ERIC ED353931: Higher Education and Employment: The Changing Relationship. Recent Developments in Continuing Professional Education. Country Study: Finland.

19 Pages·1991·0.5 MB·English

by  ERIC

DOCUMENT RESUME
ED 353 931
HE 026 192
TITLE
Higher Education and Employment: The Changing
Relationship. Recent Developments in Continuing
Professional Education. Country Study: Finland.
INSTITUTION
Organisation for Economic Cooperation and
Development, Paris (France).
REPORT NO
OCDE /GD(91) 158
PUB DATE
91
NOTE
19p.; For related documents, see HE 026 190-201.
PUB TYPE
Reports
Descriptive (141)
EDRS PRICE
MF01/PC01 Pius Postage.
DESCRIPTORS
Access to Education; Continuing Education; Economic
Factors; Educational Change; *Educational Demand;
*Educational Trends; *Education Work Relationship;
Employment Opportunities; Employment Qualifications;
Enrollment; Foreign Countries; Government Role;
Higher Education; Open Universities; *Politics of
Education; *Professional Continuing Education;
Universities
Europe; *Finland
IDENTIFIERS
ABSTRACT
This report, one of a series of country studies on
higher education and employment particularly in continuing
professional education, looks at recent developments in Finland. An
opening section reviews the structure of continuing education in
Finland where most continuing education is arranged by private
employers with universities. The paper describes how continuing
education has led to several schools of thought on how these services
should be provided: neo-traditionalists, cultural revolutionists of
science, and utilitarians. A following section describes and analyzes
the role of open universities, Finnish universities open to all and
desioned to serve adults over age 23. This section looks at how
individuals pursue study at these institutions in order to gain the
required credentials for various types of employment, a process which
may devalue the basic academic degree. A discussion of the growing
volume of continuing education and projected need for these services
shows that continuing professional education recently grew by 86
percent over 3 years. A comparison to other European countries
identifies nine important differences. A final section describes how
a university-level continuing education course may come about when an
enterprise, municipality, ministry or professional organization
proposes it. (Includes 13 notes.) (JB)
(JB)
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OCDE/GD(91)158
HIGHER EDUCATION AND EMPLOYMENT:
THE CHANGING RELATIONSHIP
RECENT DEVELOPMENTS IN CONTINUING PROFESSIONAL EDUCATION
COUNTRY STUDY:
FINLAND
ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT
Paris 1991
36228
FOR TECHNICAL REASONS, GRAPHS, TABLES & FACSIMILES ARE NOT AVAILABLE ON OLIS
GENERAL DISTRIBUTION
Paris, July 1991
English text only
HIGHER EDUCATION AND EMPLOYMENT: THE CHANGING RELATIONSHIP
Recent Developments in Continuing Professional Education
Project iii):
FINLAND
COUNTRY STUDY:
a series of country
one of
studies prepared
This report
in the
is
OECD
Education Committee activity on Higher Education
of the
framework
and
The Changing Relationship.
deals with one of
the three main
Employment:
It
topics covered by this activity, Recent Developments in Continuing Professional
Together with other country studies on this topic, it provides the
Education.
background information for the preparation of a Secretariat general report that
will be published by the OECD in 1992.
studies and general reports are also being made
Country available for
under this activity:
other two projects included
The
Flows of Graduates
the
Higher Education and their Entry into
Working Life; Higher Education and
from
The Case of the Humanities and Social Sciences.
Employment:
contribution has been
The
present
Matti Parjanen
written by
of the
It presents an overview of continuing education and is
University
of Tampere.
excerpted from a broader country study on the Humanities and Social Sciences in
The views expressed are those of the author and do
not necessarily
Finland.
commit the national authorities concerned or the Organisation.
Copyright OECD, 1991.
3
CONTENTS
Structure of Continuing Higher Education
7
Ideological Conflicts
8
an Important Factor in Finland
Legitimization
10
and the Need?
