V.10. IN : A natural hub for fishing and aquaculture and with roots in coastal Sami traditions By Mari Wøien & Karen Refsgaard, 2018/2019.

Abstract Description and overview of the Why are some municipalities better than others at municipality deploying their resources, attracting people and Lebesby is around Laksefjord in north east Nor- creating jobs? This was the key question studied in way. Stretching from the northernmost continen- this analysis of the attractiveness of 14 rural mu- tal point in Europe at Kinnarodden (71°8′1″) to nicipalities in the Nordic Region. the mountain Rasttigai'sa (1067 m.a.s.l), Lebesby The 14 areas selected41 are all defined as at- is home to a varied natural environment, tough tractive in the sense that their populations and weather conditions and beautiful scenery. Lebesby the number of people in work have increased in re- is one of the geographically largest municipalities cent years. The nature of the boost to employment in Norway, covering 3,462 km2 (Lebesby Municipal- in some sectors has been identified by means of ity, 2013). The population is 1,312, spread across vil- shift-share analyses to determine how much of lages such as , Lebesby, Veidnes, Kjøllefjord, the change is attributable to specifically local Dyfjord/Kifjord, Bekkarfjord and Kunes (Statistics factors. Norway, 2019). The largest villages are Kjøllefjord Interviews then probed key stakeholders about and Lebesby (Lebesby Municipality, 2018). motivation, working conditions, job creation and With precarious weather conditions in winter, living conditions. These interviews were with public unreliable infrastructure for people and communi- sector representatives (e.g. mayors and heads of cations (air, sea and road), and a small population, planning and development), business representa- it should come as no surprise that some people tives and entrepreneurs, high school students and pack up and leave the area. But some people also people from the education sector, as well as fami- stay, and some people move in. What makes living lies. Combined with analyses of other data and in- in a municipality so far to the north viable and at- formation, the interviews helped us to understand tractive? The freedom to roam, high levels of trust why some places do better than others. and the connection to nature – these were some At first another municipality in Northern Nor- of the answers given during the interviews for way with a stable population over the decade this case study (Interview 2, 7, 8). This case study 2008–2018, and with positive local employment delves further into the mechanics of Lebesby mu- patterns was selected as case study. Due to dif- nicipality’s desire to create a happy, healthy and ficulties in getting this municipality engaged in strong community and attract people to the area our study Lebesby was instead selected as case in from all over the world. being recommended by KMD- officials (KMD is the Ministry for Local Develop- Demographic development ment and Modernisation) in Norway as a success- Despite the negative trends in recent years (Varei- ful local case. de & Nyborg Storm, 2010), the population of Leb- esby has remained stable and even risen slightly since 2016 (Figure V.10.1). The municipality is struggling with a low birth rate, an ageing popula- tion and the majority of the inhabitants in the area being men – see Figure V.10.2 (Lebesby Municipali- 41 At first another municipality in Northern Norway with a stable population over the decade 2008–2018, and with ty, 2018). According to the municipal plans, there is positive local employment patterns was selected as case some uncertainty related to conjecture about the study. Due to difficulties in getting this municipality engaged in our study Lebesby was instead selected as case in Northern demographic composition of the area. Changes Norway being recommended by KMD-officials (KMD is the to settlement patterns may greatly influence the Ministry for Local Development and Modernisation) in Norway as a successful local case. availability of municipal services and may also af- nordregio report 2020:1 154 Infrastructure – communication with Widerøe in Northern Norway; the view to Kjøllefjord. Photos: Karen Refsgaard.

fect education structures. They may also impact cially in , and Lebesby (NRK, 2017) on the structure of the labour market and, by ex- where the number of men aged 20–24 is nearly tension, the possibility of attracting people to the double that of women (Statistics Norway, 2019). municipality (Lebesby Municipality, 2018). Creat- The women who follow their partners to Lebesby, ing an attractive rural municipality is therefore of due to the seasonal work in the fishing industry, the utmost importance. are not staying, either (Interview 1). The demo- This demographic trend linking a low birth graphic structure and the job opportunities at the rate, lack of women, and the overrepresentation moment are therefore closely interlinked. This was of men is a generic one in many rural communities. confirmed by one of our interviewees: “There are This was also the headline of a news article by the no women left of my generation (…). It’s a small national broadcasting service, NRK, in which men community, you know who is here” (Interview 1). were urged to ‘hold on to their women’ – espe-

Folketallsutvikling i Lebesby kommune 2000–2018

1550

1500

1450

1400

1350

1300

1250

1200

1150

2011 2012 2013 2017 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2014 2015 2016 2018

Kilde: Folkemengde og befolkningsendringar. Tabell 06913 i Statistikkbanken (SSB 2018).

Figure V.10.1. Population of Lebesby municipality, 2000-2018 (Statistics Norway, 2019). nordregio report 2020:1 155 Aldersfordelning (per 1. januar)

100 år eller eldre 90–94 år 80–84 år 70–74 år 60–64 år 50–54 år 40–44 år 30–34 år 20–24 år 10–14 år 0–4 år 80 60 40 20 0 20 40 60 80

Menn Kvinner Figure V.10.2. Age structure in Lebesby (Statistics Norway, 2019).

Figure 3. Lebesby municipality migration flows on a grid level2 (Stjernberg & Penje, 2019). On a grid level (See Figure 1), it is possible to see that the areas around Kjøllefjord and Veidnes and Ifjord have experienced the most positive trend in migration flows, with between three and 24 new residents in the area in the period 2008– 2017 (Stjernberg & Penje, 2019). By contrast, Leb- esby and Kunes experienced an outward migration of between three and 24 people in the same time- frame. However, whether this is inter-municipal migration, or migrants to or from the municipality, cannot be determined from this map.

