The Norwegian approach to school improvement focuses on decentralizing decision making to allow schools and municipalities to determine their own professional development needs. An OECD project analyzed Norway's competence development model, which provides funding for collaboration between schools and universities to address local needs. Key recommendations included refining the model's design, clarifying stakeholder engagement, taking a whole-system approach to policy coherence, and updating the implementation strategy. The decentralized model has moved from policy to action across Norway by defining networks and roles to shape professional offerings based on educator input.
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Let Schools Decide: The Norwegian approach to school improvement
1. Q&A Webinar
27 January 2021
LET SCHOOLS DECIDE:
THE NORWEGIAN APPROACH TO
SCHOOL IMPROVEMENT
OECD Directorate for Education and Skills
Implementing Education Policies
Andreas Schleicher
DIRECTOR
2. Policy
assessments
Strategic
advice
Implementation
seminars
Comparative analysis &
tools
Implementation seminars
OECD Implementing Education Policies
EDU project to develop knowledge, peer learning and country support
INTERNATIONAL LEARNING TAILORED COUNTRY WORK
Main issues:
How can education policy implementation processes be designed to ensure that policies bring
about effective educational change in schools?
What types of implementation strategies can be pursued for school improvement policies?
What kind of information/data can help policy makers understand progress with implementation
of their reforms?
Austria
2019-20
Edu
Monitoring
Estonia
2019-20
Edu
Monitoring
Ireland
2019
Sr Cycle
Review
Mexico
2018
Education
Strategy
Norway
2019-20
Competence
Development
Scotland
2019-20
Curriculum
Wales
2019-20
Curriculum
Iceland
20120-21
Education
Strategy
3. 2018 2019 2020
Start of the project
May, 2018
Stakeholder
Seminar #1
University
Network
Workshop
County
governor
Workshop
Thematic
Discussion #1
RG Meeting #1 RG Meeting #2 RG Meeting #3 RG Meeting #4 RG Meeting #5 RG Meeting #6
Stakeholder
Seminar #2
End of
the
project
Winter 2020
RG Meeting #7
The competence development model for schools:
Recommendations for the implementation strategy
Thematic
Discussion #2
Follow-up Assessment of
the implementation strategy
Strategic advice
Policy assessment
Stakeholders engagement seminars
3
OECD implementing education policies: Norway
The team: OECD Education Directorate expertise
Implementation Governance
Pierre Gouedard Rien Rouw
Beatriz Pont Claire Shewbridge
Jacqueline Frazer
A 2-year fruitful collaboration to support the implementation of the Competence
Development Model for Schools
4. 4
Why invest in teacher professional development and collaboration?
Increasing evidence on need for and
impact of teacher collective capacity
Educators’ resilience, based on TALIS 2018
Educators’ working environments are
increasingly challenging (diversity, technology,
health…)
Educators need to be prepared to develop
broader and more complex set of skills in their
students
Teachers across OECD report that
professional development based on
collaboration and collaborative approaches to
teaching is among the most impactful for them
(TALIS 2018)
5. 5
High proportion of teachers participate in professional development in
Norway, TALIS 2018
6. 0 10 20 30 40 50 60 70 80 90 100
Content of some or all subject(s) taught
General pedagogy
Pedagogy of some or all subject(s) taught
Classroom practice in some or all subject(s) taught
Student behaviour and classroom management
Monitoring students’ development and learning
Teaching cross-curricular skills
Teaching in a mixed ability setting
Use of ICT for teaching
Teaching in a multicultural or multilingual setting
Element was included in formal education or training Well or "very well" prepared for the element
%
Percentage of teachers for whom… / who felt…, TALIS 2018
Fig I.4.4
..but teachers do not feel prepared in some areas, TALIS 2018
7. 7
Teachers find professional development effective when…, TALIS 2018
0
10
20
30
40
50
60
70
80
90
It was adapted to the teacher's
personal development needs
It appropriately focused on content
needed to teach the teacher's
subjects
It provided opportunities for
collaborative learning
It involved most colleagues from
the teacher's school
%
Norway OECD average-31 TALIS average-48
8. 8
To respond, Norway created a decentralized model for competence
development for schools (2018)
The model is an innovative way to promote collaborative
professional development at the local level by funding collaboration
between schools and universities.
It aims to:
provide freedom of action and empower systematic school improvement
from the local level for schools, teachers and local authorities
flip the system from government steering to leading from the local level
through networks to deliver competence (municipalities, universities,
county governors)
9. 9
We look at the model from an education change perspective
• The policy is driven by a vision, has
identified relevant policy tools, and are
resourced for the policy to be sustainable.
Smart policy
design
• Communication targets different groups of
stakeholders, who are actively engaged
throughout the whole process, and have
clear roles transparent to all.
Inclusive
stakeholder
engagement
• The policy is adapted to the governance;
there is coherence with other policies and
there is capacity to deliver the policy in
schools.
