THE JOY OF LEARNING
NATIONAL LIFELONG LEARNING STRATEGY
SUMMARY OF THE PROPOSAL OF THE LIFELONG LEARNING COMMITTEE
Issued by the Ministry of Education
Finland
September 1997
PREMISES
Economic globalization, the increase in other forms of international interaction and developments in the field of technology have led to a situation where spasmodic and unexpected change has become the norm in society. Change is often experienced as a threat, but it also provides a great deal of opportunities. People accordingly find themselves constantly confronted by a new situation demanding new learning and a renewal of competence. The rapid changes in society and working life, the rising average age of the population and a high level of structural unemployment will bring inequality and marginalization unless purposeful action is taken to counter this.
The only way to respond adequately to the need for broadly based, continuous learning caused by this social change is to promote learning in every aspect of people's lives. In addition to educational institutions, this means learning at work, in societies, in the home, and through leisure activities and hobbies. In a similar manner, the viewpoint of education policy and other policy areas which have a bearing on learning, such as employment policy, trade and industry and social policy, is broadening into a policy for the promotion of learning.
An open and enquiring approach to the new is the individual path open to every Finn that will lead to a fuller life and to the pleasures to be gained in achieving something.
GOALS
Lifelong learning is a principle which operates on a number of levels. In addition to the individual person it also covers the communities in which people live and work and the social parameters which shape their opportunities for action. It guides the educational career of individuals, the activities of communities, and the policies employed to promote learning in such a way as to allow the realization throughout society of a broadly based and continuous process of learning.
The goal in shaping the learning career of individuals is that people will have a positive attitude towards intellectual, aesthetic, moral and social growth such as will enable them to acquire the knowledge, skills, capacities and understanding they will need in the various situations with which they will be confronted during their lives.
The goal in respect of the activities of communities is that communities (primarily working communities and non-governmental organizations) will consciously organize their activities in order to promote such learning as will enable them to develop and their members to learn new things through their activities within the community.
The goal in the field of policy is that the law, public funding, other actions by the public authorities and by interest groups who can influence learning will be focused so as to promote people's learning at all stages of life and in all situations.
The goal in respect of the substance of learning is to support the development of personality, to consolidate democratic values, to maintain functional communities and social solidarity, to foster internationalism and to promote innovation, productivity and the ability of the country to compete.
NECESSARY STRUCTURAL REFORMS
Far-reaching reforms will be needed to allow the next step to be taken towards the realization of these goals. The Committee has organized its presentation into six main sections.
The continuous learning of new matters requires people to have basic knowledge and skills which can serve as a foundation for new learning. As not all people are equipped with such skills or there are insufficient opportunities for their development in childhood and youth, the educational foundation of our citizens must be reinforced. The Committee proposes that the role and responsibility of the family in the development of a capacity to learn should be emphasized, the development of children's knowledge and skills base should be commenced well before the current school age, the development of learning motivation and skills within the school system should be intensified, the level of knowledge and skills of adults with a low basic level of education should be raised, and the basic skills of the information society should be taken to form part of the general knowledge of the citizen.
For people to be able to adequately prepare themselves and adapt to changes in the professional skills required in working life and in the ways in which society operates, they will need to have at their disposal a very wide range of different opportunities for learning new things. The committee considers the present range of learning opportunities to be inadequate. In order to broaden the range of learning opportunities, the committee considers it essential to expand learning opportunities at work, develop the activities of non-governmental organizations as learning environments, enhance exploitation of the opportunities afforded by information technology in the creation of new kinds of learning environments, and use State-supported vocational adult education in a more coordinated manner to maintain continuity of change in occupational structures and balance in the labour market. At the same time the structures of working life and of society must be altered to allow people to take greater advantage of their increased capacities and skills.
The proposals on the recognition and transferability of prior learning and experience are based on the presupposition of an enhanced role for learning environments other than educational institutions. In order for people to be able to take advantage of skills acquired in all sorts of learning environments, in for instance job-seeking, career advancement or in seeking access to educational opportunities, there will need to be a universal system for them to demonstrate their skills and receive official certification. Learning must be intellectually, socially and economically rewarding.
