1. Aims and main objectives

Aims

Official statistics and analyses based on these statistics shall give the general public, businesses and the authorities knowledge of the structure, development and functioning of the society. Such knowledge strengthens

democracy and provides a basis for a sustainable economic, social and ecological development.

To fulfil this task, official statistics have to be produced on an independent basis, be of high quality and be widely spread as a public good for the benefit of society as a whole.

From data to knowledge

An institution that counts

During recent years the flow of data and information in the society has dramatically increased. It has become more difficult to distinguish information that gives knowledge from false information, unfounded statements and unimportant noise. Here official statistics play an important role.

Several public institutions produce official statistics, but Statistics Norway is the central Norwegian agency for collection, compilation and dissemination of such statistics.

Statistics Norway will work to cover national and international needs for official Norwegian statistics and analyses based on these statistics.

Responsibility for coordination of official statistics

According to the Statistics Act Statistics Norway is responsible for:

• Mapping and giving priorities to the needs for official statistics
• Coordinating statistics that are produced by governmental agencies
• Developing statistical methods and exploit statistics for research and analyses
• Give information for statistical use for research purposes and governmental planning
• Having the main responsibility (from the Norwegian aspect) for international statistical cooperation

Independent role

The Statistics Act also underlines that Statistics Norway is an independent institution when it comes to the content of its statistics and analyses. Statistics Norway decides on an independent basis what the institution is to publish of official statistics, and when and how this will be done. This independence of authorities and interest groups is necessary for the credibility and the authority that official statistics must have in order to fulfil its role in the Norwegian and the international society.

At the same time data security and the protection of personal integrity are preconditions for trust by the data providers and hence for the work of Statistics Norway.

Values

The values of Statistics Norway support the general principles of official statistics, and can be summed up as follows:

• User orientation. Users require high quality statistics and analyses (statistics must be relevant, accurate, timely, comparable, coherent and available).
• Integrity. Statistics Norway is to be objective, treat all users equally, and protect the data providers.
• Efficiency and renewal. The resources are to be utilized as well as possible, and Statistics Norway will adjust the content of statistics and production methods in time with the development of society.

Statistics must reflect the society

Changes in society must be reflected in the statistics. Important issues at the start of the millennium are the development of the service and information society, with integration of markets across borders and movement of labour force. The economy is deregulated, and more emphasis is put on market solutions than on central planning. There is also an increasing focus on social conditions, distribution aspects and environment. This development entails new needs for statistics, which will be the basis for Statistics Norway's priorities.

Major changes in the statistics

Statistics Norway will base its priorities of the content of the official statistics on:

• Statistics on structure and development of Norwegian economy are necessary as a foundation for public debate on the economic development and for the implementation of economic policy.

• Statistics on population and social conditions are of basic significance for the understanding of the society and for the implementation of policy linked to social and economic conditions.

• Environment statistics are a basis for international agreements and national action plans in addition to the public debate.

• Services constitute an increasingly larger part of Norwegian economy. Information technology and knowledge play an important role in this context.

• The need for information as a basis for management and knowledge of the public sector's use of resources requires good statistics in this area. Statistics and analyses for comparison of municipalities and institutions are important.

• The business sector is important both as a user of statistics and as a data provider.

• Own research will give knowledge about the functioning of the Norwegian economy and social processes, in addition to contribute to improve the quality of the statistics.

• Globalisation has increased the need for international statistical comparison and standardisation. This can also be looked upon in connection with increasing national obligations in adherence to demands from the European Union.

Quality of statistics

Quality requirements are also reflected in how statistics are produced and disseminated:

• Official statistics and research results will as a public good be free of charge and available at the same time for everyone through the Internet. Users will be able to select and put together statistics themselves. International statistics will also be presented.

• Statistics Norway will cooperate with others on production and dissemination of official statistics where this is advantageous for the users and profitable for the society. This will also contribute to a coherent system of statistics with common requirements for quality and independence.

• Statistics are to be timely, accurate, comparable and coherent. It must be possible to describe the long trends in society development and to compare countries, businesses and groups of persons.

• Research will be kept on an international high level

• Statistics Norway will cooperate with data providers and owners of registers, and the response burden is to be kept at a reasonable level. It is an objective that as much as possible of the data reporting will happen by direct extraction from the data systems of the data providers. There is to be an opportunity for everyone to report over the Internet.

• Statistics Norway will carry out its tasks cost efficiently, professionally and with strong emphasis on independence, data security and innovation.

2. Framework

Laws, international requirements, the availability of human resources and funding constitute frames

Reforms in public administration give new possibilities

Laws, international requirements, the availability of human resources and funding constitute a framework for Statistics Norway. In addition to Norwegian laws such as the Statistics Act, Statistics Norway's priorities are increasingly governed by acts as a consequence of the cooperation in the European Union (EU) through the European Economic Area. (EEA)

Statistics Norway is administratively under the Ministry of Finance and has a board appointed by the Government.

Reforms in public administration carried out in recent years give new possibilities and challenges for Statistics Norway as a governmental institution. Administrative authorities and ways of organisation will be continually considered as a part of the work to improve the institution's possibilities to solve its tasks efficiently.

2.1. Laws

The Statistics Act - the basis for official statistics and Statistics Norway

The Statistics Act gives the formal frames for all Norwegian official statistics. Its general purpose is to promote efficient production of relevant statistics by giving rules for the collection and use of information for statistical purposes. At the same time the responsibility of Statistics Norway is described, and the institution's professional independence is ascertained.

The Statistics Act gives Statistics Norway the responsibility for coordinating comprehensive statistics that are produced by governmental agencies. The institution has the opportunity to influence the collection of information gathered by other governmental agencies and municipal organisations. Such data are often stored in administrative data systems, and Statistics Norway may use them for production of official statistics. The Statistics Act will be used actively in this area to secure the statistical interests and efficient use of resources by avoiding unnecessary collection of data.

The Statistics Act contains rules on obligation to provide data for statistical purposes and use of fines. These are means that can be used after a concrete consideration to ensure satisfactory response rates and hence quality of statistics. Good cooperation with data providers is important to avoid the use of fines.

