I find your question a bit unclear, but I'll try to answer.
Even in a best-case scenario where the politicians who are creating the laws/rules are well-intentioned and really are trying their best, I guess it's impossible to think of every single real world scenario. Thus, there will always be people who will fall through a complicated safety net.
As for why entrepreneurs aren't always covered in Norway? I'm just speculating here, but anyway: Since WW2, Norwegian politics has been dominated by The Labor Party (Arbeiderpartiet). They usually look out for ordinary workers, which tend to have it pretty good in Norway. Others groups, such as entrepreneurs, drug (ab)users, farmers etc. aren't always treated so well.
