- 2022Approved/Agreed
- 2023Implementation
- 2024Implementation
Background
Efforts have been made in VET to increase the personalisation of education and opportunities for individual choices. Legislation on VET and national qualifications requirements already make it possible to combine learning acquired in different qualifications and forms or levels of education. However, education providers are not obliged to provide all qualification units that have been specified as optional. In addition, education providers find it laborious to offer their learners training that is provided by other education providers.
Cooperation with other education providers requires agreements, invoicing, coordination of different term systems and curricula, as well as continuous cooperation in study guidance and monitoring of training progress. Within a qualification, options are sometimes narrowed down, for example, by the fact that ensuring basic professional skills, for one or another reason, requires many competences that are defined as compulsory.
VET qualifications comprise several objectives. In addition to ensuring the necessary skills for working life, they must contribute to the development of the common skills required in all fields and the capacity to study further at tertiary level. The aim is that, by 2030, at least half of young adults will complete a higher education degree, and, more often than at present, those with a vocational qualification will also continue their studies at tertiary level. To achieve this objective, it is necessary to improve the opportunities of VET graduates to enrol in higher education, for example, by strengthening their general competences (basic skills, critical thinking and learning to learn), especially for those with initial vocational qualifications.
Boundaries between the different types, levels and fields of education must be reduced by combining VET with general upper secondary education throughout Finland. The aim is also to improve the opportunities for VET learners to complete the matriculation examination and the initial vocational qualification in parallel (parallel studies to complete two or more qualifications). Achieving this objective requires developing the funding system and increasing cooperation between education providers. Both general upper secondary education and VET also need to be developed in their own forms of education, which have their own functions.
Working life and individuals need skills beyond the levels and fields of education, as new skill needs arise at the intersection of different qualifications. It is important to be able to incorporate more qualification units into vocational qualifications, including units of other vocational qualifications or higher education studies. The possibility for VET learners to incorporate higher education studies into their vocational qualification increases the capacity for further studies and offers the opportunity to build flexible paths from VET to higher education. In addition, it strengthens the professional skills of the learner.
Employment or remaining in the labour market does not always require the completion of a full qualification, and even a small competence module may suffice. Vocational qualifications consist of extensive qualification units based on work packages. It is already possible to complete individual qualification units. However, it has been observed that the education system and qualification structure need competence modules that are smaller than the current qualification units. This will allow an individual gradually to accumulate competences according to their own needs and abilities.
Objectives
Developing upper secondary education content aims to:
- make it possible to combine studies in VET, general upper secondary education and higher education more flexibly and comprehensively;
- strengthen the capacity for further education, e.g., higher education in VET as well as in general upper secondary education;
- meet the changing skill needs of the labour market;
- increase the legal protection and equality of learners who acquire two qualifications (initial vocational qualification and matriculation examination) in parallel;
- provide a clearer legal framework for the existing form of training;
- improve the efficiency of the education system by reducing inappropriate overlapping or sequential training which is not needed in working life.
Description
The development comprises several actions.
The expansion of initial vocational qualifications above 180 competence points need to be enabled, given they include more general upper secondary education studies, higher education studies and/or vocational qualification units. The possibility of expansion is set to be limited by 30 competence points. The expansion of a qualification is to be recorded in the learner's personal competence development plan and funded, regardless of the type of studies (general upper secondary education or higher education) through which the initial vocational qualification is being extended. Provisions on combining the studies of an initial vocational qualification and general upper secondary education need to be clarified: for example, from the perspective of applying for education, right to study, recognition of prior learning and funding.
Further vocational qualifications and specialist vocational qualifications need to be developed in a broad working group in accordance with the Education policy report. This is so that further vocational qualifications and specialist vocational qualifications are developed as an appropriate package together with the development of upper secondary education and, particularly, initial vocational qualifications. In addition, the opportunities for an individual to complete competence modules smaller than a qualification unit and gradually accumulate competences...
The development comprises several actions.
The expansion of initial vocational qualifications above 180 competence points need to be enabled, given they include more general upper secondary education studies, higher education studies and/or vocational qualification units. The possibility of expansion is set to be limited by 30 competence points. The expansion of a qualification is to be recorded in the learner's personal competence development plan and funded, regardless of the type of studies (general upper secondary education or higher education) through which the initial vocational qualification is being extended. Provisions on combining the studies of an initial vocational qualification and general upper secondary education need to be clarified: for example, from the perspective of applying for education, right to study, recognition of prior learning and funding.
Further vocational qualifications and specialist vocational qualifications need to be developed in a broad working group in accordance with the Education policy report. This is so that further vocational qualifications and specialist vocational qualifications are developed as an appropriate package together with the development of upper secondary education and, particularly, initial vocational qualifications. In addition, the opportunities for an individual to complete competence modules smaller than a qualification unit and gradually accumulate competences according to personal resources and abilities, current life situation and need, are to be increased. Qualification contents will also be developed to strengthen skills related to the digital and green transition.
