International Conference on Education

Forty-seventh session, Geneva 2004

The Development of Education
2000 - 2004
National Report of Norway
M i n i s t ry of Education and Researc h
Contents
1 Introduction 3
2 Summary of Reforms in the 90s 3
2.] Reorganisation of the national administration of the sector 3
2.2 Kindergartens, Day-Care Facilities and Cultural Education Centres 4
2.3 Primary and Lower-Secondary Education 5
2.4 Upper Secondary Education 6
2.5 New Education Act governing Compulsory and Upper Secondary Education 6
2.6 Higher Education 7
2.7 Adult Education 7
3 New premises for the development of the education sector in recent years 8
3.] More facts about the sector 8
3.1.1 Participation in international surveys and comparisons 8
3.1.2 Developing a Norwegian system of statistical documentation 9
3.1.3 Increased priority to research and evaluation 9
3.2 Developing a distinctive, Norwegian quality outcome system ]0
The Mjes Commission's proposals 11
The Quality Commission's proposals 11
3.3 International influence and international cooperation in the education sector 11
3.4 The change of Government in autumn 2001 12
4 Major reforms 13
4.1 Legal framework 2000 - 2004 13
4.1.1 Adults' right to education and assessment of adults' practical competence 13
4.1.2 Improving the pupils' working environment.. 13
4.1.3 Delegation of more responsibility from the central to the local level.. 14
4.1.4 New Independent School Act 14
4.1.5 Vocational colleges 15
4.1.6 Higher education 15
4.1.7 Organization 17
NOKUT 18
4.1.8 Employment negotiations system 18
4.2 Curricular policies 18
4.3 Objectives and principal characteristics 19
5 Major achievements 19
5.]
5.1.1
5.1.2
5.2
5.2.1
5.2.2
5.3
5.4
Compulsory education 20
Pupil numbers and structure 20
Lessons learned 21
Upper secondary education 22
Figures and statistics 22
Lessons learned 23
Folk high schools 24
Adult education 25
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5A.l Some key figures 26
5A.2 Lessons learned 27
5.5 Higher education 27
5.5.1 Figures and statistics 27
5.5.2 Lessons learned 28
6 Main challenges in the years ahead 29
6.1 Principles 29
6.2 Economic adjustments and "sustainable social development" 30
6.3 Globalization and social inclusion 30
6.4
6A.l
6A.2
6A.3
6.5
6.6
6.6.1
6.6.2
6.6.3
6.7
6.7.1
6.7.2
6.7.3
6.8
6.9
Inclusive and adapted education 31
General 31
Better adapted learning 31
Minority language pupils 32
The gender issue 33
Working environment and learning environment 34
Improved working environment 34
Pupil behaviour and the psychological working environment.. 35
A more effective learning environment. 36
More local autonomy 36
The local authority level 36
Information 38
The role of the principal 38
Quality assurance 39
Learning for sustainable development - a challenge 40
6.10 Challenges at the different educational levels 41
6.10.1 Compulsory education 41
Curriculum policy 41
Boosting basic skills 42
Giving added weight to mathematics and the natural sciences 43
Giving more weight to foreign languages 44
Philosophy 45
6.10.2 Upper secondary education 45
Further simplification and quality enhancement 46
More internationalization 47
Reorganization of the links with industry 47
The situation for adults 48
6.10.3 Higher education and teacher training 48
The role of the teacher 48
Increasing the competence of teachers 48
Strengthening teacher education 49
Strengthened school management. 50
Documentary References 51
Internet addresses 51
Legal and official documents 51
Publications by the Ministry of Education and Research 53
Appendices 54
2
1 Introduction
This report will present a picture of the education system and developments in the education
sector in Norway in the first decade of this century. The end of the 1990s and the start of the
21st century have been marked by numerous evaluations of the education system. The
assessments together with international surveys and studies resulted in a critical examination
of Norwegian education policy. Of special interest are the reports from two Commissions:
In the field of higher education the Mjes Commission (named after its leader) delivered its
report as early as May 2000 (NOV 2000: 14). In 2001 another Commission was set up to
review basic education, i.e. compulsory and upper secondary education. The mandate was
slightly revised by the new government after the elections in 2001. This Commission - called
the "Quality Commission" - delivered two reports, the first in June 2002 (NOV 2002: 10), and
the second in June 2003 (NOV 2003: 16).
Based largely on the recommendations from these two commissions, two White Papers were
presented to the Norwegian Parliament. White Paper St. meld. 27 (2000-01) - "Do your duty
- demand your rights" - on higher education was presented in 2001. Most of the proposals in
this White Paper have now been implemented. White Paper St.meld. nr.30 - "Culture for
Learning" dealing with compulsory education was presented for Parliament in the spring of
2004 and approved in June. It will be followed up and implemented in the coming years.
These two White Papers form the basis for the development of education in Norway today.
Before going into detail, and in order to understand the background of the events of the first
part of this decade, it may be useful to repeat briefly the gist of the education reforms in the
1990s. This will facilitate the description of current developments, and make it easier to refer
to the reforms. The report will also attempt to review certain important new premises for
education policy in the current decade, premises which provide a new foundation for policy.
Thus, Chapter 2 is a survey of the developments in the 1990s and Chapter 3 a discussion of
the new premises. The report goes on to describe important reforms so far in the present
decade (Chapter 4). Major achievements thus far will be presented, with section summaries of
lessons learned (Chapter 5). The subsidiary points will reflect important issues in Norwegian
education policy. The report will present some main challenges facing the education system at
the beginning of the twenty-first century and outline the current Norwegian policy on how
these challenges will be met (Chapter 6).
2 Summary of Reforms in the 90s
2.1 Reorganisation of the national administration of the sector
The national administration of education policy was reorganized at the start of the 90s. This is
a necessary basis for understanding aspects of the reforms.
The grounds and recommendations for the reorganization were presented in a White Paper,
St.meld. nr. 37 (1990-91) and a Bill, St.prp. nr. 75 (1991-92). The White Paper and the
proposals in the Bill aimed at introducing a more distinct political basis for a management by
objectives system in the sector. In this way, a stronger awareness of the importance of having
a tighter grip on education policy at the national level was expressed. This involved a certain
adjustment of the balance of power, transferring power from pedagogical to political fora,
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particularly in the area of management. One can say that Norway's experience is in keeping
with what is happening in other countries too, and reflects a growing awareness of the
importance of education policy. Progress towards the knowledge society, technological
developments, internationalization and the need for structural changes in industry and public
administration all make human capital our perhaps most important national resource. At the
same time, the reorganization is partly based on a growing concern for quality in the
education system and the need to improve it.
The result was that the Ministry of Education and Research (at that time The Royal Ministry
of Education, Research and Church Affairs) assumed, to a larger extent, direct responsibility
for policy initiative and development of the sector. A wide range of advisory councils and
committees were disbanded, on the grounds that the councils' activities had come to occupy a
grey area between professionally and politically based decision making and administration.
The traditional post of Director of Education was discontinued after 150 years. In its place,
eighteen new national education offices each led by a director were created, one in each
regional authority. Unlike most other countries, no directorate or other administrative body
outside the Ministry was established in the 1990s. The Ministry retained its administrative
functions, while at the same time developing more in the direction of a political secretariat.
The situation was partly changed when the Norwegian Board of Education was established in
September 2000. The Board was given responsibility for the assessment and development of
primary and secondary education and the conduct of national examinations.
2.2 Kindergartens, Day-Care Facilities and Cultural Education Centres
Kindergartens and day-care facilities are not part of the education system in Norway, but a
brief description is included. Cultural education centres are organized as separate units by
local authorities, but are seen as an important supplement to obligatory schooling. Attendance
at kindergartens, day-care facilities and cultural education centres is voluntary.
Kindergartens are primarily regarded as caring institutions in Norway and are not part of the
education system; they are the responsibility of the Ministry of Children and Family Affairs.
It is, however, more and more common to view education in a life-long perspective, and there
has been broad political agreement on stimulating the urge to learn among children, young
people and adults. The development of children that takes place in kindergarten is significant.
Many children attend kindergarten, and kindergarten is important for their personal
development. The stimulus provided here for children's personal development lays a
foundation for later life.
In May 1995 Parliament approved changes in the law concerning kindergartens. The changes
included the decision that the Ministry should issue an outline programme for the
management of kindergartens. The preamble to the Kindergarten Act ( 1) states "The
kindergarten shall provide children under school age with opportunities for development and
activities, in close understanding and cooperation with the children's homes". Further, 2 of
the Act affirms that the kindergarten shall be a pedagogically organized institution. On 1st
December 1995 the Ministry of Children and Family Affairs issued, on the basis of the Act,
an of the kindergarten's activities, which also has a clear pedagogical aspect.
Since 1998 The Education Act enjoins all local authorities to arrange day-care facilities for
pupils between 6 and 10 years of age. Pupils with physical or psychological handicaps are
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included in the arrangements until 14 years of age. The day-care facilities shall "arrange for
play andfor cultural andfree-time activities based on the children's age, level of skills and
interests. The day-care facility shall provide care and supervision. " Day-care facilities are the
responsibility of the school management.
Also since 1998 The Education Act enjoins all local authorities, either individually or in
association with other local authorities, to provide opportunities for music and cultural
education. Such cultural centres receive Government support, conditional on fees being low
and as many as possible being given the opportunity to be pupils. The Norwegian model of
cultural centres is therefore quite exceptional, and many regard it as one of the reasons for the
improved standard of Norwegian musical life and the emergence of world-ranking soloists.
2.3 Primary and Lower-Secondary Education
In the autumn of 1997, a reform of primary and lower-secondary education was introduced. In
that year, compulsory education was extended from 9 to 10 years, starting the year the child
becomes six. Several changes were made in the allocation of teaching periods to the different
subjects, and English became compulsory from the first year of primary education. A
completely new subject was introduced: "Knowledge of Christianity with Information about
Religions and Life Stances". This subject replaced and combined the two previous subjects
"Knowledge of Christianity" and "Alternative Information about Life Stances" and at the
same time gave more emphasis to other religions such as Islam.
A new core curriculum which was approved in connection with the introduction of Reform-94
in upper secondary education (see below) was also made applicable to primary and lower
secondary education from the autumn of 1994.
Primary and lower secondary education was divided into three main stages: First Stage (Years
1-4), Middle Stage (Years 5-7) and Lower Secondary Stage (Years 8-10).
New syllabuses were designed in all subjects (L-97). These can be found in Norwegian at
www.ls.no. Lereplaner.
Norway has an ethnic minority, the Sami people, who are defined as an indigenous population
in accordance with international conventions. The Sami people have retained three traditional
Sami languages, North Sami, South Sami and Lule Sami; of these, North Sami is defined by
Norwegian law as an equivalent national language. Sami pupils have the right to learn Sami,
and on certain conditions to have Sami as their language of instruction. The Norwegian
curriculum (L-97) exists in a Sami version. Many of the subjects are relatively alike in the two
curricula, but Sami language and culture have a special place in the Sami version. Seven local
authorities in the northern part of Norway have adopted Sami as their official language of
administration. They use the Sami curriculum and in these local authority areas Sami is
compulsory for all school pupils, irrespective of ethnic background.
Norway has a growing number of minority language pupils, i.e. pupils with a different ethnic
background, children of immigrants and refugees. During the 90s the regulations governing
instruction in the mother-tongue were strengthened.
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2.4 Upper Secondary Education
In the autumn of 1994, the so-called Reform-94 was introduced. All individuals born in or
after 1978 were given a statutory right to upper secondary education. The structure of upper
secondary education was changed. General and academic subjects were even more closely
integrated with professional, vocational education. In the vocational training programmes,
learning in school and apprenticeship training in industry were co-ordinated. Part of the basis
was an agreement with the Government entered into by the largest workers' organization and
the largest employers' organization, paving the way for integrated instruction whereby
industry took responsibility for training during the apprenticeship period. Upper secondary
education was grouped in 13 programmes, of which three were general and academic. In the
10 vocational programmes, the normal progression was two years at school, followed by two
years as an apprentice at a place of work. Those unable to gain an apprenticeship had a right
to a corresponding course of training in school, leading to a vocational certificate.
Completely new syllabuses were designed for all the programmes and modules, including the
training that takes place in industry. (Norwegian versions can be found on the net at
www.ls.no/eway/?pid=207. Some of the syllabuses are translated into English, at www.ls.no,
lasreplaner pa engelsk.) The Ministry issued at the same time a General Curriculum containing
the basic premises and directions for education at primary, lower secondary, upper secondary
and adult levels. This can be found in a pdf version in several languages at the same net
address.
Certain changes were made in the organization and administration of upper secondary
education. The regional authorities were given overall responsibility, but the influence of
industry was strong through representation in training councils, vocational boards and the
regional "vocational training committees" which administer vocational training at the regional
level and have an independent professional responsibility.
Sami pupils have the right to receive education in Sarni, also at upper secondary level. Two
upper secondary schools, in Karasjok and Kautokeino, aim particularly at providing an
education based on the reindeer industry and Sami language and culture. Instruction is also
given through the medium of the Sami language. And in upper secondary education generally,
pupils with a different ethnic background can receive a certain amount of instruction based on
their mother tongues.
2.5 NewEducation Act governing Compulsory and Upper Secondary
Education
As early as 1995, a Government-appointed Commission proposed a new, integrated Education
Act (NOU 1995:18). Parliament gave its approval to the new Act in July 1998. More time was
spent before the matter was finally ready for parliamentary approval, because of the change in
Government in 1997. The first Bondevik Government (composed of three parties in the
political "centre"), which replaced the social democratic Jagland Government, wanted to take
a fresh look at the proposals.
The new Education Act replaced the previous Acts on Compulsory Education, Upper
Secondary Education and Vocational Training at Work. Links to the Adult Education Act and
the Act on Private Education were also adjusted.
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An important premise for the work of the Commission appointed to prepare the proposed new
Act was the Revised Act on Norwegian Local and Regional Government (dated 25.09.1992).
This Act made it possible for local and regional authorities to organize themselves politically
and administratively more freely than before, in accordance with their own wishes and needs.
As a consequence, a number of special laws, including those on education and the social and
health services, were changed as early as 1993, to bring them into line with the new
circumstances. For example, the previous requirement that all local and regional authorities
should have their own directors and boards of education was removed in 1993. The freedom
to organize themselves differently was a factor which the Commission working on the new
Act had to take into account.
2.6 Higher Education
Parliament passed a new Act on Higher Education in May 1995. This Act applies to
universities, specialized university institutions and state university colleges. It has a common
structure for dealing with students and for the organization and administration of the
institutions. The Act led to a wide-ranging consolidation and simplification of the system of
higher education, in so far as the number of university colleges was reduced from 98 to 26.
Central control was reduced, and the institutions gained rather more freedom. The central
control is exercised by the Ministry, with the assistance of councils, committees and other
professional bodies. In 1998 the Norway Network Council (Norgesnettradet), was established
as an advisory body to the Government.
A Sami college was established in 1989, primarily to recruit students with a Sami
background. It offers courses in teaching and journalism, Sami language learning, practical
and aesthetic subjects - particularly doudji (Sami handicrafts) - and social and media
subjects, including the study of indigenous peoples. The language of instruction is Sami.
The Mjos Commission was appointed in April 1998 and delivered its report in May 2000.
Since the consequences of the recommendations belong to this decade we will deal with the
report in chapter 4.
2.7 Adult Education
Comprehensive reforms were introduced in adult education in the second half of the 90s. In
1997, a Government-appointed committee presented its proposals in a Green Paper (Ny
kompetanse, NOD 1997:25). After a comprehensive round of hearings, the Government
published the White Paper St.meld. nr. 42 (1997-98), the basis of the so-called "Competence
Reform", which had consequences in a number of areas. In 2000 the Education Act was
adjusted to strengthen the rights of adults to supplementary education at the compulsory and
upper secondary level. New provisions were included covering the assessment and formal
recognition of practical competence. An adjustment of the Higher Education Act in 2000
required institutions of higher education to assess applicants' practical competence as part of
the basis of admission. Through the Act on the Working Environment, employees were given
the right to leave of absence for education purposes, and the expenses were tax deductible.
