Expanding the list of paid educational services: why is the government changing the framework of “free”?
While the state is focused on the front, the education system is trying to hold on to the rear amid air raids, unstable internet, blackouts and a constant change in the student body due to migration. Against this background, the government decides to give them more freedom in financial matters, allowing them to provide a wider range of paid services that go beyond basic education. These are additional courses, in-depth study of subjects, regular weekend groups, confirmation of non-formal education and even rehabilitation programs. Formally, the legislation does not affect free education, but the line between “can” and “should” is often blurred in practice. Therefore, the question is not only which services have become paid, but how these changes will affect the level of access, trust in the system and the balance between public support and the financial capacity of families.
What does the new list of fee-based education services really change: increased opportunities or new costs for families
The update of the government decree on the list of paid educational services does not change the key principle, according to which basic education in Ukraine remains free, as it is a constitutional guarantee. However, the Cabinet of Ministers of Ukraine, according to information, made public by the representative of the government in the Verkhovna Rada, Taras Melnychuk, gave educational institutions more flexibility in forming their own sources of funding. The changes affected not only schools, but also institutions of professional and technical, higher, scientific and specialized education, including those engaged in rehabilitation or adaptation activities.
In practical terms, this means that schools, kindergartens, colleges or universities can now officially provide additional services for money. At the heart of these innovations is the ability to offer extracurricular courses or subjects that are not part of the standard curriculum. For example, if the parents want the child to learn a second foreign language, the basics of programming or any other optional course, then the educational institution has the right to provide such a service for a separate fee.
Another important addition concerns the legalization of mechanisms for confirming the results of non-formal or informal education. This is relevant primarily for adults who have acquired knowledge through practical experience: during work, internships, taking online courses or other non-formal education. Now educational institutions can officially recognize such results, for example, by conducting qualifying exams.
Another segment of changes will affect the possibility of conducting additional training and assessment activities for those who studied abroad and need to adapt to Ukrainian professional requirements. We are talking about areas that require high accuracy in the recognition of qualifications: medicine, pharmacy, social or psychological rehabilitation. Thus, for specialists who have returned to Ukraine or plan to work here after studying abroad, an official way to confirm their education is opened without repeating the full course.
The government paid special attention to the preschool sector, in particular, the organization of regular groups in kindergartens. It is about the possibility of paid stay of children in the institution outside the free time guaranteed by the state. This includes morning and evening hours, as well as weekends and holidays. Such a service involves creating conditions for safe care, attracting additional personnel and reducing the burden on parents, one of whom, for example, serves in the Armed Forces, and the other is forced to work and take care of children on their own. However, it is worth noting that this is not about mandatory or automatic introduction of new payments, because this is an option that can be implemented in the institution, if there is a need and request. The main stay of a child in a preschool institution is, as before, provided by the state on a free basis.
A separate block of innovations concerns the sphere of scientific, technical and rehabilitation services. Universities, institutes, as well as specialized institutions working with people with disabilities, children with special educational needs or veterans, can expand the range of services for a fee. These can be educational courses, trainings, expert opinions, methodical support or development of individual rehabilitation programs. All this becomes especially important in the conditions of post-war recovery, when the demand for auxiliary services, adaptation modules and psychosocial support increases many times.
In general, all these innovations are not aimed at introducing payment for what should remain free. On the contrary, their goal is to create a legally transparent mechanism for expanding the activities of educational institutions. However, like any decision affecting the financial sphere, it requires clear control over the quality of services, price level, voluntary participation and transparency of procedures. Everything depends on how exactly these opportunities will be implemented in a particular school, kindergarten or university, and whether they will really become a support, and not another source of tension for a society that lives on the verge of exhaustion.
The legal basis for the activity of educational institutions in the field of providing paid services
Officials claim that all new opportunities that open up for educational institutions are not based on the desire to “make money”, but on clearly defined legislative mechanisms. The system has long provided for the provision of paid services, but now these boundaries have become more defined and transparent. So let’s consider how exactly this is fixed in the current regulatory documents.
