Finnish Education Evaluation Centre (FINEEC)

1. Overview

Abstract

This chapter provides an overview of Finland’s education system and the role of the Finnish Education Evaluation Centre (FINEEC) within it. It details FINEEC’s evaluation activities, which include assessing learning outcomes, conducting thematic and system evaluations, performing quality management assessments and carrying out audits. The chapter also outlines FINEEC’s objectives, stakeholders and contributions to educational improvement and policy development. Additionally, it addresses various ongoing and emerging challenges that prompted the decision to evaluate FINEEC.

Introduction

Finland has long been recognised globally for its strong education system, emphasising student-centric learning, individual growth, equality and quality teaching. Finland’s approach, which makes limited use of standardised testing and is characterised by a significant degree of teacher autonomy, has fostered an environment where students can excel both academically and personally. The equality and accessibility of the Finnish education system have supported strong academic achievement at the national level in the past two decades, as evidenced by its high ranking in the OECD’s Programme for International Student Assessment (PISA). As a result, Finland has received significant global recognition for its strong education system and achievements. However, while Finland’s PISA performance has been very strong in international comparison, it has declined steadily over the past two decades, raising concerns and questions about the factors contributing to this negative trend.

In 2014, Finland established the Finnish Education Evaluation Centre (FINEEC) to oversee the evaluation of all aspects of the country’s education system, with a goal of continuous improvement. FINEEC’s tasks range from evaluating early childhood education to adult learning.

Since its inception, the Finnish Education Evaluation Centre (FINEEC) has played an important role within the Finnish education sector. In addition to conducting evaluations, FINEEC generates both information and recommendations for the local, regional and national levels to support decision making and development activities as well as international comparisons. It is widely recognised as an impartial, credible and relevant institution, both nationally and internationally, with its outputs serving as invaluable tools for educational institutions. For instance, FINEEC is an active member of the European Association for Quality Assurance in Higher Education (ENQA) and the recent ENQA assessment of FINEEC found it to be a well‑respected and mature agency, highlighting its strong enhancement-oriented mission and effective stakeholder engagement within the Finnish higher education system (ENQA Agency, 2022[1]).

The OECD Centre for Skills has evaluated FINEEC with the aim to identify areas for improvement in order to enhance its capacity to respond to Finland’s emerging educational challenges and to strengthen its role in promoting the development of the Finnish education system. The focus of this project is to identify areas for improvement; therefore, this report does not describe in detail areas where FINEEC excels.

This study utilises the OECD’s Development Assistance Committee (DAC) Evaluation Criteria (OECD, 2021[2]). Using methodologies such as self-assessment, Theory of Change, stakeholder interviews, workshops and document analysis, the OECD provides a thorough and independent assessment of FINEEC. However, it is important to note that this evaluation does not intend to exhaustively examine all facets and areas of FINEEC’s operations. Instead, it aims to provide an in-depth understanding of FINEEC’s work, its strengths, and, particularly, its areas for improvement with respect to the scope, quality and usefulness of FINEEC’s activities.

Educational context in Finland

During the past decades, Finnish students have achieved remarkable learning outcomes, showcasing their competence in critical thinking, problem solving, and overall academic performance. By making minimal use of standardised tests, emphasising quality teaching and strongly emphasising teacher autonomy, Finland has cultivated an educational system that empowers students to flourish academically. These factors, combined with a focus on equal access to education for all students, have solidified Finland’s position in educational excellence on the global stage. Finland’s education system has consistently performed above average in international comparisons, notably in the OECD’s PISA test.

However, since 2006, Finland has been witnessing a gradual absolute decline in learning outcomes and performance in PISA, causing concerns about the future of its education system (OECD, 2022[3]) (see Figure 1.1). This underscores the necessity for collecting evidence on the activities and performance of the Finnish education system through evaluations and, in turn, for examining the role and output of FINEEC. The decline in Finland’s PISA scores has outpaced international trends, prompting an interest in better understanding its causes. The Ministry of Education and Culture (OKM) has identified potential causes, including reductions in educational funding and growing socio-economic disparities in the aftermath of the recession of the 1990s (Kalenius, 2023[4]). Other contributing factors have been identified, including a declining number of schools in certain regions, reduced funding for basic education and an increasing number of children from financially challenged backgrounds lacking adequate home learning support. Understanding these factors and their implications for the education system is crucial for policy makers and stakeholders to devise effective strategies to maintain Finland’s position as a global leader in education.

