Integration and diversity policies of the Government

English translation of Norwegian brochure

The Government's integration and diversity policies

The Government believes that diversity is positive. The population in Norway is less homogeneous than it has been in the past in terms of lifestyles, origin, religion, language used at home and culture. Norway will become increasingly more diverse, and policies must be adapted to the challenges this will bring. The immigrant population comprises persons whose parents have both been born abroad. As of 1 January 2005 this amounted to 365 000 persons, and 46 per cent of them had Norwegian citizenship.

The aim is that everyone, regardless of origin and gender, shall have equal opportunities, rights and obligations to participate in Norwegian society, whether in school, the local community or organizational life. Participation is an important prerequisite if society is to utilize all the resources in the population, and if each individual is to be able to influence his or her own life situation. No major social and economic differences must be allowed to develop along ethnic distinguishing lines. The relationship between groups and communities in the population must develop without strong social tensions and with good contact across the various groups. The Government is calling for a policy of diversity, which in principle shall address each and every citizen in the nation.

To satisfy these aims the Government has:

• Introduced an introductory programme for newly arrived refugees.
• Introduced the right and obligation to instruction in the Norwegian language and social studies for newly arrived immigrants from 1 September 2005. Religious leaders will receive special instruction.
• Introduced the requirement stipulating that instruction in the Norwegian language must be taken to be granted a settlement permit and Norwegian citizenship.
• Strengthened protection under the law against discrimination due to ethnic background, religion etc. through a new Discrimination Act.
• Strengthened the dialogue with NGOs and religious communities, as they have well-developed networks and will be an important resource for the local integration activities.
• Introduced a new benefits scheme for elderly persons who have only lived in Norway for a short period of time.
• Strengthened equal rights between the genders so that immigrant women have the opportunity to actively take part in social life on an equal footing with the rest of the population.
• Decided to establish a new Directorate of Integration and Diversity from 1 January 2006.
• Attached importance to research and development activities. Implemented measures must be based on solid knowledge if they are to work as intended and have the best possible effect.

The Government has introduced an introductory programme

The Government's aim is that newly arrived immigrants will gain access to working life and society, and that each individual will be welcomed with active measures when settling in a municipality. An individually adapted introductory programme will provide basic skills in Norwegian and insight into Norwegian society, and will also include measures preparing for participation in working life and/or education. The Government believes that individual qualifications are a benefit for each person and also for society, which will gain from the resources immigrants represent.

The local authorities must as soon as possible and no later than three months after settlement in a municipality offer such a comprehensive (year-round, full day) introductory programme to refugees, persons with collective protection in a mass outflow situation and persons granted residence on humanitarian grounds, as well as to persons coming under family reunification with the first two groups. The right and the obligation to take part in the information programme apply to persons in the target group between 18 and 55 years of age when they are settled in a municipality pursuant to an agreement between the immigration authorities and the local authorities, and when they need basic qualifications. The length and content of the programme will be adapted to the participants' backgrounds, aptitudes and needs, and it will normally last up to two years. Participation in the programme gives the right to a fixed standardized introduction benefit corresponding to two times the national-insurance basic amount (G). From May 2005 the G is NOK 60 699. Participation is now required to receive such benefits. The Government believes that participation in the introductory programme will promote equal rights for men and women, as the right to the introductory programme benefit applies equally to women and men if they participate in the programme.

As part of the agenda against poverty, the Government has initiated pilot projects with qualification programmes for immigrants who are dependent on social security benefits after a number of years in Norway and who have not gained solid footing in the labour market. The project focuses on obtaining qualifications and finding regular employment.

The Government introduces compulsory instruction in the Norwegian language

Norwegian language skills are an important prerequisite for active participation in society. From 1 September 2005 it will be compulsory for newly arrived immigrants to participate in 300 school periods of instruction in the Norwegian language and social studies, and 50 of these must be instruction in social studies in a language the immigrant understands. For the first time it is stipulated that completing the Norwegian language training is a requirement for being granted a settlement permit and Norwegian citizenship. Beyond the 300 periods of compulsory instruction, the local authorities are obliged to offer up to 2700 additional periods of instruction if needed.

Religious leaders will receive special instruction, adapted to the role they have as counsellors for their congregation. A correct understanding of Norwegian social conditions is vital if they are to address this task properly, so that they will not give advice that contravenes fundamental principles in the Nor­wegian society.

The Government has strengthened protection against discrimination based on ethnic background, religion etc.

In December 2004 the Government tabled a bill for a new act to strengthen protection against ethnic discrimination. Adopted by the Storting in April 2005, the act prohibits discrimination based on ethnicity, national origin, descent, skin colour, language, religion or belief. Direct and indirect discrimination on such a basis is prohibited. This ban includes harassment and instructions to discriminate or harass, and also covers acts of reprisals against anyone who has raised a discrimination complaint. The act will apply to all aspects of society, including the labour market and the housing market.

The principle of shared burden of proof is embedded in the act. The act also introduces reactions in the event of violations of the ban in the form of damages and compensation.

