Information on Finland – Nordic languages as second languages

The process of defining a child as a learner of Finnish as a second language is not uniform across regions, and there are no formal assessment procedures for children who learn Finnish as an L2 in early childhood education. However, there is a legal obligation for an individual ECEC plan to be drawn up for each child, together with their parents. When updating the plan, the child’s linguistic background and environments, language choices and multilingual identities, as well as language skills (in both Finnish and their mother tongue) and their development, are regularly discussed. Before primary education, educators have a meeting or share information by some other means with the school about the child’s progress, strengths, and special needs.

Second language teaching in early childhood education and pre-primary school is not a legal requirement and is not funded by the state, so there is variation in the way it is organized and implemented. Regional consultant resources and rotating early childhood special education teachers’ expertise are used to support children’s L2 development. 

All children are legally entitled to equal access to ECEC. Language awareness is one of the key features in the national ECEC curriculum. Teachers should understand the central role of language in children’s development and learning, in interaction and cooperation, and in the construction of identities and social inclusion. According to the policy documents, children are encouraged to use language in variable ways and are given time and opportunities for different interactional encounters.

There is no specific curriculum for Finnish (or Swedish) as an L2 for early childhood education. However, language awareness is one of the key features of the national curriculum for ECEC. It is emphasized that Finnish language skills are developed in a goal-oriented manner according to the needs and abilities of the children – for example, through a variety of interactional encounters and learning environments. The learning objectives include language awareness, linguistic memory and vocabulary, language use skills, language comprehension skills, speech production skills and interaction skills. Children are supported to develop the skills to make observations and express their own thoughts, feelings, and opinions.

There are no special requirements for teaching L2 in early childhood education, but to qualify as a teacher in ECEC and care and pre-primary education requires the completion of a bachelor’s degree in education and a minimum of 60 ECTS of studies of professional competencies in early childhood education and care. The Finnish language proficiency requirements for early childhood education teachers are not specified, and employers decide whether the language skills are sufficient at the time of recruitment. For the pre-primary education teachers, the required language skills are defined in the Basic Education Act: The teachers should have excellent oral and written skills in the language of instruction (Finlex 986/1998).

To meet the requirements of the national curriculum, the teachers need to have a broad understanding of languages, cultures, multilingualism, and language development. These issues are covered in the studies of professional competencies in early childhood education and care. Courses vary from one university to another. For example, the University of Jyväskylä offers one course focusing specifically on the language education and development issues, and students can also choose to study in a specific LAMP (Language aware multilingual pedagogy) programme, in which courses on language and cultural issues have been integrated into their educational studies. Furthermore, a wide range of in-service training is provided for the teachers in the field.

The new arrivals are offered preparatory education for basic education (EDUFI, 2015). The duration is usually one academic year (900 or 1,000 hours, depending on the grade level). The main aim of preparatory education is to support the students’ development of skills in the language of schooling.

After the preparatory education, students whose mother tongue is not Finnish, Swedish, or Sami, or who otherwise have a multilingual background, are entitled to participate in the Finnish as a Second Language (L2) and literature syllabus throughout their primary and secondary education or until their skills are assessed to be sufficient for the syllabus of Finnish language (L1) and literature. L2 teaching supports the development of language in different areas of language skills, and the disciplinary literacy.

Furthermore, language-aware pedagogy is a key feature in the Finnish core curricula in all levels of education (EDUFI, 2014, 2020). Thus, language is recognized as a main mediating tool both in learning and in building social networks. This means that all teachers are responsible for supporting their L2 students. In all subject areas, both the developing Finnish language skills and students’ multilingual resources should be considered.  From August 2025 onwards, teachers are also responsible for providing tailored language support in their school subject for those students who need it.

In some municipalities and schools, structured linguistic support in connection with subject areas is offered to the students in lower secondary education (Harju-Autti & Sinkkonen, 2020). The Basic Education Act (628/1999 section 10) also allows subjects to be taught in the students’ own mother tongue, and this kind of support is offered in some schools.