Immigration – part-time or full-time residents The stable population figures in recent years are primarily linked to the increase in foreign workers and refugees. With the increasing popularity of aquaculture and fishing, due to the sector’s formi- dable profitability, foreign workers are becoming part of the Lebesby community for the greater part of the year. According to the Directorate for

Integration and Diversity, immigrants made up

15.7% of the total population in Lebesby in 2019 Figure 3. Lebesby municipality migration flows on a (Integrerings- og mangfoldsdirektoratet, 2019). grid level* (Stjernberg & Penje, 2019). This number has steadily increased since 2015, and *Population change explained (Stjernberg & Penje, the total number is now 209, with a slight major- 2 Population change explained (Stjernberg & Penje, 2019): Outward2019): migration Outward: Light orange = 3 migration: – 24; Orange = 25 – 100; Light Red = >100 orange = 3 – 24; ity of the immigrant’s female (Integrerings- og Inward migration: Light blue = 3 – 24; Blue = 25 – 100; Dark blue = >100 GreyOrange = Change frequency = 25 less –than 100; 3. Red = >100 mangfoldsdirektoratet, 2019). According to the Inward migration: Light blue = 3 – 24; Blue = 25 – the Directorate the majority of immigrants are 100; Dark blue = >100 from Lithuania, but since 2016 there has been an Grey = Change frequency less than 3. increase in refugees, especially Syrians during the

nordregio report 2020:1 156 years 2017 and 2018 (Integrerings- og mangfolds- which is the position facing industries in Lebesby. direktoratet, 2019). It is clear that in a municipal- However, they still remain optimistic about their ity experiencing a high influx of refugees, such as future: “I usually say that the graveyard is full of ir- Lebesby, there might be a drastic demographic replaceable people, but the world goes on nonethe- shift again if refugees with larger families de- less” (Interview 1). cide to leave. As one respondent said: “If there is a An upsurge in the number of younger people school class with [few] children, and [some] of these seeking employment in the fishing industry, cou- are children of refugee parents who decide to move pled with the influx of migrant workers (albeit sea- south…it affects the dynamics. […] You are very vul- sonally) means that the industries are not overly nerable” (Interview 8). concerned about the future. An interviewee at the It is clear that integrating immigrants into so- municipality even pointed to a steady decrease in ciety in Lebesby is a critical factor in upholding the the average age among fishermen in the munici- settlement structure in the years to come. How- pality: “[…]at one point it was declining by one year ever, due to national and international policy de- every year” (Interview 6). velopments, it is unlikely that Lebesby will see this Creating a sustainable labour market and em- scale of influx in the coming years. ployment structure is important for the municipal- ity, as this is evident both from the recent munici- Labour market and employment pal reports on social strategies and throughout the The municipality of Lebesby is a natural hub for interviews conducted for this report. Being able to fishing and aquaculture, and it has deep roots in provide a varied (multi-faceted) labour market in the coastal Sami traditions (interviewees). The order to attract workers is one of the main chal- shape of the labour market is defined by the fish- lenges recognised by the municipality (Lebesby ing industry and by the recent positive surge in the Municipality, 2018, s. 12). Moreover, being situated sector drawing people and capital to the area. De- in one of the peripheral areas of Norway, the mu- spite the success of fishing and aquaculture, the nicipality has also been challenged by the increased municipality still reports a labour market gap in ar- centralisation of public sector jobs (Interview 4). In eas such as education and healthcare (Interviews particular, jobs in the Tax Office and in the Food 6 & 4 & 8). This is in line with the interviews from Safety Authority are among the issues of concern a large number of small municipalities in Northern mentioned by the interviewees (Interview 4). The Norway. These indicate that there are several suc- increasing number of public sector jobs relocating cessful businesses around, but not a stable sup- away from the immediate surroundings of Leb- ply of labour (Vinsand, 2018). At the same time, esby has, according to our municipal interviewees, the majority of our interviewees reported on the had wider implications for the sustainability of potentially negative dynamics a bigger popula- the demographics of the area. The majority of the tion could cause, referring to the benefits of exist- women in Lebesby are working in either the public ing low unemployment rates and the burden that or the private sectors, the latter primarily mean- could otherwise be inflicted upon the municipal ing retail, services and trade (Interview 6). Strides economy. “We don’t need more people than what are also being made to recruit future staff for the we have jobs for”, was one response (Interview healthcare sector more systematically, by offering 6). Finding a balance between attracting enough summer or holiday jobs to students in order to gen- people to ensure a viable and sustainable society, erate a sense of belonging and loyalty to the area, while at the same time ensuring low levels of un- and hopefully to entice them to apply for jobs after employment, is a general challenge in otherwise graduation (Interview 4). sparsely populated areas. At the same time, with an industry that is heav- Municipal and public policies ily dependent and exposed to the global economy, supporting attractiveness being able to offer steady employment in the fish- The municipal strategy on societal development, ing industry has proved difficult (Interview 1). The Lebesby towards 2035, pointed not only to the overall dependency on a male workforce is typical centrality of ensuring a varied labour market, but of areas heavily reliant on natural resources. De- also to the importance of ensuring excellent social pendency on older people, often men, also brings services – such as childcare and good educational with it a need for an eventual generational change, institutions (Lebesby Municipality, 2018, s. 12). The nordregio report 2020:1 157 municipal strategy also takes on board the im- there is uncertainty in relation to municipal frame- portance of creating meaningful meeting spaces works from a central government perspective, for across a variety of social and cultural activities in example in terms of changes in property taxation order to lay the foundation for a safe community policies – a major income source for the municipal- and (ibid) states that: “If we want to see people ity. As a result, the future can feel somewhat un- moving to Lebesby, we need to focus on our reputa- certain (Lebesby Municipality, 2018, s. 4). tion and makes sure that we are communicating the However, when drawing up municipal strate- good stories” (Lebesby Municipality, 2018, s. 12). gies associated with the overall attractiveness of This was also identified in the part of the plan- Lebesby, the municipality has hosted public meet- ning process that involved citizens in what was ings in order to encourage dialogue with a range called a ‘workshop of ideas’, back in January 2018. of stakeholders. (Lebesby Municipality, 2018, s. 5). Speaking positively about Lebesby is recognised Taking onboard the views of local people via par- as a prerequisite for incentivising others to settle ticipatory consultations sends an important mes- in the municipality (Lebesby Municipality, 2018). sage about trust and influence on the community According to the municipal strategy, Lebesby at large. It creates a stronger foundation for mak- has acted tactically in setting up a buffer fund ing the cause of generating interest in Lebesby as which will contribute towards unforeseen develop- an attractive place a community-wide effort. It ments in the municipality – the so-called ‘dispo- puts the ball back at the feet of the local people sisjonsfond’. It is planned that the fund will even- and generates a sense of shared responsibility. tually equate to at least 15% of the overall gross municipal turnover and is a clever buffer against Citizen participation potentially negative developments. Lebesby mu- Citizen involvement and citizen engagement were nicipality has generally posted positive annual both mentioned by most interviewees in Lebesby. financial results in the last few years. This is at- They were mentioned in relation to both top-down tributed to property tax income and also income and bottom-up initiatives, and to the entrepre- from concessionary powers in the municipal plans neurial spirit of the place (Interview 8 & 5). The (Lebesby Municipality, 2018). Nevertheless, in the ‘dugnadsånd’, which translates roughly as com- light of wider governmental austerity measures munity spirit, and informal volunteering struc-

