The Necessity of Close Collaboration 1 2 the Necessity of Close Collaboration the Necessity of Close Collaboration

Home , Akunnaaq, Alluitsup Paa, Ammassivik, Arsuk, Atammik, Disko Bay

The Necessity of Close Collaboration 1 2 The Necessity of Close Collaboration The Necessity of Close Collaboration

2017 National Spatial Planning Report

2017 autumn assembly

Ministry of Finances and Taxes November 2017

The Necessity of Close Collaboration 3 The Necessity of Close Collaboration

2017 National Spatial Planning Report

Ministry of Finances and Taxes Government of Greenland November 2017

Photos: Jason King, page 5 Bent Petersen, page 6, 113 Leiff Josefsen, page 12, 30, 74, 89 Bent Petersen, page 11, 16, 44 Helle Nørregaard, page 19, 34, 48 ,54, 110 Klaus Georg Hansen, page 24, 67, 76

Translation from Danish to English: Tuluttut Translations Paul Cohen [email protected]

Layout: allu design Monika Brune www.allu.gl

Printing: Nuuk Offset, Nuuk

4 The Necessity of Close Collaboration Contents

Foreword ...... 7

Chapter 1 1.0 Aspects of Economic and Physical Planning ...... 9 1.1 Construction – Distribution of Public Construction Funds ...... 10 1.2 Labor Market – Localization of Public Jobs ...... 25 1.3 Demographics – Examining Migration Patterns and Causes ...... 35

Chapter 2 2.0 Tools to Secure a Balanced Development ...... 55 2.1 Community Profiles – Enhancing Comparability ...... 56 2.2 Sector Planning – Enhancing Coordination, Prioritization and Cooperation ...... 77

Chapter 3 3.0 Basic Tools to Secure Transparency ...... 89 3.1 Geodata – for Structure ...... 90 3.2 Baseline Data – for Systematization ...... 96 3.3 NunaGIS – for an Overview ...... 101

Chapter 4 4.0 Summary ...... 109

Appendixes ...... 111

The Necessity of Close Collaboration 5 6 The Necessity of Close Collaboration Foreword

A well-functioning public adminis- by the Government of Greenland. trative system is a prerequisite for a Hence, the reports serve to enhance modern democratic society. Such a our cooperation, coordination and public administrative system must be prioritization among, and in dialogue able to collaborate, coordinate and with, the individual departments in prioritize. the administration, the municipalities and society in general. This places demands on all parties. Who do we have to collaborate The national spatial planning report with? How should we coordinate our thus plays an important role in en- efforts? What should we prioritize? gendering and fostering transpar- When it comes to economic and ency in our physical and economic physical planning, the most challeng- planning—a transparency that is an ing and important task is often priori- absolute necessity in public adminis- tizing to achieve concrete goals. tration. Without sufficient transpar- Prioritizing means that some things ency, individual stakeholders cannot have to be pursued and others have effectively collaborate and coordi- to be shelved. nate their efforts aimed at ensuring that our joint investments in the It is therefore essential to have com- future can promote the best possible mon objectives and to set priorities development for society. to achieve our goals in economic and physical planning. Throughout our One key to the success of securing the society there are a number of com- ideal sustainable growth in our common overriding goals that are rele- munities is the close coordination of vant points of orientation: We have physical and economic planning. This the goal of creating a self-sustaining requires the use of common plan- economy in a country with a balanced ning tools like sector planning, which development where, at the same constitutes the main topic of this time, we tackle a number of chal- report. lenges, such as excessive economic inequalities. On the political side, in The title of the 2017 National Spa- coalition agreements, we have estab- tial Planning Report is “The Necessi- lished many concrete goals in a wide ty of Close Collaboration.” Working range of areas, including economic hand-in-hand we can ensure that and physical planning, which is the we achieve a balanced development focus of the present report. throughout the entire country. This must take place at all levels. There The purpose of the national spatial has to be close coordination between planning reports is to shed light on the individual administrative depart- the planning and prioritization of in- ments of the Greenland Government dividual government agencies and Authorities, between the Greenland departments, and thereby contribute Government Authorities and the mu- to focusing, strengthening and tar- nicipalities, and between public enti- geting our efforts that will lead to the ties and all other stakeholders, such realization of the goals established as organizations, NGOs and citizens.

The Necessity of Close Collaboration 7 It is only by openly working togeth- The plan-related consequences of er that we can jointly pave the way natural disasters, like the one that hit toward creating a better and more Nuugaatsiaq and Illorsuit in June, are independent Greenland. not dealt with in this spatial planning report. Risk evaluations of natural The 2017 National Spatial Plan- disasters, including wildfires, will ning Report marks the completion most likely be included in a future of a three-year intensive process of spatial planning report. prioritization. Right from the start three years ago, the Government of Aqqaluaq B. Egede Greenland has included a wide range Minister of Finance and Taxes of stakeholders in the process. For instance, every year it has collected many good proposals for the development of the community profile. Throughout the entire process, the common thread for the Government of Greenland has been to create the framework for a more self-sustaining economy. Furthermore, the Govern- ment of Greenland wants this framework to provide better opportunities for a more balanced development for all municipalities. Over the coming years, the government intends to continue its work in ensuring effective parameters for our joint planning.

The national spatial planning reports are specifically designed to foster transparency and identify a number of underlying conditions and tenden- cies. Based on these reports, it is the job of politicians, both in the municipalities and in parliament, to make decisions on the path that we wish to take to achieve our common political objectives.

8 The Necessity of Close Collaboration Chapter 1 1.0 Aspects of Economic and Physical Planning

There are a series of common charac- communities throughout the country. teristics shared by economic and This is primarily because a significant physical national planning. proportion of all construction projects rely on public construction funds. First, both forms of planning are Not surprisingly, the national bud- essentially cross-sectoral by nature. get’s allocation of these funds is of A comprehensive, cross-disciplinary enormous importance. An analysis of overview is required for both eco- the geographical focus of construc- nomic and physical planning. With- tion funds in the national budget is out this comprehensive overview, it the first aspect under consideration would not be possible to ensure the here. necessary coordination and prioritization. An effective cross-disciplinary Public sector jobs are also of great overview requires close collaboration importance to individual communi- among all concerned parties. ties. Public sector jobs make up a large proportion of the overall num- Second, economic and physical ber of jobs, and in many localities national planning are characterized working in the public sector is the by being mutually dependent on only viable employment opportunity. each other. Economic investments cannot be optimally made if there Demographics and the demographic is no comprehensive overview of development are the crucial under- where there is the greatest need for lying aspect to all planning. For over investments in new or existing infra- 100 years, Greenland has followed structure. Conversely, there is no the global trend of people moving point in prioritizing physical planning from smaller to larger communities. if it gives priority to projects that do While there is a clear political desire not fall within the scope of what is that the country not lose all of its economically feasible. small and medium-sized communities, Greenland is also endeavoring Past national spatial planning reports to further develop its larger commu- contain many examples of economic nities with growth potential, and to and physical national planning, and create strong centers of knowledge this chapter takes an in-depth look as part of its efforts to enhance the at three aspects of this planning: level of expertise in society. Hence, construction (the distribution of many initiatives are launched to public construction funds), the labor- engender an appropriate level of market (the localization of public service throughout the entire coun- sector jobs) and demographics try, forge suitable parameters for (migration patterns and causes). economic development and secure an effective and cohesive infrastruc- Public construction projects are a ture that connects the country inter- key indicator of the amount of build- nally and with the rest of the world. ing work taking place in individual At the same time, the public sector

The Necessity of Close Collaboration 9 continues to play a major role in pro- students to acquire vocational viding housing for large segments of and professional training. Political the population. This is accomplished decisions on these issues affect to a with public housing, financial sup- greater or lesser extent the degree port for the construction of private of urbanization and the pace of the housing and a major expansion of urbanization process. dormitory housing to allow more

Greenland’s municipalities In many ways, Greenland’s administrative structure closely resembles its Nordic counterparts. The Nordic countries are divided into administrative districts called “municipalities” (known as kommuner in the Scandinavian lan- guages).

The term municipality is somewhat of a misnomer in English, though, because a “municipality” in the Nordic countries extends far beyond the outskirts of a single town or city and can include large areas of countryside. In the Green- landic context a “municipality” is an administrative district that contains a number of individual communities and encompasses vast expanses of track- less wilderness, including large parts of the ice cap.

On January 1, 2009 an administrative structural reform was introduced in Greenland and the 18 municipalities were consolidated into four large ones: Kommune Kujalleq in the south; Kommuneqarfik Sermersooq, which is home to the capital, Nuuk, and extends clear across the ice cap to include the communities on the East Coast of Greenland; Qeqqata Kommunia farther north; and Qaasuitsup Kommunia from Disko Bay to the far north.

From January 1, 2018 Qaasuitsup Kommunia will be divided into two municipalities, Kommune Qeqertalik and Avannaata Kommunia, giving Green- land a total of five administrative areas, or “municipalities.”

The extent of each of the municipalities can be seen on the maps on NunaGIS. See http://www.nunagis.gl.

Due to a lack of space in some of the charts and graphs in this publication, the names of the municipalities have occasionally been shortened to Kujalleq, Sermersooq, Qeqqata, Qaasuitsup, Qeqertalik and Avannaata.

10 The Necessity of Close Collaboration 1.1 Construction – Distribution of Public Construction Funds 1.1.1 Construction Funds in the National Budget

The coalition parties have agreed airports that can enhance the sus- that all work shall focus on securing tainability of the economic policy Greenland’s economic self-sufficien- and create a more self-sufficient cy, and that the work shall be coor- economy. dinated to obtain the best possible • The top-priority construction pro- results. This includes distribut- jects in the existing national sec- ing public construction projects to tor plans. regional administrations to a greater • The established goal of creating degree. Furthermore, evaluations regional balance in development and assessments have to be con- and achieving a better distribution ducted together with the municipa- of allocated construction funds. lities with a view to shifting a larger number of construction projects to When assessing the regional bal- them in the future. ance in the distribution of construction funds according to the draft The draft national budget for 2018 national budget, it is necessary to aims to prioritize unallocated con- take into consideration that many struction funds according to the of these funds are not allocated to following criteria: a specific community. This is partly • The adopted objectives in the a consequence of the use of pooled area of airport construction and funds for purposes such as renova- expansion. For instance, extraor- tion and maintenance in the housing dinary revenues are earmarked sector, and partly a consequence of for infrastructure investments in the two-part appropriation principle.

The Necessity of Close Collaboration 11 12 The Necessity of Close Collaboration In the first step, funds can only be allocated to specific communities allocated to the planning of a pro- than the overview provided in the ject. This typically entails 3–5% of annual reports on construction and the total amount of funding. In the renovation funds. It has thus been second step, funds are then allocat- possible in practice to transfer some ed to the actual construction after all of the construction appropriations bids have been submitted and eva- from the category ‘not allocated to luated. Accordingly, it is not possible specific communities’ to the category to gain a detailed overview of the ‘geographically allocated to specific upcoming distribution of construction communities’ for the 2014–2016 funds for individual communities as period. The results of this work can allocated in the draft national budget. be seen in Figure 1.2. Due to limited resources, it was not possible to This is illustrated in Figure 1.1, which extend this overview further into the shows the total annual expenditures past. in 2009–2016 and allocations for 2017–2018, and the amount of these If we examine the construction ap- funds that are not allocated to a spe- propriations in the individual annu- cific community. The blue bars in the al budgets based on a distribution graph show the total amount of ap- among the four present municipali- propriated funds, while the red bars ties, the picture changes depend- show the proportion that are not allo- ing on whether the starting point is cated to a specific community. limited to the actual allocations to

Figure 1.1 Construction funds in the national budget - total annual expenditures for 2009–2016 and allocations for 2017–2018

The current national spatial plan- specific communities or whether it ning report provides a better retro- includes all appropriations in this spective overview of the appropria- area. The differences can be seen in tions of construction funds that are Figure 1.2 and Figure 1.3.

The Necessity of Close Collaboration 13 Figure 1.2 Construction funds earmarked for specific communities and their distribution to the individual municipalities

2009–2016 shows the expenditures and 2017–2018 shows the allocations

Figure 1.3 Construction funds earmarked for specific communities and their distribution to the individual municipalities and, in light blue, the funds that have not been earmarked for a specific community

2009–2016 shows the expenditures and 2017–2018 shows the allocations

14 The Necessity of Close Collaboration Figure 1.4 shows the actual expen- exploration were channeled in 2010– ditures of construction funds in the 2011 to build dormitories as part of individual municipalities for each efforts to give greater priority to ed- national budget year for the period ucation. 2009–2016 and the allocations in 2017 and 2018. Figure 1.4 does not take into account the differences in populations As shown in Figure 1.4, expenditures between the municipalities and their of construction appropriations were respective demographic develop- particularly large in Kommuneqarfik ments. All things being equal, these Sermersooq during the initial part differences presumably mean that of the timeframe. During this peri- there are different needs from od, for example, a large number of municipality to municipality. apartments were built in Nuuk via Illuut A/S. This construction was Figure 1.5 takes into account the carried out in response to a politi- respective populations of each mu- cal desire to meet the large de- nicipality and compares this with mand for housing in Nuuk by giving the expenditures from construction it high priority in the appropriations funds. The chart shows how many from the total construction funds. million Danish crowns (DKK) were This should also be seen in light of annually spent per 1,000 inhabitants the fact that during the 2009–2013 in each of the municipalities. The period there was generally a very number of inhabitants is calculated high level of construction appro- as the average population in the re- priations. In particular, extraordi- spective municipalities for the period narily large tax revenues from oil 2009–2017.

Figure 1.4 Actual figures for construction funds earmarked for specific communities and their distribution to the individual municipalities

2009–2016 shows the expenditures and 2017–2018 shows the allocations

The Necessity of Close Collaboration 15 Figure 1.5 Construction funds in relation to population and distribution t to the individual municipalities

2009–2016 shows the expenditures and 2017–2018 shows the allocations

Figure 1.5 illustrates the distribution These fluctuations belie the fact that of construction funds in comparison major construction projects in a mu- to the respective populations of the nicipality can have a significant -im individual municipalities. This shows pact on the figures within a given that there are fluctuations between period. Such projects may include, the municipalities over time. for example, the construction of hydroelectric plants.

16 The Necessity of Close Collaboration 1.1.2 Illuut A/S and Financial Support for the Constrution of Private Housing (20-20-60 and Cooperative Housing)

Within the framework of construction to build cooperative housing with appropriations, there are diverse pro- public subsidies. See overview in visions in the national budget where Figure 1.6. it is not the Greenland Government • Housing built by Illuut A/S, a Authorities (or the municipalities) company that is 100% owned that are responsible for projects, but by the Greenland Government instead construction is carried out Authoritabellenties, with state under the auspices of private stake- subsidies in the form of inter- holders. est-free loans and deferred repayment loans. This can include: • Individual citizens and private What all of these have in common is companies that build owner-oc- that financial support from the public cupied dwellings (the 20-20-60 sector is supplemented with borrowed program), cooperative associa- capital, typically in the form of mort- tions or citizens who join forces gage loans and/or long-term housing

Figure 1.6 Annual allocations for financial support for the construction of private housing (20-20-60 and cooperative housing) 2012–2016

Town 2012 FS 2013 FS 2014 FS 2015 FS 2016 FS Total Pro- portion

Thousand DKK (%)

Ilulissat 817 - 481 94 - 1,592 1 Maniitsoq 3,468 5,593 3,457 1,980 9,572 24,088 15 Nanortalik - - - 77 - 77 0 Narsaq 104 70 28 49 148 399 0 Nuuk 34,102 3,873 23,540 16,777 20,884 99,176 63 Qaqortoq 685 41 1,130 1,067 130 3,053 2 Qaanaaq - - - 40 - 40 0 Sisimiut 11,091 7,188 1,425 4,202 779 24,685 16 Aasiaat - - 202 435 3,530 4,166 3 Upernavik - 48 - - - 48 0

Total 50,457 16,812 30,282 24,920 35,044 157,325 100.0

Source: Economy and Personnel Agency FS = Financial Statement

The Necessity of Close Collaboration 17 loans from banks. This makes it pos- degree in the future, and that public sible to build more housing with the financial support for housing will be same amount of public funding. more closely tailored to needs than is currently the case. Figure 1.6 shows the economic extent and geographic distribution of funds Illuut A/S has been granted public allocated in the national budget for construction funds amounting to a the construction of private housing total of DKK 784 million in inter- during the 2012–2016 period. This is est-free loans and deferred repay- based on the assumption that match- ment loans (source: Illuut A/S 2016 ing funding is provided by the res- annual report). Furthermore, the pective municipalities, which means company has incurred debts with that the total amount of public fund- banks and mortgage lenders (exter- ing is twice what is represented by nal financing) amounting to DKK 349 the numbers in Figure 1.6. As seen million. This indicates an aggregate here, the majority of funding during property investment of approx. DKK the 2012–2016 period was grant- 1.133 billion. Likewise, on its balance ed to citizens in Nuuk, Sisimiut and sheet in the 2016 annual report the Maniitsoq, but also to residents in a company estimated the value of its number of other communities where assets (property and buildings) at it was possible to acquire mortgage DKK 1.312 billion. Housing construc- loan financing for either owner- tion by Illuut A/S has taken place occupied or cooperative housing. in Nuuk since 2007 and reached its peak in 2009–2014. It should be From 2018 it is expected that the noted that, in addition to building scheme will be transferred to the mu- and renovating housing during this nicipalities to ease the burden on the period, Illuut A/S entered into pur- administration, assuming that a bill to chasing agreements, for example, for revise the law on financial support for the high-rise office building in Nuuk the construction of private housing is to house most of the central govern- passed during the 2017 autumn as- ment administration. sembly. With regard to the negotia- tions on the block grant agreement The 2017 national budget includes for 2018, it has been agreed with an amendment that authorizes the the municipalities that funds will be Government of Greenland to enter distributed based on their respective into agreements with Illuut A/S to populations. build 500 apartment units to be used as dormitories in towns with educa- The Government of Greenland has tional institutions (primarily Qaqor- proposed a bill for the 2017 autumn toq, Narsaq, Nuuk, Sisimiut, Aasiaat assembly to reform financial sup- and Ilulissat). This makes it possible port for the construction of private to defray the costs of renting dormi- housing. This bill paves the way for tory space, since expenditures can a gradual reduction in the proportion be used as payments to Illuut A/S, of financial support that goes to Nuuk which then uses these funds to re- and other larger communities. This pay the loans that it has taken out to will mean that housing construction build student housing. will be privately financed to a higher

18 The Necessity of Close Collaboration Furthermore, funds have also been The distribution of the funds among allocated in the national budget for a the municipalities has taken place, scheme that allows owners to build— so 50% of the funds for the housing or be involved in building—their own program have been equally distribu- houses, to be coordinated by the ted among the municipalities. The housing program for settlements and remaining 50% is distributed accord- outlying districts. This scheme has ing to a distributional formula that now been transferred to the muni- is calculated based on communities cipalities via the block grant agree- with fewer than 700 inhabitants in ment, effective as of 2017, so pri- the individual municipalities. oritizations will take place under the direction of the municipal councils.

The Necessity of Close Collaboration 19 1.1.3 Other Infrastructure-Related Activities Financed by the Greenland Government Authorities

Infrastructure-related expenditures capital contributions expected over in the national budget are not sole- the coming years to be supple- ly limited to construction appropria- mented with loans from commercial tions: lenders—to make it possible to build • Every year the national budget the country’s planned new airfields. allocates funds—and occasionally significant amounts of money—to Moreover, there are other com- maintain infrastructure within in- panies owned by the Greenland dividual sectors. Government Authorities and inde- • State coffers are used to help pendent government agencies that— finance infrastructure-related - ac in some cases with the help of financ- tivities in some of the companies ing from state coffers—are pursuing owned by the Greenland Govern- major infrastructure-related acti- ment Authorities, for example, vities throughout the country in the through the use of service con- form of construction, renovation and tracts and capital injections to maintenance. pave the way for major projects, like the construction of a new One example of such a company is container port or new runways. KNI A/S, which operates throughout the country to provide goods and For instance, Sikuki Nuuk Har- liquid fuel. With the exception of fuel bour A/S, a company that is 100% sales, the products sold by KNI A/S owned by the Greenland Government are partly financed via service - con Authorities, received a DKK 100 mil- tract payments from state coffers. lion capital injection and was grant- Nukissiorfiit (the national water and ed a DKK 110 million government utilities company) and to a certain loan that, together with loans from extent Mittarfeqarfiit (Greenland commercial lenders amounting to Airports) also pursue infrastruc- DKK 440 million, amounted to an ture-related activities at various loca- aggregate construction fund of DKK tions throughout the entire country. 650 million with the goal of moder- It is beyond the scope of the national nizing and reducing the cost of the spatial planning report, however, country’s overall freight services, in to describe the extent and geographi- part by building a new container port cal distribution of these activities. in Nuuk. Nevertheless, the infrastructure- related activities of these companies Similarly, future runway and airport and enterprises help fuel business construction in the larger commu- activities and create jobs and income nities is anticipated to take place in every region of the country. under the direction of Kalaallit Air- ports A/S, another company 100% owned by the Greenland Govern- ment Authorities, which has received a capital injection—with additional

20 The Necessity of Close Collaboration 1.1.4 Maintenance Funds in the National Budget— and the Maintenance Backlog

To further clarify the impact of state Figure 1.7 provides an overview funds on the area of infrastructure, of the projected appropriations for this section on construction also in- maintenance in the respective sec- cludes appropriations for mainte- tors in the 2018 draft national bud- nance in the respective sectors, even get and where these activities are if these are listed for the time being expected to take place. as operational costs in the national budget.