Figure 1.1. Trends in performance of 15-year-olds in reading, mathematics and science, Finland

Note: White dots indicate mean-performance estimates that are not statistically significantly above/below PISA 2022 estimates. Black lines indicate the best-fitting trend. An interactive version of this figure is available at https://oecdch.art/a40de1dbaf/C096. Also see www.oecd.org/publication/pisa-2022-results/country-notes/finland-6991e849/f.

Source: OECD (2022[3]), PISA 2022 Database, Tables I.B1.5.4, I.B1.5.5 and I.B1.5.6, www.oecd.org/pisa/data/2022database/.

Structure of the Finnish education system

Finland’s education system consists of several levels, beginning with early childhood education and care (ECEC), which is provided for children before compulsory education begins. Pre-primary education is provided by local authorities for children in the year preceding the start of compulsory education. Primary and lower secondary education, delivered by comprehensive schools, is followed by upper secondary education, offered in the form of either general upper secondary education or vocational education and training (VET). Higher education is provided by universities and universities of applied sciences (Kalenius, 2023[4]). See OECD (2024[5]) for a visualisation of the Finnish education system. Adult education is also available and offers a wide range of alternatives from primary to higher education.

Compulsory education starts in the year children turn seven. After completing nine years of primary and lower education, individuals can choose between general upper secondary education, vocational upper secondary education and training, or a double degree that consists of vocational qualification and a matriculation examination. General upper secondary education leads to a matriculation examination diploma, while vocational education leads to a vocational qualification.

In Finland, the education system offers a high degree of flexibility, allowing individuals to switch paths and pursue further studies at any level. Furthermore, the Finnish education system ensures equal access to educational opportunities for everyone, regardless of background or circumstances. Notably, in Finland, education is entirely free, starting from preschool and extending to higher education, and teachers are held in high regard (OECD, 2020[6]). At the same time, education providers enjoy a high degree of autonomy compared to their peers internationally.

With respect to the governance of the Finnish education system, the Ministry of Education and Culture (OKM) is responsible for drafting education-related legislation and implementing the government programme. EDUFI is the national development agency responsible for developing the core curricula and qualification requirements for ECEC, pre-primary, basic, general and vocational upper secondary education, as well as for adult education and training. For their part, local municipalities manage certain practical aspects of education, such as creating the municipal curriculum, which steers instruction and schoolwork in more detail, taking local needs and perspectives into consideration.

The Finnish education system stands out for its decentralised approach and lack of strong top-down quality control mechanisms.

The evaluation system is mainly based on national sample tests (especially in primary and lower secondary education), as well as the measurement and promotion of quality management (especially in higher education and VET). Education institutions are legally obligated to assess the quality and impact of the education they deliver and engage in external reviews of their operations. This responsibility is outlined in the specific laws governing each level of education, from ECEC to tertiary education. The methods for conducting the self-assessments are determined at the local level. Municipal schools are supervised by local school boards that are also responsible for the self-evaluations.

The Finnish Education Evaluation Centre (FINEEC)

Objectives and activities

FINEEC was established on 1 May 2014 by merging the evaluation functions of EDUFI, the Education Evaluation Council, and the Finnish Higher Education Evaluation Council (FINHEEC), which was responsible for undertaking university assessments.

FINEEC’s jurisdiction encompasses the entire education system, including ECEC, preschool and basic education, upper secondary education, vocational education, free educational work, basic art education, adult education, and higher education. In addition to its domestic role, FINEEC actively engages in international evaluation initiatives and collaborates with other organisations in the field, such as the International Network for Quality Assurance Agencies in Higher Education.

FINEEC’s primary goal is to conduct assessments using an enhancement-led evaluation approach. This method fosters continuous improvement by collaborating with educational institutions and policy makers. Table 1.1 presents the four principles that guide this approach.