Negotiations between employers' and employees' organizations have resulted in a better basis
for the development of competence through establishing funds and agreeing terms for leave of
absence.
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3 New premises for the development of the education sector in
recent years
3.1 More facts about the sector
The GECD carried out a major evaluation of the Norwegian education system at the end of
the 80s. It concluded that Norway appeared to have a well-developed system for planning and
formulating policy goals and principles in education. But the evaluation team reacted to the
scarcity of documentation about how the sector worked and what results were achieved. The
recommendations pointed clearly to the need for Norway to improve documentation and
acquire a stronger basis for the administration of the education sector. The conclusions were
in many ways the starting signal for the work of building up a better documentary basis and
for the development of what in the event can be called a national quality assurance and quality
development system. The work has led in a number of directions:
3.1.1 Participation in international surveys and comparisons
Norway has participated in a number of major international comparative surveys of pupils'
benefit from education. Among the important inquiries which have had a significant influence
on education policy are:
TIMSS (The Third International Mathematics and Science Study) from 1995, an
GECD project.
PISA 2000 (Programme for International Student Assessment) another GECD project.
PIRLS 2001 (Progress in International Reading Literacy Study) organized by The
International Association for the Evaluation of Educational Achievement (lEA). In
1991 IEA was responsible for the first international reading survey that Norway took
part in, a survey of 9-year-olds and 14-year-olds in 32 countries.
Civic Education Study from 200 1 was also arranged by lEA.
The Assessment of Pupils' Skills in English in 8 European Countries, commissioned
by Denmark, Finland, France, Germany, the Netherlands, Norway, Spain and Sweden
(2002)
SIALS (Second International Adult Literacy Survey) GECD 2000.
There has been broad political agreement and support for this international cooperation.
As well as providing data on achievement levels, many of the reports have analysed the
pupils' social backgrounds, different aspects of the teaching process and what is described as
the pupils' learning strategies (PISA).
In addition to the reports' provision of new and better documented information, the
collaboration has contributed to building up national competence through Norwegian groups
assuming responsibility for the national contributions. The GECD has conducted several
analyses of the Norwegian education system. The 1988 survey has already been mentioned. In
addition, the GECD assessed the first years of higher education in 1997, the transition from
school to working life in 1998, and the care and education of young children in 1998. In 2002
a report on lifelong learning in Norway was produced (UFD, F-4141). In 2001 Norway
participated in the GECD study "Policies for information, guidance and counselling services".
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Surveys like the GECD' s Education at a Glance also provide background information for the
planning of education policy.
3.1.2 Developing a Norwegian system of statistical documentation
As a direct consequence of the GECD report from the end of the 80's, work began on the
development of a Norwegian statistical database system. In higher education, the Norwegian
Social Science Data Service (NSD) had built up a system for the universities which was later
broadened to include the university colleges (http://dbh.nsd.uib.no).
In the middle of the 90s the information system for the compulsory education sector, GSI,
(http://www.wis.no)wasdeveloped.This provides information on pupils, teachers and period
resource allocation, down to the school level. It also includes data on adults in primary
education organized by the local authorities. It contains data neither on results, nor on the use
of resources for other purposes than teaching.
At upper secondary level, the regional authorities have a pupil data system which principally
maintains personal data on progress and results, so that pupils can be followed up individually
and their statutory rights to education ensured.
Statistics Norway (SSB) has national responsibility for ensuring the production of statistics
and offers a special section on education covering all levels, including adult education.
Towards the end of the 90s SSB developed a dedicated regional and local authority database
giving information on resource use and production figures for all service areas in the regional
and local authority sector (KOSTRA - http://www.ssb.no).This also covers compulsory and
upper secondary education.
The new databases provide, in a simple straightforward manner, a quite different basis for
management than earlier, and are a significant factor in making assessments and planning.
3.1.3 Increased priority to research and evaluation
The Ministry has in recent years made use of research and reports on the education system in
a far more systematic way than previously. The reports from the Norwegian studies in
connection with TIMMS, PISA, CIVIC etc. are good examples. A considerable amount of
research and evaluation is commissioned by the Ministry itself:
The Ministry has commissioned research on the use of resources in Norwegian
education. Assessments have been made of the relation between resource use and
pupil achievement, and research findings on this theme have been compared.
The Ministry has commissioned inquiries into cooperation between school and home.
Several large-scale studies of special education exist, as does a final status report into
research on special education.
Several surveys of pupil behaviour in school have been produced.
All the major reforms have been followed by comprehensive evaluation programs.
When the Ministry takes part in large-scale development projects, it is customary for it
to fund the subsequent evaluation of the projects. Important development projects in
the use of ICT, more differentiated teaching at the upper secondary level, and
9
enhanced competence as the foundation for a more inclusive structuring of special
education (SAMTAK) are good examples.
The Ministry has also contributed to setting up professional resource centres with
ongoing responsibility for development projects and assessments. Examples include
the Reading Research Centre in Stavanger, the meeting-point for work on school-
based assessment at Lillehammer University College, and several state-run special
education resource centres with different special fields.
The Research Council of Norway has also managed its own research programme on the
education sector, KUL.
In addition, the Ministry draws on relevant research initiated by faculty members at
universities and university colleges.
Far more extensive lists of references reflecting the importance of this can be found in Green
Papers (e.g. NOU 2003: 16 from the so-called Quality Commission) and in the Government's
own White Papers.
3.2 Developing a distinctive, Norwegian quality outcome system
The development of databases, the establishment of competence centres and the funding of
reviews and research projects are elements in what has come to be seen as a Norwegian
quality outcome system. The Government adopted a management-by-objectives principle and
procedures at the beginning of the 90s; the central authority concentrating its attention more
on the goals of education as formulated in statutory and regulatory instruments and curricula,
including results, and less on the manner in which school owners and schools organize their
work. With this a new thinking and a new management ethos appeared in education policy-
making, giving more weight to reporting and results. The disbandment of the former
education directorates and the establishment of national education offices in 1992 was
perhaps the first systemic indication of change.
The Ministry's first proposal on systematizing the work came in a White Paper (no. 47, 1995-
96). This continued with committee work in 1997, leading to a White Paper in 1998 (no. 28,
1997-98). Parliament debated the White Paper and gave its approval for the establishment of
the Norwegian Board of Education and of a more permanent foundation for conducting our
own Norwegian fact-finding inquiries into basic skills in such subjects as Norwegian,
Mathematics and English. Parliament also confirmed Norway's continued participation in the
international comparative studies. At the same time, more emphasis was placed on the school
owners' (the regional/local authorities') responsibility for reviewing their own operations and
the schools' self assessment. The Education Act was adjusted in a number of areas and self
assessment is now a clear requirement. The same applies to the Act on Higher Education.
As a result of the Mjes Commission which examined the higher education system, and the
"Quality" Commission which examined education at the school level (from 6 to 18 years of
age) the concept of "quality" is becoming the clear guiding principle.
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The Mjs Commission's proposals
The Mjos Commission made extensive proposals. The discussions and the implementation of
the recommendations were collectively referred to as the "Quality Reform". In addition to the
resulting widespread changes in study programmes and the degree system (cf. 4.1.6 and 5.5
below), the implementation of the quality aspect itself was important. The legal framework
stipulated the establishment of quality systems and self assessment. In addition, the
recommendations led to the establishment of a new institution in Norway, NOKUT, a
professionally independent accreditation body, of which more below (cf. 4.1.7).
The Quality Commission's proposals
It was precisely new information about and experience with the school system, and increased
misgivings about quality, which led to the Quality Commission being appointed in October
2001. In the autumn of the same year Norway's Government was replaced. The new Centre-
Right Government renewed the mandate and composition of the Commission in December
2001.
As early as the summer of 2002 the Commission presented its interim recommendations
covering the framework of a quality assessment system for education at the school level. This
led to the decision to establish a new Directorate for Primary and Upper Secondary Education
on 15 June 2004. Parliament also renewed its support for the policy of carrying out national
tests, under both Norwegian and international administration. Parliament accepted in addition
the setting up of a website - Skoleporten - where background information on all the schools
in the country would be accessible to the public.
3.3 International influence and international cooperation in the
education sector
Education policy has traditionally been regarded as a national concern. Nevertheless, a
number of factors now point in the direction of more cooperation and coordination.
The common market in employment leads to a greater need for information about, and the
comparison and mutual recognition of, the qualification procedures in the different countries.
Norway has taken part in Nordic cooperation along those lines for many years. With the
establishment of the EU/EEA this has been extended and made more formal.
Demands for more student exchanges and the need to simplify the incorporation and co-
ordination of study components from Norwegian and foreign education institutions point in
the same direction. The need to be able to present the elements of Norwegian qualification
procedures in a language and within a conceptual structure that is internationally familiar and
accepted has also influenced Norwegian procedures. In this area, the opening up to more
international competition in the higher education system pulls in the same direction.
Through the EEA, OECD, UNESCO and other organizations, Norway is an active partner in
international cooperation where education policy plays an increasing role. In a recent Bill
(Ot.prp. nr. 79 (2003-2004)) on changes in the Higher Education Act we read:
The Bologna Process is a pan-European process in which the governments of European countries
aim to establish a European higher education area by 20 10, cf. the Bologna Declaration of 19 June
1999, the Communique from the European higher education ministers' meeting in Prague on 19
May 2001 and the Communique from the higher education ministers' meeting in Berlin on 19
11
September 2003. The Bologna Process now unites 40 European countries. Norway contributes and
participates actively in this work.
The European Union has launched an extensive strategy, the Lisbon Process, with the aim of
becoming the world's most competitive, knowledge-based economy on a sustainable social
foundation by the year 2010. As the most important institutions of knowledge, universities and
university colleges form part of the core of this strategy. The EU also aims to establish a common
European area for research, and will probably set up a European research council. The opening up
of national programmes of research to international participation is also being discussed.
Involvement in EU programmes is an important factor in Norwegian research policy and thus
influences the universities and university colleges as active research institutions. In February 2003
the EU Commission sent out a memorandum on the future role of the universities (Communication
from the Commission The role of universities in the Europe of knowledge).
Through the strategy Education for All, UNESCO has pointed out that well-developed higher
education systems are an important means to, and a condition for, realizing the goal of universally
available basic education, not least through the education of well-qualified teachers. UNESCO
points to the considerably increased global growth in demand for higher education, particularly in
developing countries which had an increase of 50% in the 7-year period from 1990, while at the
same time these developing countries had little chance of expanding their higher education systems
to meet the demand. At the UNESCO General Conference in September 2003, a Resolution
proposed by Norway, Mozambique, Japan, Iceland and Tanzania was unanimously approved:
"Higher education and globalization: Promoting quality and access to the knowledge society as a
means for sustainable development". The Resolution gives UNESCO a mandate to redouble its
efforts in the task of providing global access to higher education.
In the international GATS negotiations under the auspices of WTO, the lowering of the barriers
against mobility and commerce in education is being discussed. The debate concerns what
protectionary regulations may be needed to prevent such commerce having damaging effects that
are undesirable and unforeseen. Norway committed itself to giving foreign service providers
general permission to offer education in Norway as early as 1995, under the Brundtland
Government, in the so-called Uruguay round of talks. Few other countries have till now gone so far.
The general globalization of industry involves multinational companies in the expanding
international recruitment of highly educated staff, and localizing and relocalizing their R&D
activities to countries and regions with high levels of research and education.
These development trends are mutually reinforcing, and lead to a faster and more comprehensive
globalization of higher education than we have seen till now. The competition for students, good
teachers and researchers and for research funding is intensifying, and Norwegian universities and
university colleges are faced with opportunities and challenges that could not have been foreseen a few
years ago. For Norwegian universities and university colleges the trend is further reinforced by the
favourable financial assistance available to students studying abroad, which gives Norwegian students
every possibility to apply to study in other countries.
3.4 The change of Government in autumn 2001
After the general election in autumn 2001 a Centre-Right Government took power under
Prime Minister Kjell Magne Bondevik, succeeding the Social Democratic Government of
Jens Stoltenberg. Kristin Clemet became Minister of Education and Research.
With regard to the development of the education sector in Norway from 2000 to 2004, there is
therefore a dividing line at the transition from 2001 to 2002. The long lines of policy and
many of the basic principles of Norwegian education have been largely maintained; Norway
also had a Centre Government under Kjell Magne Bondevik from 1997 to 2000. Nevertheless,
important changes have taken place since 2002 as a result of the change of Government.
12
4 Major reforms
4.1 Legal framework 2000 - 2004
4.1.1 Adults' right to education and assessment ofadults' practical competence
From 1 August 2000 a new chapter in the Education Act gave adults an individual, statutory
right to education at the compulsory school level, and to upper secondary education. The
decisions relating to upper secondary education were put into effect on 1 August 2000 while
those relating to compulsory education came into force on 1 August 2002.
To exercise the right to education at the compulsory school level the adult had to have a need
for education. This need is to be determined by the individual in communication with the
municipality which is responsible for providing the education.
To exercise the right to upper secondary education, the adult had to be born before 1978
without previously completing upper secondary education. 1978 was chosen because young
people and adults born after 1978 have rights in accordance with Reform 94.
The new regulations give adults the right to specially adapted education which takes into
account their practical competence, experience and life situation.
Adults who have the right to education at the compulsory level will, if necessary, also have
the right to special education on the same conditions as ordinary pupils. This regulation does
not to the same extent apply to adults with a right to upper secondary education.
From 2003 adults were given the right to have their practice and experience - their non-
formal competence - assessed and documented and included as an integrated part of the
formal upper secondary education.
At the same time, a change was made in the Higher Education Act, to give adults the right to
be considered for admission on the basis of their practical competence.
4.1.2 Improving the pupils' working environment
With effect from 1 April 2003 the Education Act included a new chapter on the pupils'
working environment. The chapter asserts at the start that "all pupils in compulsory schools
and upper secondary schools have a right to a good physical and psycho-social environment
which promotes health, well-being and learning". The chapter specifies the requirements of
the physical and the psychological environment. It expects an active effort to improve the
environment, and that pupils and their parents or guardians have a say in this work. In
addition, it contains relatively detailed rules concerning the school's duty to provide
information about the work. It gives involved parties the right to express their views and
states the rules for appeal procedures available to pupils and their parents/guardians if the
school does not observe the legal provisions. The chapter also has a penalty clause stipulating
fines or a prison sentence of up to three months if the law is not observed.
If the school has day-care facilities, as most primary schools have, the chapter also applies to
these facilities.
13
4.1.3 Delegation ofmore responsibilityfrom the central to the local level
In a Bill (Ot.prp. nr. 67 (2002-03) the Government made a number of proposals designed to
give school owners and schools more freedom in organizing their activities. This expresses
the general political will to decentralize decision making and strengthen local democracy. The
proposals also build on the principle of management by objectives (see 3.2 above). The
proposals led Parliament to amend the Education Act with effect from 1 August 2003. The
Act had formerly stipulated the maximum number of pupils per class. In schools with pupils
from different levels in the same class, the permitted number of pupils diminished as the
number levels in the class increased. The stipulated maximum has now been removed, and the
Act has replaced it with a more general requirement that pupils should be organized in groups
that are pedagogically justifiable. Formerly, each class had to have a responsible class teacher;
now each pupil has a right to a contact teacher.
At the same time, Parliament changed the Education Act to make clearer the responsibility of
the Ministry and school owners for following up and evaluating the education: "The Ministry
can issue regulations requiring those responsible for educational activities in accordance
with this Act and those who receive such education to provide information, take part in
assessments and report on conditions which are of importance for the evaluation of the
educational activities covered by this Act" ( 14-1). This change is an element in the
systematization of the quality assurance work, and it also provides a better base for
management by objectives.
The qualifications required by a school principal have also been changed. The formal
requirements relating to education and teaching experience have been removed. Instead, the
Act now has a general requirement that a school must have a professional, administrative
leader. The preliminary sections of the Act stress the responsibility the principal has for being
an active, pedagogical leader.
4.1.4 New Independent School Act
On 4 July 2003 Parliament gave its approval to a new Act governing independent schools,
replacing the former Private School Act. Both the Independent School Act and the former
Private School Act cover the recognition of private schools which, when recognized, receive
considerable public support to their running costs. The former Act included criteria which had
to be met for recognition to be granted. The schools had to represent a pedagogical
alternative, be based on a special life stance, or in an obvious way be a useful supplement to
the public system.