Figure 1.7 An overview of the expenditures for maintenance in the respective sectors and the projected appropriations in the 2018 draft national budget

Maintenance 2016 FS 2017 NB 2018 DNB Locations

Million DKK

Parliament (ombudsman) 0.14 0.25 0.25 Nuuk

Central government 6.42 6.42 6.31 Nuuk administration

Education, culture 46.88 32.48 31.33 All municipalities and church *

Families ** 11.09 8.84 8.93 All municipalities

Health *** 19.81 20.03 20.25 All municipalities

Total 84.34 68.02 67.07

FS = Financial Statement NB = National Budget DNB = Draft National Budget

* Primarily in Nuuk, Sisimiut, Aasiaat, Qaqortoq, Ilulissat, Narsaq, Paamiut and Qasigiannguit, which are all towns that are centers of education ** Primarily in Nuuk, Tasiilaq, Qaqortoq, Ilulissat, Sisimiut, Uummannaq and Maniitsoq *** Primarily in Nuuk, Aasiaat, Ilulissat, Sisimiut, Upernavik, Uummannaq, Qaqortoq, Maniitsoq, Nanortalik and Qasigiannguit (+Denmark)

The Necessity of Close Collaboration 21 1.1.5 Infrastructure-Related Activities Financed with Subsidy Programs under the National Budget

There are also individual financial support based on approved sec- support programs that provide direct tor plans subsidies to infrastructure-related • Agriculture, in which farmers are activities under the national budget. provided with interest-free loans See Figure 1.8. This applies to these and deferred repayment loans. two areas: • Environmental protection and waste disposal, in which the municipalities can receive financial

Figure 1.8 Financial support programs under the national budget with direct subsidies for infrastructure- related activities

Subsidies 2016 FS 2017 NB 2018 DNB Locations

Million DKK

Interest-free loans and 6.04 6.34 6.37 Particularly in deferred repayment Kommune Kujalleq loans for agriculture

Subsidies for environ- 8.65 14.31 14.22 All municipalities mental infrastructure

Total 14.69 20.65 20.59

FS = Financial Statement NB = National Budget DNB = Draft National Budget

22 The Necessity of Close Collaboration 1.1.6 Summary

The distribution of construction funds maintenance to provide ser- under the national budget is of fun- vices of a noncommercial nature damental importance to the level of throughout the entire country activity in the construction sector, • Subsidy appropriations for infra- and thus also for the municipalities’ structure-related activities in the tax revenues and transfer expendi- municipalities or to private stake- tures. Not surprisingly, this is an area holders working in agriculture that is closely observed by both the construction sector and the munici- A review of developments in recent palities. years shows that the Government of Greenland has achieved its political One of the reasons for this is that goal of a balance in the distribution a rising proportion of construc- among the municipalities with re- tion funds appropriated under the gard to the size of their respective national budget are not allocated to populations, as also planned in the a specific community, but are instead 2018 draft national budget. It should collected as pooled funds that are not be noted that large one-off projects utilized until a later point in time (see within a given period can result in the two-part appropriations process temporary natural shifts with respect described in the beginning of this to the goal of a balanced level of ac- chapter). Accordingly, it is not pos- tivity. The upcoming planned airport sible to form an overall geographic construction is one example of this impression of the distribution of con- type of project. struction funds according to the community-based allocation outline in In conjunction with the transfer of the draft national budget. many of the major construction appropriations to the municipalities, In order to gain a comprehensive over the coming years it will increas- overview of the impact of infrastruc- ingly be up to the municipal councils ture-related activities financed by the to ensure the geographic distribution Greenland Government Authorities, of public construction funds within it is necessary to look beyond what is the individual municipalities. characterized in the national budget as construction appropriations. It is At the same time, the data show that also necessary to take into consider- there is an ongoing problem with en- ation the following: suring an even flow and use of con- • Funds for maintenance that are struction funds. The gradual intro- listed as operational costs duction of the two-part appropriation • Funds that in the form of capital system in the area of construction injections and loans to companies combined with enhanced coordina- are channeled into construction tion aims to reduce these problems and major infrastructure projects over the long term. This is to be fur- • Funds that in the form of subsi- ther pursued over the coming years dy appropriations for service con- based on close collaboration among tracts are used to help finance the key stakeholders in the public the requisite infrastructure and and private sectors.

The Necessity of Close Collaboration 23 24 The Necessity of Close Collaboration 1.2 Labor Market – Localization of Public Sector Jobs

The section on regional development • One aspect of the efforts to pre- in the coalition agreement paves pare the ground for the proposed the way for achieving a wide range 2018 national budget is to exam- of objectives, including greater bal- ine other relevant candidates for ance among the municipalities. This a possible relocation from Nuuk. requires adaptation on a number of • It is important to emphasize here fronts and can have an impact on that a potential transfer candi- sector planning and the distribution date will not necessarily ultimate- of construction funds in the national ly be transferred from Nuuk. Po- budget. It can also have an impact on tential candidates will enter into where public sector jobs are placed. the Government of Greenland’s considerations on this issue as The issue of the fair distribution of well as the parliament’s possible new and existing public sector jobs decisions concerning the national took on renewed importance after budget. the publication of a paper entitled “An Equal Future” (“En ligeværdig fremtid”), which was compiled by three mayors in 2016.

After engaging in a dialogue with the municipalities, the Government of Greenland discussed a proposal in February 2017 concerning the des- ignation of possible jobs that might be transferred from Nuuk to other communities. The conclusions of this debate were subsequently presented at a meeting of the Political Coordi- nation Group.

The results of this are as follows: • The Ministry of Education, Cul- ture, Church and Research will continue to work on elaborating a proposal to move four institutions of education out of Nuuk. These efforts will be incorporated into the 2018 draft national budget. • This will entail implementation and operational costs. Possibilities currently under exploration also include allocating funds in the national budget for the construction of dormitories and school buildings.

The Necessity of Close Collaboration 25 1.2.1 Economic and Physical Planning

The transfer plans influence the eco- exceptional circumstances dictate nomic and physical planning, but otherwise. The reasoning here is that they can also be of relevance to the when jobs are moved from Nuuk it overriding political goal of develop- is necessary to ensure that it will be ing a more self-sustaining econo- possible to attract and retain compe- my. Achieving this goal requires ad- tent personnel, along with access to dressing the long-term challenges suitable employment for accompany- of maintaining balanced public sec- ing spouses, not to mention educa- tor budgets while gradually making tional opportunities for their children, Greenland independent of the block to name just a few salient aspects. grant. It is hoped that this will forge the economic conditions that will With all of these considerations it is allow Greenland to assume responsi- of great importance that the receiv- bility for new areas that are still cur- ing communities provide access to a rently under Danish administration critical mass with respect to recruit- and eventually make it possible for ment and the requisite professional the country to become economically level so that the work is not jeopar- and politically independent. dized in any way.

The overriding political goal places Indeed, the decisive factor is not high demands on public structures, where the work is done, but rather for example: that it can be accomplished as stipu- lated in the relevant departmental • It requires an efficient division of legislation and as provided for in the labor between various geographic national budget. The Government of regions while fostering economies Greenland has a political responsibi- of scale and, at the same time, lity here with respect to parliament. ensuring that all citizens enjoy A transfer of public sector jobs must ease of access to public services. take place within these parameters. • It necessitates that the pub- It therefore goes without saying that lic sector be organized to avoid this issue will be incorporated into as much double administration future political considerations in the and suboptimization as possible, decision-making process. thereby assuring high-quality and effective performance. Decisions on transferring jobs will have an impact on sector planning. This does not mean that all national Above all it must be anticipated that public sector functions and affiliated a possible relocation of educational departments (current as well as fu- institutions may influence planning ture areas of responsibility that will be in the area of education. This par- transferred from Denmark to Green- ticularly applies to the sector plans land) need necessarily be located in for the construction of dormitories the capital. There is, however, much and vocational schools, which among that suggests that large-scale trans- other things will be affected by the fers of public sector jobs from Nuuk upcoming law on trainees and pos- should be made to the larger com- sible relocations of educational insti- munities in the municipalities, unless tutions from Nuuk.

26 The Necessity of Close Collaboration 1.2.2 Employment in the Various Sectors of the Municipalities

The goal of achieving a self-sustain- • Economic structures are to some ing economy raises the question of extent fragile and overly depen- the employment situations and the dent on developments in exports opportunities for financial develop- of fisheries products. At the same ment in the individual municipalities. time, Greenland’s geographical isolation generates considerable The presence of public sector jobs operational costs and the island and prioritizations in construction is hampered by small-scale oper- projects are of significant importance ations with the resulting difficult to the local economies of the munici- market conditions. palities, as can be seen here: • The public sector is disproportion- Employment in the individual muni- ately large in comparison to other cipalities reflects these conditions. countries in the world. See Figure 1.9.

Figure 1.9 Main source of employment, according to sector and municipality, 2015

Kommune Kommun. Qeqqata Qaasuitsup Kujalleq Sermersooq Kommunia Kommunia

Jobs % Jobs % Jobs % Jobs % -- Fishing, hunting and agriculture 348 12.3 829 7.7 848 18.6 2,060 28.0 -- Mineral exploitation 32 1.1 84 0.8 5 0.1 2 0.0 -- Industry 2 0.1 142 1.3 62 1.4 28 0.4 -- Energy and water supply 5 1.8 141 1.3 42 0.9 145 2.0 -- Construction and 2 building trades 244 8.6 753 7.0 445 9.8 402 5.5 -- Trade 344 12.2 1,161 10.8 551 12.1 833 11.3 -- Hotels and restaurants 90 3.2 328 3.0 127 2.8 217 2.9 -- Transport 218 7.7 1,345 12.5 434 9.5 442 6.0 -- Business services 82 2.9 769 7.1 230 5.1 174 2.4 -- Public administration and service 1,288 45.5 4,496 41.7 1,630 35.8 2,888 39.2 -- Other services 83 2.9 587 5.4 139 3.1 105 1.4 -- Undisclosed 44 1.6 146 1.4 40 0.9 71 1.0

Total 2,828 100 10,781 100 4,554 100 7,367 100

Source: Statistics Greenland, Statbank Greenland. http://bank.stat.gl/ARDBFB3

The Necessity of Close Collaboration 27 The table shows both general simi- As shown in Figure 1.10, the number larities and differences between the of full-time employees working for municipalities: the Greenland Government Authori- • The proportion of public sector ties increased more in Nuuk than in workers is generally high through- the rest of the country during the out the country. period from 2009 to 2016. In Nuuk • Kommune Kujalleq has the high- the number of employees rose from est percentage of public sector 1,691 in 2009 to 2,019 full-time employees, while Qeqqata Kom- employees in 2016. For the rest of munia has the lowest proportion. the country the corresponding num- • Qaasuitsup Kommunia has a high bers are 1,706 in 2009 and 1,743 in percentage of people working in 2016. the area of fishing and hunting. • Kommuneqarfik Sermersooq has It should be noted that the figures the highest proportion of employ- show the number of full-time em- ees working in the areas of trans- ployees according to districts. When port, business and other services. it comes to Nuuk, this corresponds to • Qeqqata Kommunia has the the number of full-time employees highest proportion of employees working for the Greenland Govern- working in the area of construc- ment Authorities in the former Nuuk tion and building trades. municipality. The high number of employees here merely reflects the fact An examination that focuses solely that virtually everyone who works for on the number of employees working the Greenland Government Authori- for the Greenland Government ties lives in Nuuk. Authorities provides a clearer picture. See Figure 1.10 and Figure 1.11.

Figure 1.10 Geographic distribution of full-time employees for the Green- land Government Authorities in the period 2009–2016 in Nuuk and the rest of the country

Source: Statistics Greenland

28 The Necessity of Close Collaboration Figure 1.11 Number of full-time employees working for the Greenland Government Authorities in Nuuk and in the rest of the country per 1,000 inhabitants

Source: Statistics Greenland

Figure 1.11 compares the number of number of full-time employees per employees with the number of inhabi- 1,000 inhabitants working for the tants. The graphs thus show the rel- Greenland Government Authorities. ative changes with respect to Nuuk In Nuuk the number rose from 110 in and the rest of the country. 2009 to 115 in 2016, and in the rest of the country the number rose from Figure 1.11 shows that there are 42 in 2009 to 46 full-time employees more than twice as many employees working for the Greenland Govern- working for the Greenland Govern- ment Authorities per 1,000 inhabi- ment Authorities per 1,000 inhabitants in 2016. tants in Nuuk than in the rest of the country. This is primarily because A preliminary analysis of the under- most of the Greenland Government lying data for Figure 1.10 and Figure Authorities’ central administration is 1.11 shows that some of the total located in Nuuk. Moreover, it is im- increase can be attributed to a rise portant to note that Dronning Ingrids in the number of full-time employ- Hospital, which is located in Nuuk, ees working in upper secondary edu- serves as a central hospital for the cation. According to the Ministry of entire country, and all healthcare Education, this rise is the result of an workers are employed by the Green- increase in the number of students land Government Authorities. in this area. By the same token, Figure 1.11 shows that during the there is an increase in the number seven-year period between 2009 and of (permanent) staff members in 2016 both Nuuk and the rest of the the health sector during this period. country saw a slight increase in the According to the Ministry of Health,

The Necessity of Close Collaboration 29 this has to do with a conscious number of full-time employees work- strategy to recruit more permanent ing for the Greenland Government employees instead of short-term em- Authorities per 1,000 inhabitants in ployees and expensive temporary districts with key municipal commu- staff. Furthermore, there was gener- nities: ally a large increase in the number of • Qaqortoq: 14.9% increase managers and academics working for • Nuuk: 4.5% increase the Greenland Government Authori- • Sisimiut: 28.3% increase ties during this period. • Aasiaat: 10.9% increase • Ilulissat: 5.5% increase The following figures for the 2009– 2016 period show the increase in the It will take a more in-depth analysis various locations with the aim of en- to reveal the reasons for this devel- suring appropriate job performance opment.

30 The Necessity of Close Collaboration 1.2.3 Concrete Considerations and Experiences with Placing the Employees of the Government Government Authorities

As shown in Figure 1.10 and Figure The Tax Agency’s electronic work- 1.11, the employees of the Green- place land Government Authorities are not Staff meetings, office meetings and all located in Nuuk, but instead work job interviews are all conducted elec- at various locations with the aim of tronically. If one or any number of ensuring appropriate job performance employees in a department lives else- and public services in a cost-effec- where or is on a business trip, there tive manner. To illustrate a number is still the possibility to take part in of relevant underlying issues, here is meetings and remain informed. The a concrete example focusing on the model with a main office in Nuuk and Tax Agency’s experiences with being smaller offices in towns like Maniit- located in a number of different soq and Sisimiut works particularly places in Greenland (and Denmark). well when meetings are held online, materials are distributed on the In 2017 the Tax Agency had approx. intranet and information is accessible 110 positions and a number of in- with the click of a mouse. terns distributed over the following locations: The Tax Agency’s location – an his- • Qaqortoq – 8 employees (public torical overview information services and collec- The location of the offices is based on tion) historical precedents, on providing effective services to individual tax- • Nuuk – 61 employees (manage- payers and companies and, finally, on ment and all departments) the opportunities that have present- • Maniitsoq – 16 employees (ac- ed themselves in recent years. The counting, collection and auditing) Tax Agency was originally located in • Kangerlussuaq – 1 employee Nuuk, the Port of Aalborg and Copen- (customs) hagen. The central administration is • Sisimiut – 9 employees (public in- housed in Nuuk. Virtually all goods formation services and collection) are shipped to Greenland via Aal- • Ilulissat – 8 employees (public borg, which explains why an office is information services, auditing and located there to collect import duties. collection) The office in Copenhagen focused on advising newcomers to Greenland on • Copenhagen – 1 employee plus tax matters and maintained contact assistant/temporary worker with Danish employers who worked (Danish Customs and Tax Admin- in Greenland. istration) • Aalborg – 6 employees (auditing) With the centralization of the tax • Aalborg, port – 1 employee plus administration in 2007 and sub- assistant/temporary worker sequently debt collection services (import duties) effective April 1, 2008, it was decided that the Tax Agency should be represented in the largest communities

The Necessity of Close Collaboration 31 of the individual municipalities. This coworkers/colleagues with a relative- was based on the observation that ly limited educational background. the vast majority of individuals live in these communities, just as the Long-distance structures demand majority of companies are located that managers be highly visible. Con- in Qaqortoq, Nuuk, Sisimiut and sequently, a great deal of time and Ilulissat. In the wake of the municipal energy and relatively large sums of merger in 2009, a number of experi- money are spent on visiting all offic- enced economics experts on the staff es. This is necessary with the current in Maniitsoq decided not to move to staff composition of the Tax Agency. Sisimiut. During the same period, the Tax Agency had great difficulties The Tax Agency’s individual offices filling positions in its accounting and and handling of the workload economics department in Nuuk. This The Tax Agency’s local offices prompted the decision to establish an should be of a minimum size to en- accounting department in Maniitsoq. sure that the necessary professional standards are maintained, Over the years, it has generally been feedback from local coworkers is more difficult to fill positions- out effective and substitutes can be side of Nuuk than in Nuuk. The high found when staff members are on degree of specialization in this area sick leave, on vacation or on other generally limits the number of appli- leaves of absence. cants for the agency’s positions, and advances in the field necessitate a The Tax Agency used to maintain continually rising level of expertise offices in some communities with among applicants. Positions for tax just a single staff member and have auditors in Greenland have been par- offices with specialized positions in ticularly difficult to fill with qualified the larger communities with also personnel. In connection with recent only a single staff member to fulfill changes in the organization of the these functions (primarily customs Danish Customs and Tax Administra- and collection). This was not particu- tion (SKAT), it has been possible to larly successful, not because of a lack recruit a number of experienced tax of ability or expertise among staff auditors from that agency. Accord- members, but simply because it is ingly, an office was established in problematic to sit in an office alone, Aalborg in the same building as the without any coworkers. Such con- Danish Customs and Tax Administra- ditions entail the risk of stagnating tion in 2009/2010. or becoming bogged down in certain routines, which are not necessarily to Distinctive managerial characteris- the benefit of either the employer or tics of the Tax Agency derived from the employee. localization policies From a managerial perspective, there It is the experience of the Tax Agen- are far greater challenges in having cy that a wide range of tasks don’t offices in several different locations. necessarily have to be performed in This is compounded by the fact that Nuuk, and that they can be carried the Tax Agency’s staff composition out quite satisfactorily at other loca- ranges from academic experts to tions. At the same time, it has been

32 The Necessity of Close Collaboration the agency’s experience that for work there are travel expenses, hotel that is more politically oriented it is bills and daily allowances in con- important to be in closer proximity nection with employees’ visits to to the central administration and the Nuuk and management’s visits political milieu. to individual offices and departments. The more citizen-oriented services, • The agency’s responsibilities re- including supportive functions like lating to guidance, auditing and accounting, are currently provided at bailiff activities are cost intensive, the same high level of service—and but this is reduced to a certain in some cases even higher at offices degree by maintaining offices at outside the capital than in Nuuk. This many locations in Greenland. It is not because the employees and is possible to use digital means colleagues outside of Nuuk are bet- of communication, but having an ter educated than those employed in actual physical presence is often the capital, but rather that they of- necessary. ten have a higher degree of seniority, • There are considerable expenses although the average seniority in associated with tax auditor vis- Nuuk is in fact relatively high. A its. Although there is a desire to higher degree of seniority means transfer the responsibility for tax more years of practice and exper- auditing from Denmark to Green- ience, which often leads to better land, this is hardly realistic with performance. the salaries that can be offered. The Tax Agency has come to the con- • Finally, there are expenses asso- clusion that one of the reasons for ciated with gathering all employ- the higher degree of seniority out- ees every second/third year with side of Nuuk is that there are a far the aim of building a sense of more limited number of relevant po- cohesion, improving cooperation sitions, and thus fewer opportunities and communication, and foster- to change jobs. Communities out- ing a shared team spirit. For in- side Nuuk also don’t have to contend stance, in 2014 the Tax Agency with such stiff competition between held a three-day seminar in Kan- the public and the private sector to gerlussuaq for all employees and recruit personnel. attended by approx. 100 people. In 2017 this event was success- The economic circumstances of the fully repeated in Kangerlussuaq Tax Agency’s organization for approx. 110 employees at a Viewed from a purely economic per- cost of roughly DKK 1,200,000. spective, the cheapest solution would be to assemble all employees in Nuuk. Summary of the example However, the Tax Agency provides When considering localizing public many citizen-oriented services and sector jobs, it should be emphasized, thus also has to be present outside based on the Tax Agency’s experi- of Nuuk. A widespread organization ences, that the placing of such em- entails both expenses and savings: ployment is partly based on historical precedents and partly a response • Aside from the expenses for rent, to the local needs of taxpayers. electricity, water, heating, etc.,

The Necessity of Close Collaboration 33 The concrete example of the account- member, despite the citizen-oriented ing department in Maniitsoq indi- contact that this can provide. A wide- cates that it is difficult if not virtually spread organization like that of the impossible to centralize or decentral- Tax Agency incurs both expenditures ize specialized offices. and savings as a result of its structure. The two key elements here are Furthermore, it is generally advis- the ability to take into consideration able to avoid smaller offices and the needs of citizens and the ability one should refrain entirely from es- to hire qualified personnel. tablishing offices with just one staff

34 The Necessity of Close Collaboration 1.3 Demographics – Examining Relocation Patterns and Causes

Knowledge of demographic develop- There is a connection between mo- ment is important for public planning. bility and physical planning. When The five basic elements of -demo a community experiences of drop graphics (age, sex, birth, death and in population due to people moving mobility) were subjected to in-depth out, this does not generate the same analyses in earlier national spatial need for new construction as when a planning reports. This year’s analy- community grows because newcom- sis will focus on mobility. Mobility can ers are moving in. But it is not quite be viewed as people relocating or as simple as that. It is not merely the migrating. When people move from current net mobility that is the de- one community to another within a cisive factor. Many factors come into country, they are relocating, whereas play, but net mobility is an important when they move from one country to factor. another they are migrating.

1.3.1 Urbanization

When people move from smaller to In order to analyze Greenland’s com- larger communities, it is called ur- munities, they have been divided up banization. The global tendency is according to size in six groups, as for a growing number of people to described in Figure 1.12. decide to move to larger communities. The urbanization process in this country has been underway for more than 80 years.

