This country note features selected environmental indicators from the OECD Core Set, building on harmonised datasets available on OECD Data Explorer. The indicators reflect major environmental issues, including climate, air quality, freshwater resources, waste and the circular economy, and biodiversity. Differences with national data sources can occur due to delays in data treatment and publication, or due to different national definitions and measurement methods. The OECD is working with countries and other international organisations to further improve the indicators and the underlying data.
Environment at a Glance: Norway
Norway has an open economy with a substantial petroleum sector. It is among the richest OECD countries. The country is one of the world’s largest energy exporters. Most of Norway’s crude oil is exported to other European countries. Income inequality is lower than in most advanced economies. Norway’s economy has increasingly diversified. The service sector accounts for close to two-thirds of the economy, the industry sector represents about one third (including mining and construction) and agriculture, forestry and fishing about 2%. Norway has a coastline of nearly 29 000 km, including fjords and bays, and invests heavily in developing a sustainable maritime sector. After a slight decrease due to the 2008-09 financial crisis, gross domestic product (GDP) grew at a slightly lower rate than the OECD average. The country recovered faster than most countries from the COVID-19 pandemic slowdown.
Norway is a northern European country with a small population of 5.4 million people; about 80% live in urban areas, less than 10 km from the sea. Due to harsh climatic conditions, a large part of the country is unsuitable for settlement. Norway’s northern areas are sparsely populated and are notably the traditional home of the Sami minority (about 20 500 registered Sami voters). Norway’s population is growing slowly but steadily. It is expected to reach close to 6 million people by 2050. Norway has the second lowest population density in Europe.
Norway is one of the world’s northernmost countries; the mainland reaches beyond the Arctic Circle. Despite being dominated by forests and mountains, Norway has a rich landscape diversity, particularly in the southern regions. It contains the largest and most pristine representations of many European landscape types. Arable land represents less than 3% of the total land area.
While not a member of the European Union, Norway is part of the EU internal market through the Agreement on the European Economic Area. As such, it implements large parts of EU environment and climate policies. The country also has a long tradition of applying a wide range of economic instruments to green its economy. Norway has a well-functioning environmental governance and management system with a high level of co-operation, vibrant civic engagement in decision making and strong advisory bodies. Citizens have generally free, open access to high-quality environmental information.
Norway has decoupled greenhouse gas (GHG) emissions from GDP growth since 2015. After peaking in 2007, domestic GHG emissions have declined, albeit more consistently in the second half of the 2010s. In 2020, they were about 10% lower than in 2010, but only about 4% lower than in 1990. The starting point for emissions reductions in Norway was low because its energy mix was already largely decarbonised, leaving few remaining quick wins.
The country’s large forest areas provide a substantial carbon sink, representing nearly half of annual GHG emissions. Norway is a small GHG emitter with absolute emission levels similar to other Nordic countries. Emission level per person remains below the OECD average. Per unit of GDP, Norway has one of the lowest emission intensity in the OECD area.
Due to oil production, per person production-based and demand-based (or footprint) greenhouse gas (GHG) emissions remain well above the OECD averages.
Similar to other OECD countries, energy industries, dominated by oil and gas production, are the largest emitting sector, together with the transport sector. They contribute to nearly a third of the country’s GHG emissions. Despite targeted climate action, the transport sector contributes about a quarter of Norway’s emissions. It is followed by industrial processes and product use, agriculture, residential and other sectors and fugitive emissions from fuel. The structure of emissions is expected to remain substantially unaltered by 2030 (OECD, 2022[1]).
Norway has one of the most decarbonised power sectors of Europe and of the OECD area, thanks to the widespread use of electricity from renewables – primarily hydropower. Oil, natural gas and coal together represented less than half of total energy supply (TES) in 2023. Norway has reduced the share of fossil fuels since 2013 with a view to cutting GHG emissions. Coal made up about 3% of TES for the past few decades. In 2021, the government announced the closure of its only coal-fired power plant in Svalbard. Norway does not use any nuclear power in its energy supply (OECD, 2022[1]).
Following Iceland, Norway has the second largest share of renewables, representing more than half of its energy mix and 98.5% of its electricity output. It is the largest hydropower producer in Europe and among the top 10 worldwide. The share of wind power is rapidly increasing. Norway is energy self-sufficient with a surplus of renewable electricity in normal years. It has become Europe’s largest energy exporter (OECD, 2022[1]).