The Statistics Act restricts Statistics Norway's use of collected data. Data on individuals (persons or establishments/enterprises) are to be treated confidentially, and Statistics Norway does not ever publish information about individual persons. No statistical results are made available for anybody before the statistics are released at the pre-announced time. This is a general principle that concerns all releases of statistics, but it is in particular important for statistics that are sensitive for the market and politically interesting.

The Personal Data Act gives rules for the protection of information on individuals

Whether Statistics Norway collects data directly or bases statistics on administrative registers, protection of persons and establishments/enterprises is crucial for its operations. The Personal Data Act and guidelines from the Data Inspectorate give rules and procedures for treatment of individual data with very strict routines for sensitive data on persons.

2.2. International cooperation

Increased focus on international cooperation

Statistics Norway puts emphasis on international statistical cooperation, through institutions such as the UN, the EU, the OECD and the International Monetary Fund (IMF).

Integration of markets and economic and social globalisation require that statistics are comparable. This makes it necessary with extensive international cooperation on statistical standards comprising common definitions of concepts, classifications and accounting systems.

International cooperation affects quality, coverage and level of detail in the national statistics. At the same time several reporting requirements are imposed on Norway, with standards for dissemination of data. Significant resources will be needed in order to comply with these requirements.

Statistics Norway will further develop the work in international statistical institutions, in order to promote standardisation, quality and cost efficiency in the production of official statistics. Cooperation with similar national statistical institutes (NSIs) such as the Nordic ones, is important in this connection. Statistics Norway will also disseminate international statistics (see chapter 3.2).

Statistical cooperation within the EEA affects more than half of the production of statistics

In recent years Statistics Norway has worked on the development and adaptation of statistical systems within relevant areas that are regulated by the EU's legal acts for statistics and the EU's statistical programme. As part of the EEA agreement Norway is legally obligated to adhere to these. A set of so-called structural indicators has also been approved of. These indicators are based on statistics and will be quality assured. It is assumed that the EEA cooperation to some extent has consequences for half of Statistics Norway's production of statistics.

In numerous important areas the EEA's requirements will affect the priorities and the statistical framework in years to come. In some areas new routines have been established, whereas in other areas there are still adjustments to be made in relation to regulations that will be implemented in the near future.

The EU's statistical office, Eurostat, is working on a long-range plan for 2003-2007. This will be the basis for the development of new laws that also will affect Statistics Norway's production of statistics. It will probably be a need for increased resources in order to fulfil future demands from the EU.

At the same time Statistics Norway will continue to play an active role in making sure that this work does not cause an unreasonable burden for Norwegian respondents.

International statistical advising: Focus on institutional development

Institution building is a central part of Norwegian aid policy. Since the production of statistics to a large extent is based on international conventions and cooperation, it is a natural task for a statistical institute to contribute to the establishment of statistical institutes in countries with insufficiently developed statistical systems. Statistics Norway gives international statistical assistance to countries that need such support, and also provides advice on development and follow-up of Norwegian aid policy within the statistical area. The international statistical advising is outside Statistics Norway's core working area and must be covered directly by the users.

2.3. Human resources

Statistics and analyses from Statistics Norway make great demands on the staff members' competence and ability to work together in a creative and productive environment.

Scarcity of human resources

The portion of highly educated manpower in Statistics Norway has increased in recent years. At the same time there has been a strong demand for such manpower in society in general, especially expertise within economy and technology. This has led to difficulties, both as far as recruiting experts, but in particular to keep key personnel who have worked in the institution for a while. A probable scarcity of highly educated and competent manpower is an important constraint that represents a challenge for Statistics Norway's work and role in the future.

On the other hand continuous and necessary improvement of efficiency leads to need for staff adaptations. This especially applies to the staff members who lack higher education. Competence development and adaptation - as challenges and initiatives regarding these - are dealt with more closely in chapter 7.

2.4. Funding

Statistics Norway's activities are financed by basic grants from the state budget (government assignment) and by other income by direct payments from public and private customers for development and adaptation of statistics and analyses (user-funded assignments or commissions). Some on-going statistics are also funded by such assignments.

In recent years grants via the state budget to Statistics Norway have been reduced. At the same time the extent of user-funded assignments has increased, and covered about 25 per cent of the total budget in 2001. Within certain areas of the activities user-funded assignments constitute more than 50 per cent. The public sector is responsible for most of the assignments. User funding has been necessary in order to maintain quality and ensure further development of official statistics.

Narrow frames for own priorities

In addition to the fact that the extent of user-funded assignments has increased, there has also been an increase in international obligations and the extent of earmarked grants for special projects within the government assignment. The budget the institution itself can control is therefore more limited than the government assignment indicates.

What should the basic government funding cover?

Current statistical production should be covered by the government grants

Statistics Norway's total activity is of course constantly going through considerable changes by improving efficiency, repeal of tasks and establishment of new tasks. There is still a great need for further expansion and improvement of the statistics in several areas. The government assignment should in principle comprise a core of statistics and research topics, defined according to what is considered most relevant for the Norwegian society and for international binding obligations. In such a delimitation strong emphasis must be placed on statistics that are integrated in the total statistical system, for instance in the national accounts, in the environment and resource statistics, and in a system of demographic statistics and statistics related to living conditions. The government assignment should also cover general dissemination and the role as a communicator of knowledge to the general public.

Looking at the total statistics production and the research it is evident that the government assignment does not cover everything that should have been covered.

Work on improving the fact basis for ministries and other public institutions is sometimes user-funded commissions. Such binding cooperation with the ministries, especially as regards on-going production of official statistics, should be developed within the frames of an increase in the government assignment. Alternatively it is relevant to enter into binding cooperation agreements that cover the costs of development as well as the operating phase of new statistics production.

Work on commission gives user contact

Commission work offers direct contact with the users, which is important concerning the evaluation of the pros and cons of the need for new statistics production. User-funded commissions should supplement the primary tasks financed by the state budget, and be professionally integrated with the fiscal budget. The results should be statistics or analyses that are available to everybody at the same time. So far Statistics Norway has succeeded in this.

An increase in the user-funded commissions along with improvement in the efficiency has compensated for the reduction of the general frames for the government assignment.