Figure 1.12 Classification of communities according to size

Community size Definition

Capital > 6.000 inhabitants

Major town 3,000–6,000 inhabitants

Larger communities 700–2,999 inhabitants

Communities 200–699 inhabitants

Smaller communities 50–199 inhabitants

Smallest communities < 50 inhabitants

The Necessity of Close Collaboration 35 The number of people who live in Figure 1.14 shows a graphic repre- each individual form of community sentation of these numbers. As to be fluctuates over time, as illustrated by expected, a larger proportion of the the numbers in Figure 1.13. population lived in communities with less than 50 inhabitants in 1938 than

Figure 1.13 Population distribution according to community size from 1938 to 2017

<50 50– 200– 700– 3,000– >6,000 Total 199 699 2,999 6,000 Population

1938 4,070 8,598 4,206 1,437 0 0 18,311

1956 1,144 7,867 6,876 12,327 0 0 28,214

1977 436 4,623 7,250 16,855 10,660 8,545 48,369

1997 280 3,745 7,728 12,133 18,506 12,909 55,301

2017 401 3,528 4,961 12,949 16,165 17,600 55,604

Source: Diverse issues of ‘Beretninger om Grønland’ and Statistics Greenland

The numbers for 1937 and 1957 were unavailable, which explains why 1938 and 1956 were used instead. The numbers for 1938 for the two groups with the lowest numbers of inhabitants are deemed slightly uncertain while the numbers for the four groups with the highest numbers of inhabitants are viewed as certain.

Figure 1.14 Population distribution according to community size from 1938 to 2017

36 The Necessity of Close Collaboration in 2017. One can also see that it was were four communities with more not until after 1956 that the coun- than 3,000 inhabitants. The lines in try had a community with more than Figure 1.15 show that for more than 3,000 inhabitants and that growth 75 years there has been a gradu- has primarily occurred in the largest al shift in population toward larger communities since then. communities. Figure 1.13 Population distribution according to community size from 1938 to 2017 The numbers can also be illustrated In 1997 the category with the largest as in Figure 1.15, which reveals the percentage of the country’s inhabi- <50 50– 200– 700– 3,000– >6,000 Total percentage of the population that tants was living in the largest com- 199 699 2,999 6,000 Population lived in each category of community munities (between 3,000 and 6,000 in the years shown. inhabitants), which were home 1938 4,070 8,598 4,206 1,437 0 0 18,311 to 33% of the population. By 2017 Figure 1.15 shows that 47% of the this had changed again and it was 1956 1,144 7,867 6,876 12,327 0 0 28,214 population was living in communities now the Greenandic community with with between 50 and 199 inhabitants more than 6,000 inhabitants, Nuuk, in 1938. This had changed by 1956, that had the largest percentage of 1977 436 4,623 7,250 16,855 10,660 8,545 48,369 when 44% of the population was the country’s inhabitants, with 32% 280 3,745 7,728 12,133 18,506 12,909 55,301 living in communities with between of the population. 1997 700 and 2,999 inhabitants. Over 20 years later, in 1977, the majority of Figure 1.16 illustrates urbanization 401 3,528 4,961 12,949 16,165 17,600 55,604 2017 the population in Greenland was still trends in a slightly simpler manner. living in communities with between It shows that the average size of a Source: Diverse issues of ‘Beretninger om Grønland’ and Statistics Greenland 700 and 2,999 inhabitants, but the community has constantly increased proportion living in this category had from 100 inhabitants in 1938 to 525 The numbers for 1937 and 1957 were unavailable, which explains why 1938 and 1956 were used fallen to 35%. In 1956 there were inhabitants in 1977, and by 2017 this instead. The numbers for 1938 for the two groups with the lowest numbers of inhabitants are deemed no communities that had more than number had risen to 751 inhabitants. slightly uncertain while the numbers for the four groups with the highest numbers of inhabitants are 3,000 inhabitants. In 1977 there viewed as certain.

Figure 1.15 Population distribution in percentages according to community size from 1938 to 2017

The Necessity of Close Collaboration 37 Figure 1.16 The average size of communities in the years 1938, 1956, 1977, 1997 and 2017

There are no reliable statistics for 50 inhabitants. It is beyond the scope how large communities were more of this report to determine when the than 300 years ago, but historical de- migration toward larger communi- scriptions indicate that the vast ma- ties began in earnest. However, it is jority of communities had fewer than clear that over the past 75 years our

Figure 1.17 Number of communities according to size from 1938 to 2017

<50 50– 200– 700– 3,000– >6,000 Total 199 699 2,999 6,000 no. of communities

1938 81 84 15 3 0 0 183

1956 65 75 20 9 0 0 169

1977 17 40 21 10 3 1 92

1997 15 32 23 8 5 1 84

2017 13 32 15 9 4 1 74

The numbers for 1937 and 1957 were unavailable, which explains why 1938 and 1956 were used instead. The numbers for 1938 for the two groups with the lowest numbers of inhabitants are deemed slightly uncertain while the numbers for the four groups with the highest numbers of inhabitants are viewed as certain.

38 The Necessity of Close Collaboration society has undergone a process by different categories, the picture is which the population has increasing- slightly different (Figure 1.17). ly shifted toward larger communities. Previously the majority of the Figure 1.18 shows that the vast ma- population lived in communities with jority of communities in 1938 either fewer than 50 inhabitants. In 1938 had fewer than 50 inhabitants or bet- it was communities with between 50 ween 50 and 199 inhabitants. Later and 199 inhabitants that were home there was a sharp decline particularly to the largest proportion of the pop- in the number of communities with ulation. This process has continued fewer than 50 inhabitants. This took until the present situation, where the place in conjunction with an increase largest percentage of the country’s in the number of larger communities. inhabitants live in communities with more than 6,000 inhabitants. Figure 1.19 illustrates the proportion of the population living in the various It is impossible to say how this pro- community categories for the sam- cess has impacted the size of the ple years. This shows that for all of country’s population, but there is the five analyzed years from 1938 to little doubt that nothing can change 2017 it was the group of communities the fundamental nature of this trend with between 50 and 199 inhabitants toward an ongoing urbanization of that constituted percentage-wise the Greenlandic society. largest group. For all of the five years shown, it is this group that makes up Up until now, this report has only between 38% and 46% of all com- examined the total number of people munities. who live in the six different sizes of communities. When it comes to the The proportion of communities Figure 1.17 Number of communities according to size from 1938 to number of communities in the six with fewer than 50 inhabitants is 2017

<50 50– 200– 700– 3,000– >6,000 Total 199 699 2,999 6,000 no. of Figure 1.18 Number of communities according to size from 1938 to communities 2017

1938 81 84 15 3 0 0 183

1956 65 75 20 9 0 0 169

1977 17 40 21 10 3 1 92

1997 15 32 23 8 5 1 84

2017 13 32 15 9 4 1 74

The Necessity of Close Collaboration 39 constantly declining while there is The figures provide no basis for pre- a steady increase in the proportion dicting how the situation will look represented by the largest commu- over the next 10, 20 or 30 years. The nities. Despite the lengthy process of overall number of communities has urbanization, which has progressed dropped from 183 in 1938 to 74 in for more than 75 years, through- 2017. In other words, the number of out the analyzed period of nearly communities has declined by more 80 years it has constantly been the than 50%. This appears to be a logi- group of communities with between cal consequence of the process of 50 and 299 inhabitants that has urbanization. constituted percentage-wise the largest group of communities.

Figure 1.19 Number of communities according to size and in percentages from 1938 to 2017

40 The Necessity of Close Collaboration 1.3.2 Transition

Over the past 200 years, most soci- until this point in time that fertility eties have undergone a process of began to decline (blue line), leading modernization known as a transition. to a sharp fall in the birth rate that The demographic transition is charac- continued for over 20 years. During terized by a shift from a situation the transition period from the 1930s with high mortality and fertility rates to the 1980s, there was a sharp in- to a situation with low mortality crease in population (green line). and low fertility. Mortality falls first, followed by a drop in fertility. During There are a number of factors that the transition period, there is a are noteworthy. First, the main growth in population. thrust of the transition took place over an extremely short period of The course of this transition for time that spanned some 40 years, Greenland is illustrated in Figure from the mid-1930s to the mid- 1.20. The earliest numbers for mor- 1970s. By comparison, the corre- tality and fertility rates date from sponding transition in Danish society 1937. It is during the mid-1930s that took place during a roughly 200-year mortality appears to have begun to period from the late 1700s to the late decline (red line). This decline con- 1900s. Second, it is striking that the tinued until around 1960. It was not approximate equilibrium between

Figure 1.20 Illustration of Greenland’s demographic transition

Source: Diverse issues of ‘Beretninger om Grønland’ and Statistics Greenland

The Graph is to be read as follows: the figures on the left-hand side represent the annual numbers of births and deaths per 1,000 inhabitants, while the figures on the right-hand side of the graph represent the absolute population size. There is a degree of uncertainty concerning the figures before 1960. For example, the figures preceding 1950 only pertain to the population in West Greenland and Thule (as it was called at the time). Furthermore, there are inconsistencies in the data right around 1960, but these uncertainties do not change the overriding picture of the transition.

The Necessity of Close Collaboration 41 the birth and death rates that has ex- the green line remains around 0 for isted since the 1970s is not quite at this period. Around 1950 there ap- the level that one might expect. This pears to have been a considerable indicates that the transition is not yet amount of immigration. This could entirely complete. be because modernizations were introduced at this point in time. Once It is precisely this difference between again in the 1960s there were many the birth and death rates that reveals periods with a high rate of immigra- an ongoing birth surplus over the tion. But the picture changed around past 40 years. This should actually 1975. It was in the years immediate- result in a constant growth in popula- ly following the introduction of home tion, but the population line (green) rule in 1979 that a small amount of shows that the number of inhabitants immigration can be observed. has remained nearly constant over the past 40 years. The general picture for more than 40 years is that Greenland has Figure 1.21 shows whether there was experienced a nearly constant net a net immigration or net emigration. emigration. It is in fact this exodus The years in which the red line is below that represents the largest threat to the blue line indicate a net emigra- the vision of a sustainable society tion from Greenland. During World over the long term. If the country War II, there was no immigration or fails to put a stop to this trend, it will emigration. Accordingly, the red and result in a significant decline in popu- the blue lines follow each other and lation within just a few years.

Figure 1.21 Birth surplus, population growth and migration

Source: Diverse issues of ‘Beretninger om Grønland’ and Statistics Greenland

Fluctuations in population (red line) during the period under consideration are a result of migration (green line) and the birth surplus (blue line). There are some extremely large fluctuations in population growth around 1960. This must be due to inconsistencies in the data. Hence, the corresponding numbers have been omitted from the figure.

42 The Necessity of Close Collaboration Figure 1.22 Projection of Greenland’s population up to the year 2040

Source: Statistics Greenland

The preceding section emphasized The annual population projection the differences between the muni- made by Statistics Greenland is pri- cipalities and the differences bet- marily based on trends in recent ween the sizes of communities. It years. Such projections do not say can be important to keep an eye anything about how the size of the on these differences when pursuing population will be affected by sig- internal regional planning. Never- nificant changes in national or local theless, these internal differences conditions. By contrast, these predic- pale in comparison to the challenges tions do give an indication of how the presented by the constant net emi- population is likely to develop in the gration from Greenland. absence of significant changes.

There is a great need to establish If, for example, the virtually constant models for collaboration between emigration that can be seen in Fig- regions, communities of all sizes and ure 1.21 continues over the coming municipalities to counter this threat years, Statistics Greenland’s popula- that affects the entire country. This tion projection will probably be highly is an issue that the 2016 Sustainabil- precise. The projections that Statis- ity and Growth Plan sets forth as a tics Greenland made in 2017 can be fundamental principle for ensuring a seen in Figure 1.22. These projec- sustainable society over the long run. tions show that, if conditions do not The Sustainability and Growth Plan significantly improve, we can expect points to attractiveness as a key fac- to see a constant decline in popula- tor to encourage residents to remain tion over the coming 20 years. The in the country and entice people to prediction says that in 2040 there will move here from abroad. Attractive- be 52,207 inhabitants in the country. ness will be discussed in greater This represents a 6.6% decline in detail in the following section. population from 2017 to 2040.

The Necessity of Close Collaboration 43 44 The Necessity of Close Collaboration 1.3.3 Settlement Patterns

An important step toward under- to relocate from smaller communi- standing the settlement patterns ties to larger communities. But why in Greenland is to analyze the geo- is there more work to be found in graphic distribution of human, eco- larger communities? One explana- nomic and infrastructural resources. tion is that location-based resources are today of much less importance On May 30–31, 2017 a developmen- in overall production processes than tal conference was held for smaller they used to be. Another explanation communities with the participation of is that a larger proportion of the pro- the relevant town councils, the Gov- duction chain has shifted to the areas ernment of Greenland, municipalities of training and technology, which are and members of the business com- not tied to a specific location. munity. Topics of discussion included the creation of ideal conditions to fos- This can be illustrated with an exam- ter economic development in small ple put forward by Robert Petersen.1 settlements. Participants sought to When Greenlanders used to hunt identify the conditions in the settle- from kayaks, settlements were locat- ments that could reduce the num- ed 10 km from each other in hunting ber of people who move away and areas. This was because 5 km was could promote local development. a kayaker’s typical daily range when The conference also explored a new hunting. Motorboats significantly price model for providing electrical extended this range. When motor- power. At its 2017 autumn assem- ized dinghies became common in the bly, the Government of Greenland 1960s, their greater daily range con- responded by submitting a proposal tributed to reducing the number of to reintroduce a standard unit price communities. for electricity in all communities. Fur- thermore, the community analysis But dinghies and outboard motors tool that has been developed in the cannot be manufactured in a small national spatial planning report is an community. It takes scores of trained effective means of allowing munici- engineers, mechanics and other spe- palities to rise to the occasion when cialists to design and produce them new responsibilities are transferred for a market that is larger than any to them from the Greenland Govern- individual country. Fishermen in mo- ment Authorities. Finally, it should torized dinghies can of course catch be noted that national sector plans a great deal more than hunters in will also serve as an effective tool kayaks. However, these fishermen for both the municipalities and the are just the first link in a larger pro- individual communities to concretize duction chain. Behind them stands a some of the recommendations that wide range of manufacturers of din- were made at the developmental ghies, outboard motors, fishing nets, conference for smaller communities. etc., and this industrial production

Job opportunities are a decisive factor in people’s decision about where 1. Robert Petersen, “Settlements, kinship and to live, and they often motivate them hunting grounds in traditional Greenland,” Meddelelser for Grønland, 2003, p. 34.

The Necessity of Close Collaboration 45 requires many highly educated em- Lower transport costs mean that it ployees. has become less expensive to ship raw materials to processing facilities This example shows that the settle- and send goods on to consumers. ment pattern has to adapt to loca- Access to skilled labor is the decisive tion-based resources. In other words, factor in deciding where to locate the fishermen have to work where a factory. Hence, a concentration of the fish stocks are. But thanks to people with professional skills be- modern advances in technology, fish- comes a resource in its own right. ermen are far more effective today. The secondary sector of the econo- The development of the technology my is thus more dependent on a mo- that makes the fishermen so effec- bile resource, namely labor. Likewise, tive, however, is not tied to a specific locating the planned aluminum location. Instead, it is tied to human smelter in Maniitsoq was appealing to resources. In other words, compa- Alcoa because it gave the company nies and institutions for education access to another resource, name- and research need access to a large ly large amounts of hydroelectric pool of highly educated personnel. power.

Prior to the Industrial Age, rough- A key prerequisite to industrial pro- ly 70% of the population worked in duction and marketing in a global the primary sector of the econo- economy is what economists call my, such as in agriculture, hunting the tertiary sector, also known as and fishing, mining, etc., but today the service industry. This includes this aspect of the production chain administration, research, education makes up less than 5% of the econ- and many other areas. omy in the Nordic countries. The primary sector of the economy is often Most of the tertiary sector is not tied tied to a specific location. Agriculture to a specific location but relies on ac- requires land and mining is highly cess to skilled labor. There are, how- location-based. Hunting and fishing ever, a number of exceptions where are bound to specific locations, but the tertiary sector is dependent upon this can shift over time. location-based resources. Green- land’s cold climate is an abundant The resources that are fished from resource that makes it an attractive the sea or extracted from the earth location for cooling data centers. have to be processed, and this processing typically takes place in plants Tourism also depends on loca- and factories. This is the secondary tion-based resources. Case in point: sector of the economy. Fish can be the ice fjord near Ilulissat cannot purchased directly at the local fish be moved anywhere else. Regions market, but Greenland’s economy need to be declared World Heritage is based on fish and shrimp that are sites by UNESCO, tourists have to be processed in factories. The lion’s taken there by boat and they need share of the catch is processed and to have something to eat after they sold outside Greenland on the global have seen the ice. But icebergs still market. need to be marketed. They are a raw material and they are a key

46 The Necessity of Close Collaboration component, yet they only represent (mobile) resources, which makes it a minor link in the entire production independent of location-based re- chain for tourism in Greenland. sources, people still have to put food on the table and thus rely upon loca- What does this mean for settlement tion-based resources. patterns? A glance at the triangle of human, economic and infrastruc- Greenland will never be able to com- tural resources reveals that it is pete with Shanghai, New York or even the human and economic resources Copenhagen in terms of volume, for that are the key to developmental example, when it comes to providing opportunities. It makes no sense a large number of specialized, highly to invest infrastructural resources qualified workers. But there are many in communities that have neither parameters in which Greenland can an economic foundation nor a criti- compete. Greenland has to live off cal amount of human resources. For of its location-based resources, such instance, when deciding on a new as fisheries, hunting, agriculture, location for a fish processing plant, tourism and minerals. This means it is essential to have sufficient that the physical planning has to help amounts of both fish and labor. the country to exploit its resources— both location-based and human—as Sector planning is thus important effectively as possible. when it comes to relocating jobs and expanding individual communities. It is not a cost-free decision to relocate public sector jobs if it means, for example, that it would split a well-functioning professional setting into two or three small units and none of these units receives sufficient volume to ensure a high degree of efficiency. By the same token, it is not a cost-free decision to expand a community if the new inhabitants will not serve functions that would best be served in that community for the good of the entire country.

The construction investments of the Greenland Government Authorities must help forge a balance in the country, where the geographic distribution of infrastructural resources is carried out according to the opportunities that the human and economic resources provide for each individual community. Regardless of the fact that a larger proportion of the production chain is now based on human

The Necessity of Close Collaboration 47 1.3.4 Attractiveness – a Parameter for Competition

It is a basic democratic principle that municipalities and communities to people can move wherever they want attract skilled labor and new busi- within a country. In many places in nesses. There have been a number the world communities have experi- of attempts in Greenland to market enced the process of urbanization as municipalities with the help of ad- a challenge. Urbanization has often vertising agencies and PR experts, been viewed as a competition among but the results have generally been individual communities over which rather disappointing for the individual can attract the most newcomers. regions.

There is nothing new about this per Competition among communities se. Municipal councils and other simi- does not merely take place within lar organs have traditionally worked a country’s own borders. To a cer- to make their communities more attain extent there is also competition tractive for incoming labor (particu- across national borders. This compe- larly good taxpayers) and business- tition revolves primarily around uses. It naturally follows that individual ing attractive conditions to promote communities need to know some- commercial investments and focus- thing about what the coveted new- ing on being able to attract highly comers are looking for in a new lo- educated and specialized personnel. cation, and possibly something about Such a challenge is particularly rel- the strengths and weaknesses of evant when it comes to attracting rival communities. This same tenden- companies and investments to ex- cy can also be seen here in Green- ploit minerals here in Greenland. land with the competition among

48 The Necessity of Close Collaboration 1.3.5 The 2017 Mobility Study

The previous section and the trends This study was designed to ensure that it addresses naturally lead to the representativity within four para- question of what is behind the deci- meters: sions made by people and companies Community of residence: to relocate or not relocate. What are • <3,000 inhabitants the concrete motivations for making • 3,000–6,000 inhabitants such a decision? • >6,000 inhabitants To shed light on this question, in 2016 Age: a study was conducted based on vox • 18–40 years pop interviews (vox pop is short for • >40 years the Latin vox populi, or “voice of the Education: people”), in which randomly select- • up to and including grade school ed individuals were asked about their • higher than grade school reasons for moving or not moving. The interviews consisted of a wide Sex: selection of open questions, which • women made it possible to pick up on mo- • men tivations that had not been taken into consideration beforehand. The In Greenland there were 24 different vox pop study was designed as an groups of respondents and a total Internet-based questionnaire. More of 1,532 potential respondents. Fur- than 1,000 responses were collected. thermore, the same degree of rep- Since it was a study that was open to resentativity was established for everyone, the goal was not to achieve first-generation Greenlanders in a particularly high degree of repre- Denmark. This produced eight addi- sentativity. It turned out that there tional groups. The plan was to con- was an almost equal distribution duct the two studies independently among the two sexes, but there was of each other. a highly skewed representation between people who only had a grade Unfortunately, the mobility study was school education and those with a not conducted entirely according to higher level of education. There was plan. In mapping out the study, the a very large overrepresentation of organizers failed to notice that by people whose highest level of educa- royal decree the Danish Act on Pro- tion went beyond grade school. cessing of Personal Data went into effect for Greenland on December 1, Nevertheless, the 2016 vox pop study 2016. The changed regulations con- provided valuable information about cerning the processing of personal how questions should be phrased in a data was one of the reasons why the follow-up study. This knowledge was mobility study was delayed for half a put to good use in the questionnaire year. As a result, it was not yet pos- that was used for the representative sible to conduct according to plan mobility study in 2017. the part of the survey that pertained to first-generation Greenlanders in Denmark.

The Necessity of Close Collaboration 49 It was not until June that researchers study, namely that there can be this were able to proceed with the rep- type of emotionally charged expla- resentative survey. This delay meant nation for not wishing to participate that summer activities and summer in a study on the factors that drive vacations were already in full swing mobility. while the survey was being conducted. It is very likely that this was a The delayed launch of the study highly contributive factor to the ex- meant that there was insufficient tremely low response rate. When it time for a phone campaign to achieve became clear that there would be a greater response rate. Only 297 very few responses, the prospec- people answered the questionnaire, tive respondents were contacted by which corresponds to an extremely phone and asked to take part in the low response rate of just 19.4%. study, to which some responded that This means that there is no point in they would be happy to do so. How- examining the respondents’ repre- ever, many declined to participate. In sentativity within all four parameters fact, the contact by phone to some of (place of residence, age, education the selected potential respondents in and sex). Instead, the present report the study revealed that for a number will only analyze the study’s two key of individuals it was a difficult and questions about the reasons for relo- highly emotional notion to take part cating to another community. in a study on whether or not they intended to relocate to another com- It should be noted that all of the 24 munity. groups of respondents are represented in the study. See Appendix 2. It had not been anticipated that a proportion of the potential response Question A. group could have strong feelings “What reasons did you have to move with regards to having to respond to when you last moved? the questionnaire. This was an issue (You are welcome to select more that researchers had been unaware than one response)” of when conducting relevant earlier studies, and it showed researchers The responses are divided up into that it should have been addressed four categories. Within each of the as part of the study. This is a very four topics there are 4–6 concrete important result to emerge from the reasons. Note that it was possible to

Figure 1.23 Answers to question A.

