Elisabeth Fosse

Norwegian Public Health Policy: Revitalization of the Social Democratic Welfare State?:

Norway is part of the so-called social democratic welfare state model, which is characterized by its emphasis on solidarity and redistribution among social groups. The concepts of upstream and downstream policy measures may be useful to characterize different approaches to public health policies: upstream measures would be structural measures, in line with the social democratic welfare state model, while downstream measures would be more targeted at individuals or groups at some sort of risk. The aim of this article is to analyze national policies in Norway and how these may be characterized in terms of upstream and downstream factors. Health promotion and public health policies have been high on the Norwegian political agenda for two decades. However, the national policy emphasis has shifted between strategies aimed at individuals and structural strategies—that is, between downstream and upstream measures. Until 2003, policies included mainly downstream measures, but since then a policy shift has taken place and current policy includes an emphasis on upstream measures. This policy was strengthened after a left-wing coalition came into government in 2005. It may be argued that the present policy represents a revitalization of universal and structural measures, in line with the social democratic welfare state model.

Reducing social inequities in health in Norway: Concerted action at state and local levels?

Norwegian national policies have been distinguished by their focus on equity, contributing to comprehensive policies to reduce the social inequities in health (SIH). The newly adopted Public health act, which aims at reducing the SIH, endorses these acknowledgements while highlighting the importance of municipalities as the key actors in public health. Municipal obligations include inter-sectoral policies for health, health impact assessments (HIA), and the development of local health overviews. Against the background of a system of local autonomy in Norway, this article illuminates whether, and how, municipal public health policies reflect national priorities. Our data are based on one qualitative study, combining document content analysis and expert interviews conducted in 2011, and one quantitative questionnaire sent to municipal chief administrative officers in 2011. Our findings indicate a divide between national and municipal public health strategies. Many municipalities focus on life-style and health-care related measures. Only few municipalities acknowledge the social determinants of health and have implemented HIA and health overviews. Arguing for the importance of concerted multi-level action to reduce the SIH, we need to better understand the gap between national and municipal approaches. We thus suggest further research to illuminate the challenges and success factors faced at local levels.

Are equity aspects communicated in Nordic public health documents

Aims: To explore if the term equity was applied and how measures for addressing social inequalities in health and reducing inequity were communicated in selected Nordic documents concerning public health. Methods: Documents from Denmark, Finland, Norway, and Sweden were collected and analysed by Nordic authors. Data included material from websites of ministries and authorities responsible for public health issues, with primary focus on steering documents, action programmes, and reports from 2001 until spring 2013. Results: Most strategies applied in Danish, Finnish, and Swedish documents focused on the population in general but paid special attention to vulnerable groups. The latest Danish and Finnish documents communicate a clearer commitment to address social inequalities in health. They emphasise the social gradient and the need to address the social determinants in order to improve the position of disadvantaged groups. Norwegian authorities have paid increasing attention to inequity/social inequalities in health and initiated a new law in 2012 which aims to address the social gradient in a more clear way than seen elsewhere in the Nordic countries. Conclusions: In the Nordic countries, redistribution by means of universal welfare policies is historically viewed as a vital mechanism to improve the situation of vulnerable groups and level the social gradient. To establish the concept of equity as a strong concern and a core value within health promotion, it is important to be aware how policies can contribute to enable reduction of social health differences.

Different Welfare States—Different Policies? An Analysis of the Substance of National Health Promotion Policies in Three European Countries:

This study examines healthy public policy development in three European countries representing different welfare regimes: England representing the liberal model; Norway, the social democratic model; and the Netherlands, the corporatist model. National policy documents were used for the analysis. In England and Norway, health promotion has a prominent place and there is a political focus on the broader determinants of health. However, while the Norwegian policies have an explicit focus on the social gradient, the English policies have a much clearer focus on disadvantaged groups and geographic areas. In the Netherlands, the main focus is on disease prevention and risk behaviors. In the Netherlands and England there is a strong focus on the free will of the population in changing unhealthy lifestyles. By analyzing the different policies in the light of Esping-Andersens typology of welfare state regimes, it is possible to better understand the differences among the countries. While all types of regimes seem willing to develop targeted measures, the social democratic regime seems the most willing to also develop structural measures addressing the wider social determinants of health.

The concept of ‘‘equity’’ in health-promotion articles by Nordic authors - A matter of some confusion and misconception:

Aims: This paper focuses on equity in health, one of the key principles of the Ottawa Charter. It aims at analysing and discussing how the concept was defined, applied, and integrated in health-promotion articles by authors with a Nordic affiliation. Methods: Abstracts were first identified by the search word ‘‘health promotion’’ as a key word. The search was limited to 1986—2008 and abstracts written in English by authors with a Nordic affiliation. Abstracts/articles for the present study were subsequently selected from these abstracts using the search word ‘‘equity’’ and analysed by quantitative and qualitative content analysis. Findings: A majority of the 18 articles in the study did not include any proper definition of the term ‘‘equity in health’’. Most articles dealt with health in general or ‘‘Health for All’’ aspects and did not focus on specific strategies for vulnerable individuals or groups. The theoretical papers had a clear focus on equity aspects even though the concept of equity was sometimes included in an implicit way. In contrast, most papers reporting empirical studies did not specifically target equity aspects. Instead, the analysis gave the impression that many authors used the term ‘‘equity’’ synonymously with ‘‘equality in health’’. Conclusions: The findings may indicate that the concept of ‘‘equity in health’’ has been attenuated or even forgotten by Nordic health-promotion researchers and needs to be re-established as a strong concern within health promotion.

National public health policy in a local context--implementation in two Swedish municipalities.