Independence is crucial

The extent of user-funded commissions must not be of such magnitude that it threatens Statistics Norway's independence and the primary priorities the institutions has as a central statistics producer. It is equally important that official statistics will remain a common good. Establishments of new, and strengthening and improving existing statistical areas that are not covered by government appropriations, may be tried to be user-funded if these conditions are present.

All costs have to be covered in commission work

Statistics Norway's commission activities are based on the customer covering all direct and indirect costs related to a user-financed task that may consist of development, maintenance or adaptations of statistics or analyses or research.

Official statistics and analyses are public goods

The basis for the price policy for Statistics Norway's dissemination activity is that official statistics and analyses are public goods, easily available for all users, independent of how the production of the statistics or analyses are financed.

The users of statistics and analyses are therefore only to cover extra costs related to the dissemination of the statistics. The price of paper publications should cover expenses for printing and mailing. The Internet does not have such costs, but on the other hand development and maintenance activities do. These costs cannot, however, be directly related to the individual statistics that are released or to the individual user.

Official statistics are free on the Internet

Official statistics on Statistics Norway's web sites are therefore free of charge. Special preparations with tailor-made reports for the individual users are, however, to be covered in full.

Official statistics on the web or what can be found in a paper publication may be distributed to a third part for free, but the source must always be referred to.

3. Surroundings

This chapter describes conditions in the surroundings of great importance for official statistics in general and Statistics Norway in particular. The starting point is the user needs that change in step with changes in the society. Also the relations to data providers, other producers of statistics and the technological development are important in this connection.

3.1. New trends

The information and service society

In the long run the relative significance of traditional economic activity such as agriculture and manufacturing production have been reduced, whereas other areas have received increased importance. This concerns for example services and environmental issues. Knowledge and information have increasing significance both for businesses and the public sector. This is the case both within existing industries and in new activities within the information and communication sector.

The information society has led to a dramatic increase in the flow of information in the society. Official statistics play an important role in transforming this to knowledge that provides understanding.

Globalisation and mobility

Improved communication and liberalisation of trade have led to what we

call globalisation. This implies that the national borders do not mean as much for the industries as before. For economic statistics this creates increased problems with delimiting units and avoidance of measurement errors. The globalisation of the economy is followed by changes in the labour market and more migration. This represents new requirements for statistics.

The globalisation also implies increased demand for international comparisons, which increases the significance of international statistical cooperation. More international requirements for statistics as a result of the membership in the EEA are important in this connection.

Privatisation and deregulation

Privatisation and competition in the public sector and deregulation of industrial activities also create new challenges for statistics. Data that earlier were collected from public institutions such as municipalities or a few large companies, have to be collected from others and more units that originally have different reporting obligations. It is important to ensure a sound basis of data in such cases, in order to ensure that the statistics are able to describe and compare industries with different organisational forms.

Statistics are more used for comparison

The development has been characterised by less plan and more market in the sense that central planning and management gradually have been replaced by control checks and evaluation. For statistics this means that it should be used to compare different types of businesses and activities (benchmarking) and to compare against quantified goals. This concerns different levels of detail (such as of countries, municipalities and companies), and also means an increased need for relatively detailed statistics and more analyses. The needs of the business sector for market information also increase the demand for detailed data.

New data sources and new ways of dissemination of statistics

The society development creates new challenges and possibilities regarding which data statistics may be based on, and how Statistics Norway collects data and disseminates statistics. It seems to be more difficult to collect data in traditional interview surveys. On the other hand, the extent of registers that may be used as data sources increases, and new data sources such as payment systems and other systems with electronic traces are more widespread. To utilise these represents methodological challenges (delimitation of populations and units), and presupposes increased attention when it comes to protecting personal integrity.

Statistics Norway's dissemination of statistics and collection of data are described in the following chapters.

3.2. The users

The needs for statistics and analyses of different users will be covered. The Internet technology has brought statistics to new users. This results in new requirements for presentation and interpretation.

General users and specialists have different needs

It must be taken into account that the users have different needs for statistics and for presentation of these. The users can roughly be grouped as general users and specialists. A more detailed grouping is:

• The general public
• Media
• The business sector
• Administration and planning (central and local)
• Research and education
• International organisations

General users are mainly found in the two first groups. Media play an important part in disseminating statistics to the general public and bringing information about statistics and analyses from Statistics Norway.

Ssb.no is the main channel

The Internet (www.ssb.no) is the main channel for disseminating official statistics and research results. All new statistics are released on ssb.no, and the date of release can be found in the statistics calendar. Statistics Norway has in recent years made quite an effort to satisfy the general public's need by presenting statistical news with brief summaries on its home page. More comprehensive texts, tables and figures are available through links for users that are interested in more details. The Internet technology is suitable for the dissemination of news and statistics to users with different needs. The service is updated daily.

Self-service from databases

The Internet service will be further developed with databases where the users themselves may select statistics according to their own needs. The users may choose statistics from different areas by selecting from the Statistics Databank (see chapter 3.5.). This will mean a great deal for professional users, and contribute to the image of Statistics Norway as one institution with a uniform and coherent statistics offer.

Work on improving the availability of all statistics on ssb.no will continue. Key issues are new links, search functions and archive solutions. Cooperation with others that communicate or refer to Statistics Norway's statistics is of utmost importance. Solutions that integrate Statistics Norway's Internet service - with other services and vice versa if relevant - are to be developed. This will ensure that updating of the statistics occurs automatically and simultaneously at all the institutions that cooperate.

Paper products if needed

Even though electronic dissemination via the Internet is the most important way of communicating, Statistics Norway will continue to publish paper products on demand. This may be particularly relevant for publications containing knowledge and not information in the form of tables as a primary purpose. The goal is that all Norwegian official statistics are to be documented and presented with main results on paper as well. The amount of paper publishing measured in the number of printed pages will, however, decrease.

More documentation

In itself data are not knowledge, but must be summarised and interpreted in order to give knowledge. Statistics imply a certain summing up, but may be useless if not accompanied with definitions and information on how the statistics are produced and can be used. The documentation must be easily available on different levels related to the individual table or statistics, to data from databases or to micro data, as for instance may be communicated to researchers.

"About the statistics" offers information related to statistics published on the Internet. This system will be further developed and adjusted to different user levels (a system with links from more primary to more detailed information and documentation).