Reason for moving No. of times Percent of N selected Work or education 95 85.6% Family and friends 74 66.7% Housing and financial situation 48 43.2% Service and other reasons 26 23.4% N = 111 (N = no. of respondents)

50 The Necessity of Close Collaboration place an “X” next to more than one wishes can be most effectively ful- response, so the total percentage is filled. This can be achieved by- urg more than 100. ing people not to move to the same extent or by making it possible for Figure 1.23 shows that 85.6% of them to move to other types of com- relocations are entirely or partially munities that might be more suitable motivated by factors related to work to meeting the overriding needs of or education. These are moves that society, which would typically mean individuals have to make in conjunc- that potential relocations would tion with commencing or completing primarily take place within the coun- a job or an education. try’s borders and people would only move to locations outside the country With each of the four categories, to a limited extent. This is particularly people decide to relocate to achieve true of relocations of a more perma- something, be it to start a new job or nent nature. Moreover, the numbers an education, move closer to family in the previous sector of this chap- and/or friends, acquire better hous- ter show that it appears difficult to ing, improve their financial situation impact major trends in migration. or get higher-quality services. Question B: If a society intends to influence the “What were your main reasons for number of relocations being made making your last move? due to one of the four categories of List them by order of importance motivations, it is necessary to con- by writing “1” for the most important duct a prior analysis of how these reason, “2” for the next most

Figure 1.24 Top priority for moving. Answers to question B.

Reason for moving No. of times Percent selected of N

I wanted better opportunities for education 16 22.5 I wanted better working conditions 15 21.1 I wanted a better family life 14 19.7 I wanted a better financial situation 12 16.9

Figure 1.23 Answers to question A. I wanted better public services 4 5.7 I wanted better schools 4 5.7 Reason for moving No. of times Percent of N selected I wanted better healthcare 3 4.2

Work or education 95 85.6% I wanted better cultural and leisure activities 2 2.8 Family and friends 74 66.7% I wanted better housing 1 1.4 Housing and financial situation 48 43.2% I wanted better social conditions 0 0 Service and other reasons 26 23.4% N = 71 N = 111 (N = no. of respondents)

The Necessity of Close Collaboration 51 important one, etc. (Please rate all moving among 80.2% of the respon- statements. It is also possible to rate dents. The remaining 19.8% of the statements as “not relevant to me”)” responses are distributed among better public services, better schools, Respondents were asked to rate 10 better healthcare, better cultural and different motivations. Figure 1.24 leisure activities, and better housing. shows the distribution of all of No one indicated better social condi- the top motivations for moving. tions as the prime reason for moving. Although respondents could indicate that statements were “not relevant Since a large proportion of all reloca- to me,” they could each only choose tions are entirely or partially motivat- one statement as their main moti- ed by the desire for better education, vation, which explains why the total it is reasonable to assume that the percentage in the figure is 100. population’s degree of education will be reflected in general migration pat- Once again we see that education and terns in which more people move to work are the primary motivations for larger communities. moving, and again they are closely followed by family and a better finan- An analysis of the 24 groups of cial situation. The four leading state- respondents in Greenland and the ments are the prime motivations for eight groups of respondents in

Figure 1.25 Connection between community size and the number of individuals with an education above the grade-school level

The numbers for individuals in Greenland are from 2017 and the numbers for individuals in Denmark are from 2016.

52 The Necessity of Close Collaboration Denmark shows the statistical dis- Nevertheless, the bars for the tribution in each of the 32 different first-generation Greenlanders in groups between people with only a Denmark indicate that among the in- grade-school level of education and dividuals with a connection to Green- people with a higher level of educa- land, but who live in Denmark, there tion. is a higher degree of education than what we see in Greenland. To what Figure 1.25 takes into account all of extent this reflects a brain drain or the four parameters from the mobil- brain gain between Greenland and ity study (housing, age, education Denmark cannot be determined and sex). This shows that for all age based on Figure 1.25. groups (18–40 years and +40 years) and both sexes there is a very clear The general definition of brain drain connection between the number of or brain gain examines the relation- individuals with an education above ship between the immigration and the grade-school level and the size of emigration of educated individuals. the community where they live. No distinction is made here in terms of the age of the individuals in ques- With respect to Greenland, the larger tion. It would be highly relevant to the community, the more inhabitants more closely examine how this con- with an education that goes beyond cretely applies to Greenland. In such grade school. This is a very strong a study it could be worthwhile to tendency in the country and, in of examine people’s motivations for itself, is not necessarily an alarming relocating to another location. distribution for a society. It merely reflects to a certain extent that there are different needs for trained and educated personnel in communities of different sizes.

The set of bars on the right in Figure 1.25 shows the degree of education for first-generation Greenlanders who live in Denmark. This group thus dif- fers from the other bars, which show all individuals (regardless of their place of birth) who live in Greenland.

The Necessity of Close Collaboration 53 54 The Necessity of Close Collaboration Chapter 2 2.0 Tools to Secure a Balanced Development

There is a political desire to achieve ed services, which are not related to a balanced development through- national infrastructure, that are be- out the entire country. This requires ing relocated. The following can be a number of tools that provide a concretely cited within the area of comprehensive overview and serve construction: as points of orientation for what is • 2017: Housing program for set- needed to attain this objective tlements and outlying districts • 2018: Construction in the area of This chapter will examine two key preschools and schools planning tools that provide very con- • 2018: Support for construction of crete input into physical and eco- private housing (planned) nomic planning, namely the community profile and sector plans. The • 2019: Rental housing area community profile is a tool that has (planned) been developed over the past three • Furthermore, it is anticipated that years. It provides a comparison of there will be a transfer of tasks all communities based on selected and responsibilities within the parameters. The sector plans deter- area of institutions. A more de- mine in highly specific terms what is tailed timetable for this is under to be prioritized within the individual preparation. sectors. Within this context, it is important to It is essential to link and coordinate have a set of common planning tools the individual types of planning tools. that can be used by both the munici- They are essential for ensuring that palities and the Greenland Govern- the most relevant and useful deci- ment Authorities. sions for society can be made based on the overriding political objectives in physical and economic planning.

Since the structural reform in 2009, the aim has been to transfer tasks and responsibilities from the Green- land Government Authorities to the municipalities. After getting off to a slow start during the first few years, the process is picking up speed now. There are a number of citizen-orient-

The Necessity of Close Collaboration 55 2.1 Community Profile – Enhancing Comparability

How is it possible to compare dif- The only parameter that was used ferent communities in an effective in 2015 was demographics. Ten manner? This has been an import- demographic indicators were pre- ant issue in previous national spatial sented for calculating the degree to planning reports. The 2015 National which a community could be said to Spatial Planning Report contained a be demographically vulnerable. one-dimensional evaluation of the vulnerability of the individual communities in Greenland.

2.1.1 Resource Triangle

With the 2017 community profile, The Planning Act (Greenland Par- the number of parameters has been liament Law no. 17 from 2010 on appreciably expanded. Moreover, Planning and Land Use) dictates that the parameters in 2017 have been planning must “promote an econom- divided into three categories, as can ically, socially and environmental- be seen in the triangle in Figure 2.1. ly favorable development” and that The resource triangle focuses on (1) this “has to be coordinated within the concrete (existing and potential) scope of the physical and economic economic resources, (2) accessible planning.” These aspects of the Plan- human resources and (3) accessible ning Act are incorporated into the re- infrastructural resources. source triangle.

Figure 2.1 Resource Triangle

In his PhD dissertation from 2015, Kåre Hendriksen, an associate professor at the Technical Universi- ty of Denmark (DTU), used a similar triangle model. The resource triangle here uses slightly different terms than Hendriksen’s, since in this case the definitions of the corresponding resources are broader.

56 The Necessity of Close Collaboration Economic resources: For a commu- Infrastructural resources: In order nity to be able to say that it has re- for a community to have good infra- alizable economic resources, it must structural resources, it has to have be able to actually or potentially ex- an appropriate degree of infrastruc- ploit a resource to achieve economic tural attractiveness, and there also objectives. These can be location- has to be an appropriate prioritiza- based economic resources that are tion of the community. An evalua- closely linked to a community. An tion of the infrastructural resourc- evaluation of the economic resour- es examines the degree to which it ces examines the degree to which is attractive to prioritize public and they can contribute to the local private investments. economy in the form of a workforce, work readiness, etc. (internal com- It is absolutely crucial that each of munity aspects) and to the national the resource parameters of the tri- economy in the form of tax revenues, angle, which reflect the individual etc. (external community aspects). community’s strengths and potential, are evaluated to determine their Human resources: For a community degree of prioritization, both on a to be able to say that it has usable regional and a national level. For an human resources, it must have a overall evaluation of a community’s sufficient population base. An evalu- strengths and potential, the three ation of human resources examines resource parameters’ actual and the degree to which there is access potential scores have to be weighed to relevant formal competence and up in comparison to each other. This real competence etc. (single individ- is what is achieved in the overall ual aspects) and to an appropriate community profile. combination of demographic, health- related and housing parameters (sustainable in a broad sense), including social cohesiveness etc. (common individual aspects).

2.1.2 2017 Community Profile – Spider Web Graph

In the ongoing efforts to utilize the and usable parameters from each of community profile, a key focus is on the three types of resources. Unfor- enlarging the profile’s parameters. tunately, there was a lack of neces- The assumption here has been that sary data for some of the parameters there has to be parameters from under consideration. For example, each of the three types of resourc- one possibility would be to incorpo- es that are incorporated into the re- rate the registered criminal offenses source triangle. for each community as a parameter. The data exists, but is not immedi- Many stakeholders have been in- ately accessible, so this parameter volved in working to identify relevant could not be used.

The Necessity of Close Collaboration 57 The parameters that were selected Appendix 1 contains a description of for the 2017 community profile are how each of the 20 parameters is de- as follows: fined and how the index values are calculated. Economic resources A1 Procurement/capita A spider web graph of all 20 para- A2 Procurement/community meters has been compiled for every A3 Household income community in Greenland, but for A4 Cruise ship visits practical reasons it is not possible A5 Employment rate to show them all here. Instead, five A6 NEETs 21 selected communities have been A7 Percentage of public sector jobs included in the graph below, and information on the remaining com- Human resources munities will be made available on B1 Demographics the Internet. The spider web graph B2 Dentists shows each individual community’s B3 Social services vulnerability for each parameter, B4 Education rated on a scale from 1 to 5. The B5 Daycare centers higher the value, i.e. the further it B6 Healthcare services is from the center of the spider web, the more vulnerable the communi- Infrastructural resources ty is with respect to that particular C1 Consumer goods services parameter. C2 Educational services C3 Unit price of electricity The plan is for this graphic repre- C4 Unit price of water sentation to be integrated into C5 Internet speed NunaGIS, a digital online atlas that C6 Ports shows maps and geographic data C7 Airports concerning Greenland. Furthermore,

Subsistence hunting

Subsistence hunting is defined as hunting for one’s own use plus what is distributed through family members, friends and similar channels. The importance of subsistence hunting can vary widely from family to family and community to community, depending on their financial situations and livelihoods, and factors like size and location of their community. It is typically in smaller communities that subsistence hunting is of great importance to a large proportion of local households.

To compile a sufficient amount of data to understand the importance of the subsistence economy would require a systematic analysis of existing information and the development of new methods of data collection and processing. There are no plans to include subsistence hunting as an independent parameter in the community profile.

•2. NEET refers to young people who are “Not in Education, Employment or Training”

58 The Necessity of Close Collaboration Figure 2.2 Spiderweb graph for 2017

The lower the numbers, the less vulnerable a community is with regards to the parameter in question.

All spiderweb graphs can be seen on the following websites: • http://pilersaarusiorneq.gl/kl-GL/Bostedprofil and • http://http://landsplan.gl/da/Bostedprofil the data that enters into the para- is doing well and those where it is meters of the spider web graphs will doing not so well. For the five main be updated every year. It is hoped communities that are shown in that over a number of years it will be Figure 2.2, there is generally a low possible to see developmental ten- degree of vulnerability with regard to dencies for each individual communi- infrastructural resource parameters ty by shedding light on the changes (C1-C7), whereas there is somewhat in the parameters from year to year. more variation in terms of economic resource parameters (A1-A7) and The spider web graph shows the human resource parameters (B1-B6). parameters where a community

The Necessity of Close Collaboration 59 2.1.3 Community Profile – The Three Resources

The spider web graph is an excel- here. The reason that each list con- lent means of giving an overall im- tains more than 10 communities is pression for each community. Like- that there are more than 10 com- wise, it shows certain similarities and munities that have the same degree differences between the individual of vulnerability as no. 10 on the list, communities or groups of communi- and have therefore been included in ties. the overview.

But the spider web graph does not Economic resources indicate so clearly how the com- Among the seven economic param- munities compare to each other in eters, there is both the procurement terms of each of the three types of per community and procurement per resources (economic resources, hu- capita, whereby ‘per capita’ refers man resources and infrastructural to the number of inhabitants in the resources). It is thus informative to community in question. This reveals examine each of the three different very large differences. In Figure 2.2 types of resources individually. Only we can see that the five largest com- the “top 10” communities for each of munities have excellent procurement the three types of resources is shown in absolute numbers, but that all five

Figure 2.3 Top 10 communities for economic resources

Community Vulnerability of economic resources

Ilulissat 14 Saattut 16 Uummannaq 16 Nuuk 16 Aappilattoq (Ava) 17 Tasiusaq (Ava) 17 Qeqertaq 17 Saqqaq 17 Innaarsuit 18 Qeqertarsuaq 18 Sisimiut 18 Narsarsuaq 18 Qaarsut 18

The lower the number, the less vulnerable a community is with regards to economic resources based on the seven measured parameters.

60 The Necessity of Close Collaboration have poor procurement measured have fewer than 500 inhabitants. per inhabitant. It is thus important to Demographics constitute one of the include both aspects. When it comes parameters when evaluating human to tourism, the only parameter is the resources. This is one of the rea- number of cruise ships that visit each sons why there is a somewhat mixed community. It could be desirable to group of communities on the top 10 have further parameters in the area list. of tourism. This could help provide a clearer picture of the state of the When it comes to human resources, tourism industry. there was also the desire to include a parameter that sheds light on peo- Figure 2.3 reveals the highly interest- ple’s state of health in each individual ing fact that we have seven smaller community. Unfortunately, it has not communities represented in the list been possible to acquire data on a of top-10 economic areas. It is clearly health parameter for the 2017 com- the outstanding halibut fishing in the munity profile. current Qaasuitsup Kommunia that plays a key role here. Infrastructural resources The communities with the lowest Human resources degree of vulnerability in terms of The top 10 list in Figure 2.4 includes infrastructural resources are the larger and medium-sized commu- largest communities. See Figure 2.5. nities. Only two of the communities The top 10 list includes 11 of the 12

Figure 2.4 Top 10 communities for human resources

Community Vulnerability of human resources

Nuuk 10 Sisimiut 10 Qaqortoq 12 Aasiaat 12 Ilulissat 12 Kangerlussuaq 14 Kitsissuarsuit 15 Uummannaq 15 Upernavik 15 Tasiilaq 16 Kangaatsiaq 16 Maniitsoq 16

The lower the number, the less vulnerable a community is with regards to human resources based on the six measured parameters.

The Necessity of Close Collaboration 61 communities that have more than The reason why it is only the larger 1,000 inhabitants. Uummannaq is communities that have the lowest the only community with more than degree of infrastructural resource 1,000 inhabitants that is not repre- vulnerability is that a community has sented on the top 10 list. Uumman- to be of a certain size before it makes naq ranks as the first community to sense to make larger investments in follow right after this list. costly infrastructure.

Figure 2.5 Top 10 for infrastructural resources

Community Vulnerability of economic resources

Nuuk 8 Sisimiut 9 Ilulissat 10 Aasiaat 11 Qaqortoq 12 Narsaq 13 Paamiut 13 Maniitsoq 13 Nanortalik 14 Qasigiannguit 15 Tasiilaq 15

The lower the number, the less vulnerable a community is with regards to infrastructural resources based on the seven measured parameters.

2.1.4 2017 Community Profile – XY Diagram

For the sake of clarity, this report vulnerability or social vulnerability, provides a two-dimensional version emphasis has been placed on the of the 2017 community profile. This degree to which it is directly linked uses the same parameters as the spi- to the lives of individual citizens. der web graph, but the three types Furthermore, the diagram has an of resource parameters are divided equal number of parameters in the here into two categories, namely so- two groups. It shows how the 20 cial vulnerability (X axis) and eco- parameters are charted with respect nomic vulnerability (Y axis). to the X axis and the Y axis.

In evaluating whether a parameter primarily expresses economic

62 The Necessity of Close Collaboration X – social vulnerability The distribution of the 71 communi- A5 Employment rate ties in the two-dimensional version of A6 NEETs the 2017 community profile can be A7 Percentage of public sector jobs seen in Figure 2.6. B1 Demographics B2 Dentists • Communities in field 1 have low B3 Social services social vulnerability and low eco- B4 Education nomic vulnerability. B5 Daycare centers • Communities in field 2 have high B6 Healthcare services social vulnerability and low eco- C1 Consumer goods services nomic vulnerability. • Communities in field 3 have low Y – economic vulnerability social vulnerability and high economic vulnerability. A1 Procurement/capita A2 Procurement/community • Communities in field 4 have high A3 Household income social vulnerability and high eco- A4 Cruise ship visits nomic vulnerability. C2 Educational services C3 Unit price of electricity The intersection between high and C4 Unit price of water low vulnerability has been placed at C5 Internet speed 30. Communities that have a vulner- C6 Ports ability rating of 30 are placed in the C7 Airports field for low vulnerability.

Figure 2.6 Two-dimensional diagram of the 2017 community profile showing all 71 communities

The Necessity of Close Collaboration 63 Figure 2.7 Distribution of communities and population across the four fields in the two-dimensional 2017 community profile

Field Number of Percentage of Total number Percentage of number communities communities of inhabitants population

1 14 19.7% 47,093 84.7%

2 1 1.4% 166 0.3%

3 20 28.2% 3,983 7.2%

4 36 50.7% 4,357 7.8%

Total 71 100% 55,599 100%

As can be seen in Figure 2.7, there communities that are located in field is a very even distribution of com- 1 constitute a total of 84.7% of the munities and population across the population. Conversely, the 50.7% of four fields in the two-dimensional the communities that are located in community profile. The 19.7% of the field 4 constitute merely 7.8% of the

Figure 2.8 Communities in field 1 and the degrees of vulnerability ascribed to each community

Community X – social Y – economic vulnerability vulnerability Nuuk 19 15 Sisimiut 19 18 Ilulissat 20 16 Qaqortoq 23 22 Aasiaat 23 26 Uummannaq 24 24 Maniitsoq 27 22 Tasiilaq 27 29 Narsaq 27 27 Nanortalik 28 27 Paamiut 28 25 Saattut 28 29 Qeqertarsuaq 29 26 Narsarsuaq 23 29 Upernavik 25 30 Qasigiannguit 25 28

64 The Necessity of Close Collaboration Figure 2.9 Communities in field 2 and the degrees of vulnerability ascribed to each community

Community X – social Y – economic vulnerability vulnerability Innaarsuit 30 30 population. All 12 communities that There are in fact no communities in have fewer than 50 inhabitants are field 2. Innaarsuit is registered in located in field 4. field 2, but the community is located precisely in the middle where all four fields meet.