These criteria were dropped in the Independent School Act. However, the Act still contains
the requirement that the content must be equivalent to, and correspond to, the curricula in the
public system. The Act limits the opportunity to run schools for purely commercial ends as it
makes it a condition that any profit should be ploughed back and used for the benefit of the
pupils,
Recognition under the Independent School Act leads to public funding. Private schools can
also be approved under the Education Act, but no public funding is then available.
14
4.1.5 Vocational colleges
Parliament approved a new Act on Vocational College Education in spring 2003, cf. the Bill
Ot.prp. nr. 32 (2002-03) and Proposal Innst. O. nr. 78 (2002-03). The Act provides that short,
practical courses of training can be approved as vocational education through the Norwegian
Agency for Quality Assurance in Education (NOKUT, cf. 4.1.7). The Act establishes a new
sector within the Norwegian education system and presents vocational college education as a
shorter and more professionally-oriented alternative to higher education at universities and
university colleges. Vocational college education builds on upper secondary education or
corresponding practical competence and lasts a minimum of six months and a maximum of
two years full time.
The aim of this arrangement is to contribute to the growth of shorter forms of training, more
flexible and more relevant to the needs of the labour market, and to give financial support to
regional authorities which offer courses at technical colleges.
4.1.6 Higher education
The Mjos Commission presented three Green Papers: Practical Competence in Higher
Education (NOD 1999:17), The Organization of Contracted Activities (NOD 1999:18) and
Freedom with Responsibility (NOU 2000:14). The mandate of the Commission was to review
higher education after 2000. The mandate also included a broad survey of the challenges
facing higher education in Norway in the coming years.
On the basis of the Green Papers and the subsequent hearings, the Government published its
White Paper St.meld. nr. 27 (2000-01) Do your duty - demand your rights. Parliament gave
its approval to the main principles, and asked the Government in addition to examine the
situation for research and for recruitment to higher education. In the Bill Ot.prp. nr. 40 (2001-
02) the Government proposed the necessary legal changes, followed up by several White
papers on the various specific areas.
The work resulting from the Mjes Commission's recommendations is, as previously
mentioned, collectively referred to as the "Quality Reform", a comprehensive reform of
higher education in Norway. Central to the reform is a new degree structure, closer
counselling of students, new forms of examination and assessment, new arrangements for
study support and increased internationalization. The goals of the Quality Reform can be
summed up in three points:
higher quality of education and research;
more intensive education;
more internationalization.
The implementation puts into practice important aspects of the Bologna declaration.
In connection with the Quality Reform, Parliament approved the recommendation to set up a
new accreditation body, NOKUT (cf. 4.1.7). The amended Act requires institutions to build
up their own quality assurance systems and put into practice student assessments of teaching.
The Act emphasizes the improvement of the students' learning environment and mentions in
particular disabled students' prospects of completing their studies. The Act requires study
plans to be developed:
15
"Introducing the study plan requirement will ensure a closer and more committed relationship between the
institution and the individual student. The plan will show how the institution makes it possible for the student to
reach a defined learning goal in the standard time. The plan will make clear the student's responsibility for
satisfying the study requirements of the institution, including participation, compulsory assignments and study
progression.
"The study plan must show the individual student's planned course of study in relation to the central guidelines
in the Act, the examination requirements of the institution, the service declaration, and the syl1abus for the field
of study or course of study on which the student is enrol1ed. It is expected that the institution and students
cooperate in developing outline frames for the study plans, and that the individual student has a say in the
content of his/her own plan. Both the institution and the individual student may, provided reasonable notice is
given, request that the study plan be changed" (Ot.prp. 40).
In 1991 Parliament expressed the view that there was then no need for more than four
universities in Norway. The Mjes Commission proposed opening the way for other higher
education institutions to gain university status, after assessment by an independent expert
body and on meeting certain criteria. This is followed up in the Bill Ot.prp. nr. 40 (2001-02)
which makes NOKUT responsible for such assessment.
After the changes in the law, the new Universities and Higher Education Act places more
emphasis on:
the dissemination and application of research;
the responsibility of universities and university colleges to society;
the professional freedom and self-government of the institutions.
The Quality Reform has also been followed up in more specific areas. In the White Paper
St.meld. nr. 16 (2001-02) The Quality Reform - On new Teacher Education: Complex-
Demanding - Relevant, the Ministry proposed amendments to teacher education. The four-
year structure was largely maintained. But the links with the new degree system were clarified
to make it possible to obtain a bachelor's degree during the course, with further study leading
to a master's degree. Two types of master's degrees have been introduced, one relating to the
course of study, the other based more on occupational factors, placing more emphasis on
practice. The general focus on quality awareness is also emphasized here. In the wake of the
parliamentary process, the Ministry has issued new outline programmes for all areas of
teacher education.
In the White Paper St.meld. nr. 34 (2001-02) The Quality Reform - On Higher Sami
Education and Research the relation to Sami culture and education was examined. The
measures proposed are explicitly seen as a recognition of the Sami people as indigenous, and
Sami language and culture will be supported through building up the Sami research
environment at Tromso University and the Sami University College in Kautokeino. A large
number of measures are proposed. One is that the Sami assembly will have authority to
determine outline teacher education plans for special Sami subjects such as Sami and duodji.
In the White Paper St.meld. nr. 35 (2001-02) The Quality Reform - On Recruitment to
Teaching and Research Positions in the Higher Education Sector the Government presented
the survey Parliament had requested on research and recruitment to universities and university
colleges. The White Paper and the debate in Parliament confirmed once again the goal of
expanding Norwegian research activities at least to the average OECD level by 2005. In 1999
the total research and development (R&D) budget for Norway represented 1.7 per cent of
GNP, while the OECD average was 2.2 per cent. This means, in part, that the annual R&D
16
budget will increase by at least one billion NOK by 2005. The Government will also playa
part in increasing the efforts of commerce and industry in research and development.
4.1.7 Organization
The organization and management of the education sector has been debated several times
since 1990. Central control at the Government level is ensured through legal prescriptions and
regulations, and by the Ministry's right to determine the content of education through national
curricula and outline syllabuses, except where higher education institutions have the right to
make decisions themselves, within their own areas of expertise.
In school education, responsibility for implementation lies locally with the 435 local
authorities at the compulsory level and the 19 regional authorities at the upper secondary
level. Traditionally the Education Act, in common with many other acts dealing with specific
areas, has stated in detail how administration at the subordinate level should be conducted.
However, since 1990 there has been a clear tendency to remove such detailed regulations. The
general Act on Local and Regional Government of 1992 allows local and regional authorities
to make their own decisions as to which political and administrative organs should be set up.
A certain amount of deregulation has taken place in specific laws and directives, both as a
response to the Act on Local and Regional Government and as an expression of the general
wish for more decentralization.
The establishment of the Directorate for Primary and Secondary Education
Norway has traditionally had a large Ministry of Education which has performed most of the
administrative tasks at the central level. A Commission which submitted a report in December
1997 on a national quality assessment system proposed establishing an independent
administrative organ under the Ministry, to relieve the Ministry of day-to-day matters. The
Commission suggested that a directorate would be the solution. In autumn 2000 the
Norwegian Board of Education was set up (cf. Bill St.prp. nr 38 (1999-2000)). It was not
called a directorate, but performed a number of tasks which often belong to a directorate:
The management of all national examinations;
The development of assessment procedures and surveys;
The collection and publication of statistics;
Secretariat assistance in connection with work on syllabuses etc.
In summer 2002 the Quality Commission issued its first interim report. There the
establishment of a directorate was recommended. The Ministry undertook at the same time a
broad review of its own organization, and came to the conclusion that a directorate should be
set up. The aim was that the Ministry should concentrate more on its function as a political
secretariat while the new directorate should take over more of the administrative tasks.
The proposal received the approval of Parliament in connection with the debate on the Bill
St.prp. nr. 65 (2002-03). The Directorate for Primary and Secondary Education became
operative on 15 June 2004. The directorate is an executive body, a professional and
administrative organ under the control of the Ministry of Education and Research, with
subject-related and administrative tasks. Personnel have been transferred to the directorate
from the Norwegian Board of Education, the National Support System for Special Education
(Statped) and the Ministry of Education and Research.
17
The principal goal of the Directorate for Primary and Secondary Education is to contribute to
continuing quality development of compulsory and upper secondary education in Norway.
The main tasks of the directorate are:
Analysis and assessment;
Development, guidance and support;
Supervision and administration
NOKUT
As a result of the changes in the Act on Higher Education in 2002, a new organ for
accreditation and assessment of higher education was set up. The preamble to the Act states:
1. The organ will be an independent national body which through accreditation and
assessment will oversee the quality of Norwegian institutions offering higher education,
and give its approval to courses offered by institutions not covered by this Act. The
accreditation and assessment activities will be designed in such a way that institutions
can gain benefit from them in their quality assurance and development work.
2. Accreditation is understood, in the terms of this Act, as a professional evaluation of
whether a higher education institution and the courses it offers meet a specific set of
standards. Accreditation shall be based on an assessment made by external experts
appointed by the organ. Accreditation is a prerequisite for an institution offering courses
of education under 45 and 46.
Through the Quality Reform an accreditation system has been set up which establishes clear
professional standards for accreditation in the categories of state university colleges,
specialized university institutions and universities. A system has thus been created which
establishes professional and not political criteria as the basis for assessing whether an
institution shall gain or lose accreditation in the individual category. The Ministry has a
regulatory function through determination of the overall standards on which professional
accreditation is based.
4.1.8 Employment negotiations system
Until 2004 the central authority has played the employers' role in negotiations on teachers'
pay and conditions, despite teachers being employed by their respective local and regional
authorities. The Education Act states that the King in Council determines who teachers shall
negotiate with in matters of pay and conditions (10-10). With effect from the 2004
negotiations, the central authority is no longer the teachers' counterpart. Now the employers
or their organization, the Norwegian Association of Local and Regional Authorities, negotiate
directly. This transfer is also a stage in the policy of transferring more responsibility and
authority to the local level.
4.2 Curricular policies
Small changes have been made in the organization of upper secondary education on the basis
of the assessments that were carried out at the end of the 90s.. After the Quality Commission
submitted its findings in 2002 (NOV 2002:10) and 2003 (NOV 2003:16) and the Government
presented its considerations to Parliament in a White Paper, St.meld. nr. 30 (2003-2004) -
(hereafter St.meld. nr. 30), Parliament has now debated the White Paper (June 2004) against
the background of a report from the parliamentary Committee for Research and Education
(Innstilling S. nr. 268, 2003-04). On the basis of the Quality Commission's recommendations
18
and the debate in Parliament on the White Paper, more considerable changes will be
implemented at both compulsory and upper secondary levels during the coming year. This
will be discussed in Chapter 6 below.
In the case of private schools which are approved and given financial support in accordance
with the Independent School Act, it is a condition that the education they provide is
equivalent to that given in public schools, and the Ministry shall approve the syllabuses.
In higher education the institutions themselves now have a higher degree of responsibility for
the content of the syllabuses. The Ministry determines the outline programmes for
professional courses of study.
4.3 Objectives and principal characteristics
The basic principles and philosophy behind the Norwegian education policy remain
unquestioned: equal opportunity for equivalent education in an inclusive school system where
education, as far as possible, is adapted to the abilities and needs of the individual, and where
the population can realize a programme of lifelong learning. As a follow-up to the Dakar
Declaration, the Ministry of Education and Research has prepared a national overview of
initiatives and policy areas relevant for Education for All (EFA). The report has been made in
collaboration with the Ministry for Children and Family Affairs. (Education for All - National
Action Plan for Norway in accordance with the World Education Forum Declaration, Dakar,
2001).
The work towards gender equality has come a long way and consciousness of the equality
issue is present. There are still, however, many areas where the question of equality arises.
This is discussed below. In recent years the situation of ethnic minorities has been in focus.
The paragraphs above and below will, it is hoped, indicate the priorities which characterize
the efforts of the last few years, particularly since the change of Government. In brief, the
following trends can be indicated:
Sharper awareness of quality at all levels, and a greater willingness to take part in
discussions on quality.
Strong pressure to set up quality assurance systems.
More determined efforts towards the development of competence in institutions, and
the establishment of an organizational culture for learning.
A more professional and research-based approach to many of the problems in the
education sector.
More emphasis on creating the preconditions for flexibility and opportunities for the
indi vidual.
Greater emphasis on decentralization.
5 Major achievements
There is broad political agreement in Norway on the main goal- to ensure equal educational
opportunities irrespective of gender and social, economic or ethnic background. Norway's
education ranking level was statistically low in the first post-war years. As late as 1960
approximately 80% of the population had no more than compulsory schooling, roughly 16%
had upper secondary education, while only just over 4% had higher education. In 2002 the
19
figures were 20%, 57% and 23%, placing Norway at the top of the OECD statistics on the
population's education level.
Percentage of persons 16 years of age and over according to highest
completed education level 1970 - 2000.

60
50
30
20
10
20CM.:J
1. Compulsory
School level
2. Upper Secondary
level *
3.University and univ. 4.University and univ.
college level, short ** college level, long ***
Excluding persons with unreported or incomplete education.
* Including the level "Extended upper secondary education", which includes courses based on the upper
secondary level but are not recognized as higher education.
** "University and university college level, short" covers higher education of up to four years.
***"University and university college level, long" covers higher education of more than four years, and
researcher training.
During recent decades Norway has therefore succeeded in realizing one main goal of
education policy on which Parliament has been in full agreement. The figure shows only
changes as they have affected formal education. In addition further education and more
informal adult education has been widespread in Norway. The trend continues. But the current
improvement in the figures is due largely to older generations with a low level of education
dropping out of the statistics. Nevertheless, the end-of-century reviews, assessments and
experience have uncovered aspects that must be examined more closely if progress is to be
made.
5.1 Compulsory education
5.1.1 Pupil numbers and structure
Reform 97 was implemented and has now been in force for some time. Assessments have
been made. The Quality Commission discussed the situation and certain changes are being
worked on. But before returning to this in Chapter 6, the situation in 2004 will be summed up.
20
Pupil numbers in compulsory school 2000/01 and 2003/04
Number Number Number of Pupils per teacher Gross costs per Percentage
of pupils of teacher work year pupil in NOK special educ.
schools work years pupils*
200012001 592394 3350 52811 11,2 56240 5,6
200312004 619732 3284 51085 12,1 62804 5,7
Source GSlog SSB, Kostra
* Pupils with special needs who as a result of expert evaluation (Ed. Act 5) are entitled to special education and
receive it in an ordinary school.
The number of pupils per teacher work year has risen primarily because a new work
agreement has increased the number of periods taught per teacher per year. The figures are
nevertheless extremely low in an international perspective, a fact linked to the decentralized
school structure (see below). The increase in costs is largely due to higher teacher salaries.
Salary payments account for almost 800/0 of local authorities' education budgets.
The 121 private schools in 2003/2004 have a total of 12,350 pupils, roughly 20/0 of all pupils.
75 pupils receive teaching at home. Only just over 2000 pupils attend special schools for
pupils with special needs.
School structure (figures from 2002)
Number of pupils Number of schools Number of pupils Percentage of pupils
- 40 478 9500 1,7
41-160 1 076 103000 17
161-320 914 217000 36
321 - 659 271 000 45
Source: GSI
The table shows that Norway's school structure is highly decentralized. The 50 per cent of
schools with the fewest pupils have in total less than 20 per cent of all pupils, while the sixth
of schools with more than 320 pupils take in 45 per cent of all pupils.
Approximately 2000 of the schools are purely primary schools (years 1-7), approximately 550
are purely lower secondary schools (years 8-10), and approximately 750 are combined
primary and lower secondary schools.
5.1.2 Lessons learned
Virtually all Norwegian children complete primary and lower secondary school and 950/0 of
them continue to upper secondary education.
The evaluation reports and experience from Reform 97 can be summed up in the following
points:
Norwegian pupils are by and large happy at school. They are also in general well satisfied
with their teachers. The reasons for this contentment can vary, since questions about
pupils' motivation, attitudes to subjects and involvement in the process of learning do not
yield the same positive answers.
21
Pupils' parents and guardians have on the whole confidence in the school. They are also
fairly well satisfied with their contact with the school. But questioned whether there is
close enough cooperation on school work and progress in subjects, many say that this
could be better.
Bringing six-year-olds into school has been largely successful. So also has the process of
introducing more varied forms of work. Nevertheless, the reports show that forms of work
designed to activate the pupils do not of themselves produce the anticipated learning gain.
The decisive factor appears to be that the teacher sets clear goals for the activities and is
firm in directing them. Six-year-olds have greater learning potential than the teaching
programmes suppose.
The learning outcome in primary and lower secondary school varies too much from class
to class and school to school. Norwegian education has embraced adapted learning in an
including school environment as a central principle for several decades. One has,
nevertheless, clearly failed to adapt the teaching to the individual pupil's starting-point
and needs. This affects not only the weakest but also the gifted pupils. At the individual
level, the spread between strong and weak pupils is greater in Norway than in many other
countries.
Norway expends considerable resources on schooling. Some of this expenditure can be
explained by the school structure, some by the fact that Norwegian teachers have a
moderate teaching load. Nevertheless, the level of resource use is high. This increases the
concern that pupils' learning outcome, as documented in surveys, is not greater.
The learning environment in Norwegian classes is probably neither better nor worse than
in other countries. But in the knowledge that schools have since the curriculum of 1987
worked especially on including, caring and responsibility, it is perhaps somewhat
surprising that the documented incidence of bullying and behavioural problems is so high.
The lower secondary school needs renewal. On the one hand there is little scope for pupils
who are disenchanted with school to be given interesting and meaningful tasks. On the
other hand, able pupils are given little opportunity to do more absorbing work.
Science and foreign languages do not have the status one would wish for. Norwegian
pupils in primary and lower secondary schools have shown poor results in science
surveys. Norway has no specific topics in technology in the curriculum. English is a
compulsory language from the first year of primary school. Norwegian pupils did well in
the "8-country" European assessment. In lower secondary school a second foreign
language is optional. Sami and Finnish pupils can choose Sami and Finnish as their
second foreign language. Immigrants can choose their native language.
Entrepreneurial skills are rapidly entering the classroom, often in the form of project work
where the pupils set up and run their own companies, often with a view to financial profit.
This has been a success where it has been encouraged. There is potential here for school
co-operation at an international level.
5.2 Upper secondary education
5.2.1 Figures and statistics
Reform 94 had several important aims:
Securing an individual right to upper secondary education;
22
Improving quality in education;
Introducing a new model to strengthen cooperation between the school and the
workplace in vocational education;
Establishing a new structure that would aim at improving flow-through in vocational
education.
One of the main problems before 1994 was that too many pupils in vocational areas of study
were prevented from progressing to the next stage of training, and so never managed to take
their trade certificate.
Pupils in upper secondary education: autumn 2000 and autumn 2003
Number %-age %-age %-age Gross Number of %-age of %-age
of 16-18 of of running apprentices women of
pupils yr-olds Column girls costs per special
in II pupil educe
upper (NOK) * pupils
sec.
educ.
2000
General 94383 57,5 54,4
**
subjects:
Vocational 69650 42,5 46,7
**
29945 31,4
subjects:
Total: 164033 89,1
2003
General 90064 50,6 51,1 43405
subjects:
Vocational 87710 49,3 48 63824 28490 30,0
subjects:
Total: 177774 89,3
Source: SSB, Kostra
* Average for the country excluding Oslo, which has not returned data
** Data unavailable
The distribution across the different areas of study can be found in Appendix 1. Appendix 2
shows the number of apprentices by gender and field of study.
95/96% of pupils who complete compulsory schooling proceed to upper secondary education.
Approximately 850/0 attend schools run by the regional authorities. Just under 15% attend
independent, private schools.
5.2.2 Lessons learned
Reform 94 has been a success insofar as:
There is broad acceptance of the main organizational model - 3 years' education
preparing for further study, and 2+2 years in vocational education.
Almost all pupils who complete compulsory schooling enrol in upper secondary
education.
The flow-through of pupils in vocational areas of study is considerably better than
before 1994.
23
The number of apprentices is appreciably higher than before 1994.
Apprentices are on average considerably younger, i.e. they begin in paid employment
as qualified workers much earlier.
Industry takes its responsibility for apprentice training seriously.
More girls choose vocational subjects than before 1994.
Statistics, reports and Sf. meld. nr. 30 indicate factors that need to be more closely looked
into:
The average figures disguise that fact that girls on the whole choose traditional
women's work in areas like health subjects and social studies (91,1 % girls), arts and
crafts (85,9%), hotel and food science (56,4%) and sales and service (60,4%) (See
Appendix 3).
The number of apprentices has slowly decreased since the top year, 1998, when there
were 32,350 apprentices
Well over 900/0 of apprentices gain trade certificates. The proportion of pupils who
gain certificates after receiving their vocational training entirely in school is somewhat
lower, approximately 75%, but this is the alternative that pupils must choose if they do
not find an apprenticeship place. The GECD commented in the 1998 report that pupils
without apprenticeship places are exposed to a big risk.
It is difficult to find suitable apprenticeship places for everyone, especially for pupils
with a minority ethnic background. There is a structural imbalance between the pupils'
wishes and the places industry and commerce offer.
Although around 80% complete their courses within the stipulated time frame
(Norwegian Institute for Education Research and Statistics Norway), the drop-out rate
during the course period is too high. It is 12-13% in general studies and the net drop-
out rate in vocational subjects is approximately 10% . For young immigrants the drop-
out rate is higher.
The link between theory and practice must be made more flexible in relation to pupils'
abilities and interests.
The evaluation of Reform 94 showed that important aspects of what is called the
"content reform" - more varied teaching procedures, more pupil activity, and that the
pupils should take more responsibility for planning and carrying out their own work -
have not been realized to the desired extent.
Too few pupils choose courses of study involving advanced science units ..
The GECD's Review of career guidance policies of March 2002, in the country note
on Norway, points out that the counselling programme has many weaknesses.
5.3 Folk high schools
Folk high schools have played an important role in the history of Norwegian education. Folk
high schools offer mainly one-year examination-free courses to pupils who have completed
upper secondary education, traditionally a year of maturing. Folk high schools often have
their own special fields; music and other cultural activities have had a strong position, as has
the open-air life. Two of the schools have concentrated on pupils with special problems. Folk
high schools now also offer shorter courses.
24
Number of pupils in folk high schools, 2000-02
upils'", longer courses (spring and autumn) 16.5 - 33 weeks I ~ :> 6:>/B 6 J 4 S I ~ 6U4
lYB
ils, shorter courses, 3 days - 16 weeks
IIPupHs:, total
St.prp.nr J (2003-04)/ Statistics Norway
* Full academic year equivalents
There are a total of 77 folk high schools.
5.4 Adult education
Adult education activities in Norway are comprehensive and are undertaken by a number of
organizations. The introduction of the Competence Reform improved conditions for adult
learning. With effect from August 2000, adults born before 1978 gained the right to free upper
secondary education. From August 2002, adults who need it have the right to free primary and
lower secondary education. Local authorities (responsible for compulsory education) and
regional authorities (responsible for upper secondary education) receive central support
through the general transfer of funds. Private schools approved in accordance with the
Independent School Act and in receipt of state support can also have adult participants.
In connection with the treatment of a White Paper (St. Meld. nr. 42, 1997-98, the Competence
Reform) the Storting requested the Government to establish a system which gives adults the
right to document their non-formal learning without having to resort to traditional methods of
testing. A three-year Non-formal Learning Project (1999-2002) was established with the
target group to comprise all adults who wished to have their non-formal learning assessed in
relation to the educational system, working life, and organizational activity. Adult
immigrants who wished to have their competence documented and assessed through
vocational tests were part of the target group. In light of the experience gained in the Non-
formal Learning Project, and of the introduction of non-formal learning assessment in higher
education, a system has been established for the documentation of non-formal learning.
Various documentation standards have been developed for use in the assessment process in
working life and the tertiary sector. Their primary focus is on actual skills regardless of the
learning arena. Also, a new instrument for surveying competence acquired in the voluntary
sector was launched at the end of 2003. Work in voluntary organizations and leisure activities
can thus be defined more clear!y as an important contribution to increased competence in
working life and education. Evaluation shows that the Non-formal Learning Project has
largely achieved the goal set with regard to the introduction of a national non-formal
competence system. The goal has been reached with respect to the education system, but not
yet in relation to working life and the voluntary sector.
In addition, widespread adult education activities take place under the auspices of the
independent study organizations and distance learning institutions. Approved organizations
25
receive direct financial support in accordance with the Adult Education Act. This activity is
extensive (see Appendix 4).
Other private schools and institutions offer courses which are dependent financially on the
payment of participant fees.
The Department of Municipal and Regional Affairs arranges centrally financed courses for
employment seekers, through its Directorate of Labour.
A relatively extensive programme of education in Norwegian language and the Norwegian
social context for adult immigrants is administered by local authorities, with central support.
The Ministry of Local Government and Regional Development (KRD) has the financial and
legal responsibility for this training, while the Ministry of Education and Research is
responsible for the curriculum.
5.4.1 Some key figures
4 208 participants were registered on examination preparatory courses for adults at
compulsory school level in autumn 2003. Of these, 2 360 were women, and a total
of 2 354 spoke a minority language (source GSI - Information system for the
compulsory education sector).
In addition, 6 700 receive other forms of adult education at the compulsory
education level organized by local authorities. The majority are physically or
psychologically handicapped and need special education (source GSI).
26,000 pupils in upper secondary education in Autumn 2003 were 20 years of age
or more. 14,700 of those were over 25 years of age (source Statistics Norway).
Approximately 30,000 immigrants and refugees attended courses in Norwegian
language and the Norwegian social context (source Statistics Norway).
Approved organizations had altogether 735 000 participants, 52% of whom were
women. They delivered 1 352000 lessons with a teacher and organized 378 000
lessons without teacher (Appendix 4).
The most recent figures available from the Directorate of Labour are from 2002.
They show that approximately 6,000 participated in employment-related courses
and approximately 9,400 in upper secondary courses not covered by the Education
Act (Statistics Norway). Slightly over 50% were women. Enrolment on these
courses varies widely in keeping with the employment situation, as central
authorities give increased support in periods of high unemployment.
A total of 12 distance learning institutions receive state support. The object is to
provide examination preparatory courses at upper secondary or higher level. In
2003 the institutions had a total of 20,000 participants, half of them women, of
whom 10,500 followed courses at upper secondary level (Statistics Norway).
Employers in both the private and public spheres spend considerable amounts on
further education and in-service courses for their staff. No official figures are
available for these programmes, but costs are estimated at well over ten thousand
million NOK.
26
5.4.2 Lessons learned
Norway is among the countries with the most extensive range of adult education. Creating
opportunities for lifelong learning is a goal of education policy which attracts broad political
agreement.
Developing the assessment of non-formal competence has reached a constructive
phase. The principle is accepted both by employers and by education institutions.
The challenge is to arrive at appropriate frameworks and routines.
The GEeD inquiry shows that Norwegians are less inclined to regard lifelong
learning as desirable and necessary than people in other countries.
The OECD study on lifelong learning states that the system in Norway is still
supply-oriented, and that most public money is spent on financing the right of
adults to upper secondary education.
The OECD report on career advisory services states that the information and
counselling service for adults is extremely unsatisfactory.
Surveys show that there continue to be too many adults with weak basic skills in
reading and numeracy (SIALS).
The situation within adult education too is that those who have most to start with
get more. This effect was noted as early as at the end of the 70s, when Norway's
Adult Education Act came into force and an Adult Education Institute was
established. The reforms in adult education between 2000 and 2002 have not
succeeded in attracting relatively disadvantaged groups so far.
A number of pioneer projects have shown that employers in both the public and
private spheres need more competence and training in developing appropriate in-
service training programmes for their organizations and their employees.
More effective measures are probably needed to persuade adults to choose in-
service training and/or further education in areas where the country needs more
competence.
The system of assessing non-formal experience and learning should be better
coordinated between the official education system and the private sector.
It is a challenge to move some of the informal, non-qualifying adult education
activities over to examination-preparatory courses, particularly at the upper
secondary level.
5.5 Higher education
5.5.1 Figures and statistics
Norway has currently around 210,000 students in higher education. The figure was under
100,000 early in the 80s. Growth was particularly strong from 1988 to 1990 when the number
of places rose from approximately 110,000 to 133,000. The universities now have c. 80,000
students, of whom c. 44,000 are women. The university colleges have c. 130,000 students, of
whom c. 82,000 are women. Of the total number in university colleges, c. 30,000 students are
enrolled in private institutions. The proportion of female students has grown strongly in the
long term, but women choose by and large to study subjects related to health and civics, the
arts and social sciences. The table below shows the distribution.
27
Students by subject area and gender, autumn 2003
Subject area Total
0/0 of
Men Women
0/0
Total Women
Total 209,770 84,097 125,673 59,9
General subjects 181 0.1 147 34 18.8
Arts and aesthetic subjects 28,247 13.5 10,352 17,895 63,4
Teacher education and pedagogics 30,879 14.7 7,498 23,381 75,7
Social sciences and law 30,578 14.6 12,006 18,572 60,7
Economic and administrative subjects 37,790 18.0 17,982 19,808 52,4
Physical sciences, technical and practical subjects 35,470 16.9 24,755 10,715 30,2
Health, civics and sports 42,109 20.1 8,578 33,531 79,6
Primary production 1,272 0.6 682 590 46,4
Transport, security and service-related subjects 2,348 1.1 1,767 581 24,7
Undeclared area of study 896 0.4 330 566 63,2
Source: Statistics Norway and Education Statistics
Almost 9,500 courses of study were completed at the country's universities and specialized
university institutions in the academic year 2002-03, 12 per cent more than the previous year.
In the whole university and university college sector, 29,400 courses of study were completed
in the academic year 2002-03. More than 15,900 courses of study were completed at the
university colleges. Completed doctorates are not included in these figures.
Women were responsible for 50 per cent of the 6,659 completed courses of study at the higher
level and for 63 per cent of the 22,717 completed courses at the lower level (Appendix 5).
Courses at the higher level last more than four years, while courses at the lower level last up
to four years. Women completed twice as many courses as men at the university colleges.
5.5.2 Lessons learned
Norway has a high educational level and has now the capacity and diversity in the higher
education system to ensure the ability to build further on it. Furthermore, the system is
geographically decentralized. This has proved to have a positive effect on the development of
competence at the local level. Norway has also a state-based system of financing studies
which ensures that everyone has the opportunity to study. An alteration to the system means
that students now have more to gain by completing their studies in the normal time. In
addition, state higher education is free of charge. Students must buy their books and other
materials. Gender differences are in the course of being eradicated, although the choice of
subjects is still powerfully influenced by gender.
Attention is now being more strongly given to quality in education. The Mj0S Commission
carried out a comprehensive survey of the university and university college sector, and the
Government has now by and large implemented the proposals which Parliament approved.
The Government summarizes this in the Bill Ot.prp. nr. 79 (2003 -04):
The costs of the Quality Reform have been fully met, at 1,144 mill. NOK. Impressive
work has been and is being done to fulfil the ambitions of the Quality Reform.
28
Norway is well on the way to implementing the Bologna Declaration.
That the costs of the Quality Reform have been wholly met is also to the credit of the
higher education sector itself. The institutions have made a great effort and also had a
constructive dialogue with the authorities on the implementation of the Reform.
In the short term, the introduction of the Reform will also mean extra tasks which can
reduce the effort in other areas, including research work.
The Government plans a total increase in R&D growth of 1.1 billion NOK in 2004.
The OECD goals remain fixed, and the growth plan is being adhered to. The Research
Council of Norway has recently estimated Norway's investment in R&D at 2 per cent of
GNP in 2004. The OECD average is 2.33 per cent.
Other than this, it is too early now to draw any clear conclusions about the results of the
Quality Reform. Recent concerns are linked to:
Too few students - particularly women - choose to study mathematics and natural
science.