Growing Volume of Continuing Higher Education
12
How and Why Does Finland Differ from Other European Countries?
15
Education and Practice
17
5
STRUCTURE OF CONTINUING HIGHER EDUCATION
tutions had 90,000 students. The centres
here are more than 1000 organiza-
T
employ c. 700 permanent planners and
tions that provide adult educa-
administrators. The largest centres, which
tion in Finland, and the number
have more than 100 planning and adminis-
of participants exceeds 1.8 mil-
trative posts, cater to over 10,000 part-time
lion. Most of continuing professional edu-
students each year.
cation is arranged by private employers. In
1988 employers spent 2500 million FIM in
The basic organization structure of the
this training. The state invested 200 million
continuing education centres is approxi-
marks in its own in-service training. Indus-
mately the same in all universities. The
try devoted 5-6 days per employee to edu-
centres are affiliated institutions subordi-
cation outside or within the enterprise and
nate to the university central administra-
had a full- or part-time training official for
tion, just like libraries and computer centres.
100 employees. But the higher the educa-
As a rule, they have no teaching posts of
tional level, the more frequently training is
their own. In principle, this is one of the
given by an university. Universities have
basic factors for their success: when teach-
always been criticized for keeping the re-
ers and consultants are hired for a given
sults of scientific research inside the con-
purpose only, the information is always up
fines of university walls and not putting the
to date in terms of pedagogics and scientific
results at the disposal of working life rap-
knowledge and its application. It is easy to
idly enough. In the late 1960s a totally new
avoid- outdated or pedagogically inade-
form of education, extension studies, was
quate (or repetitious) teachers, which is one
instituted to assist in disseminating research
of the greatest problems in faculties, since
findings. This created the Finnish institu-
university teachers hold tenure posts in
tion of continuing higher education.
Finland. Continuing education centres are
in a position to choose the best teachers
In 1970 saw the establishment of the first
from faculties.
extension studies centre subordinate to a
university. It had two basic functions: 1)
is it that makes these university
What
continuing professional education and 2)
teachers educate adults outside their nor-
open university instruction. This division
mal teachingloads: after all, i t is well-known
is still used in all the Finnish institutions of
that adults expect and demand more of
higher education. The first form of educa-
education than young students? For some
tion means that all university graduates
teachers, the most important reason is need
and non-graduated employees in similar
even though the
to earn more money
professional positions may return to their
prevailing social norms condemn it. The
alma mater or go to another university to
remuneration in continuing professional
upgrade and update their professional
education is slightly higher than university
knowledge. As a rule, the teachers of the
teachers' salary (maximum 430 marks an
courses are either researchers or experts
hour), although clearly lower than in the
working with practical applications.
private sector. Another, probably more
common reason is pedagogical: it is more
At present all the 20 Finnish institutions of
rewarding to teach mature students who
higher education have continuing (or fur-
have work experience than inexperienced
ther) education centres of their own, with
young people for whom it is difficult to find
filials in smaller towns. In 1989 these insti-
7
practitioners of
an audience of experienced
examples for application. This is true espe-
social work or correctional care.
sciences
cially of the humanities and social
(HISS) fields. The third reason given by
These three factors are not characteristic
teachers has to do with the opportunities
only of Finnish continuing education: The
further education courses offer for testing
be found in to-
same kind of features can
their own scientific theories. For one in-
tally different education systems (1).
policy gets
stance, 'a researcher of social
immediate feedback on their theories from
IDEOLOGICAL CONFLICTS
The utilitarian doctrine takes an optimistic
hen extension studies be-
view of development and sees that scien-
ca me one of the basic uni-
versity functions, the
tific progress and application of science are
of major importance to society and that
ideological point of de-
parture was to apply and disseminate re-
achieving this goal requires education and
science policy planning and steering.
