This chapter highlights the importance of higher-level technical skills in Finland’s green transition. The chapter argues that to increase the supply of these skills, Finland should provide adequate opportunities to acquire technical skills beyond upper secondary vocational education and training (VET). After an overview of Finnish post-secondary VET, the chapter identifies key issues and presents policy options for strengthening post-secondary VET in Finland. These options include diversifying the provision of, and participation in, specialist vocational qualifications (SVQ) and programmes, facilitating the recognition of SVQs in universities of applied science (UAS) programmes, and strengthening pathways from VET to post-secondary VET while promoting collaboration among UAS, VET providers and employers.
Vocational Education and Training and the Green Transition in Finland
Abstract
The green transition requires more complex, high-level skills, essential for green jobs that rely on novel technologies and innovation. In addition, existing occupations, such as electricians and technicians, are becoming more complex and increasingly demand skills upgrading. In Finland, more than half of jobs require tertiary education, one of the highest shares among 27 European countries (Cedefop, 2024[1]).
Post-secondary vocational education and training (VET) typically has strong labour market outcomes, including access to jobs and wages. The Finnish post-secondary VET system has the potential to offer more opportunities to acquire the necessary higher technical skills that are in demand in a greener labour market.
Post-secondary VET in this report refers to all professionally-oriented education provided at levels 4 and 5 in the International Standard Classification of Education (ISCED). Box 4.1 provides further details of the various post-secondary VET categories.
Higher levels of education and training equip learners with advanced skills essential for the green transition
Many jobs that are at the heart of the green transition require higher-level, complex skills typically associated with post-secondary education. Among the three categories of green jobs, as defined in this report, the new and emerging green occupations require the highest level of education and training. They involve more complex tasks, such as analytical and interactive tasks compared to other types of green jobs (Bowen, Kuralbayeva and Tipoe, 2018[2]). According to a recent OECD study, higher education graduates are more likely to work in these new green jobs than those that those with upper-secondary VET qualifications (ISCED 3 and ISCED 4) (Kuczera, 2025[3]).
For graduates of short-cycle tertiary (ISCED level 5) programmes, which do not have equivalents in Finland, outcomes vary across countries, which may reflect differences in programme quality. In Austria, Denmark and Luxembourg the proportion of ISCED 5 VET graduates in new and emerging green occupations is similar to that of workers with higher education (HE). This suggests that in these countries, ISCED 5 VET programmes effectively prepare workers for occupations at the forefront of the green technology frontier (Kuczera, 2025[3]).
Various studies in Finland anticipate that with the green transition, the demand for high-skilled professions will increase, since the green transition is largely based on the development and application of new solutions (Kuusela et al., 2023[4]). The demand for high-skilled workers, especially in roles that require expert knowledge in engineering, physics, construction, technology, and geography, is increasing due to the green transition; and companies are already facing difficulties in accessing skilled labour across Finland (Busk et al., 2023[5]). Strong demand for highly skilled labour in green jobs is also confirmed by a recent OECD study (2024[6]) which shows that high-skilled employees in well-paid employment in Finland are more likely to work in green occupations than those with lower skills and wages.
There is also some evidence that workers with higher levels of education adapt better to changing job requirements. In the United States, workers without a bachelor’s degree and older workers (e.g. workers in their 40s and 50s) are less likely to transition into green jobs (Curtis, O’Kane and Park, 2023[7]). In Germany, workers who are older, low-skilled, with vocational education and training and female workers struggle most with transitioning to other jobs when faced with involuntary displacement (Barreto, Grundke and Krill, 2023[8]).
Post-secondary VET refers to VET programmes above upper secondary education such as:
Post-secondary non-tertiary programmes (ISCED level 4) usually serve to broaden rather than deepen the knowledge, skills and competencies gained in upper secondary level. These programmes are often vocationally oriented and may be designed to increase options for participants in the labour market, for further studies at tertiary level or both.
Short-cycle tertiary (ISCED level 5) programmes are often designed to provide participants with professional knowledge, skills and competencies. Typically, they are practice-based, occupation-specific and prepare students to enter the labour market directly. They may provide a pathway to higher education programmes. The minimum duration is two years.
Education and training corresponding to bachelor’s level and above (ISCED 6 and above) are considered in this report as tertiary or higher education (HE). Some countries, such as Australia, distinguish in their national classification higher education programmes that are professionally-oriented, but there is no internationally accepted definition of the orientation of programmes at these levels (i.e. VET/professional vs. academic). Because of this lack of definition and difficulty to compare internationally, programmes at ISCED level 6 or above, even when they are vocational or professional in nature, are not included in post-secondary VET for the purpose of this report.
Post secondary VET in Finland
Finland’s post-secondary VET provision includes programmes at ISCED level 4 (SVQs). In the past, Finland had short-cycle tertiary degrees at ISCED level 5 (opistoaste), but these were phased out in the 1990s during the polytechnic reform, which channelled HE demand to universities of applied science (UAS). This means that when introducing international examples, Finnish SVQs (ISCED 4) will be compared to post-secondary VET qualifications in other countries at ISCED 4 and ISCED 5 level.
In Finland, programmes provided by UAS are not classified as vocational/professional but they can be seen as equivalent to professionally-oriented higher education found in some other countries. Therefore, in this report, while not included in the “post-secondary VET” category, they will be discussed in more detail due to their potential to provide high-level skills for the green transition and serve as a pathway for upper secondary VET graduates who wish to continue their studies.
Table 4.1 below shows how Finnish VET and UAS qualifications are classified on the European Qualifications Framework (EQF) and International Standard Classification of Education (ISCED).
Source: National Agency for Education (OPH) (2019[9]), Finnish VET in a nutshell, www.oph.fi/sites/default/files/documents/finnish-vet-in-a-nutshell.pdf; OECD (2024[10]), Education at a Glance 2024: OECD Indicators, https://doi.org/10.1787/c00cad36-en; OECD (2022[11]), Pathways to Professions: Understanding Higher Vocational and Professional Tertiary Education Systems, https://doi.org/10.1787/a81152f4-en; OECD (2020[12]), Continuous Learning in Working Life in Finland, https://doi.org/10.1787/2ffcffe6-en.
There has been a sustained demand for highly skilled workers in green-related fields in Finland
Finland is among the OECD countries with the most ambitious environmental goals and aims to become a global leader in green technologies, including nuclear and renewable energy sources. To achieve these ambitions, the country needs a highly skilled workforce capable of innovating and working with new technologies.
The consistently strong labour market outcomes associated with SVQs and UAS demonstrate that there is a sustained demand for the associated skills. SVQs and UAS in fields that support the green transition such as engineering, manufacturing, construction and agriculture, offer better employment and earning prospects than USVQs and are comparable to those provided by research university degrees (see Figure 4.1). For example, more than 90% of graduates with SVQs, UAS and research university degrees in engineering, manufacturing and construction were employed one year after graduation. Surprisingly low employment rates observed among those with SVQs with specialisation in ICT and natural science – another green-relevant field, may be explained by a low number of individuals completing these qualifications. The employment rate for SVQ and UAS graduates has remained high or increased especially for agriculture and engineering reflecting the increasing demand for advanced technical skills in these fields.
Share of employed among completers (one year after graduation), by field, level and type of qualification
Note: Data include only programmes with at least 40 individuals and exclude university bachelor’s graduates as they intend to continue their studies.
Source: Statistics Finland (2024[13]), 111l -- Main type of activity of completers of qualifications one and three years after graduation, 2007-2022, https://pxdata.stat.fi/PXWeb/pxweb/en/StatFin/StatFin__sijk/statfin_sijk_pxt_111l.px.
This section provides an overview of Finland’s post-secondary VET system as a pathway for both upper secondary VET graduates and experienced adults seeking upskilling, serving as a critical supply of skills for the green transition.
Finland has small and narrow post-secondary VET offering
Specialist vocational qualifications target professionals who want to deepen their technical or management skills
In Finland, programmes preparing for specialist vocational qualifications (SVQ) focus on deepening specific technical skills, usually after some years of work experience. SVQs also prepare individuals for leadership and management roles in their fields.
Admission to SVQ typically depends on completion of upper-secondary education and relevant work experience (OECD/Eurostat/UNESCO Institute for Statistics, 2015[14]). In 2022, around 14 000 new students enrolled in SVQs and 8 000 obtained a qualification.
There are 54 SVQ as of 2024, 180 competence points are assigned to SVQ, taking about 1.5 years to complete in full time. SVQ programmes can be conducted as online studies, self-directed training, or apprenticeship contract. SVQs can be offered by various VET providers, each with the autonomy to develop locally adapted curricula, offer specific optional units, and choose learning methods, within the framework of national qualification structures, requirements, and assessment criteria set by the Finnish National Agency for Education.
Currently, VET funding models including SVQ are undergoing a reform process. SVQ may involve student fees, which could influence how these qualifications are offered by VET providers and taken up by learners (Ministry of Education and Culture of Finland, 2024[15]).
Enrolment in post-secondary VET from an international perspective
In Finland, 0.6% of young adults have SVQ as their highest level of education. This can be compared to an OECD average of 5.8% of adults with an ISCED level 4 post-secondary non-tertiary qualification (equivalent to SVQs) and an additional 6% with a short-cycle tertiary qualification situated at ISCED level 5 (do not have equivalences in Finland) (Figure 4.2).
Percentage of individuals aged 25-34 with different vocational qualification, as their highest level of education
1. Data for upper secondary attainment include completion of a sufficient volume and standard of programmes that would be classified individually as completion of intermediate upper secondary programmes (9% of adults aged 25-34 are in this group).
2. Year of reference differs from 2022.
Source: OECD (2024[16]), Higher Technical Education in England, United Kingdom: Insights from Selected International Experience, https://doi.org/10.1787/7c00dff7-en; OECD (2024[10]), Education at a Glance 2024: OECD Indicators, https://doi.org/10.1787/c00cad36-en.
SVQ programmes are primarily attended by employed adult learners, with an USVQ or higher education qualification
SQV programmes are mostly attended by learners in employment (with 95% of SVQ students being in employment in 2022). The share of employed students is higher among SVQ students and those in professionally-oriented bachelor’s programmes delivered by UAS. Only UAS master’s programmes have similar shares of employed students. Across different fields of study, SVQs in natural sciences, mathematics, and statistics have the lowest share of students in employment (Figure 4.3).
SVQ participants in Finland are on average 42 years old (See also Figure 2.8 in Chapter 2) – which is higher than the average age of students in similar programmes in some other countries (OECD, 2024[10]). For example, in Norway learners in programmes equivalent to the Finnish SVQs (ISCED 4) have an average age of 36, while in Sweden, the average age is 35.
Share of learners who are employed while studying, 2022
Note: In gainful employment during the last week of the statistical reference year. SVQ in ICT was omitted due to a small number of students.
Source: Statistics Finland (2023[17]), 13g2 -- Employment of students by level of education, field of education, sex and region of residence, 2019‑22; https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__tyokay/statfin_tyokay_pxt_13g2.px/; OECD (2024[10]), Education at a Glance 2024: OECD Indicators, https://doi.org/10.1787/c00cad36-en.
SVQs are more commonly pursued by female learners. Almost 60% of SVQ students are female. In engineering, manufacturing and construction programmes, the number of female learners is nearly equal to that of male learners (Figure 4.4). This contrasts with many other countries, where these fields are typically male-dominated.
Number of SVQ students by gender and field, 2022
Source: Statistics Finland (2023[17]), 13g2 -- Employment of students by level of education, field of education, sex and region of residence, 2019‑22, https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__tyokay/statfin_tyokay_pxt_13g2.px/.
Looking at the education background of SVQ learners, 47% of SVQ learners in 2023 held a prior USVQ and 43% a higher education qualification. The education background of SVQ learners differs by field, with more than half of SVQ students in engineering, manufacturing and construction holding a higher education degree (Figure 4.5).
Share of new SVQ students by highest prior qualification, 2018-23
Note: Students may have more than one qualification, and only the highest qualification is shown. USVQ include individuals with matriculation examination and upper secondary VET qualification, and with upper secondary VET qualification only. Higher education includes individuals with matriculation examination and UAS degree; UAS degree; matriculation and university bachelor's degree; university bachelor's degree; matriculation and higher university degree or above; and higher university degree or doctoral or equivalent degree. Individuals with both matriculation examination and VET post-secondary or tertiary level qualification as well as those with vocational post-secondary or tertiary level qualification only are not shown. Those with unknown status was excluded from the sample.
Source: Statistics Finland (2023[18]) 11gg -- New students by prior qualification in, 2000-23, https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__khak/statfin_khak_pxt_11gg.px/table/tableViewLayout1/
SVQs offer qualifications and units supporting the green transition
Around 40% of all students enrolled in SVQs are concentrated in business management programmes (see Figure 2.10 in Chapter 2). This aligns with the academy profession (part-time) programmes (ISCED level 5) offered in Denmark, where business and management is also the most popular field among (mostly adult) learners (OECD, 2024[16]). Engineering, manufacturing and construction is the second biggest field for SVQ learners (27%), followed by health and welfare (16%).
Many of the qualifications in engineering, manufacturing and construction, natural science and agriculture directly prepare for a range of green jobs. They prepare for new green jobs, such as jobs in sustainability and environmental technology, as well as existing jobs that are evolving to reduce greenhouse gas emissions. SVQs in the field of engineering include qualifications such as repair shop supervisors in the automotive industry and power plant masters in the energy field. While other fields of study, may not provide the high-level technical skills needed to develop and operate green technologies, they offer analytical and advanced managerial competencies that are also in high demand in green jobs (Kuczera, 2025[3]). For example, an environment manager qualification has been introduced to meet the growing demand from companies for professionals who can ensure that corporate strategies align with new regulations and fulfil consumer expectations for a sustainable approach. SVQs therefore have significant potential to supply a skilled workforce for the expanding green jobs sectors.
Skills for the green transition also include sustainability skills. These skills are integrated into Finnish vocational qualifications as cross-cutting competence, professional requirements, parts of the qualification or as qualification itself (OPH, 2024[19]). Transversal sustainability topics are covered in mandatory and optional modules in USVQs and the Finnish Agency for Education is currently developing new modules focusing on sustainability skills for FVQs and SVQs.1 (European Commission, 2023[20]). Sustainability issues can also be addressed by a standalone qualification. SVQs that are closely related to environmental sustainability are getting more popular. For example, the SVQ in environmental management is increasingly in demand, marking the 8th most popular SVQ in 2022 (Figure 4.6).
The number of students, new students and qualifications, by year
Source: Statistics Finland (2023[21]), 11c3 -- Students and qualifications in education leading to a qualification (education code), 2004-2022, https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__opiskt/statfin_opiskt_pxt_11c3.px/table/tableViewLayout1/.
Universities of applied science provide professionally-oriented higher education for learners from vocational and general backgrounds
Universities of applied science provide practice-oriented programmes
Finland’s HE system is delivered through two main institutions: universities and universities of applied sciences (UAS). UAS provide a variety of practice-oriented programmes involving applicable exercises, work-placements, and a practical training period. UAS are much more focused on education and practice compared to universities, although UAS do conduct R&D tied into professional working-life. Both types of institutions also have different funding models (OECD, 2022[22]). While both types of universities are accessible for students with either general or vocational upper-secondary education, their entry requirements and evaluation criteria may differ. For example, universities prioritise academic grades and matriculation exam performance, whereas UAS may consider VET qualifications, practical skills and specific entry exams. Consequently, VET graduates more commonly continue their studies at UAS, with few enrolling in universities.
Universities of applied science attract many students from upper-secondary VET
In Finland, all VET students are eligible for enrolment in HE. In comparison, across OECD countries, on average 70% of upper-secondary VET students are enrolled in programmes that give a direct access to HE (OECD, 2022[11]). In 2023, about 44% of UAS entrants at the level of bachelor’s degrees had an USVQ (37% in full-time studies; 56% part-time), and about 35% had a general secondary education qualification only. About 12% had a higher education degree. UAS programmes in engineering, manufacturing and construction record the highest share of entrants with USVQs (see Figure 4.7). A pathway for USVQ to move to UAS bachelor’s programme is thus well developed and used by many studetns – a clear strength of the the Finnish VET system. Only a very small proportion of UAS entrants possess a SVQ, and those who do enrol to UAS, typically study on a part-time basis.
New UAS students in bachelor’s programmes by (selected) field of study in Finland, 2023
Note: Entrants with post-secondary VET include those with matriculation examination and vocational post-secondary or tertiary level qualification; and vocational post-secondary or tertiary level qualification. Entrants to the UAS Natural sciences, mathematics and statistics are not shown due to their small size.
Source: Statistics Finland (2023[18]), 11gg -- New students by prior qualification in, 2000-23, https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__khak/statfin_khak_pxt_11gg.px/table/tableViewLayout1/.
… but with a selective admissions process
The share of individuals with an USVQs among UAS applicants is high and has significantly increased between 2012 and 2022, although there has been a slightly decline in recent years. In 2022, 45% of UAS applicants had completed a USVQ, down from 50% in 2019 (Figure 4.8).
When comparing the number of applicants to the number of new students with a VET background, there were 1.2 candidates per available place (Statistics Finland, 2024[23]). While this may reflect some applicants changing their minds, this ratio may also indicate a degree of selectivity in access to UAS. This selectivity is not unique to UAS. HE admission in Finland is highly selective overall, with over 60% of applicants rejected (OECD, 2019[24]).
Share of applicants to UAS, by prior qualification and year
Source: Statistics Finland (2023[25]), 11gf--Applicants to education by prior qualification, 2012-22, https://pxdata.stat.fi/PxWeb/pxweb/en/StatFin/StatFin__khak/statfin_khak_pxt_11gf.px/table/tableViewLayout1/.
Post-secondary VET in Finland (SVQs) and pathways from upper-secondary VET to higher education have several strengths. Many SVQs equip learners with skills that are in high demand for green jobs and support sustainability. The consistently strong labour market outcomes associated with these qualifications indicate their value to employers. Additionally, the high participation of women in SVQs, including those linked to green jobs, highlights their potential to increase women’s contributions to the green workforce. Finally, upper-secondary VET programmes that provide direct access to higher education, mainly through UAS, enable many VET graduates to continue their studies and acquire advanced skills essential for the green transition.
By refining the existing system, Finland can further enhance the contribution of post-secondary VET to developing high-level skills for the green transition. The section below outlines key areas for improvement, followed by policy options to address them.
SVQs serve relatively few VET graduates
SVQs are primarily designed for professionals seeking to deepen their technical or management skills after gaining work experience and often coupled with a higher education qualification. SVQs are less widely pursued by young people with a VET qualification who lack work experience, a common characteristic of post-secondary non-tertiary VET in other OECD countries. With limited higher education places (OECD, 2022[22]) and growing shortages of skilled workers (OECD, 2022[26]). In addition to their current upskilling role, SVQs could become a more viable upskilling pathway for young VET graduates who find higher education inaccessible.
SVQs are not recognised towards higher-level qualifications in higher education
Although SVQ qualifications provide more advanced and complex skills than USVQs and FVQs, higher education (HE) institutions treat them as equivalent. SVQs are not widely recognised as points for the admissions to UAS or as a basis for credit transfer to shorten the duration of UAS programmes.
By contrast, some countries have established clear pathways between post-secondary VET (in most cases these would be programmes corresponding to ISCED level 5) and HE to facilitate progression from VET to HE. In Denmark, graduates of some (but not all) academy profession programmes can purse a top-up programme of 1.5 years to obtain a professional bachelor’s degree. In Scotland (United Kingdom), some HNC-s and some HND-s allow direct entry into the first or second year of degree programmes (OECD, 2022[11]).
In Finland, UAS prioritise upper-secondary VET qualifications over those with SVQs or other higher-level qualifications. This approach is in line with Finland’s recent reform with the principle of prioritising those who did not have further or higher education, but it limits the use of the only post-secondary non-tertiary option (SVQs) as a stepping stone to HE.
These features of the current approach limit one important, under-used function of SVQs – serving as a bridge to, and possibly providing equivalency or alternatives for some of HE programmes – particularly in the context of the green transition. Currently, individuals pursue SVQs primarily to enhance their professional skills, with few considering HE enrolment. Notably, a significant share of SVQ students already hold a HE degree. However, if SVQs were designed to accommodate a broader range of learners, including young USVQs graduates, stronger connections with HE could encourage enrolment in VET, facilitate a smoother transition to higher education for these students and increase the supply of highly qualified workers for the green transition.
Upper-secondary VET has room for improvement in contributing to building higher-level technical skills
Upper-secondary VET graduates are the key resource for developing the higher technical skills needed for the green transition. However, VET completion rates in Finland are lower compared to general upper secondary education. From an international perspective, Finland’s VET completion rate (63%) is around the OECD average (62%) (also when looking at completion rates by theoretical duration plus two years) (Figure 4.9). This suggests a missed opportunity to fully harness the potential of VET for the labour market and the green economy, with more than one third of students not completing their studies. The relatively low VET completion rate also has a significant impact on the pipeline for higher technical skills.
According to the recent International Survey of Adult Skills (OECD, 2024[27]), adults in Finland have the highest performance on numeracy, literacy and problem solving among the participating countries, but the skills level varies by educational attainment level. Among those who successfully complete VET programmes, shortcoming in basic skills may hinder their transition to HE. This trend is also evident among VET graduates who continue to HE. Among bachelor’s degree students, those with a VET background are less likely to complete their bachelor’s degree compared to peers from general upper secondary education (Figure 4.10). According to the AMIS survey of the Finnish Student Alliance, 60% of respondents reported that the common parts of USVQ programmes do not give them sufficient skills to study at an UAS. Almost two-thirds (63%) of the respondents reported deficiencies in mathematics, and about half (53%) in oral and written language skills. A quarter felt that applying to a university was not worthwhile because they perceived the difficulty in keeping up with studies (Hievanen and Hakamäki-Stylman, 2023[28]; KARVI, 2024[29]).
Completion rates of entrants to full-time upper secondary VET (true cohort), by timeframe (2021)
Note: The data for Canada (2020) and France (2017) concern only pupils in the public educational system. The data presented in this figure only concern upper secondary education programmes so do not include adult education. For true cohort data, the reference year (2021, unless noted otherwise) refers to the year of graduation by the theoretical duration plus two years. See Definitions and Methodology sections for more information.
Source: OECD ad-hoc survey on upper secondary completion rates (2023), in OECD (2023[30]), Education at a Glance 2023: OECD Indicators, https://doi.org/10.1787/e13bef63-en.
Completion rate of ISCED 6 students within 3 years after the theoretical duration of the programme by orientation of upper secondary qualification, 2017
Note: True cohort only.
Source: OECD (2019[24]), Education at a Glance 2019: OECD Indicators, Figure B5.2, https://doi.org/10.1787/f8d7880d-en.
Tertiary education attainment rates in Finland have plateaued
Countries develop the skills needed for highly skilled green employment by expanding higher education (HE), post-secondary VET, or both. As discussed above, the share of young adults with a post-secondary VET qualification (at level 4 and 5) is very low in Finland (see Figure 4.2). Looking at higher levels of education, the share of adults with a qualification at ISCED level 6 or above in Finland is close to the OECD average. Concerningly, unlike many other countries, Finland has not experienced an increase in tertiary education attainment since 2021. This contrasts with the OECD average and countries such as Sweden and Norway, where attainment has continued to grow (OECD, 2024[10]). The EU has set a target of 45% of the EU population aged between 25-34 years to have tertiary education by 2030 (ISCED levels 5 and above). While 13 countries already met that target in 2023, Finland was lagging behind at 39.2% (Eurostat, 2024[31]). Some OECD and EU countries have a substantial ISCED 5 sector, which contributes to high tertiary attainment rates.
To address the challenge of slow growth in tertiary attainment, the Finnish government aims to increase enrollment and completion rates in HE programmes. Currently, the majority of young people completing academic upper-secondary education progress to higher education. To expand HE enrolment and the supply of high-level skills, a greater share of VET graduates should continue their studies. This report argues that diversifying and expanding post-secondary VET in Finland would facilitate this progression.
To address the identified challenges, Finland should prioritise smoother transitions from upper-secondary VET to post-secondary VET while expanding post-secondary VET provision, particularly in green sectors and occupations. Learning from other countries and building upon its flexible system, Finland can strengthen post-secondary VET especially at the SVQ level. The section proposes: i) an expansion of the SVQ offering to include a wider range of sectors and younger age groups and ii) better support for VET students and graduates transitioning to UAS; both of which requires promoting collaboration among VET providers, UAS and industry.
To realise their full potential, diversifying SVQ provision and broadening participation are essential. SVQs capacity and role must be reassessed in the light of current and future needs. SVQs, as a main pathway for higher technical skills, can more actively complement higher education in building a highly skilled workforce equipped to support sustainability objectives.
The proposed policy options would, in principle, reduce the cost of equipping workers with the high-level skills needed by the Finnish economy while supporting Finland’s ambitious environmental objectives. Many skilled technical jobs do not necessarily require a full bachelor's degree; instead, more targeted and applied programs lasting one to two years can offer a more efficient way to develop the necessary skills for these occupations.
Diversify fields of study in SVQs
Finland should first identify gaps in existing SVQs and prioritise fields essential for the green transition. Currently, around 40% of SVQ learners are concentrated in the field of business management. While this field is important for the labour market, including for developing greener management practices, more could be done to balance the offer with more technically oriented qualifications that are vital for employment in green sectors and occupations.
Although direct comparisons with other countries are challenging due to differing post-secondary VET systems, some insights can be drawn. For example, the share of SVQ learners in business and management in Finland (41%) exceeds the OECD average (ISCED 4-5) at 25% (Figure 4.11). The share of STEM (Science, Technology, Engineering, and Mathematics) learners in Finland is smaller (26%) than the OECD average (31%) and countries like Ireland, Israel, New Zealand (50-70%).
Various countries have ramped up their post-secondary VET provision in green-related fields. For example, Austria has set up a Photovoltaic Academy, while Sweden provided a wide range of higher VET programmes in wind and solar power, sustainable battery production, and engineering for sustainable construction (see Box 4.2). In addition, Sweden launched several initiatives to expand STEM fields, including within its post-secondary VET (Higher Vocational Education or Yrkeshögskolan). In 2024, the Swedish government announced plans to introduce a comprehensive STEM strategy aimed at increasing the number of individuals with strong knowledge in STEM disciplines. This strategy is set to encompass the entire education system, from preschool to university, including post-secondary VET (Eurydice, 2024[32]; Freeman, 2024[33]). Italy has also reformed Higher Technological Institutions – or ITS Academies (Istituti Tecnologici Superiori) to increase supply of highly skilled technicians to accompany the green transitions. Key areas include: ‘energy efficiency’, aiming at training high-skilled technicians for energy saving in sustainable buildings, for energy supply and plant construction and for the management of energy systems and certification of operation of energy plants; and ‘sustainable mobility’, aiming at training high-skilled technicians for the production and maintenance of transportation, related infrastructure and logistics (European Commission, 2023[20]).
Distribution of students enrolled in ISCED 4-5 programmes, by field of study (2022)
Note: ‘STEM’ includes engineering, manufacturing and construction; natural sciences, mathematics and statistics; and Information and Communication Technologies (ICTs). ‘Other’ include education, arts and humanities, social sciences, journalism and information, health and welfare and services.
Source: Based on OECD (2024[34]), OECD Data Explorer, https://data-explorer.oecd.org/.
Given the emerging technical skill needs for the green transition, it would be beneficial to expand STEM fields in SVQs in Finland to drive innovation and maintain global competitiveness. Expanding STEM fields in SVQs would provide more diverse entry points into technical careers and opportunities to upskilling within technical roles.
SVQs can contribute to making STEM education accessible to a broader range of learners. As Finland faces one of the largest gender gaps in STEM fields at the tertiary level, with only 15% of female entrants choosing STEM, compared to 41% of male learners (OECD, 2024[10]), expansion of STEM-related SVQs should be coupled with efforts to promote these among female learners. SVQs are well-suited for this purpose, as these qualifications are already more popular among women than men. Additionally, in engineering, manufacturing, and construction programs, female and male learners are equally represented. Targeted support for gender equality and a comprehensive STEM strategy could contribute to these efforts.
SVQs should continue to focus on practice-oriented skills, also in STEM fields. Industry led initiatives such as Erasmus+ Voltage project (2024-28) and ALBATTS project (2019-23) highlighted the need for more practical training in programmes preparing for green jobs, a need that SVQs can help to partially address.
Austria’s Photovoltaic Academy and Green Village Training Centre
In Austria, a higher technical college set up a Photovoltaic Academy in the Lower Austria region in 2022, in partnership with public authorities, enterprises and social partners in response to high demand for skilled workers in the field of photovoltaics. Training consists of several modules that cover theory as well as a ‘module practical day’. Another higher technical college (BULME in Graz) established the Green Village Training Centre (GVTC) as part of National Green Skills Competence Centres. The Centre concentrates on green technology in every course of initial and continuing VET offered by the college and gives students the chance to become familiar with all types of renewable energy through hands-on experience of equipment loaned by industry (European Commission, 2023[20]).
Sweden’s post-secondary VET has been expanding to provide skills for the green transition
Swedish post-secondary VET (yrkeshögskolan) is set to grow by 15% between 2023 and 2026 (MYH, 2023[35]), reflecting the need for new training and retraining to support the green transition and digitalisation (SCB, 2023[36]). This expansion is accompanied by a budget increase of 15% over three years.
In 2024 alone, over 40 000 new training places were approved across 477 higher VET programmes, including 124 in Engineering and Manufacturing (MYH, 2024[37]). Among others, additional training opportunities are being introduced in industrial production, energy and food production. These include programmes in maintenance technology, CNC technology, operations technology, wind power technology and food manufacturing and handling. Key educational specialisations such as electric power technicians and process technicians are also expanding. Furthermore, two new programmes, Designer of Battery Electrical Systems and Quality Technician in Battery Manufacturing, have been introduced to meet emerging industry needs. The Built Environment and Building Technology education sector is also growing, driven by sustainability requirements, climate adaptation, and infrastructure investment needs. Specialisations such as Water and Wastewater Designer and Operation and Maintenance Engineering in HVAC are expanding, with a focus on water supply and energy efficiency in buildings (MYH, 2024[37]).
More broadly, green transition is integrated into the goals of post-secondary VET in Sweden. MYH actively integrates Agenda 2030 for Sustainable Development into its operations, using specific Agenda 2030 targets to guide course prioritisation. Aligned with Sweden’s goal of net-zero emissions by 2045, MYH promotes its education and training that supports this objective. Its strategies include encouraging higher VET providers to outline their contributions to Agenda 2030, incorporating sustainability into quality assessments, and using Agenda 2030 as a framework for course selection. Additionally, MYH recommends expanding vocational education to address green skills shortages, enhancing lifelong learning, and aligning courses with labour market demands (Swedish Parliament, 2023[38]).
Source: MYH (2023[35]), Grön omställning och digitalisering i fokus när MYH gör sig redo för ny expansion, www.myh.se/nyhetsrum/nyheter/gron-omstallning-och-digitalisering-i-fokus-nar-myh-gor-sig-redo-for-ny-expansion; MYH (2024[37]), Storsatsning på teknik och grön omställning när YH växer, www.myh.se/nyhetsrum/nyheter/storsatsning-pa-teknik-och-gron-omstallning-nar-yh-vaxer; SCB (2023[36]), Trender och Prognoser 2023, www.scb.se/contentassets/3c424ebe4366403da0d30dfba52fba87/uf0515_2023a01_br_am85br2401.pdf; Swedish Parliament (2023[38]), SOU 2023:31 - Yrkeshögskolans roll i omställningen mot ett hållbart samhälle, https://data.riksdagen.se/fil/2D330ED3-0DF1-434C-8149-061D25196031.
Attract younger learners to SVQs
As discussed above, SVQs typically attract older learners who already have some years of work experience and those in green-relevant fields often hold a higher education degree. While SVQs should continue to play the important role of providing upskilling or reskilling opportunities to (employed) adults, they could also be accessible to young learners coming from USVQ and looking to develop higher-level skills within their field. This may require adapting the design and delivery of SVQs to better suit younger learners. Building pathways from SVQs to university degrees, as discussed below, could also improve their attractiveness to younger learners.
Given the intense competition for limited HE study places in Finland, SVQ could be positioned as an alternative to higher education, especially to those with USVQ. It could be an interesting option for those learners who are looking for more practice-oriented training than that offered by UAS or universities, and/or for whom the UAS and university programmes are too long. Moreover, if an offer of green-relevant SVQs is available, this could be attractive for young learners who want to enter green jobs without having to go through lengthy HE programmes.
Many countries diversify post-secondary VET offer to address the needs of different learners. For example, in Denmark, Academy Professional programmes are available full-time for young students and part-time for adults returning to education. Similarly, Austria provides a range of programmes tailored to various learner needs (see Table 4.2 below for other countries’ examples).
Key features of programmes at ISCED 5 level
Source: OECD (2024[16]) Higher Technical Education in England, United Kingdom: Insights from Selected International Experience, https://doi.org/10.1787/7c00dff7-en.
Facilitate the recognition of SVQs in UAS programmes
Recognising SVQs in UAS programmes presents a significant opportunity to enhance the attractiveness and efficiency of post-secondary VET pathways for upper-secondary VET qualification holders. However, this recognition is not automatic in Finland. Few UAS in Finland acknowledge SVQs for admission points or credits and information about which UAS currently recognise SVQs for those is not readily available.