The flow-through in the free studies is too slow.
There are still too few women who choose longer studies at university. The majority of
women take shorter, employment-oriented courses in the health and social services sector
at university colleges.
It is desirable that more students should take part of their studies abroad.
There is also concern over too little research in Norway, and that much research is of too low
a standard. The Government plans to present a White Paper on research in spring 2005.
6 Main challenges in the years ahead
In this chapter a number of general topics common to several educational levels will first be
presented. The report will then look into concrete challenges at the different educational
levels.
6.1 Principles
With the Competence Reform, the Quality Reform, and the up-coming reform of basic
education, the work of realizing important basic principles continues. The education system
shall be accessible to everyone, regardless of background, and the authorities shall ensure that
everyone has the chance of gaining an equivalent education. One of the consequences of this
is that all public education shall continue to be free of charge. The national systems for the
transfer of funds shall ensure that all local authorities, responsible for compulsory education,
and all regional authorities, responsible for upper secondary education, shall make an
equivalent education available. The opportunities individuals have are now to an increasing
extent safeguarded through individual, statutory rights.
29
6.2 Economic adjustments and "sustainable social development"
The motives that drove forward the Norwegian reforms during the 90s are still operative.
Norway has in recent decades emerged from being an industrial society based on raw
materials with a generally low level of education, to being a high-cost welfare society in
which knowledge-based activities play an steadily more significant role. The country has been
through, and is still subject to, extensive structural changes and adjustments that emphasize
this trend. Against this background, it becomes increasingly important to ensure that
education policy has a positive effect. At the same time, clear socio-economic effects of the
adjustments are apparent. Although the country as a whole has never had so strong an
economy as today and the inhabitants are, for the most part, well off, social and political
tensions can build up as a result of new and growing differences. It is incontrovertible that
unemployment and a low level of educational attainment go together. A challenge lies in the
possible emergence of new, marginalized groups, and in these groups developing antisocial
subcultures. To move towards a knowledge-based working environment supported by an
educational programme which also ensures sustainable social development will be important
in the years to come. Here Norway is in line with the ED's social agenda from the NICE
meeting in 2000, also included in what has been called the Lisbon process.
In Norway, the first task is to promote the motivation for learning in a lifelong perspective,
and continue the development of a more flexible education system which to greater extent can
fulfill diverse expectations.
6.3 Globalization and social inclusion
Globalization, through the internationalization of the economy and politics, is also a
determining factor in the content of education. Education, both basic and professional, must
accept that more and more of what happens in the country has international aspects.
Norway too has in recent years become more multi -ethnic and multicultural through
immigration. Immigration is not a new phenomenon, but what is new is that immigration
takes place from a greater number of countries than before. While previously immigrants
came predominantly from the European/American cultural sphere, many immigrants now
come from Eastern Europe, Asia and Africa. In the Compulsory Education Information
System (GSI), the data show that mother-tongue teaching in a total of 112 languages was
given to 19 712 foreign-language speaking pupils in 2003-04.
Against this background, the debate about what it means to develop a multicultural society is
constant and public. Norway has previously been relatively homogenous, and this issue is
therefore new and unaccustomed for many.
The urgency in work for internationalization and multicultural meetings has been given a
startlingly tragic dimension in the problem of terror and the wars and crises of recent years in
different places - the Balkans, the Middle East and Africa. There have been wars and crises
before, but for many people the crises of recent years have come closer, partly through more
thorough coverage in the media, and partly because Norway as a country has been involved
politically. These developments have also made organized crime more visible.
30
To build international understanding, sound ethical standpoints based on multicultural
tolerance, positive social attitudes and an appreciation of the meaning of democracy appears
therefore to be a central task for the future.
6.4 Inclusive and adapted education
6.4.1 General
In Norway, an inclusive school and teaching adapted to the pupils' abilities and needs have
been guiding principles for many decades.
The vast majority of pupils attend public schools. Less than 30/0 attend private schools. At the
compulsory level, all pupils have a statutory right to go to their neighbourhood school. This
applies also to pupils with special needs. Parents must give their approval if handicapped
pupils are to be moved to special schools or specially created groups or classes. Children and
young people who for a variety of reasons have been placed in children's homes also
normally attend the nearest school. It is, however, quite possible to allow all or parts of the
educational programme to follow individual learning plans with special activities, if it is
wished to give the pupil more time to himself/herself for a spell of time. In the case of
extreme behavioural problems, the Education Act allows for pupils to be moved irrespective
of the views of the pupil or the parent/guardian, out of regard for the other pupils.
In upper secondary education after Reform 94, all pupils have the right to a place on one of
three chosen areas of study. The statistics show that close to 95% of pupils have their first
choice fulfilled. The regional authority, as owner of the school, decides if pupils shall attend a
school with a clear geographical recruitment area, or if pupils can choose freely within the
region. In the latter case, grades from lower secondary school will decide the ranking, if there
is competition for places. Several studies have been undertaken of the flow-through in upper
secondary education. Studies by the Norwegian Institute for Studies in Research and Higher
Education (NIFU) show that the flow-through has improved considerably since 1994 (cf.
5.2.1). Despite this, changes are now planned to adapt the programmes even better to the
wishes and needs of the pupils (see below 6.4 and 6.10.2).
Children from immigrant families also have the right to attend their neighbourhood school,
and they shall be offered mother-tongue teaching and extra classes in Norwegian to ease the
transfer to the Norwegian school system.
6.4.2 Better adapted learning
Evaluations and result analyses indicate that there nevertheless is a long way to go. It appears
from the PISA survey that Norwegian pupils' performance is spread over a wider range than
is the case in other comparable countries. Classroom research also indicates that Norwegian
teachers struggle to make a success of differentiated and adapted teaching strategies. In upper
secondary education a large-scale countrywide project, the "Differentiation Project", has been
carried out; the main aim of the project was the development of adapted learning. White Paper
Sf. meld. nr. 30 asserts that the evaluation of the project shows that improved adaptation of
study programmes is necessary, particularly at the upper secondary level. The White Paper
also discusses in considerable depth ways in which the requirements of pupils with special
needs could be better met.
31
In the view of the Ministry, the insufficiencies in adapted learning and the considerable
variations in the use made of special education can be put down to:
insufficient insight into the results of the learning process.
that some school principals make too little use of the aggregate competence of the staff in
organizing the teaching around the pupils' needs.
an inadequate level of competence among school owners, principals and staff where
learning difficulties and the methods available for teaching pupils with different learning
difficulties are concerned.
poor knowledge about ways of preventing and dealing with behavioural difficulties.
too little use of system-focused processes.
too little development of expertise in this area in many local authorities.
too little knowledge of how adapted learning procedures should be carried out.
lack of knowledge of regulations and the freedom of action allowed by the regulations.
models for the distribution of resources to schools.
schools do not to the desired extent equalize social differences
6.4.3 Minority language pupils
The situation for pupils from language minority groups (e.g. children/youth with immigrant
background) has recently been directly addressed. InDecember 2003 the Government
presented a strategy plan "Equivalent education in practice - a strategy for better learning
and more participation of language minorities in kindergartens, schools and education 2004-
09" (F-4154). The document describes the situation thus (excerpt from p. 4):
Children from language minority backgrounds are underrepresented in kindergartens.
Research shows that well-organized measures for minority language children in
kindergartens have a positive effect on the children's first response to school.
A broad-based study of pupils in lower and upper secondary school indicates that fewer
minority language pupils achieve above-average results, and that more are in the group of
lowest achievers.
The multicultural perspective is little in evidence in syllabuses and textbooks.
There is a considerable lack of qualified mother-tongue teachers and bilingual teachers in
schools.
Surveys show that minority pupils have a positive attitude to school, and that their parents
and the pupils themselves have high educational ambitions.
There is no difference in the extent to which minority pupils are involved in problem
behaviour at school, compared to the majority. However, more of the minority pupils are
often apprehensive about going to school, partly because they are more prone to
harassment than others.
A smaller proportion of minority language pupils enrol in upper secondary education than
majority pupils.
Newer surveys indicate that minority language pupils showed a considerable improvement
in progress in upper secondary education between 1994 and 2002, particularly in the
general (academic) area of study.
Young people from a minority language background are underrepresented in Norwegian
higher education.
32
Adult immigrants are offered classes in Norwegian language and civics. In one study,
840/0 said they had attended Norwegian classes, while 41% said they had completed the
Norwegian course.
Women complete the Norwegian course less often than men, despite a larger number of
women enrolling. Time-consuming caring tasks are suggested as an important reason for
non-attendance.
The strategy plan has five main goals:
Better language understanding among minority language children at the pre-school level.
A higher level of school achievement among minority language pupils.
An increased proportion of minority language pupils an apprentices starting and
completing upper secondary education.
An increased proportion of minority language students in higher education.
Better Norwegian skills among minority language adults.
Through the strategy plan a number of measures are implemented. Some of the most
important are presented below:
Improve language understanding among minority language children at pre-school level.
Change the Education Act.
Test different models for special language learning.
Strengthen the multicultural perspective in syllabuses and textbooks.
Establish a national centre for multicultural education.
Introduce grants for minority language teachers who lack formal qualifications.
Take steps to strengthen cooperation between home and school.
Spread experience through demonstration schools and annual conferences.
Set up seminars, web-based services, case descriptions.
Improve recruitment to and increase awareness of higher education.
Strengthen the multicultural perspective in higher education.
Introduce measures directed towards adults - the right and duty to Norwegian classes and
the introductory programme.
6.5 The gender issue
Norway has its own Gender Equality Act. Equality is in addition a requirement of many other
specific Acts. Norway also has an ombudsman to oversee the implementation of the Gender
Equality Act. At regular intervals the different Ministries reinforce the principles of the Act
with different kinds of action plans.
The principles expressed in the concept of gender equality are broadly accepted by the people.
A substantial levelling-out has taken place in connection with education. The situation is now
partly turned on its head, with girls dominating and in consequence a need to look more
closely at the situation for boys. The statistics indicate aspects of the situation that are being
worked on:
33
At the compulsory level girls now perform better than boys, apart from in physical
education. In the case of reading and writing skills in particular, the performance of boys,
especially the weaker boys, demands attention.
The figures for pupils formally recognized as requiring special education show a strong
preponderance of boys. The question of the extent to which this has individual causes or is
linked to schools failing to care as much for boys as for girls is under debate.
In upper secondary education the majority of pupils are now girls, and they perform better
than boys in academic subjects. The statistics also show that the distribution of pupils in
vocational subjects is determined largely by gender (see Appendix 2). This is also
reflected among apprentices.
In higher education, the strong increase in the number of female students has arisen
primarily in the health and social studies sectors of the university college system, where
women represent almost 2/3 of the growth in student numbers. There is also a strong
increase in the number of women attending the private colleges. Furthermore, changes
have occurred in other subject areas (see Appendix 2 and 3). Women are still
underrepresented in senior posts in universities and university colleges. One of the reasons
is that women till now have been less interested in choosing the longer courses of study.
In 2002-03 there continued to be a very weak preponderance of men completing longer
courses of study (see Appendix 5).
6.6 Working environment and learning environment
6.6.1 Improved working environment
As part of the work on quality Norway has put a lot of effort into developing a good working
environment and a stimulating learning environment for pupils and students. This work goes
on at all levels and is also articulated in changes in the law. It has become customary to
distinguish between the conditions which are needed to bring about a pleasant, inclusive, safe
and healthy environment, and the factors which contribute to an effective and productive
learning environment. Many Norwegian surveys show that even when pupils are happy and
have a healthy environment, it does not follow that the learning returns are satisfactory. Other
factors playa part: the school's approach; the teachers' qualifications; the teachers' ability to
stipulate positive goals and expectations; the pupils' motivation and learning strategies, etc.
It has been a long-term ambition to strengthen the legal requirements for the learning
environment and so improve the physical and psychological working environment:
Many school buildings are not satisfactorily maintained and do not meet today's
environmental requirements.
Pupils and students have not been included under the general provisions of the
Working Environment Act.
Norwegian surveys have shown that behavioural problems are on the increase,
although the incidence of serious behavioural problems is relatively small (Ogden,
1998, and Sorlie and Nordal, 1998).
It has therefore been a long-term ambition to strengthen the legal requirements and so
improve the physical and psychological working environment.
34
As mentioned earlier, a new chapter in the Education Act dealing with the pupils' working
environment came into effect on 1 April 2003. The chapter enhances pupils' rights, tightens
up routines and regulations governing how matters shall be handled, and includes penalties
which can be applied if the school owner does not act accordingly. Monitoring this in the
future will be an important task.
In July 2002 new regulations in the Higher Education Act dealing with the students' working
environment came into effect. New, more demanding routines are now imposed on
institutions to ensure a physically and psychologically safe and secure environment and allow
the Labour Inspection Authority to exercise control in accordance with the new regulations. In
the changes in the law proposed in the Bill Ot.prp. nr 79 (2003-04) the regulations are further
defined and made fully applicable also to private colleges.
6.6.2 Pupil behaviour and the psychological working environment
Pupil behaviour and the psychological working environment have been paid increasing
attention to. As mentioned above, a number of researchers have presented new, and perhaps
somewhat surprising, research results. Care and responsibility have been central areas of
concern in compulsory schooling since the National Standard Curriculum for Basic Education
of 1987. Ogden (1998) has used some of the same questions as in a report from The
Department of Education and Science and the Welsh office (1989) about the situation in
England and Wales. Ogden concludes that conditions in Norway do not seem to be markedly
different from those in England and Wales. Some types of undisciplined behaviour were
reported more often in England and Wales, while Norwegian teachers more often complained
about verbal harassment. What we are in the course of discovering is perhaps the reverse side
of a process of development characterized by child-centred upbringing, freedom of action and
negotiation strategies in the adult-child relationship. "Discipline" has in many ways been a
foreign concept in Norwegian pedagogics in recent decades. Foreigners who visit schools
often react to the classroom culture in Norway. As early as 2000 an expert group appointed by
the Ministry of Education, Research and Church Affairs and the Ministry of Children and
Family Affairs presented their proposals in Assessment ofprogrammes and measures to
reduce problem behaviour and develop social competence.
In working with this, it is important that the school does not take action that can bring it into
conflict with the parents' responsibility for upbringing. The school's perspective is that
behavioural norms, values and attitudes must be seen in relation to its responsibility for
ensuring a learning environment where the work of learning can be as effective as possible.
The school has therefore legitimate grounds for establishing its own norms here.
In the area of behaviour, bullying is a special problem which is now in focus. In Scandinavia
it was the Swedish Professor Olweus who first methodically researched bullying in school.
Later, Norwegian groups have entered the field, and the centre for Behavioural Research in
Stavanger now issues both research papers and pedagogical programmes. Studies show a high
number of pupils who experience bullying. At the same time, bullying at the workplace has
also been taken up.
To underline the importance and seriousness of the bullying problem in school, several
instances issued a joint Manifesto against bullying. It was signed in September 2002 by Prime
Minister Kjell Magne Bondevik, the Children's Ombudsman, the Norwegian Association of
Local and Regional Authorities, the Education Union and the Parents Council for Basic
Education. The Ministry of Education and Research has had principal responsibility for
35
following up the work since then. In March 2003 the Ministry of Children and Family Affairs
joined the other bodies in support of the Manifesto, and the venture was strengthened by
action in kindergartens and in children's and young people's leisure settings. The focus on
schools takes place at the same time as the effort to identify and reduce bullying in working
life.
The action against bullying is taking place in compulsory and upper secondary schools. For
example, a Guide on dealing with bullying in upper secondary education has been produced.
After over a year's work the results can be summed up thus:
Those involved in the Manifesto have produced extensive material for the use of teachers,
pupils, staff in kindergartens, and parents/guardians.
All mayors have been urged to sign a local manifesto against bullying.
The follow-up of the Manifesto against bullying was the main theme at the 2003
Conference on Violence in Bergen, organized by the Norwegian Association of Local and
Regional Authorities and the insurance company Vesta.
381 schools will have introduced the Olweus programme in the 2002-04 period, and 184
schools are taking part in the academic year 2003-04 in the HZERO" programme,
developed in Stavanger - two anti-bullying programmes which have produced results.
