Governance model and responsible actors
The Ministry of Labour and Social Inclusion is responsible for integration policies and has a coordinating role between other ministries and sectors. It oversees refugee resettlement, the introduction programme, language training, and issues related to work, welfare, inclusion, and anti-discrimination. The ministry is also responsible for grants for integration measures, support for volunteer organisations working on integration and diversity, translator services in the public sector, preventing negative social control, honour-related violence, and combating racism and discrimination.
Key state directorates that implement the policies of the ministry include the Directorate of Integration and Diversity (IMDi), which is responsible for settling refugees in municipalities and coordinating integration measures. IMDi’s mandate is to promote the active participation of immigrants in working and civic life. The Norwegian Directorate for Higher Education and Skills (HK-dir) has the overall pedagogical responsibility for teaching Norwegian language and social studies to adult immigrants (Arbeids- og inkluderingsdepartementet, 2024a). HK-dir also has the overall responsibility for career guidance for refugees, which is conducted by the counties.
Immigration policies are the responsibility of the Ministry of Justice and Public Security. It is in charge of the registration, reception, and housing of asylum seekers, as well as the processing of immigration and asylum applications. The key state directorate under the ministry is the Directorate of Immigration (UDI), which implements immigration and asylum policy. Its main tasks include processing applications for residence permits under the Immigration Act and the Citizenship Act, managing asylum seeker reception centres, and overseeing assisted return efforts. This directorate also manages the operational responsibility for housing and initial assessment in reception centres, and processing asylum applications. Another directorate under the ministry is the Police Immigration Service that handles the registration and identification of immigrants and asylum seekers (Arbeids- og inkluderingsdepartementet, 2024a).
Municipalities are responsible for offering refugees and immigrants introduction programmes and other public services such as healthcare, adult and primary education, and child welfare services (Arbeids- og inkluderingsdepartementet, 2024a). It is voluntary for municipalities to settle refugees. The IMDi and municipalities jointly decide where refugees are settled (Regjeringen, 2024). The task of following up refugees in a municipality is typically handled by a “refugee service/office,” a Norwegian Labour and Welfare Administration (NAV), or an adult education centre (Regjeringen, 2025).
The Norwegian Labour and Welfare Administration offices deliver both state and municipal labour and welfare services to users. In many municipalities, NAV is responsible for refugee services, the provision of social assistance and benefits, and supporting refugees’ integration into the labour market. NAV also assists municipalities in the planning and implementation of introduction programmes (Regjeringen, 2025).
County Municipalities (fylkeskommuner) are responsible for regional coordination of integration work and managing grants for inclusion and diversity. Since 2021, they have held formal responsibilities under the Integration Act, including recommending refugee settlement numbers, providing career guidance for introduction programme participants, and ensuring Norwegian and social studies training for those in full-time upper secondary education (Arbeids- og inkluderingsdepartementet, 2024a; Regjeringen, 2025).
County Governors represent the state in the county and are responsible for following up on decisions, goals, and guidelines from the Norwegian Parliament and the government. They conduct annual supervision of municipalities’ compliance with integration regulations. Since autumn 2022, they have also been tasked with guiding and assisting municipalities with the temporary regulations for displaced persons from Ukraine under the Integration Act (Arbeids- og inkluderingsdepartementet, 2024a).
Civil society and NGOs also play key roles in integration efforts, supported by government grants administered by the Directorate of Integration and Diversity.
Current national integration policies: goals and objectives
In 2022–2024, Norway introduced temporary changes to its migration policies to balance humanitarian considerations with domestic priorities. In response to the high influx of refugees from Ukraine, the government adopted more restrictive measures and placed greater emphasis on work-oriented introduction programmes (Regjeringen, 2025). The White Paper Meld. St. 17 (2023–2024) On integration policy: setting expectations and providing support outlines a more targeted approach to integration, focusing on labour market inclusion, community building, equal opportunities, and access to language training for both refugees and labour immigrants (Arbeids- og inkluderingsdepartementet, 2024a).
The Norwegian government’s integration policy, as outlined in Hurdalsplattformen, aims to increase labour market participation, strengthen local communities, promote equality, and combat negative social control (Statsministerens kontor, 2021). It emphasises faster case processing and balancing support with clear expectations: adults granted residence are expected to contribute to society quickly on equal terms with others (Arbeids- og inkluderingsdepartementet, 2024a).
In 2023, Norway also strengthened its return policies, prioritising voluntary returns for rejected applicants and streamlining forced returns through enhanced co-operation with countries of origin (Arbeids- og inkluderingsdepartementet, 2024a).