While the Committee thus recommends the expansion and diversification of learning environments and the learning opportunities afforded within them, it simultaneously suggests increased provision of information and support for the construction of learning paths. The Committee considers the present information, advice and counselling services to be inadequate in the new circumstances.
The recommendations of the Committee place new demands on educational institutions, workplaces and non-governmental organizations. An adequate response to these demands will require the skills of teachers and other instructors working in different learning environments to be brought up to date. The Committee considers the professional skills and attitudes of teachers and other instructors to be of decisive importance in taking the next step forward.
The proposals on comprehensive policies for the promotion of learning are based on the need for coordination occasioned by the diversification of learning environments and the multifarious nature of the official bodies and interest groups which have a bearing on them. The Committee considers it necessary for the different branches of administration and interest groups with an influence on the provision of learning to work together in shaping and implementing a comprehensive promotional policy for learning.
The Committee makes the following recommendations:
Reinforcement of the foundations of learning
Early learning to smooth out differences of background
1. All means should be used to influence the dominant attitudes and values in society with the aim of reinforcing the role and capacities of the parents as developers of the child's motivation and skills for learning.
2. The activities of child health centres should be developed in such a way that parents can receive advice on how to develop the learning capacities of their children.
3. Laying the foundations of the knowledge and skills necessary for life should be introduced as the new goal of early education, and day care, pre-school instruction and the early stages of school should be developed as an integrated whole in line with this goal.
4. An immediate measure in the development of early education would be the introduction without delay of pre-school instruction for all six-year-olds.
Development of motivation to learn and learning skills within the school system
5. Comprehensive schools and secondary level educational institutions should encourage their students to acquire a wide range of learning experiences and also organize such opportunities themselves. The experiences and the lessons they provide should then be discussed in class. Educational institutions should approve the knowledge and skills acquired by their students in other learning environments as part of the study package when the essential content is in line with the educational goals of the institution. These goals and the responsibility of each educational institution to enter in its curriculum a description of how they can be realized should be laid down more clearly in the national curricular guidelines.
6. Organizations involved in youth activities should be encouraged to cooperate with the comprehensive schools and secondary level educational institutions.
7. Students at comprehensive schools and secondary level educational institutions should be encouraged to take advantage of the knowledge and skills they have learned at school in their everyday lives and leisure activities. Analysis of situations where such knowledge and skills have proved useful can then be included in classroom teaching. The goal should be entered in the national curricular guidelines.
8. The organizational methods and pedagogics of learning at work in initial vocational training should be developed as a fundamental qualitative development project.
9. A research programme should be initiated on the content, scope, distribution and development of knowledge and skills acquired outside the comprehensive schools and secondary level education.
10. An increasing number of the theses completed at the polytechnics should be commissioned from the world of work and deal with contemporary problems in working life.
11. The universities' selection of students and organization of teaching should be developed in such a way as to allow open university instruction to become an equally valid route to a university degree, with the university departments still bearing the responsibility for the quality of teaching and for ensuring that open university teaching also be based on research activity.
12. University instruction should be increasingly structured in modules to allow it to be of equal use to degree and continuing education, and to open university students, and to enable greater flexibility in the construction of degrees.
13. The labour market organizations should agree on changes in salary structures and terms of employment for teachers so that they take into account the changes in the operational methods of the educational institutions as well as the expansion of distance teaching described below.
Sufficient basic knowledge and skills level for adults
14. Raising the knowledge and skills level of adults with the weakest educational background — those with no post-compulsory education or with outdated secondary level education — to the level of the younger generations entering the labour market should be adopted as one of the focal points of the policy for the promotion of learning over the next few years.
15. In order to highlight this choice of emphasis and promote its realization in practice the effort to raise the level of knowledge and skills should include a level of social benefits for students adequate to motivate study.
