Quality in Norwegian Early Childhood Education and Care: Progress, Persistent Challenges, and Recommendations for the Future

Abstract

In Norway, children aged one to five years can attend subsidized and publicly regulated Early Childhood Education and Care (ECEC) centers. These centers focus on holistic child development through play, care, and learning. Therefore, Norway should be capable of providing young children with the best possible ECEC environment, thereby laying a solid foundation for their future school success. However, Norwegian 15-year-old students score at or below the average in mathematics, reading, and science compared to students in other OECD countries, and average scores are declining OECD (PISA 2022 Results (Volume I): The state of learning and equity in education, 2023). Several factors may contribute to Norwegian students’ average or below-average school performance, e.g., pedagogical weaknesses that were present even before school, in ECEC. An OECD report from 2015 pointed out several challenges in the Norwegian ECEC quality (Early childhood education and care policy review Norway, 2015), related to factors such as structural standards, monitoring of process quality, lack of independence of inspections, lack of understanding regarding monitoring, and insufficient monitoring practices. In this paper, we present: (1) Norwegian policy initiatives implemented in response to the OECD report, and (2) Research conducted after the OECD report on the quality levels of Norwegian ECEC, along with findings from interventions designed to improve quality. Based on this, we discuss the progress since the 2015 OECD report and highlight continuing challenges and important next steps to secure high ECEC quality in Norway for all children. We find that several policy initiatives have been implemented but observed ECEC quality levels after the 2015 report are still in the medium to low range.