The recent amendments to the Integration Act, approved by the Storting on 20 June 2025, aim to strengthen the focus on employment and formal education in the introduction programme while simplifying the regulatory framework. Key changes include expanding the eligible age group from 55 to 60 years, extending the programme duration for participants pursuing upper secondary education, and introducing minimum requirements for employment-oriented activities. The amendments also clarify municipal responsibilities for coordinating programme elements and introduce oversight of county-level duties under the law (Arbeids- og inkluderingsdepartementet, 2025). Most of the amendments will take effect from January 2026.
Protection seekers from Ukraine
Norway is not legally bound by the Temporary Protection Directive, but it has chosen to implement a system of temporary collective protection for displaced persons from Ukraine that largely mirrors the EU directive. This was done by triggering the use of section 34 of the Immigration Act in March 2022. The residence permit granted through this scheme does not lead to permanent residence but provides the right to family reunification and to work (Regjeringen, 2025). Initially granted for one year with extensions up to three years, the maximum duration was extended to five years in November 2024, following a government proposal and cross-party support (Hernes et al., 2024). The scheme is currently valid until 1 July 2026.
Displaced persons from Ukraine granted temporary collective protection have the right to reside in Norway for up to five years, are permitted to work and, though not obliged, can participate in the introduction programme, including Norwegian language and social studies training. They are also eligible for related financial support, as well as access to social and healthcare services. In addition, they qualify for public settlement assistance, with an average waiting time of less than three months from the approval of their residence permit to municipal settlement, as of September 2024 (Regjeringen, 2025).
Stricter rules for Ukrainian refugees have been introduced recently, including restrictions on travel back to Ukraine and exclusions for dual citizens from the collective protection scheme (Tronstad et al., 2025). In October 2024, Norway designated some areas in western Ukraine as ‘safe’, making residents from those regions ineligible for protection in Norway (Arbeids- og inkluderingsdepartementet, 2024a).
Integration or establishment programmes
The introduction programme is a full-time, individually tailored measure aimed at helping newly arrived immigrants gain skills that enhance their opportunities for employment, social participation, and financial independence. Its core components include Norwegian language and social studies training, along with activities that prepare participants for further education or entry into the workforce (Arbeids- og inkluderingsdepartementet, 2025). All participants must take an empowerment course, and parents with children under 18 must attend a parental guidance course (Kunnskapsdepartementet, 2020).
Eligible individuals have both the right and the obligation to participate, and municipalities must offer the programme. This applies to the first settlement municipality. Organisation of the introduction programme is not legally regulated, allowing municipalities flexibility and resulting in significant variation in how integration is followed up (Kunnskapsdepartementet, 2020).
The target group consists of persons between 18 and 60 who have been granted asylum or resettlement as refugees, received a residence permit on humanitarian grounds, or reunited with these groups through family reunification. Additionally, the target group includes individuals who, following the breakdown of a marriage or cohabitation, have been granted a residence permit on an independent basis due to abuse in the marriage or cohabitation (as from 1 July 2011).
The Integration Act (2021) tailors the introduction programme to participants’ backgrounds and individual goals. The programme can last from 3 months to 4 years, depending on education and experience. Those with upper secondary education typically follow a shorter 3–6-month programme, extendable up to one year, aimed at preparing them for higher education or the labour market (Kunnskapsdepartementet, 2020).
As mentioned above, the recent amendments to the Integration Act, approved by the Storting on 20 June 2025, aim to strengthen the focus on employment and formal education in the introduction programme while simplifying the regulatory framework. Key changes include expanding the eligible age group from 55 to 60 years, extending the programme duration for participants pursuing upper secondary education, and introducing minimum requirements for employment-oriented activities. The amendments also clarify municipal responsibilities for coordinating programme elements and introduce oversight of county-level duties under the law (Arbeids- og inkluderingsdepartementet, 2025). Most of the amendments will take effect from January 2026.
From July 2024, participants aiming for work are required to spend at least 15 hours per week on work-related activities after their first three months in the programme (Arbeids- og inkluderingsdepartementet, 2024c). This requirement is now being implemented in the ordinary regulations (Arbeids- og inkluderingsdepartementet, 2025).
Refugees from Ukraine receive integration grants covering language training and the introduction programme. They have the right, but not the obligation, to participate (Tyldum et al., 2024). Some adjustments have been made to the programme for refugees from Ukraine. For instance, they have no right to participate in social studies training (Arbeids- og inkluderingsdepartementet, 2025). Initially, part-time participation in the programme was possible, but from June 2024, this became limited to cases where municipalities face capacity issues.
Language training
Under the Integration Act, municipalities must provide Norwegian language training. This right is separate from the Introduction Programme, and those in short programmes often still have a right to language training after finishing the programme (Kunnskapsdepartementet, 2020). The goal is for immigrants to attain sufficient Norwegian skills to enter the workforce and engage in society. Language skills are a requirement for permanent residence and Norwegian citizenship, regardless of country of origin (Tronstad et al., 2025).
