Finland country case study; Country case study prepared for the 2017/8 Global education monitoring report, Accountability in education: meeting our commitments; 2017

 
Introduction and country profile 
 
Brief history 
Although independent from 1917, central government has existed in Finland since the country became an 
autonomous Grand Duchy under the Russian Empire in 1809. For example, the history of the Ministry of 
Education and Culture, one of the oldest ministries in Finland, can be traced to the Ecclesiastical Department of 
the Grand Duchy of Finland, which was founded in 1809 (MoEC, 2016a). Finland was one of the first countries in 
the world to introduce universal suffrage in 1906. Finland gained its independence on 6 December 1917 and has 
been a parliamentary democracy since. 
Compulsory education was enacted to Finnish legislation in 1921 and the basic education system could be 
described as a traditional, German-type two-track system (Välijärvi, 2013) until the post-WWII era saw a 
fundamental educational reform. Groundwork for comprehensive basic schooling for all Finnish students was 
laid by education committees in the 1950s and 1960s, and the vision was finally realized in 1970 (Sahlberg, 2014). 
The comprehensive school, born in the 1970s to raise the level of education of the population, is based on the 
idea of equal educational access and opportunities for all, regardless of their background (Tuovinen, 2008). The 
legislation for the comprehensive school came into effect in 1963, and comprehensive schools replaced the old 

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school system throughout the country between 1972 and 1979, starting first in the sparsely populated North and 
moving gradually South (Schwartz and Mehta, 2011, p. 55). 
In the early 1990s ‘much of public sector administration went through a thorough decentralisation,’ (Sahlberg, 
2010, p. 55) including the educational system. Nowadays the Finnish education system relies heavily on 
professional responsibilities within schools and the professional capacity of teachers, rather than external 
accountability methods. ‘Therefore, sample-based testing, thematic assessments, reflective self-evaluations and 
putting learning first have established culture of mutual responsibilities and trust’ (Sahlberg, 2010, p. 55). 
Structure and responsibilities of the education system 
The governance of the Finnish education system is based on the principle of decentralisation. The Parliament 
and the government– both elected through democratic elections – are the policy-making bodies in education. 
The government (Council of the State, consisting of the Prime Minister and other ministers) publishes its 
educational policies as part of its action plan for the implementation of the Government Programme, submitted 
to the Parliament. 
The Ministry of Education and Culture (MoEC, Opetus- ja kulttuuriministeriö) prepares educational legislation 
and is accountable to the Government for its share of the state budget. All publicly funded education in Finland 
falls under the steering of the MoEC. Education providers in Finland – for the most part, the local authorities 
(municipalities) – are held accountable on one hand by the Ministry of Finance, which monitors their use of 
finances and activities in general, and on the other by citizens for the provision of basic services. 
Current education challenges identified in Finland mostly rise from the impact of the prolonged economic 
recession and the resulting cuts in public financing of education. While Finland has been very successful in 
international comparisons of pupils’ learning outcomes, the differences between the learning outcomes of boys 
and girls are still worrying to some Finnish experts and authorities. Based on PISA results since 2000, Finnish girls 
are outperforming the boys for example in reading (Välijärvi, 2014). The difference in their results is greater than 
in any other OECD country. Other current challenges include growing social exclusion of young people who do 
not continue into further studies after completing comprehensive school and do not find employment either 
(Aamulehti, 2016; National Institute for Health and Welfare, 2016). 
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Actors and accountability 
Chapter 2, §16 of the Constitution of Finland (731/1999) states the following on the educational rights: 
Everyone has the right to basic education free of charge. Provisions on the duty to receive 
education are laid down by an Act. 
The public authorities shall, as provided in more detail by an Act, guarantee for everyone equal 
opportunity to receive other educational services in accordance with their ability and special needs, 
as well as the opportunity to develop themselves without being prevented by economic hardship.  
The freedom of science, the arts and higher education is guaranteed. 
Mäkelä (2013, p. 24) illustrates the rights and responsibilities stated in the Finnish constitution, which define the 
right to basic education: