Questions and answers related to compulsory education

The objective of extending compulsory education is to raise the level of education and competence at all levels of education, to bridge learning gaps, to improve equality and non-discrimination in education and to enhance the wellbeing of children and young people.

The aim is for every young person to complete upper secondary education. As requirements for skills, knowledge and competence increase, jobseekers are expected to hold at least an upper secondary qualification.

The extension of compulsory education entered into force in 2021 in a staggered way, one age group at a time. The Act on Compulsory Education entered into force on 1 August 2021, but the obligation to apply already entered into force on 1 January 2021. In practice, the obligation to apply for and study in upper secondary education applies to those young people who were in year 9 of comprehensive school education in spring 2021 (mainly those born in 2005). From this age group onwards, the extension of compulsory education applies to all young people transitioning from comprehensive school education to upper secondary education.

The extension of compulsory education applies to those who are in compulsory education and who have participated in the comprehensive school syllabus (basic education syllabus) on or after 1 January 2021. Those whose compulsory education terminated before 1 January 2021, as governed by section 25 of the Basic Education Act prior to the amendment of 1 August 2021, are not within the scope of the extension of compulsory education. Under this provision in the Basic Education Act, compulsory education ends when the comprehensive school syllabus (basic education syllabus) has been completed or ten years after the student started compulsory education. This means that the extension of compulsory education does not apply to those born in 2003 or earlier, even if they are still studying the comprehensive school syllabus (basic education syllabus). This is because their compulsory education obligation under the Basic Education Act comes to an end before 2021.

Under the Act on Compulsory Education, children residing permanently in Finland must attend compulsory education. When applying the Act on Compulsory Education, children with a municipality of residence within the meaning of the Municipality of Residence Act (201/1994) are deemed to be permanently residing in Finland. All those who have a municipality of residence entered in the population information system fall within the scope of compulsory education. Those with no municipality of residence do not belong within the scope of compulsory education. Those who reside temporarily in Finland for the purpose of studying (e.g. exchange students) and do not have a municipality of residence referred to in the Municipality of Residence Act do not belong within the scope of the Act on Compulsory Education and the related education free of charge. 

Education providers are responsible for verifying whether or not students have a municipality of residence. For example, a person’s nationality is irrelevant when determining whether he or she belongs within the scope of compulsory education.

As of 1 August 2022, the Act on Compulsory Education was amended so that individuals have the right to be exempted from compulsory education if they are residing in the country for study purposes (holders of a residence permit for studies). It is possible to apply for exemption from compulsory education by submitting an application to the municipality of residence. The municipality then makes a decision based on the application. Exemption from compulsory education means that exempted students are not entitled to education free of charge referred to in the Act on Compulsory Education.

The extension of compulsory education does not apply to young people whose municipality of residence is in Åland, because under the Act on the Autonomy of Åland, the Province of Åland has legislative powers in matters such as education and apprenticeship training.

Under the Act on Compulsory Education, students within the scope of compulsory education who are permanently resident in Finland are also considered to be attending compulsory education if they are studying in education in Åland that corresponds to the education referred to in the Act on Compulsory Education. In other words, compulsory education can also be pursued in an educational institution in Åland. However, educational institutions located in Åland do not fall within the scope of the guidance and supervision responsibilities laid down in the Act on Compulsory Education or to the provision of upper secondary education free of charge.

It has not been stipulated that an administrative decision should be made on the inclusion of learners within the scope of compulsory education and education free of charge; in other words, it does not need to be expressly stated in an administrative decision in connection with student admissions. However, education providers must make a record in the Koski data repository that the education the student is enrolled in is free of charge as referred to in section 16 of the Act on Compulsory Education (section 9c of the Act on National Registers of Education Records, Qualifications and Degrees). In other words, it is the duty of the education providers to determine each student’s right to education free of charge. See also the question: Is the information on education free of charge correctly recorded in the Valpas service? 

However, an administrative decision is always made when compulsory education is being put on hold as referred to in section 7 of the Act on Compulsory Education. An administrative review of a decision to put compulsory education on hold may be requested from the Regional State Administrative Agency within 14 days of receiving notification of the decision.

A learner’s compulsory education may be examined indirectly under an administrative decision if the learner requests an administrative decision on the right to education free of charge in accordance with section 17, subsection 3 of the Act on Compulsory Education. For more information, see the question: Is an administrative decision given on whether education is free of charge? How can an appeal be lodged on a decision involving education free of charge? 

Compulsory education ends when the student reaches the age of 18 or when they complete an upper secondary qualification before the age of 18 (a matriculation examination or a vocational qualification) or when an equivalent qualification is gained abroad. 

Compulsory education does not end when a learner within the scope of compulsory education completes preparatory education and training for working life and independent living (TELMA) before the age of 18; instead, the law requires the learner to complete an upper secondary qualification. In preparatory education and training for work and independent living, the completion time is determined on the basis of the student’s personal needs and capabilities. The VET provider decides on the completion time for the education and it may not be more than three years in duration. In the case of learners within the scope of compulsory education, care should also be taken to ensure that the duration of studies is long enough to enable the students to complete their compulsory education in preparatory education and training for working life and independent living.

After the age of 18, the Act on Compulsory Education no longer applies to learners except for the sections on education free of charge. Learners may, if they wish, put their studies on hold, and such a temporary discontinuation in studies is subject to the legislation governing the relevant education. Moreover, the provisions in the Act on Compulsory Education on the responsibility for guiding and supervising learners no longer apply.

The right to education free of charge under the Act on Compulsory Education continues until the end of the calendar year in which the student turns 20. Students aged 18 or over may also change their place of study within this time period, and the new studies remain free of charge. However, studies that start after the end of the calendar year in which the student turns 20 are no longer free of charge in any circumstances. See also the question: On what grounds can education free of charge be extended?

Under the Act on Compulsory Education, the municipality of residence is notified if the learner within the scope of compulsory education is under 18 years of age. However, the municipality of residence does not assign a student place if the learner turns 18 before the end of the two-month period set for assigning a student place. The municipality of residence is obliged to provide guidance related to applying as well as other guidance, however, until the learner within the scope of compulsory education reaches the age of 18.

Provisions on compulsory comprehensive school education (also known as primary and lower secondary education or  basic education) are laid down in section 26, subsection 1 of the Basic Education Act. This provision applies to participation in comprehensive school education intended for children. Compulsory education must take place in comprehensive school education for children until the primary and lower secondary school syllabus (comprehensive school syllabus) has been completed, but not beyond the end of the school year in the calendar year in which the student turns 17. See the question: What happens if a student in comprehensive school education (also known as primary and lower secondary education or basic education) turns 17 but fails to complete the primary and lower secondary school syllabus (also known as comprehensive school syllabus or basic education syllabus) by the end of the spring term?

Compulsory education may also be completed in instruction preparing for primary and lower secondary education referred to in section 5, subsection 1 of the Basic Education Act. Instruction preparing for primary and lower secondary education is not provided for students whose obligation to participate in primary and lower secondary education referred to in section 26, subsection 1, has ended. After this date, learners within the scope of compulsory education have an obligation to apply for other forms of compulsory education. See the question: Which programmes offer compulsory education after comprehensive school education (also known as primary and lower secondary education or basic education)?

The extension of compulsory education applies to post-comprehensive school education. Provisions on completing compulsory education after comprehensive school education are laid down in sections 4 and 5 of the Act on Compulsory Education.

Compulsory education after comprehensive school education is mainly completed in general upper secondary education or in vocational education and training. In general upper secondary education, you can finish compulsory education by completing the general upper secondary school syllabus intended for young people or adults. Vocational education and training allows you to complete an initial vocational qualification or a further vocational qualification. Participation in the matriculation examination is also considered to be one way of completing compulsory education. Compulsory education ends when you complete a matriculation examination or a vocational qualification.

It can also take place in education provided for the transition phase between comprehensive school education (primary and lower secondary education) and upper secondary education. In autumn 2022, education programmes in the transition phase, such as the voluntary additional basic education (also known as tenth grade), preparatory education for general upper secondary education (LUVA) and preparatory education for vocational education and training (VALMA) merged into a new, cohesive education package called preparatory education for programmes leading to a qualification (TUVA).

Compulsory education may also be completed in folk high school programmes intended for students who are required to attend compulsory education. Students in need of intensive special needs support can complete their compulsory education in preparatory education and training for work and independent living (TELMA).

Saami people within the scope of compulsory education may also complete their compulsory education in the Saami language and culture programme provided by the Sámi Education Institute over a period of at least one academic term.

Students who have not completed their primary and lower secondary school syllabus (comprehensive school syllabus) at the end of the school year in the calendar year in which they turn 17 may pursue the compulsory education programme in the meaning of comprehensive school education for children referred to in section 26 of the Basic Education Act or switch to comprehensive school education intended for adults. See the question: What happens if a student in comprehensive school education (also known as primary and lower secondary education or basic education) turns 17 this year but cannot complete the primary and lower secondary school syllabus (also known as comprehensive school syllabus or basic education syllabus)? Compulsory education may also be take place in other programmes referred to above if it is deemed that the students have the necessary skills even though they have not completed the primary and lower secondary school syllabus (comprehensive school syllabus) and are admitted as a student to such a programme.

Students with a migrant background whose proficiency in Finnish or Swedish is insufficient for education beyond comprehensive school education (primary and lower secondary education) may complete their compulsory education by attending comprehensive school education intended for adults or programmes designed for immigrants provided by folk high schools.

Compulsory education can be completed in apprenticeship training. The extension to compulsory education did not change the responsibilities of workplaces. Education providers are responsible for guiding and supervising compliance with the Act on Compulsory Education.

Under the Act on Compulsory Education, students within the scope of compulsory education must make progress in their studies based on their personal study plans. In connection with extending compulsory education, a provision (section 44) was added to the Act on Vocational Education and Training, under which the personal competence development plan must be drawn up for learners within the scope of compulsory education in such a way that the duration of the vocational qualification specified in the plan does not exceed four years. The extension of compulsory education did not change the requirements related to the working hours in apprenticeship agreements.

Under the Act on Compulsory Education, education providers must monitor the students’ progress in their studies and inform their parents, guardians and other legal representatives if the students do not complete their studies as outlined in their study plan. There are no detailed provisions on how to carry out the monitoring. Instead, education providers and employers may make an agreement on them, if necessary.

There are provisions in the Act on Compulsory Education on the guidance and monitoring responsibilities of education providers. If a learner within the scope of compulsory education is planning to put his or her studies on hold, under the Act on Compulsory Education, the education provider, together with the learner and his or her parents, other guardians or legal representatives, must explore what options the student might have of studying in another learning environment or of applying for other studies. If necessary, the alternatives can be explored together with a different education provider. Learners within the scope of compulsory education cannot notify that they are dropping out if they do not have a new student place. Learners within the scope of compulsory education who discontinue their apprenticeship training must continue their studies in other learning environments, unless they have secured a new student place.

In comprehensive school education for adults, compulsory education is completed by participating in studies at the introductory or the final phase of comprehensive school education intended for adults. Compulsory education cannot be completed by just participating in subject studies, which are designed for completing only one or more subjects included in the primary and lower secondary school syllabus (comprehensive school syllabus).

Students who complete merely subject studies in general upper secondary school are not considered to have completed compulsory education. In vocational education and training, as a rule, the students’ objective should be to complete a vocational qualification. However, for the purposes of compulsory education, completing units of a vocational qualification may also be taken into consideration if, based on the student's personal capabilities, completing the whole qualification is not justified and this has been entered in the student's personal competence development plan.

Under section 4, subsection 4 of the Act on Compulsory Education, students within the scope of compulsory education are also considered to be attending compulsory education if they are taking part in education that corresponds to the education referred to in the Act on Compulsory Education either in Åland or abroad. In this context, studying abroad refers to a situation where a learner within the scope of compulsory education is physically studying in an educational institution located abroad, in the regions near the border regions of Finland, Sweden and Norway, for example. However, compulsory education cannot be completed as distance or online studies provided by a foreign educational institution.

The premise is that compulsory education is completed in education and training as referred to in section 4 of the Act on Compulsory Education. This way the chain of guidance and monitoring responsibilities is clear and learners within the scope of compulsory education are given support for their studies.
 

It is possible to complete compulsory education without taking part in instruction. Different ways to complete compulsory education without taking part in instruction include completing a special examination in general upper secondary school or participating in demonstrations related to vocational education and training. In such cases, the students within the scope of compulsory education themselves are responsible for acquiring the competence.

In general upper secondary education, you can complete compulsory education in the form of a special examination within the meaning of section 36 of the Act on General Upper Secondary Education. In such cases, students within the scope of compulsory education themselves must contact the general upper secondary school where they wish to complete the tests related to the special examination, and draw up a personal study plan. Under the Act on Compulsory Education, the education provider that receives the tests for the special examination is responsible for guiding and supervising that the students complete their compulsory education.

In vocational education and training, compulsory education can be completed by participating in demonstrations or by demonstrating competence in other ways. In such cases, the students in compulsory education themselves must contact the vocational institute where they wish to perform the competence-based demonstrations. A personal competence development plan (HOKS) is drawn up for them as students within the scope of compulsory education. Under the Act on Compulsory Education, the education provider that receives the competence-based demonstrations is responsible for guiding and supervising that the students complete their compulsory education.

Under earlier provisions on compulsory education (section 25 of the Basic Education Act), compulsory education ended once the primary and lower secondary school syllabus was completed or 10 years had passed since the beginning of compulsory education. Now, compulsory education ends at the age of 18. Under section 26 of the Basic Education Act, comprehensive school education (primary and lower secondary education; also known as basic education) for children, ends when the primary and lower secondary syllabus has been completed or at the latest at the end of the school year in the calendar year in which the student turns 17. After this, local authorities are no longer obliged to provide comprehensive school education for the learner. The regulations governing the completion of comprehensive school education correspond to the general interpretation of the completion of comprehensive school education for children that preceded the extension of compulsory education.

Students who fail to complete the school-leaving certificate in comprehensive school education within the scope laid down in law must be guided to the most expedient form of education, such as comprehensive school education intended for adults or other compulsory education programmes. The education provider, in cooperation with other actors, must consider the education path best suited for each learner. In some situations, it may be better for a student to switch to preparatory education, for example, and to progress from there to upper secondary education rather than to continue in comprehensive school education. 

The Act on Compulsory Education was amended as of 1 August 2022 so that compulsory education can also be completed by continuing to study in comprehensive school education for children, as referred to in section 26 of the Basic Education Act, if it suits the provider of comprehensive school education. Municipalities and other providers of comprehensive education make provision for this on a voluntary basis. In connection with guidance, it must always be considered on a case-by-case basis whether it is the best option for learners within the scope of compulsory education to continue their comprehensive school education, taking into account their overall situation and need for special support. The best interests of the learner within the scope of compulsory education must be taken into account in the consideration.

For more information, see the question: Which programmes offer compulsory education after comprehensive school education (also known as primary and lower secondary education or basic education)?

Studies and qualifications within the scope of compulsory education must progress according to the student's personal study plan (Section 6 of the Act on Compulsory Education). This means that each student's individual objectives and capabilities are taken into account when attending and completing compulsory education.

Under the Act on General Upper Secondary Education, the syllabus for general upper secondary education must be completed within four years, unless the education provider grants the student additional time to complete the studies due to illness, disability or some other special reason. Based on the Act on Vocational Education and Training, a personal competence development plan must be drawn up for each student in such a way that the duration of the vocational qualification studies specified in the plan do not exceed four years.

Education providers are responsible for supervising their students’ study progress. If a student in compulsory education is not making sufficient study progress, the education provider must inform the student’s parents, guardians or other legal representatives of the situation. In addition, education providers must examine the adequacy of the support measures the student in compulsory education has received and, if necessary, guide the student to seek access to other appropriate services.

Provisions on putting compulsory education on hold are laid down in section 7 of the Act on Compulsory Education. The grounds for putting compulsory education on hold apply to both students in comprehensive school education (basic education) and those in upper secondary education.

The grounds for putting compulsory education on hold are:

1. long-term illness or disability that prevents the student from attending compulsory education
2. pregnancy leave or parental leave
3. temporary stay abroad (e.g. exchange studies, family moves abroad temporarily)
4. other weighty reasons relating to the learner’s life situation that prevents the learner from attending compulsory education.

It is possible to put on hold compulsory education on application both during comprehensive school education (basic education) and in post-comprehensive school compulsory education. The student, the student’s parents, custodians or other legal representative may decide to apply for the student to put his or her compulsory education on hold. The decision to put compulsory education on hold is made by the education provider or, if the student within the scope of compulsory education does not have a student place, their municipality of residence.

As a rule, the decision to put compulsory education on hold is made for a fixed period, i.e. for the estimated duration of the condition that prevents the completion of compulsory education. The guiding principle for temporarily putting studies on hold is that the learner within the scope of compulsory education returns to continue the studies after the reason for putting the education on hold has terminated or ceases to exist. However, a learner’s situation may be reviewed once the deadline has been reached and may be extended if the conditions for putting studies on hold as laid down in legislation are met. Compulsory education may be put on hold until further notice only if an illness or disability that prevents participation in compulsory education is of a permanent nature. For more information, see the question: When can compulsory education be put on hold until further notice and can a learner return to compulsory education after having made a decision to put on hold their compulsory education studies?

The provision in section 7 of the Act on Compulsory Education does not apply to short-term absences due to illness. Education providers decide on the practices related to short-term absences.

Compulsory education may be put on hold for the duration of a temporary stay abroad if the student within the scope of compulsory education does not participate in education that complies with the Finnish curriculum and Finnish legislation. (For more information, see the question: Students in compulsory education intending to become an exchange student or to live abroad temporarily. How is it done?) 

If the reason for applying for putting compulsory education on hold is due to an illness or disability or a difficult life situation, before making a decision, the decision-maker must establish whether it is possible to participate in compulsory education by means of individual choices, personalisation of studies, necessary support measures or reasonable adjustments. For example, a doctor’s opinion and, if necessary, multiprofessional expertise are used when assessing the situation.

In other words, it would be possible to put compulsory education on hold on the basis of an illness or disability only if the illness or disability of the student within the scope of compulsory education is such that it is not considered possible for the student to complete the studies even with the help of statutory support measures and special arrangements. When putting compulsory education on hold, various options for completing the studies must also be taken into account. A student’s personal competence development plan or personal study plan may be reviewed in the context of their life situation. In such cases, it is possible to agree on measures such a temporary slowing down of the pace of completing studies or on completing studies in alternative learning environments and to enable students to complete their studies also in a challenging life situation without having to put their compulsory education altogether on hold.

The permission to put compulsory education on hold is applied for from the education provider with whom the student within the scope of compulsory education is enrolled when submitting the application. It does not matter if the application for putting compulsory education on hold is actually meant for studies other than those of the education provider in question. If the student within the scope of compulsory education is not enrolled with any education provider, the permission for putting compulsory education on hold is applied for from the municipality of residence of the student within the scope of compulsory education. See also the questions: ”For what reasons can compulsory education be put on hold? Does it also apply to students in comprehensive school education (basic education)?” and “When can compulsory education be put on hold until further notice and is it possible to take up the compulsory education studies later?” 

There is no deadline for submitting an application. However, in practice, the application should be submitted once the grounds for granting permission for putting studies on hold are known. Sufficient time must also be reserved for processing the application. Education providers and municipalities provide more detailed instructions and decide on the procedures for submitting applications.

As a rule, the point in time when compulsory education is put on hold starts at the earliest when the application is submitted, even if the circumstances had already begun before it was submitted. However, if the permission to put studies on hold is due to a long-term illness, it may apply retrospectively from the date when the illness prevented the student from attending compulsory education if, at the onset of the illness, it was not possible to assess the duration of the illness and the possible need for applying to put compulsory education on hold. The duration of the studies that have been put on hold has a bearing on how far free education can be extended.
 

The provisions in the legislation governing education that relate to putting studies on hold (e.g. section 23 of the Act on General Upper Secondary Education and section 96 of the Act on Vocational Education and Training) do not apply to students within the scope of compulsory education. The legislation does not prevent students within the scope of compulsory education from holding a right to study in two places at the same time, but they must make progress in their studies in both places, and both education providers are responsible for providing guidance and monitoring under the Act on Compulsory Education. It is possible for learners within the scope of compulsory education to switch temporarily to other studies and return to their original studies later, if an agreement is made with the education provider. In such cases, no administrative decision that is admissible for appeal is made on putting the original right to study on hold; instead, it is called an absence for valid reasons. In these situations, both education providers are responsible for guidance and monitoring. Such cases may arise, for example, if a student switches to TUVA training for a short period during studies leading to a qualification or is temporarily completing studies elsewhere because the family has relocated temporarily or because the learner has a placement in accordance with the Child Welfare Act.

Students within the scope of compulsory education who change the place where they study for a longer period of time must quit their earlier studies. In such cases, the responsibility for guidance and monitoring is transferred to the new education provider. Students within the scope of compulsory education may return to their earlier studies through the student admissions procedure. Putting compulsory education on hold referred to in section 7 of the Act on Compulsory Education means that the learner within the scope of compulsory education does not complete any of the studies included in compulsory education during the period when the studies are on hold.

Compulsory education may be put on hold until further notice only if an illness or disability that prevents participation in compulsory education is of a permanent nature. The option to put compulsory education on hold until further notice is intended for situations where there are no grounds for temporarily putting compulsory education on hold, if it can be deemed in advance that an illness or disability will prevent the learner from attending compulsory education also after the deadline for compulsory education has been reached.

Compulsory education studies must not be put on hold until further notice if it is deemed possible that the learner might be able to complete compulsory education at a later date. As a rule, the primary option is always a decision to put studies on hold temporarily.

Students are statutorily considered to have discontinued their studies if their compulsory education is put on hold until further notice (legislative amendment entered into force on 1 August 2022). In such cases, no separate administrative decision is made on the discontinuation of studies. However, putting compulsory education on hold until further notice is subject to a special notification obligation. Before making a decision, the education provider must inform the student within the scope of compulsory education and his or her parent, guardian and other legal representative that the student will be deemed to have dropped out if the student puts his or her compulsory education on hold until further notice. Even if the completion of compulsory education has been put on hold until further notice, learners within the scope of compulsory education always have the right to take up their compulsory education again if circumstances change. Learners can take up their studies again and attend compulsory education by submitting a new application for education.

If a learner within the scope of compulsory education is planning to put his or her studies on hold, the education provider, together with the learner and his or her parents or other guardians, must explore what options the student might have of studying in another learning environment or of applying for other studies. If necessary, the alternatives can be explored together with a different education provider. In addition, education providers must examine the adequacy of the support measures the student within the scope of compulsory education has received and, if necessary, guide the student to seek access to other appropriate services.

If a student in compulsory education notifies that he or she intends to discontinue studying in the educational institution, i.e. that he or she intends to drop out, such a decision cannot be made until the student has shown that he or she has secured a new student place. If a student in compulsory education is about to lose their right to study due to many absences, the education provider must look into the student’s situation before making a decision to forfeit the student’s right to study. Before a student can be considered to have dropped out, the education provider must inform the student within the scope of compulsory education and his or her patents, guardians and other legal representatives that the student may be considered have dropped out if he or she is absent from instruction for no justifiable reason.

If the education provider does not receive information that the student within the scope of compulsory education has started studying at another educational institution, a notification should be made to the local authorities of the municipality where the student resides.
No sanctions are imposed on students within the scope of compulsory education themselves for neglecting their compulsory education studies.

The parents, guardians or other legal representatives of students in compulsory education must make sure that their children complete their compulsory education studies (Section 9 of the Act on Compulsory Education). If parents or other guardians intentionally or by gross negligence neglect their duty to supervise that their child within the scope of compulsory education completes compulsory education, they may be sentenced to a fine for failing to supervise their child (Section 22 of the Act on Compulsory Education). For more information, see the question: What is the responsibility of parents and other guardians for supervising that their children within the scope of compulsory education complete their compulsory education?

The provisions on the discontinuation of studies in the legislation related to education and training (e.g. section 24 of the Act on General Upper Secondary Education and section 97 of the Act on Vocational Education and Training) determine when and how students within the scope of compulsory education are considered to have discontinued their studies (dropped out). However, there are certain procedures related to considering a student to have dropped out that only apply to students within the scope of compulsory education.

Students within the scope of compulsory education must be classified as a dropout within one month of the last time they participated in instruction. A special notification obligation is also required if a student within the scope of compulsory education is to be deemed a dropout. Before a student within the scope of compulsory education can be considered to have dropped out, the education provider must inform the student and his or her patents, guardians and other legal representatives that the student may be considered to have dropped out if he or she is absent from instruction for no justifiable reason. The purpose of the notification obligation is to inform students and their parents and guardians of the consequences of absence from teaching.

Section 8 of the Act on Compulsory Education includes provisions on how learners can pursue their compulsory education when their right to study has been forfeited for a fixed period of time. Forfeiture of the right to study means suspending a student or withholding the right to study on the grounds laid down in legislation on education. In such cases, the education provider, together with the student within the scope of compulsory education and his or her parent, guardian or other legal representative, must draw up a plan for pursuing compulsory education during the fixed-term suspension or when the right to study has been withheld. If a learner within the scope of compulsory education does not participate in drawing up the plan or essentially neglects to comply with the plan, the learner is considered to have dropped out.

Before the student is deemed to have dropped out, the education provider is obligated to notify the student within the scope of compulsory education and his or her parent, guardian or other legal representative that the student may be considered to have dropped out if he or she does not participate in drawing up the plan for compulsory education or comply with a plan that has been drawn up. The purpose of this notification obligation is to inform learners within the scope of compulsory education and their parents or guardians of the consequences for failing to draw up the plan or to comply with it.

If a learner within the scope of compulsory education has not taken up any new studies, the education provider must provide the municipality of residence with the identification and contact details of the learner who is considered to have dropped out and inform the parents, guardians or other legal representatives that the learner’s compulsory education is no longer in progress. A student within the scope of compulsory education may only be deemed to have dropped out on the basis of his or her own notification if the student has taken up new studies that qualify for completing compulsory education. See also the question: What happens if a student puts his or her studies on hold for a reason other than an acceptable one?

An administrative decision is made on the discontinuation of studies, and the provisions of the Administrative Procedure Act on hearing the party concerned and his or her guardian apply to the decision. The education provider’s obligation to inform of the consequences of absenteeism or failure to comply with the plan does not replace the hearing procedure laid down in the Administrative Procedure Act. Instead, the student within the scope of compulsory education and his or her parent, guardian or legal representative must be heard before making a decision on deeming a student to have dropped out. However, in practice, the education provider’s notification obligation described above can also be fulfilled in connection with the letter of hearing referred to in the Administrative Procedure Act, i.e. the consequences of absenteeism or failure to comply with the plan are explained.

Under this provision, a student within the scope of compulsory education must be considered to have dropped out within one month of the last time the student participated in instruction. The duty to notify and the hearing must also be carried out within this one-month period. It is important to hear the views of the learner within the scope of compulsory education and his or her parents or guardians to understand the situation and to find ways for the learner to pursue compulsory education. This is why the consultations should be carried out in cooperation with the learner and his or her parents or guardians. However, the statutory one-month time limit is unconditional and cannot be extended for reasons such as difficulties in agreeing a time for the hearing with the learner’s parents or guardians.

Under the Administrative Procedure Act, it is sufficient to reserve opportunities for consultation. If a learner within the scope of compulsory education or his or her parents or guardians fail to attend an agreed consultation, the matter can be resolved regardless. It is important to react quickly to the absences of students within the scope of compulsory education so that long gaps in the completion of compulsory education do not arise.

A decision on the discontinuation of studies may be made before the one-month period laid down in the legislation on education and training, provided that the notification and consultation obligation laid down in the legislation has been duly implemented. A student may apply for an administrative review of an administrative decision on the discontinuation of studies from the Regional State Administrative Agency.

Students have a right to apply for a student place freely and according to their own preferences. The place can be located anywhere in Finland. The subsidy for school journeys is paid for daily journeys that are longer than 7 kilometres from the student’s home to the educational institution or the workplace. In addition, students may be entitled to a general housing allowance if they live independently.

Those within the scope of compulsory education must have a student place in an educational institution.

Students within the scope of compulsory education attending compulsory education may participate in rehabilitation services provided by the Social Insurance Institution (Kela) or in other rehabilitation services. These services help support the completion of compulsory education.

Workshops can serve as a learning environment for completing education. Education within the scope of compulsory education may also be completed in workshops, if the education provider, the student within the scope of compulsory education and the workshop have agreed to do so.

Day activities for people with disabilities do not belong within the scope of compulsory education referred to in the Act on Compulsory Education. This means that students cannot be guided to such day activities to complete their compulsory education. If compulsory education has been put on hold in accordance with section 7 of the Act on Compulsory Education, a learner within the scope of compulsory education may participate in day activities. 

When assigning a student place for preparatory education and training for work and independent living (TELMA), see the questions: Must education providers admit a student within the scope of compulsory education assigned to them? and How is the adequacy of student places in compulsory education for those requiring intensive special needs support and especially in preparatory education and training for work and independent living be secured?

It is possible to complete compulsory education by means of apprenticeship training, which means that the student can work during compulsory education. Any other employment alongside studies is at the student’s own discretion.

A provision on the allocation of working hours of young people attending compulsory education has been added to the Young Workers’ Act. According to the provision, the working time of an employee attending compulsory education must be arranged in such a way that it does not preclude participation in education in accordance with the curriculum or other education plan. The employee must inform the employer well in advance of any compulsory study attendance required of them. The employee has the right to refuse a shift that prevents them from attending instruction.

Under section 7 of the Act on Compulsory Education, students, or their parents or guardians, may apply for permission to put on hold the students’ compulsory education for a temporary stay abroad that is at least one month in duration. This can be done on condition the students take part in education equivalent to compulsory education abroad or otherwise can be considered to be attending compulsory education during their stay abroad. The permission to put compulsory education on hold is applied for from the education provider with whom the student within the scope of compulsory education is currently enrolled. If the student within the scope of compulsory education is not enrolled with any education provider, the permission for putting compulsory education on hold is applied for from the municipality of residence of the student within the scope of compulsory education. The option to apply for permission to put compulsory education on hold applies to all students within the scope of compulsory education, including students in comprehensive school education (basic education). 

Students within the scope of compulsory education may go abroad on exchange programmes, but in this case they must apply for permission to put their compulsory education in Finland on hold for a fixed-term. During student exchange programmes, Finnish education providers are not obliged to monitor the students’ study progress and the performance of compulsory education in a foreign educational institution.

If a student in compulsory education moves abroad temporarily for example because the parents work abroad, the student may attend a local school, an international school, a Finnish school operating abroad or a European school during the stay abroad. 

In situations where a student participates in comprehensive school education abroad under Finnish legislation and based on the Finnish curriculum in a school that has been granted an authorisation to provide education, the right to study and the responsibility for guidance and supervision are transferred to the school abroad and the completion of compulsory education is not put on hold. 

In situations where a student participates in education provided in accordance with foreign legislation and based on a foreign curriculum, the student must apply for permission to put compulsory education on hold for a fixed term. In such cases, the responsibility for guidance and supervision is transferred to the student’s municipality of residence when the student returns to Finland and until the student has started attending a new school. If the student returns to the school they attended before going abroad, the responsibility of the municipality of residence is not activated. 

During a short holiday abroad, the student’s Finnish school remains the student’s school and the completion of compulsory education does not become interrupted. The student is granted a leave of absence at the discretion of the school. A decision is made locally on how to organise the student’s learning during the holiday and the parents or other guardians are responsible for ensuring the student makes progress in learning during the holiday. Section 18 of the Basic Education Act does not apply to holiday travel situations. Education providers are not obliged to provide guidance abroad by means of online connections.

The application for permission to put compulsory education on hold must include an explanation of how the student within the scope of compulsory education intend to engage in activities comparable to compulsory education during the stay abroad.

Under the Act on Compulsory Education, compulsory education may also be put on hold for the duration of a temporary stay abroad if the students within the scope of compulsory education otherwise can be considered to be attending compulsory education during their stay abroad. In concrete terms, this means that the application for permission to put compulsory education on hold must include an explanation of how the students within the scope of compulsory education intend to engage in activities comparable to compulsory education during their stay abroad. Alternatively, instead of attending school, the student may study independently at home, in which case the student's parents or guardians supervise the learning during the temporary stay abroad. Students in upper secondary education may also arrange with their education provider for ways to acquire skills independently by taking course tests so that they complete course exams or participate in competence-based demonstrations when they return to Finland. During their stay abroad, students in upper secondary education may also complete distance or online studies at a Finnish educational institution. In such cases, the compulsory education programme is not on hold and no application for permission for putting compulsory on hold is therefore required.

The grounds for putting compulsory education on hold during a temporary stay abroad are assessed in connection with the application for putting compulsory education on hold. Once a decision to put compulsory education on hold has been made, the student’s education provider or municipality of residence is no longer obliged to monitor the student’s study progress during the stay abroad.

You can complete compulsory education by attending education and training provided at transition points.

The earlier programmes that were effective until 31 July 2022 included voluntary additional basic education, also known as grade 10, preparatory education and training for vocational education and training (VALMA), and preparatory education for general upper secondary education for migrants (LUVA). 

The different education and training programmes at transition points merged in autumn 2022 to form a single set of preparatory education for programmes leading to an upper secondary qualification (TUVA). This consists of units that can be flexibly combined to meet each student’s needs, promoting the student’s transition to upper secondary education leading to a qualification. Comprehensive school education providers (providers of primary and lower secondary education), general upper secondary education providers and vocational education and training providers may all provide preparatory education for programmes leading to an upper secondary qualification.

The preparatory education and training for work and independent living remains a separate educational option.

Before the end of the final year of comprehensive school education (basic education), students need to apply for upper secondary education, transition point education or other education within the scope of compulsory education. Those in compulsory education may apply for studies through the national application procedures (joint application) or by other means. If the applicant is not granted a student place through the joint application procedure, the obligation to apply will continue until the applicant receives a student place. Section 10 of the Act on Compulsory Education lays down provisions on the obligation to apply.

Learners within the scope of compulsory education who do not apply for education voluntarily or do not obtain a student place are assigned a student place in preparatory education for programmes leading to an upper secondary qualification (TUVA). Learners in compulsory education who do not have the capabilities to complete qualification-oriented education and training are assigned a student place in preparatory education and training for working life and independent living (TELMA).

The municipality of residence of the learner within the scope of compulsory education is responsible for assigning a student place. The assignation of a suitable student place must take into account the provision of education in the area, the student’s commute between home and the educational institution, the need for special support or intensive special needs support, the language of instruction and the personal wishes of the student in compulsory education.

Under the Act on Compulsory Education, a student place must be assigned within two months of the beginning of the responsibility for guidance and supervision if the student within the scope of compulsory education has not started participating in education within the scope of compulsory education before this. Under the Act, a student place can only be assigned after two months from the date when a notification has been submitted to the municipality of residence, and not before this date. However, in education provided for those entitled to intensive special needs support, those within the scope of compulsory education may be assigned a student place already before the end of the two-month period with the consent of the learner, his or her parent, guardian or other legal representative.

Within the two-month period, the municipality of residence must ascertain the learner’s situation, guide the learner within the scope of compulsory education to apply for education voluntarily and carry out the hearing procedures related to assigning a student place. However, the decision may be made before the said deadline so that the decision on assigning a student place enters into force at the end of the period, i.e. two months after the guidance and supervision responsibility of the municipality of residence first started.

Under the Act on Compulsory Education, learners within the scope of compulsory education must start their studies in the assigned place of study without delay. In practice, education providers must contact the learners within the scope of compulsory education and establish when the students will start their studies. Education providers must make it possible for learners to start their studies as swiftly as possible once they have been assigned a student place.

Under the Act on Compulsory Education, students within the scope of compulsory education must apply for education if they do not have a student place. Under the Act on Compulsory Education, the responsibility of education providers to provide guidance and monitoring ends no later than one month after the learner’s education has ended if it ends at a time other than at the end of the spring term. As a rule, compulsory education must continue as soon as possible after primary and lower secondary education or transition phase education. Education providers must submit a notification to the municipality of residence on learners within the scope of compulsory education who fail to start their studies within one month of the end of their earlier education. The municipality of residence then assigns a student place to the learners within two months of filing the report. The education providers must guide learners within the scope of compulsory education in drawing up a plan for further studies and in applying for such studies already before the end of primary and lower secondary education or transition phase education.

The wording in the Act on Compulsory Education indicates that the time limits laid down in the Act are absolute, but discretion may be exercised on a case-by-case basis if filing a report or assigning a student place does not seem justified in view of the learner’s circumstances. This could be the case, for example, if a learner within the scope of compulsory education is waiting for the results of student admissions or has already secured a student place but has not yet started the studies. In such cases, it is possible to wait until the admissions results are in or the students start their studies.

Education providers who have an authorisation to provide preparatory education for programmes leading to a qualification (TUVA) or preparatory education and training for work and independent living (TELMA) or who provide preparatory education for programmes leading to a qualification (TUVA) based an earlier authorisation to provide preparatory education and training for vocational education and training (VALMA) are obliged admit learners within the scope of compulsory education assigned to them as a student. Learners within the scope of compulsory education cannot be assigned to providers of preparatory education for programmes leading to a qualification (TUVA) that provide preparatory education for programmes leading to a qualification (TUVA) based on an authorisation to provide additional basic education (transition period up to 31 July 2025). However, learners within the scope of compulsory education and their parents or guardians or other legal representatives as well as the education provider under which the learner within the scope of compulsory education is to be admitted must be heard before a decision is made on the matter. 

As a rule, a student place is assigned for the nearest suitable educational institution, taking into account transport connections. The educational institution to be assigned may also be located in another municipality. Local authorities use discretion on a case-by-case basis when assigning student places and prepare assignations together with education providers. Ultimately, local authorities can also assign students to education providers that do not have any available student places. Even in such cases, education providers have a statutory obligation to admit the student within the scope of compulsory education. Under the Act on Compulsory Education, education providers must make it possible for learners to start their studies as swiftly as possible. 

Updated 3.7.2023

Under the Act on Compulsory Education, learners within the scope of compulsory education must start their studies in the assigned place of study without delay. If a student within the scope of compulsory education does not actually start their studies, the responsibility for guidance and supervision rests with the municipality of residence. In such a case, no decision would be made on whether or not to dismiss the applicant. If a learner within the scope of compulsory education were present for one day, the responsibility for guidance and supervision would have been transferred to the education provider, in which case a decision would be made on whether to consider him or her to have dropped out. Under the legislation governing education, students are considered to have dropped out if it is evident that their intention is to not participate in instruction and they have not presented any justifiable reason for their absence. Students within the scope of compulsory education are seen as a dropout as referred to above after one month of the last time they participated in instruction. In addition to the one-month time limit, it must also be assessed whether the students within the scope of compulsory education intend to participate in instruction or whether they have presented an acceptable reason for their absence. If, on the basis of the circumstances, it is apparent that a learner within the scope of compulsory education plans to starting studying, the learner should not be considered to have dropped out merely on the grounds that the one-month time limit is up.

If a student within the scope of compulsory education is considered to have dropped out, the municipality of residence is notified following normal procedures. Then the municipality of residence assumes responsibility for the guidance and monitoring of the student within the scope of compulsory education. The municipality of residence examines the learner’s situation and assigns him or her a student place within two months of filing the report. The Act on Compulsory Education does not limit the number of times a student place can be assigned, which means that learners within the scope of compulsory education can be assigned a student place several times in the same educational institution if necessary.

Every student within the scope of compulsory education must have a student place, either through the right to apply freely or, ultimately, by being assigned a student place.

There were problems with the availability of student places in the joint application procedure of spring 2021 for students entitled to intensive special support and especially students in preparatory education and training for work and independent living. The Ministry of Education and Culture has examined the situation in cooperation with vocational special education institutions. The situation will be monitored and, if necessary, problems will be addressed using guidelines, additional funding granted by means of separate decisions or legislative amendments.

In the joint application procedure, vocational special educational institutions and education providers with a limited task of providing demanding special support must reserve a sufficient intake for students entitled to intensive special support in the area to ensure their study opportunities.

The following are free of charge for students:

• instruction (was already free of charge) 
• daily school meal (was already free of charge)
• textbooks and other learning materials required in instruction
• equipment, outfits and other materials required in instruction
• the 5 tests required for completing the matriculation examination at the end of the general upper secondary syllabus and, in the case of these tests, resitting failed tests
• school journeys of seven kilometres or more are reimbursed in accordance with the Act on Support for School Journeys.
• in some special cases, accommodation and travel costs (the distance to the nearest educational institution is over 100 km or the distance between the student’s home and school, travelled daily using the fastest mode of travel, takes more than three hours.)

In education programmes where personal equipment, such as musical instruments and sports equipment are used, and which are also used by the students outside instruction, the expenses are still incurred by the student (Section 17, subsection 1 of the Act on Compulsory Education).

Only students who are within the scope of extended compulsory education are entitled to education free of charge. See the question: When did the extension of compulsory education enter in force and who does it apply to? 

The right to upper secondary education free of charge lasts until the end of the calendar year in which the student turns 20. Extending the period that qualifies for education free of charge is determined on the grounds laid down in the Act on Compulsory Education. See the question: How and on what grounds can education free of charge be extended?

For example, when students at the age of 16 transition from comprehensive school education (primary and lower secondary education) to upper secondary education, as a rule, they have a right to free education for 4.5 years. Within this time period, this right applies to education leading to a qualification as well as to various types of education and training provided at transition points. The right to education free of charge does not discontinue even if the student changes student place within this time period. It is possible to switch from one student place to another one or start your first post-comprehensive school studies even after you have reached the age of 18. However, studies that start after the end of the calendar year in which the student turns 20 are no longer free of charge. Studies that start after this no longer qualify as education free of charge, even if earlier studies included grounds for extending education free of charge.

Education free of charge does not apply to students who are not within the scope of extended compulsory education. This means that students who completed additional basic education, preparatory education for general upper secondary education or preparatory education and training for vocational education and training in spring 2021 are not entitled to education free of charge. Other students who started their studies in autumn 2021 who do not fall within the scope of the Act on Compulsory Education are not entitled to education free of charge either. Students who are not within the scope of education free of charge are still eligible for a learning material supplement under the Act on Financial Aid for Students.

An administrative decision on the right to education free of charge is given if a student requests one. Under section 17, subsection 3 of the Act on Compulsory Education, education providers must issue an administrative decision on the right to education free of charge, on free learning materials, work equipment, outfits and materials as well as on fees referred to in section 17, subsection 2 of the Administrative Procedure Act (434/2003) only if a student requests one in writing or verbally. An appeal may be lodged against a decision on education free of charge with an administrative court in accordance with the provisions in the Administrative Judicial Procedure Act (808/2019).

Under section 17 of the Act on Compulsory Education, reasonable fees may be charged for voluntary school trips, visits, events and other similar activities that supplement studies. An administrative decision is given on these fees only if a student requests one in writing or orally. Unlike the fees charged for education under section 34 of the Act on General Upper Secondary Education and section 105 of the Act on Vocational Education and Training, fees collected under the Act on Compulsory Education are not directly enforceable.

See also the question: Should a separate administrative decision be made on compulsory education and education free of charge?

Education free of charge is extended to correspond to the duration of the periods during which

• the completion of compulsory education has been put on hold after the completion of comprehensive school (primary and secondary education) (section 7 of the Act on Compulsory Education)
• education has been temporarily put on hold after compulsory education on the grounds laid down in the legislation governing the relevant education (for example, section 23 of the Act on General Upper Secondary Education or section 96 of the Act on Vocational Education and Training)

As a rule, the extension to education free of charge covers a period that corresponds to the duration of the breaks in education referred to above. However, if the break in compulsory education is due to a temporary stay abroad or the temporary putting on hold of the right to study is due to some other justifiable reason referred to in the legislation governing the relevant education, the education free of charge is extended for a maximum of one year.

Besides these reasons, education free of charge may be extended for a maximum of one year if the reason for the extension is:

• a switch in studies due to health reasons or other weighty reasons
• learning difficulties
• completing preparatory education or training after comprehensive school
• a delay in completing the primary and lower secondary syllabus (comprehensive school syllabus)

Decisions on the extension of education free of charge are made based on an application made by the student. The decision on the extension is made by the education provider in whose studies the student is enrolled when applying for the extension in education free of charge. You can apply for an extension to education free of charge at the earliest six months before the end of the period that entitles you to education free of charge. In practice, you can submit an application to extend the period of education free of charge only if it seems apparent that the normative duration of education free of charge is not sufficient.

Under the provision in force until 1 August 2022, the period entitling to education free of charge is automatically extended without an application on the basis of completing compulsory education and based on putting the right to study on hold (section 16, subsection 2 of the Act on Compulsory Education). Now, however, the period entitling to instruction free of charge is extended solely on the basis of an application.

The Monitoring and Tracking Service for Compulsory Education (Valpas service) compiles data on students from different registers and provides education providers with the data for viewing so that they can determine whether education can be provided free of charge. The service shows information such as a student’s prior studies and how long the student would theoretically be entitled to free education (i.e. until the end of the year when the student turns 20, calculated from the age of the student). However, the Valpas service cannot make an exhaustive distinction between which students are entitled to education free of charge. For example, if a student has completed comprehensive school education (basic education) or a qualification abroad or in Åland, the information on these studies is not stored in national registers and is therefore not visible in the Valpas service. Where necessary, education providers request information on prior studies from the students themselves. See also the questions: What does permanent residence refer to? Are students arriving from abroad obliged to attend compulsory education? and Should a separate administrative decision be made on compulsory education and education free of charge? 

If, on the basis of information in national registers, it can be established that a student does not belong within the scope of extended compulsory education and is not entitled to education free of charge (i.e. has completed the basic education syllabus before 1 January 2021 or was born before 2004), this information will be shown to the user in the Valpas service.

Under the earlier provisions, students in upper secondary education who lived in the halls of residence of an educational institution did not pay for their accommodation. No changes were made to these provisions, but the legislation was amended so that if the educational institution takes boarders, the places should be offered primarily to students in compulsory education and to other students within the scope of education provided free of charge who need a place to board. However, the change does not mean that a place should be offered to all students within the scope of compulsory education; instead, the places are given to those who actually need one.

Students who live independently in rented accommodation may be entitled to a general housing allowance paid by the Social Insurance Institution (Kela). Students in compulsory education may also be entitled to special accommodation and travel allowances if the distance to the nearest educational institution exceeds 100 kilometres or the distance between the student’s home and school, travelled daily using the fastest mode of travel, takes more than three hours.  For more information, see the question: Are students entitled to accommodation and travel allowances if they apply to study in a place other than their place of residence, such as a general upper secondary school with a specific mission or a specific field of study?

Students in comprehensive school education (basic education) continued to have the right to a free school meal, as was the case before the extension.  Existing provisions stipulate that students in general upper secondary education and vocational education and training have the right to one daily meal during the school day. In certain cases in vocational education and training, students also have the right to have several meals on the basis of the length of the school day.

In boarding schools, students are entitled to full board. Making upper secondary education free of charge did not change these principles.

With upper secondary education becoming free of charge, the limit for school commutes entitling students to a subsidy for school journeys will be reduced from 10 km to 7 km. In addition, the minimum threshold of EUR 54 for monthly travel costs will be abolished. In upper secondary education, free travel for students to and from school is compensated through the subsidy for school journeys (school transport subsidy) paid by the Social Insurance Institution (Kela).

The minimum kilometre threshold for reimbursements for travel expenses for students in apprenticeship training who are within the scope of compulsory education was brought down to 7 kilometres (10 km for other students). In other respects, the extension of compulsory education did not change the social benefits for students laid down in section 102 of the Vocational Education and Training Act for students in apprenticeship training.

The right to a daily meal free of charge does not apply to students in apprenticeship training. No changes were made to this when the extension of compulsory education was introduced.

Students in apprenticeship training are not eligible for the subsidy for school journeys granted by the Social Insurance Institution (Kela). No changes were made to this when the extension of compulsory education was introduced.

In upper secondary education, travel for students to and from school is compensated through the subsidy for school journeys (school transport subsidy) paid by the Social Insurance Institution (Kela). When compulsory education was extended and made free of charge, the deductible of EUR 43 per month was abolished from the subsidy for school journeys. However, local authorities or the education providers are not obliged to organise school transport for students in upper secondary education. Education providers may offer students school transport on a voluntary basis. If an education provider organises school transport, the subsidy for school journeys is paid to the education provider.

Subsidies for school journeys are usually based on public transport use. If public transport services cannot be used, the school transport subsidy is granted on the basis of a principle of one’s own mode of transport. This means that the student is responsible for arranging transport to the educational institution and then receives a monetary compensation for it in accordance with the regulation for rates.

Students in upper secondary education are reimbursed for their school journeys through Kela’s school transport subsidy system. School journeys are primarily reimbursed according to the cheapest type of ticket for public transport. If public transport services cannot be used and school transport organised by the education provider is not available, the school transport subsidy is granted on the basis of a principle of one’s own mode of transport. This means that the student is responsible for arranging transport to the educational institution and then receives a monetary compensation for it in accordance with the regulation for rates.

In the absence of public transport, students are not entitled to full compensation for school journeys travelled by taxis, for example, either in full or in part. Instead, an imputed reimbursement is applied on the basis of the provisions of the Act on Support for School Journeys and a monetary compensation in accordance with the regulation for rates. See also the question: Are local authorities or education providers obliged to organise school transport for students?

Provisions on the right of persons with disabilities to transport services are laid down in the Act on Disability Services and Assistance (380/1987). In the case of persons with disabilities referred to in the Act on Disability Services and Assistance, support for school journeys may be granted under the said Act. The wellbeing services counties and the City of Helsinki are responsible for organising the services referred to in the Act on Disability Services and Assistance.

In some special cases, students may also be entitled to special allowances for accommodation and travel expenses referred to in the Act on Compulsory Education. For more information, see the question: Are students entitled to an accommodation allowance and reimbursement for travel costs if they apply to study in a place other than their place of residence, such as a general upper secondary school with a specific mission or a specific field of study?

With regard to moving to a location to study, see also the question: Can education providers offer students within the scope of compulsory education rental accommodation?

Upper secondary education providers do not have an obligation to organise school transport in situations where learners within the scope of compulsory education are temporarily unable to use public transport or to reach an educational institution on foot or by bicycle due to an illness or other similar reason.

If the subsidy by Kela for school journeys (school journeys of over 7 km) and the subsidy for school journeys has been granted to eligible students on the basis of public transport use, the subsidy can be adjusted to be granted on the basis of a principle of one’s own mode of transport. This means that the student or his or her parent or custodian must arrange transport to the educational institution and they then receive a monetary compensation for it in accordance with the regulation for rates. See also the question: Are local authorities or education providers obliged to organise school transport for students?

Under the Act on Compulsory Education, compulsory education may be put on hold for a fixed period due to an illness that prevents the student from attending compulsory education. However, before making such a decision, the law requires that it must be determined whether it is possible to pursue compulsory education by means of individual choices, individualisation, essential support measures or reasonable adjustments. If attending school daily is impossible because of an illness, the primary course of action is to establish whether the student could pursue his or her studies by means of distance learning or independent studies, for example. This means there would be no need to put compulsory education on hold due to an illness.

Under the Act on General Upper Secondary Education and the Act on Vocational Education and Training, living in dormitories provided by education providers is free of charge for students. However, besides dormitories, education providers may also offer students the option of rented accommodation. In such cases, the accommodation is not a dormitory of the education provider. It is a normal rental tenancy. In this case, the law does not require that the accommodation be provided free of charge. Students may be entitled to a general housing allowance (housing benefit) if they meet conditions for receiving it.

Updated 15 September 2023

Under the Act on Compulsory Education, students in compulsory education are entitled to special allowances for accommodation and reimbursement for school journeys in two cases: firstly, the student's nearest general upper secondary school or multidisciplinary vocational institution which, in accordance with the provision on the language of instruction referred to in section 10 of the Basic Education Act, provides education either in Finnish or Swedish, is located more than 100 kilometres from the student's home or, secondly, the fastest daily route to school takes more than three hours. 

The daily route to school refers to the total travel time to and from school. The fastest route means the student's own mode of travel under the provisions of the Act on Support for School Journeys, not the fastest route by public transport. In other words, students whose daily route to school takes more than three hours using public transport are not entitled to allowances for accommodation and reimbursement for school journeys under the Act on Compulsory Education. They are only entitled to the allowances and reimbursement if the daily route to school takes more than three hours using their own mode of travel.

According to the guide to school transport support published by the Social Insurance Institution of Finland (Kela), dated 12 January 2022, the daily route to school refers to the distance from the student’s front door to the school’s door. According to the guide, the travelled distance is measured along an accessible route, which refers to the shortest possible distance travelled by road or by rail. The distance is measured using online route planning services, such as fonecta.fi, opas.matka.fi, maps.google.fi, maanmittauslaitos.fi (MapSite) or reittikartta.net. The applied measurement is the most favourable search result for the student, i.e. the longest distance using the option for the shortest distance by car, if such option is available. Similar principles are applied when assessing whether a student in compulsory education is entitled to allowances for accommodation and reimbursement for school journeys under the Act on Compulsory Education. In addition to the distance, route planning services also calculate the travel time, taking into account the time required for ferry connections, for example.

Unlike previously instructed by the Ministry of Education and Culture, an educational institution with at least two fields of study can no longer be regarded in every case as the multidisciplinary educational institution referred to in the Act. This is because of decision 1181/2022 which the Administrative Court of Northern Finland issued on 2 September 2022 on reimbursement for travel costs. According to the decision, when determining reimbursement for travel costs, attention must be paid to everyone’s statutory right to earn their living in an occupation of their choice. Multidisciplinarity must therefore be interpreted so that this fundamental right is adequately safeguarded.

As a result, travel costs should be reimbursed in cases where a student in fact could apply to a vocational institution where the distance from their home is under 100 kilometres but the educational institution is not considered a multidisciplinary one because the study opportunities available there are limited when comprehensively examining the range of fields of study that serve the different needs of society and the different affinities of individuals. So, when granting an allowance for accommodation and reimbursement for school journeys, each case must be considered separately, taking into account the facts in the Administrative Court's decision.

Students in compulsory education are only entitled to the allowances for accommodation and reimbursement for school journeys if they are studying in the nearest general upper secondary school or vocational institution. But students in compulsory education may choose between general upper secondary education and vocational education and training. This means that if a student in compulsory education chooses vocational education and training and the nearest multidisciplinary vocational education institute is located more than 100 kilometres away, the student will be entitled to an allowance for accommodation and reimbursement for school journeys when studying at this vocational institute, even if there was a general upper secondary school located closer than 100 km from the student's home.

Students can also exercise their right to apply freely to any institution. However, if a student chooses to apply to an institution that is not the closest to their home but located further away, for example because the general upper secondary school of their choice offers a special mission or they choose a specific field of vocational education and training, they will not be entitled to allowances for accommodation and reimbursement for school journeys.

Students in compulsory education who are studying in transition point education or in preparatory education and training for working life and independent living are entitled to allowances for accommodation and reimbursement for school journeys if the nearest educational institution providing such education is more than 100 kilometres from their home. For more information on the terms and conditions for allowances for accommodation and reimbursement for school journeys, see sections 19 to 21 of the Act on Compulsory Education.

Instruction was already free of charge for students. Now all textbooks and other learning materials, as well as equipment, outfits and other materials needed in instruction are free of charge for students attending compulsory education. The obligation to provide instruction free of charge also covers the necessary school transport, sufficient daily meals and, in some cases, student accommodation. For more information, see other questions related to the things that are free of charge for students.

The law does not expressly stipulate that every student must acquire a computer; instead, the law specifies that the learning materials and other equipment needed in instruction are free of charge. However, it has been estimated in the cost calculations of the reform that, to be able to participate in instruction, each student should be equipped with a computer for the duration of their studies.

Students are allowed to use their own computer if they wish to do so. By law, education providers are not obliged to compensate students for using their own computer.

Most students have access to an online connection at home or on their mobile phones. As a rule, students can use the online connections that they already have at their disposal. However, education providers must acquire the necessary equipment for instruction, so for students who do not have an online connection and participation in instruction requires it, the education providers must provide an online connection.

The premise is that students within the scope of compulsory education and students entitled to education free of charge must be able to complete their general upper secondary school syllabus free of charge, except in specific education programmes, referred to in the Act on Compulsory Education, that use equipment, such as musical instruments, sports equipment other similar equipment and supplies, which are for personal use by the students. As a rule, sports equipment for students in the general programme in general upper secondary education must be free of charge. However, for certain personal sports equipment, such as skates, this does not mean that suitable equipment should be purchased for all students. Students may be asked to use their own if they have such equipment, but where necessary, the school should also have ones that students can borrow if they cannot use their own.

Reasonable fees may be charged for voluntary school trips, visits, events and other similar activities that supplement studies (Section 17 of the Act on Compulsory Education). This means that education providers can organise events such as international trips related to internationalisation purposes. Students cover the travel expenses and accommodation costs for such activities. 

Fees may only be charged for activities that are fully voluntary for the students. Instruction must always be free of charge.

In terms of whether instruction is free of charge, it does not make much difference if study periods are compulsory or optional in nature. As a rule, all instruction is free of charge, but fees can be charged for voluntary activities that supplement studies (such as travel expenses and admission fees). Compulsory studies may also include voluntary trips that supplement the studies. Fees may be charged for these activities.

No qualification-specific upper limit has been set for instruction that is free of charge.

The Ministry of Education and Culture has revised its answer regarding the provision of instruction free of charge for students who simultaneously attend vocational education and training and general upper secondary education.  

Under section 16, subsection 1 of the Act on Compulsory Education, education referred to in section 4 of the Act is free of charge in a manner referred to in section 17 until the end of the calendar year in which the student turns 20. However, students are not entitled to instruction free of charge if they have already completed the general upper secondary school syllabus and passed the matriculation examination or completed a vocational qualification or corresponding studies abroad. Students who simultaneously attend vocational education and training and the general upper secondary education syllabus are entitled to instruction free of charge until they have completed the vocational qualification and passed the matriculation examination, but only until the end of the calendar year in which the student turns 20.

Students who simultaneously attend vocational education and training and general upper secondary education are entitled to instruction free of charge until they have completed the vocational qualification and passed the matriculation examination. Students are also entitled to instruction free of charge when they complete only parts of the general upper secondary education syllabus while studying for an initial vocational qualification. In other words, students do not need to complete the entire general upper secondary syllabus in order to be entitled to instruction free of charge. However, students are only entitled to instruction free of charge until the end of the calendar year in which they turn 20. In some cases, the period entitling the student to instruction free of charge may be extended on grounds laid down in the Act on Compulsory Education. But students are not automatically entitled to instruction free of charge for a longer period of time simply because they study for more than one qualification at the same time.

Student enrolment and attendance in a form of education determines the funding for the education provider. Education providers agree with each other on any financial compensation for cooperation arrangements. There are no provisions on a separate increment in funding for students who attend vocational education and training and general upper secondary education at the same time. However, studying for more than one qualification usually takes longer, which increases the amount of funding paid to the education provider on the basis of the duration of studies.

Learning material for initial vocational qualifications and further vocational qualifications for students in the form of apprenticeship training is free of charge. The social benefits for students in apprenticeship training are laid down in section 102 of the Act on Vocational Education and Training. Students in apprenticeship training are not eligible for the subsidy for school journeys granted by the Social Insurance Institution (Kela).

If a further vocational qualification is the first secondary level qualification that a student is pursuing, in other words, the student has not previously completed a secondary level qualification, it is free of charge.

Instruction free of charge also applies to students in IB general upper secondary schools who are entitled to instruction free of charge in respect of learning material and final exams.

The first five tests taken and any resitting of failed tests among the five first tests are free of charge (Act on the Matriculation Examination, section 20). If a student takes more than five tests, a fee is charged for these tests.

There are no separate provisions on whether medical certificates required for special arrangements should be free of charge. In many cases, a special education teacher may issue certificates relating to special arrangements for the matriculation examination. In most cases, any necessary medical certificates can be obtained through the public healthcare service.

The webpages of the Matriculation Examination Board gives guidance on special arrangements and on how to apply for such arrangements. (application forms in Finnish and Swedish).

The costs of exchange student studies do not belong to the free-of-charge scheme. Students who decide to take part in on-the-job learning abroad are responsible for covering their travel expenses and costs for accommodation, for example.

The free-of-charge scheme covers permits and work-related licences in specific fields that are necessary for completing a qualification, such as a work safety card, first aid cards, fireworks cards or a hygiene passports. Official fees, driving licence fees and medical certificates required for completing a qualification are also free of charge.

Education providers may provide free learning materials and equipment to students other than those within the scope of education free of charge if they wish to do so. However, they are not obliged to do so by law.

Education providers must provide students with the learning material and equipment, outfits and other materials required in instruction. Education providers are responsible for repairing and maintaining work equipment and outfits. However, students who have work equipment and outfits in personal use can be expected to do normal cleaning and washing of such items.

The accommodation allowance referred to in the Act on Compulsory Education is paid for the period from the beginning to the end of annual studies if accommodation in the place where the institution is located is necessary to be able to complete the studies. The accommodation allowance and reimbursement for travel costs referred to in the Act on Compulsory Education only apply to the distance between the home and the educational institution of students in compulsory education, and to the journeys between the two. However, the right to the allowance and reimbursement also applies during workplace training if students reside in the same accommodation for which they already receive an accommodation allowance. During training in the workplace, students may be entitled to the subsidy for school journeys granted by the Social Insurance Institution (Kela) for the daily commute between accommodation and workplace.

Under the Act on Compulsory Education, the learning materials, equipment, outfits and materials needed in instruction are free of charge for students. In line with the principle of non-remuneration, no deposit or other charges can be imposed for them. For cases involving student liability, see the following question “Are students liable for compensation if they violate or lose the learning material or equipment that they have been given?”

If living in a dormitory is free of charge for students by law, no obligatory fees can be charged for such accommodation. However, a deposit may be charged for things that students use optionally and which are not provided for free by law, such as lockers with locks.

The obligation of a student to compensate for any damages they cause is be governed by the Tort Liability Act. As a rule, damages caused intentionally or through negligence must be compensated. Under the Tort Liability Act, those under the age of 18 are obliged to compensate for damages to a sum deemed reasonable considering their age and developmental stage, the nature of the act, the financial circumstances of the party at fault and the injured party as well as other circumstances.

Copyright and property rights are two separate rights. Students have copyright to their works, but products produced from materials paid for by the education provider are the property of the educational institution, unless otherwise agreed between the education provider and the student. To be able to sell or to otherwise relinquish such products, the education provider needs the student's permission.

The following financial resources have been reserved in the General Government Fiscal Plan to cover the costs of extending compulsory education and to make upper secondary education free of charge:

• Altogether EUR 26.75 million in 2021;
• Altogether EUR 65 million in 2022;
• Altogether EUR 103.25 million in 2023;
• Altogether EUR 129 million in 2024.

The change will affect one age group at a time, which means that the need for additional appropriations will gradually increase. The average duration of studies in general upper secondary education and vocational education and training is approximately three years, which means that the need for additional appropriations will be fully met in 2024.

The responsibility for completing compulsory education rests with both the students and their parents, custodians or other legal representatives. If parents or other custodians intentionally or by gross negligence neglect their duty to supervise that their child completes compulsory education, they may be sentenced to a fine for such negligence. The assessment of non-compliance with the obligation to supervise takes into account the actual possibilities of parents and other custodians to supervise their children’s compulsory education, such as the age of the student and independent living.

In the event of non-compliance with the obligation to supervise compulsory education, education providers or local authorities in the municipality of residence of the student may notify the police. Education providers may also submit a child welfare notification in accordance with the Child Welfare Act, on the basis of which the child welfare authorities decide what measures should be taken. If there is a fine, it is issued by a general court of law.

In the joint application procedure, applicants are asked to provide their parents’ or other custodians’ contact details on the application form. A confirmation message is sent to the parents or other custodians by email specifying the learner’s application choices. The Finnish National Agency for Education also sends the applicants and their parents or other custodians an advance letter a couple of weeks before the admissions procedure starts. The letter explains details such as the schedule for student admissions and provides instructions on how to accept a student place.

The Act on Compulsory Education does not separately address situations where a parent or other custodian of a learner within the scope of compulsory education lives abroad. The provisions on cooperation with the parents or other custodians of learners are thus uniform regardless of the country in which the parents or other custodians live. For example, the notification and supervisory responsibilities under the Act on Compulsory Education also apply to situations where a parent or other custodian lives abroad. As a rule, under section 26 of the Administrative Procedure Act, parents or other custodians should be addressed in a language that they are presumed to understand sufficiently in view of the nature of the matter.

See also the question: What does permanent residence refer to? Are students arriving from abroad obliged to attend compulsory education?

Providers of comprehensive school education, general upper secondary education and vocational education and training, alongside other providers of compulsory education and, ultimately, the student’s municipality of residence, have a duty to guide and supervise students in their compulsory education studies. This way we can make sure that students receive enough support and guidance throughout their studies.

The providers of comprehensive school education (basic education) may assist students in their transition to the upper secondary level. Once students in compulsory education have completed their comprehensive school studies, the providers of comprehensive school education remain responsible for guiding, supporting and supervising the learners’ compulsory education studies until they begin their studies in post-comprehensive school education.   The situation of students within the scope of compulsory education is reviewed on a review date decided annually at the end of August. If a student who is completing comprehensive school education fails to secure a new student place, the comprehensive school provider is obliged to notify the local authorities in the student's municipality of residence, who then take on the responsibility of guiding and supervising the student.

When a student starts in upper secondary education, the provider of the general upper secondary education or vocational education and training becomes responsible for guiding, supporting and supervising the student. The responsibility is transferred when the student has actually started studying. Even if the student actually only attends the education for one day, the responsibility for supervision is transferred to the new education provider. However, the fact that a learner merely accepts a student place is not enough to transfer the supervisory responsibility. For more information, see the question What if a learner within the scope of compulsory education has accepted a student place but fails to start studying? What if a learner within the scope of compulsory education discontinues the studies right at the beginning of the studies?

If a student wishes to switch from one educational institution or field to another, the education providers guide and support the student until the student is enrolled in a new student place and has started studying. The responsibility is then transferred to the new education provider.

If necessary, students can also be referred to services (healthcare or social services, youth services etc.) that provide support for the students in their life situation and enable them to continue their studies.

The responsibility for providing guidance and supervision as referred to in the Act on Compulsory Education is transferred to the upper secondary education provider when the student actually starts studying. Merely accepting a student place does not mean that the responsibility for supervision is transferred. In the case of students transitioning from comprehensive school education (basic education) or from a transition phase, the earlier education provider must submit a notification to the municipality of residence even in cases when a student within the scope of compulsory education has accepted a student place but has not actually started studying.

The responsibility for supervision is transferred to the new education provider once the learner within the scope of compulsory education has started the studies. It is also transferred to the new education provider when a learner within the scope of compulsory education discontinues the studies right at the beginning of the studies, for example after only one day of studies. In such cases, the education provider makes an administrative decision on whether the student is deemed to have dropped out. See also the question “Can an entry in the Koski data repository be annulled already before a decision is made on whether the learner is considered to have dropped out?”

Updated 4.7.2023

When the decision on assigning a student place has been made, the education provider must contact the student within the scope of compulsory education in order to make arrangements on starting the studies. However, if a learner within the scope of compulsory education fails to start studies, the learner's situation will be investigated and, if necessary, the municipality of residence responsible for guidance and monitoring will be contacted. See also the question: What happens if a student within the scope of compulsory education fails to start the studies or put the studies on hold again?

Based on a notification made by the provider of comprehensive school education, the municipality of residence is responsible for supervising the situation of those young people who have completed their comprehensive school studies (basic education) in the spring but who have not secured a student place by the autumn. They are given guidance on how to apply for upper secondary education. If necessary, they are also guided to seek access to other services, such as healthcare and social services and rehabilitation. If, despite guidance and joint efforts, a suitable student place cannot be found for the learner within the scope of compulsory education, and the person is deemed fit for studying, the municipality has a duty to provide the learner with a student place in relevant transition-point education. Young persons who are estimated to not be fit for school are guided to seek permission to put their compulsory education on hold, if necessary.

Similarly, it is the duty of the municipality of residence to guide learners within the scope of compulsory education who have put on hold their upper secondary education and who have not found a new student place.

For more information on how to assign a student place, see the questions: What does assigning a student place mean? How soon can a student place be assigned after the municipality of residence has been notified? and Are education providers expected to admit students within the scope of compulsory education assigned to them?

The Act on Compulsory Education does not specify which instance or body in the municipality of residence is responsible for guiding and supervising learners within the scope of compulsory education. Each municipality decides for itself how to organise the guidance and supervision in their municipality and which instance or body is responsible for the guidance and supervision specified in the Act on Compulsory Education.

Besides legislation, each municipality's administrative regulations determine which authority is responsible for and subordinate to the organisation of comprehensive school education (basic education) and the tasks assigned to the providers of comprehensive school education. In the future, the municipal service structures and administrative regulations must also recognise the tasks laid down in the Act on Compulsory Education for each municipality of residence. 

If a learner within the scope of compulsory education moves abroad, the termination of compulsory education is assessed on the basis of the student’s municipality of residence. If a learner within the scope of compulsory education moves to reside abroad permanently and no longer has a municipality of residence in Finland, he or she no longer belongs within the scope of compulsory education in Finland. If the move abroad is temporary (the learner retains a municipality of residence in Finland), the learner must submit an application to put the compulsory education on hold in accordance with section 7 of the Act on Compulsory Education. See also the question: Students in compulsory education intending to become an exchange student or to live abroad temporarily. How is it done? 

If the municipality of residence is aware that the learner within the scope of compulsory education has actually moved abroad but has not notified the municipality of any change of address or applied to put compulsory education on hold, the municipality acts in accordance with the known factual circumstances. If the municipality has what can be deemed to be reliable information about a move abroad other than a temporary move, the inhabitant can be considered to be a non-permanent resident of Finland, in which case the person does not belong within the scope of compulsory education either. In such cases, there is no reason to assign the person a student place, for example. If, on the other hand, the move abroad can be considered to be temporary, the person must be deemed to be a learner within the scope of compulsory education, unless he or she has applied to put compulsory education on hold.

The details on a learner’s address the population information system are based on the learner’s or his or her legal representative’s or accompanying family member’s notifications of move. The learner’s municipality of residence entry is not automatically deleted from the population information system when the learner has resided abroad continuously for more than 12 months. Even in such cases, the entry in the population information system is based on a notification of move. Where a person notifies that he or she is moving abroad permanently, he or she will no longer have a municipality of residence in Finland.

Under section 14 of the Act on Compulsory Education, the municipality of residence has a duty to guide and supervise students in their compulsory education studies, unless the guidance and supervision have been assigned to some other party. If a young person within the scope of compulsory education moves to the municipality from abroad, it is the duty of the municipality of residence to verify that the young person applies for education and starts their compulsory education.

The municipality of residence is the municipality in whose area the learner within the scope of compulsory education actually resides. In some situations, the municipality of residence may differ from the one entered in the Population Information System, for example if students reside temporarily in a study place that is not their municipality of residence. In the absence of any other information on the municipality of residence, the municipality of residence entered in the Population Information System is considered to be the municipality of residence of the student. 

The providers of comprehensive school education (basic education) are responsible for guiding and supervising that students in year 9 of comprehensive school apply for post-comprehensive school studies. If a learner within the scope of compulsory education fails to secure a student place in the joint application procedure, the provider of comprehensive school education will continue to give guidance beyond the end of the spring term so that the learner can apply for a student place in the rolling application procedure after the joint application procedure has ended. If a learner within the scope of compulsory education still has not secured a student place after the summer or has dropped out of school, the municipality where the learner resides becomes responsible for guidance and supervision.

The new duties assigned to the municipality of residence of learners within the scope of compulsory education and to primary and lower secondary education providers are funded from the system of central government transfers to local government for basic public services. Under the Act on Central Government Transfers to Local Government for Basic Public Services (1704/2009), a full 100% central government transfer is granted to the municipalities to offset the costs of the new duties.

The extension of compulsory education has brought new statutory duties related to the responsibility for guidance and supervision to the municipalities and other providers of primary and lower secondary education. For primary and lower secondary education providers, the new duties related to the responsibility for guiding and supervising learners within the scope of compulsory education include intensive personal study guidance for those who need it based on section 11a of the Basic Education Act and a guidance, and a supervision responsibility of primary and lower secondary education providers referred to in section 11 of the Act on Compulsory Education. In addition, under section 14 of the Act on Compulsory Education, the municipalities of residence are obliged to provide additional guidance to students who have failed to secure a student place or who have discontinued their studies after they have completed their primary and lower secondary education.

Central government contributes to financing the duties of the municipalities through a system of central government transfers to local governments.

Central government transfers granted by the Ministry of Finance are non-earmarked revenue items for the recipients that are not specifically designated for performing any given duties. Although the bases for the central government transfers are determined using different criteria and coefficients, the recipients of the funding may allocate the central government transfers to whichever purposes they choose. The municipalities make the decisions.

The extension of compulsory education changed the obligation of education providers in basic education and secondary education to disclose information to outreach youth work as referred to in the Youth Act (section 11). In the case of students within the scope of compulsory education, the obligation to disclose information no longer applies, but the identification data and contact details of young people within the scope of compulsory education may be disclosed to the municipality of residence of the young people for outreach youth work purposes.

Basic education providers may disclose information about a young person who has completed comprehensive school (basic education) and who has not been placed in studies after this. Upper secondary education providers may disclose information about young people who are within the scope of compulsory education and who discontinue their studies in vocational education and training, in general upper secondary education or in preparatory education for programmes leading to an upper secondary qualification. The obligation to disclose information does not change in the case of young people who are not within the scope of compulsory education. Education providers must disclose information on young people who are not within the scope of compulsory education and who discontinue their studies in vocational education and training, in general upper secondary education or in preparatory education for programmes leading to an upper secondary qualification.

The responsibility for guidance and supervision of the municipality of residence laid down in the Act on Compulsory Education is a statutory task separate from outreach youth work, in which a young person within the scope of compulsory education and his or her parents or other guardians must participate in examining the overall situation of the young person. However, outreach youth work can be used to support young people within the scope of compulsory education to complete their compulsory education. There are no changes to the tasks and objectives of outreach youth work, and the tasks of outreach youth work are still governed by the Youth Act. Outreach youth work is based on the consent given by young people and is voluntary for them.

Data on applications and the studies of those within the scope of compulsory education are monitored using the information recorded in the national Koski National Registry and Data Transfer Service for Study Rights and Completed Studies, in the student admissions register and in the compulsory education register. The Valpas service is a new service maintained by the Finnish National Agency for Education. It enables the bodies responsible for guiding and supervising students within the scope of compulsory education to obtain an overall picture of the students’ situation.

Oppivelvollisuuden seuranta- ja valvontapalvelu Valpas (in Finnish)

If necessary, any information on the right to study entered incorrectly in Koski data repository may be annulled even if no administrative decision has yet been made on whether the learner is considered to have dropped out. This might be necessary if the learner within the scope of compulsory education does not start studying at all and information on the right to study has already been entered in the Koski data repository. From the perspective of the date for reviewing compulsory education, it is important that the information contained in the Koski data repository is up to date at the time when the responsibility for supervising the completion of compulsory education is transferred from the education provider to the municipality of residence. See also the question “What should be done if a learner within the scope of compulsory education has accepted a student place but does not start studying? What if a learner within the scope of compulsory education discontinues the studies right at the beginning of the studies?”

Legislation on education includes provisions on other guidance obligations that apply to all students, not just to those within the scope of compulsory education.

According to the Act on General Upper Secondary Education, students draw up a personal study plan for themselves. The teaching staff help draw up the plan when the students start their studies and it is updated regularly as the studies progress.

The Act on Vocational Education and Training stipulates that education providers are obliged to prepare a personal competence development plan for each student together with the student.

Education providers must guide students who are at risk of dropping out. Under the Act on General Upper Secondary Education, students who have informed the education provider of their intention to discontinue studies have the right to receive guidance on applying for other studies. Under the Act on Vocational Education and Training, it is also the duty of the education provider, together with the students, to find qualification studies or a programme that is more suitable for them and, if necessary, guide them on how to apply for another education provider’s programme or some other appropriate service. This regulation was not amended in connection with the extension of compulsory education.

It is the duty of the provider of comprehensive school education (basic education) to guide and supervise learners in compulsory education during their comprehensive school education and the joint application procedure. As part of this guidance, the provider assesses, together with the learner and their parents or other guardians, which education would be most suitable for the learner, taking into account any special support needs.

Students have the right to receive support for learning and school attendance as soon as such a need arises.

It is the duty of the comprehensive school education provider to guide and supervise leaners within the scope of compulsory education to apply for post-comprehensive school education at the end of comprehensive school education, especially during the last year of comprehensive school (end of basic education). Learners who are completing a comprehensive school syllabus (basic education syllabus) and who need support in applying for post-comprehensive school studies have the right to receive, besides the student guidance provided in the curriculum, also individual student guidance based on their personal needs. The obligation refers to the obligation for comprehensive school education providers to offer intensified personal guidance for students who are identified as needing support related to applying for post-comprehensive school studies in years 8 and 9 of comprehensive school.

With regard to compulsory education, the education provider’s responsibility for providing guidance and supervision ends when the students turn 18, in other words, when they complete compulsory education. However, even after the students have completed their compulsory education, education providers must guide students in accordance with the general principles set out in the Act on Vocational Education and Training and in the Act on General Upper Secondary Education.

Those who have completed the general upper secondary education syllabus, but have not secured a place in further studies for a qualification or degree, have the right to guidance related to applying for studies and for careers advice during the year following the year in which the syllabus was completed. The educational institution where the student completed the syllabus is responsible for providing the guidance. A corresponding obligation for vocational education and training to provide guidance for further studies enters into force on 1 August 2021. A person who has completed an initial vocational qualification and whose purpose is to apply for further studies but who has not received a student place in studies leading to a qualification has, during the year following the year in which the qualification was completed, the right to receive guidance in applying for further studies and for career plans related to further studies.

Those who have completed the general upper secondary education syllabus, as referred to in the Act on General Upper Secondary Education, but have not secured a place in further studies for a qualification or degree, have the right to guidance related to applying for studies and for careers advice during the year following the year in which the syllabus was completed. The educational institution where the student completed the syllabus is responsible for providing the guidance.

Under section 61 of the Act on Vocational Education and Training, a person who has completed an initial vocational qualification and whose purpose is to apply for further studies but who has not received a student place in studies leading to a qualification has, during the year following the year in which the qualification was completed, the right to receive guidance in applying for further studies and for career plans related to further studies. The educational institution where the student completed the qualification is responsible for providing the guidance.

A person who has completed the general upper secondary school syllabus or a vocational upper secondary qualification on or after 1 August 2021 has the right to the guidance for further studies referred to above.

Under section 61 of the Act on Vocational Education and Training (531/2017), students have the right to receive, in various learning environments, such instruction and guidance that enables the acquisition of the vocational competence requirements and key competence requirements specified in the national qualification requirements or education and training requirements and that help students grow to become decent, well-rounded and educated human beings and members of society. Under section 48, subsection 2 of the Act, education providers in initial vocational education and training are tasked with assessing the need for and amount of instruction and guidance provided in their educational institutions and other learning environments. 

Section 10a of the Government Decree on Vocational Education and Training (637/2017) contains more detailed provisions on the assessment of the amount of instruction and guidance provided. The basic principle when assessing the amount of instruction and guidance referred to in section 48, subsection 2 of the Act on Vocational Education and Training is that the number of hours laid down in the said section applies if the student completing an initial vocational qualification does not have the prior competence required for completing a qualification unit or a subject of common unit.

Under the provision, the amount of instruction and guidance required for completing a qualification unit or a subject of a common unit in an initial vocational qualification is at least 12 hours per competence point. However, the number of hours may be higher or lower than stipulated depending on the student’s learning skills or individual choices. In addition, the criteria for the scope of qualification units laid down in section 12 of the Act on Vocational Education and Training must be taken into account when assessing the scope of instruction and guidance in a qualification unit or subject of a common unit.

Regulations on assessing the amount of teaching and guidance for students apply to students starting their studies on or after 1 August 2022.

The Decree aims to strengthen the right of students to receive instruction and guidance and to harmonise the ways to assess the amount of instruction and guidance used in connection with the personal competence development plan. The aim is that, when planning competence acquisition, education providers must assess more specifically each student’s need for instruction and guidance as well as the number of students in different learning environments. The aim is also to ensure that students pursuing a vocational qualification receive a sufficient amount of instruction and guidance in a learning environment that is appropriate for each student. It is important that students within the scope of compulsory education, in particular, receive a sufficient amount of instruction in their educational institution. Generally, students who take up vocational education and training immediately after comprehensive school do not possess the recognised competence corresponding to the vocational competence requirements and key competence requirements under the national qualification requirements, which means that they acquire all or nearly all the necessary competence through the instruction and guidance provided in the educational institutions or other learning environments.

The aim is also to promote parity between those who choose general upper secondary education and those in vocational education and training as well as the position of those studying in educational institutions of different vocational education and training providers. The legislation on general upper secondary education includes provisions on the average amount of instruction and guidance, whereas the legislation on vocational education and training does not include a similar provision due to the competence-based criteria in vocational education and training. It is important that, over the course of the studies, young people who choose a vocational education and training path are guaranteed the same amount of instruction and guidance as those who opt for general upper secondary education, unless there is reason to make exception on the basis of a student’s personal skills and individual choices. It is also important that all students in vocational upper secondary education have the right to receive instruction and guidance on fairly uniform grounds regardless of the education provider.
 

The Decree applies to students studying for an initial vocational qualification who do not have the prior learning required for completing a qualification unit or a subject of a common unit.  The assessment of application is carried out in each qualification unit or, in the case of common units, by subject. The Decree does not apply to students completing further or specialist vocational qualifications or other vocational education and training.

Instruction and guidance refer to goal-oriented and supervised acquisition of competence recorded in each student’s personal competence development plan (PCDP). Only instruction and guidance that consists of the education provider’s teaching staff or, in workplace training, the workplace instructor and/or teacher instructing or guiding the student/students in active interaction with them are meant to count as hours involving instruction or guidance as referred to in the Decree. In the Vocabulary of Education (OKSA), instruction/teaching is defined as “interaction-based activities the aim of which is to learn”.

Independent studies of students are not taken into account when assessing the amount of instruction and guidance referred to in the Decree. However, in an online learning environment, for example, students can also study independently in such a way that they can receive instruction and guidance, if necessary. The number of hours during which a member of the teaching staff can be reached by the student, for example through a chat or Teams application, in teaching and guiding students and answering their questions is taken into account when calculating the amount of instruction and guidance that students receive. See also the questions on Learning environments in which instruction and guidance are taken into account and Taking into account instruction and guidance in different learning environments.
 

The Decree takes into account different learning environments in the future too. Instruction and guidance can be provided, for example, in educational institutions, as distance learning, at workplaces or in online learning environments.

Education providers should establish practices for assessing the planned amount of instruction and guidance in different learning environments. Not all the time that students spend in an online learning environment, in a workplace or in training organised at a workplace qualifies as instruction and guidance referred to in the Decree. See the question: Meaning of instruction and guidance

The amendments to the Decree are not intended for changing the personnel structure of education providers. As an employer, the education provider decides which of its staff members provide instruction and guidance, taking into account the provisions on the qualification requirements for teachers. Provisions on the qualification requirements for teaching staff are laid down by Government Decree (986/1998). The Decree on Qualifications contains provisions on the qualification requirements for those who provide instruction for vocational units and common units, for example. 

Section 118 of the Act on Vocational Education and Training contains provisions on the staff. In the said section, vocational education and training providers must have a sufficient number of teachers relative to how the vocational education and training is provided, either in permanent positions or in contractual employment. Additionally, education providers may employ hourly-paid teachers and other personnel. Under section 61 of the Act on Vocational Education and Training, students have the right to receive instruction and guidance in different learning environments that enable them to fulfil the vocational competence requirements and key competence requirements specified in the national qualification requirements. All instruction and guidance that a member of the teaching staff of the education provider gives to students for the purpose of achieving the vocational competence requirements and key competence requirements specified in the national qualification requirements are deemed to be instruction and guidance as referred to in the Decree.
 

Under the Act on Vocational Education and Training, an apprenticeship agreement and a training agreement can only be contracted if the student is appointed a responsible workplace instructor at the training workplace who is sufficiently qualified in terms of vocational skills, training or work experience. The main tasks in the workplace to acquire the national qualification requirements and personal competence are specified in the PCDP broken down into qualification units. The purpose of the amended Decree is not to change the established practices related to training organised at workplaces.

It may be difficult to determine accurately in advance the amount of guidance that a responsible work-place instructor should give, as guidance typically does not take place within the framework of preplanned training sessions, but in connection with work tasks as necessary and depending on the situation. The amount of guidance given by a responsible workplace instructor can be estimated, for example, by assessing the amount of training guidance that is given at a workplace during training organised at the workplace to a typical student studying for an initial vocational qualification. The amount of guidance given by a responsible workplace instructor would be assessed together with the employer or a representative of the workplace when drawing up or updating a PCDP. The need for and amount of instruction and guidance provided by a teacher at the workplace is assessed and recorded in the student’s PCDP on the same grounds as the instruction and guidance provided in the educational institution and other learning environments of the education provider.

Clarification of what was stated in the decree memorandum rationale: In connection with training organised at a workplace, besides a responsible workplace instructor, students may also be guided by other employees of the workplace or by making use of guidance resources provided by another workplace. This is justifiable for the purposes of ensuring high-quality guidance, for example, when it is expedient, in terms of the competence required by a qualification unit or other limited competence, to use, instead of a responsible workplace instructor, the professional skills of other personnel at the training workplace or guidance resources provided by another workplace. The guidance provided by another person belonging to the personnel of the training workplace or the guidance resources of another workplace are taken into account in the planned number of hours if the guidance outlined in the PCDP has been assigned to some-one other than the responsible workplace instructor.

The amount of instruction and guidance estimated in the PCDP does not need to be updated afterwards to reflect the actual amount of instruction and guidance even in cases where it did not correspond to the amount estimated in advance or when the guidance was occasionally given not only by a responsible workplace instructor or some other planned workplace instructor but also by another staff member of the training workplace. See also the question At what stage is the amount of instruction and guidance assessed? Should an estimate be revised to correspond to the actualised amount of instruction and guidance?
 

Under the Decree, the criteria for the scope of qualification units laid down in section 12 of the Act on Vocational Education and Training must be taken into account when assessing the amount of instruction and guidance in a qualification unit or subject of a common unit. Under the said provision, the competence point scores required for completing qualification units or preparatory education and training units are determined according to how comprehensive, demanding and significant the competence is in relation to the vocational competence requirements or to key competence requirements of the entire qualification or preparatory education and training. This means that qualification units or subjects of common units of the same scope in competence points do not always systematically require the same number of lessons and guidance, which should be taken into account when applying the Decree.

Under the Government Decree on General Upper Secondary Education (810/2018), students in education and training intended for young people have the right to receive 14 hours 15 minutes of instruction per credit. The scope of the general upper secondary syllabus intended for young people is 150 credits (target duration 3 years), which means that over the course of the syllabus, students have the right to receive instruction corresponding to a total of 14 h 15 min times 150 credits, which equals 2,137.5 hours of instruction. Divided by the scope of the vocational upper secondary qualification (180 competence points), the corresponding number of hours of instruction of 2,137.5 h divided by 180 competence points equals 11.875 hours of instruction. The number of hours laid down in the decree, 12 hours per competence point, corresponds to the same number of hours of instruction for an initial vocational qualification as for the general upper secondary syllabus intended for young people..

The 12 hours laid down in the Decree are not the maximum or the minimum; they are the number of hours used as the basis for assessing the amount of instruction and guidance. The number of hours laid down in the Decree may and should be raised or lowered as necessary. The assessment must take into account the competence-based approach and each student’s individual capabilities and objectives.

 The purpose of the Decree is not to reduce the amount of instruction and guidance if it has been previously estimated that achieving the vocational competence requirements and key competence requirements of a certain qualification unit or subject requires on average more instruction and guidance than the number of hours used as the basis for assessment specified in the Decree (12 h/competence point). The number of hours to be used as the basis for the assessment specified in the Decree is at least 12 hours per competence point. 

In the Decree, one lesson hour refers to 60 minutes of instruction and guidance, which does not include breaks. The education provider decides on the duration of individual instruction periods for the instruction and guidance provided in the education provider’s learning environments and on adequate breaks for students during the days of instruction.

Students have the right, based on their needs, to receive instruction and guidance in different learning environments that enables them to fulfil the vocational competence requirements and key competence requirements specified in the national qualification requirements or education and training requirements. The need for instruction and guidance may be greater than average in situations where the student has learning difficulties or needs more extensive support, special support or intensive special support than usual.

The amount of instruction and guidance may be less than the statutory amount if the student is assessed to be capable of acquiring the competence required for completing a qualification unit with less instruction and guidance. The amount of instruction and guidance may also be less due to the student’s individual choices, for example if the student is able and wants to study independently using online learning environments. However, independent studies must only be used to acquire competence when it has been ensured that the student has the capabilities and sufficient skills for independent studies. Ensuring this is particularly important for younger students who may want to study independently but who do not necessarily have the necessary skills for it.

The amount of instruction and guidance is assessed when the PCDP is drawn up and updated. This is a plan prepared on the amount of instruction and guidance to be provided when drawing up the PCDP. If the planned progress of studies changes, the amount of instruction and guidance must be updated in accordance with the normal PCDP process. The need for an update may arise, for example, if the planned learning environment changes or if the planned number of lessons proves incorrect for other reasons and needs to be adjusted. The amount of instruction and guidance entered in the PCDP does not need to be changed to correspond with the actual amount instruction and guidance if the student is absent from the studies due to an illness or some other reason, for example.

Under section 9, subsection 1, paragraph 7a of the Government Decree on Vocational Education and Training, the estimated number of hours must be entered in the PCDP. Entering the number of hours in an ePCDP requires amendments to the regulation on recording obligations. Provisions on the data stored in ePCDPs are laid down in the Act on National Registers of Education Records, Qualifications and Degrees.