The target group includes newly arrived adult immigrants (aged 18–67) with residence permits that can lead to permanent residency. This includes family members of immigrants, as well as of Norwegian and Nordic nationals. Third-country labour immigrants eligible for permanent residence are required to complete 300 hours of training at their own expense. Individuals from EEA/EFTA countries are not covered by the Integration Act and are neither entitled nor obliged to participate (Tronstad et al., 2025).
Those with upper secondary or higher education are entitled to up to 18 months of language training and must complete 75 hours of social studies within one year. Individuals with temporary collective protection are entitled to 12 months of training, with a possible 6-month extension, depending on municipal capacity (Kunnskapsdepartementet, 2020).
In 2024, a national system for digital Norwegian language training was launched by the Directorate for Higher Education and Skills to supplement regular municipal language training, particularly in municipalities facing capacity or competence challenges. The programme aims to increase the capacity and flexibility of local language services and is available to adult immigrants entitled to training under Chapters 6 or 6A of the Integration Act (HK-dir, 2024).
Settlement process
Most refugees, including those under temporary collective protection, and those granted residence on humanitarian grounds or special ties to Norway, stay in reception centres until they receive protection and a residence permit. Norway’s reception system for asylum seekers also includes the AMOT scheme, allowing municipalities to voluntarily take over the responsibility of providing accommodation and follow-up for asylum seekers. For this, they receive a financial grant in return. Normally, asylum seekers lose access to free housing and allowances if they choose to live privately, but AMOT is an exception, allowing them to live outside reception centres without losing financial support.
In addition, to handle the large influx of Ukrainian refugees, a temporary MAMOT scheme extended this model to persons with temporary collective protection. Abolished in February 2024, it enabled Ukrainians to live in private housing within municipalities, often with family or networks, while still receiving public assistance (Regjeringen, 2025).
After receiving a residence permit and a protection status, individuals become eligible for public settlement through the Directorate of Integration and Diversity (IMDi). Resettlement with public assistance for refugees is neither a statutory right nor an obligation; municipalities choose whether to participate or not. Resettlement occurs through agreement between the IMDi and the municipality, and most refugees are placed via such agreements. Refugees receive only one settlement offer, which may be in any municipality. Participating municipalities receive state grants to support resettlement. Access to the Introduction Programme and related benefits requires a formal settlement (Arbeids- og inkluderingsdepartementet, 2024a; Regjeringen, 2025). Those who choose to self-settle lose the right to integration services and financial support.
Since 2015, the system also allows ‘agreed self-settlement’, enabling refugees to find their own housing. However, to retain access to financial support and the Introduction Programme, they must formally apply for settlement in the municipality. This form of settlement has increased, especially following the arrival of Ukrainian refugees (Hernes et al., 2024).
Social assistance and financial support
In Norway, asylum seekers receive a basic allowance during the application process to cover essential needs while living in reception centres. The amount varies based on age, family situation, and whether meals are provided (Hernes et al., 2024).
Once protection has been granted and the asylum seekers are formally settled in a municipality, financial support is tied to participation in the Introduction Programme. Participants receive an introduction benefit (taxable), which is reduced for unexcused absences. The amount of the benefit is equivalent to twice the National Insurance basic amount per year (Arbeids- og inkluderingsdepartementet, 2024a). In 2024, this was NOK 20,666 per month (NOK 248,056 annually), with participants under 25 receiving two-thirds of this amount (Ministry of Labour and Social Inclusion, 2024).
After the introduction programme, those eligible may apply for means-tested social assistance, which varies by municipality and is based on a family’s overall situation (Arbeids- og inkluderingsdepartementet, 2024a).
In 2023, the government increased the asylum allowance by 50% for all protection seekers. However, following a surge in arrivals from Ukraine in late 2023, new regulations were introduced to reduce financial benefits, aiming to make Norway less attractive to Ukrainian refugees. Additional restrictions came into effect in June 2024 after a public consultation (Arbeids- og inkluderingsdepartementet, 2024b).
Both asylum seekers and those with residence permits have equal access to healthcare, on a par with Norwegian citizens.
Healthcare and schooling
Children who turn one by the end of November have the right to attend kindergarten, provided they have a permanent residence permit and a registered address in a municipality. Children of asylum seekers do not have this right until their application is approved and the family is formally settled (Tronstad et al., 2025).
According to the Education Act, all children above the age of six are required to attend primary and lower secondary school when the child is expected to stay in Norway for more than three months, regardless of legal status (Kunnskapsdepartementet, 2023).