4 Strengthen editorial media

4.1 Introduction

Editorial media are responsible for informing the public on issues of societal importance and ensuring that diverse voices are represented in public debate. They also serve as a public watchdog, exposing matters of public concern and protecting individuals from abuse or neglect. A democratic society with free, editorial media that fulfil this societal mission is well positioned to counter the propagation of disinformation. Access to verified, balanced and timely information reduces the public’s vulnerability to influence, making editorial media more important than ever.

In order for editorial media to provide balanced and trustworthy information to the entire population, a diverse media ecosystem is needed that promotes different perspectives and conveys a variety of stories and analyses in different ways. Public service broadcasters, national and local media, and niche outlets all help ensure a wide range of voices is represented in public discourse.

In order to fulfil their societal mission, editorial media depend on the public’s trust in their independence and their ability to deliver high-quality, credible content. In Norway, trust in editorial media is consistently high.75^,76 Media independence is safeguarded through the Media Liability Act and the self-regulation system. Norway has top ranking on the Reporters Without Borders’ World Press Freedom Index for the ninth consecutive year.77

Editorial media also depend on public engagement with their content. Just over seven in ten Norwegians receive news daily via newspapers, online services, or live radio and television,78 and Norway ranks among the world leaders in terms of willingness to pay for online news services.79 However, many Norwegians access news from sources other than editorial media, with more than one in four citing social media as one of their primary news sources.80

The media sector is facing financial challenges. Editorial media are undergoing a major digital transformation while losing advertising revenue to global technology companies.

This chapter examines these challenges and sets out the measures the Norwegian Government will take to strengthen media diversity and better equip editorial media to fulfil their societal mission.

4.2 Challenges

4.2.1 Media habits are changing

In 1991, 84 per cent of Norwegians read newspapers on a typical day. By 2024, this had fallen to 65 per cent for print or online news. The percentage with access to paid news services increases with age, education and income.81

Many Norwegians also obtain information and news from sources other than editorial media, with more than one in four citing social media as a main news source.82

While accessing news from a variety of sources contributes to healthy public debate, it is important to distinguish between individual opinions and information produced according to journalistic principles and methods. Social media algorithms, which prioritise content that engages users, can also contribute to a skewed perception of the news.

4.2.2 Young people are less frequent users of editorial media

Young people today are more likely than previous generations to turn away from editorial media in favour of other platforms and content. They are able to navigate the increasingly more complex media landscape, combining multiple platforms, screens and content. Determining whether young people consume less news than before is complex, but studies point in that direction.83

The proportion of people citing social media as their main source of news rises as the age of users decreases. TikTok, Snapchat and YouTube are the main platforms through which most 9–18-year-olds access news.84 Thirty-seven per cent of the under 30s report social media as one of their main news sources,85 and nearly half of 16–24-year-olds do not use traditional news media, such as radio, television, or newspapers, to access news.

The fact that young people follow the news less than older generations is not a new phenomenon. However, the shift from print to digital newspapers may mean that children and young people are even less exposed to editorial media. On social media, they may encounter content from these outlets without necessarily recognising the source. While the consequences of this trend are difficult to predict, one concern is that editorial media may find it harder to attract younger audiences. Meanwhile, a growing number of young adults report having access to newspaper subscriptions.86

4.2.3 The media economy is under pressure

In the traditional business model of editorial media, advertising revenue has historically outweighed income from users. These outlets previously held a strong position as key gatekeepers of public discourse while controlling central distribution channels for advertising. Digitalisation has transformed this landscape, affecting the production, distribution and consumption of services and content.

This has also transformed the media economy. User revenues are increasingly challenged by competition from free content and expectations that content should be freely accessible. Advertising revenue is also under pressure, with companies such as Meta (Facebook, Instagram) and Alphabet (Google) dominating the advertising market. Consequently, media outlets have experienced a substantial decline in advertising revenue. In 2023, global actors earned roughly three times the advertising revenue of Norwegian newspapers in the domestic market.

