Migration patterns have affected educational system in many countries around the world. Nowadays cultural and linguistic diversity is not a new phenomenon in European classrooms and it is one of the goals for United Nations that all learners are provided with inclusive and equitable quality education (SDG4 United Nations, 2015). A body of international studies were conducted taking into account organization of reception for migrant students, second language learning acquisition (Baker, 2011; Cummins, 2009, Garcia 2009) and traumatic experiences of refuge youth (Rutter, 2006; Lynnebakke, Pastoor & Eide, 2020).  However, it is still a challenge for many European countries to ensure education equality for newly arrived students providing inclusive practices through different models of adapted education (Garcia and Kleyn, 2016; Bunar, 2018; Bunar and Päivi, 2021).

When it comes to Norway, the main challenge in integration policy in Norway is that immigrants, especially refugees and women are without work (Kunnskapsdepartement, Regjeringens integreringsstrategi 2019–2022). Reserch show that newly arrived students of upper secondary school age is the most vulnerable group of learners when it comes to risk of underachievement and failure to complete upper secondary education (Kirkeberg, Dzamarija, Bratholmen & Strøm, 2019; IMDI, 2020).  The issue concerning educational inclusion of newly arrived students has received considerable critical discourse targeting such issues as educational policies in Norway (Hilt, 2015) and organizational models of adapted education (Hilt & Bøyum 2015). Decentralized organization of educational system in Norway gives significant autonomy to municipalities and local schools to organize educational provisions differently for newly arrived students. Rambøll Management reports that varied standards of introductory programmes  have good potentials but still lack guidelines, resources and organizational structures (Rambøll, 2016). At the same time, introductory classes have been criticized for intern organizational exclusion of newly arrived students that lead to segregation of the learners (Hilt & Bøyum 2015). When it comes to national policy regarding education of newly arrived students of 16- 24 age, it is still unclear who is responsible for the educational program on a local level, which leads to a lack of responsibility when it comes to organization of educational programs (Kunnskapsdepartement,  Regjeringens integreringsstrategi 2019–2022).

Thus, the purpose of this study is to contribute to an understanding of the education offered to immigrant and refugee youth of upper secondary school age in Norway considering the overall goal of equity through education. The study focuses on an educational provision for newly arrived learners of (16-19) age with little school background with the goal of qualifying them for entry into upper secondary education or vocational training. The paper presents a study of organizational responses to educating newly arrived learners of (16-19) age in Norway. This study describes how the set of national policy regarding education for newly arrived students with little school background is implemented on a local level and how the aspect of such organization influence students’ social and educational inclusion. The study describes and analyses how policy regarding the aim and goals of the educational program is interpreted and enacted by the key actors of policy enactment -principals, school leaders and teachers. It analyzes how these key-actors in policy enactment understand and act in relation to educational program that provides extended basis education for newly arrived students. 

The theoretical and conceptual framework of this study focuses on the work by Stephen J. Ball (Ball 1993, 1997, 2005, 2013, Ball et al. 2011a, 2011b) and his critical analyses of policy as a text and its enactment in practice.

Qualitative research design is applied in this study. First, to get a detailed picture of the educational program and how it is organized, semi- structured interviews were conducted with the two representatives from Oslo Municipal Educational Agency (Utdanningsetaten) who are responsible for organising and placing students into the training programme. Then, semi–structured interviews were conducted with three principals, three school leaders and five teachers in three different upper secondary schools that provide the educational programme in Oslo municipality. Analyses of policy documents regarding educational rights for newly arrived students are included in the study. Semantic analysis was used as analytical tool in this study.

The findings of this study will report on organizational responses to educating newly arrived students of (16-19) age. It will discuss how local interpretations of the national policy work in practice, how the key actors of policy enactment interpret legal norms and regulations and how they apply these regulations and legitimize them when organizing educational program for newly arrived students. How they justify their choices, what are the challenges and opportunities of such organization and how it influences students’ social and educational inclusion. The paper will also discuss to what degree educational practices and polices meet educational needs of newly arrived students and provide inclusive education for all.

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