As described above, very few UAS students have an SVQ as highest prior education level, which is not surprising given that UAS students are typically much younger than SVQ learners and SVQs account for a tiny share of learners. This contrasts with countries such as Sweden where post-secondary VET caters to a variety of learners and where around 13% of graduates from post-secondary VET transfer to university within three years from completion (Statistics Sweden, 2022[39]).
In some countries, VET at ISCED levels 4 or 5 is used as a stepping stone towards ISCED level 6 programmes. In Austria and Flanders, for example, obtaining a short-cycle tertiary qualification (BHS programme and associate degree respectively) opens access to bachelor’s level programmes. In Denmark, Academy profession (ISCED level 5) graduates may pursue programmes at a higher ISCED level within the same field. In France, professional bachelor’s programmes (Licence Professionnelle) typically take three years to complete, but students with one year of ISCED level 5 studies can earn the qualification in two additional years, while those with a two-year programme need only one additional year to graduate (Box 4.3) (OECD, 2022[11]).
But such articulation arrangements are often dependant on individual institutions and are not systematic. A study of higher VET in Europe noted the insufficient recognition of learning outcomes from postsecondary programmes in bachelor’s level tertiary education. Sometimes post-secondary VET programmes and higher levels of education belong to different sectors in terms of governance, making transitions difficult. VET institutions have to laboriously negotiate articulation arrangements on a programme by programme, and institution by institution basis. The fact that higher education institutions often have limited incentives to grant course exemptions can make establishing articulation agreements even more difficult. When pathways are not well established, students have to repeat course material, if they are not deterred from further studies by the prospect of repetition (OECD, 2022[11]).
Professional bachelor’s programmes (Licence Professionnelle) usually take three years to complete. Students who have completed one year of studies at ISCED level 5 in a relevant field and validated 60 ECTS, obtain a professional bachelor’s qualification after two years of additional studies. Those who completed a two-year programme, which yields 120 ECTS, need to pursue only one additional year of study to obtain a professional bachelor’s degree. Given the widespread use of the progression path from two-year technological diplomas (DUT) to professional bachelor’s degrees (over 85% of DUT graduates moved on to complete a professional bachelor’s programme), the two programmes were consolidated in 2020 through the introduction of three-year “bachelor of technology” (BUT) qualifications (OECD, 2022[11]).
Expanding and systematising pathways between SVQs and UAS degrees could yield considerable benefits: greater recognition would reduce barriers for SVQ holders to enter UAS as upskilling pathway, potentially shorten study durations and increase UAS completion rate among vocational qualification holders. While SVQs should continue to focus on practice-oriented learning and labour market entry/outcomes, the possibility of using SVQs as a stepping stone towards UAS could also make them more attractive to some learners, such as USVQs graduates.
Finland’s existing modular VET system offers a strong foundation for implementing a more systematic approach to the recognition of SVQs in UAS. The units-based system in VET (see Chapter 3) allows for recognition of prior learning and enables individuals to “mix and match” units from various providers (OECD, 2023[40]). This system could be extended to the post-secondary level to establish equivalencies between SVQs and UAS units. Additionally, SVQs obtained through apprenticeships or other types of work-based learning could replace compulsory on-the-job training or internship requirements in UAS programmes, thereby reducing redundancy and shortening study durations. Establishing clear guidelines and frameworks for recognising SVQs at the national level, supported by collaboration between VET providers and UAS, would ensure consistent and equitable implementation. By adopting these measures, Finland could strengthen the pathways within its post-secondary VET system.
Collaboration across different levels including VET providers and the universities within specific sectors, as argued in Chapter 3, should facilitate this recognition and creation of qualifications spanning different education levels.
Provide opportunities for the development of basic skills in SVQs
Currently, there are no common units involved in SVQs because of the nature of SVQs as short labour market upskilling tools for workers, other than units providing sustainability skills that will be added to SVQs to facilitate the green transition. However, there are arguments for including common units that provide essential skills such as numeracy and literacy for learners who may need them. Green jobs, particularly those emerging from the green transition and those with evolving responsibilities, demand high-level technical and analytical skills, as well as soft skills in management and leadership. Strong core competencies, such as numeracy and literacy, are essential for developing these more advanced skills required in green jobs. The suggested inclusion of common units in SVQs could benefit adults returning to education, whose basic skills may have deteriorated over time, as argued in (Education Evaluation Centre (FINEEC), 2024[41]), as well as young VET graduates who may not have acquired these skills initially. Adding basic skills units depending on learners’ skill levels could address the problem of weak basic skills among some VET graduates. This could also help establish clearer pathways from SVQs to UAS, as argued below, since SVQs that incorporate basic skills may better prepare students for further studies.
The inclusion of common units in SVQs may in some cases extend their duration and strengthen the focus on general competencies. Depending on their duration and content, some of these programs may align more closely with ISCED 5 programmes found in other countries rather than ISCED 4.
References
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← 1. The vocational competence requirements in the unit include the examination of the background of climate change, the presentation of the impacts and solutions to climate change and the enhancement of work with climate responsibility. Students demonstrate their competence through practical tasks on climate responsibility in their chosen vocational field.