There has been broad support for anti-bullying measures in local and regional authorities
(169 local authorities and 9 regional authorities had approved local goals in the fight
against bullying before 1 January 2003. Kindergartens and leisure centres for children and
young people have been covered by the Manifesto against bullying since March 2003.
The media have shown considerable interest in the action.
But anti-bullying work is a continuing concern. The action continues; it demands the constant
attention of school owners and each individual school.
6.6.3 A more effective learning environment
Another important aspect of the work on quality at all educational levels is that the effect of
the learning process must be improved and the right conditions must be established for a
better learning environment in that sense. Ogden uses the expressions "learning-inhibiting"
and "Iearning-alienating' behaviour. Assessments of learning efficiency at all levels have
revealed that Norway has much to gain from introducing more effective forms of work and a
more structured and controlled follow-up of pupils' and students' progress. The PISA survey
contained thought-provoking data on Norwegian pupils' learning strategies and their attitude
to school work.
This is an important aspect of quality work at all educational levels. It is discussed in other
parts of this report.
6.7 More local autonomy
6.7.1 The local authority level
The policy of the current Government is to transfer more authority to local levels. This is in
part a feature of the general policy of strengthening local democracy and reducing detailed
directives from the central level where there is no need. Local democracy, which underpins
36
traditional and important values in Norway, is under threat in different ways. In the growth of
the welfare state, Parliament has throughout recent history laid down powerful provisions in
relation to local and regional authorities by stipulating standards in laws and regulations and
incorporating important conditions relating to equality of services. This limits local freedom
of action. The traditional division into local and regional authorities is, perhaps, no longer so
appropriate. Norway, with only 4.5 million inhabitants, still has 335 local authorities.
Considerable demographic changes have taken place, with a certain movement away from
outlying areas. The industrial structure is also changing, with less emphasis on primary
industries. Many local authorities are very small; the smallest have less than 1000 inhabitants.
At the same time, systems of communications have radically improved.
As far as finances are concerned, a widespread equalizing procedure takes place among local
authorities. Large sums are collected at the centre and then redistributed to local authorities in
accordance with key tables. The consequence is that very many local authorities have most of
their budgets met by direct and indirect transfers from the central authority. This represents,
as a whole, the biggest challenge facing local democracy. Inhabitants are concerned that
services and welfare meet the necessary standards, and for many it is irrelevant whether the
services are provided by central or local authorities. Participation in local elections is not as
high as could be desired, and considerably lower than in general elections.
A revitalization of local democracy and local decision-making is sought. Effectiveness,
responsibility, competence and quality are key terms. The revision of laws and regulations has
drawn up new and clearer limits for the local implementation and follow-up of education at
the compulsory level. The debate on the division into local and regional authorities continues,
but so far few changes have taken place, and the local authorities that amalgamate do so
freely. In the 1988 GECD report, the evaluation panel wanted to see a closer examination of
the ambitious decentralization policy. The panel asked first if the central authority had
retained enough power over policy making. In this area, a distinct change took place after
1990, with the adoption of a much clearer policy of management by objectives in education
and the deliberate use of legal provisions, regulations and syllabuses. The panel also
questioned whether units as small as those in Norway would be able to fulfil their
responsibilities.
An administrative structure of many small authorities can have difficulty in implementing
national education policy, giving schools enough support, conducting self-assessment, and
providing development opportunities for the staff (quoted from the summaries in the Report
on Lifelong Learning). This is where the challenge lies in Norway today.
The problem is partly solved by the central authority becoming more active in the work of
assessment and supporting development measures, in the in-service training of teachers and in
the training of school administrators. The development which gives the individual school and
principal greater authority also helps. Nevertheless small authorities will have a problem of
competence and capacity, and work is in progress to do something about this.
At the same time there is increasing awareness that quality assurance and development are not
possible without commitment, understanding, responsibility and follow-up at the local level.
Establishing competent school management at local and regional level and in the individual
school is therefore important. In addition to the comprehensive administrative responsibility
which rests on the local school management, it is also expected to communicate and assist in
realizing the predominant national goals and requirements. Further, it must develop its own
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plans and goals, where local needs are incorporated as elements in the overall strategy. All
education touches on people's fundamental values and needs. It is therefore natural and
positive that both ordinary people and experts have their own opinions - often strong opinions
- about the organization and quality of education. It is important that the local school
administration also contributes to channelling the different opinions into constructive and
professionally tenable processes. If they do not succeed, stagnation and perhaps a feeling of
impotence can be the consequence, and the management of education will collapse into
fragmentary systems where strong schools, teachers, pupils and parents determine the course
on the basis of their own priorities.
6.7.2 Information
A democratic society presupposes openness. Schools have traditionally been relatively closed
to ordinary people and they have also often enveloped themselves in a language which
outsiders, including the local politicians responsible for school administration, have had
difficulty in understanding. A new tendency is now clear - more openness. This is in part an
important aspect of the ongoing debate about the publication of assessment findings. Schools
are challenged by parents who want better contact with, and more information about the
school. They are challenged by the media which takes up current issues, discusses assessment
findings and demands comments.
The local school management must be able to satisfy the need for information, develop
information strategies and build up a school culture which can tackle the new openness in a
professional way without ignoring professional standards or the rights of individuals.
6.7.3 The role of the principal
In connection with the latest changes in the Education Act, the role of the principal and the
competence requirements of the post were discussed. In the Bill Ot.prp. nr 67 (2002-03) the
Ministry proposed that a number of the formal requirements for appointment as principal
should be dropped. At the same time, it was clearly underlined that the principal should be
pedagogical and administrative leader, and that the school should be organized in such a way
that the principal has sufficient perspective to function as pedagogical leader. Pedagogical
leadership has to do with quality understanding, and the assessment and growth of the school
as an organization. It means possessing the ability to establish a positive school culture and
build a system of guidance and support for teachers in their individual development.
The role of the principal has been substantially changed and expanded in recent years.
Building up a competence development and support apparatus that can contribute to providing
the country with the school administrators it needs will therefore be an important task.
In White Paper St.meld. no 30, strengthening school management is given importance. In
chapter 5.4 we can read:
"Learning organizations make particularly great demands on plain and powerful leadership.
Experience shows that good school management is decisive in the work of quality
development in schools. Principals have the overall responsibility for the teaching in their
own schools and for the work of developing and improving the learning environment and the
profit the pupils' gain from the learning. The school owners are responsible for the
leadership training of their own managers, including school administrators. The development
and training of school administrators has been given high priority by the central authorities
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for a considerable time and is an important instrument in the work of achieving the national
goals for schools.
"On the initiative of the Ministry and in collaboration with the Norwegian Association of
Regional and Local Authorities the Ministry has partly financed the development offlexible
in-service courses and further training courses in school management at a number of
university colleges and universities. The further training courses have the goal of making
school administrators better able to lead their schools as places of learning. The main themes
of the courses are quality in the school's activities, pupil learning, a quality development
strategy and effective use of resources. Master-level studies have also been developed at a
number of institutions where further education courses can form a part. The measures were
implemented in spring 2003. "
In the list over concrete recommendations we find the following (p. 101):
The central authority shall give financial support to the development of the competence of
school administrators, teachers, instructors, advisers and other staff linked to basic
education.
In cooperation with the Norwegian Association of Regional and Local Authorities, a
special programme will be developed to develop competence among school owners and
school administrators in connection with the introduction of the reform.
The Ministry will arrange for the further education courses set up for school
administrators to continue.
6.8 Quality assurance
As already mentioned in this report, the task of building up a national quality assessment
system is given priority and is being pursued in many areas.
Something has already been done. The cooperation on international comparative surveys
continues. A Directorate for Primary and Secondary Education was established on 15 June
2004. Parliament has given its approval to the use of national tests. An extensive pupil and
student assessment system has been set up, and in higher education student assessment has
been given a legal basis.
In the work to be done, it is important to give weight to a basic understanding of the concept
of quality itself.
Seen from the outside, quality is connected with profit from learning, the effect of learning, in
relation to the needs of society and the individual. Quality, however, is not a fixed, objective
standard, but is relative and linked to expectations, political priorities and an ethical
standpoint. Clear conflicts also arise between the understanding of quality to which the
authorities give expression through legislation, syllabuses and sector plans, and the
expectations and aspirations which the individual embodies. It is therefore not possible to
undertake quality assessments without relating them to clarified and justified goals. Making
this clear, justifying the choices, generating understanding for the determined priorities, and
not least, explaining the compromises that are unavoidable at the point where the public
interest intersects with the individual, this will be a very important task if the assessments are
to acquire legitimacy.
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Seen from the inside, from the perspective of the educational institutions, quality is linked to
the way the job is done, pedagogical competence, didactical adaptation, the methods aspect of
the choice of forms of work, the use of teaching materials, and the follow-up of pupils and
students. It is therefore important for institutions and teachers that assessment activities are
designed to be helpful in the day-to-day work, and that those who take part in the assessments
find them meaningful and give them their support. Without this, many sources of error can
arise and the assessments lose value.
All assessment and research indicates that the wider context plays an important role. Pupils'
and students' achievements and educational career are linked to their socio-economic
background and influenced by their environment. It is not possible, therefore, to work on
quality improvement without dealing with this area, and the interpretation of assessments
must allow for these factors.
Many countries experience difficulties in the way in which assessments and results are
handled in the public debate. Ranking lists of schools in the media provide striking examples
of how assessments and surveys can be misinterpreted and misused. In democratic
communities information must nevertheless be public, as long as it does not unreasonably
reveal sensitive personal data. The problem cannot therefore be solved by limiting the flow of
information. The only alternative is to join the discussion in an objective manner, expose
misuse and misunderstandings, try to improve the understanding of the media and the public
about what the results tell us and do not tell us, and contribute to a gradually more enlightened
public debate. This process has begun. It is important that school personnel themselves take
part in the process and do not unilaterally oppose the surveys and the information because
they can have negative aspects.
"The Student Inspectors" is an Internet-based survey introduced in 2001, obligatory for
students in grades 7 and 10. Students reply to questions regarding motivation, student
democracy and participation, psychosocial issues and physical learning environment.
Indi vidual respondents cannot be traced. The service was introduced in order to assist schools,
training centres and school owners in carrying through a systematic school evaluation and
quality development.
6.9 Learning for sustainable development - a challenge
In 2002 thirty years had passed since the environmental conference in Stockholm marked the
humble beginnings of the Rio process. Eleven years later, the UN World Commission on
Environment and Development was established, led by Gro Harlem Brundtland. The
Commission's report, Our Common Future, was published in 1987, launching the concept of
"sustainable development".
With the launching of this concept, issues linked to the environment, economics and social
development were brought together. The three elements cannot be considered in isolation;
they must be seen as mutually dependent. Justice and solidarity - in time and space - come
into focus.
The UN report GE03 points to a paradox. The world's environmental problems increase, but
not attention to the problems. Poverty in the third world and excessive consumption in rich
countries continues to put great pressure on natural resources.
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The 2002 Johannesburg conference, to which Norway contributed, is a fresh example of what
can be achieved by committed environmental cooperation. The report "State of the World
2003" from Worldwatch Institute shows that the campaign for the environment can be
effective. Acid rain and ozone-destructive gases are examples of serious threats which have
been considerably reduced. However, the accumulated environmental trend, on a global basis,
is negative. Deforestation, C02 discharges, urbanization and waste of water are growing
problems, the report states.
In the Norwegian school system the concept "sustainable development" has mainly been
perceived as environmental education. A main tool when working with questions relating to
sustainable development, has been a web-based network, "Network for Environmental
Education" www.miljolare.no. A broader perspective, also including social and economic
dimensions, has recently been initiated, and will be accessible for all Norwegian schools and
pupils in a revised version of the network mentioned later this autumn (2004).
Issues relating to environment and sustainable development need to be ranked higher on the
agenda and be given a prominent place in educational policy again.
6.10 Challenges at the different educational levels
In this chapter the report will draw attention to the circumstances to which Norway will pay
particular attention in the next few years. The debate lays the foundation for the concrete
changes that will come in compulsory and upper secondary education in the near future.
In the case of higher education, the Government has recently presented a Bill to Parliament
(Ot.prp. nr. 79,2003-04) concerning certain changes in the Higher Education Act. The
background for the Bill is the recommendations from the Ryssdal Commission (NOV
2003:25) which was presented in September 2003. The Parliament Committee for Education,
Research and Church Affairs will not deliver its report until February 2005, so the
commentary below takes the recommendations in the Bill as its starting point. In addition, the
Government now has a White Paper on research in preparation.
6.10.1 Compulsory education
The main principles underlying the organization of compulsory public education are stable.
Such principles as equal access to education, equivalence of provision and adapted education
in an inclusive school which is free of charge and open to all are unchanged. Nevertheless, a
need for certain changes and adjustments has been recognized.
Curriculum policy
The Norwegian curriculum is divided into a common, general section and syllabuses in the
individual subjects. The general section was approved as early as 1994, and shall be kept.
There is agreement that the syllabuses in the separate subjects are too comprehensive. They
will be simplified. A greater capacity for flexibility and adapted learning will be incorporated,
as far as possible. Adapted learning will both answer the needs of the weaker pupils and
provide for those who need a greater challenge than the average. This can be achieved partly
by incorporating subject matter at lower secondary level (grades 8 - 10) that anticipates the
content of upper secondary education.
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Norwegian syllabuses have contained a number of provisions on methods and forms of work.
In keeping with the wish to distinguish more clearly between the national authority's
specification of the goals that steer the learning process, and local freedom to organize and
adapt according to local needs, the syllabuses shall now be altered and the provisions on
methods removed.
Arrangements for more flexible organisation have already been made by removing from the
Education Act the regulations on class size based on when a class should be divided. This is
now being followed up by substituting a system permitting the redistribution of up to 25 per
cent of the periods at the individual school, replacing the regulation which determined the
number of periods in each subject. The separate subjects will still be allocated an annual total
of periods, and pupils' tuition rights will be assured through a guaranteed minimum number
of periods.
Since new syllabuses will now be designed in all subjects, new textbooks will also be
produced. The production of textbooks in Norway is the responsibility of private publishers.
The approval of textbooks by the national authorities was discontinued when the new
Education Act came into force in 1998, in line with the national authorities' wish to determine
the learning goals through the syllabuses, leaving the way open for more professional freedom
in the choice of subject-related resources. The only requirement is that textbooks must be
available in the two official forms of the Norwegian language. School owners and the schools
themselves are responsible for choosing appropriate textbooks.
Boosting basic skills
It has already been acknowledged that Norway is surprised by the international and national
surveys which have shown that Norwegian pupils score under the average GECD level in the
basic skills of reading, writing and numeracy. Perhaps even more surprising is the discovery
that the spread between strong and weak pupils is greater in Norway than in many other
countries. Surveys have indicated that, among young people and adults too, far too many have
not mastered the skills in the way needed in a modern society.
Training in the basic skills of reading, writing, numeracy and the use of ICT will be given
more emphasis. These are seen as skills that are a necessary precondition for learning in all
subjects, and syllabuses will therefore be changed to emphasize this in all subjects. The
number of teaching periods at the primary level will be further increased, the increase going
to Norwegian and mathematics. Teacher education will be strengthened by making basic
training in reading, writing and mathematics obligatory in general teachers' education.
Norway will continue to conduct national and international surveys of basic skills. The
question being discussed is how the results should be made public. In Norway, too, there is a
reaction to the manner in which the media present the material, including inappropriate
comparative lists and simplified concepts of quality. On the other hand, it is considered highly
desirable that information about schools should be available to the public in a democratic
system. The Ministry and the new Directorate for Primary and Secondary Education are now
looking more closely into how this can be arranged. A web site (www.skoleporten.no) has
been launched as part of a national quality assessment system. "Skoleporten" provides results
from quality assessments and information on the four areas of quality: resources, learning
environment, learning outcome and completion rate. The main target group is policy makers
in the education sector, but the web site also provides useful information to parents, pupils,
apprentices and other stakeholders.