Conducive context
Coherent and
actionable
implementation
strategy
(how, who, when,
measure)
10. 10
The model has moved from policy to action
Decentralised scheme for school
level professional development
Issues: Model is still complicated in objectives and it
seems challenging for it to be systematised across
Norway.
Professional development based on local needs
is being delivered throughout Norway using
financial incentives since 2019.
Refined model’s objectives and coverage:
Consolidated the policy approach:
Clarified resources with new legal framework
associated to funding
11. 11
Recommendations
Continue refining the design of the model
• Schools, municipalities, and universities can intensify their efforts in forging
partnerships.
• Further alignment of the co-operation forum outcomes with local needs by using
existing networks to elaborate concrete professional development projects.
Hone the objectives of the model
• Consider developing collaboration-contingent grants that reward outstanding
partnerships between universities and schools.
• The Directorate and county governors: strengthen the evidence base and
develop indicator systems to understand model updake and impact.
Review the incentives and follow-up scheme
• Following new grants regulation, review potential adverse effects of co-funding
on participation. And on how funding agreements are made.
Further clarify financial resources
12. 12
Stakeholder engagement has been clarified
Issues: Many participants and expectations. Still
unclear how to engage teachers and students in
shaping PD needs .Communicating is
challenging in decentralised governance.
Model involves many different people in
coordinating networks to define PD needs
and shape offer.
There is greater clarity in roles, responsibilities
and engagement
First steps taken toward building an
accountability framework to follow up on
progress
Communication strategy developed by
Directorate.
Competence
Development
Directorate
County
Governors
Universities
School
owners
School
leaders
Teachers
13. 13
Recommendations
Consider stakeholders engagement and roles
• Municipalities are primarily responsible, but county governors and the Directorate can
assure and actively monitor that teachers’ and students’ voices are heard and their needs
are met.
Engaging pivotal stakeholders with the model
• A coherent framework of quality dimensions and indicators, collaboratively developed,
could support monitoring.
• Provide validated instruments to counties, municipalities and schools to foster the quality
and efficiency of local measurement practices, and sharing of practices.
Fostering transparency with quality dimensions and indicators
• Strengthen the communication strategy with a narrative that embeds the model in a vision
for education that speaks to a variety of stakeholders, particularly teachers and school
leaders.
• Establish a group of dedicated representative stakeholders to convey coherent messages
on the model.
Enhance effective communication
14. 14
Issues: For the model to become a more
systemic approach to PD, review how it is
integrated in other policies.
Model has searched for greater coherence
within its policy context. Better coordination by creating a county
governors network to have national coherence and
adapt to national needs.
Teacher professional development: Within variety
of provision the model has been aligned to existing
individual initiatives.
Policy alignment: new policies integrated into the
model (inclusion, curriculum), which is becoming
systemic.
Compete
nce
Develop
ment
Model
Quality
assuranc
e
Teacher
compete
nce
Curriculu
m reform
Inclusive
educatio
n
ECEC
VET
The model has been considered from a whole-of-system
perspective
15. 15
Recommendations
Integrate the model from a whole-of-system approach
• County governors network could help address the varying capacity among municipalities.
Strengthen co-ordination between county governors and the Directorate
• Assess whether the university network is the right platform for this
• Consider coherence with individual professional development
Think strategically about system-wide provision of professional development
• Provide guidance on how the model articulates with existing or new policies,
• Align the model with the Norwegian evaluation and assessment framework
Set the model in a broader policy context
16. 16
Updating the implementation strategy with next steps
From policy to action: communication and coherence
What kind of strategy for decentralized
context?
How to share local practices across
Norway?
Issues to consider:
Originally published in White Paper n.21
“Desire to learn - early intervention and quality in
schools” (2017),
A loose implementation strategy: shaped
through collective sense making in
exchanges with the Directorate, the County
Governors, collaboration fora, municipalities,
universities and other key stakeholders.
Moved from policy to action at all levels:
Municipalities have given their own shape
and meaning to the strategy; Directorate has
engaged across the country; a website now
has all the required information on model.
17. 17
Recommendations
Updating the implementation strategy: next steps
• Update the strategy with the new components and progress made, detailing what will be done
next, when, by whom and how.
• Undertake systematic intelligence gathering: what are the indicators measuring progress and
the available resources for engaging with the model? Organise stakeholders’ feedback
Update the strategy
• Communicate on progress, on good practices in different municipalities, and promote
exchanges and peer learning.
Consolidate the communication strategy
• What will be the longer term incentives and actions that can be continued once the model is
fully implemented across the country?
Detail the next steps of the strategy
18. 18
Next steps: How to ensure the model accomplishes professional
development based on local needs consistently across Norway?