Lebesby Town Hall and library. Head of Planning, Hege Johansen, and Business Development, Toril Svendsen, in Lebesby municipality. Photos: Karen Refsgaard nordregio report 2020:1 158 tures, were also mentioned as a principal founda- to spot new opportunities is an important way to tion for the community, bringing people together survive and thrive in the area. to help with continuous improvements to the com- Of the various initiatives in the area, the Skáb- munity; improvements aimed at those currently ma-festival, an annual cultural event focusing on living there, and also at future generations. One contemporary Sami-culture and arctic questions, example of top-down actions driving community promises a ‘nomadic, interdisciplinary festival at improvement are the public meetings hosted by the top of Norway’. The festival is hosted by the the municipality. The issue of local engagement locally-based Arctic Cultural Lab, and it has been and local initiatives has also been highlighted as running since 2016 (Arctic Culture Lab, 2018). There a key ingredient for success by our interviewees. is also the voluntary organisation in charge of the Funding exists for town and village attractiveness Nordkyn Winter Festival, with its focus on winter projects, but the initiative has to come from the activities for the family, and also village days in grassroots in order to be eligible for funding (Leb- Veidnes (Veidnesdagan) and Kunes (Kunesdagan), esby Municipality, 2018). as well as an annual music festival, the Chrisfesti- From the families interviewed for this case val (for more, see Lebesby Municipality, 2017). study it was evident that both interviewees and Lebesby can be characterised as a municipality their partners and friends were heavily involved built on local ‘champions’ and enthusiasts, called in creating cultural meeting spaces and festivals. ‘ildsjeler’ in Norwegian. It is home to. All sorts of Working in a cross-disciplinary way to find new voluntary organisations, associations and sports cultural expressions that suit the community in teams (Interview 6). In view of the report from Lebesby is an important way of creating a deeper the municipality’s public ‘workshop of ideas’, it is sense of belonging. “Trying to recreate an urban evident that the public is fully engaged in creating culture is not relevant in this context,” said one of a safe and attractive municipality in which to live. the interviewees. “We need to engage people in One of the interviewees even said that there is a different ways” (Interview 5 & 8). This interviewee strong sense of public will and drive to make posi- went on to say that someone living in Lebesby tive changes in the municipality as people move in needs to be in charge of their own happiness. En- (Interview 5). However, another of the interviewees couraging entrepreneurialism and being prepared commented: “We are a bit vulnerable though. There

Young swimmers having breakfast at the local hotel in Kjøllefjord. Photo: Karen Refsgaard

nordregio report 2020:1 159 are only so many ‘mavericks’ in this area. If no-one of finishing upper secondary school, and the edu- follows in our footsteps…[we will find that] quite a cational level of parents. This makes it increasingly lot of people are used to being given things, rather important to focus on improving education in the than giving themselves. I hope the younger genera- area (Lebesby Municipality, 2018, s. 16). It should tion learn from us” (Interview 8). be noted that there has been a small influx of im- Although there are many volunteers in the migrants into the municipality, and that the ex- area, interviewees said that it tends to be the tent and nature of their education have not been same people volunteering for most of the social considered in this equation, as figures for these and community initiatives in Lebesby. Voluntary are not available at present (SSB, 2019). There groups in the arts and culture sector, and in sports, has recently been an effort by the municipality are also involved in municipal measures to get chil- to integrate immigrants via dren active from an early age, as well as prevent- courses, as well as courses about Norwegian soci- ing isolation and loneliness among at-risk people ety. This is seen as something that would positively by providing plenty of meeting spaces and activi- impact the community as a whole (Interview 4). ties to prevent any decline in the general health of The focus on education is at the core of munic- the local population (Lebesby Municipality, 2018). ipal strategies, both in terms of attracting settlers and in encouraging people to move back to Lebes- Education by. But it is also about ensuring a viable and strong According to the municipal plans, the overall edu- labour force that corresponds to current labour cational attainment level appears lower than for market needs. There is a difference here between the region and country at large, although the num- different kinds of public sector jobs. It is difficult to ber of people finishing high school and higher edu- find doctors and nurses, while jobs with lower re- cation (long and short) has been on the rise since quirements for skills are proving easier to fill. Due the 2000. It is currently at 57.6% (SSB, 2019) (Leb- to the thin population base, combined with the esby Municipality, 2018). There is a causal link be- vast distances in , the municipalities and tween educational attainment and the likelihood the regional authority have developed an alterna-

