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Equity in Education Thematic Review

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Equity in Education Thematic Review EQUITY IN EDUCATION THEMATIC REVIEW NORWAY COUNTRY NOTE Peter Mortimore (Rapporteur) Simon Field Beatriz Pont Review visit: 15-25 November 2004 ACKNOWLEDGEMENTS The Norway Review took place on 15-24 November 2004. The Review Team wishes to express its gratitude to the Steering Group, the author of the Country Analytical Report – Vibeke Opheim of NIFU, the National Coordinator – Hans Gjertsen – and all who, during its visit, provided information or permitted visits to their institutions. We were received with courtesy and consideration throughout the time that we were in Norway. Discussions were open, debates plentiful and opinions generously given. 2 TABLE OF CONTENTS ACKNOWLEDGEMENTS............................................................................................................................ 2 EXECUTIVE SUMMARY AND RECOMMENDATIONS ......................................................................... 5 1. INTRODUCTION ...................................................................................................................................... 8 1.1 The thematic review.............................................................................................................................. 8 1.2 The Norwegian visit and country note .................................................................................................. 9 1.3 General approach................................................................................................................................... 9 1.4 Methodology adopted............................................................................................................................ 9 2. BACKGROUND TO THE REVIEW....................................................................................................... 11 2.1 National history................................................................................................................................... 11 2.2 Demographic conditions ..................................................................................................................... 11 2.3 Economic conditions........................................................................................................................... 11 2.4 Political situation................................................................................................................................. 12 2.5 Education service ................................................................................................................................ 12 2.6 Phases of education ............................................................................................................................. 12 2.7 Recent educational reforms................................................................................................................. 14 2.8 Ongoing educational reforms .............................................................................................................. 15 3. HOW MUCH EQUITY CAN BE FOUND IN THE CURRENT SYSTEM?.......................................... 18 3.1 Funding ............................................................................................................................................... 18 3.2 Selection and access............................................................................................................................ 19 3.3 Concluding comments on selection and access................................................................................... 25 3.4 Transitions........................................................................................................................................... 25 3.5 International comparative measures of literacy, maths and science skills .......................................... 27 3.6 Norwegian standards in reading literacy............................................................................................. 28 3.7 Norwegian standards in mathematics literacy..................................................................................... 30 3.8 Norwegian standards in science literacy ............................................................................................. 31 3.9 Summary of Norwegian pupils’ performance in attainment tests....................................................... 31 3.10 Differences in pupils’ attitudes and behaviour.................................................................................. 32 3.12 Adult learning and literacy skills....................................................................................................... 33 3.13 Conclusion......................................................................................................................................... 36 4. WHAT IS THE CAPACITY WITHIN THE EDUCATION SYSTEM TO IDENTIFY AND RESOLVE PROBLEMS OF INEQUITY? ..................................................................................................................... 36 4.1 Current availability of information...................................................................................................... 39 4.2 Current and proposed reforms............................................................................................................. 41 4.3 Schools choice..................................................................................................................................... 44 4.4 The capacity of the Norwegian system to identify and resolve problems of inequity ........................ 45 5. DISCUSSION OF ISSUES AND RECOMMENDATIONS FOR IMPROVEMENT ............................ 47 3 5.1 Equity in the education system............................................................................................................ 47 5.2 Overall success in establishing equity................................................................................................. 49 5.3 Conclusions......................................................................................................................................... 57 BIBLIOGRAPHY......................................................................................................................................... 58 ANNEX 1: STATISTICAL APPENDIX ..................................................................................................... 59 ANNEX 2: DIFFERENT TYPES OF TESTING......................................................................................... 77 ANNEX 3: OECD REVIEW TEAM............................................................................................................ 79 ANNEX 4: PROGRAMME OF THE VISIT................................................................................................ 80 ANNEX 5: TERMS OF REFERENCE FOR COUNTRY VISIT AND COUNTRY NOTE ...................... 89 4 EXECUTIVE SUMMARY AND RECOMMENDATIONS Norway has an expensive education system. The results from international tests show that Norwegian fifteen-year-old pupils perform only at an average OECD level and that there is a bigger than average dispersion of scores despite the high level of equity within the system. Results from international assessments of adults of varying ages, however, show that Norway has one of the best educated working populations in the world. The integration of general and vocational courses within the same institutions and the lack of dead ends within the system together with a smooth transition to working life enable young people to continue learning and increasing their skills. Overall, Norwegian education has both strengths and weaknesses. This Country Note has been prepared as part of the OECD Thematic Review of Equity in Education. The Country Analytical Report was prepared by an independent researcher - Vibeke Opheim of NIFU. The team of examiners included experts from Belgium and UK and two members of the OECD Secretariat. Unfortunately, due to illness the expert from Belgium was unable to fulfil her role. The Review Team met on some sixty occasions over a ten day period in November 2004. It visited six schools or colleges, participated in meetings with officials, head teachers, teachers, parents, pupils and representatives from across the education system. The information gathered has been collated, analysed and debated over a five month period. The full terms of reference were agreed with the Ministry of Education and Research. These focused on two key questions: how equitable is the Norwegian education system and what is its capacity – taking account of recent reform initiatives – to identify and resolve problems of equity. The Norwegian education system is soundly structured and generally highly equitable. In terms of selection, access and transition it compares well with other countries. Norwegian young people at age 15 perform in international tests at the OECD average level but tests in the same year show Norwegian young adults outperforming most of their peers so as to become world leaders in measures of adult literacy. The interpretation of this apparent paradox is not straightforward, but one possibility is that school provision, while apparently unchallenging may avoid the stigma of educational failure and, in the process, develop the motivation to continue learning. Up to now the Norwegian education system has had only a limited capacity to identify and resolve problems of equity. Its philosophical basis places equity at the heart of its endeavour but the lack of systematic information about
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