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6. Reflections on enhancing education and second-language learning in the Nordics

Afterword by the Nordic Network for Education for Newly Arrived Students

Liza Björck, Swedish National Agency for Education
Synne Nordmark Børstad, Ministry of Education and Research, Norway
Donata Honkowicz Bukowska, Ministry of Education and Children, Iceland
Camilla Holmberg, Swedish National Agency for Education
Fríða Bjarney Jónsdóttir, Ministry of Education and Children, Iceland
Katri Kuukka, Finnish National Agency for Education
Mari-Louise Pabsdorff, Norwegian Directorate for Education and Training
Anssi Pirttijärvi, Ministry of Education and Culture, Finland
The seminar was organised in close collaboration with the Nordic Network for Education for Newly Arrived Students, a network of country representatives from the Nordic directorates and ministries. The network was established in 2017 as a response to an increasing number of refugees in the Nordic countries. Over the years, the network has shared policies and practices regarding the inclusion and education of newly arrived students and students with immigrant backgrounds.
In connection with the webinar, the network members met in Stockholm to discuss the findings with the researchers. In this afterword, the network shares its reflections on how the quality of education in general and second-language learning, more specifically, could be enhanced in the Nordics. 

The challenge of examining language policies and programmes

First and foremost, the network would like to thank the Nordic Welfare Centre for hosting the event and the researchers for sharing their work on this highly relevant topic. High-quality research is vital for developing educational programmes that address the needs of an increasingly diverse student body. The educational systems in the Nordic countries share both similari­ties and differences. Sharing current research and insights across the Nordic countries helps realise the aim of enhancing our educational systems for the benefit of all children and students.

In recent years, the arrival of refugees from Ukraine has renewed and strengthened the interest in and the urgency of the topic. In addition to this, all Nordic countries have students with an immigrant back­ground who need support in their second-language development, learning, and social participation, even if they are not newly arrived. In 2023, when the Nordic ministers of education met in Reykjavík, they concluded that ‘[w]e must invest more in language teaching for children with a different linguistic and cultural background in the Nordic countries’   and discussed different measures and suggestions for collaboration across the Nordics. One of these is enhancing the knowledge base on successful programmes for second-language acquisition and education for students with immigrant backgrounds.
On behalf of the Nordic Welfare Centre, researcher Sabine Wollscheid carried out a research review of studies examining programmes designed to facilitate second-language acquisition in schools for students with immigrant back­ground. The overview included studies following experimental and quasi-experimental methodologies. However, such studies are rare within a Nordic context. Given the heterogenous student group, it is difficult to randomise a minority group of students into control and intervention groups, as this design also requires a certain group size (see Wollscheid in chapter 2). A lack of data on newly arrived students is also making it challenging to enhance the quality of this kind of research. Further, Wollscheid refers to Lødding et al. (2020), noting that RCTs (randomised controlled trials) challenge the principle of equality, a core value of the educational system in Nordic countries, because the intervention group is offered a programme that the control group might not receive or no longer receives. This adds an ethical problem into the mix. 
It is obvious that we need trans­disciplinary and diverse types of studies using different methodo­logi­cal approaches to gain insights into promising practices. Thus, the webinar was a way to bring together researchers in this field to share a range of studies using different methodologies and theoretical focus.

Approaches for enhancing the quality of education for newly arrived students

Newly arrived students and students with an immigrant background form a heterogeneous group in every aspect, regarding their linguistic and academic backgrounds, immigration histories, time in the new country, social and economic background, and more. In the Nordic countries, the local contexts also vary. For example, cities and rural areas may have different populations, resources, and access to key personnel and experts. Municipalities also have a lot of independence to make their own decisions. 
Educational programmes cannot easily be transferred from one local context to another. Such program­mes do not seem to be a ‘one-size-fits-all’ solution for these issues, as Nihad Bunar points out, and not a clear ‘model’ to adopt. However, there appear to be some principles regarding organisation and pedago­gi­cal practices that show promise. Leaning on the presenta­tions given at the webinar and based on their own knowledge in this field, the network would like to highlight some of these practices and their thoughts on some of the key areas to focus on going forward.