Høyeste fullførte utdanningsnivå for personer 16 år og over

Uoppgitt eller ingen fullført utdanning

Universitets- og høgskolenivå, lang

Universitets- og høgskolenivå, kort

Grunnskolenivå

Vidaregående skolenivå

Figure V.10.4. Educational attainment of people aged 16+ (Statistics Norway, 2019) nordregio report 2020:1 160 Students in the LOSA educational scheme. Photo: Karen Refsgaard tive structure – the so-called LOSA model42 . This is graduate. However, as the LOSA model is financed a cooperation agreement between local business- by the county, the model’s existence is constantly es and the county (which is responsible for upper subject to downscaling or closure due to aggre- secondary education in Norway). The LOSA model gated costs connected with the system (Inter- allows pupils to remain in their home municipality view 7). Another interviewee points out that quite for their first year of high school. The LOSA school a few students find motivation to continue their is run by the maritime technical college in Nord- education through the LOSA system, and that the kapp and the high school in Honningsvåg, in close municipality is fighting alongside the business sec- collaboration with the host municipalities (Leb- tor to retain it (Interview 4). LOSA is an important esby Municipality, 2015). According to municipality measure, and uses follow up procedures to provide websites, teaching happens via teleconferences a buffer against increasingly higher drop-out rates and all schoolwork is submitted and communicat- among young people in vocational training, (Inter- ed via the Fronter platform (ibid). view 4). According to one interviewee, this model of- fers students a more flexible educational training, Housing especially within the vocational studies. They are Housing is a major issue in Lebesby, and although able to mix traditional training with practical work the population is relatively low, guaranteeing in local companies and industries (Interview 7). homes is an important way of preventing high They also have the opportunity to spend approxi- numbers of inward commuters who live elsewhere mately 17 out of 38 school weeks in a local compa- and are not taxable within the municipality. It was ny. The idea is to give them a better starting point referenced by interviewees from the municipal- for choosing their future vocational stream within ity that this was a concern brought up in public the upper secondary school system (Lebesby Mu- meetings by people living in Indre Laksefjord. The nicipality, 2015). It also creates stronger ties to the municipality is aware of these periodic challenges area where students live, and demonstrates that due, among other things, to short-term contracts there will be opportunities in Lebesby after they in the fishing industry. It is providing local inhabit- ants with initial loans to build new houses (Lebesby

42 LOSA – Lokal opplæring i samarbeid med arbeidslivet Municipality, 2018, s. 11). However, the location of (Local training in collaboration with industry). This structure is Lebesby makes it quite expensive to build homes. available in six municipalities in Finnmark: Berlevåg, Båtsfjord, Shipping materials there is more expensive than to Gamvik, Hasvik, Lebesby, , Måsøy and Tana (Lebesby Municipality, 2015). and , two of the bigger towns in nordregio report 2020:1 161 Finnmark, for example. That said, the housing plot Drawing on the natural advantage provided by prices are somewhat lower (Interview 1). the fishing industry is still considered to be the The issue of housing is complex, and it is consid- principal lifeline for remaining and flourishing in ered to be a bottleneck across Lebesby municipal- the area. Energy and agriculture are also part ity. According to the municipal strategy, Lebesby of the industrial make-up of Lebesby, and the oil towards 2035, there are an increasing number of and gas exploration fields in the Barents Sea are single households.43 Seasonal workers, alongside considered the possible source of a positive ripple settlements of refugees, are also considered to be effect for settlements in the area in the foresee- a challenge. This is not necessarily due to the lack able future (Interview 6). The ability to influence of houses per se, but is rather due to the conditions the pathway of different industries is not within they are in. The municipal public meetings have the municipal jurisdiction, and depends rather on also called for a greater variety of housing to be regional, national and international framework made available, including a greater variety of flat agreements, strategies and price fluctuations sizes, house sizes and forms of temporary hous- (Interview 6; Lebesby Municipality 2018). In order ing (Lebesby Municipality, 2018, s. 11). According to to utilise these conditions, the municipality has Statistics Norway, there are 538 detached houses invested in harbours so that it can improve the in Lebesby and 29 flats. Some 8.7% of the popula- economic conditions for the fisheries locally. Nev- tion lives in cramped household conditions.44 The ertheless, the municipality is considered an active municipality has been urged by its citizens to help and engaged party by several of the interviewees, stimulate more housebuilding in the area (Lebesby both with regards to recruitment and infrastruc- Municipality, 2018). ture projects (Interview 7; Interview 1). While agriculture, for example depends upon, Business development and is protected by, the national subsidy frame- In figure 5 the level of employment in 2016, the work and favourable conditions to incentivise food anticipated change between 2008 and 2016, and production, the fishing industry remains highly the actual change brought about by local effects exposed to global economic fluctuations. These is shown. The major employers in the municipal- global fluctuations determine and influence the ity are the construction industry, the service sec- ability to secure feedstock for fish farming, trad- tor, manufacturing, fishing and the public sector. ing schemes and global fish prices. Unsurprisingly, Considering the shifts in employment at local level the debate on sustainable of fish farming has also that may be attributed to local factors, it is clear reached Lebesby but is generally understood to that the fishing, agricultural and forestry sectors be an integral part of the overall labour market in have been positively impacted by local strate- the area (Interview 6), that is, Gamvik municipal- gies, alongside other local factors and conditions45 ity. With perfect conditions for fish farming and which affect business employment in the area in smolt production, the prospects for the fish farm- general. By contrast, manufacturing and the pub- ing industry are bright (Interview 6). Two of the lic sector are predominantly affected by national largest hatchery plants for fish in the country are and sectoral trends. Tourism falls under the cat- located in the bay of Laksefjord. They hold conces- egory of administrative and support service activi- sions to produce up to 21.5 million smolt per year ties and is also positively affected by local condi- (Lebesby Municipality, 2018). The hatchery plants tions and strategies. play a pertinent role in shaping the employment Traditional fishing, the fish processing indus- structure of the municipality, since the seasonal try and fish farming are central to life in Lebesby. variation involved in fishing signifies a precarious situation for its employees (Lebesby Municipal- ity, 2018) (Interview 1). One of our interviewees 43 The average number of persons per household was 1.99 in from the municipality said that the average age 2019 (Statisktisk Sentralbyrå, 2019). 44 Cramped households are defined as “people living in amongst fishermen has steadily been declining households where: 1) The number of rooms in the house/flat over the past few years. At one point the average is fewer than the number of persons dwelling in the space, or one person living in a single room flat/house; 2) Below 25m2 per age was declining by one year every year person.” (Statisktisk Sentralbyrå, 2019). “You used to tell your sons and daughters that 45 These factors can be due to, for example, access to mar- they should never consider becoming fishermen, but kets, the predominant industrial culture, municipal facilitation, etc (Turunen, 2018). nordregio report 2020:1 162 Lebesby -60 -40 -20 0 20 40 60 80 100 120 140 160