16. A separate assessment should be made of the stages in which the task can be accomplished, bearing in mind the very large numbers of adults involved in this group.
17. The persons involved should be able to utilize the skills they have developed at work, in their leisure activities, and in their informal studies by incorporating them within the framework of their personal study programmes through skills tests.
18. In drawing up their study programmes the students should be able to draw on the entire spectrum of general education and vocational training, commercial provision, company-specific training programmes and the possibilities of distance learning.
19. A separate assessment should be made as to whether the individual realization of study programmes could be promoted by awarding the students study vouchers with which they could finance all or part of the instruction they need.
20. In addition to the certificates for completion of upper secondary general or vocational education, completion of personal study programmes providing an equivalent scope and level of knowledge and skills should also be awarded a secondary level certificate.
21. The foundations and methods of recognizing previously acquired knowledge should be improved as one of the focuses of the development programme for recognizing previously acquired knowledge which is presented below.
Basic skills of the information society as part of basic education
22. The development of the basic skills of the information society should be included as a matter of course in all education in such a way that separate attention will not need to be paid to it through special campaigns or projects.
23. With this aim in mind the contents of the national strategy for education, training, and research in the information society should, in addition to the basic skills of knowledge acquisition and management, communication, and information technology, also be expanded to cover extensively the basic skills of the information society.
24. The development of the basic skills of the information society should take account of the different learning styles and habits of the various groups within society — for instance young and old, women and men.
Development of a broad spectrum of learning opportunities
New opportunities for learning at work
25. The labour market organizations should agree or draw up for their members recommendations on the principles under which employers can support their employees' independent development of skills and under which employees can also use their free time for training.
26. These principles should take special account of the needs of older employees.
27. Educational institutions should direct themselves to a greater extent than before to personnel development of companies and public sector organizations as part of the broader development of companies and public sector organizations.
28. One model would be to develop training cooperation between educational institutions and companies which would take account of the training needs of both companies and employees; an example of this would be the PD programmes of the university centres for continuing education.
29. The labour market organizations should undertake to produce and distribute reports on successful cooperation projects between companies and educational institutions.
30. Employment and economic development centres should channel their services towards the diverse development of companies, in which personnel and work organization development are linked to the companies' other development activities. At the same time, support should be given to the renewal of the professional skills of the workforce and the retention of older members of the workforce in working life.
31. In order to even out the cyclical variations in personnel development investments, a personnel development reserve should be introduced to company taxation.
32. The labour market organizations should cooperate in seeking operational models for developing the skills of employees and salaried staff in short-term employment relationships; funding for these models should be sought especially from companies and public corporations with a high proportion of staff in short-term work.
33. Labour market organizations, the State, and research institutes should cooperate in setting up sector-specific projects and an overall nationwide project for the development of human resources accounting to illustrate the level of skills, and changes in skills, of the personnel of companies and public sector organizations.
34. The National Workplace Development Programme should be expanded in order to channel increased resources into the development of work organization models exploiting personnel skills and based on common acceptance, participation and cooperation.
Activity in non-governmental organizations as a source of educational and social capital
35. The promotion of learning within the framework of non-governmental organizations, associations and communities should be adopted as one of the focal points of the policy for the promotion of learning over the next few years.
36. The visibility of publicly supported educational activities by non-governmental organizations should be heightened by developing the reporting of their activities and the publication of such reports.
37. Adult education institutions should cooperate with non-governmental organizations in drawing up skills development programmes and should also assist in their practical application; in addition to the specific needs of the organizations involved, these programmes should develop the basic skills of the information society; public recognition should be provided for knowledge gained through activities in non-governmental organizations.
38. Educational institutions should encourage local initiative and the development of local communities into study communities and should also support the drafting and realization of community development programmes; the labour administration should activate workforce learning through local partnership development projects organized in cooperation with the non-governmental organizations.
39. Particular stress should be placed on action to prevent marginalization and increase equality; in addition to general education and professional skills, support should also be given to various types of learning processes aimed at realizing the independent goals of individuals and communities against a background of differing life situations, values and cultures.