Analyses will enlighten relevant issues

At the same time as more statistics are made available on ssb.no, Statistics Norway will increase the value of the statistics by analyses and research, in order to communicate knowledge, by for example throwing light on issues considered in the public debate.

Norway in the world

In line with increased focus on international comparisons, emphasis will be put on presenting Norwegian statistics along with equivalent information from other countries. Official statistics and documentation should also, to the greatest possible extent, be available in English on ssb.no.

More detailed statistics

Statistics Norway should as far as possible try to meet the increased demand for detailed statistics for comparisons and market information as long as it does not affect the protection of privacy and quality demands - as demand for accuracy and coherence. This means that more statistics on smaller units such as institutions (for instance public hospitals and schools where data are not confidential in the way they are for private establishments) and on a low geographical level will be developed and disseminated. Data from registers with geo-referenced units such as persons and establishments, pave the way for production of statistics on every geographical level. However, persons or establishments must not be identified or localised, if this may be harmful for these. As long as this is not a problem, statistics on different geographical units should be offered. Statistics Norway will work towards the increased use of such data in analyses, among other things with the help of GIS tools (geographical information systems).

The needs of the business sector will be better covered

Statistics Norway is committed to present a better offer to the industries. Statistics as a basis for market information seem to be an offer that the industries are particularly interested in. Another product is statistics that can be used to compare an establishment's own data with others in the same industry or other groups (expressed as a measure for the group in order to protect confidentiality). This type of response to the respondents is covered by the concept data exchange. The development of new products aimed at industries will be looked at in connection with the collection of data from the same establishments, see chapter 3.3.

Increased readiness for data to research scientists

Researchers make up an important user group of statistics, and in some cases they are users of detailed data for their own analyses. Statistics Norway cooperates in particular with the Norwegian Social Science Data Services (NSD), which disseminate data further to the research and educational sector.

Sensitive micro data as well may be submitted for research and planning purposes. The condition is then that the researchers have a licence from the Data Inspectorate and the data are made unidentifiable. Micro data that are not sensitive may on certain specified conditions be distributed without such a licence, but the submission must be reported to the Data Inspectorate. Researchers are often looking for data that have emerged after linking different sources. Statistics Norway will be prepared to establish and communicate such data.

Statistics Norway as one institution

It is important that official statistics from Statistics Norway are presented as a coherent product. Dissemination on the Internet contributes to a large degree to this, and that users perceive Statistics Norway as one institution. The goal is that the ones who need more guidance or data than can be found on the web sites may contact somebody in the institution and receive help. Good information and communication are important in this connection, see also chapter 3.3 about the data providers.

In the dissemination of statistics emphasis will be put on putting together statistics and comparing with statistics from neighbouring areas in Statistics Norway or from other producers of statistics.

3.3. Data providers

The response burden will be kept on the lowest possible level

In total the resources used on reporting to Statistics Norway are modest, but the response burden is unequally distributed and may be perceived as a nuisance by many. The aim is to reduce this by the use of administrative registers instead of direct data collection, motivation of the respondents, improvement of questionnaires, coordination of samples and by offering the possibility to report electronically. No one that reports data to public institutions will need to send the same data to cover statistical needs. Feedback where one's own data are compared with other statistics is an example that adds value to statistics and motivates data suppliers. Statistics Norway will appear as one institution also with regard to data collection.

Increased use of administrative registers

The use of administrative registers for statistics production reduces the burden of reporting to Statistics Norway, and such registers are today the dominating data source. Today there are three base registers that define and identify the statistical units:

• The Central Population Register in the Norwegian Tax Administration (DSF, comprises persons and families)
• The Central Coordinating Register for Legal Entities in Brønnøysund/the Central Register of Establishments and Enterprises in Statistics Norway (legal units/enterprises and establishments)
• The Register for Ground Properties, Addresses and Buildings (GAB) in the Norwegian Mapping Authority

Due to the residence address project in the Population and Housing Census 2001 all residences in the GAB register and persons in the DSF register have received their own addresses, which creates a basis for defining households.

Most of the administrative data systems that are important for statistics production are based on the identification numbers that are assigned in the base registers. Statistics in new areas can be produced based on linkage of administrative registers.

For the production of statistics it is important that statistical units, classifications and groupings (standards) are taken into use in administrative routines in public administration and enterprises. Statistics Norway will continue to strive for this by using its right to influence the collection of data for administrative registers.

New data sources

Technology brings about and offers a basis for collection of information from new sources that are not registers. These are for instance technical systems that are used in establishments and information in the form of electronic traces from payment services. Bar codes are already being used while collecting price information from large chain stores. Statistics Norway will attempt to use new data sources, even if the information must be converted if units and classifications are different from the ones used in official statistics today. This may in the long run affect the statistical standards.

It will be possible for industries to submit data electronically

Data collection from the municipalities will be coordinated and electronic

The IDUN project (information and data exchange with industry) has as a goal to offer all establishments and enterprises a simple and functional system of submitting data electronically, preferably from their own data systems. An important part of this work is the cooperation with the tax administration and the registers in Brønnøysund. The involved parties develop a common technical solution with a common web portal for reporting. The establishments that so desire will still have the possibility to report in traditional ways.

Statistics Norway will work actively in cooperation with the involved ministries in order to simplify and coordinate the data collection from municipalities and other public agencies. The KOSTRA (Municipality - State - Reporting) implies coordinated and electronic data capture from all municipalities in addition to giving feedback with statistics to the respondents. The project comprises all data to be reported from the municipalities to the central authorities. In contrast to the IDUN project, electronic reporting is compulsory in KOSTRA. Both projects will make the data collection more efficient both for the respondents and for Statistics Norway.

Interviewing: More by telephone

Statistics Norway is basing important parts of its data collection on direct interviews. Data from these interviews are combined with register information. The interview activity is to a large extent based on interviewers around the country using both telephone and visits. The amount of telephone interview is increasing, and a great portion of the interviews can be made by a central staff. But in certain surveys, such as the survey on living conditions, in order to ensure quality, it is necessary to pay the respondents a visit. Emphasis is put on good plans for sampling. Data from the interviews are registered and transferred electronically to Statistics Norway.

3.4. Coordination and cooperation

In certain areas other public agencies produce official statistics. According to delegated authority based on the Statistics Act Statistics Norway has the final say concerning what official statistics are. Statistics Norway is therefore responsible for the coordination of all official statistics.