01–03 Agriculture, forestry and fishing 05–09 Mining and quarrying 10–33 Manufacture 35–39 Electricity, water supply, sewerage, ... 41–43 Construction 45–47 Wholesale and retail trade:repair of ... 49–53 Transportation and storage 55–56 Accommodation and food service 58–63 Information and communication 64–66 Financial and insurance activities 68–75 Real estate, professional, scientific and ... 77–82 Administrative and support service ... 84 Public adm., defence, soc. security 85 Education 86–88 Human health and social work activities 90–99 Other service activities 00 Unspecified

Jobs in 2016 Local Employment Effect Employment Change predicted on the basis of sectorial and national trends

Figure V.10.5. Relative local employment effect, 2008-2016 (Turunen, 2018)

that has changed. It’s the fishermen who currently policy set up in 1990. Comment from a KMD of- earn the most in our society” (Interview 6). ficial also highlights the exemption from social The differentiated payroll tax, otherwise security payments as one of the most important known as employers’ national insurance contribu- financial measures, in combination with others. An tions, was also mentioned as an important mech- evaluation by Angell et al (2012) concluded that anism for developing and maintaining local indus- these personalised measures did indeed have an try in Lebesby. Lebesby falls within band V, which economic effect. means the complete absence (0%) of payroll taxes Safeguarding natural and renewable re- for the industries in the area (Skatteetaten, 2019). sources in a sound manner is important for a soci- The interviewees therefore stressed the impor- ety such as Lebesby's. As one of the interviewees tance of pushing industries and businesses to have stated, “the primary sector is the most important their employees registering in the municipality one, and it allows our community to thrive” (Inter- or moving to the municipality in order to benefit view 6). But the need to move with the times is also from the taxable income they would contribute to- significant for industrial survival. The municipal wards, and in that way contribute towards the de- plan, Lebesby towards 2035, explicitly mentions velopment of the municipality (interview). Howev- the need to bring new ideas, research and devel- er, payroll taxes, alongside regional development opment into the existing industries, focussing on plans and the framework conditions for primary how to maximise existing resources and finding sectors, all fall outside local jurisdiction. new potential avenues for development (Lebesby Another national scheme, ‘Tiltakssonen i Nord- Municipality, 2018, s. 22). og Finnmark’, which has important implica- Increasing levels of digitalisation were also tions for industry and settlement, is concerned mentioned in the interviews, both as a trend which with the geographical differentiation of personal has become a lifeline to industries in the area, but transfers and tax releases as part of the district also as a threat to jobs as automation gradually

nordregio report 2020:1 163 Jobs in Lebesby

2008 2009 2010 2011 2012 2013 2014 2015 Jobs in 2016 A. Agriculture, forestry and fishing 95 94 86 106 114 97 103 97 109 B. Mining and quarrying 0 0 0 0 0 0 0 0 0 C. Manufacture 83 73 28 51 77 68 47 35 33 E. Electricity, water supply, 15 15 12 17 15 15 15 17 16 sewerage, waste management F. Construction 22 25 17 22 13 26 51 51 52 G. Wholesale and retail trade: 54 59 61 59 54 60 51 49 59 repair of motor vehicles and motorcycles H. Transportation and storage 17 17 15 14 12 10 11 13 9 I. Accommodation and food 14 14 10 16 12 16 15 7 12 service activities J. Information and communication 3 0 0 10 6 8 7 5 11 K. Financial and insurance 0 0 3 3 3 3 0 0 0 activities L. Real estate, professional, 10 8 8 8 8 9 6 11 10 scientific and technical activities N. Administrative and support 3 0 3 3 6 7 6 6 6 service activities O. Public adm., defence, soc. 52 50 44 44 157 74 49 43 37 security P. Education 44 50 50 54 7 35 41 30 39 Q. Human health and social work 151 152 152 159 106 134 142 150 144 activities S. Other service activities 20 19 15 17 11 13 13 19 18 X. Unspecified 6 0 3 3 0 0 3 5 3