Holistic approaches

A holistic approach, also referred to as a ‘whole-school’ approach, appears to be beneficial. Within such an approach, the entire school takes responsibility for the inclusion of migrant students. A recent study in Norway by the Nordic Institute for Studies in Innovation, Research and Education (NIFU) concludes: ‘A well-considered, thorough­ly justified, and firmly anchored plan for the school, supported by the school owner, to which all staff are committed, and which aims to ensure that newly arrived students are also full members of the school community’ (NIFU, 2024, s. 157).
Inclusion takes the diversity of resources, knowledge, and identities among all students as a starting point to promote their participation and development within the school community. This means adopting a holistic approach that ensures newly arrived students are given the opportunities established in laws and regulations. It also involves securing teachers’ professional development (e.g. in second- language acquisition), providing students with access to multilingual teachers and assistants, ensuring the school has expertise in assess­ment and individualised adaption, facilitating good collaboration between different professional groups, and making sure newly arrived students have access to health services and socio-pedagogical support (NIFU, 2024, p. 157).
The Board of Education in Sweden lists four dimensions of inclusion in the research overview Integration och utbildning (integration and education). These are physical, social, pedagogical, and self-experienced. It is important that each student experiences a sense of social inclusion, motivation, and hope for the future. All four dimensions need to be involved.
Social inclusion also involves developing a culture of communi­cation within the class and school, so that children learn to communicate across languages and cultures. Teachers are responsible for creating a safe and supportive learning community and act as role models in how to communicate with the children who are learning the language of the school and society.

This also involves building on students’ resources and needs linguistically, academically, and socially. As Maria Ahlholm emphasi­sed in the webinar, the teacher must pre-plan support and employ language-aware methods, and students need support in their mother tongue to be socially included in the classroom and to develop subject learning. Without support, the student may be physically included, but still not experience inclusion.
We often say that language is a key to society, but we also need to recognise that society is a key to language. This means that society needs to give access and keys to the language. 

Pedagogical leadership

Research (NIFU, 2024; Bunar, in webinar) on promising practices for the inclusion of migrant students highlights the same factors we know from wider school development: municipalities and leaders must actively participate in and support change. The municipalities, along with the school management, have broad responsibilities for planning and facilitating. There must be a well-anchored plan, and the entire school must be responsible in accordance with their roles. 
Research (Gillett et al., 2016; Chapman & Harris, 2004; Harris et al., 2006; Harris, 2004) also indicates the following linked strategies for effective leadership in schools facing challenging circumstances: 
  • Establish a clear goal and vision to foster a culture of improvement through shared expectations and aspirations.
  • Focus strongly on teaching and learning to generate a belief that all students have the capacity to learn, in order to dispel the notion of ‘cultural deficit’.
  • Set high standards and expectations for both staff and students to strengthen belief in the school and promote academic excellence.
  • Create a positive school culture that nurtures community among staff, students, and the wider public.
  • Encourage ongoing professional development for principals and other leaders to build a responsive and collaborative learning community.
  • Apply flexible leadership to address complex challenges creatively, including empowering others to lead. 

Language learning and support

Systematically working on second-language development – developing vocabulary and concepts – is important for many students with immigrant background, not just newly arrived students. There are indications suggesting that pupils benefit when schools adopt a systematic approach to language and second-language development across subjects.
Teachers and school leaders serve as role models for communication that promotes inclusion and belonging across languages and cultures through their acts of communication and language use. All students within the school community should become partners in creating safe linguistic environments where languages are welcomed, learned, and used to generate meaning. 
A new book on teacher education for working in linguistically diverse classrooms highlights findings from studies of teacher training in the Nordic countries, which emphasise the need to develop appropriate practices regarding language learning and multicultural education.
The final chapter of the book, written by Ingrid Piller (2025), describes the necessity of shifting from a monolingual to a multilingual habitus and explains that schools must address the threefold challenge of language education: ensuring all children develop academic proficiency in the school language, learn English or another instructed language, and, for students with home languages different from the school language, they need to have opportunities to develop academic proficiency in their mother tongues. 

Increased focus on reading

Although it was not directly addressed in the webinar, the network wants to emphasise that language learning and reading are closely linked, and support for second-language learning needs to be responsive to the literacy needs of the students involved. Students with immigrant backgrounds, both those who have immigrated themselves and those born in a Nordic country with immigrant parents, are over-represented among students who perform at the lowest levels on reading tests.
In our network, we have discussed the topics of reading and second-language development. We want to emphasise that it is important to analyse the specific challenges faced by students performing at a low level to implement appropriate measures.
At the national level, we need to ask ourselves: Do general measures to improve reading skills account for the needs of language minority students? Do we also require some targeted measures?
This topic raises important discussions in several countries about the need to support language (and reading) development across all subjects and to ensure teachers have skills in second-language acquisition.
A Swedish example is the report Så minskar vi läsgapet i svensk skola (How to narrow the reading gap in Swedish schools) from Svenskt Näringsliv (Confederation of Swedish Enterprise). Another example comes from Iceland, where discussions about the education and professional development of teachers focus on improving knowledge of second-language teaching and on methods for teaching older students to read. 
Special attention should be given to how schools can support newly arrived students with refugee backgrounds, trauma experiences, and often disrupted schooling. When assessing their prior learning and addressing their educational and social needs in a trauma-sensitive manner, there is a need to combine language support with reading assistance based on the students’ linguistic and literacy backgrounds. 

