Human Resources Development Convention, 1975 (No. 142) - Finland (Ratification: 1977)

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

The Committee notes the joint observations of the Central Organization of Finnish Trade Unions (SAK), the Finnish Confederation of Salaried Employees (STTK) and, the Confederation of Unions for Academic Professionals in Finland (Akava) contained in the Government’s report. The Committee notes the concerns expressed in the joint observations regarding the position, allocation of working hours and the role of workplace counsellors. In addition, the Committee notes the observations from the Confederation of Finnish Industries (EK), which encourage an increase of the competencies of the study counsellors. EK also calls on further efforts to implement the 2018 vocational education reform in various educational institutions. The Committee invites the Government to provide its comment in this respect.

Article 1 of the Convention. Formulation and implementation of education and training policies. COVID-19 pandemic. The Committee notes the Act on the temporary amendment of the Act on Public Employment and Business Services (1139/2020), which was in force from 1 January 2020 to 30 June 2022. The Government indicates that the amendments aim at promoting employment and ensuring the availability of skilled labour, while considering the impact of the COVID-19 pandemic on the labour market. As an example, the legislative amendment (1139/2020) allows the Centres for Economic Development, Transport and the Environment and the Employment and Economic Development Offices to procure degree studies and offer them as part of labour market training, under certain conditions, between 1 January 2021 and 30 June 2022.

The Committee also notes with interest the temporary amendments of the Act on Public Employment and Business Service (916/2012) in order to extend the possibilities of the labour market training. Thus, the Government indicates that the following could be acquired as labour market training: studies leading to a university degree in order to complete interrupted university studies; studies leading to a university degree for a person who already has a post-secondary level degree or a similar level degree completed abroad in the same field; and studies leading to a new university degree for a private customer (who has already completed a university degree to an education targeted at a limited group of people for which the eligibility of the applicants is defined separately by the university and if the studies are estimated to be completed within 24 months). The act applies to studies which started at the latest on the 30th June 2022 and will end on the latest on the 30th June 2024. The Committee requests the Government to continue to provide updated detailed information on the policies and programs adopted to attain the objectives of the Convention. It further requests the Government to continue to provide specific information, including disaggregated statistic by age and sex, on the results achieved by the amended Act on Public Employment and Business Services (1139/2020) and the Act on Public Employment and Business Service (916/2012). In particular, the Committee invites the Government to precise the conditions under which persons are suitable to follow a labour market training.

Article 1(5). Equality of opportunity. The Committee notes the existence of the Youth Guarantee, which offers a personally suitable solutions for young people within three months of the beginning of their unemployment. The Committee also notes with interest the existence of 70 One Stop Guidance Centres for young people (Ohjaamo). The joint observations of the SAK, the STTK, and the Akava indicate that Ohjaamo caters to young people under the age of 30 with different services, such as career services, guidance and counselling for studies, living and wellbeing. The Government precises that according to a study published in 2019, the Ohjaamo were found to produce great results, and that the employability of young people improved. The Committee requests the Government to continue to provide updated detailed information on the impact and of the future developments of One Stop Guidance Centres for young people (Ohjaamo), including disaggregated statistics by age and sex.

Indigenous people. The Government’s report does not provide information regarding the implementation of policies and programmes of vocational guidance and training adapted to the Sami people. The Committee requests the Government to provide detailed information on the implementation of the Convention for the indigenous people in Finland. In particular, the Committee invites the Government to provide detailed information on the vocational training and related educational opportunities offered to the indigenous people, in respect with Article 3(2) of the Convention.

Articles 2 and 3. Vocational guidance information. The Government indicates that the Act on Vocational Education (531/2017) was reformed in the beginning of 2018. The Governments adds that, according to two reports of 2021, the reform of the Act on Vocational Education: improved the efficiency of the implementation of education; harmonized vocational education and training/operation practices; increased cooperation between education providers and companies; and supported the organization of working life-oriented education and training. The Committee also notes the existence of the Programme to Develop Quality and Equality in Vocational Education and Training (2020–22); and the Programme for the development of student guidance, which was launched in 2020 and aims at strengthening the implementation of student and career guidance, practices, cooperation, systematism and continuity. The Committee requests the Government to continue to provide detailed information regarding the reform of the Act on Vocational Education, the Programme to Develop Quality and Equality in Vocational Education and Training (2020–22), and the Programme for the development of student guidance, as well as their results. It also requests the Government to provide detailed data disaggregated by age, sex, ethnicity, national origin, language spoken and other relevant indicators.