searched data and to establish contacts with
employment. The "scientific knowledge"
How are the HISS university teachers
has not been defined in so many words, it
placed in this table? Studies made of re-
being taken as self-evident that all informa-
searchers' attitudes as well as practical
tion and knowledge produced and dissemi-
experience give grounds for assuming that
nated by a university is based on research
the majority of them are "neo-traditional-
that meets all the ethical and methodologi-
ists". The "cultural revolutionalists of sci-
cal norms of science. The term "science"
ence" will probably increase among them,
itself has a certain promise-of-use-value,
which is boldly exploited by the further
and their future stronghold will probably
education centres in marketing their edu-
be the university, HISS departments and
cation (2). The attitudes towards 'scienti-
student unions in particular.
ficness', knowledge, labour markets, mar-
Will this setup result in a situation in which
keting and especially the interdependence
of science and the market mechanisms vary
the new continuing professional education
between different disciplines and educa-
will ideologically, attitudinally and practi-
tional fields, depending on their traditions.
cally rely on utilitarians and see neo- tradi-
Table 1 shows in broad outline the relation-
tionalists as an ,;.bstade to its expansion, if
ships between different schools of thought
not its downright enemy? Academic exten-
sion studies have "enemies" both inside
and adult higher education. The neo-tradi-
tionalists highlight the autonomy of re-
and outside the university (3). In my opin-
search and under- and postgraduate edu-
ion, it is precisely this continuing (probably
cation. The cultural revolutionalists of sci-
never-ending) conflict between the schools
will be shat-
of thought that will keep continuing pro-
ence predict that world peace
tered and humanity is on the verge of eco-
fessional education above water.
catastrophy, from which it follows that
This conflict could be exploited by con-
science and academic education should
tinuing higher education as its trademark
return to generalism and should thus be
its competi-
or pedagogical inducement in
devoted to averting these global threats.
TABLE 1.
Relationships between different schools of thought and adult higher education
TYPES OF ADULT HIGHER EDUCATION
Long-term
Short-term
Open
Schools of
continuing
continuing
higher
university
professional
professional
education
education
education
and science
policy
Not a
Not a
Not a
Neo-
university
university
traditionalism
necessary
function
function,
basic function
allowed to the
of university
extent that it
e.g. furnishes
funds for pure
research
Justifiable
Condemnable,
Cultural
Wholly to be
to a certain
not a
revolutionalists
endorsed, to
extent, with
university
provide
of science
a research,
function
scientific
not profes-
survalist
sional
knowlegde and
orientation
skills for people
Indispensab-
Utilitarialism
Necessary to
i o be endorsed
le, the most
certain extent
moderately:
recent rese-
constantly,
(a) to make use
arch findings
economic profits
of educational
made
to university
reserves
available to
(b) for equality
promote
occupational
changes
Source: Panhelainen, M.,
Korkeakoulujen taydennyskoulutus ja tyoorganisaatiot,
Paper for the 4th Symposium on Finnish Higher Education,
Jyvaskyla, 1990.
9
researchers of H/
visions presented by
markets, which are
lion for educational
changes in cultural or
SS fields concerning
setup also in-
turning hard as rock. The
problems relates to
social values. This set of
possible for educa-
volves a paradox: it is
question whether it
the seemingly eternal
criticism of the
tion based on scientific
to hire H/SS
would be more appropriate
well on educa-
market mechanisms to do
posts in busi-
graduates for management
work on market
tional markets which
administration or to pro-
ness and public
Finn-
mechianisms. There are signs of this in
H /SS fields for
vide further education in
in which the
ish management training,
have law, economics or
managers who
wish to study
participan ts d o no t necessarily
technology degrees.
and ideolo-
familiar business mechanisms
doctrines", such
gies but "the adversary's
humanities and social
In this report the
democracy or environmental
as industrial
entity. In Fin-
sciences are examined as an
and
eighties
protection (socialism in the
features in
land these fields share many
in the nineties?).