The aim of mother tongue instruction is to support the maintenance and development of students’ first language and multilingual skills. Mother tongue instruction is supplementary to basic education. Thus, the education providers (the municipalities) are not obliged to offer it, and for the students, participation in the lessons is voluntary. The supplementary teaching is mainly funded by the government, but the school must apply for the state grant (86% of the costs), and there is a minimum group size of four students (two for Sami and Roma languages). The two lessons per week are taught outside the class schedule (Finlex, 2009/1777).

There is no national test or uniform way of assessing the language skills and applying the ‘Finnish as a Second Language’ syllabus. The teachers collaborate to determine whether the student would benefit from following the L2 syllabus and they inform the guardians about their views, but the final decision is made by the guardians. The progress of a student is evaluated according to the criteria of the L2 syllabus, regardless of how the teaching is organised. A student may be transferred to study in accordance with the L1 syllabus when he or she is deemed to have sufficient skills to fulfill its learning objectives and criteria (EDUFI, 2015).

The core curriculum for preparatory education for basic education (EDUFI, 2015) and the core curriculum for basic education (EDUFI 2014), set the guidelines for preparatory education. Further, each education organizer (a municipality) creates a local curriculum. The main aims are to promote the students’ Finnish or Swedish language skills, to support their growth, development, and integration into Finnish society, and to provide them with the necessary skills for basic education. As the students’ skills and backgrounds vary, teaching is differentiated according to their developmental stages and needs. At the beginning of preparatory education, an individual study plan is created for each student.

During basic education, the special task of the L2 syllabus (EDUFI, 2015) is to support each student’s growth to become a fully legitimate member of society, with sufficient linguistic skills for further studies after comprehensive education, and a capability for lifelong language learning. The students are also supported in building their multilingual and multicultural skills and identity. L2 Finnish is not simply supportive of Finnish as L1, but has its own objectives, content, and assessment criteria. Multiliteracy is the key learning area. The objectives of L2 teaching are divided into five different areas in the basic education core curriculum (2014): 1) interpreting texts, 2) producing texts, 3) developing skills for interacting in situations, 4) understanding language, literature, and culture, and 5) learning to use language in all learning (Text, in this context, refers to written, oral, visual, and other modalities, and different text types and genres). The core curriculum also contains detailed assessment criteria for these objectives, including for the final, summative assessment (EDUFI, 2020).

In upper secondary education, students can also study Finnish according to the L2 and literature syllabus of the curriculum. The aim of the teaching is to provide the students with general linguistic and cultural knowledge and multiliteracy skills that create adequate conditions for further studies, working life, and active citizenship. Further, students are supported in building their identity and appreciating their own language and culture. The Finnish language and literature test in the matriculation examination may be based on the Finnish as an L2 syllabus if the candidate’s mother tongue is not Finnish, Swedish, or Sami, or if the candidate uses sign language as their native or first language. The Finnish as a Second Language exam is equivalent to the Finnish Language and Literature exam. Either one of these is always compulsory. Passing the matriculation exam gives general entrance qualification for universities. However, there may be exceptions for specific higher education institutions, particularly universities: not all the institutions consider the exams as equivalent. In addition, some fields, such as teacher training, have specific language proficiency requirements.

In vocational education (VET), which is the other form of upper secondary education in Finland, the common units include courses on communication and interaction skills. These can be studied according to the ‘Finnish as a Mother Tongue’ or ‘Finnish as a Second Language’ syllabus. The organization of the studies varies: in some educational institutions, Finnish as a second language is taught in separate groups, whereas in the others, it is integrated into the mainstream teaching.

There are national guidelines for the aims and contents of preparatory education for basic education, but the local decision-makers – i.e., the municipalities – are responsible for organising it. Preparatory education is organised in separate groups or inclusively, depending on the pedagogical choices and resources of the municipalities. For instance, in the capital area, inclusive preparatory education is offered for preschoolers, 1st, and 2nd graders, whereas the older students study in separate groups.

Similarly, the guidelines for the L2 syllabus in primary and secondary education are on a national level, but the municipalities are responsible for organizing it (Finlex 628/1998). Teaching the L2 syllabus may be organized in the L1 class or in a separate group, or as a combination of these two in basic education, in upper secondary, and in vocational education.

The organisers of upper secondary education are either municipalities or joint municipal authorities for education, which operate regionally.

There are no specific qualification criteria for teaching Finnish as L2 in preparatory, primary, or secondary education, but formally, all Finnish as a mother tongue and literature teachers are qualified as Finnish as a second language and literacy teachers too.