The Law of Ukraine “On Education” in part three Article 78 clearly defines that state and municipal educational institutions can provide paid educational and other services, if their list is approved by the Cabinet of Ministers of Ukraine. In addition, the founders of institutions have the right to form their own lists of paid services within and outside the general list established by the Cabinet of Ministers.
Another rule specified in point 5 Article 59 The Law “On Comprehensive General Secondary Education” imposes an obligation on the head of a state or communal institution to determine the list of paid services. It must specify: when, where, in what manner and by what procedure the services will be provided, their cost and the person responsible for their performance. Full description of available paid services contains in the “List of paid services that can be provided by educational institutions…” approved by the Cabinet of Ministers Resolution No. 796 dated August 27, 2010. According to this document, the possibilities of institutions are much wider than simply teaching extracurricular courses.
So let’s start with the preparatory courses. Schools, colleges and universities can officially conduct intensives for future entrants: help with NMT, refresh knowledge of mathematics or improve the Ukrainian language. This has long been standard practice, and the law simply formalizes it within the limits of what is allowed. But there are also more “technological” directions, for example, creation and maintenance of online courses, development of electronic educational materials or interactive platforms for distance learning. An institution can build a mini educational EdTech by itself and at the same time not go beyond the law.
Next, we are talking about the examination of educational tools, that is, the same textbooks, manuals, digital products that enter the class or course. Educational institutions can officially check them, review them, give a professional assessment, which is not only useful, but also potentially profitable.
Unexpectedly, educational institutions have the right to the stage. The organization of concerts, performances, show programs is also included in the list of permitted paid services. A theater group at a school or a choreographic studio at a university can not only perform, but also sell tickets.
And, of course, all kinds of “techniques”: from typesetting texts and printing to copying, scanning, laminating or recording data on flash drives. It is important to note that all this is allowed only if the services do not interfere with the main educational activity and the resources are temporarily free. Experts note that the list is wide enough and covers not only the educational sphere, but also activities in the scientific and technical sphere, international cooperation, health care, rehabilitation, physical culture and sports, leisure, household and communal areas. The law also draws attention to one important point: the institution has the right to lease its own buildings, structures, temporarily vacant premises, movable and immovable property or equipment.
However, this opportunity is provided only on the condition that it does not worsen the social and living conditions of students or employees of the institution. Educational institutions can offer only those paid services that are expressly permitted by law. No activity related to payment (master classes, circles, performances) should be held within the school hours and interfere with the educational process. Also, state and communal institutions cannot charge for services aimed at students achieving the results determined by state educational standards.
All paid educational and other services must be provided exclusively on a voluntary basis. For this, parents need to submit an appropriate application, such as specified in clause 1.6 “Procedure for providing paid educational services…”. Only after that, the institution is obliged to provide free of charge full information about the conditions, cost, payment mechanism and terms. Also, the institution is prohibited from imposing paid services or obliging parents or students to participate in any commercial activities outside the educational process, as emphasized by educational ombudsman Nadiya Leschyk. In addition, information on all additional services, their cost, provision and payment procedure must be made public on the institution’s or founder’s website in accordance with Article 30 of the Law “On Education”.
Educational institutions must transfer funds from paid services to separate accounts in the bodies of the State Treasury of Ukraine. The use of these funds takes place exclusively according to the approved estimate, as indicated in clause 1.7 of the “Procedure…”, which will ensure legal accounting of income. Article 78 Clause 12 of the Law “On Education” entitles institutions to receive funding from various sources, which are not prohibited by law. State and communal institutions can open current accounts, place temporarily free funds on deposits in state banks and dispose of them independently in accordance with the founding documents. An institution that receives public funds is obliged to publish on its website or on the founder’s resource: an estimate, financial reports on the receipt and use of funds, a list of charitable assistance with an indication of the cost, as well as information on receipts from other legal sources, as specified in part three Article 30 Law “On Education”.
What risks are hidden behind paid educational services
It is obvious that expanding the list of paid services in the field of education is a solution that has the potential to become a useful tool for supporting institutions in times of crisis. However, we should not be in a hurry to clap our hands, because it is not without significant risks, primarily in the area of unequal access, lack of trust, erosion of free education and institutional distortions. Even if the services are formally voluntary, in practice they will be available only to those who can afford them.
