision and work-based learning, including apprenticeships) and all learning types (digital, face-to-face or blended), delivered by both public and private providers. These systems are underpinned by the EQAVET quality criteria and by indicative descriptors applied both at system and provider levels, as defined in Annex II of the VET Recommendation. The sub-category concerns creating and improving external and self-evaluation of VET providers, and establishing criteria of QA, accreditation of providers and programmes. It also covers the activities of Quality assurance national reference points for VET on implementing and further developing the EQAVET framework, including the implementation of peer reviews at VET system level.

Modernising VET offer and delivery

This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.

The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.

This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.

Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.

Using learning-outcome-based approaches and modularisation

The learning-outcomes-based approaches focus on what a learner is expected to know, to be able to do and understand at the end of a learning process (Cedefop, 2016). Learning outcomes can be defined at the system level as in national qualification frameworks (NQFs), most of which are currently based on learning outcomes. Learning outcomes can be defined in qualification standards, curricula, learning programmes and assessment, although the last one is still uncommon. This thematic sub-category refers to the use of learning outcomes in these contexts and to development and use of modules or units of learning outcomes in VET curricula and programmes.

Reinforcing work-based learning, including apprenticeships

This thematic sub-category covers all developments related to work-based learning (WBL) elements in VET programmes and apprenticeships which continue to be important in the policy agenda. It includes measures to stabilise the offer of apprenticeships, the implementation of the European framework for quality and effective apprenticeships, and using the EU on-demand support services and policy learning initiatives among the Member States. It also covers further expansion of apprenticeships and WBL to continuing VET (CVET), for transition to work and inclusion of vulnerable groups, and for improving citizens’ qualification levels.

Teachers, trainers and school leaders competences

Competent and motivated VET teachers in schools and trainers in companies are crucial to VET becoming innovative and relevant, agile, resilient, flexible, inclusive and lifelong.

This thematic category comprises policies and practices of initial training and continuing professional development approaches in a systemic and systematic manner. It also looks at measures aiming to update (entry) requirements and make teaching and training careers attractive and bring more young and talented individuals and business professionals into teaching and training. Supporting VET educators by equipping them with adequate competences, skills and tools for the green transition and digital teaching and learning are addressed in separate thematic sub-categories.

The measures in this category target teachers and school leaders, company trainers and mentors, adult educators and guidance practitioners.

Attractiveness of the teaching and training profession/career

This thematic sub-category refers to measures aimed at engaging more professionals into teaching and training careers, including career schemes or incentives. It includes measures enabling teaching and training of staff, managing VET provider and trainer teams in companies to act as multipliers and mediators, and supporting their peers and/or local communities.

Supporting lifelong learning culture and increasing participation

Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.

This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.

This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.

Permeability between IVET and CVET and general and vocational pathways, academic and professional higher education

This thematic sub-category refers to ensuring smooth transitions (permeability) of learners within the entire education and training system, horizontally and vertically. It includes measures and policies allowing learners easily or by meeting certain conditions to move from general education programmes to VET and vice versa; to increase qualification levels in their vocation through the possibility of attending vocational programmes at higher levels, including professional degrees in higher education. It also covers opening up learning progression by introducing flexible pathways that are based on the validation and recognition of the outcomes of non-formal and informal learning.

Lifelong guidance

This thematic sub-category refers to providing high-quality lifelong learning and career guidance services, including making full use of Europass and other digital services and resources.

Subsystem

Part of the vocational education and training and lifelong learning systems the policy development applies to.
IVET
CVET

Country

Type of development

Policy developments are divided into three types: strategy/action plan; regulation/legislation; and practical measure/initiative.
Practical measure/Initiative
Cite as

Cedefop, & ReferNet. (2025). Reinforcing the 2018 VET reform: Finland. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].

https://www.cedefop.europa.eu/de/tools/timeline-vet-policies-europe/search/36324