40. The education administration should support participants' autonomous group learning (study circles and clubs), the pedagogical development of group learning, and counsellor training; costs incurred in accordance with the group study plan can be met by the introduction of a system of group study vouchers.
41. Study activities should be used to encourage direct participation by citizens in the social debate and the democratic decision-making process; adult education institutions should provide those interested in occupying positions of trust and exerting an influence in society with the opportunity to gain the necessary knowledge and skills.
42. Pluralistic research into operational policy should be developed to interpret change, stimulate socio-ethical debate and analyze future questions in order to provide alternatives for public debate.
43. Educational institutions should direct their activities to a greater extent at people of pensionable age; cooperation with organizations should be aimed at the maintenance of lifelong mental activeness.
New kinds of learning environments from information and communication technology
44. The Finnish Broadcasting Company (YLE) should expand its programming in support of studying to provide all Finns with the opportunity to acquaint themselves with the fundamentals of lifelong learning, to follow developments in the field, and to be fully involved in the development of a skills society. A special topical programme aimed at teachers will serve as a rapid means of communication and as a way of disseminating professional information.
45. As an open arena YLE should produce programmes and material for general education and distance learning. Altogether, this should consist of TV and radio programmes with their ancillary services such as the web pages on the Internet and other network and recorded multimedia. Programmes should also be produced with, for example, non-governmental organizations, communities and educational institutions.
46. Projects to generate material for independent study should be set in motion in cooperation between YLE, other media, the education administration and educational institutions.
47. A project should be set up to evaluate the organizational principles behind the operations of the educational institutions; this would produce information and recommendations for organizing the activities of educational institutions which utilize broad applications of information and communications technology.
48. In relation to the aforementioned project the funding systems of the educational institutions should be developed in a direction supportive of the organization of distance teaching.
13. The labour market organizations should agree on changes in salary structures and terms of employment for teachers so that they take into account the changes in the operational methods of the educational institutions as well as the expansion of distance teaching described below.
49. The changes in the job description of teachers caused by the expansion of distance teaching and the cooperation over study material should be taken as one of the premises behind the changes in salary structures and terms of employment for teachers referred to in point 13 above.
Continuity of change in vocational structures
50. Safeguards should continue to be provided for provision of a broad range of labour market training and independently pursued adult vocational training.
51. The Ministry of Labour and the Ministry of Education should cooperate in defining the boundaries of their spheres of competence and agree on the elimination of areas of overlap.
52. The employment and economic development centres, the educational departments of the provincial state offices and the educational institutions and institutions of higher education offering adult vocational training should develop modes of regional cooperation which can be of help in providing as varied and coordinated educational provision as possible and allowing the intensive reciprocal exploitation of the expertise of the different parties.
53. In order to guarantee equality of opportunity to participate there should be an improvement in the social benefits for students available during periods of independent adult vocational training.
Recognition of prior learning and experience
54. There should be an extensive programme to develop the capacity of educational institutions to assess skills. Once sufficiently standardized and high-quality facilities have been put in place, a system should be developed from the network of educational institutions or parts of it to provide private citizens with generally acknowledged certificates or diplomas on their skills in relation to the certification system. The public recognition of previously acquired knowledge which forms a necessary part of the programme for raising the knowledge and skills level of adults with the weakest educational background should be taken as a pilot project for the programme.
55. The manner of defining certificates and diplomas should be developed in such a way that the certificate or diploma requirements describe the skills needed and thus support skills assessment.
56. A skills passport should be introduced, in which individuals can collect the entries they require on the skills they have demonstrated in the completion in whole or in part of certificates or diplomas.
57. A skills portfolio made up of free-form certificates, demonstrations of skill or similar evidence of skills demonstrating skills at work, in pursuits outside work and in studies not forming part of the examination system should be developed as a method of recognition for acquired knowledge to support the drafting of personal study programmes.
Information and support for constructing learning paths
58. The development of information, advice and counselling on learning opportunities should be adopted as one of the focal points of the policies to promote learning over the next few years.