• Hone the objectives, review the incentives
and follow up scheme and ensure an
effective funding system to ensure provision
across Norway
Refine the design
of the model
• Develop a narrative and establish a group of
stakeholders to share a coherent message.
Define a framework of quality indicators that
allow measure progress and engage
teachers and students more proactively.
Engage
stakeholders with
communication and
transparency
• Consolidate coordination approaches with
County Governors, coherence of professional
learning provision, and ensure policy
alignment around the model
Invest in a whole-
of-system approach
Review and update
the strategy
(how, who, when,
measure)
A 2-year fruitful collaboration to support the implementation of the Competence Development Model for Schools in Norway
The project has been a fruitful collaboration between OECD and Norway, with a specific OECD team and a Norwegian Reference Group with participation from main education stakeholders.
To support the implementation of the model, OECD has undertaken a combination of :
A policy assessment
Continuous strategic advice
Stakeholder engagement events
Why change?
Educators’ working environments are increasingly challenging (diversity, technology, health…)
Educators need to be prepared to develop broader and more complex set of skills in their students
Teachers across OECD report that professional development based on collaboration and collaborative approaches to teaching is among the most impactful for them (TALIS 2018)
We have seen that teachers largely participate in PD in Norway.
But somehow, teachers still fell not prepared enough in some domains as teaching cross-curricular skills or teaching in a mixed-ability setting.
Based on their training experience, teachers tell us in TALIS some features of effective PD.
In Norway, more than 2/3 of teachers value PD tailored to their needs and providing opportunities for collaborative learning.
Almost half of the teachers also value when PD involve most colleague in the school.
The new model for collaborative PD (introduced next slide) is an attempt to systematise these elements of effective PD: by introducing a bottom-up approach to PD from the school level, it ambitions to initiate school-based PD targeting the precise needs of the school.
The model is focused on improving the quality of education by promoting collaborative professional development: Simply described, it provides locally based professional development opportunities by funding collaboration between schools and universities.
It aims to:
provide freedom of action and empower systematic school improvement from the local level for schools, teachers and local authorities
flip the system from government steering to leading from the local level through networks to deliver competence (municipalities, universities, county governors)
We at the OECD supported the shaping and implementation of the model based on our framework. It considers that the policy and process of education change need to be considered coherently for success.
This implies:
Smart policy design: the policy has a clear vision and indicators to measure progress towards it. It has clear policy actions to make it happen, and has funding for it to be sustainable.
Education stakeholders are involved in shaping it from early stages, there are clear processes and roles and responsibilities.
There is coherence around the policy in terms of the institutions, other policies around it and there is capacity to deliver by those in schools.
All the policies and roles are defined in a concrete an actionable strategy: who needs to be doing what, how, when and how progress is measured.
We analysed the Norwegian model through this lense to understand its progress it to reach its objectives: To improve competence at the school and local level. I present these next.
The model is an approach to have teacher professional development based on local needs. It is now being delivered throughout Norway using financial incentives since 2019.
The technical way it works (figure): Cooperation Forums at regional level receive requests by municipalities on specific professional development funding needs. In the Forums, with universities, they decide which courses or professional development to organise and provide the funding. County Governors manage the funding requests.
In moving from the initial policy document to action, Norway sharpened the policy:
Refined model’s objectives and coverage: Initial blurry vision was clarified, and broadened its scope to cover special needs and ECEC.
Consolidated the policy approach: municipalities get financial incentives for school based PD by universities. Follow up scheme for municipalities with low performance indicators. County Governors to coordinate and follow up process.
Clarified resources: new legal framework associated with funding of the model. 30% co-financing by municipalities. Allocation of funds between municipalities and universities.
But for the model to work systematically across the country, there are issues to consider: it is complicated, lack of clarity in decision making structures and processes, weak understanding of what quality outcomes are and how to measure its impact.
For the model to work systematically across the country, the design of the model can be continually reviewed:
Hone the objectives of the model
Schools, municipalities, and universities need to intensify their efforts in forging partnerships.
To align co-operation forum outcomes with local needs, schools and universities should build on existing networks to elaborate collectively concrete professional development projects to submit at the forum.
Review the incentives and follow-up scheme
The Directorate can consider developing collaboration-contingent grants that would reward outstanding partnerships to align the interests of universities and schools.
The Directorate and county governors need to engage in a dialogue to strengthen the evidence base system-wide and address some of the mechanical and arbitrary cut-off issues that are perennial challenges for indicator systems.
Further clarify financial resources
In light of the new grants regulation, the Directorate can follow-up with county governors to ensure there is no adverse effect of co-funding on participation, and municipalities and universities manage to reach an agreement on the funding distribution in co-operation forums.
The model is shaped by the actions of different groups who are involved in defining professional learning needs, negotiating PD and funding universities to deliver it aligned to school needs.