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The development of pupils' learning strategies will also be integrated into training in basic
skills and subjects. Learning strategies are defined as the ability to organize and regulate one's
own learning, employ time effectively, solve problems, plan, execute, evaluate, reflect on and
absorb new facts and knowledge, and adapt and utilize this in new situations at school, work
and leisure.
The Ministry will in addition specify certain fundamental principles and requirements which
shall be binding features of all schools and other places of training. These are defined as "The
Framework for Quality". The principles are laid down in a document which the White Paper
St.meld. nr. 30 calls "The School Poster":
The school and the company offering apprenticeship training shall:
1. Give all pupils and apprentices equal opportunities to develop their abilities and
talents;
2. Stimulate pupils' and apprentices' desire to learn, perseverance and curiosity;
3. Stimulate pupils and apprentices to develop their own learning strategies and their
capacity for critical thought;
4. Stimulate pupils' and apprentices' personal development, social competence and
capacity for understanding of democracy and democratic participation;
5. Prepare the ground to enable pupils and apprentices to make purposeful choices
of training and future work;
6. Support teachers and instructors in showing themselves to be confident leaders
and examples to children and young people;
7. Stimulate, utilize and develop the individual teacher's competence;
8. Promote differentiated learning and varied work patterns;
9. Ensure that the physical and psycho-social working and learning environment
promotes health, well-being and learning;
10. Prepare the groundfor the meaningful involvement ofparents and the local
community in the educational process.
These principles shall make up the framework for quality at the place of learning and shall be
the foundation for the development of the school and the apprenticeship training company as
learning organizations.
Giving added weight to mathematics and the natural sciences
The action plan "Science, of course" (Realfag, naturligvis) gives a current description of the
position of the sciences in Norway and internationally. Within the OECD area, Norway has
the lowest number of periods at the compulsory school level. Norwegian 15-year-olds have an
average level of achievement in mathematics and the natural sciences, and the spread between
able and weak pupils is large. There are greater gender differences in attitude towards and
interest in the sciences than in most other countries, particularly at the lower secondary level.
Compared with many other countries, far fewer pupils in upper secondary schools choose the
more advanced science courses, and the proportion of pupils taking the advanced courses has
43
fallen in recent years. Teachers at the compulsory level in Norway have limited competence
in science subjects, and the first-year standard in mathematics in higher education is weak,
especially in teacher education institutions.
The diminishing prestige of science subjects can be one reason why pupils with considerable
potential often decline to choose these subjects in upper secondary or higher education. In an
international study, Science And Scientists (SAS), almost 10,000 13-year-old pupils from 21
countries answered questions about science teaching. The pupils have answered questions
about their experiences, interests and priorities, and what they think of science and
researchers. From the report it appears that Norwegian children are somewhat less interested
in learning about scientific topics than children from other countries at the same level of
development. Norway has the lowest proportion of science students in the whole aECD area.
Only 16 per cent of the student body study sciences, while the average for the OEeD is 24 per
cent. The proportion of science graduates entering education fell from 30 per cent at the end
of the 70s to under 10 per cent during the 80s, and has since remained at the same low level.
In an aECD study into the number of science graduates per 100,000 aged 25-34, Norway
comes third last, after the Netherlands and Denmark. Norway has approximately 750, while
the aECD average is 1,250.
Several action plans and development measures have already taken on the problem. It is, in
particular, work on developing new approaches in didactics and methods which can make the
subjects more down to earth and interesting to the pupils. The syllabuses will be examined
again.
As mentioned above, digital competence is regarded as a basic skill to be practised in all
subjects. How to give more weight to the technological aspect in education has also been
discussed. Norway does not want to introduce technology as a separate subject. Instead, it will
be boosted within the framework of the existing natural science subjects, and partly the craft
subjects in relation to design.
The General Assembly of the UN has declared 2005-2014 to be the Decade of Education for
Sustainable Development. This will give further opportunities to strengthen the practical
usefulness of the sciences. The Norwegian Environmental Education Network is based on
cooperation among schools, the environmental protection administration, research institutions
and voluntary organizations. It is judged to be a useful tool for teaching science and for
strengthening the links with the social sciences.
Giving more weight to foreign languages
Internationalization, increased travel and the multicultural element in Norwegian society give
foreign languages increased importance.
The 1997 curriculum made English compulsory from the start of primary school, and it is as a
rule the first foreign language for Norwegian pupils. In lower secondary school, pupils can
choose a second foreign language, generally German or French, but it is also possible to
choose other languages, e.g. one connected with the pupil's ethnic background.
In connection with the 1997 curriculum it was discussed whether a second foreign language
should be made compulsory at the lower secondary level, but the idea was dropped. It has
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now been revived, and Parliament has given its approval to the proposal. As before, the
second foreign language will generally be German or French, but other languages can be
chosen. Pupils whose language of instruction is Sami, Finnish or sign language can be given
exemption. Schools with the necessary capability may introduce the teaching at the primary
level.
According to the ED's information network on education, Eurydice, many countries have
more years of instruction in two foreign languages than Norway. The EU action plan for
languages 2004-2006 has the goal of everyone learning two foreign languages in addition to
their native language, and one of the ways in which this is to be achieved is by an early start
to foreign language learning.
Experience from many multilateral programmes shows that contact with a country where the
foreign language is spoken is important for the learning outcome. Participation in language
projects and exchanges will be a suitable contribution to strengthening foreign language
learning here too. Norway has entered into bilateral agreements on pupil and apprentice
exchanges with Germany and France. With the introduction of a second foreign language,
agreements with other countries will be considered.
The syllabus for the second foreign language will be changed to ensure that the learning goals
emphasize a practical approach and communication skills of different kinds at different levels.
The mark obtained in the subject will count in admission to upper secondary education. If
modifying the subject in the direction of practical language skills is to succeed, teachers will
need to be assisted in acquiring new competence and new teaching aids will have to be
developed. It is planned to give this priority from the coming year.
Philosophy
Philosophy is not, at present, a separate subject in compulsory education. At the upper
secondary level philosophy is an optional subject which can be made available to all pupils
regardless of area of study, and a number of schools are conducting trials in the subject. In the
general curriculum the value of a philosophical approach to understanding and an outlook on
life is endorsed. In addition, philosophy and philosophical method are incorporated in several
syllabuses at the compulsory level, including Knowledge of Christianity with Information
about Religions and Life Stances (KRL), Norwegian, Mathematics, and Civics. Philosophy is
a particularly important part of KRL.
In White Paper St.meld. nr. 30 the Ministry states that philosophy can strengthen pupils basic
ability to deal with other school subjects and constitutes a useful preparation for active
participation in the community and working life. Philosophy will provide perspectives on the
foundations of other subjects, both by showing how central issues have developed historically
and how issues can be systematically examined.
The Ministry says it will consider how to strengthen philosophy in connection with work on
the curriculum.
6.10.2 Upper secondary education
Reform 94 implemented broad structural reforms in upper secondary education, including a
considerable reduction in the number of foundation (first year) courses, from 113 to 13, and
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fewer advanced I courses (second year). The reform had as its goal the creation of clear and
straightforward study programmes, so that all the paths should lead to recognized competence
and at the same time safeguard the skills demanded by the individual apprenticeships.
Further simplification and quality enhancement
After the introduction of Reform 94, extensive evaluation was carried out. The results were
summed up in White Paper St.meld. nr. 32 (1998-99) and a number of adjustments were
made.
The current course structure comprises 12 vocational areas of study and three areas of study
leading to matriculation qualifications. Within the vocational areas there are still 102
Advanced I courses which lead to 224 different vocations, most of them involving
apprenticeship training with instruction both at school and in industry. In addition, three
courses of training in the vocational areas of study lead to matriculation. Pupils who begin on
a vocational course have, in addition, the opportunity to achieve matriculation qualifications
by taking a one-year general studies supplement either in their third year or after completing
their apprenticeship.
White Paper St.meld. nr. 30 reviews recent years' research and experience thus:
"Reform 94 succeeded in the first years in removing the structural barriers in the way of
pupils and apprentices achieving academic or vocational qualifications. In the vocational
areas of study, progression was improved by almost 100% during the first three years after
the introduction. Later years' developments have shown, however, that certain aspects of the
course structure impede recruitment to certain vocations and areas of competence. In
connection with the debate on White Paper St.meld. nr. 32 (1998-99) Upper Secondary
Education, Parliament drew attention to the fact that the course structure at Advanced I level
has become a serious barrier to recruitment to working life, because a consequence of the
division into so many courses is that pupil numbers are insufficient to set up classes in each
region. Development trends in recent years also show that progression has deteriorated and
that the degree of switching courses has increased, particularly between the foundation
course and Advanced I course in vocational areas of study. The evaluation ofReform 94 and
the evaluation of the differentiation project show further that upper secondary education is
not sufficiently adapted to the individual pupil's abilities and needs, as required by the initial
paragraphs of the Education Act. "
Parliament has given its approval to this assessment, which in turn becomes the premise for
future work. The main goal is to remove structural barriers to pupils completing upper
secondary education. A further goal is to enable pupils as far as possible to live at home. At
the same time, the disturbing results of Norwegian and international surveys concerning
pupils' learning outcome, and the specific Norwegian problem of recruiting competence in
science subjects, will have consequences. It is also evident that many pupils who enter higher
education could have been better prepared.
Parliament has now given its approval to the following:
New syllabuses will be developed for all study programmes and courses. In connection
with the revision of syllabuses, new textbooks and teaching materials will be written.
More mathematics will be compulsory in the academic areas of study
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It has been suggested that able pupils at the upper secondary level could be allowed to
take subjects or parts of subjects from university level. This has not yet been decided. The
Ministry will continue to work on the idea.
Although the main structure will be maintained, reorganization will open for greater
flexibility. The flexibility will allow not only more practical training of pupils who have
difficulty with theory and more theoretical depth in academic programmes, but also more
depth in practical procedures at an earlier stage in certain vocational subjects.
The structure will be further simplified. There will be fewer vocational programmes and
far fewer in the second year. Parliament has accepted a reduction to between 35 and 50.
The biggest challenge to come will be to secure a flexibility which meets the needs of the
pupils who want, first and foremost, practical training, while at the same time incorporating
the increase in quality needed in a system of vocational education which must respond to a
working life which makes increasing demands on knowledge.
More internationalization
Norway is concerned with internationalization and interested in Norwegian pupils receiving
part of their education abroad. In White Paper St.meld. nr. 30 the Ministry declares its
intention to strengthen this priority area.
Internationalization of upper secondary education includes both increased mobility, more
emphasis on language learning, new methods of work, and school owners taking
responsibility for the international perspective in education. Norway participates in European
cooperation on vocational training and vocational qualification based on the Copenhagen
Declaration of 2002. Norway also takes part in the exchange of pupils and apprentices
through the EO's education programmes Leonardo da Vinci and Comenius, and through
bilateral agreements with Germany and France. The Ministry plans turn a pilot scheme
involving the exchange of individual pupils through approved educational organizations into a
permanent arrangement. There is, however, a need to pay more attention to the vocational
subjects in order to increase the percentage of apprentices participating in exchanges.
Reorganization of the links with industry
Reform 94 and the structure of upper secondary education in Norway rest on cooperation with
the two sides of industry. Vocational education in schools and companies has its foundation in
common syllabuses developed in cooperation with industry. The apprenticeship scheme is
designed in such a way that half the period of apprenticeship is regarded as training while the
other half is work, giving the apprentice the status of employee. This cooperation makes
possible training demanding the use of equipment involving considerable capital investment
at the work place, which undertakes the continual renewal that is needed.
The cooperation between the public sector and industry takes place in different committees
and boards. This central principle is maintained. But in keeping with the simplifications and
changes in the training structure, the pattern of cooperation will be adapted. A reorganization
is currently being put into effect, and a new, central cooperative body is being set up. At the
same time, a smaller number of vocational boards representing a broader range of trades will
be instituted.
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The situation for adults
It has been shown that the Competence Reform has not had the desired effect, particularly at
the level of upper secondary education. The number of entitled adults who have been offered
courses is lower than expected. At the same time, statistics show that approximately half of
those who register as unemployed lack upper secondary education.
The OECD has drawn attention to the need in Norway for better coordination of projects and
for a closer look at the financial assistance available, particularly in respect of support towards
living costs.
No major changes are planned soon. The Ministry will examine certain legal aspects. Priority
will be given to better information on adult entitlements. In addition, the pilot projects relating
to the assessment of non-formal competence will now be reviewed, to achieve a more uniform
practice.
6.10.3 Higher education and teacher training
As indicated above, the implementation of the Quality Reform is largely complete. Both the
Government and Parliament wish, therefore, to await the results before introducing new
measures. The changes made recently have had primarily three goals: More independence for
the higher education institutions; more appropriate governance structures; and uniform rights
and obligations for students and institutions throughout private and public higher education
institutions, including implementation of the same quality assurance measures. Through
changes in upper secondary education it is hoped to strengthen students' preparedness for
higher studies.
The remainder of this chapter will focus on challenges related to the role of the teacher,
teacher education and school management.
The role of the teacher
The comprehensive scrutiny of basic education and determination to raise standards have
consequences for the teachers.
Of all the resources in schools, teachers' qualifications are the factor which most strongly
influences pupil achievement. Many different demands are made on teachers. They must have
competence in their subjects as well as pedagogic and didactic competence to guide pupils'
learning, and they must be able to draw on a broad repertoire of forms of work and
pedagogical tools. Teachers need personal competence in changing and developing, to be able
to reflect upon and if necessary alter their own teaching practice. They need social
competence, to be able to cooperate and communicate with pupils, parents and colleagues.
And they must have work-related ethical competence, to be able to reflect on their own
choices and attitudes as professional workers. Teachers must also make a contribution to
ensuring that children can grow up and become members of a society based on equality and
equal rights between women and men. The recruitment to teacher training of more men and
people with immigrant backgrounds will contribute to pupils having diverse role models.
Increasing the competence of teachers
A survey of teachers' competence at the compulsory school level shows that many teachers
have had little formal study in the subjects they teach, including central subjects like
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mathematics, English and Norwegian. Among teachers who taught mathematics in primary
school, more than 70 per cent reported that they had less than 30 credits in the subject.
Corresponding figures for English and Norwegian were under 70 per cent and around 50 per
cent respectively. At lower secondary level, rather more than 40 per cent of those who taught
mathematics had less than thirty credits in the subject, and the corresponding figures for
English and Norwegian were barely 25 per cent and around 30 per cent respectively.
The survey also shows that a majority of teachers at the compulsory school level had not
taken part in the in-service courses linked to Reform 97 in the subjects they taught, and that
the courses of most of those who participated lasted from one to three days. Situation reports
for the period 1997-2000 show, however, that almost all teachers took part in shorter in-
service programmes in one or more areas. At the same time, research indicates that short
courses that are not placed in the context of the individual school often have little effect.
As of the autumn of 2003, more than 1000 teachers were awarded state grants to take further
education in Norwegian, Sami or mathematics.
In the years 2001-04 the Ministry financed the development and operation of LcererIKT, an
in-service course in the pedagogical use of ICT. The goal was to give 40,000 teachers the
opportunity to develop competence in the pedagogical use of ICT during the period 2002-04.
So far around 33,000 teachers have taken this or a corresponding course.
As a follow-up to the efforts to strengthen basic education, the Ministry will now give priority
to a three-fold strategy for competence development:
Provide support for formal, examination-related further education in mathematics,
science, Norwegian, Sami, English and a second foreign language
In cooperation with the school owners who are the teachers' employers and responsible
for in-service training, give priority support to in-service training in:
the introduction of new syllabuses;
a second foreign language;
physical training;
the use of the national quality assessment system;
teachers, instructors and vocational test board members in upper secondary education;
better adapted learning
Guidance of newly qualified teachers. Taking two successful trials as a basis, the
Ministry will consider how to expand a arrangement by which newly qualified
teachers receive guidance and follow-up from the teachers and administration of the
school they are coming to. The Ministry will look into how this guidance can be
supported by the staff of teacher education institutions.
Strengthening teacher education
Since the results of the Quality Reform are awaited, the Government will not propose large-
scale changes in teacher education for the present. The existing outline programmes are in any
case so flexible that it is possible to introduce local variations. White Paper St.meld. nr. 30
nevertheless points to a number of steps that will be taken to strengthen the education:
The Ministry will give priority to R&D work in teacher education where the focus is on
practice.