Figure 2.10 Communities in field 3 and the degrees of vulnerability ascribed to each community

Community X – social Y – economic vulnerability vulnerability Kangerlussuaq 22 31 Tasiusaq (Ava) 25 32 Ikerasak 25 32 Saqqaq 27 31 Qaarsut 27 32 Kangaatsiaq 27 32 Qeqertaq 27 33 Ikerasaarsuk 27 36 Ukkusissat 28 32 Ikamiut 28 37 Sarfannguit 29 32 Kangaamiut 29 34 Akunnaaq 29 35 Kullorsuaq 29 37 Atammik 29 37 Illorsuit 29 37 Napasoq 29 41 Aappilattoq (Ava) 30 33 Upernavik Kujalleq 30 37 Kitsissuarsuit 30 39

The Necessity of Close Collaboration 65 Figure 2.11 Communities in field 4 and the degrees of vulnerability ascribed to each community Community X – social Y – economic vulnerability vulnerability Qeqertarsuatsiaat 31 36 Nuussuaq 31 37 Ittoqqortoormiit 31 37 Iginniarfik 31 40 Kangerluk 31 42 Nuugaatsiaq 32 35 Arsuk 32 37 Niaqornaarsuk 32 37 Attu 32 38 Qaanaaq 32 38 Oqaatsut 32 43 Ilimanaq 33 36 Itilleq 33 38 Kapisillit 33 41 Kangersuatsiaq 33 42 Naajaat 34 38 Isertoq 34 41 Kuummiit 34 41 Kulusuk 35 36 Qassimiut 35 39 Nutaarmiut 35 39 Qassiarsuk 35 40 Sermiligaaq 35 41 Tiilerilaaq 35 42 Narsaq Kujalleq 36 43 Alluitsup Paa 37 42 Igaliku 37 42 Qeqertat 38 42 Aappilattoq (Kuj) 38 42 Savissivik 38 45 Tasiusaq (Kuj) 38 46 Eqalugaarsuit 40 41 Ammassivik 40 44 Saarloq 40 45 Siorapaluk 42 46 Niaqornat 43 38

66 The Necessity of Close Collaboration 2.1.5 Municipal Patterns

Figures 2.12 to 2.21 show two-dimen- strong capital city. Kommuneqarfik sional community profiles grouped Sermersooq has no communities in according to the five municipalities field 3 and Nuuk stands as a very that will exist as of January 1, 2018. strong capital for the municipality. Once again there are significant differences between the individual Kommune Kujalleq has a larger group municipalities. Three municipalities of communities that are located have strong capitals, namely Ilulis- deep in field 4. Moreover, Qaqortoq sat, Sisimiut and Nuuk. By contrast, does not appear to be a particular- Qaqortoq and Aasiaat are lagging ly strong capital. Like Kommune behind as capital cities. Kujalleq, Avannaata Kommunia has a wide diversity of communities. There Qeqqata Kommunia has the most are some communities in the munici robust structure, with only one com- pality that are a located rather deep munity located in field 4, and several in field 4, but like Kommuneqarfik located in field 3. Kommune Qeqer- Sermersooq, Avannaata Kommunia talik has virtually the same struc- has a strong capital with Ilulissat. ture, but Aasiaat is not a particularly

The Necessity of Close Collaboration 67 Figure 2.12 Two-dimensional distribution of the 14 communities in Kommune Kujalleq

Figure 2.13 The values for the 14 communities in Kommune Kujalleq

Community X – social Y – economic vulnerability vulnerability Qaqortoq 23 22 Narsarsuaq 23 29 Narsaq 27 27 Nanortalik 28 27 Qassiarsuk 35 40 Qassimiut 35 41 Narsaq Kujalleq 36 43 Alluitsup Paa 37 42 Igaliku 37 42 Aappilattoq (Kuj) 38 42 Tasiusaq (Kuj) 38 46 Eqalugaarsuit 40 41 Ammassivik 40 44 Saarloq 40 45

68 The Necessity of Close Collaboration Figure 2.14 Two-dimensional distribution of the 12 communities in Kommuneqarfik Sermersooq

Figure 2.15 The values for the 12 communities in Kommuneqarfik Sermersooq

Community X – social Y – economic vulnerability vulnerability Nuuk 19 15 Tasiilaq 27 29 Paamiut 28 25 Qeqertarsuatsiaat 31 36 Ittoqqortoormiit 31 37 Arsuk 32 37 Kapisillit 33 41 Isertoq 34 41 Kuummiit 34 41 Kulusuk 35 36 Sermiligaaq 35 41 Tiilerilaaq 35 42

The Necessity of Close Collaboration 69 Figure 2.16 Two-dimensional distribution of the 8 communities in Qeqqata Kommunia

Figure 2.17 The values for the 8 communities in Qeqqata Kommunia

Community X – social Y – economic vulnerability vulnerability Sisimiut 19 18 Kangerlussuaq 22 31 Maniitsoq 27 22 Sarfannguit 29 32 Kangaamiut 29 34 Atammik 29 37 Napasoq 29 41 Itilleq 33 38

70 The Necessity of Close Collaboration Figure 2.18 Two-dimensional distribution of the 12 communities in Kommune Qeqertalik

Figure 2.19 The values for the 12 communities in Kommune Qeqertalik

Community X – social Y – economic vulnerability vulnerability Aasiaat 23 26 Qasigiannguit 25 28 Kangaatsiaq 27 32 Ikerasaarsuk 27 36 Ikamiut 28 37 Qeqertarsuaq 29 26 Akunnaaq 29 35 Kitsissuarsuit 30 39 Iginniarfik 31 40 Kangerluk 31 42 Niaqornaarsuk 32 37 Attu 32 38

The Necessity of Close Collaboration 71 Figure 2.20 Two-dimensional distribution of the 27 communities in Avannaata Kommunia

Figure 2.21 The values for the 27 communities in Avannaata Kommunia

Community X – social Y – economic vulnerability vulnerability Ilulissat 20 16 Uummannaq 24 24 Upernavik 25 30 Ikerasak 25 32 Tasiusaq (Ava) 25 32 Saqqaq 27 31 Qaarsut 27 32 Qeqertaq 27 33 Saattut 28 29 Ukkusissat 28 32 Illorsuit 29 37 Kullorsuaq 29 37 Innaarsuit 30 30 Aappilattoq (Ava) 30 33 Upernavik Kujalleq 30 37 Nuussuaq 31 37 Nuugaatsiaq 32 35

72 The Necessity of Close Collaboration Qaanaaq 32 38 Oqaatsut 32 43 Ilimanaq 33 36 Kangersuatsiaq 33 42 Naajaat 34 38 Nutaarmiut 35 39 Qeqertat 38 42 Savissivik 38 45 Siorapaluk 42 46 Niaqornat 43 38

The differences between the five mu- All communities are weighed equal- nicipalities can be illustrated by com- ly when calculating the average. The paring the average vulnerability of average for all five municipalities in- their communities. See Figure 2.24, dicates that there is a pronounced the red dots marked 1–5. All five mu- economic vulnerability for all of nicipalities are analyzed here. them. Qeqqata Kommunia is best off and Kommune Kujalleq is worst off.

Figure 2.22 The average social and economic vulnerability for each municipality (Compare with Figure 2.24)

Municipality X – social Y – economic % of total Red vulnerability vulnerability population dots Qeqqata Kommunia 27.1 31.6 16.6 1 Kommune Qeqertalik 28.7 34.7 11.7 2 Avannaata Kommunia 30.7 35.0 19.1 3 Kommuneqarfik Sermersooq 31.2 35.1 40.7 4 Kommune Kujalleq 34.1 37.9 12.0 5

Figure 2.23 The average social and economic vulnerability for each community size (Compare with Figure 2.24)

Community size X – social Y – economic % of total Blue vulnerability vulnerability population dots >6,000 19.0 15.0 31.7 A 3,000–6,000 21.3 20.5 29.1 B 700–2,999 26.7 26.4 23.3 C 200–699 30.3 35.9 8.9 D 50–199 31.1 36.9 6.3 E <50 37.2 42.2 0.7 F

The Necessity of Close Collaboration 73 Figure 2.24 The average social and economical vulnerability of the five municipalities (1–5) and the six community sizes (A–F)

Figure 2.24 also shows the average that there is a direct connection degree of vulnerability for each cate- between community size and vulner- gory of community. The categories ability. The general picture is that the are the six sizes that are described more inhabitants a community has, in Figure 1.12. These are the blue the lesser its degree of both econo- dots labeled A–F, where we can see mic and social vulnerability.

74 The Necessity of Close Collaboration 2.1.6 Evaluation of the 2017 Community Profile

The 2017 community profile con- time now, there has been an ongo- tains 20 parameters. One of these ing dialogue with healthcare officials parameters is demographics, which on providing relevant parameters in itself consists of 10 underlying that could show differences in public parameters. The 2017 community health among diverse communities. profile thus goes into greater detail Unfortunately, it has not been possi- than earlier community profiles. ble for the various areas of the health sector and health administration to The parameters in 2017 were selec- provide usable data concerning the ted to constitute a balanced resource health situation in all communities. triangle. The three types of resources This is an area that future commu- are represented with nearly an equal nity profiles may benefit from if the number of parameters, 7, 6 and 7, relevant data can be acquired. respectively. Within each of the three types of resources, the concrete There has also been the desire to selection of parameters was still con- include a parameter for crime. The tingent upon the ability to acquire police have the necessary informa- data in these respective areas. tion, but the relevant data is not immediately accessible. If the data This means that not necessarily all were to be extracted, it would take relevant parameters were incor- a very comprehensive examination porated into the 2017 community of all criminal proceedings to be able profile. There may still be aspects of to identify the type and geographi- the three types of resources that are cal location of each individual case. not as well represented as one would It should be added that no initiatives like. have been taken to enter into a dialogue with the police over the extent The uncertainty that this engenders to which it could be possible, either can be illustrated based on the com- in principle or in a practical sense, to munity of Oqaatsut (Rodebay). In establish such a crime parameter for the 2017 community profile Oqaatsut each community. Likewise, the pos- is placed in field 4, which indicates sible ethical issues that this might that it has a high degree of vulner- raise have not been examined fur- ability in both social and economic ther, which will be necessary if this areas. The importance of tourism is a parameter is to be used in the future. prime example of an aspect that has not been taken into consideration All 20 parameters have been estab- in evaluating the level of economic lished to weigh equally for the indi- activity in Oqaatsut. This is a param- vidual communities. One can certain- eter that can hopefully be included in ly debate whether this is the best way future community profiles. to present the parameters. Whether the parameters weigh equally Another parameter that would be is debatable. For the time being, desirable to incorporate to a larger researchers have decided that all extent is the health situation in indi- parameters should weigh equally in vidual communities. For quite some the community profile.

The Necessity of Close Collaboration 75 Work is currently underway in col- There are also plans to display the laboration with Statistics Greenland community profile on NunaGIS. How- to find out to what extent it is possi- ever, no decision has been made on ble to establish a separate database, how exactly this would look. This is where data for the 20 parameters one of the tasks that is being tackled that make up the 2017 community by the Department of National Plan- profile can be accessed by everyone. ning, Asiaq and Geoinfo in connec- The idea would be for this information with the development of the new tion to be updated at least once a NunaGIS. year. This would mean that after a number of years in which the data is annually updated it would be possible to create time series that would show how each individual community has developed over time with respect to the parameters of the community profile.

76 The Necessity of Close Collaboration 2.2 Sector Planning – Enhancing Coordination, Prioritization and Cooperation

The use of sector plans as a tool to coordinate economic and physical Systematic use of national sector planning is enshrined both in the plans serves a number of objectives, new Budget and Accounting Act for particularly the following: the Greenland Government Authori- • Coordination between economic ties and the municipalities and in the and physical planning relevant Planning Act, where the fol- • Coordination among the Green- lowing remarks can be found in the land Government Authorities comments on Section 7: “[I]n its • Coordination between the Green- nationwide work the Government of land Government Authorities and Greenland shall compile the various the municipalities, including a co- sector plans of the various state au- ordinated budget cycle with an- thorities and the Greenland Govern- nually updated and rolling sector ment Authorities and ensure that the plans national spatial planning is organized • Prioritization on a national level to in association with the planning that ensure a balanced development is carried out in the municipalities.”

An example of excellent cooperation among sectors and between the Greenland Government Authorities and a municipality: synergies by working together to plan a future senior citizens’/nursing home and health center

Paamiut Kommuneqarfik Sermersooq is pursuing a major construction project to build a new home for senior citizens in Paamiut with 24 beds, consisting of five beds for respite care, seven beds for people suffering from dementia and 12 beds for nursing home patients. To optimize personnel effectiveness and service facilities, the new home for senior citizens will be connected to the hospital via a glassed corridor. A groundbreaking ceremony is planned for January 12, 2018.

There are plans for the following joint functions: • Laundry and ironing room • Kitchen • Room for deceased patients • Emergency generator • Physiotherapy/ergo therapy facilities • Space reserved for personnel (especially physiotherapy/ergo therapy)

Both the municipality and the ministries have been satisfied with the project, which is an excellent example of what can be accomplished through cooperation. This joint building solution between the senior citizens’ home and the hospital could become a model (the Paamiut model) for the rest of the country.

The Necessity of Close Collaboration 77 • Assuring transparency and cred- participants from ministries, munici- ibility with respect to private in- palities and companies that have dividuals and the business com- contributed to proposals on the goals munity and framework for the work in sector • Forging a favorable investment planning. Furthermore, these events climate to promote private and serve as an excellent forum for public investments involving many relevant stakehold- • The overarching goal: securing ers, not least members of the busi- society’s future ness community. In the future these national events could be comple- Work on compiling national sector mented by regional inter-agency plans started in 2014. Annual inter- seminars. agency seminars have been held with

2.2.1 The 2017 Traffic Light for Preparing National Sector Plans

Only a limited number of new sec- sector plans was relatively modest tor plans have been completed or from 2016 to 2017. However, a num- approved since last year. Most work ber of sector plans are currently on since 2016 has focused on the area the verge of being approved. of housing, where targeted sector plans have been prepared for all Several comments made during pub- communities in which the Greenland lic hearings on the 2017 National Government Authorities have hous- Spatial Planning Report pointed to ing. See the section below on prepa- the importance of having updated rations to transfer the housing sec- sector plans and expressed the ur- tor to the municipalities. Aside from gent need to achieve more progress the area of housing, progress on the in this area.

Figure 2.25 2017 traffic light with the status of the national sector plans as of October 1, 2017

Business and trade Oil and minerals Greenland's oil and mineral strategy, 2014–2018. Will be revised for 2019. Tourism The development of tourism in Greenland – what is needed? National sector plan for tourism, 2016–2020. Ice and water Strategy for exporting ice and water will be submitted for review during public hearings in autumn 2017. Fisheries To be started. Hunting To be started. Green indicates a politically approved plan, yellow shows that the plan is still under preparation (including review during public hearings), while red means that the work with the sector plan has not yet been initiated or is only at a preliminary stage.

78 The Necessity of Close Collaboration Infrastructure

Aviation and Aviation structure determined by parliament in 2015. Draft ports versions of the sector plans have been drawn up. KNIAIN expects to present both sector plans to the Government of Greenland in autumn 2017. With respect to the port sector plans, a proposal has been reviewed twice during public hearings.

Tele- The sector plan will reflect the efforts of Tele Greenland A/S communications to upgrade its high-speed Internet network by extending the sea cable from Nuuk to Aasiaat and modernizing the chain of repeaters north of there all the way to the Uper- navik area.

Digitization Digitization is a key aspect of the country's infrastructure. It impacts work processes within all sectors, so it is of great importance to people's everyday lives and the developmental opportunities of the business community. The existing national digitization strategy for 2014–2017, “Digitalization As a Driving Force” (“Digitalisering som drivkraft”), is currently under review. Furthermore, a new multi-year national strategy for geodata will be submitted for review during public hearings in autumn 2018.

Housing Targeted sector plans have been compiled for housing owned by the Greenland Government Authorities in individual communities. Targeted sector plans are also being compiled for municipality-owned housing in collaboration with INI and Iserit. This will provide a foundation for the transfer to the municipalities that is expected to take place on January 1, 2019. The targeted sector plans and the municipal housing assessment reports and plans will be summed up in a national sector plan in 2018.

Waste Construction sector plan for the area of waste manage- management ment, April 2015. To be updated with respect to the status and goals of the municipal waste management plans, expected during the course of 2017.

Energy and A proposal is expected to be submitted for review during drinking water public hearings in autumn 2017.

Green indicates a politically approved plan, yellow shows that the plan is still under preparation (including review during public hearings), while red means that the work with the sector plan has not yet been initiated or is only at a preliminary stage.

The Necessity of Close Collaboration 79 Education and welfare

Preschool and Adopted in 2017 and will be transferred to the municipali- grade school ties from 2018.

Education Education plan II for 2017. The plan describes the status and objectives for vocational training, upper secondary school and further education.

Educational Buildings dealt with separately in a sector plan in 2017 be- institutions cause, for instance, structures like dormitories are often and dormitories jointly used by different educational institutions. A preliminary construction plan is available. A new law on trainees and the possible relocation of educational programs from Nuuk to other communities might generate a significant demand for construction. Hence, the plan will be adapted to a relevant extent as a result of the anticipated enactment of a new law on trainees by parliaments during the 2017 autumn assembly along with the possible relocation of institutions from the capital.

Culture and art To be started.

Church To be started.

Sports Assessments are underway, but it is primarily a municipal issue.

Health Anticipated to be submitted for review during public hearings in autumn 2017.

Senior citizens The assessment report for senior citizens’ institutions and housing are expected to be completed in October 2017 along with the sector plan in early 2018.

Centers for young Preliminary work is underway. Deloitte is studying the sup- people ply and demand.

Institutions for peo- To be started. ple with disabilities

80 The Necessity of Close Collaboration 2.2.2 Municipal Planning Strategies, Sector Planning in the Municipalities

The municipalities have compiled will be more precisely specified in sector plans to varying degrees. The the forthcoming legislation on sector municipal sector plans are not drawn planning. up for the same areas and in the same manner as the national sector Viewed from a historical perspective, plans of the Greenland Government municipal plans have shifted their Authorities. One of the conditions for focus away from sector planning, in transferring buildings and facilities which economic development and owned by the Greenland Government occupational opportunities were de- Authorities is a joint basis for plan- scribed in detail in the corresponding ning, i.e. housing assessment reports sections of the document, to some- and municipal sector plans, a munici- what broader, less sector-oriented pal basis for data and/or planning reports. One could roughly genera- that corresponds to sector plans. lize the situation by saying that now- adays municipal plans focus on the The general municipal plan that services that municipal councils in- is compiled by the municipalities tend to offer to local citizens, rather every fourth year provides the basis than focusing on the basis for eco- for the land-use permits that are nomic development. granted to residents and companies. Typically two years before adopt- It should be noted that on a regu- ing the municipal plan the municipal lar basis the municipalities write up council approves a planning strategy descriptions of the communities that that defines the guidelines for any overlap and supplement the munici- amendments. Wherever the municipal plans. A good example is Kom- pal councils decide on a developmen- muneqarfik Sermersooq’s settlement tal approach in the planning strate- sector plan, which contains more gies, the municipal plan serves as relevant information for planning the legal foundation for the land-use and economic development than the permits that are granted by the local municipal plan’s description of the administration. Residents’ rights with same communities. Aside from the respect to the views from their settlement sector plans, Kommune- homes, land use, the size of building qarfik Sermersooq used to - com plots, etc. is specified in the munici- pile so-called local community pro- pal plan. files that showed statistical data for selected communities. It is hardly According to Section 17 of the Plan- expedient to compile a highly com- ning Act, the main approach for the prehensive municipal plan and yet municipalities’ individual communi- subsequently be required to prepare ties is to be established with the aid extensive supplementary reports. of a summary evaluation of the relevant sector plans. The Planning Act The forthcoming legislation on sector does not stipulate which details and planning aims for the general munici- areas are to be included in the mu- pal plans to contain—just as they nicipal sector plans. However, this always have—the legal foundation

The Necessity of Close Collaboration 81 for land-use permits. But when it In some areas municipal planning is comes to the details in the municipal governed by the sector’s regulation plans, the focus should be on what is guidelines. This applies to the area relevant for current planning. It is in of waste management, for instance. the interests of the Greenland Gov- The municipalities are responsible for ernment Authorities to maintain a the disposal of waste. Every munici- close dialogue with the municipalities pality is required to draw up a waste concerning the municipal plans. All in management plan that shows how all, everything must be done to en- it will deal with garbage, trash and sure an extremely close and dynamic refuse in each of its communities coordination between the national over the coming years. and municipal sector plans. The municipal council has to approve Common Areas in Municipal Plan- these waste management plans. ning Strategies Kommune Kujalleq and Kommune- The current four municipal planning qarfik Sermersooq have approved strategies cover many common areas. such plans, while Qaasuitsup Kom- It is not surprising, for instance, that munia has compiled a draft munici- housing, economic development, pal waste management plan, but the sustainability, infrastructure, health final political decision on this has and education are recurring themes been postponed until after the muni- in all of the planning strategies. cipality is divided into Kommune Topics like urban planning, which is Qeqertalik and Avannaata Kommu- an area of focus in Kommuneqarfik nia. Qeqqata Kommunia is expected Sermersooq, are an exception to this to complete its waste management rule. But in general it will undoubted- plan during the course of 2017. ly be possible to find common ground for municipal sector planning.

There are also municipal sector plans, strategies and policies for individual areas. Qaasuitsup Kommunia has a sector plan for transportation and outdoor space for recreational activities. Kommuneqarfik Sermersooq has diverse sector plans and policies, but some of these need to be revised or have expired. The data basis for these plans and policies ranges from thoroughly researched information, for example, in the settlement sector plan, to pure policies, i.e. where a policy is expected to reflect the municipality’s stance in a given area, but not necessarily provide a concrete basis for decision-making.