Language-aware pedagogy

Many newcomers, especially those with a refugee background, have experienced interrupted schooling and trauma that must be addressed. When children arrive at school, it is necessary to explore their back­ground knowledge, prior learning, literacy and numeracy, and plan the learning accordingly. This is important for both refugee children and all children who have newly arrived in a school culture and language. 
While all students are multilingual, they need to learn to use the language of the school in  new, more abstract ways. Alongside academic language, students use foreign languages, their own mother tongues, dialects, and a constantly evolving spoken language. This challenges schools to recognise and acknowledge multilingualism and to provide space for various languages. 
In a language-aware school culture, the importance of language in teaching and all school activities is recognised. Language teaching naturally provides many opportuni­ties to make languages visible and valued. In a language-aware school, all languages studied and the students’ mother tongues are inherently present.
Language-aware working methods require collaboration among teachers. This work will benefit from well-established structures and conditions that support such collaboration. Thus, school leadership plays a key role: a language-aware school culture cannot emerge without language-aware leadership.  

Teacher competencies

The significance of skilled teachers for successful language development was emphasised during the webinar, and it is also a subject we have discussed within the network on multiple occasions.
We recognise that there is potential for development across all the Nordic countries, as well as great opportu­nities to learn from each other’s good practices. Just as there is no single method of language learning that suits all students, there is no one-size-fits-all approach to teaching. However, we can identify certain aspects of teacher education and professional development that benefit all learners.
One important area for development is teacher education, which – if we take researchers’ suggestions seriously – should also involve second-language learning and diversity competencies. Also, we recognise the need for continuous professional development in the holistic follow-up of the needs of newly arrived pupils.
There are many good examples of such professional development initiatives across the Nordic countries, and our hope is that by sharing experiences and learning from each other, we can help influence both teacher education and professional development in each country.

Some thoughts on moving forward

Schools in the Nordic countries have powerful and important missions. Schools should promote learning and encourage pupils to develop both knowledge and values. Schools should also promote students’ personal development into active, creative, competent, and responsible individuals and citizens. 
Additionally, schools should do this in collaboration with students’ families. This mission applies to all students in the school, whether they are newly arrived or not, whether they have a mother tongue other than a Nordic language or not.
During the webinar, we heard researchers discuss the benefits and challenges they see in education for newly arrived students. It has been very enlightening to learn from their expertise.
There is still a need to further enhance our knowledge base with a range of projects employing various methodologies – descriptive and qualitative studies, as well as quantitative research. With the increasing share of immigrant populations in the Nordic countries, the grounds for more studies using experimental and quasi-experimental designs and comparisons between municipalities and different programmes may become more feasible over time.
We also recognise significant potential and the necessity for researchers from transdisciplinary fields to collaborate and co-create studies that examine the trajectory of language learning from a holistic perspective.
The Nordic Network for Education for Newly Arrived Students is eager to contri­bu­te to greater sharing across the Nordic countries, facilitating gatherings and dialogue among practitioners, researchers, and policymakers. By sharing research and promising practices, we lay the groundwork for more inclusive education for all.

Key sources and recommended reading

Chapman, C., & Harris, A. (2004). Improving schools in difficult and challenging contexts: Strategies for improvement. Educational Research, 46(3), 219–228. https://doi.org/10.1080/0013188042000277296
Gillett, J., Clarke, S., & O’Donoghue, T. (2016). Leading schools facing challenging circumstances: Some insights from Western Australia. Issues in Educational Research, 26(4), 592–603.
Harris, A. (2004). Leading on the edge: Successful leadership in schools in challenging circumstances. Education Today, 60(1), 3–5.
Harris, A., Chapman, C., Muijs, D., Russ, J., & Stoll, L. (2006). Improving schools in challenging contexts: Exploring the possible. School Effectiveness and School Improvement, 17(4), 409–424. https://doi.org/10.1080/09243450600743483
Lødding, B., Kindt, M. T., Vennerød-Diesen, F. F., Randen, G. T., Grøgaard, J. B., Tahir, H., & Samuelsen, Ø. A. (2024). Vilkår for inkluderende opplæring: Sluttrapport fra prosjektet Forskning på opplæringstilbud til nyankomne elever. NIFU rapport 2024-4.
Piller, I. (2025). Changing teachers’ monolingual habitus. In A. R. Warren, J. S. Iversen, & B. Straszer (Eds.), Teacher education for working in linguistically diverse classrooms: Nordic perspectives (pp.209–214). (Current Issues in Bilingualism 5). Language Science Press. https://doi.org/10.5281/zenodo.15147416