Nowadays, media depend on user revenues to fund journalism. While Norwegian outlets have largely succeeded in encouraging payment for digital news services, this has only partly offset the loss of advertising revenue. Commissioned by the NMA, Oslo Economics has analysed the economic conditions of editorial media and the challenges they will face in the years ahead.87 Their findings indicate that user revenues will need to fund a greater share of journalism, and that media must invest heavily in digital infrastructure to compete with other sources of information and entertainment. The current generation of young people will be the future funders of editorial media, and they tend to consume news via videos or podcasts. Oslo Economics therefore expects demand for news in audio and visual formats to increase.

4.2.4 AI a challenge to current working methods

Rapid advances in generative AI will have major implications for how media operate. AI can streamline workflows and uncover stories that were previously inaccessible; however, it has made verification and fact-checking more complex, often requiring additional resources to determine whether a story, image, video or audio clip is authentic. Media are also vulnerable to misuse by actors seeking to spread disinformation.

Editorial media must constantly balance accuracy with the need to report rapidly on unfolding events. This challenge is exacerbated by competition with social media, with many platforms publishing unverified content far more rapidly than editorial outlets can manage.

Exploiting this technology requires both reorganisation and skills enhancement, and a strained media economy can make it difficult for editorial teams to leverage technological opportunities while minimising risks.

Editorial media in many countries, including Norway, have agreements with AI companies that use their content in information comparison services. If readers increasingly turn to such services rather than accessing editorial media directly, this could have implications for both the media economy and how audiences consume news. While there is concern that these services could reduce traffic to editorial media, they could also drive more traffic to the sites they reference. It is too early to determine the overall impact.

4.2.5 Freedom of the press and media diversity under pressure on platforms

Editorial content on social media plays an important role in giving the public access to reliable information that meets journalistic standards for quality, source evaluation and fact-checking. If popular social media platforms become digital news deserts, this could create vulnerabilities due to reduced access to local and national news and current affairs, and could also have negative implications for emergency preparedness if it becomes harder to disseminate important information. There are also a number of challenges associated with distributing this type of information via social media.

Social media platforms can limit the reach of editorial content or intervene in the content itself.88 Posts may be removed for breaching a platform’s terms of service, regardless of news value or the media’s critical role in society. Several major platforms have introduced algorithmic restrictions on editorial articles because they generate less engagement than entertainment or posts from friends.89 This challenges freedom of the press and the diversity of news content on platforms and could weaken public resilience to disinformation.

4.2.6 Editorial media under international pressure

Press freedom is declining globally, and states and other political actors are playing an increasingly smaller role in safeguarding it. Political actors in an increasing number of countries are reported to be directly involved in propaganda and disinformation campaigns in the media.90

In countries that challenge our security interests, such as Russia, China and Iran, there is no such thing as genuine press freedom. Russian authorities, for example, use state-controlled media to conduct disinformation campaigns about Western countries, targeting both domestic and international audiences. One of the aims of these campaigns is to undermine support for NATO and Ukraine.

The framework conditions for editorial media in other countries can also have negative implications for Norway. Many Norwegians follow international news and can be exposed to disinformation if coverage does not meet journalistic standards. Disinformation about Norway abroad can influence domestic public debate, reduce Norwegians’ trust in authorities, influence Norwegian international business interests and harm Norway’s international reputation. Many Norwegian editorial media rely in part on coverage from international outlets for their foreign news. They are therefore, to some extent, dependent on a credible and independent foreign press to be able to report accurately and impartially themselves.

The global situation also impacts on the safety of Norwegian journalists reporting from abroad, which has implications for press freedom. Conflicts such as those in Ukraine and the Middle East have heightened risks for journalists in these regions, and in countries with authoritarian regimes, journalists reporting on political opposition face harassment.91 Reduced journalist protection can limit coverage from such countries, potentially making editorial media appear less relevant and allowing unverified news on social media to play a greater role in shaping the public agenda.

4.3 Policy instruments

The Norwegian Government’s media policy aims to ensure that all segments of society have access to high-quality media and enlightened public discourse.

Both regulatory and economic instruments support the objectives of diversity and quality within Norwegian editorial media.

4.3.1 Regulatory instruments

Norway has multiple laws designed to safeguard editorial freedom and ensure a diverse media landscape.

4.3.2 Direct media support schemes

The four direct media support schemes are designed to ensure both geographic and thematic media diversity. A variety of additional media support measures are also in place.