Norway’s emissions and intensities of fine particulate matter (PM2.5), nitrogen oxide (NOx), sulphur oxide (SOx) and black carbon have all decreased over the past decade. With the exception of ammonia (NH3) and an increase in non-methane volatile organic compounds (NMVOC) emissions due to increased use of disinfectants during the COVID-19 pandemic, Norway reached its air emission targets for 2020. The largest emissions of black carbon originate from the transport sector and wood combustion in residential heating; both emission sources have been considerably reduced. While Norway had failed to meet the Gothenburg Protocol target on NOx emissions in 2010, the country has reduced its NOx emissions by nearly a third since 2005. The NOx tax and the Business Sector’s NOx Fund contributed to reducing NOx emissions in the business sector, including shipping, while supporting the phasing-in of new technology. Both measures helped Norway meet the 2020 Gothenburg Protocol target. The country also reached its 2020 Gothenburg Protocol objectives for sulphur dioxide (SO2) and non-methane volatile organic compounds (NMVOCs) but not for ammonia (NH3) emissions (OECD, 2022[1]).
Norwegians enjoy good overall air quality. Premature death attributed to fine particles (PM2.5) exposure in Norway is less than one-third the OECD average. Average population exposure to PM2.5 in large Norwegian regions remains above the guideline value of 5 µg/m3 recommended by the World Health Organization, but western and northern regions are close to achieving it.
Norway complies with EU directives on air quality standards. In addition, the country has set more ambitious local and national targets, supported by excellent nationwide air quality monitoring services. In 2021, Norway’s four major cities all ranked in the top 20 of the European City Air Quality Index. Nevertheless, nearly all larger cities in Norway face localised air pollution problems and periodic worsening of air quality with high peak PM10 concentrations during winter and into spring (OECD, 2022[1]).
Norway has abundant water resources and is endowed with a large number of lakes and river habitats. Intensity of water use (abstractions as a percentage of available resources) continues to be among the lowest in the OECD area. However, total freshwater abstractions have increased, notably due to higher consumption by households and significant water losses. Leakage from the drinking water supply system is estimated at 30%. This represents not only a significant loss of water resources but also a potential risk for microbiological contamination in drinking water. Nevertheless, the supply of drinking water is good: nearly 90% of Norwegians have access to treated drinking water from waterworks with high quality standards. Surface water provides 90% of drinking water (OECD, 2022[1]).
Most people are connected to public wastewater treatment. However, less than two-thirds of Norway’s population is connected to at least secondary wastewater treatment, which is one of the lowest shares in the OECD area. The share of primary wastewater treatment is particularly high in remote areas. Some 350 000 treatment plants deal with wastewater from about 800 000 people who live in sparsely populated areas. New independent treatment systems are also being built for individual houses and cabins, while other buildings are connected to the public sewerage system. The country’s ageing sewage and drinking water infrastructure requires urgent upgrades. It also needs to adjust to new climate challenges, such as increased precipitation, floods and rising sea levels (OECD, 2022[1]).
The average Norwegian produces among the highest amounts of municipal waste in the OECD, due to a high level of consumption and the inclusion of some waste from the service and industry sectors in the definition. The definition of municipal waste has been changing over the years, which makes it difficult to compare data over time (break in time series in 2016). The decrease in 2020 is due to the COVID-19 pandemic and associated restrictions, which led to an increase of waste generated by households, but also to a decrease of municipal waste from other sources (in particular services). Separate collection of municipal waste is well advanced; bio-waste collection in Norway was introduced in the 1990s. Today, about 70% of Norwegians live in municipalities with source separation of bio-waste and door-to-door collection of food waste (OECD, 2022[1]).
Nearly half of municipal waste is treated by incineration with energy recovery, while landfilling has almost disappeared following a ban established in 2009. The country has excellent waste treatment facilities, with cutting edge technology for waste sorting. In 2022, the government introduced a tax on CO2 emissions from waste incinerators (OECD, 2022[1]).
Norway has one of the world's highest material consumption rates, a high material footprint per person and low material productivity. More than half of the materials extracted are exported, in particular fossil energy. The government released its first strategy for developing a green, circular economy in July 2021. The strategy has broad scope and largely applies the EU Circular Economy Action Plan 2020 (OECD, 2022[1]).
