Over the last five years the use of special needs education (SNE) based on individual decision in Norwegian primary and lower secondary education has increased dramatically, from 5.5 % - 8.5 % of the total student population.  This situation marks a break with a decade of stability in special needs education, at about 5.5-6.0 %. This sudden explosion in special needs education coincides with the introduction of a major school reform. The Knowledge Promotion introduces changes in governance and in substance, structure and organization both at compulsory level and at the upper secondary education and training.

This paper reports on results from a research study, studying “Why does the use of SNE increase in Norwegian comprehensive education (primary, lower and upper secondary education)”? The research questions are: (i) Why does the use of SNE education increase in municipalities and counties, and what are possible causes as described by key actors in the comprehensive school system?  (ii) What dilemmas do these actors experience? The purpose of the study is to gain insight and understanding of causes and dilemmas regarding SNE, experienced by the key actors in the school system. The research focus is on how the school sector explains the rise in SNE.

The empirical analysis indicates that actors in the school system explains the increased use of SNE with reference to three main issues; increased concentration on student’s learning outcome, increased focus on diagnostic practices and students’ rights, and changes in the social conditions and childhood environment. At the same time, there are significant differences in how these issues affect the use of SNE in various communities and counties. Analysis of contextual conditions regarding small/large municipality/county and rural/urban areas can only explain some of this variation.    

On this basis the following research question is formulated: How can similarities and differences across municipalities and counties concerning use of SNE be explained and understood?  

The theoretical framework of the study draws on several resources: Historical accounts of the use of SNE in Norway, the political and pedagogical development of inclusive education in Norway, and finally the study draws on an outline of inevitable dilemmas in special needs education.

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