4.3.3 Norwegian Broadcasting Corporation

International comparisons indicate that a strong public service broadcaster contributes to a more informed, and thereby more resilient, population.92

The Norwegian Broadcasting Corporation (NRK) promotes public discourse and helps ensure that the entire population receives adequate information to participate actively in democratic processes. Furthermore, NRK has an independent responsibility to support media diversity in Norway, both at a regional and national level.

Surveys show that the public has a high level of trust in NRK and actively uses its news services.93

NRK also performs a central role in emergency preparedness, with a statutory duty to ensure that information from the Norwegian Government reaches the population during crises and wartime.94

4.3.4 Grants to TV2 as a commercial public broadcaster

Since 2018, TV2 has operated under an agreement to provide commercial public broadcasting services. The purpose of the agreement is to help maintain media diversity, ensure genuine competition to NRK and provide nationwide news broadcasts produced and transmitted outside Oslo.

The agreement strengthens media diversity, in part by ensuring the presence of a commercial public broadcaster outside the Oslo region. It also requires TV2 to employ editorial staff for its news broadcasts in at least six different locations across the country.

4.3.5 VAT exemption for newspapers

When value added tax (VAT) was introduced in Norway in 1970, it was decided that printed media, including newspapers, would be exempt. The justification for the exemption for editorial media was that they are important for public discourse and that a pluralistic daily press provides the foundation for a free and diverse formation of opinion.95 The exemption applies to newspapers, including electronic newspapers that consist predominantly of text and still images.

4.3.6 International work

Norway’s Ministry of Foreign Affairs has devised a strategy for promoting freedom of expression in Norwegian foreign and development policy.96 The strategy describes key priorities in Norway’s international work to promote freedom of expression and the diversity of free and independent media. These objectives are pursued through multilateral cooperation, political dialogue and support for partner organisations such as the UN, the Council of Europe, the EEA, the Organization for Security and Cooperation in Europe (OSCE) and other multilateral organisations, as well as NGOs and industry organisations. Support includes measures to strengthen journalist protection, provide education and training for journalists, facilitate knowledge exchange and develop national legislation and institutions.

In Report to the Storting no. 20 (2024–2025) Promoting democracy, rule of law and human rights in Europe,97 the Norwegian Government outlines how Norway will work internationally to counter the spread of disinformation by protecting freedom of expression, ensuring an independent and critical press, and strengthening critical media literacy. Norway will help strengthen global fact-checking solutions, reinforce and complement national regulatory frameworks and highlight the responsibility of technology companies to uphold human rights.

Creative Europe is the European Commission’s programme for culture and media. It counters disinformation by promoting media diversity, media freedom and media literacy. Creative Europe provides support to journalists and to initiatives promoting independent media in Europe, and Norway has participated in the programme since its inception.

Cultural cooperation within the framework of the Nordic Council of Ministers also includes cooperation in the media sector. The Nordic Cooperation Programme for Culture 2025–2030 aims to strengthen freedom of expression and artistic freedom in the Nordic countries, including by emphasising the free and independent role of the media. The programme will also focus on countering disinformation through increased Nordic cooperation and specific measures.

4.4 Measures

4.4.1 Determine the appropriate level, design and distribution of media support schemes

The media economy is under pressure due to declining advertising revenues and tough competition from global platforms. Reduced financial resources limit editorial media’s capacity to fact-check, verify and balance claims, thereby diminishing their role as a counterweight to the propagation of disinformation. A weakened media economy can also have implications for media diversity.

The direct media support schemes are part of the four-year policy frameworks approved by the Storting, with the next period covering 2027–2030. In this context, the Norwegian Government will consider the appropriate level, design and distribution of the direct media support schemes.

4.4.2 Explore potential measures to boost the use of editorial media by young people

A high level of news consumption is an important element of a society’s resilience to disinformation. It is therefore concerning that children and young people appear to consume less news from editorial media than before.

The Norwegian Government recognises the need for measures to promote good media habits among young people – habits that will remain with them. Norway’s Ministry of Culture and Equality has therefore commissioned the NMA to examine how such measures could be structured, for instance through subsidised access to journalism, new grant schemes, or by expanding existing schemes.

The Government will consider how to follow up the recommendations of the NMA.