82 The Necessity of Close Collaboration Figure 2.26 Overview of the municipal sector plans compared to the Greenland Government Authorities’ sector plans

Qaasuitsup Qeqqata Kommune- Kommune Sum- Greenland Kommunia Kommunia qarfik Kujalleq mary Govern- Sermer- ment Au- sooq thorities Settlement Focus on Towns and Housing provision Towns Housing and good social issues homes that plan with empha- and housing are good to sis on youth and housing live in senior citizens that are A sense of Social conditions: good to security and Urban Physical structures live in the good life planning must help citizens become self-sufficient Tourism Growth, A growing Business and Eco- Tourism Economic knowledge business trade: Commercial nomic development and initia- community areas in the three deve- Natural New areas tive towns lopment resources of business Bolstering Fisher- Fisheries the fisheries ies Hunting sector Agriculture Climate and Sustainable Respect for Sustainability: Sus- Waste environment society environ- Reevaluation of tain- manage- ment and regulations for the ability ment Climate and resources countryside Energy environment Water Infra- At sea, on A smoothly Infrastructure: Infra- Aviation structure land and in functioning new airports struc- the air infrastruc- Energy supply ture Ports ture and and waste man- communi- agement: Hydro- Telecom- cations electric plant near munica- Nanortalik, waste tions management planning, taking advantage of eas- ing of restrictions on water zones Education Holistical- Skills for Instruction and Educa- Preschool ly-oriented life supervision: tion and grade education Detailed evalua- school system tion of settlement Education schools Dormito- ries

The Necessity of Close Collaboration 83 Qaasuitsup Qeqqata Kommune- Kommune Sum- Greenland Kommunia Kommunia qarfik Kujalleq mary Government Sermer- Authorities sooq Health and The good Healthy Health Health prevention life (health, and happy Senior work prevention families citizens work) Youth centers Disabilities IT, democ- Interdisiplin. IT and racy and citizen in- democ- dialogue volvement, racy voluntary work Culture and Culture, A vibrant Culture and rec- Culture Culture identity sports and culture reation: Cultural recreation center, artificial Art Culture and turf soccer fields, preservation better condi- Church tions for cultural heritage: World Heritage area and evaluation of buildings worth preserving and protected structures The coun- Capital city Geo- tryside strategy graph- ical Individual Sector plan devel- communities foundation opment

Preparations for the Possible Authorities conducted a range of sur- Transfer of Housing from the veys of their housing stock, includ- Greenland Government Authori- ing physical assessments. These are ties to the Municipalities called targeted sector plans. Housing can serve as an example of how sector plans can form the basis This work forms the basis for nego- for the transfer of areas of responsi- tiations concerning the financial bility to the municipalities and what resources that will be included along role the Greenland Government with the transfer of this area to each Authorities will subsequently play in of the municipalities as well as the this area. impact that this move will have on allocations from the block grant in During the course of 2016 and the future. 2017, the Greenland Government

84 The Necessity of Close Collaboration Figure 2.27 Size comparison between Greenland and Europe Qaasuitsup Qeqqata Kommune- Kommune Sum- Greenland Kommunia Kommunia qarfik Kujalleq mary Government Sermer- Authorities sooq Health and The good Healthy Health Health prevention life (health, and happy Senior work prevention families citizens work) Youth centers Disabilities IT, democ- Interdisiplin. IT and racy and citizen in- democ- dialogue volvement, racy voluntary work Culture and Culture, A vibrant Culture and rec- Culture Culture identity sports and culture reation: Cultural recreation center, artificial Art Culture and turf soccer fields, preservation better condi- Church tions for cultural heritage: World Heritage area and evaluation of buildings worth preserving and protected structures The coun- Capital city Geo- tryside strategy graph- ical Individual Sector plan devel- This helps illustrate how Greenland’s geography inevitably makes it difficult to maintain the same level communities foundation opment of service throughout this vast island. The challenges largely stem from the limited nature of the country’s financial and human resources. In addition to Greenland’s sheer size, the extremely low population density and widely scattered settlements play an important role here. These circumstances define the parameters for both national and municipal sector planning. Map made by Henrik Forsberg and Kåre Hendriksen

But the national sector plans go well maintenance backlog and partly the beyond the above-mentioned work need to renovate some of the hous- related to the housing that is due ing stock—not to mention the num- to be transferred. The value of this ber of tenants relocating to and from housing is also linked to a wide range the units in question—that drives the of other factors, such as demograph- demand for housing in each indivi- ic and economic development. The dual community and has an impact on state of maintenance of the hous- housing sector plans. Similar things ing managed by the Greenland Gov- can also be said about some of the ernment Authorities is generally housing owned by the municipalities. rather poor. Hence, it is partly a

The Necessity of Close Collaboration 85 Compiling targeted sector plans is influence the size of the payments thus a necessary aspect of the prepa- from the block grant to the individual rations for the anticipated transfer to municipalities. the municipalities. A targeted sector plan is a sector plan that only con- Hence, there will still be a need for a cerns just one sector in a limited area national sector plan for housing that of the country. This typically corre- includes the following: sponds to a single community. The 1. Data that shows development in targeted housing sector plans are the area, including an overview of initially based on local assessments. the state of maintenance This information subsequently has 2. Links to other activities, for ex- to be integrated into the municipal- ample, whether a new airport or ities’ basis for planning to achieve the possibility of mineral exploita- an overall planning scheme in the tion can be expected to increase area of housing. These efforts will the need for housing then pave the way for a forthcoming 3. National political objectives and transfer agreement that should meet legislative initiatives, plus munic- the needs of both the tenants and ipal objectives and prioritizations the municipalities. 4. Criteria and indicators that will be applied to see whether the coun- The purpose of compiling national try is on the track for achieving its and municipal sector plans, not to objectives mention assessment reports on 5. An overview of the finances in the housing, is in many ways similar individual sectors to the main question asked by private individuals when they have a After the Greenland Government home appraised and inspected be- Authorities transfer housing and re- fore making an offer to purchase: sponsibility for the housing sector What should be the price and what to the municipalities, it will become repairs need to be given top prior- a municipal decision whether—and ity? But Greenland also requires a when—construction shall take place. national sector plan for housing. The These are decisions that the munic- Government of Greenland will use ipal councils will have to make on this to forge an overarching hous- behalf of their constituencies. The ing policy after the housing that be- Greenland Government Authorities longs to the Greenland Government will still regulate the sector in a gen- Authorities has been transferred to eral sense, and parliament will still the municipalities. The Government approve relative legislation, but it will of Greenland will still have to estab- be up to the municipalities to manage lish a wide range of regulations, the sector. Consequently, the nation- including rental legislation, building al sector plan will serve as a working codes, rules for submitting tenders, tool for both the municipalities and standards for senior citizens and the Greenland Government Authori- people with disabilities and much ties, and it will be compiled with key more. The Government of Greenland contributions from the municipalities. intends to follow developments in the In other words, the municipalities housing sector in the individual muni- will contribute to the general part of cipalities, and this sector will greatly the sector plan. Furthermore, there

86 The Necessity of Close Collaboration will be a section devoted to each of for housing, or they will constitute in the five municipalities. These - con their own right the municipal sector tributions will either summarize the plan for housing. municipal planning strategies, and possibly the municipal sector plans

2.2.3 Legislation on Sector Plans

Based on the new Budget and Ac- It is expected that the rolling sector counting Act and the Planning Act, plans will be made publicly avail- legislation is under preparation on able on the website of the Greenland the compilation of sector plans to en- Government Authorities and updated sure that it is relatively easy to co- at least once a year.” ordinate these efforts and engender the desired transparency in planning. It should be noted that the term ‘sector plan’ is used in a broad range of An initial step in this process was contexts. The Greenland Government taken with the comments on the Authorities compile national sector Budget Act, which, in reference to plans that cover development in an Section 13 of the legislation, include entire sector. This could be within the the following description of what a sector for tourism, for instance. Aside sector plan should contain: from national sector plans, there are “A sector plan describes the current also targeted sector plans that only strategy within the sector in ques- deal with a single area, such as the tion. As such, a sector plan shows housing managed by the Greenland political avenues that are to be pur- Government Authorities in the town sued or discontinued within a given of Nanortalik. Accordingly, sector sector, and it describes new projects plans can vary widely depending on that have already received politi- their objectives. cal approval. Sector plans are rolling in the sense that they cover an The forthcoming legislation on the extended period, and are updated national sector plans is solely expec- annually. ... ted to establish the key and obliga- tory demands concerning the con- The Government of Greenland will tent of such plans, however, it will be able to instruct all ministries to also give the relevant authorities an compile rolling sector plans, and it opportunity to adapt their efforts to can enter into a dialogue with the best serve the needs of the sector in municipalities concerning relevant question. companies and government agencies responsible for areas such as infra- For areas with infrastructure, it is structure and supply during the com- expected that focus will be placed on pilation process. the following:

The Necessity of Close Collaboration 87 Figure 2.28 Status assessments

Status Status assessments and physical location of existing facilities Requirements General strategy for the area. Overview of the planned construction projects of both the Greenland Government Authorities and the municipalities. The sector plans’ expected socio-economic impact. Environmental and sustainability assessment. Sector planning Each of the five municipalities contributes with a chapter in each individual that summarizes the municipal sector planning. This can municipality be in the form of either a sector plan, policy, strategy or basis for planning for the sector: • Avannaata Kommunia • Kommune Qeqertalik • Qeqqata Kommunia • Kommuneqarfik Sermersooq • Kommune Kujalleq Follow-up An annual memorandum is written up to describe the goals that have been achieved. Minor amendments may be made to the sector plans as long as they do not demand renewed approval from the Government of Green- land. An evaluation is made.

Just as the national spatial planning human resources and infrastructural reports already do, the sector plans resources for the country’s 72 com- will provide updated information on munities provides a better basis for areas that are common to the entire planning. Municipal officials can be country and within individual sectors. relied upon to a greater degree to For instance, Statistics Greenland contribute with concrete knowledge, currently makes population projec- which is precisely what they are in a tions according to fixed criteria, with position to provide concerning their fertility ranking among the most im- communities, and evaluations of the portant. The projections do not con- infrastructure-related activities that tain aspects such as the impact that can be best performed by none other a new airport might have on popula- than the municipal councils. tion and settlement patterns. It is anticipated that the synergies The sector plans will be able to provide achieved through more efficient pro- predictions based on assessments of cesses will help streamline workflows the anticipated developments in indi- among the municipal administra- vidual sectors. In other words, they tions and the Greenland Government can provide an assessment of pos- Authorities—and that this cost-ef- sible development scenarios rather fective approach will give politi- than merely list mathematical projec- cians the valuable information that tions. A systematic use of community they require for the decision-making parameters for economic resources, process.

88 The Necessity of Close Collaboration 3.0 Basic Tools to Secure Transparency

Without the right basic tools, it is not the entire planning relies upon. This possible to implement planning that requires a structure for information can ensure the desired regional bal- about specific geographic locations, ance in the country’s future develop- something called geodata. ment. Acquiring the right basic tools in itself is no guarantee that a balan- The next step is to ensure that soci- ced development can be achieved. ety has a basic set of data that is the Basic tools have to be used with care, same for all users. This explains why and the individual strengths and it is necessary to maintain control weaknesses of each basic tool have over a certain number of directories to be respected. with baseline data. It is called baseline data because it contains a com- This chapter deals with a series of mon and necessary baseline for our basic tools that are essential to the planning. ability of the Greenland Government Authorities and the municipalities to The third basic tool is NunaGIS, achieve optimum physical and eco- which is a national platform for view- nomic planning. Our review starts ing geographic data. NunaGIS con- with the top basic tools. It is initial- tinues to be a key tool and the 2017 ly a question of creating the general national budget has allocated funds framework for the digital data that to update the system. This work is already in full swing.

The Necessity of Close Collaboration 89 3.1 Geodata – for Structure

In conjunction with the rising digiti- Looking slightly ahead to the future, zation of society, new methods have it is estimated that there will be sig- emerged for managing and distribut- nificant, long-term economic advan- ing geographic information. Not sur- tages to be gained from a coherent prisingly, there is a growing interest strategy and infrastructure for ge- both in Greenland and around the odata. To illustrate this notion, the world on developing the use of geo- Danish Agency for Data Supply and data. Efficiency (SDFE) published an- im pact assessment in 2017 that shows Greenland’s immensity and the vast the economic value of geographic distances between communities data in Denmark is worth twice as present special challenges that have much as what was assumed merely to be tackled as best as possible, and five years ago. According to the cur- good maps and geodata play a key rent evaluation, the value is in the role here. region of DKK 3.6 billion.

Increased use of geodata also has Likewise, there is great potential for great potential for continuing to mod- improved dissemination of informa- ernize the entire public sector, where tion to the public and greater trans- political priorities and decisions are parency in public processes that will made on the basis of reliable data, strengthen the democratization of and where data and the digital infra- Greenlandic society. structure contribute to both effective administration and growth in the private sector.

3.1.1 Geographic Infrastructure

Today’s technological advances pave infrastructure. Taken in its entirety, the way for a digitization of society, this is often referred to as a spatial whereby the geographic component data infrastructure (SDI). A geo- is of growing importance and a key graphic infrastructure for data in- component of the infrastructure that cludes policies, standards, technolo- can meet the needs of both profes- gies and human resources that are sional and private stakeholders for necessary to collect, process, store, easy access to relevant, credible and distribute and improve the usage of well-conveyed knowledge. geodata to everyone’s advantage.

A coordinated exchange of geoda- These days geodata is a prerequi- ta within a single, cohesive system, site for planning and pursuing key which also functions across differ- activities, including urban develop- ent national borders, institutions ment, infrastructure, energy pro- and government authorities, is made duction and supply, climate adapta- possible by establishing a geographic tion, extraction of mineral resources,

90 The Necessity of Close Collaboration managing wilderness areas, outdoor A modern, digital geographic infra- activities, tourism and much more. structure is just as important for a Geodata engenders transparency. It modern, well-functioning society as also forms the basis for cooperation its physical infrastructure, such as among relevant authorities, orga- airports, seaports, roads, buildings nizations, companies, agencies and etc. citizens on more long-term issues and priorities that concern the nature of the country’s geographic structure and how its developmental potential can be realized.

3.1.2 Mapping the Potential for Geodata

In 2015 the Ministry of Finance and Society stands to benefit consider- Taxes mapped out the potential for ably from greater interconnected- geodata in Greenland by asking the ness and integration of systems and people who work with or use geodata types. It should be easy for all data on a daily basis—citizens, busi- stakeholders to access and exchange ness people, civil servants working information that currently can only for municipalities and the Greenland be found within a closed network. Government Authorities, researchers, At the same time, systematization etc.—what they needed and would entails filtering and negotiating on like to see in the area of geodata in the use of data, along with clear the future. guidelines for what types of information, data structures and data quali- This mapping process shows that a ties are relevant for public distribu- great deal of knowledge in Green- tion of geodata. landic society is produced in local, closed systems. This means that A report entitled “Geodata in Green- other stakeholders do not enjoy easy land” (“Geodata i Grønland”) pro- access to this information. In the ab- vides a comprehensive overview of sence of a universal, well function- how users and experts see both the ing system, users resort to their own challenges and potential for geodata local solutions. This enhances local in the future. This area will be given flexibility, but it puts the brakes on higher priority in the future, and ef- a coherent national distribution of forts will be jointly coordinated with knowledge. the aim of fostering transparency and making data and knowledge of It is a big challenge that too little our society more accessible than it is information is only accessible to too today. few people, and that in many areas it is unclear which authority is responsible for conducting authoritative and systematic supervision.

The Necessity of Close Collaboration 91 3.1.3 Free Data

The infrastructure for geographic in- resources, authority and knowledge formation gains real value when it to put this issue on the agenda and becomes a natural part of the digital lead the developmental work. administration. Hence, it is important that the public sector actively work to It is important to note that free data remove technical and financial barri- comes at a price. The procurement of ers, so data can freely flow among new data needs to be financed. When public authorities and benefit private access to data is no longer paid for citizens and enterprises alike. by users, other forms of financing have to be found. This requires free data, i.e. the release of data that today is restric- At a meeting of the public sector IT ted, as well as access to data that is steering committee FOIS in October currently not distributed or compiled. 2017, a decision was made to make data free for use as of January 2018. Likewise, it requires establishing Accordingly, the 2018 national bud- collaboration agreements, common get has allocated money to Asiaq to standards and reporting obligations, ensure that the release of data does but first and foremost a centrally not have a negative impact on its coordinating stakeholder with the financial situation.

3.1.4 National Strategy for Geodata

The Ministry of Finance and Taxes is developmental principles that will responsible for preparing a new na- continue to be applied to the new tional geodata strategy starting with strategy are as follows: coherence, an analysis of the potential of sys- user-centered design and accessi- tematic use of geodata here in the bility. country. A draft of the new national strategy for geodata is expected to To realize the full potential of geoda- be completed during the course of ta, the ongoing work and new nation- the coming year. al strategy here should be built upon people and decisions that: The geodata strategy will build upon 1. Work for coherence and coordina- concrete experiences and recom- tion mendations from the many people 2. Involve users and centralize who use geodata on a daily basis. solutions in their real, complex The “Geodata in Greenland” report, requirements which is a preliminary step toward 3. Foster efficiency, innovation, forging the strategy itself, identifies transparency and democratic three fundamental developmental debate. principles (or “innovation vectors”) for the further development of geo- In exploring the strategy work data in Greenland. The three general that has involved a wide range of

92 The Necessity of Close Collaboration relevant users, it has become clear Geodata Helps to Ensure Growth that Greenland would reap consider- and Development able benefits from developing a mod- Geodata can enhance the dissem- ern infrastructure for geodata. This ination of knowledge, boost the can support and safeguard a user- development of innovative solu- oriented, dynamic and sustainable tions and help spark new economic development that digitally links the development. Furthermore, new country and its citizens—geographi- surveying of the countryside helps cally, culturally and socially. attract new entrepreneurs to the country by reducing barriers to new Geodata Creates a Better Foun- investments, particularly in the areas dation for Decision-Making of mineral exploitation and tourism. Updated and precise geodata helps to ensure a society where decisions Within the scope of the A. P. Møller are made based on a broad, common pilot project,3 new methods and foundation of knowledge. Geodata tools are being developed to in- enhances people’s ability to visual- volve end-users of maps and geoda- ize and convey developmental plans, ta. It will be necessary to develop a which allows public sector processes number of prototypes and datasets to be more transparent and open for adapted to user profiles, plus maps debate. and services, to be available on NunaGIS and its Danish equivalent, It would be beneficial to draft a new Kortforsyningen.dk. The experience geodata law that specifies the roles gained from user-driven innovation and responsibilities of authorities constitutes valuable feedback that along with the standards that will can be applied to the development of apply to this area. new user-oriented services relating to the basic technical maps. NunaGIS will soon include a sector planning portal that provides an over- Plans are underway to enhance the view of construction sector planning user-friendliness of NunaGIS. By across a number of sectors, including 2019 it should be possible for users a link between the sector plans and of maps and geodata to access this the relevant geography. This portal information on NunaGIS using tab- will also include a community profile lets and smartphones. tool with key performance indicators on developments in the municipali- Geodata Helps to Streamline ties and the individual communities Processes in the Public Sector that can be used by politicians to Geodata plays a very important role make well informed decisions based in the ongoing efforts to digitize on precise and in-depth information. and streamline many public sector

3. The pilot project “Land Surveying in Greenland” (“Landkortlægning i Grønland”) involves four designated test areas. See Figure 3.1. The goal of the pilot project is to develop new digital topographic maps based on satellite images for four geographic zones in Greenland covering an area of approx. 80,000 square kilometers (31,000 square miles). The project is supported by the A.P. Møller and Wife Chastine Mc-Kinney Møller’s Fund and extends until the end of 2017, at which time the fund will decide whether to finance or partly finance efforts to survey all of Greenland’s ice-free areas.

The Necessity of Close Collaboration 93 Figure 3.1 Location of the four and international collaborators, for designated test areas in the pilot example, in conjunction with a pos- project “Land Surveying in sible implementation of the EU’s Greenland” INSPIRE Directive.4

It is important to constantly moni- tor the connection between Asiaq’s activities and the changing needs of society. Within the realm of Asiaq’s area of responsibility, it might be relevant to develop a series of targeted instructional courses that foster general knowledge about the use of the GIS (geographic information system) throughout the public sector.

A new and more user-friendly tool has been developed for submitting land-use permit applications on NunaGIS. In the future it will be possible to submit these applications completely online using the NemID system. Users will no longer have to print out, sign and mail the forms to the appropriate municipal officials.

Geodata Can Be Used As a Learn- ing Tool Technological advances in the area of geodata make it possible to integrate geographic data into the curricula services in Greenland to foster of grade schools, upper secondary growth, welfare and social develop- schools, etc. Teaching based on geo- ment, which constitute the corner- graphic components (maps, natu- stone of a modern and self-sustain- ral features in the landscape and so ing nation. Making a large amount on) is far more intuitive and easy to of fundamental geodata available as grasp. basic data will pave the way for the digital administration of the future. As one of many initiatives, the NunaGIS national platform for geo- Common standards for geodata need data is being developed as a learn- to be established. This will make it ing portal with a more user-friendly possible in the future for geodata to and intuitive design. The focus is on be exchanged with relevant domestic

4. INSPIRE (INfrastructure for SPatial InfoRmation in Europe) is an EU directive aimed at establishing a shared digital infrastructure for geodata in Europe. The rationale is that it is better and cheaper for all countries and interested parties to pool their resources to collect and maintain data in a coordinated and concerted manner.

94 The Necessity of Close Collaboration education and how geodata and the an Arctic Spatial Data Infrastructure dataset in NunaGIS can be used in (ASDI) to ensure that the future con- teaching and training courses. tents of the portal are of the greatest possible relevance to the country. With user involvement firmly on the agenda, work can proceed with orga- There are plans to produce a Mari- nizations like the Greenland Institute time Spatial Data Infrastructure of Natural Resources, the municipali- (MSDI) as a basis for a more sus- ties, etc. to develop project pro- tainable and coordinated planning of posals that will make the GIS more diverse interests pertaining to the accessible to the public. sea.

One example of this is the new cli- Valuable data mate portal on NunaGIS, which aims Out of the total amount of geoda- to make available the latest rele- ta that grows day by day, there is vant information from the Danish key data that is identified as being Meteorological Institute (DMI), show particularly valuable. This special time series and make greater use of data is characterized by the fact that climate data in schools. it is used again and again and forms the basis for forming combinations Geodata Fosters Sustainable of datasets, and thus increasing the Development applicability of geodata to a consider- Geodata plays a key role in achieving able extent. Such data is referred to a number of overarching goals for a by the collective term ‘baseline data.’ more environmentally-friendly and sustainable long-term development. Precise geographic datasets are necessary for effective, modern and accountable management of a long list of essential responsibilities of public administration that will ultimate- ly lead to a greater degree of self- determination and independence.

How is it possible to enhance the level of expertise and recruit sufficiently qualified resource personnel to Greenland in the area of geodata? In conjunction with the main application for the A. P. Møller project, there is a clear desire among Greenlandic officials and politicians to improve expert knowledge of geodata in the country.