In moving from the initial policy document to action, the way people were involved with the model has become more clear:
Roles, responsibilities and engagement: More clarity in roles as model evolves. Awareness of need to engage teachers and students at the local level to ensure needs are met.
First steps toward building an accountability framework: brainstorms on quality dimensions and indicators focused on hard-to-measure dimensions (e.g. mindsets); many sources already available.
Communication: shared understanding; communication strategy currently developed by Directorate.
But for the model to work there are issues to consider:
How can teachers and students be more involved in shaping PD demand?
What does quality mean in the model? What data to measure it?
Consistency in communication on model when it is decentralized is challenging.
For the model to succeed, how many different people are involved needs to be clear, as well as impact on actual teacher professional development and ultimately on student learning.
Engaging pivotal stakeholders with the model
Municipalities are primarily responsible, but there is also a role for county governors and the Directorate to assure and actively monitor that teachers’ and students’ voices are heard and their needs are met.
Fostering transparency with quality dimensions and indicators
A coherent framework of quality dimensions and indicators, collaboratively developed, could support monitoring and accountability at all levels: school, municipality, county and country.
Measuring progress and impact starts at the local level. Provide validated instruments to counties, municipalities and schools will foster the quality and efficiency of local measurement practices, as well as facilitate comparisons and mutual learning between municipalities and counties.
Enhancing effective communication
Strengthen the communication strategy with a narrative that embeds the model in a vision for education that speaks to a variety of stakeholders, particularly teachers and school leaders.
Peer-to-peer communication is an important source of credibility and trust. Establish a group of dedicated representative stakeholders to convey coherent messages on the model to support its further development.
While the model was initially focused on local level needs, it was not integrated into other policies.
In moving from the initial policy document to action, the model has searched for greater coherence within its policy context:
Better coordination by creating a county governors network to have national coherence and adapt to national needs.
Teacher professional development: Within variety of provision the model has been aligned to existing individual initiatives.
Policy alignment: new policies integrated into the model (inclusion, curriculum), which is becoming systemic.
But for the model to become a more systemic approach to PD there are issues to consider:
Is it well aligned to the evaluation and assessment framework? How much is it a priority among teachers PD activities? Is there capacity and leadership to effectively recognise needs and ensure provision?
Integrate the model from a whole-of-system approach
Strengthen co-ordination between county governors and the Directorate
With the model in its operational phase, the county governors network could help address varying capacity among municipalities by, for instance, finding synergies between existing municipal networks used in the model and other networks.
Thinking strategically about system-wide provision of professional development
There is a need to focus on the system-wide provision of professional development. The Directorate should assess whether the university network is the right platform and how to include individual continuous professional development programmes.
Setting the model in a broader policy context
Guidance is required on how the model articulates with existing or new policies, such as and the curriculum reform.
Align the model with the Norwegian evaluation and assessment framework, which is still pending.
The model was originally communicated in a White Paper n.21 “Desire to learn - early intervention and quality in schools” (2017), without an implementation strategy:
It was shaped by stakeholders involved through collective sense making in exchanges with the Directorate, the County Governors, collaboration fora, municipalities, universities and other key education stakeholders.
It has moved from policy to action at local level: Municipalities have given their own shape and meaning to the strategy; information on actions and practices have taken place through discussions, communication and engagement of the Directorate across the country; a website is now ready.
But there are issues to consider for the consolidation and widening of the strategy:
What kind of strategy for decentralized context?
How to share local practices across Norway?
While there is now a more coherent picture of the model and how to engage, it will be important to consider next steps for the implementation of the model:
Update the strategy
Update the strategy with the new components and progress made, detailing what will be done next, when, by whom and how.
Undertake systematic intelligence gathering: what are the indicators measuring progress and the available resources for engaging with the model? Organise stakeholders’ feedback
Consolidate the communication strategy
Communicate on progress, on good practices in different municipalities, and promote exchanges and peer learning.
Detail the next steps of the strategy
What will be the longer term incentives and actions that can be continued once the model is fully implemented across the country?
To bring it all together, we have seen much progress with this innovative and complex policy to support school improvement across the country in a decentralised context. We have collaborated with Norway behind the scenes to move it from a policy document (White Paper n. 21) into an actual policy on the ground.
We published a report with the recommendations we presented today. We thank all of those involved in the work who were so engaged from Norway.
Now we will hear from Hegge Nilsen on how they have actually progressed with it and what they plan for the future to consolidate this approach to local competence development and school improvement.
Refine the design of the model
Hone the objectives, review the incentives and follow up scheme and ensure an effective funding system to ensure provision across Norway
Engage stakeholders with communication and transparency
Develop a narrative and establish a group of stakeholders to share a coherent message. Define a framework of quality indicators that allow measure progress and engage teachers and students more proactively.
Invest in a whole-of-system approach
Consolidate coordination approaches with County Governors, coherence of professional learning provision, and ensure policy alignment around the model