Norway contains representations of a wide range of climatic conditions, landscapes, vegetation and land use in close proximity, making it one of the most diverse landscapes in Europe. More than one-third of the bioclimatic variation in all of Europe and North Africa is represented within mainland Norway. In addition, it contains the largest and most pristine representations of many European landscape types. Consequently, Norway plays an important role in landscape and species conservation for the whole continent. Although land take is relatively low compared to other European countries, land-use changes in forestry and in agriculture, as well as changes in built-up areas for housing and road purposes, are important drivers of habitat loss in Norway (OECD, 2022[1]).
A large proportion of Norway’s red-listed species has declining populations, generally because of habitat loss, degradation or fragmentation as a result of human activity. Of the nearly 3 000 threatened species in the Red List 2021, nearly 10% are critically endangered, about one third are endangered and half of them are vulnerable. In 2021, about one quarter of mammals, bird species, mosses and plants were threatened. The share of threatened species in all four of these categories has increased since 2015. The total number of assessed species has also increased.
Norway’s profile is overall similar to its Nordic neighbours, with a comparatively large share of threatened birds. Most threatened species are associated with forest, cultural landscapes (semi-natural areas or open land used for agriculture) and mountains, and to a lesser extent with wetlands and marine and coastal waters. Threatened species are found mainly in the southern regions where species diversity is high and human activity widespread (OECD, 2022[1])
Protected areas make up just over 17% of Norway's mainland area. This is above the OECD average. Considerably larger portions of land area in Svalbard (65%) and Jan Mayen (nearly all) have been protected for several decades. However, protected areas are not entirely representative of all landscape types, and forest protection is about half the national target of 10%. Moreover, nearly one third of protected areas are at risk of degradation and require additional action to secure their conservation values.
Norway is well below the OECD average for marine protected areas and failed to meet the 2020 Aichi target. Only a small share of territorial waters is protected, though Norway has committed to preserving 30% of marine areas as protected spaces. The large majority of Svalbard’s and all of Jan Mayen’s territorial waters are protected areas.
Only about 0.35 % of the country’s land is covered by protected areas that have had management effectiveness assessments and the same is true for 0.01% of the EEZ. Protected Area Management Effectiveness (PAME) evaluations, can be defined as: “the assessment of how well protected areas are being managed – primarily the extent to which management is protecting values and achieving goals and objectives" (Hockings and al, 2006[2]).
This section shows selected policy instruments based on data available for most OECD countries and does not provide a complete overview of countries’ policy mix to achieve their environment-related objectives. Interpretation should consider the country specific context.
Norway is a pioneer in using economic instruments for environmental protection to encourage innovation and internalise some of the environmental costs of harmful activities. It was among the first countries to introduce a carbon tax in 1991. Since then, the country has introduced many other environment-related taxes.
As in other OECD countries, energy-related taxes, including taxes on road transport energy, make up the bulk of environment-related taxes, followed by transport taxes; only a small portion comes from waste and other pollution and resource taxes.
Norway’s share of environment-related taxes in total tax revenue and GDP is below the OECD Europe average and has drastically decreased over time. This decrease is partly due to the fact that taxes effectively contributed to reducing environmental harmful activities, and thereby undermined their own tax base as illustrated in the example of forgone tax revenues in relation to zero emission vehicles (ZEVs).
While energy and pollution-related taxes have increased since 2012, transport-related taxes have declined since 2004 due to Norway’s generous support for ZEVs. The related tax revenue losses represented close to a third of environmental tax revenue. Moreover, the estimated tax expenditure does not include the full economic advantage given to low- and zero-emission vehicles for many years. The overall advantage is nearly three times higher than the VAT-related tax expenditure (estimated at NOK 30 billion (USD 3.5 billion) in 2021) (OECD, 2022[1]).
Norway’s fossil fuel support mainly arises from exemptions to the Basic Tax on Mineral Oil, which was introduced in 2000 to avoid a switch from electricity to mineral oil for heating purposes, due to increased electricity tax. Many activities, where electricity is still not a viable option, including shipping and aviation, were thus exempted from the tax.
Norway aims to provide a long-term perspective on carbon pricing; it thereby provides a strong price signal to encourage increased investments in renewable energy and low-carbon technologies. Norway’s Climate Action Plan 2021-30 proposes to raise gradually the carbon tax on non-ETS emissions from NOK 590 (USD 69) per tonne of CO2-eq in 2021 to NOK 2 000 (about USD 233) by 2030. A first step was taken in 2022, when the general tax rate was increased by 28% (in real value).