Table 1.1. Enhancement-led evaluation principles

Principles	Description
Goal orientation and futures consciousness	FINEEC’s evaluations focus on current practices, foresee development trends, and factors fostering or hindering progress. They aid continuous improvement and consider both present and future aspects.
Participatory and interactive approach	FINEEC encourages open discussions and trust among participants, utilising evaluation data for mutual benefit. Transparency is upheld by sharing criteria and conclusions, fostering collaboration and utilising existing resources.
Tailored methods	FINEEC adapts evaluation methods to suit each case, producing comprehensive data from diverse angles. Methods evolve based on insights during the evaluation process.
Supporting changes	FINEEC promotes learning, participation, and awareness, offering feedback on strengths, areas needing development, and best practices. Outcomes link to wider frameworks, and impact is tracked through feedback and follow-ups.

Source: Authors’ elaboration based on official information from FINEEC, (2020[7]), Enhancement-led Evaluation at the Finnish Education Evaluation Center, www.karvi.fi/en/publications/enhancement-led-evaluation-finnish-education-evaluation-center.

Overall, FINEEC’s mandate is to promote the development and improvement of the Finnish education system through rigorous evaluation, data analysis and evidence-based decision making. FINEEC generates both information and recommendations for the local, regional and national levels to be used in decision making and development activities as well as international comparisons. FINEEC conducts five types of national evaluations:

1. Evaluations of learning outcomes: These evaluations produce national-level information on the achievement of the objectives of the curricula and students’ competencies. FINEEC analyses and reports the results and communicates the main findings to the relevant stakeholders. FINEEC conducts evaluations of learning outcomes in basic education and secondary education. The purpose of these evaluations is to enhance training, facilitate learning and ensure the quality of education. The evaluations provide valuable information about education and training at the local, regional and national levels. This information aids in decision making, supports development initiatives and enables international comparisons.

2. Thematic evaluations: These evaluations produce comprehensive information about the evaluation subject and give developmental recommendations. Thematic evaluations frequently explore whether changes in education policy have achieved the intended outcomes. Some recommendations target education providers and educational institutions; others target the OKM and EDUFI.

3. System evaluation: These evaluations assess the strengths and areas for improvement within a specific education level or the entire education system. Additionally, they assess the effectiveness of initiatives aimed at reforming and enhancing the overall education system.

4. Quality management assessments: Another of FINEEC’s roles is to assess how well education providers (at all levels) manage their tasks and resources to deliver quality education. FINEEC also supports education providers in using evaluation information, improving their evaluation capacities and using effective evaluation methods.

5. Audits: These aim to assess the quality of education provided by higher education institutions, which usually involves evaluating curriculum design, teaching methodologies, assessment strategies and the overall learning environment.

From 2020 to 2022, FINEEC published a total of more than 200 reports and organised 305 events, seminars and conferences, which were attended by more than 14 000 participants. Additionally, a significant number of education and training providers, as well as educational institutions and higher education institutions, engaged in FINEEC’s evaluations, with a combined total of more than 11 000 participants.

Table 1.2 shows the different types of evaluations FINEEC undertakes at each educational level.

Table 1.2. . Types of evaluations conducted by FINEEC across different education levels