Increased responsibility for all official statistics

Statistics Norway intends to have a greater coordinating responsibility, and invites to a more binding cooperation regarding production and dissemination of all official statistics. Statistics Norway's independent role makes this especially relevant in areas where confidence concerning independence is crucial. This may be the case when statistics are used for policy framing and follow-ups of the authorities' initiatives. But it is also the case when statistics are used in areas that are of great interest for the general public.

Better coordination does not mean that Statistics Norway is to produce all statistics. The institution must, however, make sure that international and national quality demands and standards are adhered to, by having the statistics produced and disseminated in a correct and serviceable way. Good and available documentation is also important.

In certain instances it may be suitable and efficient for the society at large that Statistics Norway assumes the responsibility for the statistics production that others have been in charge of. Statistics Norway will for instance establish a new system for statistics on foreign transactions that will replace what the Central Bank of Norway now is using. In other instances the work will be limited to promote the use of statistical standards and emphasise the rules for the dissemination of official statistics, which for instance secures equal treatment of all users. It may also be possible that others undertake the production of some of the statistics that Statistics Norway presently is producing. In cases where others produce the statistics, the statistics are often published together with other official statistics, as for example in the Statistical Yearbook.

On the other hand there are many instances where others disseminate statistics that Statistics Norway has produced. In such cases it is important that the standards are applied, and that sources and documentation are referred to.

All such solutions mean an extended cooperation with other statistics producers and statistics disseminators. The role as a coordinating organisation and monitor in relation to all Norwegian official statistics must, however, not be abused in relation to the role as a market actor.

Statistics Norway's responsibility for the coordination of international statistical collaboration on behalf of Norway must also be strengthened and further developed.

A statistical council will be established

In order to strengthen the coordination of the production of official statistics in Norway, the intention is to establish a coordinating council with representatives from Statistics Norway and other important public statistics producers.

Data processor agent when necessary

The main rule is that Statistics Norway is to collect data for statistical purposes, and that data for administrative purposes, or based on another legal framework than the Statistics Act, are to be collected by others. Statistics Norway collects data from administrative data systems that are administered by others if they are also used in the production of statistics. But there are examples of cases where Statistics Norway collects data that are used for other purposes than statistics. Then other legal frameworks than the Statistics Act are applied, and the institution acts as a data processor for others.

Statistics Norway may function as a data processor where it is necessary in order to make sure that data also can be used for statistics, for example by using the statistical standards. It may also be done if, for example due to coordination with other statistics production, it is the most feasible solution for the society.

3.5. Technology

IT is the backbone of our activities

Information technology (IT) makes up the backbone in a statistical institution's activity, and marks all processes from collection and processing of data to dissemination of statistics and analyses. Technology is a mean used to reach the institution's goal, and is important both in the interaction with the users and in order to make the internal processes efficient. Statistics Norway's use of technology will therefore adjust to technological advances and new demands and possibilities for the users and the respondents.

In recent years a rapid development and a marked increase in the use of the Internet for the dissemination of data and information have taken place. This trend will continue. The Internet will get a broader user area that includes data collection and information exchange; not only dissemination of information. This opens for new perspectives for the work on official statistics. It may result in a stronger integration between different working processes, especially regarding collection and dissemination. The Internet is already the main channel for the dissemination of official statistics and analyses, and it is expected that the direct data collection more and more will take place via the Internet.

Another development trend is the increase of wireless data communication, which will put demands on the preparation of the products.

Dissemination as well as data collection can be done more efficiently by the use of standard formats and databases with both data and documentation. The use of the Internet and such standards will also result in less expensive or free data exchange, something that is important for the dissemination of efficient solutions for users as well as for respondents.

Statistics from all subject matter areas will be available in databases

The goal is to collect official statistics that are published in databases that cover statistics from all areas. In addition to that the Statistics Databank (see figure) is going to be the basis for general publishing on the Internet, it is also to give the basis for publishing via other electronic channels, on paper, for extraction of statistics to the individual users and for reporting to international organisations on standardised formats.

The statistics bank is being developed in cooperation with the Scandinavian statistical institutes. International cooperation is important when it comes to information technology. It is efficient because many statistical institutes have developed solutions that may be reused, which reduces the vulnerability regarding information technology competence.

Publishing tables from a Scandinavian database solution will also offer possibilities for a joint Scandinavian system for such publishing. Regular publishing of tables are mainly to be done on the basis of the Statistics Databank.

Micro data are often a starting point for answering or solving more extensive ad hoc questions and tasks. In cooperation with other Nordic countries Statistics Norway will consider new tools that are especially developed for these needs.

Self-service presupposes metadata systems

More use of self-service in the form of search for information in Statistics Norway's databases requires that more documentation is available and easily accessible. Suitable technology is important for the work with improving documentation and its availability. We call documentation in a structured form metadata. Metadata is central in the statistics bank. It is important with

harmonisation between the systems that document the production processes and the finished products.

Standardised solutions are necessary

Statistics Norway is committed to standardised information technology solutions and tools. An efficient infrastructure assumes a standardisation and central administration of the information technology platform. The timing of more extensive changes of the infrastructure is to a great extent dependent on economic considerations. Statistics Norway should normally not be the first one to change to new solutions in this area, even if the institution has been fairly early in using new technology in electronic dissemination and data collection.

IT on the office desk

The staff members in Statistics Norway are to have access to efficient and standardised tools and electronic communication externally and internally in their daily work. Technology will also offer great possibilities for more efficient administrative systems. The information technology development will also offer the staff members possibilities for work outside the office. This topic is discussed in chapter 7.

Security systems are important

Data security is an invariable requirement in Statistics Norway. Open technology and communication that benefit the users and respondents give challenges concerning data security. In order to secure the processing of sensitive personal information and other confidential information, a special security zone that only especially authorised staff members have access to is established in the internal network. Other information is processed in an internal zone that also is secured against impact from the outside. Information that is available for the public, such as the information on ssb.no, is placed in a special zone that through technical solutions is separated from the other zones. Encrypting solutions are planned for the exchange of data between the respondents and Statistics Norway. According to the Statistics Act all staff members are bound to secrecy and have signed a confidentiality statement. The security conditions are regulated in a special security handbook.