Article 4. Lifelong learning. The Committee notes with interest the Strategy for Lifelong Guidance 2020–23, which aims at improving people’s ability to make educational and career decisions for themselves. The Government emphasizes that the Strategy for Lifelong Guidance will be implemented in an inclusive way and with a support at a regional level. This Strategy include the following measures: the creation of a well-functioning digital service for continuous learning that will improve the share of information on education, the labour market and competences; the improvement of cooperation across governmental sectors through a permanent national representative structure to coordinate the development of evidence-based quality and impact of lifelong guidance services; the conduct of evaluations of the training programmes; and the development of descriptions of the core and special competences of the career professionals in order to promote the overall quality of the guidance service. The Committee requests the Government to continue to provide detailed information on the implementation of the Strategy for Lifelong Guidance 2020–23, and any other measures implementing lifelong learning in respect with Article 4 of the Convention. In particular, the Committee requests the Government to provide information on the cooperation and the role of trade unions in the Strategy for Lifelong Guidance.

Observation (CEACR) - adopted 2004, published 93rd ILC session (2005)

1. The Committee refers to its comment on the application of the Employment Policy Convention, 1964 (No. 122), and notes the observation of the State Employers’ Office (VMTL) on the application of Convention No. 142. VMTL considers that there is scope for improvement in the cooperation between workplaces and educational institutions and in the allocation of resources to career counselling. It also emphasizes the importance of providing job training positions in order to ensure the availability of qualified labour for government agencies in the future.

2. Articles 3 and 4 of the Convention. Lifelong education and training policies. The Committee notes with interest the newly adopted adult education strategy which will be operational until 2010, including legislation on financial assistance to adult students and job alternation leave. It notes in particular the promotion of cooperation between working life and training by revising the concept of on-the-job learning, which will involve promoting tutored and assessed study worth at least 20 credits following the goals of the curriculum. Please continue to provide information on the overall practical results of this new strategy, including information on the efforts, in cooperation with the social partners, to bring training and working life closer together including through the revised concept of on-the-job training. Please provide further information on the targets set in the 2003 Policy Programme and the extent of their fulfilment, particularly in light of the information that the total number of persons receiving personal guidance through the employment offices declined by 1,200 in 2002. In this respect the Government may find it useful to refer to the new Human Resources Development Recommendation, 2004 (No. 195).

Direct Request (CEACR) - adopted 2000, published 89th ILC session (2001)

The Committee notes the information contained in the Government’s detailed report. Further to previous comments, the Committee notes the Government’s description of the various forms of tripartite consultation that occur. It also notes the comments of the Commission of Local Authority Employers (KT), which considers that there has been an increase in responsibility of employers for the content and cost of training. The Committee would appreciate continuing to receive information on tripartite consultations and the outcomes, as requested in the report form under Article 5 of the Convention.

Article 2.  The Government states that only a small portion of the allocated funding for some programmes of adult continuing education is actually spent due to restrictive requirements for participation. The Government plans to change the requirements for participation in the programme, to enable more unemployed adults to participate, in line with the proposals made by the working group established in 1999 to examine development of the third phase of the training guarantees to unemployed adults; and new legislation will come into effect in 2001. Please provide a copy of the new legislation and further information on the outcome of these changes.

The Committee also notes with interest the National Productivity Programme, the National Programme on Ageing Workers, and a three-year programme on encouraging boys and girls to seek entry into fields traditionally reserved for the other sex. Please supply further information on the outcome of these programmes, as requested in Part VI of the report form.

Lastly, the Committee notes the comments of the Confederation of Unions for Academic Professionals in Finland (AKAVA) which considers that the Government should: better anticipate the demands for training and skills in the labour market; consider the various requirements for finding a job beyond educational background; tailor training to the specific needs of participants and employers; and maintain the skills of people in employment. The Committee would appreciate receiving further information on the points raised by the AKAVA.

Direct Request (CEACR) - adopted 1998, published 87th ILC session (1999)

1. The Committee takes note of the Government's report for the period ending in June 1998 and of the comments made by the Central Organization of Finnish Trade Unions (SAK), the Finnish Confederation of Salaried Employees (STTK), and the Confederation of Unions for Academic Professionals in Finland (AKAVA), and communicated with the report.

2. With reference to its previous comments on this matter, the Committee notes the explanations concerning the membership and function of the training commissions established under the auspices of the Ministry of Education. The Committee also notes that, according to the AKAVA, tripartism is working as it should in the area of labour market training, while the STTK consider that cooperation between employment offices and the representative organizations should be intensified in this area. In order to be able to assess the manner in which the cooperation with the employers' and workers' organizations required by Article 5 of the Convention is achieved in practice, the Committee would be grateful if the Government would attach to its next report extracts from reports, studies and inquiries of the different competent bodies representing the social partners (Part VI of the report form).