59. Within the Ministry of Education's sphere of competence, the development of information and advice on learning opportunities should be prescribed as a function of the National Board of Education.
60. In addition to the provision of advice on learning opportunities within the relevant field to their own students, the role of the educational institutions should be prescribed as also including the provision of such advice to individuals planning their own study programmes and to students of other educational institutions crossing the internal boundaries within the education system.
61. The Employment Services Act should be amended so as to bring opportunities for learning broadly within the remit of the employment offices' training and vocational information service.
62. The role of public libraries as multiple service providers should be enhanced and their information network services expanded.
63. A cooperative body should be set up with responsibility for cooperation and coordination related to the provision of information, advice and counselling on learning opportunities; all interested parties should be represented on this body.
64. The development of a common electronic service system should be set in motion immediately as an urgent cooperative project.
Updating the skills of teachers and instructors
65. The contribution of educational institutions' activities towards promoting the national lifelong learning strategy shall be taken as one of the premises for the national assessment and local self-assessment of the activities of the educational institutions.
66. The additional occupational training of teachers and other instructors required for the realization of the strategy of lifelong learning should be adopted as one of the focal points of the policies to promote learning over the next few years.
67. Education authorities and the local authorities should in cooperation with teachers and educational institutions draw up framework programmes for additional occupational training, the fine details and realization of which can be carried out on a decentralized basis.
68. In order to improve access, part of the framework programme for teachers' additional occupational training should be drawn up in cooperation with the Finnish Broadcasting Company. In addition to the regular teaching programmes, the package should include a regular current affairs programme aimed at the needs of teachers.
69. Education authorities and the labour market organizations should cooperate in seeking methods of approach to facilitate the development of the professional skills of on-the-job instructors.
70. Education authorities and study centres should cooperate in seeking means to facilitate the development of the professional skills of counsellors and instructors working within the non-governmental organizations.
Towards a comprehensive policy for the promotion of learning
71. Promotion of the strategy of lifelong learning should be adopted as one of the central premises guiding the operational policies of the Ministry of Education, the Ministry of Labour, the Ministry of Trade and Industry, the Ministry of Social Affairs and Health, the central labour market organizations and the Finnish Association of Local Authorities. A joint body from the aforementioned ministries and organizations should be set up to shape, coordinate and develop a policy for the promotion of learning.
72. At regional and local level, the provincial governments, the employment and economic development centres, the regional structures of the labour market organizations, the regional councils, the local authorities and the educational institutions should engage in the cooperation necessary for the promotion of the strategy of lifelong learning.
73. The necessary framework should be established for regular dialogue between the Ministry of Education and the leaders of the central labour market organizations.
FUNDING THE STRATEGY
The structural reforms presented in the strategy encapsulate the Committee's view of what the focal points of the policy for the promotion of learning should, over the next few years, be viewed from the perspective of lifelong learning. It has not been the intention of the Committee to make specific recommendations on how the various measures should be funded. The Committee considers this to be the job of the various quarters responsible for the policy for the promotion of learning once the national strategy for lifelong learning has been subjected to an adequate level of public debate.
It is the view of the Committee that the widespread and continuous learning of new matters is of vital importance to Finland's future. The social climate, social structures, and the actions of the different bodies within our society must all support lifelong learning if we want our society to continue on the path of stable development and Finland to continue to be a full partner in the international community. In the opinion of the Committee, the preservation of Finland's relative skills advantage requires our continued membership of the leading group within the OECD countries in terms of our investment in education.
The funding of the reforms recommended by the Committee will require a shift in the focus of education expenditure. The necessary changes could involve internal shifts of emphasis within public education expenditure, but they could also involve a redefinition of the relationship between public and private expenditure. Funding for the reforms will be facilitated in part by the strategy's effect in increasing efficiency, as a result of which it will be possible to redirect resources. An increased role for private expenditure means in practice a greater input into the costs of learning from companies, non-governmental organizations and private citizens.