In a situation where some families have lost a stable source of income or are left without a home at all, the offer of paid educational services risks establishing a new model based on the principle of “education for those who can afford it.” Additional languages, programming courses, STEM clubs or even rehabilitation programs can remain the privilege of urban schools with high paying audiences. At the same time, in communities where parents barely provide for basic needs, the demand for such services will be limited, effectively depriving children of equal opportunities.
The fact that the provision on voluntary participation does not guarantee voluntariness in practice is also cause for concern. In the conditions of funding deficit and pressure on the management of the institution, paid services may begin to be imposed informally: through parent meetings, “desired” charitable contributions or unofficial recommendations “for better preparation”. This is especially relevant in schools where there is already a shadow system of “voluntary-forced” payments. It is likely that, without proper monitoring, this could lead to de facto commercialization of basic educational functions.
Do not underestimate the risk of the flow of resources from basic education to commercial education. Under the condition of limited personnel and material resources, institutions can begin to give priority to paid activities: electives, courses, clubs. As a result, free basic education is overshadowed, especially if the administration is motivated to make money and teachers have the opportunity to receive an allowance for paid activities. At the same time, students who do not participate in such programs may feel second-class, and this destroys the principle of a single school community.
As you can see, the new list does not provide for an independent mechanism for monitoring the quality of paid services. There are no clear indicators of who has the right to teach paid courses, according to which methods, with which materials. If institutions begin to fill vacancies on a first-come, first-served basis, this may have a negative impact on the reputation of the school or university. It is worth remembering that the educational service is not a product that can be returned if it turned out to be of poor quality.
It is quite clear that urban schools with well-developed infrastructure, communications and IT resources can easily create a quality EdTech product, involve parents in courses, rent premises or organize concerts. But rural schools, which are struggling with a lack of textbooks and autonomous power supply, are unlikely to be able to implement at least part of this list. As a result, the financial capacity of the institution will increasingly depend on the starting conditions, and not only on state financing.
At the same time, we should not forget about the teaching staff. If some of the teachers start to engage in paid activities within the institution, a conflict of interests arises. Given the meager salaries of educators, it is quite clear that the priority will shift to, say, preparation for the Olympiad, which is included in the paid course, rather than a regular lesson, where everyone should be on an equal footing. The educational process can quickly become a commercial affair, which undermines ethical norms and trust in the system in general.
Officials also forget that not all schools have websites that allow them to correctly publish information about services, estimates, and financial reports. Some communities do not have the skills or resources to organize transparent accounting of paid services. Without digital infrastructure and trained personnel, transparency will remain only in theory.
Therefore, new opportunities are not a threat in themselves, but their implementation requires transparent control mechanisms, effective protection against abuse and support for institutions that do not have starting resources. In wartime conditions, when the educational system is one of the few islands of stability, it is important to prevent its internal stratification according to the principle “whoever has money gets more.” That is why the key challenge is not to provide new rights, but to ensure that these rights do not turn into new barriers.
Circles for everyone and without a budget in an envelope
Previously, almost every school was like a mini-development center. After the lessons, the students were in no hurry to go home, because they stayed in various interesting and useful circles. In Soviet times, schools had an extensive network of clubs and sections that were available to almost all students and covered a wide range of interests. It was an important part of out-of-school education and upbringing, which helped to shape the personality, develop creative and technical abilities, as well as strengthen social skills. Sports sections, science and learning groups, airplane modeling, choral groups and musical ensembles eagerly recruited full classes. All this was free, sometimes even with a good material base: sewing machines, sets of chemical reagents or a wooden workshop. The teacher who led the circle received an allowance for this, and the child – additional interest in learning and memories of school, not only as a place where tests are written and a lot of homework is assigned.
Admittedly, in the 1990s and 2000s, the after-school education system relied more on enthusiasm than funding. And yet, even in periods of chronic underbudgeting, the clubs remained accessible to children from low-income families. Schools received a normative “grid”, according to which they calculated how many hours and which clubs they could introduce, based on the number of students. Some of the courses were supported by children’s creativity houses, music schools, stations of young technicians, which worked as a parallel system, which was based on “enthusiasm, but with effect”.
