In Finland, mandatory national exams have never been used in primary and lower secondary education. Mandatory national exams are administered for an entire age group, typically in subjects like mathematics and languages. National exams have recently been proposed as a response to declining learning outcomes among Finnish students, and as a tool for combatting inequalities in assessment. A new research review, however, advises against the introduction of national exams.
Authored by Professor Emerita Päivi Atjonen of the University of Eastern Finland and by Postdoctoral Researcher Laura Ketonen of the University of Jyväskylä, the new research review presents a synthesis of research evidence that exists in support of, and against, national exams. Since they are used in most countries across the globe, a substantial amount of research has been published on the topic. For the review, the researchers analysed a total of 159 articles on national exams, all published in international journals.
“We expected to find evidence both in support of and against national exams, but the results surprised us. Only a few of the articles we analysed suggested that national exams have their benefits, while the rest focused on their problematic consequences, which were numerous,” Ketonen says.
The researchers found no compelling evidence of national exams improving students’ learning outcomes. On the contrary, national exams resulted in increasingly narrow and superficial teaching methods and curricula, as teachers tended to prep their students with anticipated exam questions in mind. This meant less attention given to other desired learning outcomes and subjects.
Furthermore, students from different socioeconomic and ethnic backgrounds were not treated equally in national exams. They also had a negative impact on the agency and well-being of both students and teachers.
The researchers point out that mere assessment, or making students take massive, nationwide exams, will not improve anyone’s learning outcomes.
“Public discourse often revolves around statements claiming that national exams provide information on the level of learning. However, the studies we analysed showed that this information may remain under-utilised: teachers don’t really know what to do with test scores, and students and guardians tend to be none the wiser,” Atjonen says.
In Finland, assessment in primary and lower secondary education has been criterion-based for a long time already. A couple of years ago, the Finnish National Agency for Education specified the assessment criteria for the grades six and nine. Using these criteria, highly educated teachers are capable of competently supporting and assessing their students’ learning.
The researchers hope that Finland will be brave enough to trust its own approach and avoid some of the mistakes made in other countries.
“There certainly is room for improvement in our current assessment criteria and guidelines, but I wouldn’t be surprised if other countries wanted to learn from Finland’s assessment model at some point,” Ketonen says.
Päivi Atjonen and Laura Ketonen conducted a research review of 159 peer-reviewed articles published in international journals. The articles, from more than 20 different countries, were published between 2010 and 2024.
Research article:
Ketonen, L., & Atjonen, P. (2025). Mitä empiiristen tutkimusten perusteella tiedetään kansallisista kokeista?. Kasvatus, 56(2), 238–248. https://doi.org/10.33348/kvt.157366
For further information, please contact:
Professor Emerita Päivi Atjonen, University of Eastern Finland, paivi.atjonen@uef.fi
Postdoctoral Researcher Laura Ketonen, University of Jyväskylä, laura.k.ketonen@jyu.fi
