2 Introduction and background to the white paper

The white paper Assistance to Norwegians abroad (Meld. St. 12 (2010–2011)) was published in 2011. Although the framework and main principles of consular assistance had been established long before, this was the first time the full breadth of consular assistance to Norwegians abroad was presented in a white paper.

Since the publication of the previous white paper, various developments and trends have made it necessary to consider whether there is need to make adjustments to the consular assistance offered today. For example, Norway now allows dual citizenship. The nature of consular cases changes in step with demographic and social developments, and there is a need to update some of the legislation. The demand for consular services is high, and the Ministry of Foreign Affairs is seeing that people have increasingly high expectations of the types of services they should be able to receive abroad.

No one is entitled to receive consular assistance. Nor is anyone obligated to request consular assistance or to accept the assistance that is offered.

For the purposes of this white paper, the term ‘nordmann’ (a Norwegian) is defined as ‘a person who has Norwegian citizenship’. This is not a question of culture, identity or ethnicity.

The term ‘Foreign Service’ generally refers to the Ministry of Foreign Affairs in Oslo and all Norway’s missions abroad, i.e. embassies, consulates general and permanent missions to international organisations. In this white paper, it is the 82 embassies and consulates general abroad that are relevant, and they are referred to as ‘the missions’. Norway’s approximately 300 honorary missions are referred to in this document as ‘honorary consulates’. These are headed by honorary representatives, who are referred to as ‘honorary consuls’.

Norwegians travel a great deal. According to Statistics Norway’s travel survey, Norwegians made 8.4 million trips abroad in 2024. In addition, many Norwegians live abroad more or less permanently – working, studying or after retirement. Many Norwegians lead cross-border lives: they have close family ties in other countries or alternate between living in Norway and living abroad. Others choose to emigrate from Norway, and some Norwegians have never or have rarely been in Norway.

This white paper describes the current status of Norway’s consular services and relevant developments and trends, and sets out realistic recommendations for how work in this area can be further developed in the future.

Developments and trends

The number of Norwegians who originally come from a country other than Norway has risen steadily in recent decades. Over the past 45 years, some 500 000 people have applied for and been granted Norwegian citizenship. Until 2020, Norway adhered to the principle of single citizenship. When Norway decided to allow dual citizenship, it was estimated that more than 50 % of those who had applied for and been granted Norwegian citizenship before this time had nevertheless been able to retain their original citizenship because it had not been possible to relinquish it. These individuals therefore became dual citizens when they were granted Norwegian citizenship,1 just as those who apply for and are granted citizenship today normally do, depending on the legislation in the other country. In addition to those who apply for and are granted Norwegian citizenship, many people automatically acquire more than one citizenship at birth. Dual citizenship may have implications for the types of consular assistance the Norwegian authorities can offer.

The fact that many Norwegians have dual citizenship means that they can be in their ‘home country’ both in Norway and in another country. It is often the case that when they are in their other home country, whether they are visiting or permanently residing there, people with dual citizenship are treated in the same way as other citizens of that country. This has implications for the types of consular assistance they can expect to receive.

The Foreign Service is seeing a steady rise in cases involving Norwegian citizens who have never been in Norway or have very weak ties to the country. Some Norwegians choose to settle in countries where the security situation is extremely challenging, or establish families in a country from which they have previously fled.2

Every year, thousands of Norwegian children are born abroad. The procedures and legal framework for dealing with cases involving children and their citizenship and identity have long been fragmented and complicated. These are difficult cases for the missions to deal with, and the missions use substantial resources clarifying issues relating to national identity numbers, passports and paternity.

In recent years, it has become clear that more and more Norwegians live abroad for part or all of the year. Not all of them register as having emigrated, and some of them continue to be voluntary members of the Norwegian National Insurance Scheme. The missions come in contact with many Norwegians who basically reside abroad but who have not notified the National Population Register that they have moved away from Norway. As a result, they may receive social security benefits from Norway unlawfully. All public authorities have a statutory duty to notify the National Population Register of any information they receive that is at variance with the information registered there.

Most Norwegians who live abroad manage well on their own and seek assistance from the local authorities as needed. However, there is a clear trend that as Norwegians living in other countries grow older, their need for assistance increases and they tend to contact the missions for help. Some of them have health problems, and some need help communicating with other Norwegian authorities. Many have difficulties navigating today’s digital society, and do not have BankID, for example. They need to have a valid ID document, but are not able to travel to an embassy to renew their passport. In all likelihood, the number of elderly Norwegians who live abroad will continue to grow, and this will lead to greater pressure on the missions in certain countries. In addition, the Foreign Service is seeing a rise in the number of Norwegians suffering from mental illness who need assistance during trips abroad.

Over the past decade, the Norwegian Foreign Service and the foreign services of other like-minded countries have had to deal with a number of especially complex consular cases. This includes cases involving individuals who have moved to a conflict zone to join a terrorist organisation and have then been interned by a non-state armed group. There have also been cases where individuals have been subject to enforced disappearance or arbitrary detention. Such cases are very rare but are challenging to deal with.

More and more Norwegians are being affected by major crises abroad. This is partly due to increased global instability and partly to the fact that more people holding a Norwegian passport travel abroad, both on short trips and to settle in other countries. This includes countries and areas where Norwegians have traditionally not tended to travel or settle, and to which the Norwegian authorities advise against travelling.

A number of major crises in recent years have illustrated this trend. Following the collapse of the Afghan state in August 2021, a large-scale operation involving many parts of the Norwegian government administration was initiated. Under somewhat chaotic circumstances, an airlift operation was carried out and more than 1 100 people were transported from Afghanistan to Norway. In spring 2023, internal tensions in Sudan escalated, and a complex operation to assist Norwegian citizens ensued. This time some 140 people were transported to Norway. Following the attack on Israel on 7 October 2023 and Israel’s response, a large-scale, prolonged operation was launched to get Norwegian citizens out of Israel and Gaza and bring them to Norway. This applied to approximately 200 and 300 people, respectively.

The Foreign Service’s work to assist Norwegian citizens affected by crisis situations abroad has required greater resources over the past few decades, and the Ministry of Foreign Affairs has significantly strengthened its crisis management capacity. Close cooperation with other relevant ministries, such as the Ministry of Defence, the Ministry of Justice and Public Security, and the Ministry of Health and Care Services, is essential in dealing with large-scale crises.

Consular cases and the media

Consular cases and crises attract considerable interest from the media. The Foreign Ministry’s Communication Unit receives some 2 000 enquiries from the media every year, and around 25 % of these concern consular matters.

In connection with some of the consular cases that are reported on in the media, there are sometimes unrealistic expectations as to the types of assistance the Norwegian authorities can offer. It is important to communicate clearly what the Foreign Service can and cannot do. This can sometimes be difficult as the Ministry can often only provide limited information for reasons of confidentiality or out of consideration for the individual or individuals concerned.

There have also been instances where parties to a case have sought to use media coverage to put pressure on the Norwegian authorities to provide more assistance. Contact with the media will not affect the level of consular assistance to be provided by the Foreign Service.

When a crisis situation arises abroad, there is always a great deal of media attention, and the Ministry of Foreign Affairs immediately receives enquiries about whether any Norwegians are affected. In such situations, there is a huge need for information, and the Ministry aims to provide relevant and adequate information to all those who are directly and indirectly affected.