This also applies to
terms of education.
education in the
continuing professional
education
In this way, many continuing
professional fac-
fields. On the other hand,
for business manag-
programmes intended
differ in the two fields.
tors may clearly
initiative
at the participants'
ers include
AN IMPORTANT
LEGITIMIZATION
FACTOR IN FINLAND
(two years of
corresponding to 60 credits
he second mission of continuing
required un-
full-time studies), which are
education centres is open univer-
Education guidelines
uni-
der the Ministry of
sity. Its purpose is to provide
through what
for admission to universities
versity-level education, generally
channel. This
is known as the alternative
university
corresponding to courses in
universities despite
channel is restricted by
regardless
degree studies. It is open for all,
only a few
government recommendations,
of residence
of their former studies, place
regular university
students are admitted as
to
and sex (so far, it has not been necessary
students through it.
in
mention race or religion in this context
23-
Finland). The age limit is generally set at
have gen-
Some open university students
primarily in-
25, open university being
initial or re-
eral education and some
limit,
tended for adults. If there were no age
their
fresher professional education as
of Finnish
the high educational motivation
revealed a third
goal. Surveys have also
concrete
youth would result in the same
social contacts
motive: a desire to seek
policy is
problems Finnish educational
of
through studies.
facing at present: Tens of thousands
have not gained entry
young people who
that in Finland
It has also been suggested
apply for open
into higher education would
enrolment is stiff
where the competition for
themselves
university studies to prepare
motivated
adult education might also be
take studies
for entrance examinations or
9
legislation and in the private sector social
by a "status" factor, in other words exclu-
legitimation. In the absence of national
siveness, a scarce commodity distancing
from the immediate surroundings. Al-
statutory regulations, the private sector
employers themselves generate the legiti-
though empirical interview studies do not
validate this theory, in-depth interviews
macy. In Finland all university degrees and
show that education can also have latent
their parts are equal as to their standards
and social prestige. So far, the wording in
function of this kind, however condemned
the certificates issued on graduation has
by social norms (4).
been under the control of the Ministry of
In 1989 there were a total of 35,00 students
Education. In the nineties Finland is trans-
in open university. The majority of them
ferring to a new legitimization system in
studied H/SS fields: 26% social sciences
education. The long-term (1-3 years) pro-
and 19% the humanities. The most com-
grammes provided by continuing educa-
mon subjects were social policy, special
tion centres have established their own le-
gitimacy on the labour markets. Thus a
pedagogics and sociology, with education
as the largest field (26%). It would be wrong
one-year continuing professio nal education
to draw the conclusion that Finland were a
course taken by graduates in these centres
positive "education society". Such eager-
may give the same kind of legitimacy, pres-
ness to study educational sciences is largely
tige and status value as six years traditional
due to the requirement that graduates must
university degree. Such professional fur-
ther studies often also involve the em-
take certain specified courses in education
to secure a post within vocational or adult
ployer's expectations as to credentials or
education in Finland. Thus, it is not due to
unionistic expectations of trade unions. In
any demands or attraction of the training
both cases the goal is to keep the labour
institution or pursuit of general knowl-
markets in check and to regulate them with
edge, but simply a question of legitimacy,
a view to preventing educational institu-
the labour markets demanding certain
tions or post applicants from specifying
university-level qualifications for certain
qualifications. The low salaries in H/SS
posts. As regards the public sector, these
fields have generated unionistic features,
demands are defined in the statutes con-
because the uniolis can demand a rise in
cerning competence, which are usually very
salary on the strength of new professional
difficult to change.
requirements. This process is often difficult
to arrest. The basic academic degree is in
The legitimacy theory has great relevance
danger of becoming only an intermediate
to Finnish continiring higher education, be-
stage, if the practice of requiring more cre-
cause academic degrees are a specific re-
dentials for ever more posts gains ground
quirement for a number of positions. In the
in the labour markets.
typical H/SS fields this is a question of
9
1 1