Strategy for the data flow in Statistics Norway

4. Main priorities of statistics

General priorities are mentioned in the introduction. In the following some issues are considered in more detail. The discussion puts emphasis on what is new and follows the main areas that statistics illustrate:

• Structure and development of Norwegian economy
• Population and living conditions
• Environment

International aspects such as EU requirements for statistics are central in all areas.

4.1. Structure and development of Norwegian economy

National accounts: Revision of the data basis

The national accounts are to describe the totality and coherences in the economy. The extent of data and methods are revised regularly, approximately every fifth year. A revision of the data basis is completed early in the strategy period. Documentation, publishing and international reporting of new national accounts figures for the 1990s are prioritised. Increased effort will be made for improving methods connected to the quarterly accounts. Priorities have also been put on work on the development of institutional quarterly accounts coordinated with quarterly public accounts, labour force accounts and the balance of payments accounts.

New types of accounts and linkage of statistics from different areas

So-called satellite accounts based on linkage between different statistics are to a greater extent being established, in order to illustrate areas that have received increased importance and attention. Examples of such accounts are the resource and environmental accounts and the tourism accounts. Health accounts are also to be carried out after a model of a system developed by the OECD. Educational accounts are also being considered. See also the discussion on welfare accounts in chapter 4.2. There are also several other themes that may be illustrated more systematically or in a new way by linking statistics from different areas. A pertinent example is information and communication technology (see below), another is food where increased focus has been put on both production, imports/exports, prices and quality.

Better statistics for services

The statistical basis for the service sectors is presently weak and is to be improved. Among other things this is the case for the basis for calculation of price and volume development, the possibilities for carrying out a suitable distribution of the different industries' production and intermediate consumption and a starting point for calculation of profits. The introduction of VAT on services offers possibilities for utilising new data sources in this area.

Better statistics about the information society

Statistics on access and use of information technology and communication products, or ICT-statistics, have been poorly covered in the statistical system. The area has been subject to a considerable development, and portions of the activity that produce products or services within ICT may be grouped across traditional industry classifications. Internationalisation and deregulation of public monopolies are moreover resulting in especial challenges for the statistics in this area. Statistics Norway is planning to expand and increase the quality of the ICT-statistics. Other types such as trade statistics (electronic trade) and education statistics must also be adjusted to the development of the information society. The goal is to have a comprehensive statistics on ICT as described in the Government's plan for e-Norway. International comparisons are important also in this context, something that is emphasised in Eurostat's long-term programme.

Statistics for public sector to enlighten quality and efficiency

Statistics and analyses that can be used to study the manner of operation of the public sector are important. This is the case especially for statistics that may illustrate the connection between resource use and the products that are created or services rendered. The KOSTRA (Municipality - State - Reporting) system offers better data for meaningful comparisons between municipalities and municipal and county administrations. The areas education, health and nursing care are especially important. Competition in public activities will result in special challenges. It is still need for the development of indicators for public services that may illustrate the degree of coverage and the quality together with indicators that may illustrate efficiency and costs.

Better price statistics

Price statistics and price indices play a central role in the statistical system, and are of great importance for measuring economic development and for index regulations of various kinds. Norwegian and international experiences show that there is a special need for working with price measurements for capital goods and services. This requires increased research effort and a better statistical base for taking the quality changes in the products into account. An index of labour force costs is also to be developed.

System for establishment data

The establishment and enterprise register is to be developed for statistical purposes in order to offer basic information about the establishment and enterprise population. This is a step in the direction towards a comprehensive system for establishment data, and will also be the basis for an overview of changes in the establishment and enterprise demography, among other things new business start-ups and bankruptcies.

4.2. Population and living conditions

Population and Housing Census 2001: Last census based on questionnaires

The results from the Population and Housing Census 2001 became available in 2002. The population part is based on information from registers, whereas information about housing and households is collected through questionnaires. Each residence in buildings that consist of several residences has received a unique address in the Register for Ground Properties, Addresses and Buildings. The Norwegian Mapping Authority via the municipalities will maintain housing information connected to all residence addresses that were occupied per 3 November 2001. This will be of great importance for future statistics on housing and households, and will from now on make it unnecessary with form-based population and housing censuses.

Living conditions: New possibilities with better data and registers

The living condition statistics are based on several sources. Annual interview surveys show main features of living conditions, while central themes such as housing conditions, work conditions, health and time use are included in these surveys in a fixed cycle, so a more comprehensive coverage is offered at some years' interval. For a special sample living conditions are monitored for several years. In addition to living condition surveys, a number of other surveys illustrating the population's living conditions are carried out. Examples are surveys on consumer expenditure, culture and media use surveys, labour force surveys and income and property surveys. Statistics Norway will continue with such surveys, but the extent and methods may be adjusted to new demands for coordinated European living condition surveys.

Living conditions are also illustrated by public reporting systems (such as KOSTRA, Municipality - State - Reporting), registers and other surveys. Statistics that mainly are based on administrative registers are for instance population statistics, education statistics, social security statistics and income statistics. In the future several new registers will be established on all areas of living conditions and especially within health. Statistics Norway will by this further develop these kinds of statistics. A new law on health registers will also offer the possibility of giving Statistics Norway an extended responsibility for health statistics based on such registers and linking of these.

Development of welfare accounts

On the basis of data from register-based statistics and interviews Statistics Norway will in the coming years develop a statistical system that will give the status of the population's living conditions at a certain time, and that also will describe the changes that have led to the status of the living condition for the time in question (welfare accounts). The statistical system will also be the basis for analyses of different efforts aimed at influencing the living conditions. The system may be seen as a continuation of the Population and Housing Census 2001, and is also based on databases for studies of life-cycles within the social security system, the education system, employment and income that otherwise are in the process of being developed.

An important goal with this work is to give data to the European structural indicators, where one is especially engaged in information that may contribute to reduce differences in living conditions and prevent exclusion from society.

