West Nordic municipal structure Challenges to local democracy, efficient service provision and adaptive capacity Report from a project supported by the Arctic Co-operation Programme 2012-2014 September 2014 Grétar Thór Eythórsson Erik Gløersen Vífill Karlsson University of Akureyri, Spatial Foresight GmbH, University of Akureyri Research Centre & West Iceland Regional Office ISBN 978-9935-437-26-6 Table of contents 1 Introduction .................................................................................................................................... 4 2 The municipal structure .................................................................................................................. 8 2.1 Municipal territorial structure reforms: Research and literature ........................................... 8 2.2 The Faroe Islands ................................................................................................................... 10 2.3 Greenland .............................................................................................................................. 14 2.4 Iceland ................................................................................................................................... 17 2.5 The West Nordic municipal structure in sum ........................................................................ 22 3 Local democracy ........................................................................................................................... 25 3.1 The Faroe Islands ................................................................................................................... 25 3.1.1 Current challenges to local democracy in the Faroe Islands ......................................... 25 3.2 Greenland .............................................................................................................................. 27 3.2.1 Current challenges to local democracy in Greenland ................................................... 27 3.3 Iceland ................................................................................................................................... 30 3.3.1 Current challenges to local democracy in Iceland ......................................................... 30 3.4 West Nordic local democracy in sum .................................................................................... 32 4 Service production and effectiveness of the municipalities ......................................................... 34 4.1 Research and literature ......................................................................................................... 34 4.2 Central and local government and cost efficiency ................................................................ 36 4.2.1 Government size ............................................................................................................ 36 4.2.2 Local government size ................................................................................................... 38 4.2.3 Cost efficiency of local government .............................................................................. 40 4.3 The wide range of variety in local public services and implications for potential efficiency 43 4.3.1 Iceland ........................................................................................................................... 44 4.3.2 Greenland ...................................................................................................................... 49 4.3.3 The Faroe Islands ........................................................................................................... 53 4.4 More uniform country comparison ....................................................................................... 55 4.4.1 The internal weight of municipal affairs........................................................................ 55 4.4.2 Efficiency ....................................................................................................................... 57 5 Local economic development and adaptation policies ................................................................ 61 5.1 The purpose and justification of local economic development policies ............................... 62 5.2 The role of competitiveness and export oriented activities in local development ............... 63 5.3 Entrepreneurship and innovation ......................................................................................... 67 5.4 Community led local development ....................................................................................... 69 5.4.1 General principles .......................................................................................................... 70 5.4.2 Implementation ............................................................................................................. 72 2 5.5 Status of local economic development policies in West Norden .......................................... 74 5.6 Perspectives for West Nordic local development policies .................................................... 76 6 Summary and future research ...................................................................................................... 81 6.1 Main findings ......................................................................................................................... 81 6.1.1 Municipal structure ....................................................................................................... 81 6.1.2 Local democracy ............................................................................................................ 81 6.1.3 Service production and effectiveness ........................................................................... 83 6.1.4 Local economic development........................................................................................ 83 6.2 Future research – The second phase of the project .............................................................. 85 7 References .................................................................................................................................... 87 Table of figures Figure 2-1. The municipal map of The Faroe Islands in 2012. ............................................................... 11 Figure 2-2. The municipal structure in Faroe Islands 1950 – 2012. ...................................................... 12 Figure 2-3. Municipalities in the Faroe Islands in different size categories 1950 - 2012. ..................... 14 Figure 2-4. The municipal map of Greenland after 2009. ..................................................................... 16 Figure 2-5. The main patterns in the municipal structure in Iceland 1910 – 2013. .............................. 17 Figure 2-6. Municipalities in Iceland in different size categories 1950 - 2013. ..................................... 19 Figure 2-7. Municipalities in Iceland in January 2013. .......................................................................... 22 Figure 2-8. Municipalities in the West Nordic countries in different size categories 2012. ................. 23 Figure 4-1. Public spending as a share of GDP in the three countries .................................................. 37 Figure 4-2. Public employment as a share of total employment in the three countries ...................... 38 Figure 4-3. Local government share in government purchases in 2010 ............................................... 39 Figure 4-4. The development of the municipalities’ purchases per capita ........................................... 41 Figure 4-5. The development of the municipalities’ total expenses per capita .................................... 42 Figure 4-6. Municipalities’ cost categories in Iceland and their share in total expenditure in 2010 .... 47 Figure 4-7. Cost efficiency in hygiene and social services in Iceland. ................................................... 48 Figure 4-8. Municipal affairs in Greenland and their share in total expenditure in 2010..................... 50 Figure 4-9. Cost efficiency in hygiene and social services in Greenland. .............................................. 51 Figure 4-10. Municipal affairs in the Faroe Islands and their share in total expenditure in 2009. ....... 53 Figure 4-11. Cost efficiency in hygiene and social services in the Faroe Islands. ................................. 54 Figure 4-12. Municipal affairs in the Faroe Islands and their share in total expenditure in 2010. ....... 56 Figure 4-13. Municipal affairs in Iceland and their share in total expenditure in 2010 ........................ 57 Figure 4-14. Municipal affairs in Iceland and the Faroe Islands. Expenditure per capita in 2010. ....... 58 Figure 4-15. Municipal affairs in Greenland and their expenditure per capita in 2010 ........................ 59 Figure 5-1. Traditional and flexible approach to public policies for territorial development ............ 78 Tables Table 2-1. Municipalities in Greenland 2012 and their population. ..................................................... 15 Table 2-2. Municipalities and their populations in the West Nordic countries in 2012. ...................... 23 Table 4-1. National sample statistics for 2010 ...................................................................................... 40 3 1 Introduction The geographical structure of people’s settlement in the West Nordic countries 1 is in itself a considerable challenge for the provision