Furthermore, Greenland can prioritize its participation in the international forum on the development of

The Necessity of Close Collaboration 95 3.2 Baseline Data – for Systematization

In late 2015 the baseline data pro- introducing more simple updating gram was launched with the aim procedures and offering free access of ensuring that data that is cycled to data. Hence, the baseline data throughout the entire public sector program contributes to streamlin- is of high quality, standardized, and ing, modernizing and improving pub- free and easily available to both the lic sector administration, along with public and private sectors. The pro- fostering increased growth and gram thus assures more effective productivity in the private sector. baseline data by reducing copy data,

3.2.1 The Baseline Data Program

The baseline data program primarily Furthermore, there is a focus on de- focuses on data concerning peo- fining departmental responsibilities ple, companies, property, locations and responsibilities for the main- (including addresses) as well as tenance of all data, which in some geography and mapping. More direc- areas will require new legislation or tories could be added over the long amendments to existing legislation. run. Everyone with a legitimate need will A great deal of data already exists, be able to access baseline data from but is often not readily accessible, a data distributor. This means, for and there is a general need to im- instance, that users of addresses will prove its quality. For example, there no longer have to maintain their own are large amounts of data on build- address directories. Data can also ings that is tucked away in filing cab- be combined and collocated in new inets in the municipalities. Likewise, ways, making it possible, for exam- address data is filed away in diverse ple, to acquire information on the directories held by public and private age of people in a certain housing players. It is an enormous task to area. Figure 3.2 shows how data is collect and quality assure existing updated by caseworkers and citizens data and store it in authoritative di- using self-service solutions. In addi- rectories. To meet this challenge tion, data is distributed to users via a there is a need for close collaboration data distributor. among a wide range of stakeholders. Below is a description of each of the Since it is essential that data is directories, which constitute five maintained and that new data is reg- main areas: istered in a standardized manner, • People (1 directory: CPR) the program focuses on facilitating • Businesses (1 directory: CVR) the development of user-friendly, • Properties (3 directories: NIN, self-service solutions and inter-agen- BBR and EJR) cy management systems. • Locations (3 directories: GAR, AIR and SNR)

96 The Necessity of Close Collaboration Figure 3.2 The data distributor’s location between users and the baseline data directories

• Maps and geography (a number of baseline data deals with ownership of directories, including DTG) and the rights to physical areas and buildings. Data about people (CPR) The Danish CPR system is the author- ◊ Land use (NIN) itative directory for information In Greenland there there is no on people living in Greenland. The private ownership of land. All land is CPR directory includes details about communally owned. Instead of own- people’s addresses, marital status, ing land, people are granted land-use spouses, children, etc. permits giving them the right to use an area for a specific purpose such Data on businesses (CVR) as housing, business or storage. As The Greenlandic business directory such, it is only houses and buildings (GER) will be discontinued and regis- that can be bought and sold, where- trations of Greenlandic companies as the land upon which they are built will in the future take place via a is only on loan. central business directory (CVR) that, like the CPR directory, is physical- Greenland currently has an IT sys- ly located in Denmark. This includes tem for searching for and processing information on things like the loca- applications for land use. It is called tion, size, ownership, etc. of busi- NIN (Nunaminernik Inniminnikkanik nesses. Nalunaarsuiffik) and is also known as Greenland’s land-use registry. Data on properties (several The system is unstable and obsolete, directories) so work is currently underway on Data on properties is important be- developing a new system. The new cause buildings and facilities are of system is being developed in close co- great value to a community. This type operation with the municipalities and

The Necessity of Close Collaboration 97 the Greenland Government Authori- international investors, it would how- ties. It will make it possible to link ever be advisable to make it man- with future, digital municipal case datory to declare one’s ownership of processing systems, including tools property or possessions. such as SB-SYS and Pelikan. Over the years, a number of commit- The new land-use registry will con- tees have been established with the tain a record of all land-use permits aim of implementing a digital owner- in Greenland. Hence, in the future ship registry, but without success. all land-use permits will have to be The baseline data program paves registered in this new system, which the way for this work to be complet- will also include permits in mining ed. Entries in the future ownership zones, research stations and areas registry will take place against the with tourism concessions. background of each property’s land- use number (A number) and building ◊ Buildings (BBR) number (B number), which will be There is no one single directory for made easier thanks to smooth access Greenlandic housing and buildings, to reliable directories. but there is a great deal of information in local archival filing cabi- Data on locations (several direc- nets and various digital directories, tories) primarily in the municipalities. The The baseline data for locations is content of a forthcoming building contained in several independent directory is currently being defined directories and includes addresses, in cooperation with a wide range of administrative subdivisions and place stakeholders, including municipali- names. ties, real estate agents, the Green- land Government Authorities, the ◊ Addresses (GAR) high court, banks, the police, etc. There is no central address directory in Greenland. What comes clos- To ensure a comprehensive overview es is the CPR directory, which can be of all housing and buildings, all struc- searched for information on where tures will have to be registered in the people live, but not for information future, whether they are located in on uninhabited buildings, the status larger or smaller communities, in of businesses, and so on. Hence, a mining or agricultural areas, or are Greenlandic address directory (GAR) used as tourism concessions. is being established.

◊ Ownership (EJR) Most larger communities have street There are no regulations concerning names, but smaller communities ownership registration in Greenland. don’t use them. The names of smaller Registration of certain rights con- communities are used instead of cerning property and personal pos- street names in registries such as the sessions is currently governed by the CPR directory. Danish “Lov for Grønland om Pant” from 1967, which states that one has All housing has a building number (B the right, but not the obligation, to number) that is allocated in accor- register ownership. To enhance secu- dance with when the occupation per- rity for investments, including from mit was granted, and not where the

98 The Necessity of Close Collaboration building is located. Likewise, eight extent to which public services are Greenlandic communities have intro- offered in a given community. duced street numbers that resemble those found in many other countries, ◊ Place names (SNR) but the remaining communities use Greenlandic place names are of the B-number system as a clear- great importance to finding your way cut type of address for all housing. both in the open countryside and in Accordingly, an address in Green- individual communities. Since place land will look different depending on names are part of the baseline data whether it is located in one of the program, all place names need to be eight communities that use street digitalized. In other words, a pre- numbers, or in one of the remaining cise geographic location must be as- 65 communities where the B-number sociated with a place name and the system is used instead. It goes with- place names must be incorporated out saying that inhabitants of com- into a geographic infrastructure. It munities without street names and is an enormous undertaking to give numbers have no problem finding all place names a precise geographic their way around, but it can be diffi- size and location. This work will con- cult for emergency crews and tourists tinue over the coming years. to navigate communities that use the B-number system. Hence, efforts are Data on maps and geography underway to establish a geographic (several registries) infrastructure so that everyone can Greenland has assumed responsibil- find their way around with the help ity for surveying communities, while of GPS, even in communities where it is still the responsibility of the there are no street numbers or street Danish authorities to survey the names. countryside. The open countryside is, by definition, all of the areas out- ◊ Administrative subdivisions (AIR) side of our communities. It is Asiaq Administrative subdivisions are used that is responsible for surveying all for various purposes, such as orga- of our communities. Asiaq’s data is nizing emergency operations, allo- collected in the technical basic map cating fishing and hunting quotas, (DTG), which is one of the main and distributing mail. The adminis- directories for maps and geography. trative subdivisions that are used for It is only the technical basic map that baseline data include: exclusive eco- will be dealt with in greater detail nomic zones, 200 nautical mile limit, here. municipalities, parishes, police districts and electoral wards. ◊ The technical basic map (DTG) With the introduction of the baseline Localities are a special type of ad- data program, the technical basic ministrative subdivision. The term map was elevated to the status of locality can be used for all communi- baseline data. The geographic base- ties, various subdivisions of the open line data will be accessible as a layer countryside, and so on. The locality on the technical basic map and can be register would, for example, be the used free of charge. Some of the authoritative place to find informa- layers are: maps, elevation, aerial tion on the status of a community. photos, transportation, buildings, It would include information on the water, wilderness areas and land use.

The Necessity of Close Collaboration 99 3.2.2 Process and Collaboration

The baseline data program’s purpose holistic solution that is tailored to the is to create authoritative registries, municipal administrative procedures, collect and quality assure existing meaning that it has to be easy to data and adapt the relevant legisla- coordinate, update and convey, and tion. To ensure that the registries will that all processing of baseline data continue to be updated, a great deal must be digital. of effort is going toward developing user-friendly, self-service solutions In May 2017, a workshop was held and management systems. on the forthcoming building directory, with a wide range of stakehold- Baseline data, geodata and digitiza- ers from the Greenland Government tion were one of the main areas of fo- Authorities, the municipalities, real cus at the Plandata 2017 conference estate agents, bankers, etc. that was held in Nuuk. This event was attended by planners and tech- It is hoped that the new address, land- nicians from all of the municipalities, use and building directory will make along with relevant departments and it possible to tackle a certain num- agencies under the direction of the ber of related problems. According- Greenland Government Authorities. ly, an inter-municipal working group was established with representatives At the baseline data conference in from each of the four municipalities Ilulissat in April 2017, participants and the relevant national authori- debated the possibility of creating a ties. The working group is primarily single system solution for the joint collecting and verifying data, includ- public sector baseline data program. ing performance specifications for There was a general consensus that self-service solutions and manage- that it is possible to introduce a ment systems.

3.2.3 Planning, Requisite Legislation and Imple- mentation

Work on the baseline data program the administration of the relevant will continue for a number of years. registries. Indeed, work is underway CPR, CVR and address information to prepare the necessary legislation can be accessed via the data distribu- with the aim of it coming into force tor from the beginning of 2018, while as of January 1, 2019. searches for land-use data, building data and geographic data will be Furthermore, new self-service solu- added during the course of the year. tions and management systems for In order to implement the base- digital relocation, land-use applica- line data program, it is necessary tions, building permits, occupation to adopt legislation that defines the permits and business registration will framework along with the prepara- gradually be made accessible during tion of a follow-up law concerning the course of 2018.

100 The Necessity of Close Collaboration 3.3 NunaGIS – for an Overview

NunaGIS is Greenland’s system for Furthermore, NunaGIS is responsible publishing geodata on the Internet, for managing land-use permits and and it consists of websites, databas- municipal planning through digital, es and servers for the online process- geographic representations of the in- ing of maps and location-based infor- terests of the Greenland Government mation. In other words, NunaGIS is Authorities, in other words, all of the Greenland’s national geodata portal. restrictions and obligations that the municipalities must respect in their All citizens can use NunaGIS to view planning processes. Greenland’s maps of Greenland and acquire spe- land-use registry, NIN, is linked to cific information, for example, on NunaGIS. mining licenses, protected areas and the physical planning undertaken by the municipalities.

3.3.1 Background information

Enormous strides have been made The aim of this developmental fund- on the IT front since 2012, and this ing is to elevate the present Nuna- means that the current NunaGIS GIS from a situation that can only portal no longer lives up to today’s be be characterized as critical, with needs and standards. As a follow-up numerous crashes on a daily basis, to broader developmental work cur- to a new NunaGIS 2.0 that assumes rently underway (described, for in- a key role as a central knowledge stance, in the 2015 National Spatial platform for geographic information, Planning Report), the 2017 national coordinating the Greenland Govern- budget has earmarked funds to up- ment Authorities’ and the municipal- grade and convert NunaGIS to the ities’ strategic and physical planning newly established arcGIS mapping in close coordination with the base- and analytics platform by ESRI. line data program’s new directories and the data distributor.

3.3.2 A New NunaGIS – Greenland’s Geodata Portal

The vision is to update and further taking NunaGIS to the next level ... develop NunaGIS so that it can make • as a map portal and site where the most of future technological ad- users can find free topographic vances in the area of GIS and geo- maps, elevation models and ortho- data, allowing NunaGIS to remain photos (a special type of aerial the natural place to go in search of photograph) of communities and geodata and location-specific data the countryside on Greenland. This vision is in the • as a planning portal and site process of being realized through where users can find information six strategic program paths that are

The Necessity of Close Collaboration 101 on physical planning and land-use and climate adaptation in general. management in accordance with ClimateGreenland also has an educa- the interests of the Greenland tional module on climate change with Government Authorities (restric- teaching materials for grade school ted zones, etc.) and municipal and upper secondary schools. planning • as a sector planning portal and The above-mentioned six strategic site where users can find informa- program paths will now be described tion on sector planning by public in greater detail. authorities, including geographic representations and the demo- Path 1: graphic and statistical prerequi- New Maps of the Countryside sites for these types of decisions Good maps are a cornerstone of a (community profile tools, etc.) modern society and can be viewed • as a climate portal and site as an essential element for pursuing where users can find information a wide range of activities, including on climate change and climate planning urban development, explor- adaptation on maps (for instance, ing for oil and minerals (and exploit- in January 2016 the DMI compiled ing these resources), expanding and climate data and created a model upgrading existing infrastructural that provides a possible scenario and energy producing facilities, com- for future climate changes) piling proposals to adapt to a chang- • as a learning portal and site ing climate, managing wilderness where users can explore, exper- areas, engaging in outdoor activities, iment and learn about Greenland promoting tourism and much more. and the GIS, including course material for grade schools and up- For a long time now, there has been per secondary schools on climate a great need for better maps of the change, maps, planning, etc. countryside in Greenland. The cur- • as a land-use administration rent maps are outdated, with a level portal where both citizens and of detail of highly varying quality. public authorities alike can find These are small-scale maps and they dedicated tools to work with GIS, are inaccurate when it comes to ele- apply for land-use permits (NIN), vation, distances and positions. etc. In 2014 it was possible to secure The goal is to consolidate NunaGIS financing for a pilot project that will as Greenland’s national platform create a foundation for develop- for geographic information, making ing modern satellite-based maps in it the place to go for maps and Greenland. The A.P. Møller and Wife cross-disciplinary, cross-sector plan- Chastine Mc-Kinney Møller’s Fund ning in Greenland. has allocated DKK 15 million to support new surveying efforts of the It should be added that with the Greenlandic countryside. The three- ClimateGreenland website (www. year pilot project will use the latest climategreenland.gl) the Govern- technology in satellite-based imag- ment of Greenland already has a site ery to map four selected test areas with information on climate change or sub-areas in Greenland: Tasiilaq,

102 The Necessity of Close Collaboration Zackenberg and Daneborg in East for residents who are interested in Greenland, South Greenland and the considering applying for a land-use Disko Bay in North Greenland. permit. Seen in this light, NunaGIS makes an important contribution to The pilot project is part of a larger realizing the vision of decentralized, effort aimed at producing a new efficient, citizen-oriented services, as generation of state-of-the-art topo- outlined in the structural reform that graphic maps of all ice-free regions shaped the present municipalities. of Greenland. New data will be collected for the selected test areas that Path 3: will make it possible to produce high- Key Performance Indicators er quality maps of the countryside, and Sector Plans which over the long term will allow To make sector planning available to for a seamless transition between the the public, there is a need to create technical maps of Greenlandic com- a web portal that can present key munities and the new topographic performance indicators for the indi- maps of wilderness areas. vidual communities in Greenland and convey the national sector plans and Path 2: political priorities in the area of con- NunaGIS as a Planning Portal struction in a simple and straightfor- Physical planning and land-use ward manner. management are very closely linked to NunaGIS. There could be, for The sector planning portal will be example, a digital layer on a able to facilitate more cohesive and map that shows the location coordinated efforts to manage the of underground cables, illus- construction sector and thus realize trates where restricted zones are an overarching ambition to ensure located and indicates where people clear and thus more favorable con- are allowed to build industrial facili- ditions for both public and private ties. When the GIS layers are placed investments in this area. on top of each other, it is possible to see the big picture, including the There is also the ambition that work- physical limits and options in any ing with sector plans and establishing region of Greenland. a sector planning portal on NunaGIS will result in more coherent and NunaGIS visually portrays the inter- coordinated physical planning for ests of the Greenland Government both the Greenland Government Authorities in municipal planning, in Authorities and the municipalities. other words the restrictions and limi- See Figure 3.3. tations that sector legislation may have for municipal planning and The approved sector plans are to be land-use authorities. presented and conveyed digitally in an easy-to-read and standardized This is information that is absolute- manner on the new sector planning ly necessary for the municipal man- portal. This will take place accord- agement of physical areas. Likewise, ing to the guidelines that have been it is knowledge that is indispensable described in the joint template for entrepreneurs who are prepar- for sector planning reports. This ing new construction projects and

The Necessity of Close Collaboration 103 Figure 3.3 The key elements of national spatial planning and municipal planning

concerns a large, complex amount challenges in the diverse regions of of information, making it necessary the country, including which initia- to extract the essence of each sector tives need to be given priority. plan in a structured manner to provide an overview throughout all sec- The municipal urban planners who tors. The individual comprehensive are responsible for compiling the sector plans, background reports, digital municipal plans will benefit etc. will of course still be found as greatly from having a site where they links under the presentation of each can find relevant information on sec- sector. tor planning. It is currently virtually impossible for a municipality to gain The portal will serve a very import- comprehensive overview of all sector ant function in “taking the tempera- planning. ture of the construction sector” to make it possible to avoid any over- NunaGIS thus becomes a site where heating in a specific geographic area private citizens, the business com- in the future. A graphic visualization munity, investors and other stake- of the level of activity could perhaps holders have an opportunity to access be incorporated as an element of key information about the country’s the portal. The portal will provide an future development and the political excellent overview of the geographic priorities in the area of construction.

104 The Necessity of Close Collaboration Path 4: possible to present large amounts Climate Data on NunaGIS of information in a more dynamic The Ministry of Nature and Environ- and interactive manner. This could, ment has joined forces with Asiaq to for example, be in the form of time launch a new project that will make series for each individual locality. it possible to present the DMI’s latest climate data for Greenland on Nuna- Path 5: GIS. With a DKK 345,000 grant Learning and NunaGIS from DANCEA (Danish Cooperation In conjunction with the work of up- for Environment in the Arctic) and grading NunaGIS to take on new DKK 50,000 in funding from the challenges, such as being able to Ministry of Nature and Environment, deal with new climate data, it has the project will ensure that the DMI’s become clear that there is a great climate data model will remain avail- potential for the site to offer geo- able on NunaGIS in the future. graphic learning materials for the benefit of schools, institutions of Working together with the Greenland education and the general public. Government Authorities, the DMI has examined a total of 66 different This could include instructional activi- climate indices that reveal some- ties in which teachers and students thing about a very specific aspect of use NunaGIS to find relevant infor- weather and climate in Greenland. mation, then document and visualize Indices can include areas of focus the results using maps, etc. Initially such as the extent of permafrost, the focus will be on climate data, but the number of days above freezing in later it will be possible to develop winter and the frequency of droughts tailored instructional activities on during the course of a growing sea- geographic topics, maps, physical son. planning, cultural heritage and so on.

The climate indices describe specific Path 6: weather conditions in geographic New Geodata Tools and NunaGIS areas measuring 5 x 5 km in every Various institutions and users can municipality. Thanks to a high degree have highly different demands and of geographic accuracy, it is possible needs with regard to NunaGIS as a to take into account the enormous tool. In a general sense, it is possi- impact of fjords and mountains on ble to identify two needs—a techni- the local climate. It will be possible to cal and complex need along with a zoom in on geographic areas, on time very simple need. Government agen- intervals and, wherever applicable, cies like Nukissiorfiit and municipal users will be able to make a direct planning and land-use management comparison between two elements authorities are examples of orga- in different models. Fixed maps with nizations that place relatively high climate indicators can also be viewed professional and technical demands on top of or alongside other carto- on the GIS tools and drafting tools graphic topics. that NunaGIS makes available.

Including the DMI’s datasets on the The average citizen who is merely climate portal in NunaGIS makes it applying for a land-use permit is an

The Necessity of Close Collaboration 105 example of someone who does not ArcGIS package also contains a num- require nearly the same level of pre- ber of free GIS online modules that cision and detail. it will be possible to offer to average citizens and others with less complex The package of GIS solutions that demands for precision. These solu- has been assembled in GIS Green- tions and tools will be integrated land (ArcGIS)5 will in future be able into the site to allow NunaGIS 2.0 to to offer a state-of-the-art techni- feature far more intuitive and simple cal solution to meet even the most drafting tools for land-use permit complex demands from various applications than what is currently authorities and organizations. The offered on the site.

3.3.3 NunaGIS and Baseline Data

NunaGIS can also show data from friendliness and functionalities of the NIN (Greenland’s land-use registry), tool that is used for applications and which is incorporated into a number registrations of land-use permits in of baseline data registries, as seen in NunaGIS. Working together with the the description of the baseline data COWI consulting group, Greenlandic program. Registration of proper- officials have drawn up an outline of ty ownership (BBR) is baseline data a system architecture for the new that is deemed vital to society, on par NIN that will closely mesh with digital with information about people (CPR), municipal plans in the municipalities’ companies (CVR), addresses, etc. Odeum e-platform, SB-Sys and the Pelikan caseworking tool. There is great potential for improve- ment when it comes to the user-

3.3.4 Design and User Interface

As a web portal, NunaGIS will receive sets and the functionality and com- a fresh new design that will make the plexity of the system. A bad match user interface and navigation among between skill sets and system com- the individual elements and content plexity is problematic because it on the site more intuitive and us- presents a major barrier to the roll- er-friendly. ing out and growing use of geodata in Greenland. A survey of the use and potential for geodata in Greenland has shown that NunaGIS is experienced by many as for many users of GIS solutions there cumbersome and difficult to use, and is an imbalance between their skill it is clear that efforts should focus on training and enhancing the skills 5. GIS Greenland is a joint effort that en- of users, but also on developing the compasses all public entities in and under system to make it more streamlined, the Greenland Government Authorities, straightforward and user-friend- including the municipalities, that wish to become members and use ArcGIS as a ly. To make the application process geodata platform. completely digital and save time for

106 The Necessity of Close Collaboration municipal planning and land-use their applications digitally and not authorities, Nem-ID or similar solu- first have to print out, sign and mail tions will have to be integrated into the forms to the appropriate munici- NunaGIS, so applicants can submit pal officials.

3.3.5 Organizational Structure

NunaGIS has developed to become a National Planning) is the overriding tool that is of critical importance to a authority and is responsible for the wide range of authorities and users, strategic development of NunaGIS. both in Greenland and abroad. The new NunaGIS, with its new elements In its advisory capacity, Asiaq is and programs, may very well come responsible for the operation of to play an even greater role. NunaGIS. With the transition to the ArcGIS platform, Asiaq is also res- The organizational structure for ponsible for providing the IT sys- NunaGIS, with the roles and areas of tem that supports NunaGIS. As an responsibility that were described in authority for surveying the Greenlan- the former SDI, will be maintained dic countryside, the Danish Agency with very few exceptions and changes. for Data Supply plays a role in the future development of NunaGIS, and As the project owner, the Ministry of this is reflected in the organizational Finance and Taxes (Department of structure. See Figure 3.5.

Figure 3.4 Organizational structure of NunaGIS

The Necessity of Close Collaboration 107 A steering committee has been program (baseline data), Statis- established to supervise the coordi- tics Greenland and the coordination nation and progress of the project. of sector planning (sector planning Furthermore, the project will involve portal with statistical key data) and stakeholders and users. Project the Nature and Climate Department stakeholders include, for example, (climate adaptation and visualization the municipalities’ Odeum e-planning of climate data, etc.). group (the digital municipal plans), the main office of the baseline data

3.3.6 Status and Timetable

In the first half of 2017, the work to Implementation of the content of implement the new NunaGIS has fo- these work packages will be con- cused on solving the purely techni- tinuously approved by the project’s cal platform changeover to arcGIS. steering committee, which thus helps A new server environment has been to safeguard the direction and pro- established for “the map machine” gress of the project. Due to the com- behind NunaGIS and tests have been plexity of the task, it is anticipated run. The work during the first few that the work of developing NunaGIS months was hampered and delayed will continue in 2018. Top priority will by the necessity of finding a new be given to the economically most project manager, new IT developer critical and basic elements, such as and new project head in Asiaq. the planning portal and the land-use application tool. Since autumn 2017, Asiaq has been fully staffed and the implementation of NunaGIS with new program elements has been described in detail in a number of work packages that clarify the contents (demand specifications), responsibilities, distribution of roles, phases and budget.