In 2022, the current state of play in VET was analysed to help develop operations in a challenging workforce situation and to prepare for demographic changes. The findings show that, in Finland, the age group of comprehensive education graduates is to fall sharply after 2030. This challenges the current organisational structure and ways of implementing education.
The analysis also showed the need to renew the funding system for vocational education to become less complicated and serve all customer groups in the best possible way.
In 2023, TUTKE4 (development of qualifications and competence assessment) group's work focused on implementing micro-credentials and strengthening the basic skills of students to ensure successful transitions to further studies or working life. In addition, the group worked to draw up recommendations on how to enhance the competences related to green transition and digital transformation in vocational qualifications.
The TUTKE4 working group ended its term in 2023 and the Finnish National Agency for Education (EDUFI) started implementing the group's recommendations to increase flexibility in VET qualifications. Recommendations for increasing flexibility in VET and proposals to strengthen competence related to the digital and green transition in VET qualifications were drawn up.
In 2023, Digital competence in vocational education - a guide to the articulation of competence was published by the Finnish National Agency for Education (EDUFI). The publication supported the development of the contents of VET from the point of view of promoting digitalisation in various industries. The guide is aimed at those working and studying in VET but also at those involved in the reform of the qualification requirements in VET.
Based on the TUTKE4 working group's final report, published in 2023, the Finnish National Agency for Education (EDUFI) continued implementing the working group's recommendations. To strengthen the competences required by digitalisation and the green transition, EDUFI started drawing up new qualification units in these topics. These units can be completed as parts of a qualification or as separate individual microcredentials. For reinforcing flexibility in further vocational qualifications and specialist vocational qualifications, EDUFI started the plans to make it possible to include into them vocational units from another VET qualification, higher education studies, or vocational units based on local competence needs. In October, the drafts of the new qualification units were published for comments.
Bodies responsible
- Ministry of Education and Culture
- Finnish National Agency for Education (EDUFI)
Target groups
Learners
- Learners in upper secondary, including apprentices
Entities providing VET
- Companies
- Small and medium-sized enterprises (SMEs)
- VET providers (all kinds)
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.
This thematic sub-category refers both to formal mechanisms of stakeholder engagement in VET governance and to informal cooperation among stakeholders, which motivate shared responsibility for quality VET. Formal engagement is usually based on legally established institutional procedures that clearly define the role and responsibilities for relevant stakeholders in designing, implementing and improving VET. It also refers to establishing and increasing the degree of autonomy of VET providers for agile and flexible VET provision.
In terms of informal cooperation, the sub-category covers targeted actions by different stakeholders to promote or implement VET. This cooperation often leads to creating sustainable partnerships and making commitments for targeted actions, in line with the national context and regulation, e.g. national alliances for apprenticeships, pacts for youth or partnerships between schools and employers. It can also include initiatives and projects run by the social partners or sectoral organisations or networks of voluntary experts and executives, retired or on sabbatical, to support their peers in the fields of VET and apprenticeships, as part of the EAfA.
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.
Green transition and environmental sustainability have a significant place in the EU agenda (Green Deal), including the agenda for VET. This thematic sub-category refers to identifying in cooperation with industry, incorporating into VET curricula and programmes and teaching the skills related and needed for the green transition, including sector- and occupation-specific skills and those across sectors. It covers measures aimed at ‘greening’ VET programmes, including awareness and knowledge about climate change, green technologies and innovation, energy efficiency, circular economy and environmental sustainability. It also includes the use of appropriate learning methods that develop such awareness.
This thematic sub-category refers to updating VET curricula and programmes to incorporate skills related and needed for the digital transition, including sector- and occupation-specific ones identified in cooperation with stakeholders.
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.
This thematic sub-category refers to initiatives that promote VET and lifelong learning implemented at any level and by any stakeholder. It also covers measures to ensure and broaden access to information about VET to various target groups, including targeted information and promotional campaigns (e.g. for parents, adult learners, vulnerable groups). Among others, it includes national skill competitions and fairs organised to attract learners to VET.
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.
This thematic sub-category refers to providing the possibility for individuals who are already in the labour market/in employment to reskill and/or acquire higher levels of skills, and to ensuring targeted information resources on the benefits of CVET and lifelong learning. It also covers the availability of CVET programmes adaptable to labour market, sectoral or individual up- and reskilling needs. The sub-category includes working with respective stakeholders to develop digital learning solutions supporting access to CVET opportunities and awarding CVET credentials and certificates.
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.
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.
European priorities in VET
VET Recommendation
- VET agile in adapting to labour market challenges
- Flexibility and progression opportunities at the core of VET
- VET promoting equality of opportunities
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). Developing upper secondary education content: Finland. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].
https://www.cedefop.europa.eu/en/tools/timeline-vet-policies-europe/search/43183