OBJECTIVES In 2003 the wide-ranging Swedish National Public Health Policy (SNPHP), with a focus on health determinants, was adopted by the Swedish parliament. In the context of multilevel governance, SNPHP implementation is dependent on self-governed municipalities and counties. The aim of the study is, from a municipal perspective, to investigate public-health policies in two municipalities. METHODS Content analysis of documents and interviews provided a foundation for an explorative case study. RESULTS The SNPHP at national level is overriding but politically controversial. At local level, a health-determinants perspective was detectable in the policies implemented, but none regarding to health equality. At local level, the SNPHP is not regarded as implementable; rather, limited parts have, to varying degrees, been reconciled with local public-health goals, according to municipal needs and conditions. A success-promoting factor in the two municipalities was the presence of committed and knowledgeable actors/implementers. Also, the municipality with a more centrally controlled and stable party-political leadership succeeded better in implementing structural and intersectoral community-wide policies for coordinated local health promotion. CONCLUSIONS The contents of national and local public-health policies differ, and municipalities that have implemented their own local health policies do not seem to regard the SNPHP as justifiable or adoptable. If the SNPHP overall aim regarding equal health is to be achieved homogeneously in Swedish municipalities, its contents and purpose need clearer management and negotiation, so that implementation of the national policy locally is understandable and motivated.

Leading and Supporting the Implementation of the Norwegian Network of Health Promoting Schools

The aim of this study was to examine how program leaders in the Norwegian Network of Health Promoting Schools managed, facilitated, and supported the development and implementation of the health promotion initiatives at their school. Two focus group interviews were conducted with 10 program leaders. The findings suggest that the implementation of the program was enhanced when the program leader was part of the school leadership group. The program leaders stated that the vision, aims, and content of the health promotion program were generally similar to those of their schools, making it easier for them to motivate teachers to participate. They also acknowledged the positive effect of learning through collaboration within schools and between schools in the network.

Health in All Policies: A cross-sectional study of the public health coordinators’ role in Norwegian municipalities

Aims: The public health coordinator (PHC) is a municipal-government position in Norway whose role is to organise and oversee municipal policies and functions to support national public health goals. This cross-sectional study investigates conditions associated with use of PHCs by Norwegian municipalities in the period immediately before the new Public Health Act came into effect in 2012, decentralising responsibility for citizen health to the municipal level. This study provides descriptive baseline data regarding Norwegian municipalities’ use of PHCs in this time – a marker for municipal engagement with inter-sectorial collaboration – before this policy was nationally mandated, and explores whether municipal characteristics such as structure, socio-economic status and extent of Health in All Policies (HiAP) implementation were associated factors. Methods: All Norway’s municipalities (N=428) were included. We combined Norwegian register data with survey data. Descriptive analyses and bi- and multivariate logistic regression analyses were performed. Results: A total of 76% of Norwegian municipalities employed a PHC in the period just before 2012. Of the PHCs employed, 22% were employed full time and 28% were located within the staff of the chief executive office. Our study indicates that partnership for health promotion with county councils (OR=7.78), development of a health overview (OR=3.53), collaboration with non-government sectors (OR=2.85) and low socio-economic status (OR=0.46) are significantly associated with Norwegian municipalities having a PHC. Conclusions: This study suggests that the municipality’s implementation of HiAP, as well as lower socio-economic indicators, is associated with the use of PHCs in Norway, but not factors related to municipal structure.

Family policy and inequalities in health in different welfare states.

This article focuses on differences in health and welfare outcomes for families with children in three European countries, discussed in relation to national policies for child and family welfare. Data consist of policy documents and cross-national surveys. The document analysis was based on policy documents that described government policies. The statistical analyses utilize data from the European Social Survey. For the analyses in this article, a sub-sample of child families was selected from the countries Slovenia, Sweden, and the United Kingdom. Data showed that Englands policy has mainly addressed socially disadvantaged groups and areas. Sweden and Slovenia are mainly developing universal policies. The United Kingdom has high scores for subjective general health, but a steep income gradient in the population. Parents in England experience the highest level of at-risk-of-poverty. Sweden generally scores well on health outcomes and on level of at-risk-of-poverty, and the gradient in self-rated general health is the mildest. Slovenia has the weakest economy, but low levels of inequality and low child at-risk-for-poverty scores. The Slovenian example suggests that not only the level of economic wealth, but also its distribution in the population, has bearings on health and life satisfaction, not least on the health of children.

Tackling health inequalities in Norway: applying linear and non-linear models in the policy-making process

This article follows the Norwegian policy-making process on social inequalities in health applying models for policy development with focus on linear and non-linear movements. The focus is process-oriented following the introduction of a comprehensive, cross-sectoral strategy to tackle socioeconomic health inequalities in Norway. A case study design was selected and two theoretical frameworks have guided the research. Whiteheads model for health inequality intervention (2007) follows a linear theory-based logic, underpinning the idea that implicit or explicit theories or formulation of a distinct problem causally predicts design and outcome of policy programmes. The second approach is based on Kingdons (2003) perception that policy-making often occurs unpredictably within independent streams of the policy formulation process. The model focuses on the non-linearity of the flow and timing of policy action. The present case suggests that both linear and non-linear models are necessary for understanding of the Norwegian policy-making process on social inequalities in health. Whiteheads model is a conceptual model focussing on the linear structure of the policy process, useful for identifying the different entry points for choice of direction in policy-making. Kingdons multiple streams model is useful for gaining insight into the agenda-setting process that may be predictable, but may also be unpredictable and steer non-linear movements. The model identifies components necessary for a problem to rise on the political agenda with a particular focus on the role of policy entrepreneurs.