Inclusion and Excellence in Education

- The Finnish Experience

by Vera Savic
Ms Vera Savic has been teaching ESP at the Faculty of Education in Jagodina,
University of Kragujevac. She is a national teacher trainer for secondary teachers of
English and enthusiastic presenter at in-service teacher training seminars and
conferences in the country and abroad.
As an ELTA Board member and ELTA Regional Coordinator she has been very active in
writing project proposals for ELT professional development seminars and organising ELT
mentorship seminars for regional EL teachers at the Faculty of Education in Jagodina,
successfully combining her academic activities with wider professional interests.
Being a coordinator in several projects of international academic cooperation (like the
Finnish-Serbian STEP Project and TEMPUS Project), Ms Savic has fervently supported
curriculum development in teacher education, drawing much of her professional
inspiration from study tours abroad and exchange of experience with other teachers.
vera.savic@pefja.kg.ac.yu
***
Introduction
One may well ask why I refer to Finland when speaking about inclusion and
excellence in education. There are two reasons for that: first, Finland is well-known both
for its success in education and for the well-developed system of inclusion; second, I
have visited the country three times on my study tours to Helsinki, seeing for myself how
the Finnish system of education functions in practice.
In October 2005 there was a big PISA Conference 1 in Helsinki, attended by 130
education professionals from more than 30 countries. It attracted so many participants
because its objective was to explain the factors behind the Finnish success in education,
and representatives of countries from all over the world gathered there to learn the
secret.
The surveys of the Programme for International Student Assessment (PISA for
short) for 2000 and 2003 showed that Finnish pupils achieved excellent results in all
domains tested: reading literacy, mathematics, science and problem solving. Moreover,
there was small variation between pupils, and only 6% of all pupils was at risk because
of really bad results in reading literacy and mathematics (the average in other OECD
countries being 20%). Pupil performance in scientific literacy varied less than in most of
the other countries. Differences between schools were very small in Finland and there
was no influence of the schools social status on the results. Although economic status of
the family and parents educational level were seen as important factors at the individual
level, their effect was the second smallest across the OECD countries. Gender
1

My participation in the Conference was supported by the Serbian-Finnish Teacher Education Development Programme
(STEP for short), of which I was a coordinator on the part of Teacher Education Faculty in Jagodina in the period from
2004 to 2006.

differences in reading literacy and mathematics were still high, but relatively small
compared to other countries.
These results are amazing if one knows that children in Finnish schools are not
tracked or streamed into courses of different levels, but form heterogeneous groups.
What is more, special needs education is closely integrated into mainstream teaching.
How is high success achieved in such conditions?

The picture shows an inclusive class in a Helsinki primary school where refugee and
immigrant children are given extra classes in Finnish (taken by Vera Savic, March 2005)

Teacher Education and Teacher Autonomy

Finland has developed the concept of research-based teacher education, which
links teaching and learning to scientific research. Such teacher education enables
students of class teaching to become reflective teachers who analyse and solve
educational problems independently and develop their work through research. Adequate
teacher education is seen as one of the most important factors behind excellent results.
There is a very strong role of the teacher in deciding on school activities: the
Finns are proud to say that their system of education is the most decentralised
educational system in the world. Teachers have a lot of power in deciding on school
curriculum, subject-specific syllabus, textbooks, assessment principles and schools
internal policies. Therefore, an important prerequisite for effective learning is the highquality teachers and teacher education: all teachers are educated at universities and
have masters degrees. It is believed that academically educated teachers are the best
experts to design their teaching in practice: they are expected to use national standards
as aids and tools, but these standards are not binding or controlled. Finland has
abolished the inspection system almost 20 years ago and quality assurance is based on
trust placed in teachers. It is no wonder that teaching is a very attractive occupation for
young people, although the selection is very strict (only 12% of the candidates are
admitted) and teachers salaries are at the level of international average.
Teachers adapt their own teaching to the needs of different learning groups.
Therefore, they need to know the theoretical and practical premises of different methods
(provided by adequate teacher education). They constantly need new competences
required by the changes in society: pedagogical and social knowledge and skills to work
together in solving problems at school and working with parents. Cooperation with

parents is a factor becoming more and more important in effective learning. Teacher
cooperation and in-service training of teachers are important factors in teacher
development.