The Government has also tabled a bill for an act relating to a new joint system to enforce several pieces of legislation dealing with protection against discrimination, including the Discrimination Act. A new Equality and Anti-Discrimination Ombud and an Equality and Anti-Discrimination Tribunal will be established. The act was adopted by the Storting in May 2005. The Ombud shall enforce the acts, provide guidance, act as an initiator and undertake documentation activities. The Tribunal will have the authority to order that discriminatory practices be stopped or rectified, and to impose penalty fines if an injunction is not complied with.

One aim of the Discrimination Act is to promote equal rights in a wider and more long-term perspective. The acts and the new enforcement apparatus will be in place from 1 January 2006.

The Government has strengthened the dialogue with NGOs and religious communities

The Government believes that NGOs and religious communities are important players when it comes to creating legitimacy for state government. The organizations and religious communities representing immigrants must be involved in the development and implementation of measures. Participation in the civil society is also an end in itself and a prerequisite for a properly functioning democracy.

The Government has introduced supplemental benefits for persons with short residence time in Norway

The Government wishes to ensure that elderly immigrants and others with little or no pension from the national insurance scheme will receive a minimum income on the same level as the minimum pension.

The Government has proposed a new citizenship act

In January 2005 the Government tabled a bill for a new act relating to citizenship which was adopted by the Storting in June 2005. It is the wish of the Government that all those who are born in Norway or intend to live here permanently should become Norwegian nationals. Citizenship means there is a strong formal attachment to the country. Not least, citizenship gives the right and the responsibility to participate in democratic processes. In the last ten years around 10 000 persons have been granted Norwegian citizenship each year. The Government assumes that the reason for an application to become a Norwegian citizen is the wish to participate in the community and embrace the fundamental values on which our society is based.

A formal ceremony is being introduced to mark the transition to Norwegian citizenship. The aim is to emphasize the importance of the citizenship that is being granted for participation and inclusion in society, and to wish new citizens welcome. The county governors will be responsible for arranging such ceremonies. Participation in the ceremony will be voluntary.

The principle that each individual should be a national of only one country is carried forward in the new citizenship act. Thus a person applying for Norwegian citizenship must in general have been released from the citizenship she or he had previously. The principle also means that if a Norwegian citizen applies for and is granted citizenship in another country, she or he will automatically loose his or her Norwegian citizenship. Some persons may nevertheless hold dual citizenship, for example because they received more than one citizenship at birth, or because an exemption is made from the requirement to relinquish another citizenship when applying for Norwegian citizenship. Exemptions from the requirement to relinquish one's earlier citizenship are made when such a requirement is found to be impossible or unreasonable. The mother and father have equal standing when it comes to transferring Norwegian citizenship to a child, so that a child automatically becomes Norwegian at birth, regardless of whether it is the mother or the father who is Norwegian.

The requirement for seven years of residence time to become a Norwegian citizen is carried forward in the new act. A shorter residence time is required for some groups. A language requirement as a condition for Norwegian citizenship is also embedded in the new act.

The new citizenship act will at the earliest enter into force on 1 September 2006.

The Government has laid down principles and aims for inclusion and participation in Norwegian society

Our society has a diverse population with varied backgrounds, ethnicity, religion, culture, languages and lifestyles. The focus in Report No. 49 to the Storting (2003-2004) "Diversity through inclusion and participation – Responsibility and freedom" is generally on children and young persons who are descendants of immigrants, and on how we can ensure their rights and opportunities to make their own choices in their lives, without restrictions based on skin colour, cultural background or religion. In our multicultural society, two considerations must be balanced against each other: Developing a sense of community and peaceful coexistence, and also allowing people to be different and to have the right to live differently.

Greater diversity and new ways of being Norwegian will challenge both the minority and majority populations. The report to the Storting discusses how society should deal with the fact that people are different and conduct their lives differently, and which principles are important for handling new dilemmas and issues. Adaptation of public services to new users and new needs is important.

The report to the Storting outlines various aims for the first generation of immigrants and their descendants. The idea is that the social and financial drawbacks parents might have encountered because they were immigrants should not be passed on as an inheritance to their children. How the descendants will find their place in society as adults will be the most important yardstick measuring whether integration, inclusion and diversity policies are successful.

The Government has initiated work on developing quantifiable and specific goals and report procedures for what the concerned ministries must accomplish in their respective areas of responsibility for the immigrant population.

The report to the Storting was published in October 2004 and debated in parliament in May 2005.

• Short version of the Report No. 49 to the Storting (2003-2004)

The Government has decided to establish a new Directorate of Integration and diversity

The Government has decided to split up the Directorate of Immigration (UDI). From 1 January 2006 a new Directorate of Integration and Diversity will be established (Norwegian abbreviation IMDI). The purpose of establishing this Directorate is to strengthen, focus and coordinate the work to integrate and include immigrants and their descendants in Norway.

The Directorate will be given the responsibility of implementing the policies for integration and diversity, and will also serve as a resource centre for local authorities and other partners. Important duties for the Directorate will be the implementation of state policies for settling refugees and supervision of the introductory programme and the right and obligation to undergo Norwegian language instruction, and follow-up of the Report to the Storting No. 49 (2003-2004). The Directorate of Integration and Diversity will have coordination and initiator roles in relation to other state sector authorities, local authorities and county authorities. The Directorate of Integration and Diversity will have its main offices in Oslo in the same building as the UDI, with regional units in Oslo, Gjøvik, Kristiansand, Bergen, Trondheim and Narvik.