However, over time, the system began to break down: the state stopped systematically funding extracurricular activities, and institutions were forced to wriggle out as best they could. Somewhere the circles disappeared completely, somewhere they became a formality, and somewhere they began to be “transferred” to charitable contributions, which were formally voluntary, but actually mandatory. From circles open to everyone, they slowly became an “option” for those who could pay. As a result, the circles in the villages disappeared completely, and in the cities they concentrated around lyceums and schools with “parental resources”.
All this led to a deeper crisis than it seems. Children lost an alternative to gadgets, and the state’s mechanism of socialization, which worked better than any reforms, broke down. In addition, society began to perceive clubs or electives as “paid extras” and not a basic part of a child’s development. At the same time, there are still no transparent mechanisms for financing circles. The institution does not know: to take money or not, and if to take, how much, how, with whom to agree and how to legalize it. and most importantly, who will be responsible for it.
Now, when the state legalizes the expansion of paid services, there is a risk of finally losing the remnants of a real “accessible circle world”. If it is not clearly stated that part of such programs should be financed or subsidized from the budget, then we will get an educational space where there is a “basic school for everyone” and an “interesting school for those who can pay.” And then even a well-intentioned innovation can roll the system back another step from equality to segregation.
Lessons from successful models of paid educational services
The experience of other countries shows that when education gets the opportunity to earn money on its own, it may not always be about commercialization. It is often about flexibility, development and a better response to society’s demand. But successful cases usually do not arise spontaneously, because behind them there is a system of balances built up over the years: between access and quality, state control and freedom of institutions, family interests and financial capacity.
For example, the Finnish model of education can be considered a model. Here, basic education is truly free in the broadest sense, including meals, textbooks and even school trips. But paid services also exist: clubs, children’s extended stay at school after school, specialized summer camps. All these measures exist under the condition of voluntary participation and full transparency. What is important: the price is not determined arbitrarily, but within the limits approved by the municipality, which protects families from financial pressure and prevents speculation.
In the German system of professional education, the dual education model is widespread. A student spends part of his time at an educational institution, and part at an enterprise. At the same time, it is companies that often pay for specialized courses and also invest in training centers and scholarships. But their participation is not charitable and has obligations before the law and society.
In Canada, schools can offer additional programs: advanced study of subjects, languages, arts. But all services are subject to approval by local boards of education, which have the power to stop the initiative if it creates barriers to access or undermines confidence in the school. Rates are published openly, and participation is entirely voluntary.
But the American education system is often criticized precisely for excessive commercialization. There, elite schools offer a wide selection of additional programs, extended STEM courses, and individual mentors. In public educational institutions, such services are often not available or are available only for an additional fee. This creates a systemic inequality where the quality of education depends largely on parents’ wallets. While formally basic education is free, in practice it is far from the same.
It is important for Ukraine to avoid the “Americanization” of access to opportunities: if paid services appear, then a compensation mechanism for vulnerable groups should also appear. Instead, you can learn important lessons from the experience of other countries, which have proven that the possibility of earning an education on your own makes it possible to better respond to the needs of society. But the success of such models depends on clearly established balances between accessibility and quality, state control and freedom of institutions, as well as support for families with different income levels. Commercial initiatives should complement, not replace, basic free education, with particular attention to social justice and trust in society.
Therefore, updating the list of paid educational services opens up new opportunities for educational institutions in conditions where state funding and resources are significantly limited. This is a step towards greater autonomy and finding additional sources of support that can help keep the education system afloat in the complex realities of war and post-conflict reconstruction. At the same time, this step carries considerable risks, from inequality in access to education to the potential commercialization of basic educational services and the erosion of the principle of free education.
In order to prevent destructive consequences, a clear, transparent and systematic policy is needed, which will ensure quality control, voluntary participation and financial transparency. It should be understood that only the balance between new financial mechanisms and preservation of the availability of education will help not only to withstand the challenges of today, but also to lay the foundation for the real recovery and development of our state in the future.