3. The Committee observes that the SAK expresses disagreement on a number of aspects of the Government's education and training policy. The SAK considers, for example, that more attention is paid to higher education than to vocational training; that the planned transfer of 20 per cent of places in vocational training establishments to apprenticeship contracts will not provide trainees with the same opportunities for study; and that on-the-job training encouraged by wage subsidies gives rise to abuses, especially in small enterprises which find it difficult to provide adequate training. The STTK, for its part, emphasizes the low proportion of long-term unemployed who avail themselves of their right to pursue studies while continuing to receive unemployment benefits; this is the result of the insufficient availability of appropriate training, the strict and complex conditions imposed and the requirement of a long qualifying period in employment. The Committee invites the Government to indicate its views on the issues raised by the trade union organizations, with regard in particular to the need for openness, flexibility and complementarity in the education and training systems, in accordance with Article 2 of the Convention.

[The Government is asked to report in detail in 2000.]

Observation (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee notes the Government's report, which contains information in reply to its previous observation and transmits the comments made by the Central Organisation of Finnish Trade Unions (SAK) and the Confederation of Salaried Employees (TVK) on the application of the Convention.

2. The Committee notes the developments in the field of training, including the coming into force in 1991 of the Act on Labour Market Training, the purpose of which is to promote equilibrium between the supply and demand for labour by strengthening vocational training for the adult population. In this respect, the TVK considers that, although advances have been made in training, the measures that have been taken have not been sufficient to match the fast pace of technological development. The TVK emphasises the need to devote greater efforts to the promotion of vocational training in times of increasing unemployment. The Committee hopes that the Government will continue to supply detailed information on how vocational training and guidance policies and programmes are developed that are closely related to employment. With regard to basic vocational training at the workplace, which gives concern to workers' organisations, as noted by the Committee in its previous comments, the Government states that it is now subject to the conclusion between the training institution and the employer of a training contract specifying the goals, content and duration of the training programme.

3. Further to its previous comments on the application of Article 5, the Committee notes the assurances given by the Government on the manner in which the cooperation of employers' and workers' organisations is ensured in the formulation and implementation of policies and programmes. The Government states that these organisations are associated with the work of the Committee for Manpower Services, which handles issues related to the vocational training and guidance of adults, as well as with the National Board of Education which, since April 1991, has been responsible for administering general and vocational education and under which sectoral training committees with a tripartite structure have been set up. The SAK, however, finds that the reform of the administration of education has had the effect of weakening the influence of workers' organisations in the fields of education and training. It states that the number of advisory bodies to the central administration has been cut and that representation of working life in the administration of vocational training institutions has been reduced. With reference to its previous comments and its 1991 General Survey on Human Resources Development (paragraph 105), the Committee notes that the scope and procedures for the association of the social partners with vocational training and guidance policies and programmes have been the subject for many years of criticisms by both employers' and workers' organisations. It trusts that the Government will supply full particulars in its next report on the formal consultative procedures and machinery that have been established and that it will indicate the composition of the various bodies, their competence and the frequency of their meetings.

Observation (CEACR) - adopted 1988, published 75th ILC session (1988)

Further to its previous observation, the Committee takes note of the report transmitted by the Government as well as the information communicated to the Conference in 1984. The Committee has also taken due note of the comments of the Finnish Employers' Confederation (STK), the Employers' Confederation of Service Industries (LTK) and the Confederation of Salaried Employees in Finland (TVK).

1. The Committee recalls the previous comments of the STK and the LTK calling for the development of tripartite co-operation on vocational guidance and training in accordance with Article 5 of the Convention. It notes now the STK's statement that such matters have increasingly been dealt with on a tripartite basis; however, the STK and the LTK consider that employers' realistic demands and statements have not been taken into account. In the Government's view, the labour market parties have the opportunity to take part in the planning of vocational guidance and education in accordance with the Convention. The Committee recalls that, under Article 5, policies and programmes for vocational guidance and training should be formulated and implemented in co-operation with employers' and workers' organisations, amongst others. It hopes that all parties concerned will endeavour to ensure that the necessary co-operation is achieved, and that the Government will provide all due information in future reports.

2. The Committee recalls that the Central Organisation of Finnish Trade Unions (SAK) has previously opposed the provision of part of vocational training at the workplace, where it may be more narrow and less well supervised. The TVK now observes that the goals of educational reform have not yet been reached, and some employers have misused the apprenticeship training scheme as a means of obtaining cheap labour; the TVK also considers it should be better supervised. The STK and LTK, however, favour a permanent increase in practical training at the workplace under the until now temporary training contracts system. The Government has stated that the practical training system is due to be established in 1988. The Committee considers that the apparently differing views on this question should also be the subject of the co-operation referred to in Article 5 of the Convention, as a means of ensuring that these measures of vocational training form an integral part of overall policies and programmes within the terms of Article 1 of the Convention. It hopes that the Government will provide further details of the practical effect of this aspect of its vocational training strategy.