4.3. Environment

Statistics for sustainable development

The importance of environment and a sustainable development has led to a necessary expansion of the statistical needs in this area. Statistics Norway has advantages in producing statistics linking economic and social development and environment. Statistics on natural resources and environmental influences, such as emission and waste statistics, are central. Statistics on environmental quality are to a great extent produced by others, but are put together and disseminated along with similar statistics from Statistics Norway. In this way the work with environmental statistics is a good example of Statistics Norway taking the responsibility for all statistics in one area, even if the institution does not produce all the statistics.

Statistics Norway's statistics are offering important contribution for illustrating the results of the environmental policies, as a basis for indicators for sustainable development and for follow-ups of the results in this area. This will be of importance for the further development of the statistics.

5. Research and analysis

Research and analysis based on statistics cover important user needs. It will enlighten the functioning of the society and also contribute to quality in the production of statistics.

Research will contribute to knowledge and improve quality of statistics

The goal for the research activity in Statistics Norway is to:

• Contribute to knowledge about the Norwegian society by analysing Statistics Norway's statistics
• Develop tools for analysis and shaping of policies
• Analyse in order to reveal weaknesses and strengthen the quality of the statistics
• Develop tools and methods to support and make the statistics production more efficient

Research of good international standard

Research in Statistics Norway is to have good international standard.

The main areas for Statistics Norway's research activity - in addition to statistical method development that is described in chapter 6 - will continue to be:

• Macro-economic research
• Analyses of public economy
• Micro-econometric research
• Research on demography and living conditions
• Research on resources and environmental conditions

The number of models will be considered

The emphasis on these areas is dependent on the access to resources. Work connected to development, maintenance and use of models are to a great extent covered by government funding, whereas the portion of user-funded commissions is relatively large in other areas. The number of macro-economic models is going to be assessed. Statistics Norway will not carry out commissions that do not support the main areas for research. It is still possible to increase the commission portion within research without jeopardising the research profile.

The macro-economic models are based on the national accounts

The national accounts are the basis for the work with macro-economic models. Links between the national accounts and the resource and environmental accounts will be exploited in pilot accounts.

Cooperation gives quality assurance

Statistics Norway's research often takes place in cooperation with universities, colleges and other research institutions in Norway or abroad, in common projects or by exchange of researchers. National and international cooperation means a lot for ensuring quality of research.

More research on distribution and growth and on regional issues

Stronger efforts will be placed on the themes distribution and growth and research on regional conditions. The latter is connected to the increased emphasis on the public sector, and better data access from the municipalities. Research in these areas may also improve the quality of the statistics.

Research on living conditions will exploit better data

Research on living conditions is facing great challenges concerning the understanding and explaining the development in a society that is going through considerable changes. The increased extent of register data is to be used to continually monitor structural changes and development tendencies. Data from sample surveys will continue to be a necessary supplement to register data in research on family establishment and household structure. Data from living condition surveys will be used in research and analysis, see also the mentioning of welfare accounts in chapter 4.2.

Statistics Norway will work actively to increase its participation in future programmes directed by the Norwegian Research Council.

More analyses in the whole of Statistics Norway

The research activity in Statistics Norway is mainly organised in separate units. This is a condition for being able to conduct research on a high international level. Analysis activities and partly research do also take place in the units producing statistics. It is a goal to increase the extent of analyses in the entire institution. A turn of the activity in this direction is natural since statistics production and dissemination will be more efficient with a broader general offer of statistics on the Internet. Cooperation with statistics producers and researchers is important in this connection. Analyses based on own data contribute to ensuring quality of the statistics and give the statistics added value for many users, when at the same time the employees may get more varied and interesting tasks.

6. Quality and methods

Systematic quality work

Statistics Norway works systematically with quality. This is important to keep and improve the institution's position and results, and to satisfy user needs. Quality work is also the key to improving efficiency and to renewal to ensure that available resources are used in the best possible way.

The basis for systematic quality work is the users' and customers' needs for statistics and analyses. Users are satisfied if the product is good, which presupposes appropriate and efficient working processes. The work is based on the principles of TQM (Total Quality Management) and involves all processes and all employees in Statistics Norway.

What is quality in statistics?

The following factors affect and characterise quality in statistics:

• Relevance and completeness
• Accuracy
• Timeliness and punctuality
• Comparability and coherence
• Accessibility and clarity
• Costs

Statistics must also be objective, and personal integrity must be protected. The response burden is also a quality indicator since it contributes to the costs of statistics for society.

Emphasis will be put on quality assurance in statistics and research. This means to constantly reach for the quality criteria mentioned, data security and good documentation. Several of the criteria are documented in "About statistics" on ssb.no. The costs put limits to how good the quality can be, but mapping of the processes behind the products is a key to quality and efficiency improvements.

Coordinated data will give benefits

Data editing is a central area in Statistics Norway where better methods and coordination will give benefits.

The best methods will be used

Use of the best available methods is an important aspect of the systematic quality work. Good methods may be identified after a study of similar internal processes, for example as within data editing. But international cooperation and comparisons between national statistical institutions (NSIs) are also of great interest. Statistics Norway will work actively to exchange experiences, methods and technology with other NSIs.

Increased use of statistical methods

Statistical methods are central to improve quality both in collection, compilation and analysis of statistics. It is an objective to increase the use of such methods both in production of statistics and in analyses.

Research in statistical methods encompasses:

• Sampling and non-response problems
• Measuring errors and methods to estimate accuracy in statistics
• Linkage of register-based statistics and sampling
• Editing methods
• Methods for seasonal adjustments
• Methods for development of questionnaires, on paper and electronically

Emphasis will be put on international cooperation, also by participating in international research programmes in this area.

Simplification and testing of questionnaires

In those cases where Statistics Norway cannot base statistics on administrative registers, but has to ask the data providers directly, great emphasis will be put on using simple questionnaires - electronic or on paper - giving precise information. This gives better quality of answers and reduces the need for data editing. If it is convenient, new or revised questionnaires will be tested together with representatives from the respondents.

Coordination of samples

It is important to avoid that some participants in sample surveys experience an unreasonable response burden. This will be taken into account by coordinating the samples in the different surveys.

Common database with standards

Ensuring a uniform use of standards across statistical areas is an urgent task. A common database for statistical standards will be established. The national responsibility of Statistics Norway for uniform use of such standards is to be pursued in the cooperation with other producers of official statistics.

7. Management, organisation and human resource development

7.1. Management

Statistics Norway's organisation and management are dealt with in the Statistics Act, and are at any time described in more detail in a separate steering document.