SUM 589 576 507 586 601 575 560 538 558

secures a foothold in the local community (Inter- Tourism view 4). In a small place where the municipality is Tourism is another interesting sector in Lebesby, the largest employer and industry is prone to robo- and efforts has been made to increase the munici- tification, it is clear that digitalisation is a double- pality’s visibility by connecting with those involved edged sword. Ensuring that the municipality has in fishing tourism, outdoor enthusiasts and the access to a robust and excellent digital network cruise ship , creating a ‘step off-step plays an important role in municipal plans (Leb- on’ offer between Kjøllefjord and , -or esby Municipality, 2018). For that reason, the ganised by local companies (Lebesby Municipality, municipality contributed financial support to the 2018, s. 18) Interview 4). Although it is a challenge development of a 4G network (Interview 4). This to create a proper breakthrough in tourism, the ef- development was particularly argued for with re- forts to do so largely depend upon volunteers and gard to fish farming plants but was also consid- local ‘champions’ (Interview 4). The drive and en- ered important from a rural development perspec- thusiasm shown by these locals demonstrates the tive (Interview 4). According to one interviewee, main resource in the area and the source of a thriv- the state has placed a demand on the Norwegian ing community: “Human resources are our primary telecoms company, Telenor, to provide a 72-hour strength” (Interview 4). back up mechanism for the digital network. This is in order to safeguard coverage throughout the year and the seasons (Interview 4). nordregio report 2020:1 164 Hurtigruten stops, and the passengers take a tour with Vida Sami Camp on the way to Mehamn. Photos: Karen Refsgaard

The municipality has been a multicultural hub enthusiasts in 2008 (Arctic Coast, n.d.) and of- for centuries, incorporating the Sami, the Kvens46, fers bookings in conjunction with the Hurtigruten and the Norwegians. According to the municipal stopover in Kjøllefjord and Mehamn. Supported by strategy devised by Lebesby in 2018 there has been Innovation Norway, the municipality and the Sámi an increased interest in the Sami people’s culture parliament, the business is going well, with 300- and language in recent years (Lebesby Municipal- 400 visitors during the summer months (Interview ity, 2018). This is reflected in the upsurge of Sami- 2). Preserving Sámi culture is important to the related industry, with tourism being one example area of Lebesby, with its notably strong roots in (Interview 2 & 5). The Sami parliament’s subsidy the Sámi sea culture. Paying increased attention framework for business development in Sami ar- to the Sámi people is a relatively new initiative, eas acts as a positive incentive here (see more, Sá- and since the inauguration of the Sámi parliament mediggi, 2018). The subsidy is aimed at business in 1989 it has become somewhat easier to keep development in and around reindeer husbandry, as the culture alive (interview). The Sámi parliament well as cultural and handicraft (duodji) businesses provides funding towards, for example, business and tourism initiatives in the Sámediggi’s action investments promoting Sámi culture or the Sámi zones across municipalities, and across the coun- lifestyle, as well as the aforementioned fishing try more widely (Sámediggi, 2018). These action trading schemes for Sámi areas (Interview 2). zones do not include all parts of the municipality. For example, Kjøllefjord is not part of this zone, The fishing industry – seasonal issues although other areas in Lebesby municipality are. The fishing industry plays an important role across Tourism in the northernmost region of Europe most of eastern Finnmark, and Lebesby is no ex- naturally involves presenting the best of the natu- ception to this rule. Optimism is felt across the in- ral environment in Lebesby municipality. Various dustry, and the number of fishermen has gone up tourism activities have been put in place, such as in recent years (Interview 4; Lebesby Municipality, fishing opportunities on the Laksefjord plateau 2018)). The fishing industry is a highly profitable and bird watching tourism in Veidnes. As the tour- business and draws in seasonal workers, predomi- ism industry also includes Sámi culture, food and nantly men, from all over Europe. The industry design. The Arctic Coast was initiated by local started importing migrant workers, mainly from Lithuania and Poland, in 2005 (Interview 1). Few of the foreign workers settle permanently, but

46 The Kvens (‘Kvener’ in Norwegian) is a Finnic population companies such as Lerøy Norway Seafoods and group originating from the Bothnian Arc and the area between the municipality are both insisting that efforts, Lofoten (Norway) and the Kola peninsula (Russia). The Kvens such as organising language courses in Norwegian, have been living in Norway since the late middle ages, with a greater influx of migration happening in the 1700-1800s need to be introduced in order to improve the in- (Norske Kveners Forbund, n.d.). According to Lane (2011), the tegration of foreign workers into Lebesby society. number of people of Kven-origin in Norway is roughly estimated to be around 50,000. Taking steps to ensure decent wages and good liv- nordregio report 2020:1 165 ing conditions, including low rental prices, are also important measures to ensure that foreign labour chooses Lerøy Norway Seafoods over its com- petitors. Despite the general understanding that a generational shift is potentially detrimental to many companies, businesses and the municipality are highly positive towards the younger genera- tion taking over in time. The main concern is hold- ing on to young people, especially as the stability of work differs greatly throughout the year, with high risk and unpredictability negatively impacting the industry. One interviewee put it this way: “If you can- not offer people stable job and work every day, it affects your ability to attract the best. But we’ve been lucky. We have a few very capable young peo- ple who work here. We try to keep them busy and to prioritise them” (Interview 1). Dependency on fisheries also influences the Fishermen preparing their boats in Kjøllefjord. availability of so-called ‘blue stream specialisations’ Photo: Karen Refsgaard