The Government is calling for speedier settlement of refugees

The speediest possible settlement in a municipality after being granted a residence or work permit is vital for individual adaptation and participation in society. Quick and successful settlement reduces the expenses of the local authorities. Today the average stay in a reception centre following a decision granting residence is a little more than seven months. This is too long. In the spring of 2005 almost 2 400 persons in reception centres had decisions granting them residence in Norway. To attain speedy and successful settlement in the municipalities the Government is calling for even closer and more binding cooperation with the local authorities and the Norwegian Association of Local and Regional Authorities (Norwegian name KS). The Government has also started an external evaluation of the settlement programme with the aim of improving efficiency.

The Government intends to combat racism and discrimination

Racism and discrimination conflict with the values on which human rights are based. In July 2002 the Government published National Plan of Action to Combat Racism and Discrimination 2002-2006. The measures in the plan especially focus on the areas of working life, public services, school/education, police/prosecuting authority/courts, documentation/­monitoring, the Internet, local communities and strengthening protection of the law against ethnic discrimination. The plan applies to discrimination against persons with immigrant backgrounds, persons with national minority backgrounds and indigenous peoples. A board has been appointed to follow up the measures in the plan.

• National Plan of Action to Combat Racism and Discrimination (2002-2006)

The Government intends to increase participation in society for children and young persons

The Government's plan of action to increase participation in society for children and young persons with immigrant backgrounds has now been implemented. The measures have focused on how to strengthen language skills and knowledge on social conditions for children and their parents, how to accomplish more parental cooperation in school, how to better follow-up unaccompanied minor asylum seekers, how to increase participation in cultural and sports activities and how to improve crime-prevention activities.

The Government wants to continue its focus on two of the areas in the plan:

Implement more measures to improve language skills for pre-school children through testing language skills in health clinics and language stimulation in day-care centres.

Strengthen the parental role through guidance of parents and better cooperation between the school and home.

The Government will combat forced marriages, female genital mutilation and trafficking in human beings

Forced marriage is illegal, and aiding and abetting a forced marriage is a punishable offence that can result in being sentenced to several years in prison. Both boys and girls experience being threatened or pressured to marry against their will. The Government intends to combat forced marriages by offering crisis assistance to young persons, introducing measures in the education sector, implementing activities to raise competence and awareness, providing information, joining in international cooperation and changing the rules and regulations. A telephone hotline and a special resource team for combating forced marriages have been established.

Female genital mutilation is prohibited, and aiding and abetting in this carries a penalty of up to eight years in prison. A number of measures, including information, awareness-raising and attitude-shaping activities have been initiated. Newly arrived immigrants are given information on the regulations prohibiting female genital mutilation and forced marriage, respectively, and they must also sign a declaration stating that they have received this information. Professional and occupational groups coming into contact with girls at risk of genital mutilation are under the obligation to prevent this from happening.

In a global perspective trafficking in human being is a comprehensive and growing problem. The Government is working to prevent, uncover and prosecute crimes connected to trafficking in women and children. Traffickers in human beings will be prosecuted and the victims given assistance and protection. These measures are embedded in a separate plan of action. In June 2005 the Government proposed 22 new targeted measures against trafficking in human beings.

• Read more about combating forced marriages and female genital mutilation
• Read more about combating trafficking in human beings

The Government has focused efforts on research and development activities

Implemented measures must be based on solid knowledge if they are to work as intended and have the best possible effect.

To increase participation in society of children and young persons with immigrant backgrounds, comprehensive development activities have been given priority with respect to unaccompanied minor refugees and to ascertaining the language skills of four-year olds. Living conditions of children with immigrant backgrounds and women who have immigrated have also been documented.

In connection with the introduction of the new introductory programme, comprehensive pilot projects have been operated for a number of years in some municipalities. Evaluations have provided knowledge about where bottlenecks can be found.

Since 1991 the Ministry of Local Government and Regional Development has cooperated with Statistics Norway to develop immigrant-related statistics. On assignment from the Ministry, Statistics Norway is to carry out a new study of living conditions in 2005-2006 for immigrants with backgrounds from ten non-western countries and their descendants. The study will examine financial situation, living conditions, employment, health, education, perceived discrimination, language, social contact and family in both Norway and the country of origin, special challenges in the labour and housing markets and citizenship.

Norway is participating in the EU's anti-discrimination programme, which supports transnational projects to strengthen the ability to counteract discrimination. Developing training programmes for interpretation students and strengthening the minority perspective in public services have been other priority areas.

In the 2005-2010 period the Government will be supporting the research programme "International Migration and Ethnic Relations" (IMER) which is administered by The Research Council of Norway.

Read more about Statistics Norway's statistics.

Read more about statistical data provided by Statistics Norway and The Directorate of Immigration in SOPEMI Norway 2004 - Trends of migration to and from Norway and the situation of immigrants in Norway