Governance through Concepts - The OECD and the Construction of “Competence” in Norwegian Education Policy

Oct 15, 2026

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This article investigates how the OECD has reshaped the meaning of competence in Norwegian education policy over the past two decades. Norwegian policy documents increasingly redefined student and teacher competence as more individual, measurable, and performance-oriented. The study also addresses the broader effects: while stronger focus on outcomes and accountability can raise performance, it remains unclear whether such competence-driven policies expand opportunities for all students or undermine social equality and education’s wider purposes.

LanguageEnglish

CategoryResearch & Report

FormatPDF

Pages22

Reading Time55 min

AccessFree to download

Abstract

Context

OECD in the Field of Education

Research Questions and Approach

Methodology and Scope

Findings and Implications

UC Berkeley Berkeley Review of Education Title Governance through concepts: The OECD and the construction of “competence” in Norwegian education policy Permalink [https://escholarship.org/uc/item/8db1z97g](https://escholarship.org/uc/item/8db1z97g) Journal Berkeley Review of Education, 4(1) ISSN 1947-5578 Author Mausethagen, Sølvi Publication Date 2013-01-01 Supplemental Material [https://escholarship.org/uc/item/8db1z97g\#supplemental](https://escholarship.org/uc/item/8db1z97g#supplemental) Peer reviewed [eScholarship.org](eScholarship.org) Powered by the California Digital Library University of California Available online at [http://escholarship.org/uc/ucbgse_bre](http://escholarship.org/uc/ucbgse_bre) Governance through Concepts: The OECD and the Construction of “Competence” in Norwegian Education Policy Sølvi Mausethagen 1 Centre for the Study of Professions, Oslo and Akershus University College of Applied Sciences, Oslo, Norway Abstract This article investigates how the Organization of Economic Cooperation and Development (OECD) has influenced a shift in the meaning of the term competence in Norwegian education policy in the past two decades. Recent Norwegian policy documents partially redefined student and teacher competence so that the concepts became more individual and performance-oriented. This departed from previous policy documents. Thus, the author argues, the OECD not only governs through numbers and comparison but also through what can be described as“governance through concepts.”Whereas evidence indicates that greater policy attention to outcomes and accountability, through policies directed at student and teacher competence, leads to increased student performance, researchers know less about whether such policies enhance opportunities for all students or whether there are reverse implications for social equality or the broader aims of education. Keywords: OECD, soft governance, national education reform, competence, Norway This article investigates how the Organization of Economic Cooperation and Development (OECD) has influenced the shift in the meaning of the term competence in Norwegian education policy in the past two decades. Broadly put, researchers typically describe how members of international organizations initiate, design, and organize processes and programs to influence domestic policymakers and their attempts to reform and transform national educational systems. The questions of how, to what extent, and with what consequences are constantly debated. Given the increase in international influences, the implications of international organizations’ influence at the national level are critical. The OECD’s influence on educational reform, especially through the Program for International Student Assessment (PISA) results, has been extensively investigated throughout the last decade (Dobbins & Martens, 2012; Grek, 2009; Hartong, 2012; Smith & Exley, 2006) . Few studies, however, have focused on specific concepts developed by the OECD or examined the role these concepts play in producing and framing new education policies. Prominent concepts are politically important, yet they are often taken for granted. 1 Correspondence concerning this article should be addressed to Sølvi Mausethagen, Pilestredet 40, 0130 Oslo, Norway. Email: [solvi.mausethagen@hioa.no](solvi.mausethagen@hioa.no). Berkeley Review of Education Vol. 4 No. 1, pp. 161-181 162 Mausethagen Drawing on empirical evidence from Norway, this article examines how the dissemination of concepts plays an important role in the OECD’s soft governance approaches. Norway is an interesting case because policymakers have recently increased the emphasis on student outcomes, new assessment and testing practices, and teacher accountability. Yet, Norway has a highly regulated education system that is predominantly public, and comprehensive schooling and social inclusion have been dominant features. Th

FAQs

How has the OECD influenced the concept of competence in Norwegian education policy?

It has contributed to a shift in how competence is defined and represented, moving toward student and teacher competence framed as more individual and performance-oriented.

Why is Norway considered an important case for studying OECD influence?

Norway has recently increased emphasis on outcomes, assessment/testing, and teacher accountability, yet it retains a highly regulated, predominantly public system with strong social inclusion.

What uncertainty does the article highlight regarding competence-focused reforms?

It questions whether these policies improve performance for all students or instead produce reverse implications for social equality and broader educational aims.

Oct 15, 2026

Upload by Ben