To teach ‘Finnish as a Second Language’ in Years 1-9, the qualification requirements are a master’s degree, 60 ECTS in the Finnish language, 60 ECTS in literature, 60 ECTS in pedagogical studies, and 5-12 ECTS in communication studies. In upper secondary (and in principle, in vocational) education, the qualification requirements also include 120 ECTS in either Finnish language or literature studies.

The classroom teacher’s degree can be combined with the subject teacher qualification by studying the subject studies (60 ECTS) in both Finnish language and literature. Nevertheless, a classroom teacher is eligible to teach the Finnish as a Second Language syllabus for their own and colleagues’ classes without a specific subject teacher qualification.

Specialized studies for Finnish as a second language are available at some of the open universities (basic and intermediate studies, 60-65 ECTS). Finnish language and literature teachers have specific courses on Finnish as L2, and they can complete part of their teaching practice in Finnish as a Second Language classes.

Furthermore, language awareness is considered in the teacher education in Finnish universities. For instance, in the classroom teachers’ degree programme at the University of Jyväskylä, language awareness is considered from the first academic year to the last practical training course (Moate, Sopanen & Aalto, 2021), and the pedagogical studies for all subject teachers include a study unit on how to teach in linguistically and culturally diverse groups.

Additional expertise in L2 development is commonly gained through participation in large continuous learning studies or modules (30-60 ECTS) in open university or thematic in-service trainings provided by the National Agency for Education, for example.

According to the Act on the Promotion of Immigrant Integration (Finlex, 681/2023), adult migrants with a residence permit are provided with courses to learn Finnish and Swedish. If needed, they are also taught basic literacy skills and provided with courses that support their employment and participation in Finnish society. For adults who have moved to Finland for work or study, language training may be organised by their employers or as part of the study programmes, but employers have no obligation to organise it.

As a rule, integration training is aimed at adult migrants who are unemployed jobseekers. The aim of integration training is to promote the development of the student’s Finnish or Swedish language skills, and other skills that may be needed in society and working life, and to support their employment or transition to further education. Finnish or Swedish as a Second Language is taught according to the national core curriculum. From 2025 onwards, new integration training courses are organized by the municipalities, but self-motivated studies are also accepted.

Basic education for adults is aimed at: 1) young people who have arrived in Finland during the final phase of compulsory education and do not have enough time to complete it, or whose skills are still weak after completing it, 2) 17-25-year-old migrants who cannot participate in compulsory education because of their age, but who need a certificate of basic education and who need to improve their study skills to continue their studies, and 3) those adults with a migrant background who need to improve their literacy and numeracy skills, or who need a certificate of basic education to move on to further studies.

Basic education for adults is arranged in accordance with the national core curriculum. Further, there is a separate national core curriculum for illiterate adult migrants. One can complete the whole basic education syllabus or some subjects, or part of them, or raise the grades of an existing basic education certificate. An individual study plan is created for each student.

Preparatory education for an upper secondary qualification is aimed at youth and adults who need to improve their basic skills, such as language, digital skills, and learning skills, to move on to upper secondary or vocational education (Finlex 1215/2020). Every student will have a personal study plan and receive guidance to specify plans for further studies. The maximum completion time is one year. Students can also participate in the training for a shorter period of time according to their own needs and goals, study upper secondary and vocational qualification units, and flexibly transit to the upper secondary or vocational education.

There are no official qualification requirements for teachers of integration training but there is a national recommendation. Each education provider decides on its own qualification requirements. However, Finnish as L2 teachers are often required to have a master’s degree, 60 ECTS in Finnish language, Finnish as a second language, or Finnish as a foreign language studies, and 60 ECTS in pedagogical studies. Work experience can compensate for gaps in formal qualifications.

There are no legal, unified qualification requirements for adult basic education. In their guidelines, the Ministry of Education and Culture and the Finnish National Agency for Education have outlined that, in principle, the teachers should have a qualification to teach in basic education, which in practice means a qualification as a class teacher or a subject teacher.

Harju-Autti, R., & Sinkkonen, H.-M. (2020). Supporting Finnish language learners in basic education: Teachers’ views. International Journal of Multicultural Education, 22(1), 53-75. 