108 The Necessity of Close Collaboration 4.0 Summary

The national spatial planning reports In the 2017 National Spatial Plan- provide a description of the challeng- ning Report it has been pointed out es involved in physical and economic that it is necessary to collaborate and planning. It is clear that there are no engender transparency in planning. easy solutions to these challenges. It is only through genuine collaboration at all levels and among all au- In previous years it was point- thorities that it is a possible to ensure ed out that it is necessary to coor- that planning has sufficiently broad dinate planning among individual legitimacy and exhibits the neces- sectors. One of the preconditions sary quality in the eyes of the public. for this is a firm basis for planning. By the same token, this process There are currently no concrete plans requires a shared database and to compile additional national spatial shared core values. planning reports over the coming years. The Planning Act specifies that Likewise, it is necessary to prioritize the Government of Greenland has during the planning process. There to submit to parliament a report on are very few places in the world national planning at least once every where it is not necessary to en- four years. In the future government gage in some sort of planning of the officials will most likely increasingly required infrastructure on the ground. rely on the use of digital platforms Setting priorities also requires that that can allow for ongoing updates. there is a firm basis for planning.

The Necessity of Close Collaboration 109 110 The Necessity of Close Collaboration Appendix 1

Description of the calculations for the selected parameters in the 2017 community profile (Compiled by Per Lyster Pedersen)

A1 Procurement/capita

Description Value of procurement of fish and shellfish in DKK per capita Data source Statistics Greenland special calculation plus Statistics Greenland database Data owner Statistics Greenland Data year 2016 Basis for Procurement value is divided by the size of the population (capita) per calculation community. The mean population size was used as capita Indexing K intervals Procurement value Vulnera- No. of in DKK/capita bility communities K > 2 >117,911 1 4 1 < K <= 2 75,657-117,911 2 9 0<= K <= 1 33,404-75,657 3 14 “-0.5<=K < 0 12.777-33.404 4 13 K < -0.5 <12.277 5 33 Example Communities with a very high level of procurement per capita are rated as 1, while those with very low procurement are rated as 5. Communi- ties that are in the average value field are rated as 3. Nanortalik has 333 DKK/capita, which gives it a vulnerability rating of 5.

A2 Procurement/community

Description Value of procurement of fish and shellfish in DKK per community Data source Statistics Greenland special calculation plus Statistics Greenland database Data owner Statistics Greenland Data year 2016 Basis for The procurement value is added up per community calculation Indexing K intervals Procurement value Vulnera- No. of in DKK 1,000 bility communities K > 2 >48.225 1 2 1 < K <= 2 29,322-48,225 2 4 0<= K <= 1 10,419-29,322 3 17 “-0.5<=K < 0 968-10,419 4 24 K < -0.5 <968 5 26 Example Nanortalik has an aggregate procured value of DKK 417,000, which gives it a vulnerability rating of 5

The Necessity of Close Collaboration 111 A3 Household income

Description Household income Data source Statistics Greenland database Data owner Statistics Greenland Data year 2015 Basis for Average household income per community calculation Indexing K intervals Household income Vulnera- No. of in DKK bility communities K > 2 >414,761 1 11 1 < K <= 2 376,691-414,761 2 11 -1<= K <= 1 300,551-376,691 3 27 -2<=K < -1 262,480-300,551 4 11 K < -2 <262,480 5 13 Example Nanortalik had a gross household income of DKK 319,321 in 2015 and receives a vulnerability rating of 3.

A4 Cruise ship visits

Description Maximum number of individuals who visited a community during a cruise ship stopover. Data source Visit Greenland Data owner Visit Greenland Data year 2016 Basis for Total number of cruise ship passengers calculation Indexing K intervals Maximum number Vulnera- No. of of individuals who bility communities visited a community during a cruise ship stopover K > 1 >3,993 1 5 0.5< K <= 1 2,590-3,993 2 3 0<= K <= 0.5 1,187-2,590 3 7 -0.42

112 The Necessity of Close Collaboration A5 Employment rate

Description Population per community age 15+ Classified as employed, unemployed or outside the workforce. Data source Statistics Greenland special calculation Data owner Statistics Greenland Data year 2015 Basis for For every community: B = (employees*100)/15+ calculation The average for the country (K) and the country's standard deviation (S) is calculated. For every community: Relative employment rate = (K-B)/S. The five K intervals are determined through a concrete evaluation of the community’s vulnerability, which is determined from its relative employment rate. Indexing K intervals Relative Vulnera- No. of employment rate bility communities K > 1.5 >70.09 1 3 0.5 < K <= 1.5 59.21-70.09 2 22 -0.5 <= K <= 0.5 48.33-59.21 3 24 -1.0 <= K < -0.5 42.89-48.33 4 10 K < -1 <42.89 5 14 Example Communities with a very high employment rate (> 70.09%) per capita are rated as 1, while those with very low % are rated as 5. Nanortalik comes in with 50.1%. This works out to a vulnerability rating of 3. Nanortalik thus has an average employment rate.

The Necessity of Close Collaboration 113 A6 NEETs (“Not in Education, Employment or Training”)

Description NEETs in % of individuals ages 18-25 per community. Data source Statistics Greenland special calculation, including databases regarding the number of individuals ages 18-25 per community in 2015. Data owner Statistics Greenland Data year 2015 Basis for The number of NEETs is calculated based on the percentage of individuals calculation ages 18-25 per community.

Since there are 20 of these small communities where there is a lack of ob- servations, data is missing for these communities. For these communities the calculations are based on the average.

For one community, Ammassivik, there is no one in the 18-25 age group, giving it a rating of 5.

For one community, Kangerluk, one percent was taken as the average of the percents from the communities in the districts of Kangaatsiaq, Aasiaat and Qasigiannguit.

For the remaining 18 communities with a lack of data, the average was used based on the data for the district where they are located. Below is shown how the calculations were done with Qaqortoq district as an example.

From the “youth target group” spreadsheet from Statistics Greenland we have data from 2015 for Qaqortoq with 160 people, including Eqalugaarsuit, with seven people. At the same time, we see that there are a total of 174 people in the Qaqortoq district. This means that there are 7 people distributed throughout the remaining communities (Saarloq and Qassimiut) in districts where we lack data.

For Saarloq and Qassimiut the number of people in the 18-25 age group is 4 and 2, respectively. The average percentage that was used for the two communities was calculated as 100*(7/6)=116.7%, which was used for both communities.

The relevant calculation has been done for the remaining 16 communities.

Indexing K intervals NEETs in % Vulnera- No. of bility communities K > 1.5 >80 1 7 0.5 < K <= 1.5 61-80 2 17 -0.5 <= K <= 0.5 41-60 3 27 -1.0 <= K < -0.5 21-40 4 18 K < -1 <=20 5 4 Example Nanortalik comes in with 41.8% and has a vulnerability rating of 3.

114 The Necessity of Close Collaboration A7 Percentage of public sector jobs

Description Number of employees and average salary. Data source Statistics Greenland special calculation Data owner Statistics Greenland Data year 2015 Basis for The percentage of public sector jobs is calculated as the number of em- calculation ployees times wages for public sector employees in comparison to the corresponding amount for all employees and in percent. For four communities the calculations were done solely based on the number of employees, as there was no other data available. Indexing K intervals Percentage of Vulnera- No. of public sector jobs bility communities K <-0.5 >70.09 1 21 -0.5 < =K<0 59.21-70.09 2 18 0 <= K <= 1 48.33-59.21 3 22 1 < K <= 2 42.89-48.33 4 10 K > 2 <42.89 5 2 Example Communities with a very low percentage of public sector jobs (<39.10%) are rated as 1, while those with a very high % are rated as 5. Nanortalik comes in with 53%. This gives it a vulnerability rating of 3.

B1 Demographics

Description This calculation consists of 10 underlying calculations Data source Statistics Greenland Data owner Statistics Greenland Data year 2012-2017 Basis for The calculations are based on the demographic data in the database of calculation Statistics Greenland.

Each of the 10 underlying parameters was rated with either 1 or 0, meaning vulnerable or not vulnerable. The 10 subgroups were added up, values were between 0 and 10, and this was used to specify the overall vulnerability.

Each of the 10 underlying parameters is dealt with separately below. Indexing K intervals Vulnerability No. of communities 0<=K<=2 1 6 2=4 2 15 4=8 5 13 Example Nanortalik has a total score of 8. This gives it a vulnerability rating of 5.

The Necessity of Close Collaboration 115 B1.1 - B1.5 Age

Description This calculation consists of 5 underlying calculations that are based on age per community Data source Statistics Greenland This is the population as of January 1, 2017 per community, age group and other factors. The chart is called “BEDST4.” Data owner Statistics Greenland Data year 2017 Basis for Each of these 5 underlying parameters was rated with either 1 or 0, mean- calculation ing vulnerable or not vulnerable. B1.1: Ages 0-6 in % out of the population of a given community. If this is < 9.6%, it is rated 1, otherwise 0 B1.2: Ages 7-16 in % out of the population of a given community. If this is < 13.6%, it is rated 1, otherwise 0 B1.3: Ages 17-26 in % out of the population of a given community. If this is < 15.6%, it is rated 1, otherwise 0 B1.4: Ages 27-64 in % out of the population of a given community. If this is < 51.7%, it is rated 1, otherwise 0 B1.5: Ages 65+ in % out of the population of a given community. If this is < 7.8%, it is rated 1, otherwise 0 Indexing See above Example For Nanortalik we find the “demographics” for children ages 0-6 months is 118 compared to a total population of 1,244, which gives 9.5%. Since this is less than 9.6%, Nanortalik receives a score of 1 for this B1.1 parameter. The same method was used to calculate B1.2-B1.5. This gives Nanortalik 0, 1, 1, 1, respectively, and an aggregate sum of 4 for B1.1-B1.5.

B1.6 Women per 100 men

Description This calculation is based on the population per community according to sex Data source Statistics Greenland This is the population as of January 1, 2017 per community, age group and sex and the chart is called “BEDST4.” Data owner Statistics Greenland Data year 2017 Basis for The calculation is the number of women times 100 divided by the number calculation of men, as of January 1, 2017 for each community. Indexing If the calculation is < 89%, it is rated 1, otherwise 0 Example For Nanortalik the number is (100*355/426)= 85% women compared to men, which is less than 89% and receives a rating of 1.

116 The Necessity of Close Collaboration B1.7 Women in the workforce per 100 men

Description This calculation consists of 1 underlying calculation that is based on the population per community according to sex and age. Data source Statistics Greenland This is the population as of January 1, 2017 per community, age group and sex, and the chart is called “BEDST4.” Data owner Statistics Greenland Data year 2017 Basis for This is the same chart as B1.6, but age is limited to the interval of 18-64 calculation years Indexing If the calculation is < 85%, it is rated 1, otherwise 0 Example For Nanortalik we find 83 which is less than 85%, which explains why Nan- ortalik receives a rating of 1 for this parameter.

B1.8 Net mobility

Description This calculation consists of 1 underlying calculation that is based on the population per community over several years. Data source Statistics Greenland This is the population per community between January 1, 2012 and January 1, 2017. Furthermore, the calculation was based on Statistics Greenland’s data for live births from B1.10 and deaths from B1.9. Data owner Statistics Greenland Data year 2012-2017 Basis for Net mobility (5) = population (1) [year N] – (population (1) [year N-1] + calculation births (2) [year N-1] – deaths (3) [år N-1]). This shows the net number of people who have relocated to and from a community. 2012 2013 2014 2015 2016 2017 1: Population (1/1) 1,404 1,337 1,294 1,261 1,264 1,244 2: Births (31/12) 18 17 19 31 16 / 3: Deaths (31/12) 17 19 14 15 22 / 4: 1 + 2 – 3 (31/12) 1,405 1,335 1,299 1,277 1,258 / 5: Net mobility / -68 -41 -38 -13 -14 Average net mobility -34.8 in 2013-2017 Indexing If the net mobility is < 0%, it is rated 1, otherwise 0 Example As of January 1, 2012, the population of Nanortalik was 1,404, in 2012 there were 18 children born and 17 people died, which produces the number 1,405. The population as of January 1, 2013 was 1,337, which means that it dropped from 1,405 to 1,337 = 68 relocated/moved away, which produces a net mobility of -34.8 for Nanortalik. For Nanortalik the net mobility is less than 0, is why the rating remains 1.

The Necessity of Close Collaboration 117 B1.9 Death rate

Description This calculation consists of 1 underlying calculation that is based on the population's death rate. Data source Statistics Greenland This is the population's death rate per community, including the average population per community for the same year Data owner Statistics Greenland Data year 2012-2016 Basis for Since the numbers are very small, a calculation was done for five consec- calculation utive years, and then the average was calculated. This was done for both death rate and population. Afterwards, the death rate was calculated as a % of the population. Indexing If the death rate is >0.9, it is rated 1, otherwise 0 Example For Nanortalik there was an annual average of 17 people who died over a five-year period. The average population in Nanortalik was 1,301. This gives Nanortalik a death rate of 1.34, which is larger than 0.9, hence a rating of 1.

B1.10 Birth rates

Description This calculation consists of 1 underlying calculation that is based on the population's number of live births. Data source Statistics Greenland This is the population's birth rate per community, including the average population per community for the same year. Data owner Statistics Greenland Data year 2012-2016 Basis for Since the numbers are very small, a calculation was done for five con- calculation secutive years, and then the average was calculated. This was done for both birth rate and population. Afterwards, the birth rate was calculated as a % of the population. Indexing If this is < 1.3%, it is rated 1, otherwise 0 Example For 2012-2016 there was an annual average number of 20 births in Nan- ortalik. The average population in Nanortalik was 1,301. The birth rate for Nanortalik is calculated to 1.55 per year. Since Nanortalik has a birth rate of 1.55, which is greater than 1.3. it receives a rating of 0.

118 The Necessity of Close Collaboration B2 Dentists

Description Number of standard dentist job positions as of August 10, 2017 per community. Data source The Greenlandic health authority Data owner The Greenlandic health authority Data year 2017 Basis for Number of standard dentist job positions calculation Indexing K intervals Vulnerability No. of communities K >=3 1 3 2 < =K<3 2 2 1

B3 Social services

Description Total of housing benefits, child benefits, early retirement benefits, labor market payments and public assistance Data source Statistics Greenland special calculation Data owner Statistics Greenland Data year 2016 Basis for The total amount of funding for social services per community is divided by calculation the average population. Same calculation as described in B1.10 Indexing K intervals Social services Vulnera- No. of in DKK/capita bility communities k<-1 <1,601 1 14 -1 <= K <= -0.5 1,601-4,234 2 15 -0.5<=K <= 0.5 4,234-9,499 3 21 0.5< K <= 1 9,499-12,132 4 8 K>1 > 12,132 5 15 Example Nanortalik received social services amounting to DKK 14,529/capita, giving it a vulnerability rating of 5. This shows that Nanortalik provides an above-average amount of social services.

The Necessity of Close Collaboration 119 B4 Education

Description For each community people's highest level of education was rated according to the following categories: no schooling, grade school, upper secondary education and further education. Data source Statistics Greenland special calculation Data owner Statistics Greenland Data year 2015 Basis for The following calculation was used for each community: calculation (Number with no schooling + (2 * number with grade school) + (4 * number with upper secondary schooling) + (8 *number with further education))/total number. Indexing K intervals Level of education Vulnera- No. of bility communities k>2 >2.75 1 4 1

B5 Daycare centers

Description Number of standard spots in daycare centers per community Data source IKIIN Data owner IKIIN Data year 2017 Basis for Number of standard spots in daycare centers per community compared to calculation the total number of children between the ages of 0 and 6, in percent Indexing K intervals Vulnerability No. of communities K > 75 1 25 50< K <= 75 2 16 50< K <= 50 3 10 0

120 The Necessity of Close Collaboration B6 Healthcare services

Description Healthcare services Data source The report ”Service niveau i Grønland” prepared by Ludvig Enok Petersen for the Greenland Government Authorities, 2015, plus Statistics Greenland Data owner Greenland Government Authorities and Statistics Greenland Data year 2017 Basis for The population as of January 1, 2017 calculation Indexing Evaluation Population as of Vulnera- No. of January 1, 2017 bility communities Larger health clinics >1200 1 11 Smaller health clinics 501-1200 2 7 Health center 201-500 3 13 Pipaluk 50-200 4 30 Nothing <50 5 12 Example Nanortalik has a vulnerability rating of 1.

C1 Consumer goods services

Description Consumer goods services Data source The report ”Service niveau i Grønland” prepared by Ludvig Enok Petersen for the Greenland Government Authorities, 2015, plus Statistics Greenland Data owner Greenland Government Authorities and Statistics Greenland. Data year 2017 Basis for The population as of January 1, 2017 calculation Indexing Evaluation Population Rating Vulnerability No. of communities Commercial store >600 1 1 15 Settlement store 121-600 2 2 25 Service store 76-120 3 3 9 Convenience store 30-75 4 4 19 Depot <=29 5 5 5 Example Nanortalik has a vulnerability rating of 1.

The Necessity of Close Collaboration 121 C2 Educational services

Description Highest level of educational institution per community Data source IKIIN Data owner IKIIN Data year 2017 Basis for The various types of educational institutions have been given different calculation ratings. Indexing Institution Vulnerability No. of communities Further education 1 3 Upper secondary schools (GUX) & 2 4 vocational schools and training (EUX) Vocational prep schools 3 10 (Majoriaq) Lower secondary board- ing schools (efterskole) 4 1 and informal adult education (højskole) Grade school 5 55 Example Nanortalik has a vulnerability rating of 3 because it has Majoriaq.

C3 Unit price of electricity

Description Data on unit price of electricity per community in DKK/KWh Data source Nukissiorfiit’s website and Mittarfeqarfiit’s data for Kangerlussuaq, Narsarsuaq and Kulusuk Data owner Nukissiorfiit and Mittarfeqarfiit Data year 2016 Basis for Prices are grouped calculation Indexing DKK/KWh Vulnerability No. of communities <2.71 1 7 2.71-7.72 2 20 7.72-9.40 3 35 9.40-12.74 4 8 > 12.74 5 3 Example Nanortalik had electricity prices of DKK 3.66/KWh in 2016. This gives it a vulnerability rating of 2.

122 The Necessity of Close Collaboration C4 Unit price of water

Description Data on unit price of water per community in DKK/m3 Data source Nukissiorfiit’s website and Mittarfeqarfiit’s data for Kangerlussuaq, Narsarsuaq and Kulusuk Data owner Nukissiorfiit and Mittarfeqarfiit Data year 2016 Basis for Prices are grouped calculation Indexing DKK/m3 Vulnerability No. of communities <166 1 26 166-364 2 28 364-760 3 10 760-1,155 4 6 > 1,155 5 3 Example Nanortalik had water prices of DKK 66.64/m3 in 2016. This gives it a vulnerability rating of 1.

C5 Internet speed

Description The maximum speed for Internet data per community Data source Tele Greenland

Data owner Tele Greenland Data year 2017 Basis for Existing conditions are grouped calculation Indexing Category Vulnerability No. of communities Sea cable 1 5 Main repeater chain 2 11 Settlement repeater chain 3 34 Satellite including 4 20 repeater chain to satellite No connection 5 3 Example Nanortalik has a vulnerability rating of 2 because it is on the main repeater chain.

The Necessity of Close Collaboration 123 C6 Ports

Description Port infrastructure in each community Data source KNIAIN

Data owner KNIAIN Data year 2017 Basis for Existing conditions are grouped calculation Indexing Category Vulnerability No. of communities Community with 1 6 international freight Community that can receive 2 6 40-ft containers Community that can receive 3 4 20-ft containers Community that can be served 4 38 by settlement vessels Settlement where goods have 5 19 to be ferried to shore Example As a community with the possibility of receiving international freight, Nanortalik has a vulnerability rating of 1.

C7 Airports

Description Airport situation per community Data source KNIAIN and Mittarfeqarfiit.

Data owner KNIAIN and Mittarfeqarfiit. Data year 2017 Basis for Existing conditions are grouped calculation Indexing Category Vulnerability No. of communities Community with 1 2 international airport North Atlantic airport 2 3 Community with 3 7 regional airport Community with heliport 4 46 Nothing 5 15 Example As a community with a heliport, Nanortalik has a vulnerability rating of 4.

124 The Necessity of Close Collaboration Appendix 2

Calculation of the cohorts for the mobility study

Group Community Age Education Sex Number Sample Res- ponses 1 < 3,000 18-40 years: Up to and including Men 2,729 65 4 inhabitants 6,750 grade school 2 Women 2,251 65 15 18+: 4,980 73.8%) Total: 22,095 3 Higher than Men 851 62 9 18+: 16,317 grade school 4 Women 919 62 12 18+: 1,770 (26.2%) 5 >40 years: Up to and including Men 4,137 66 9 9,567 grade school 6 Women 3,316 65 7 40+: 7,453 (77.9%) 7 Higher than Men 1,154 63 13 grade school 8 960 62 12 40+: 2,114 (22.1%) 9 3,000–6,000 18-40 years: Up to and including Men 1,815 64 3 inhabitants 5,432 grade school 10 Women 1,599 64 7 18+: 3,414 (62.8%) Total: 16,165 11 Higher than Men 933 62 14 18+: 12,159 grade school 12 Women 1,085 63 12 18+: 2,018 (37.2%) 13 >40 years: Up to and including Men 2,402 65 6 6,727 grade school 14 Women 2,019 65 13 40+: 4,421 (65.7%) 15 Higher than Men 1,212 63 15 grade school 16 1,094 63 18 40+: 2,306 (34.3%) 17 >6,000 18-40 years: Up to and including Men 1,793 64 14 inhabitants 6,516 grade school 18 Women 1,370 64 15 18+: 3,163 (48.5%) Total: 17,600 19 Higher than Men 1,539 64 18 18+: 13,499 grade school 20 Women 1,814 64 20 18+: 3,353 (51.5%) 21 >40 years: Up to and including Men 1,955 65 9 6,983 grade school 22 Women 1,526 64 11 40+: 3,481 (49.8%) 23 Higher than Men 1,852 64 24 grade school 24 1,650 64 17 40+: 3,502 (50.2%) 41,975 1,532

25 First- 18-40 years: Up to and including Men 877 generation 5,531 grade school 26 Women 776 Greenlanders 18+: 1,653 (29.9%) in Denmark 27 Higher than Men 1,736 grade school 28 Total: ?? Women 2,142 18+: 3,878 (70.1%) 29 18+: 14,150 >40 years: Up to and including Men 574 8,619 grade school 30 Women 1,016 40+: 1,590 (18.4%) 31 Higher than Men 2,658 grade school 32 4,371 40+: 7,029 (81.6%) 14,150

The Necessity of Close Collaboration 125 126 The Necessity of Close Collaboration The Necessity of Close Collaboration 127 128 The Necessity of Close Collaboration