INFOBOX V.10.1. Lerøy Norway Seafoods AS Lerøy Norway Seafoods AS exemplifies the close Seafoods AS, this meant that their focus on connections between the traditional fishing services has improved, especially with regards profession, the impact of global trade and the to offering longer general opening hours, as well reality of being at the mercy of seasonal chang- as weekend opening hours (Interview 1). es. All of this impacts on the labour market. The Product development is also part of creat- differentiated pay roll tax is therefore an im- ing a stronger profile, and the interviewee at portant measure for remaining profitable, or at Lerøy Norway Seafoods was highly positive as least making ends meet (Interview 1). to the attention the company pays to its staff Lerøy Norway Seafoods AS is one of the with regard to potential projects. Although it is largest companies on the scene, and holds a a big company, strides have been taken to de- concession to fish across all of eastern Finnmark. velop new products. For example, the company The trawling concessions adhering to the eastern has developed king crab products in eastern part of Finnmark oblige the concession holder Finnmark, which is a highly profitable business. to offer their catch to landing sites in the area, With the existing know-how and technology and ensuring that their department in Kjøllef- in-house, the potential for a new and innovative jord has the necessary capacity. The fishery in take on products is within the company’s capac- Kjøllefjord also has an “activity obligation”. One ity. “I usually compare Lerøy with a train. It takes of the interviewees underlined the importance by a while before it gets up to speed, but when it saying that “it is crystal clear to me that without does it can do anything. And what is done is done the activity obligation at our fishery, the fishery quickly” (Interview 1). would have been decommissioned” (Interview 1). The quota scheme for king crab fishing is Competition from Nergård Polar Kjøllefjord AS, open to all, conditional on the fulfilment of cer- for example, is also warmly welcomed, despite tain criteria (Fiskeridirektoratet, 2019). Accord- challenging Lerøy Norway Seafoods’ activities ing the municipal business consultant, this an with a new, modern fishery (interview). The plans excellent stepping stone for getting the younger and location for the new fishery were carefully generation into the fishing sector. It is profit- devised so as to link up with potential tourism able and it helps to establish smaller businesses from the cruise ship Hurtigruta AS (NRK, 2016). on the scene (Lebesby Municipality, 2018). According to the interviewee at Lerøy Norway

nordregio report 2020:1 166 Fishery fleet in Kjøllefjord and with three fish factories. Photo: Karen Refsgaard

in high school and in the technical colleges, focus- their student loans47 or to seek an area full of the ing on fisheries and aquaculture. Recognising com- promise of new adventure. “You often end up going petencies outside mainstream education, such as because of the feeling you get. You just do it then” those developed during the workers’ time at either (Interview 5). The above-mentioned aspects were the fisheries or at sea is another important meas- all part of the families’ rationale for settling in ure. According to one interviewee from the munici- Lebesby. pality, a number of young people are eligible to take As another interviewee said: “There was never a competence-based diploma from a technical any doubt about returning [home]. I was away for a college, usually in smolt and fish farming or ship while, for eight years, studying. But I missed home mechanics. Similar measures have also been in- and being able to contribute to something bigger troduced at Lerøy Norway Seafoods AS, with the than one’s own life. I have always been involved in diploma leading to a pay rise. However, the sym- volunteering and ‘dugnad’” (Interview 5). bolic effect of attaining the certification is argua- The municipality is actively engaging with ways bly more important: “Those who have worked here of encouraging permanent settlement in Lebesby, over five years are eligible to take a technical college something which is clear from the section on so- diploma. I did it myself […] It really means something ciety in the municipal plan for Lebesby (Lebesby to you personally. It’s a recognition of your skills. It’s Municipality, 2018). According to the business important for people to have something to show, consultant in Lebesby, a primary marketing tool something that says you have a certain compe- for the municipality is demonstrating the positive tence and certain capabilities” (Interview 1). and comfortable surroundings that exist for rais- ing children (interview). According to the families Young people and families – interviewed, having children in Lebesby is easy. current and future perspectives Those families interviewed list ready access to It is not readily evident that people move to wher- all of the services that they need, along with the ever there are jobs. The need to live in an area sur- closeness and security of the local environment rounded by the promise of freedom in the nature for their children to grow up in. This was echoed by that surrounds you, being close to your roots, and one of the young people from the local upper sec- the yearning to make a difference: these are other ondary school. “I think it is a good place to grow up aspects that might entice people to move back to their home areas. Some come back to help reduce 47 Students loan in ‘Tiltakssonen for Northern Norway’ are on better conditions than elsewhere. nordregio report 2020:1 167 in. I think it is, at least. The distances to things aren’t One interviewee noted that “the children were very ‘big.’ You’re quite free to do whatever you’d like.” proud” (Interview 5). Creating an environment to At the centre of the municipality’s work in cre- thrive and to be creative in is important, both for ating an attractive and viable place to live is the stimulating intellectual curiosity (Interview 5) and conundrum of how to ensure that young people arguably also for encouraging job creation at a lat- return to Lebesby after their studies. This is one er stage in life. Due to the difficulty of attracting of the most important concerns of the municipali- applicants to jobs in the public sector, these jobs ty’s attractiveness plans. Ensuring enjoyable living remain stable. and the ability to create something conditions for young people is part of the strategy new is always on the horizon. According to one of to retain or incentivise young people to return to the interviewees, “you need to be a bit of an en- Lebesby. Indeed, “It is the most important measure trepreneur to live here.” Both of the families inter- we have” (Interview 6). According to the interview- viewed were actively engaged in either informal or ees, this reality is exemplified by the municipality’s formal volunteering, creating their own businesses focus on creating a good and varied list of courses or cultural initiatives. in the local School of Arts, as well as youth activi- The interviewees also mentioned an array of ties, sports and events. For example, the School different activities which are either free or cheap of Arts is working in an interdisciplinary way to to use, for both young people and families. With a create a positive environment; one where children cinema, concerts, the occasional theatre produc- are allowed and encouraged to develop their cul- tion and festivals, family life in Lebesby can be tural interests. Some of the children’s shows have pretty active. “We have always thought that we even been held for passengers on Hurtigruten. have what we need for living a good life. We have