The picture shows a regular class in a Ljubljana primary school, where all children are
encouraged to participate in teaching/learning activities (taken by Vera Savic, Nov. 2005)

Schools and Pupils

The Finnish educational policy is a long term policy commitment with broad
concensus, offering equal opportunities for acquiring knowledge and skills. There are
4,300 comprehensive schools providing equal learning opportunities for all population
groups and among different regions of the country. Comprehensive educational model
guarantees high-level education for all, its objectives and possibilities being the same for
all pupils. Compulsory education begins at the age of seven and lasts nine years. For
the first six years children are taught by a class teacher, and by specialized subject
teachers for the subsequent three years. There is one-year pre-school education, which
is not compulsory, but is attended by 95% of children.
Compulsory education is free of charge and is financed by public funds
(municipality). All children receive free tuition, free instructional materials, warm school
meals, health and dental care, and transport and accommodation, if necessary. The
municipalities take an active part in making decisions about organizing teaching in local
schools, while schools have freedom for flexible grouping of pupils and how to use
resources.
The general mission of primary schools is to support childs growth so that he or
she can have strong self-esteem and become a healthy young person in order to use his
or her talents and learnt knowledge according to his or her ability in his or her future. It
is obvious that the childs welfare is the central idea directing all school activities and
decisions: the aim is to create a safe learning environment and to help the weakest by
offering special support and counselling (there is a general feeling that the gifted can
easily support themselves). Pupil-centred approach is applied in teaching and aims of
education are more important than contents. Pupils are encouraged to be independent,
autonomous and considerate. Among the most important educational aims are integrity
and confidence in ones own abilities and possibilities. Development of pupils social
skills is also emphasized through cooperation in pair and group work and teachers
encourage children to learn from each other. It is heterogeneous grouping that sets high
standards and encourages pupils to do their best. The success of the Finnish pupils in

all domains tested in PISA is very much influenced by factors connected with pupils
motivation, interests, confidence and commitment to learning.
Pupils can choose some subjects and usually get their individual curriculum and
work plans. They learn to plan their weekly work. Special care is taken of every pupils
individual needs: it is felt that there is no need for everyone to learn the same content or
at the same time as others. It is very important to point out that children do not get
grades in any of the subjects during the first six years of their schooling, but are
systematically taught and encouraged to self-assess their performance and progress. If
they encounter learning difficulties, they can get extra classes (two a week) even in
several subjects at the same time. The need is first discussed with the child and parents,
and then an individual plan is made for each subject. There are classes of special
education provided for children with special needs and learning problems.

The pictures show cooperative activities in a regular English class in a Helsinki primary school;
student teacher is co-teaching with the English language teacher and giving individual support to
children (taken by Vera Savic, March 2005)

System of Inclusion
Finland has developed a multi-track approach to including pupils with special
educational needs. It means that a multiplicity of approaches to inclusion is applied in
education: there are various services between the mainstream and special education
(Special Needs Education in Europe, 2003: 7).
In 1990 there was the decentralization of decision-making to the municipalities. It
caused closing a number of special schools and founding special classes in mainstream
schools. Today there are eight special schools for pupils with hearing, visual, physical or
other impairment. These are state-owned schools and they also play the role of service
centres providing expert services for municipal regular schools (rehabilitation for pupils
of disabled people).
It is the duty of municipalities and local schools to include pupils with SEN in the
mainstream educational system. The children with SEN are thus included into regular
classes, and when it is necessary, they get special support within small teaching groups.
There are no special curricula for children with SEN, but the same curriculum is
individualised by individual educational plan. Teaching and support services are