Education level	FINEEC’s legal mandate (as stipulated in the legislation)	Evaluation of learning outcomes	Thematic and system evaluation reports	Quality systems, audits and evaluations
Transversal to all levels of education	Evaluate education and education providers in accordance with an Evaluation Plan.	X	X	X
	Support education providers in matters related to evaluation and quality management. Develop the evaluation of education.
	Attend to any other duties that are issued or given to FINEEC.
Early childhood education and care	Carry out evaluations related to ECEC and the activities of ECEC, as well as teaching and training providers, in accordance with the Evaluation Plan.	X	Thematic evaluations in early childhood education focus on a content-based entity or subject area. In system evaluations, the whole of the education system or its sub-area can also be examined. The subject of the evaluation can be education policy and its implementation or the processes of reforming and developing the education system.	Between 2020 and 2023, FINEEC developed the national digital quality evaluation system, Valssi. The system provides tools and processes to evaluate the structural and process-related factors of ECEC. It produces information about the quality of ECEC on a national, municipal/private provider and ECEC provider. The system is designed to support the quality management and continuous development of ECEC providers and strengthen the involvement of all important stakeholders in the evaluation process.
	Support early childhood education, teaching and training providers […] in matters concerning evaluation and quality management.
	Develop evaluation of education and early childhood education.
	The early childhood education quality assessment system implements early childhood education evaluations and collects and produces evaluation information to support early childhood education development.
Pre-primary, primary, secondary and general upper secondary education	Undertake evaluations of learning outcomes relating to the distribution of lesson hours and the national core curriculum targets referred to in Section 14 of the Basic Education Act (628/1998) and in Section 10 of the General Upper Secondary Schools Act (629/1998).	The purpose of the evaluations of learning outcomes is to produce reliable information about the achievement of the objectives of the basic curricula of pre-primary and basic education, the level of competence in the subject and the realisation of equality in education (i.e. by relating the results to students’ background factors and the features of the learning environment).	Thematic evaluations of pre-primary and basic education focus on a content package or theme. The subject can also be an evaluation of the state of a certain form of education. In system evaluations, the whole of the education system or some part of it can also be examined. The subject of the evaluation can be education policy and its implementation or the processes of reforming and developing the education system.	In the area of quality management, FINEEC’s task is to support education providers in matters related to quality management and evaluation.
	Evaluations of learning outcomes relating to the national core curriculum targets referred to in Section 5 of the Act on Basic Education in the Arts (633/1998).	The assessment of learning outcomes in basic education is based on direct evaluation of outcomes by large-scale surveys.
Vocational education and training	Evaluate education and education providers in accordance with an Evaluation Plan referred to in Section 5 of the Act on Basic Education in the Arts (633/1998).	The learning outcome evaluation aims to produce information on how well the students have achieved the learning objectives and vocational competence requirements defined in the qualification requirements. In addition, the learning outcome evaluations look at the quality of the pedagogical activities of the training providers.	Theme and system evaluations produce information to support decision making and educational development. Theme evaluations focus on a content-based entity or subject area. In system evaluations, the object of the evaluation is the education system or its sub-area.	In the area of quality management, FINEEC’s task is to produce information on the state of the quality management systems of vocational training providers (evaluations of quality management systems) and to support training providers in matters related to quality management and evaluation.
	Undertake, in accordance with the Evaluation Plan referred to in Section 5 of the Act on Basic Education in the Arts (633/1998), evaluations of learning outcomes relating to targets of the national core curriculum referred to in Section 13 of the Vocational Education and Training Act (630/1998) and in the national qualification requirements referred to in Section 13 of the Vocational Adult Education Act (631/1998).	In VET, learning outcomes are assessed indirectly by the grades the institutions award the students.
	Support education providers in matters related to evaluation and quality management.
Higher education	Carry out evaluations related to education, education providers and the activities of higher education institutions in accordance with the Evaluation Plan. Support education providers and higher education institutions in evaluation and quality management matters.		Theme evaluations focus on a particular theme within the education system. System evaluations centre on the entire education system or part of it and can cover the evaluation of education policies/reforms and their implementation.	The developmental evaluation in higher education follows the European standards and guidelines for quality assurance (ESG 2015), and the aim is to involve the higher education institution’s personnel, students and stakeholders in identifying the strengths, good practices and development areas of the higher education institution’s operations. The goal is also to support higher education institutions in achieving their own goals and thus create conditions for the continuous development of higher education institutions.

Note: FINEEC’s responsibilities and structure are defined in the Act on the National Education Evaluation Centre (1295/2013) and the corresponding regulation (1317/2013). These legal frameworks outline the tasks and organisational framework within which FINEEC operates and define its independence.

Source: FINEEC (2024[8]), National Education Evaluation Center, https://karvi.fi/; Ministry of Education and Culture, Finland (2013[9]), Act on the Finnish Education Evaluation Centre, www.finlex.fi/fi/laki/ajantasa/2013/20131295.

According to the information shared by FINEEC through a self-assessment questionnaire, the Centre uses a quality management model to guide its operations. This model is based on Deming’s continuous improvement cycle, known as PDCA (Plan, Do, Study, Act), which involves a cycle of planning, implementation, monitoring and evaluation and aims to generate continuous learning and improvement within the organisation (see Figure 1.2) (The Deming Institute, 2024[10]). This supports the strategy, steering, and management and enhances FINEEC’s operational responsiveness to needs and priorities.

Figure 1.2. The quality system of FINEEC

Source: FINEEC (2021[11]), Self-Assessment Questionnaire, www.karvi.fi/sites/default/files/sites/default/files/documents/KARVI_10_2021_FINAL.pdf.