Management will promote quality

Management positions should be limited in time

Statistics Norway's management policy will promote quality and responsibility for results on all levels in the organisation. It will contribute to strengthen the institution as knowledge-oriented, to satisfy user needs and promote cooperation and the participation of all employees in decisions. New user needs, increased educational level in society and in Statistics Norway, and a more flexible working life represent new challenges for the management. A set of requirements for mangers in Statistics Norway has been drawn up.

Statistics Norway wants to stimulate the rotation among leaders and increase the recruitment of women for leadership positions. One measure to promote this is to limit the time period anyone person can have the same executive position.

Systematic evaluation of managers will take place at regular intervals.

Quality and performance indicators

Statistics Norway bases its activity on the annual operating plan, which is worked out in accordance with the strategy, but which naturally enough is more concrete and contains goals for different organisational areas. The operating plan is followed up every year. As a support to the follow-up and in the reporting to the Ministry of Finance, a set of performance indicators has been developed. These may apply to different levels, and are used in addition to information about accounts and use of resources. Examples are measurement for the use of statistics and user satisfaction, timeliness, accuracy, respondent percentage (important for accuracy) and response burden. Goals are set for some of the indicators. The indicators may be seen in connection with the systematic quality work. They will be quality secured and developed further in line with steering and reporting needs.

7.2. Organisation

The organisation has to adapt to the needs of users, data suppliers and employees

Statistics Norway is at all times to adjust the organisation and ways of working so that the users', the respondents' and the employees' needs are taken care of in a satisfactory way. The organisation is to promote quality and cost efficiency and must adjust to new technology.

Statistics production is mainly organised in departments and divisions. These are responsible for all production processes, from collecting data to preparation for publishing their own statistics (line organisation). Such an organisation gives the employees closeness to the products they create, and results in efficient processes. Some functions are by nature common for the whole institution, and are taken care of by special units. This is for instance the case for the main part of the administration, security services, the main part of the research and methodology work, work on maintenance and development of the ICT structure, the final steps of dissemination and some external information. In addition come coordination functions such as the central work on standards. Some of these tasks are taken care of with the help of inter-departmental committees and project work. The principles in Statistics Norway's organisation have mainly remained the same the last ten years, but adaptations and adjustments have taken place.

Technology has in recent years led to a stronger coordination of the dissemination activity. This is not the least due to the Internet service and the need for a common profile and routines for the release of statistics on ssb.no. The further development with the Statistics Databank as a central in the dissemination process (see figure in chapter 3.5), creates a need for a better organisation regarding this. A new and common technology for electronic data collection is also in the works, and through the Internet data collection and dissemination are more closely connected. Stronger coordination of data editing may in many areas result in better quality and also cost efficiency.

Project and team work

Statistics Norway has a relatively flat organisation structure with few formal manager levels. This puts demands on delegation of responsibility. Project and teamwork is important in Statistics Norway, also in connection with interdepartmental tasks and in the systematic quality work. Quality work and technology lead to efficiency improvement of administrative functions. Use of information technology, standardised solutions for economy and personnel functions and cooperation with other institutions are relevant issues in this connection. It will be assessed which tasks are to be kept internally and which tasks may be purchased externally. This has much to do with the availability of human resources.

The organisation will be considered

Changes in user needs and technology may lead to adjustments in the organisation. A systematic evaluation of the organisation will take place.

7.3. Staff

If Statistics Norway is to fulfil its tasks the institution must deliver statistics and analyses of high quality. This is again dependent on the ability to recruit and keep employees with the appropriate competence, and that Statistics Norway has enthusiastic and competent employees.

The tasks have to be individually adapted

Competence involves both professional knowledge, ability to solve tasks and cooperation. Both professional and social competences are important. Correct competence may be obtained by using and further develop existing human resources, by recruiting new staff or by hiring.

Both the ability to keep competence and to recruit new staff members is dependent on Statistics Norway being an attractive place to work. This means that the work tasks must be adjusted to the individual's competence and development potential. Improved efficiency of statistics production and other routine work may open for having more people participating in development work and analyses.

Better possibilities for personal development

Statistics Norway will work out a development programme for statisticians that will be offered to newly-hired employees. Employees who have worked for some years will be offered the possibility to qualify themselves as statistical advisers. Offer to work on a doctorate degree is another way to secure recruitment of qualified skilled employees. Staff members are to be offered professional career and salary development without having to change to managerial positions.

A strategy on human resources will be worked out

A special strategy for human resource development will be worked out. This will be the basis for the further development of the internal school to a strategic element in competence development. Regular education in project and quality work, in addition to a number of courses in methods and tools supporting statistics production, research and dissemination, will also be pursued. Language courses in connection with international cooperation will also be offered.

Rotation

Staff members will be given the opportunity to further development by changing work areas and rotate internally in the organisation.

The recruitment policy in Statistics Norway is to promote equal opportunities, and working conditions are to be arranged in such a way that functionally disabled and employees in all age groups are given equal opportunities.

Statistics Norway will offer competitive salaries.

Cooperation with universities

Statistics Norway is to have contact with universities and colleges in order to spread knowledge about statistics and analyses, and about the institution as a work place.

Readjustment to new tasks require new competence

Improvement of efficiency leads to needs for adjustment of tasks, especially for personnel groups without higher education. Competence development will still be important for these groups, in addition to other initiatives.

Satisfied employees give better quality

The personnel policy is to promote values such as responsibility, equivalence, cooperation, openness and loyalty. Many of these aspects are connected to superior institutional values such as integrity and efficiency, or are important as a basis for teamwork and well-being, which also are central in the systematic quality work. Satisfied staff members produce better quality, and staff perception surveys will be conducted regularly.

Easier to work at home

Information and participation by all in decision-making are central factors for well-being. A good and trustful cooperation between leaders and trade unions is important in this relation. Systems for internal information via the Intranet will be further developed.

Statistics Norway's international activity offers the employees possibilities for challenging work in addition to travels and possible stays in other countries.

Flexible working arrangements are important. The technological development has opened for new possibilities for working at home or other places than in the regular place of work. Statistics Norway will offer their employees possibilities for taking advantage of this when it is suitable.