Overall evaluation of the qualification system of vocational education and training

The overall evaluation of the qualification system of vocational education and training (2022–2023) produced information about the functionality of the qualification system from the perspectives of both individual and working life needs. The evaluation involved an examination of the entire qualification system and its actors, and aimed at answering questions such as whether the qualification structure was developed flexibly according to the needs and whether the process for preparing and updating the qualification requirements was appropriate.

The evaluation data were obtained by interviewing representatives of the Ministry of Education and Culture and the Finnish National Agency for Education, the chairs of Working Life Committees, and persons involved in qualification system development projects (TUTKE). A survey was conducted to obtain information from VET providers. The evaluation also tapped register data relevant to the qualification system.

A summary of the key findings and development recommendations is also available in English in the accompanying evaluation report.

The key findings and development recommendations are also presented below.

Key findings and conclusions

In identifying change needs in the qualification system different practices and mechanisms have been created in recent years. Quantitative and qualitative anticipation of competence needs has been developed. Data reserves have also improved, and a large volume of data is produced. However, the evaluation found that the processes of converting data into information that supports the development and modification of the qualification system are not systematic in all respects. In addition, the usability of nationally produced anticipation data in the reform of qualifications and qualification requirements should be improved. A suitable model for the exchange of information and interaction between the Working Life Committees and the National Forum for Skills Anticipation should be developed. The flow of information from the regional and local levels to the system level should also be improved.

In stakeholder engagement in the development of the qualification system progress has been made in recent years. Online events make participation possible for an increasing number of actors. Consultations and opportunities for giving feedback are also important forms of participation. According to the evaluation, representatives of VET providers and institutions participate in the development of the qualification system more actively and in greater numbers than representatives of working life. There is also variation between sectors in how well representatives of working life, institutions and teachers are engaged in development work. Central labour market organisations and trade unions participate actively, whereas, for example, employees’ representatives and entrepreneurs participate less. It would be important to involve them more closely so that competence needs are transmitted sufficiently from workplaces to the system level.

In student participation in the development of qualification requirements students have so far not been involved in the development of qualification requirements, but student engagement has been piloted in a few qualifications and the experiences have been positive. According to the evaluation, student engagement should be extended to other qualifications and established as a permanent part of development work, as students are a key user group of qualification requirements. It is also recommended that qualification holders be involved in the development work.

From the perspective of the division of labour, responsibilities and management related to qualification system development the evaluation findings indicate that the division of labour between the Ministry of Education and Culture and the Finnish National Agency for Education is clear. Cooperation between the Working Life Committees and the Finnish National Agency for Education is also smooth. However, the role of the Working Life Committees in participating in the development of the qualification structure of vocational education and training as well as vocational qualifications and their requirements should be clarified, and the Working Life Committees should be given more feedback on the significance and impacts of their initiatives and reports. Interaction between the Working Life Committees and coordination of their work should also be strengthened in order to ensure more uniform operating practices between the committees.

To support the comprehensive development of the qualification system a vision and strategy, or a similar long-term development plan, should be drawn up. This would make it possible to prioritise and phase development more effectively and to monitor its implementation and impacts. In developing the qualification system, better account should also be taken of links to other levels of education and branches of administration.

In the quality assurance and development of qualification requirements quality assurance relating to the reform, development and implementation of qualification requirements has been developed in recent years by the Finnish National Agency for Education. Common quality characteristics have also been defined for the qualification requirements. According to the evaluation, education providers are satisfied with their opportunities to participate in the development of qualification requirements. Education providers are also well informed about revised requirements.

The most important development needs in qualification requirements are related to the overall development of different qualification types, the identification of overlapping competences between different qualifications, and increasing development one qualification unit at a time. In the content-related development of qualification requirements, attention should be paid to the scopes of the units, the description of knowledge and skills needed in different tasks in the workplace, the clarity of the language used in the requirements, and variation in the quality characteristics of the requirements between qualifications. Support for the implementation of the requirements and feedback practices relating to revised requirements should also be developed.

The content and structure of the qualification system currently meet working life competence needs fairly well. A structure based on qualification units improves the accessibility of education and training in working life. The three-tiered qualification structure is considered appropriate. However, more flexibility is needed. There should be more possibilities to combine qualification units across qualification boundaries, more optionality, and more development of modules shorter than a full qualification in order to respond to new competence needs. According to the evaluation findings, many education providers have already developed modules shorter than a qualification. Information about and experiences of such modules should also be shared with other education providers. Increasing the offer and completion of qualification units and modules shorter than a qualification also requires the development of funding incentives.

As regards local qualification units education providers can, in addition to the existing qualification units in the qualification system, create units based on local vocational skills requirements, and such units are currently offered widely. However, the visibility of local qualification units should be improved by publishing them on the eRequirements web service. The principles for drawing up local qualification units should also be discussed jointly by the Finnish National Agency for Education and education providers. All providers should issue guidance for the fields and qualifications they offer on the preparation of local qualification units.

The following development recommendations were issued as a result of the evaluation:

1. Information production related to identifying the development and change needs of the qualification system and the usability of anticipation information should be developed.
2. In efforts to develop the qualification system, the engagement of employers and students as well as links to other levels of education and branches of administration should be strengthened.
3. The role of the Working Life Committees in participating in the development of the qualification structure of vocational education and training, as well as vocational qualifications and their requirements should be clarified, and activities should be harmonized across the committees. Furthermore, the Committees should be given feedback on fulfilling their tasks and their impacts.
4. A vision and strategy, or other similar long-term plan, should be drawn up for qualification system development to support the prioritisation, phasing and impact of development measures.
5. When developing qualifications and their requirements, different qualification types should be developed as a whole, knowledge and skills that different qualifications have in common should be identified better, and qualifications should more frequently be developed one unit at a time.
6. In efforts to develop the contents of qualification requirements, the scopes of qualification units should be harmonised, descriptions of the knowledge and skills required in different tasks in the workplace should be developed, the language used in qualification requirements should be clarified, and variation between the quality characteristics of the qualification requirements should be reduced.
7. The implementation of the requirements should be supported, and the feedback practices for revised requirements should also be developed.
8. The offer and completion of units and modules shorter than a qualification consisting of units should be promoted.
9. The visibility of local units should be improved, and more detailed instructions for putting them together should be provided.