Operations and budget

FINEEC is an independent authority defined by the Act on the National Education Evaluation Centre (1295/2013). It operates as a separate unit within EDUFI under the OKM, as specified in Section 564 of the Act on the Finnish National Agency for Education (2016/6).

In 2023, FINEEC employed 53 employees and a network of around 200 external experts. About 40% of the employees were employed on temporary contracts.

The annual costs associated with its operations amounted to approximately EUR 4.8 million. These expenses were covered by the annual appropriation for operational expenditure, amounting to EUR 3 122 000 in 2022 and EUR 4 409 000 in 2023. Of this budget, over EUR 1 million was committed directly to the new digital system for assessing learning outcomes in basic education (Joda) and the digital quality assessment system in ECEC (Valssi). FINEEC also receives funds from paid services, as defined in the Ministry of Education and Culture Decree 160/2021, Section 3. In addition, FINEEC receives funding from the OKM to carry out specific studies and several long-term evaluations. This funding covers only the incremental costs, which include salaries and personnel costs of temporary experts and other costs arising from the projects; it does not cover the remuneration of FINEEC’s permanent staff.

Structure and governance

FINEEC operates as a distinct unit within EDUFI and is independent in its operations. EDUFI provides FINEEC with some administrative and support services, such as human resources, financial, legal, procurement and data management services. FINEEC comprises the Evaluation Council, the Higher Education Evaluation Committee and four units: the General Education; the Vocational Education and Early Childhood Education Unit; the Higher Education and Liberal Adult Education Unit; and the Development Services Unit (see Figure 1.3). The main office and most of the staff are in Helsinki; some staff are located in Jyväskylä (ENQA Agency, 2022[1]).

Figure 1.3. FINEEC’s organisational structure

Source: FINEEC (n.d.[12]), FINEEC’s organisation, www.karvi.fi/en/about-us/fineecs-organisation.

FINEEC operates under the authority of the Evaluation Council, which consists of 13 members, and the Higher Education Evaluation Committee, which comprises 9 members. The Government Decree on FINEEC (1317/2013) prescribes the Council’s composition, tasks and decision-making powers. The Council plays an essential role in the monitoring and strategic orientation of FINEEC. They actively participate in strategic planning, make decisions on significant statements and initiatives, contribute to preparing the evaluation plans, and monitor their implementation. Their involvement ensures the alignment of assessment processes with organisational objectives and drives progress in evaluating educational practices. The Council prepares a proposal for an evaluation plan in accordance with Section 1295 of the Act on the National Education Evaluation Centre (2013/5) and amendments to the evaluation plan, which the OKM approves.

Council members are representatives from different educational sectors, teacher education, research, working life and students. The Council selects the chair and vice-chair from among its members. After consulting with the Council, the Director of FINEEC formally approves all project plans for evaluations and compositions of planning and evaluation teams for all education sectors apart from higher education.

The Higher Education Evaluation Committee is the decision-making body for higher education evaluations and consists of nine members, of which three must also be members of the Council. According to the Government Decree, the Council proposes members for the Evaluation Committee, and the OKM appoints them. The Council selects candidates from the candidates put forward by higher education institutions and other stakeholders. The members must be experts in the evaluation of higher education. The Evaluation Committee also selects the chair and vice-chair from among its members. The Evaluation Committee decides on project plans and compositions of planning and evaluation teams for evaluations of higher education institutions and the outcomes of audits of higher education institutions (ENQA Agency, 2022[1]).

FINEEC’s stakeholders and users of evaluation information

Figure 1.4 shows FINEEC’s stakeholders and users of evaluation information, categorised by their level of priority. The highest priority category encompasses the Evaluation Council and the Higher Education Evaluation Committee, as well as staff and providers of education and early childhood education and care (ECEC), as well as pupils. The second highest priority category includes the media, the Ministry of Education and Culture (OKM), the Finnish National Agency for Education (EDUFI), alternating decision makers, and external evaluation and specialist groups. The third priority category consists of all other actors, such as citizens, other ministries and other stakeholders.

Figure 1.4. FINEEC’s stakeholders and users of evaluation information

Source: FINEEC (2023[13]) , Self-assessment questionnaire for OECD External evaluation of FINEEC.

The context in which FINEEC operates

FINEEC functions within Finland’s multifaceted network of educational evaluation and assessment entities. Its contributions are crucial and form part of a larger, collective effort involving various organisations and institutions. This collaborative framework is designed to provide a comprehensive understanding of the Finnish educational landscape.