Mustonen, S. (2021). ‘I’ll always have black hair’ : challenging raciolinguistic ideologies in Finnish schools. Nordic Journal of Studies in Educational Policy, 7(3), 159-168.

Makrooni, G. 2022. First-Generation Migrant Family Students in Higher Education on Their Educational Journey in Finland. Tampere University.

Mustonen, S., & Strömmer, M. (2024). Becoming a multilingual health professional in vocational education: two adult migrants’ translanguaging trajectories. Journal of Multilingual and Multicultural Development, 45(9), 3678-3693.

Ruuska, K. (2023). Kuinka nopea on kotoutumiskoulutuksen nopea polku? Kieli, koulutus ja yhteiskunta, 14(2). 

Kielpeda-työväline – pdf (utu.fi) – Example of an assessment tool (developing language aware pedagogy in ECEC)

KieliVertailu (sites.utu.fi) – Example of a pedagogical tool which recognizes the multilingual resources of the children and supports Finnish language learning, especially the phonetical awareness

KiMo in English: LAMP – Language Aware Multilingual Pedagogy (peda.net), University of Jyväskylä

Aalto, E., Mustonen, S., Järvenoja, M. & Saario, J. (2019). Monikielisen oppijan matkassa. Verkkosivusto opettajankoulutukseen.  [On a journey with a multilingual student. Material for teacher education.] University of Jyväskylä, Department of Teacher Education.

Moate, J., Sopanen, P. & Aalto, E. (2021). Kielitietoinen polku opettajankoulutuksessa. Verkkosivusto opettajankoulutukseen. Jyväskylän yliopiston opettajankoulutuslaitos. [Language aware pathway in teacher education] University of Jyväskylä, Department of Teacher Education.

Supporting immigrants in higher education in Finland:

Korkeakoulujen SIMHE-palvelut | Opetushallitus (oph.fi)

Utbildning för invandare – OKM – Undervisnings- och kulturministeriet (okm.fi)

JYU.INTEGRA | University of Jyväskylä – Example of a program for immigrants who have completed or are qualified for higher education and aim to continue their studies in Finnish university.

See more about the support for migrants in higher education on the webpage of the Finnish National Agency of Education: Korkeakoulut tukemassa maahanmuuttajia | Opetushallitus (oph.fi)

National core curriculum for ECEC in a nutshell | Finnish National Agency for Education (oph.fi)

See more information about the ECEC on the webpage of the Finnish National Agency of Education:
Maahanmuuttotaustaiset oppijat varhaiskasvatuksessa | Opetushallitus (oph.fi)

Utbildning för invandare – OKM – Undervisnings- och kulturministeriet (okm.fi)

Vad är utbildning som handleder för examensutbildning (Hux)? | Utbildningsstyrelsen (oph.fi)

EDUFI 2014 – National core curriculum for primary and lower secondary (basic) education | Finnish National Agency for Education (oph.fi)

EDUFI 2015 . National core curriculum for preparatory education – Finnish National Agency for Education, pdf (oph.fi)

See more information about the upper secondary education on the webpage of the Finnish National Agency of Education: Maahanmuuttotaustaiset oppijat lukiokoulutuksessa | Opetushallitus (oph.fi)

See more information about the integration training on the webpage of the Finnish National Agency of Education: Kotoutumiskoulutus | Opetushallitus (oph.fi)

Act on the Promotion of Immigrant Integration (1386/2010) – Unofficial English translation – pdf (finlex.fi)

The national core curriculum for the integration training of adult migrants (the National Board of Education): Kotoutumiskoulutuksen opetussuunnitelman perusteet 2022 | Opetushallitus (oph.fi)

National core curriculum for integration training 2022 | Finnish National Agency for Education (oph.fi)

See more information about the basic education for adults on the webpage of the Finnish National Agency of Education: Aikuisten perusopetus | Opetushallitus (oph.fi)

The national core curriculum for the Basic Education for Adults: Aikuisten perusopetuksen opetussuunnitelman perusteet 2017pdf (oph.fi)

See more information about the Preparatory education for an upper secondary qualification (TUVA) Vad är utbildning som handleder för examensutbildning (Hux)? | Utbildningsstyrelsen (oph.fi)