Norway’s nominal carbon tax rate is among the highest in Europe covering over 80% of national emissions (excluding emissions from the combustion of biomass). Effective tax rates are relatively high compared to other European OECD countries, especially outside the road transport sector. Norway has also introduced a carbon tax on waste incineration and abolished the exemption for the use of natural gas and LPG in the greenhouse industry in 2022 (OECD, 2022[1]).
In total, 83.4% of GHG emissions in Norway were subject to a positive Net Effective Carbon Rate (ECR) in 2023. Explicit carbon prices in Norway consist of emissions trading system (ETS) permit prices and carbon taxes, which cover 83.4% of GHG emissions in CO2 eq. With roughly 61.8% of total GHG emissions, coverage is largest for carbon taxes. Fuel excise taxes, an implicit form of carbon pricing, cover 18.4% of emissions in 2023. About 81% of GHG emissions have a Net ECR above EUR 60 per tonne of CO2 eq., a mid-range estimate of current carbon costs. Net Effective Carbon Rates are highest in the road transport sector, which accounts for 18% of the country's total GHG emissions. The Net ECR is on average positive in all sectors (OECD, 2024[3]).
The total amount of Norway’s public support for business R&D has increased by over 50% between 2015 and 2020. Spending for environmental objectives represented almost 3% of total public R&D in 2023. Public funding in renewables has been increasing since 2000. It notably targets the development of energy and climate technology with a view to supporting lasting climate-friendly market changes. The state-owned enterprise Enova provides funding for new technology development, supporting nearly 4 000 projects. Moreover, a Green Platform encourages investment and innovation in all sectors. The platform aims to stimulate bigger and more rapid investments from companies in green sustainable solutions and products. The initiative is cross-cutting and involves participation of five ministries. Other measures funded investments in key infrastructure sectors such as green maritime transport.
Norway is a relatively minor player in environmentally-related patenting activities. Less than 250 patents have been filed annually for protection in at least two jurisdictions by national inventors since 2010. The share of environmentally-related inventions in total patents is in line with the OECD average, at 10-15%.
Norway’s development programme focuses on climate change and renewable energy, global health, gender equality and sexual and reproductive health and rights, food security, reducing inequality and humanitarian assistance. An increasing share of the budget is also spent on humanitarian assistance. Norway is committed to spending 1% of gross national income (GNI) as international support for achieving the Sustainable Development Goals (SDGs), placing it among the Development Assistance Committee’s (DAC) most generous providers of official development assistance (ODA). Norway’s total ODA decreased in 2024 to USD 5.2 billion (preliminary data), representing 1.02% of gross national income – the highest ODA/GNI ratio among DAC members.
In 2022-23, Norway committed 36.8% of its total bilateral allocable ODA in support of the environment and the Rio Conventions, up from 24.4% in 2020-21. The DAC average was 39% in 2022-23. Fourteen per cent of screened bilateral allocable ODA focused on environmental issues as a principal objective, compared with the DAC average of 9.6%. Thirty-one per cent of total bilateral allocable ODA focused on climate change overall, up from 20.2% in 2020-21 (the DAC average was 34.8%). Norway had a greater focus on mitigation (22.5%) than on adaptation (13.4%) in 2022-23. Fourteen per cent of screened bilateral allocable ODA focused on biodiversity overall, down slightly from 14.5% in 2020-21 (the DAC average was 7.6%). Norway committed USD 159.3 million in support of the conservation and sustainable use of the ocean in 2023, USD 93 million more than in 2022. The 2023 value is equivalent to 3.5% of Norway’s bilateral allocable ODA. (OECD, 2025[4]).
References
[2] Hockings, M. and E. al (2006), Evaluating Effectiveness. A framework for assessing management effectiveness of protected areas. 2nd Edition, IUCN, https://portals.iucn.org/library/efiles/documents/PAG-014.pdf.
[4] OECD (2025), Development Co-operation Profiles, OECD Publishing, Paris, https://www.oecd.org/en/publications/development-co-operation-profiles_04b376d7-en/norway_08191fd9-en.html.
[3] OECD (2024), Pricing Greenhouse Gas Emissions 2024: Gearing Up to Bring Emissions Down, OECD Series on Carbon Pricing and Energy Taxation, OECD Publishing, Paris, https://doi.org/10.1787/b44c74e6-en.
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