International assessments such as the OECD’s PISA, as well as studies conducted by the International Association for the Evaluation of Educational Achievement (IEA), such as Progress in International Reading Literacy Study (PIRLS) and Trends in International Mathematics and Science Study (TIMSS), are managed outside of FINEEC. These activities are co-ordinated directly by the OKM, with implementation support from prominent educational research bodies, including the Finnish Institute for Educational Research at the University of Jyväskylä, which has been evaluating learning outcomes since the 1960s, and the Centre for Educational Assessment at the University of Helsinki, which has been active since the 1990s.

FINEEC’s work in mathematics encompasses conducting national assessments that, alongside international studies like PISA, create a comprehensive view of educational outcomes. FINEEC’s national data provides valuable insights into mathematics learning outcomes, while international assessments contribute broader trend analysis across various subjects, including literacy.

In the domain of thematic evaluations, FINEEC functions amid a diverse array of organisations that evaluate various aspects of the Finnish education system, including specific policy reforms. For instance, qualitative evaluations of higher education and continuous learning systems have been reviewed by international bodies such as the OECD. Similarly, consultancy groups and other evaluative bodies have examined the impact of university reforms and legislation changes on vocational and general upper secondary education during the coronavirus (COVID‑19) pandemic and the implementation of the VET reform and ECEC data collection.

Econometric impact assessments, which often require specialised analytical skills, are predominantly carried out by research universities and economics research institutes. For example, the VATT (Valtion Taloudellinen Tutkimuskeskus) Institute for Economic Research and other institutions have evaluated the effects of reforms in higher education admissions systems with funding from the OKM.

Furthermore, a collaborative approach to evaluation is evident in joint analysis, assessment, and research activities (VN TEAS), which are co-ordinated by the government and involve institutions like VATT, the University of Helsinki and Aalto University. These entities are currently evaluating a randomised controlled trial (RCT) on extending pre-primary education, showcasing Finland’s comprehensive and collaborative nature of educational research.

References

[1] ENQA Agency (2022), Review of the Finnish Education Evaluation Centre (FINEEC), https://www.enqa.eu/wp-content/uploads/FINEEC-external-review-report.pdf.

[8] FINEEC (2024), National Education Evaluation Center, https://karvi.fi/.

[13] FINEEC (2023), Self-assessment questionnaire for OECD External evaluation of FINEEC.

[11] FINEEC (2021), Self-assessment Report for the ENQA Agency Review 2021, https://www.karvi.fi/sites/default/files/sites/default/files/documents/KARVI_10_2021_FINAL.pdf.

[7] FINEEC (2020), Enhancement-led Evaluation at the Finnish Education Evaluation Center, https://www.karvi.fi/en/publications/enhancement-led-evaluation-finnish-education-evaluation-center.

[12] FINEEC (n.d.), FINEEC’s Organisation, https://www.karvi.fi/en/about-us/fineecs-organisation (accessed on 29 April 2024).

[4] Kalenius, A. (2023), Sivistyskatsaus 2023, Opetus- ja kulttuuriministeriö, https://julkaisut.valtioneuvosto.fi/handle/10024/164564.

[9] Ministry of Education and Culture, Finland (2013), “Act on the Finnish Education Evaluation Centre”, https://www.finlex.fi/fi/laki/kaannokset/2013/en20131295.pdf (accessed on 1 February 2024).

[5] OECD (2024), OECD Education GPS, https://gpseducation.oecd.org/CountryProfile?primaryCountry=FIN.

[3] OECD (2022), PISA 2022 Database, Tables I.B1.5.4, I.B1.5.5 and I.B1.5.6, https://www.oecd.org/pisa/data/2022database/.

[2] OECD (2021), Applying Evaluation Criteria Thoughtfully, OECD Publishing, Paris, https://doi.org/10.1787/543e84ed-en.

[6] OECD (2020), TALIS 2018 Results (Volume II): Teachers and School Leaders as Valued Professionals, TALIS, OECD Publishing, Paris, https://doi.org/10.1787/19cf08df-en.

[10] The Deming Institute (2024), PDSA Cycle, https://deming.org/explore/pdsa/ (accessed on 1 February 2024).