49
The Ministry will strengthen the quality of practical training in teacher education.
The Ministry will introduce special admission requirements for general teacher education
and invite comments to proposals in which different models are discussed.
The Ministry will carry out an evaluation of general teacher education.
The content requirements in the pedagogical further education of kindergarten teachers
who shall teach in the first four years of primary education will be more rigorous.
The Directorate for Primary and Secondary Education will work with the teacher
education institutions and through different measures contribute to strengthening the
teacher trainers' knowledge of and cooperation with schools and school owners.
Strengthened school management
The principal has the leading responsibility for the teaching at her/his own school and for
developing and improving the school's learning environment and the pupils' learning
outcome. The school owners have responsibility for the management training of their own
managers, including school administrators. The development and training of school
administrators has been given high priority by central education authorities for some time. On
the initiative of the Ministry and in agreement with the Norwegian Association of Regional
and Local Authorities, the Ministry has partly financed the development of in-service and
further education courses in school management at several universities and university
colleges. The main topics on the courses are: quality in the school's operations; pupils'
learning; quality development strategy; and effective use of resources. Master's studies have
also been launched at several institutions where further education courses can be incorporated.
The measures were introduced in spring 2003.
In White Paper St.meld. nr. 30 a number of measures are announced to strengthen school
management. Among them are:
The central authority will contribute to financing the development of competence among
school administrators, teachers, instructors, counsellors and other staff connected with
basic education.
In cooperation with the National Association of Regional and Local Authorities, a specific
programme for the competence development of school owners and school administrators
will be drawn up, as part of the introduction of the reform.
The Ministry will make it possible for the further education courses that are established
for school administrators to continue.
The Ministry will take the initiative in changing the regulations where necessary to allow
local authorities to appoint school administrators for a term of years where this is seen as
appropriate.
The Government, with the support of Parliament, indicates that a total of 2-3 billion NOK
over a period of time will be spent on capacity building in this area.
50
Documentary References
Internet addresses
www.ks.no
www.soff.uit.no/eng-info.htm
www.skoleporten.no
www.ssb.no/englishlsubjects/04/
www.dep.no/ufd/engelsk
www.dep.no/ufdlengelskleducation
The Ministry of Education and Research:
Facts about Education in Norway:
Norwegian Agency for Quality Assurance
in Education (NOKUT): www.nokut.no/sw336.asp
The Norwegian Directorate for Primary and
Secondary Education: www.utdanningsdirektoratet.no
National Institute of Adult Education: www.vox.no
The Norwegian School Net: www.skolenettet.no
Norwegian Council for Higher Education: www.uhr.no/EnglishlEnglishindex.htm
The Norwegian Agency for Flexible
Learning in Higher Education:
The Norwegian Association of Local
and Regional Authorities:
Skoleporten - A quality assessment
and development Website:
Statistics Norway - Education pages
Legal and official documents
Available in English Available only in Norwegian
Report no. 268 (2003-2004) to Parliament Innst S. nr. 268 (2003-2004). Innstilling til
from the Parliamentary Committee for Stortinget fra Kirke-utdannings- og
Education and Research concerning White forskningskomiteen om St.meld. nr. 30 (2003-
Paper no. 30 (2003-2004) 2004)
White Paper no. 30 (2003-2004) to St.meld. nr. 30 (2003-2004) Kultur for leering.
Parliament on Culture for Learning (abridged
version).
White Paper no. 27 (2000-2001) to St.meld. nr. 27 (2000-2001) Gjor din plikt>-
Parliament on quality reform in higher krev din rett.
education, fact sheet: Do your duty - demand
your rights.
St.meld. or. 12, (2003-2004), Om modernisering
av Statens lanekasse for utdanning.
51
St.meld. nr. 14 (2003-2004), Om opplceringstilbod
for horselshemma.
St.meld. nr. 16 (2001-2002), Kvalitetsreformen -
Om ny lcererutdanning Mangfoldig - krevende -
relevant.
St.meld. nr. 18 (2001-2002), Kvalitetsreformen -
Om hoyere kunstutdanning.
St.meld. nr. 33 (2002-2003), Om
ressurssituasjonen i grunnopplceringen m.m.
St.meld. nr. 34 (2001-2002), Kvalitetsreformen -
Om hoyere samisk utdanning og forskning
St.meld. nr. 35 (2001-2002), Kvalitetsreformen
Om rekruttering til undervisnings- og
forskerstillinger i universitets- og
heyskoleselaoren
St.meld. nr. 39, (2002-2003), Ei blot til Lyst
Om kunst og kultur i og i tilknytning til
grunnskolen
NOD 2001: 16, Frihet til mangfold - Om
folkehogskolens rammevilkar
NOD 2001: 11, Fra innsikt til industri -
Kommersialisering av [orskningsresultater ved
universiteter og hogskoler.
NOD 2002: 10, F.orsteklasses fra forste klasse.
(Delinnstillling fra utvalget som gjennomgikk
grunnopplreringen.)
NOD 2003: 16, I [orste rekke. (Forslag fra
"Kvalitetsutvalget" som gjennomgikk
grunnopplreringen.)
NOD 2003: 25, Ny lov om universiteter og
hoyskoler. ("Ryssdal-utvalget", om
organiseringen av universiteter og hoyskoler.)
Ot.prp. nr. 32 (2002-2003), Om lov om
fagskoleutdanning
Ot.prp. nr. 33 (2002-2003), Om lov om
[rittstaande skolar (friskolelova).
Ot.prp. nr. 40 (2001-2002), Om lov om endringer
i lov 12. mai 1995 nr. 22 om universiteter og
hogskoler og lov 2. juli 1999 nr. 64 om
helsepersonell. (Tilrettelegging for
kvalitetsreformen.)
52
Ot.prp. nr. 64 (2003-2004), Om lov om endringer
i lov 4. juli 2003 nr. 84 om frittstaande skolar
(friskolelova). Gjelder srerlig videregaende skoler.
Ot.prp. nr. 69 (2001-2002), Om lov om endringer
i lov 11. juli 1986 nr. 53 om eksamensrettfor og
statstilskudd til private hoyskoler. (Tilrettelegging
for kvalitetsreformen i private hoyskoler.)
Ot.prp. nr. 79 (2003-2004), Om lov om
universiteter og hoyskoler.
Publications by the Ministry of Education and Research
Core Curriculumfor the Primary, Secondary and Lereplan for grunnskole,
Adult Education, 1993 videregaende opplsering og
voksenopplsering. Generell del, 1993
The Situation in primary and Secondary Education in Situasjonsbeskrivelse av
Norway, 2003 grunnopplreringen,
http://www.dep.no/ufd/engelskJpubl/rapporter/bn.html 2. utgave 2003
53
Appendices
1. Pupils in upper secondary education, gender and field of study. 1. October 2003.
Preliminary figures.
2. Apprentices, by gender and field of study. Preliminary figures. 1. October 2003.
3. Pupils in upper secondary education, by gender and field of study. 1. October 2003.
Preliminary figures.
4. Number of courses, participants and lessons, by organization. 1998-2003. (Adult
education.)
5. Graduates by gender and educational level. Preliminary figures. 1997/1998,
200112002 and 2002/2003. (Universities and university colleges.)
54
Education statistics. Pupils in upper secondary schools
3 Pupils in upper secondary education, by type of education, gender and field of study. 1 October 2003. Preliminary figures
Advanced course II
Gender and county of residence Total Basic courses
Advanced
Pupils in
course I
Total vocational study Other education
in school
Males and females 177774 66783 56191 48438 2968 3394
General fields of study 90064 28207 25028 36692 28 109
General, economics and management studies 77668 23376 21079 33076 28 109
Music, dance and drama 5219 1967 1 718 1534
Sports and physical studies 7177 2864 2231 2082
Vocational studies 87710 38576 31163 11 746 2940 3285
Health- and social studies 20039 7126 5764 6070 1079
Agriculture, fishing and forestry 4003 1644 1368 945 46
Arts, crafts and designs 12714 5636 4594 2231 253
Hotel and foodprocessing trades 7008 3828 2960 3 217
Building and construction trades 7000 3597 3 128 275
Technical building 2344 1086 1033 133 92
Electrical trades 9779 4593 3810 997 378 1
Engineering and mechanical trades 11604 6136 4697 405 366

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Chemical and processing trades 905 480 413 12
Woodworking trades 575 331 206 3 35
Media and communication 3911 1 594 1 357 959 1
Sales and service 4544 2525 1 833 186
Technical vocational school 3284 3284
Males 86956 34671 28831 18805 1447 3202
General subjects 41356 13 271 12041 15 920 27 97
General, economics and management studies 35717 11 048 10296 14249 27 97
Music, dance and drama 1 382 529 460 393
Sports and physical studies 4257 1694 1285 1278
Vocational educational studies 45600 21400 16790 2885 1420 3 105
Health- and social studies 1 788 922 425 288 153
Agriculture, fishing and forestry 1 811 761 645 371 34
Arts, crafts and designs 1 799 801 588 379 31
Hotel and foodprocessing trades 3058 1 706 1256 2 94
Building and construction trades 6889 3523 3 100 266
Technical building 2136 1022 936 93 85
Electrical trades 9427 4426 3668 969 363 1
Engineering and mechanical trades 10981 5785 4470 389 337
Chemical and processing trades 643 341 293 9
Woodworking trades 488 287 169 3 29
Media and communication 1678 725 561 391 1
Sales and service 1 798 1101 679 18
Technical vocational school 3 104 3 104
Females 90818 32 112 27360 29633 1 521 192
General subjects 48708 14936 12987 20772 1 12
General, economics and management studies 41 951 12328 10783 18827 1 12
Music, dance and drama 3837 1438 1 258 1141
Sports and physical studies 2920 1170 946 804
Vocational educational studies 42110 17 176 14373 8861 1 520 180
Health- and social studies 18251 6204 5339 5782 926
Agriculture, fishing and forestry 2192 883 723 574 12
Arts, crafts and designs 10915 4835 4006 1 852 222
Hotel and foodprocessing trades 3950 2122 1 704 1 123
Building and construction trades 111 74 28 9
Technical building 208 64 97 40 7
Electrical trades 352 167 142 28 15
Engineering and mechanical trades 623 351 227 16 29
Chemical and processing trades 262 139 120 3
Woodworking trades 87 44 37 6
Media and communication 2233 869 796 568
Sales and service 2746 1424 1154 168
Technical vocational school 180 180
Explanation of symbols
2004 Statistics Norwav
>
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Education statistics. Apprentices
0-
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1 Apprentices, by gender and field of study. Preliminary figures. 1 October 2003
Field of study Total Men Women Per cent women
1995 19375 15 192 4183 21.6
1996 27216 20085 7 131 26.2
1997 31983 22311 9582 30.0
1998 32350 22710 9640 29.8
1999 31446 21 728 9718 30.9
2000 29945 20533 9412 31.4
2001 29325 20311 9014 30.7
2002 29085 20394 8691 29.9
2003 28490 19931 8559 30.0
Fields of study 2003
General, economics and management studies 716 664 52 7.3
Health and social studies 3081 283 2798 90.8
Agriculture, fishing and forestry 680 486 194 28.5
Arts, crafts and designs 2538 122 2416 95.2
Hotel and food processing trades 2757 1304 1453 52.7
Building and construction trades 4806 4749 57 1.2
Technical building trades 1 724 1627 97 5.6
Electrical trades 5129 4960 169 3.3
Engineering and mechanical trades 5104 4815 289 5.7
Chemical and processing trades 266 167 99 37.2
Woodworking trades
Media and communication
Retail and service
Explanation of symbols
2004 Statistics Norway
382
243
1064
298
119
337
84
124
727
22.0
51.0
68.3
Education statistics. Pupils in upper secondary schools
4 Pupils in upper secondary education, by gender and field of study. 1 October 2003. Preliminary figures
Areas of study Total Males
All fields of studies 177774 86956
General fields of study 90064 41356
General, economics and management studies 77668 35717
Music, dance and drama 5219 1382
Sports and physical studies
7 177 4257
Vocational studies 87710 45600
Health- and social studies 20039 1 788
Agriculture, fishing and forestry 4003 1811
Arts, crafts and designs 12714 1 799
Hotel and foodprocessing trades 7008 3058
Building and construction trades 7000 6889
Technical building 2344 2136
Electrical trades
9779 9427
Engineering and mechanical trades 11604 10 981
Chemical and processing trades 905 643
Woodworking trades 575 488
Media and communication 3911 1678
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Females Per cent females
90818 51.1
48708 54.1
41951 54.0
3837 73.5
2920 40.7
42110
48.0
18251
91.1
2192
54.8
10 915 85.9
3950 56.4
111
1.6
208 8.9
352 3.6
623
5.4
262
29.0
87
15.1
2233 57.1
Sales and service
Technical vocational school
Explanation of symbols
2004 Statistics Norway
4544
3284
1 798
3104
2746
180
60.4
5.5
Education statistics. Adult education organized by popular education organizations
1 Number of courses, participants and lessons, by organization. 1998-2003
Participants Lessons
Popular education organization Courses
Females Total
With Without
Total Males
teacher teacher
1998 61428 681 359 298 167 383 192 1 841 942 1476948 365 110
1999 61319 681 845 303471 378374 1 853 855 1466116 387739
2000 60326 666729 296472 370257 1 831 222 1469244 361978
2001 54530 614356 273 145 341211 1681 367 1 315084 366283
2002 52181 667727 292 123 375604 1 729920 1 351 963 377957
2003, total 50083 735 162 354793 380369 1657221 1324129 333092
The Workers Education Association of Norway 6750 70101 28997 41104 246668 178806 67862
The Rural Association of Adult Education 3453 28323 19673 8650 60582 42573 18009
The Association of Adult Education of the Free
1837 18714 9128 9586 39551 35755 3796
Church Movement
The Education Association of the Conservative Party 950 7994 2905 5089 46034 46034
The Adult Education Association of The Christian
38 490 241 249 767 111 656
Democratic Party of Norway
Populus - The Adult Education Association of Family, 1 274
9185 1149 8036 25492 21296 4196
Health and Culture
The Sports Education Foundation 2564 31231 20355 10 876 50227 48498 1 729
The Council for Music Organisations in Norway 3588 45360 19857 25503 176962 103 144 73818
The Norwegian Council of Christian Study Activity 2595 29784 11432 18352 63330 36917 26413

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The Sami Adult Education Association 130 616 216 400 12 191 9842 2349
The Adult Education Association of the Centre Party 138 842 511 331 2090 - 2090
The Socialist Adult Education Association 481 4323 1228 3095 17 567 16 120 1447
Folkeuniversitetet - An Adult Education Association 14361 321 784 172244 149540 625097 550993 74104
The Adult Education Association of Nature and
1 834 18053 10359 7694 40615 36856 3759
Environment
The Adult Education Association of Peoples Learning 1 094 8425 3336 5089 31430 26504 4926
The Adult Education Association of the Liberal Party 133 1159 676 483 2357 634 1 723
YS Education and Development Centre 591 8098 2352 5746 10652 6438 4214
The Academic Association for Adult Education 1526 70662 30896 39766 30616 29703 913
The Association for Adapted Adult Education in
2727 25772 8295 17477 56646 40971 15675
Norway
The Association of Folk Culture 3679 30252 8084 22168 113 875 88741 25 134
The Adult Education Association of the Progress
333 3937 2829 1108 4217 3938 279
Party
Norwegian Coast Sami Study Association 7 57 30 27 255 255
Explanation of symbols
2004 Statistics Norwav
Degrees from universities and colleges

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1 Graduates by gender and educational level. Preliminary figures. 1997/1998,200112002 and 2002/2003
1997/1998 2001/2002
Total
Males
Females
Tertiary education, short and medium
Males
Females
Tertiary education, long
Males
Females
Explanation of symbols
2004 Statistics Norway
29871
12558
17313
22385
8535
13850
7486
4023
3463
29344
11688
17656
22624
8200
14424
6720
3488
3232
2002/2003
29376
11653
17723
22717
8318
14399
6659
3335
3324