4.4.3 Support investigative journalism

Local journalism plays an important role in local communities. However, the current financial pressures make it difficult for many small newsrooms to prioritise investigative reporting. The Norwegian Government therefore seeks to support collaborative initiatives that make it easier for smaller newspapers to undertake investigative journalism, adopt new technology and enhance journalists’ skills.

In 2025, the Government strengthened its support for investigative journalism, use of technology and skills development in smaller newsrooms by increasing funding for the Center for Investigative Journalism (SUJO) and for Samarbeidsdesken, a joint project between the Association of Norwegian local newspapers, SUJO and NRK. This project provides access to research material on key social issues in order to facilitate investigative and in-depth journalism.

The Government will consider whether there is a need to further strengthen investigative journalism.

4.4.4 Support skills enhancement for journalists

Fact-checking and verification have become increasingly complex due to technological advances and developments in the security situation. These changes have created a greater need for newsrooms to enhance skills and adopt new tools.

Newsrooms have an independent responsibility for securing the skills they consider necessary. In addition, the Norwegian Government provides grant funding for the Norwegian Institute of Journalism, which is a national centre of expertise for media. The combination of rapid technological change and the challenging media economy makes this support more important than ever.

The Government will consider whether to provide further support for skills enhancement for journalists.

4.4.5 Strengthen press freedom in social media

Press freedom is under pressure on social media, where platforms can delete or down-rank editorial content without regard to its news value or editorial media’s critical role in society. This creates vulnerabilities that can weaken society’s resilience to disinformation.

The DSA requires social media platforms to include the protection of press freedom in their terms of service. Platforms must also identify and mitigate systemic risks to press freedom, including through the design of recommendation algorithms and content moderation. The EMFA requires platforms to notify editorial media 24 hours before deleting or restricting editorial content. It also provides for structured dialogue at the European level.

The Norwegian Government will help ensure effective enforcement of the DSA and EMFA to maximise protection of press freedom for Norwegian media on social media platforms.

4.4.6 Promote safer conditions for journalists

Despite the turbulent global context, Norway remains a safe country for most editorial staff, as reflected in the annual Reporters Without Borders’ World Press Freedom Index, which Norway topped for the ninth consecutive year in 2025. However, not all journalists in Norway have a safe working environment free from threats and harassment. Such conditions can lead to self-censorship, reducing media diversity and undermining public discourse.

It is therefore important to closely monitor journalists’ safety, in line with the Council of Europe’s recommendations and its campaign for journalist protection. The Norwegian Government has invited the press organisations to explore how government authorities and the media can work together to ensure safe conditions for all journalists in Norway. This initiative will be followed up through the forthcoming national strategy for open and enlightened public discourse.

4.4.7 Strengthen editorial media internationally

In Report to the Storting no. 20 (2024–2025) Promoting democracy, rule of law and human rights in Europe,98 the Norwegian Government sets out its international work to counter the propagation of disinformation by protecting freedom of expression, supporting an independent and critical press and promoting critical media literacy. Norway will help strengthen global fact-checking solutions, reinforce and complement national regulatory frameworks and highlight the responsibility of technology companies to uphold human rights.

The Strategy for Promoting Freedom of Expression in Norwegian Foreign and Development Policy 99 outlines key priorities for Norway’s international efforts to promote freedom of expression and a diverse, independent media landscape. These objectives are pursued through multilateral cooperation, political dialogue and support for partner organisations such as the UN, the Council of Europe, the EEA, the OSCE and other multilateral organisations, as well as NGOs and industry organisations. Support includes measures to strengthen journalist protection, provide education and training for journalists, facilitate knowledge exchange and develop national legislation and institutions.

The Government will continue to act as an international advocate for initiatives that build resilience to disinformation

The Norwegian Government will

• determine the appropriate level, design and distribution of the direct media support schemes for the upcoming four-year policy framework period, 2027–2030
• consider potential measures to boost the use of editorial media by young people
• support investigative journalism, with a particular focus on strengthening local reporting
• support skills enhancement for journalists
• promote press freedom and media diversity in social media, search engines and other online platforms
• explore measures to enhance journalist protection
• act as an international advocate for initiatives that build resilience to disinformation by protecting freedom of expression, ensuring an independent and critical press and promoting critical media literacy