organized in accordance with pupils age and abilities. Children with SEN represent 6.7%
of all pupils in Finland (Statistics Finland, 2005) (Takala, 2007: 51).
Inclusive education involves engagement of both a class teacher and a special
teacher. What distinguishes inclusive classes in Finland is the position of classroom
assistants who cooperate with the class teacher in mainstream or special education.
They are educated professionals who help children with SEN in their studies and in
coping with various situations in school. Children with SEN need support in five different
areas: communication, social skills, curriculum access, personal care and mobility
(Takala, 2007: 51). The assistants help the pupil, either in individual work or in a small
group or half a class; they also assist the teacher in planning, preparing or bringing
teaching material, and correcting tests or exams.
The use of teaching assistants has enabled more inclusive schooling practices in
Finland. In 2002 there were about 6000 assistants in all of Finland, and in 2005 this
system involved 582 assistants working in different schools in Helsinki (Takala, 2007:
51). The practice is supported by Finnish legislation which guarantees disabled children
or children with SEN free auxiliary services in order to be able to participate in
mainstream education. Children with SEN are taught individually or in small groups.
Special groups may be organized permanently for the whole year, or for some lessons to
support learning in regular classes.

Core Curriculum and Language Studies

National core curriculum is the basis for school-based curriculum created by a
specific school, with participation of municipal authorities. The practice of creating
school-based curricula using a very liberal national framework curriculum for basic
education was introduced in 1994 and revised in 2004. There is a wide support of the
general public for the revised core curriculum.
In the Finnish national core curriculum teaching is focussed on four areas:
mother tongue, mathematics, science and civics. Comprehensive school (six grades
primary and three grades lower secondary) subjects include native language and
literature (Finnish or Swedish), other languages (A-language and B-language),
mathematics, environmental study, civics, religion or ethics, history, social studies,
physics, chemistry, biology, geography, physical education, health education, music, art,
handicrafts and home economics.
Finnish schools emphasize the study of foreign languages and multiculturalism.
The first foreign language is introduced in the third form (though some schools introduce
it in the second year), and there are two possibilities: A-language can be only English, or
the child chooses two languages (among Swedish, German, Russian or French, in the
third year, and English in the fourth). The second domestic language is introduced in the
seventh grade, and it is usually Swedish for Finnish-speaking pupils, and Finnish for
Swedish-speaking pupils. Depending on the options offered by the school, children can
choose some other foreign languages in various grades.
The children of immigrant families are given special classes of Finnish as a
second language in order to promote their inclusion. If there is a certain number of
immigrant pupils with the same native language, the school provides them with classes
of that language twice a week. It is believed that childs development is very much
helped by his or her proficiency in their native language, and that such proficiency helps
them to learn Finnish (Korpela, p. 14).

All pupils also have the right to pupil counseling providing individual guidance to
children: in study skills, choice of options (elective courses), planning post-compulsory
studies. If they have learning problems, they get regular individual help. They all learn
the same core subjects, but about 20% of hours are reserved for elective subjects which
they choose individually.

Conclusion
The Finnish excellence in education, obviously, depends on a number of factors,
all complimenting success. However varied these factors may be, they all stem from one
basic idea: to provide equal education for all children: boys and girls, rich and poor,
handicapped and others. Therefore, the success for all greatly depends on extra
support slow learners get in Finnish schools as well as on inclusive practice applied.
The Finnish experience can rightly serve as an inspiration for creating a variety
of national strategies in education, aspiring for excellence.
References:

European Agency for Development in Special Needs Education i EURYDICE

(2003) Special Needs Education in Europe
Retrieved from: www.european.agency.org

Korpela, S The Finnish School a source of skills and well-being.Ministry for

Foreign Affairs, Department for Press and Culture, Finland

Roihuvuori Primary, Helsinki. 2004

Takala, M (2007) The work of classroom assistants in special and mainstream

education in Finland. British Journal of Special Education, Volume 34, Number 1.

The Finnish National Board of Education developing future learning

Retrieved from: www.edu.fi