Baby meeting at the local library. Photo: Karen Refsgaard

nordregio report 2020:1 168 what we want. We almost have too much, actu- interviewees had part-time ones outside school – ally. We almost don’t have time to do everything we or through school and the LOSA model. The LOSA want to do. We have to choose.” model holds some promise as buffer against out- The sports arenas are free, and the municipali- migration. According to interviewee 4, the current ty has invested in floodlit skiing tracks and h in hik- centralisation of politics at national level, due to ing paths. “It is meant not only to be a good place to the merging of potential public sector jobs, makes live, but also an affordable place to live as well,” said it more difficult to retain younger people. Another one of the interviewees. “No sports teams or other challenge is to entice younger healthcare person- associations cost more than NOK 500 a year.” The nel to come to the area, as the healthcare profes- local swimming club is also popular. It has a con- sion is too small, and the nearest hospital is 400 tract with the local hotel, where the swimmers eat km away (Interview 4). This interviewee also said, breakfast after their morning practice (Interview “those in the village who get a medical degree find 6). This further emphasises the role of the local it hard to come back, as it is too close for comfort community in creating a safe and tight-knit com- – they know everyone.” However, the intimate en- munity in the north. vironment could be seen as a good starting point Another important initiative is the youth club, for gaining experience. That is the case for doctors, which is open every weekend and supported by a physiotherapists, teachers, police officers, health- youth leader. The local Lebesby Youth Club is one care workers or just those wanting to try something of the last remaining youth clubs in all of Finnmark. new, according to the municipal business consult- Prior to Facebook, the municipality also organised ant (Interview 6 & 4). The scope and foundation for ‘Welcome home’ meetings for young people at- building something of your own – in terms of work tending schools elsewhere. The municipality is ac- or business – remains plausible and tenable. tively using Facebook to stay in touch with both Smaller municipalities have to fight for their the younger generations and the adult population survival on several fronts, it might be argued. in Lebesby. Lebesby has taken action in order to help them continue to thrive. It has done this by focusing on The future future generations. Efforts to create a sense of Among the young people interviewed for this case belonging by investing time and money in ensur- study, there is a shared sense of freedom in liv- ing safe, and strong communities not only having ing in the north. Although words such as ‘boring’ coming generations in focus. The various efforts to cropped up during the interview, the majority of include local people in participatory processes, and boys were positive towards the idea of returning by allowing for spurs and flares of both formal and to Lebesby after completing degrees or profes- informal volunteering aimed at nurturing a strong sional diplomas – provided there are jobs available. local identity. When preserving local identity, spa- The girls were more reluctant, and listed the lack tially bounded idiosyncrasies become increasingly of variety among people and the possible lack of apparent, of course. Indeed, a sense of local pride jobs as some of the reasons. The possibility of cre- may already be firmly manifested in young people’s ating your own workplace was seen as a positive perceptions of Lebesby: “You’re always proud to be by both groups. “Not every profession has job op- coming from somewhere, or from here. I am proud portunities available…there is work, you just need to of it. Why shouldn’t you be proud?” (Interview 3). do what you’re able to do” (Interview 3). At the moment, it is easy for upper-secondary school students to find jobs, and quite a few of our

nordregio report 2020:1 169 Conclusion

Table V.10.2. Attractiveness of Alvdal and obstacles/challenges to overcome

Good practices and main reasons behind attractiveness Obstacles and challenges

Education Education LOSA-model allowing for mixing training with practical Low educational attainment. work, while also allowing for staying at home during the LOSA-model is dependent on annual decisions first year at upper secondary school, and closer follow-up. from the county council. Employment and jobs Employment and jobs Positive local employment trends in fishing and smolt Creating a sustainable (stable and multi-fac- production and construction, including investments in eted) labour market and employment struc- harbours. ture is a challenge for the municipality. This Sami parliament subsidy for business development. became evident both from recent municipal reports on social strategies and in the inter- Entrepreneurship culture views conducted for this report. Being able to Companies and the municipality are working together to provide a multi-faceted labour market in order concentrate on young people, with summer jobs, to attract people is one of the main challenges diplomas, etc. in fishing and aquaculture. recognised by the municipality – another is the Governance and participation gender balance. Societal development strategy: LOSA idea workshops/ Relocation of public sector jobs and deci- citizen involvement, distributable reserve sion-making posts (police, public administra- tion, postal offices). Infrastructure and transportation Attracting younger healthcare personnel. Municipal efforts to ensure connections between tourism enterprises and Hurtigruten, including pride in Housing Housing is scarce and expensive for building, Sami culture. due to periodic commuting, increasing number Construction and investments in harbours. of single households and location issues. Immigration Infrastructure and transportation Positive initiatives from enterprises with language cours- Ensuring a robust and stable digital network. es, also providing decent working and living conditions for foreign labour. Immigration Integration of immigrants into local communi- Housing ties is a critical factor in maintaining positive Cheap loans for housing. settlements. Quality of life and local community Young people – living, staying/returning Municipality providing good environments for children. Girls more reluctant to move back than boys As motives for re-migration or inward migration quali- after education, due to lack of variety in peo- ty of life is cited more often than jobs. In particular, the ple and jobs. creating of opportunities for youth, leisure activities and Attracting younger healthcare personnel. summer jobs. A strong sense of community ownership, with voluntary organisations and “firebrands”. Taxation Norway’s differentiated payroll tax is important for local businesses.

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