Annual Work Plan 2013

KALAALLIT NUNAANNI NAMMINERSORLUTIK OQARTUSSAT
Annual Work Plan 2013

Government of Greenland
Ministry of Education, Church, Culture and Gender Equality October 2013
This report was prepared with financial assistance from the Commission of the European Communities. The views expressed are those of the consultant and do not necessarily represent any official view of the Commission or the Government of this country
Table of Content
List of Tables ................................................................................................................................................................ 5 List of Figures ............................................................................................................................................................... 7 List of Annexes ............................................................................................................................................................. 8 Abbreviations............................................................................................................................................................... 9 0 Executive Summary ......................................................................................................................................... 11 0.1 0.2 Introduction to the Annual Work Plan with Brief Readers Guide (Chapter 1) ..................................... 11 Introduction to the Greenland Education sector (Chapter 2) ........................................................................ 13 Demographic, geographical and linguistic aspects ............................................................................. 13 Political, Economic and Strategic Aspects .............................................................................................. 15 Horizontal strategies ....................................................................................................................................... 18 Advisory Bodies ................................................................................................................................................. 19 An Overview of the Education System ..................................................................................................... 20 Elementary School ............................................................................................................................................ 20 Continuation Schools ....................................................................................................................................... 21 Vocational Education and Training (VET) .............................................................................................. 22 High Schools ........................................................................................................................................................ 22
0.2.1 0.2.2 0.2.3 0.2.4 0.2.5 0.2.6 0.2.7 0.2.8 0.2.9
0.2.10 Higher Education .............................................................................................................................................. 23 0.2.11 Training Courses Offered by Piareersarfiit and Vocational Education and Training Schools 23 0.3 Status of the Greenland Education Programme Lessons Learned and Main Challenges in 2012
(Chapter 3) ........................................................................................................................................................................................... 24 0.3.1 0.3.2 0.3.3 0.3.4 0.3.5 0.4 Status of the Greenland Education Programme in General ............................................................. 24 The Elementary School ................................................................................................................................... 24 The Vocational Education and Training Schools ................................................................................. 24 High School .......................................................................................................................................................... 24 Oil- and Mineral Sector ................................................................................................................................... 25
Budgets, Activities and Targets for 2012 (Chapter 4)........................................................................................ 25 Total Budget of the Government of Greenland and the Budget of the Greenland Education
0.4.1
Programme ........................................................................................................................................................................... 25 0.4.2 Budget, Activities and Targets within the Focal Areas ...................................................................... 26
Introduction to the Annual Work plan with brief readers guide .................................................. 29 1.1 Annual Work Plan in relation to the Greenland Education Programme .................................................. 29 The Greenland Education Programme..................................................................................................... 31
1.1.1 1.2 2
Brief readers guide ............................................................................................................................................................. 35
Introduction to the Greenland Education sector .................................................................................. 37 2.1 Demographic, Geographical and Linguistic Aspects........................................................................................... 37 Demographic....................................................................................................................................................... 37 Geographic Mobility (Pull-Push Factors) ................................................................................................ 39 The Educational Level of the Population Incl. Linguistic Aspects ................................................ 42
2.1.1 2.1.2 2.1.3 2.2
Political, Economic and Strategic Aspects ............................................................................................................... 43 Political.................................................................................................................................................................. 44 Economic aspects .............................................................................................................................................. 50 Strategic Aspects ............................................................................................................................................... 53
2.2.1 2.2.2 2.2.3 2.3
Horizontal Strategies ........................................................................................................................................................ 57 The education strategy ................................................................................................................................... 58 The Strategy for Children and Young People ........................................................................................ 58 The Employment Plan ..................................................................................................................................... 59
2.3.1 2.3.2 2.3.3 2.4
Advisory Bodies .................................................................................................................................................................... 65 The Economic Council ..................................................................................................................................... 65 Tax and Welfare Commission ...................................................................................................................... 67
2.4.1 2.4.2 2.5 2.6
An Overview of the Education System ....................................................................................................................... 68 The Preschool ....................................................................................................................................................................... 72 Definition .............................................................................................................................................................. 72 Target Groups ..................................................................................................................................................... 72 Public authority ................................................................................................................................................. 72 Focal area ............................................................................................................................................................. 73 Capacity................................................................................................................................................................. 73
2.6.1 2.6.2 2.6.3 2.6.4 2.6.5 2.7
Elementary School .............................................................................................................................................................. 74 Definition .............................................................................................................................................................. 74 Target Groups ..................................................................................................................................................... 74 Public Authority................................................................................................................................................. 74 Focal Area............................................................................................................................................................. 75 Capacity................................................................................................................................................................. 75
2.7.1 2.7.2 2.7.3 2.7.4 2.7.5 2.8
Continuation Schools in Greenland ............................................................................................................................. 80
2.8.1 2.8.2 2.8.3 2.8.4 2.8.5 2.9
Definition .............................................................................................................................................................. 80 Target Group(s) ................................................................................................................................................. 81 Responsible Authority .................................................................................................................................... 81 Focal Area............................................................................................................................................................. 81 Capacity................................................................................................................................................................. 81
Vocational Education and Training ........................................................................................................................... 82 Definition .............................................................................................................................................................. 82 Target Groups ..................................................................................................................................................... 83 Responsible Authority .................................................................................................................................... 83 Focal Area............................................................................................................................................................. 83 Capacity................................................................................................................................................................. 83 High Schools ...................................................................................................................................................................... 93
2.9.1 2.9.2 2.9.3 2.9.4 2.9.5 2.10
2.10.1 Definition .............................................................................................................................................................. 93 2.10.2 Target Groups ..................................................................................................................................................... 94 2.10.3 Responsible Authority .................................................................................................................................... 94 2.10.4 Focal Areas........................................................................................................................................................... 94 2.10.5 Capacity................................................................................................................................................................. 94 2.11 Higher Education ............................................................................................................................................................ 99
2.11.1 Definition .............................................................................................................................................................. 99 2.11.2 Target Groups ..................................................................................................................................................... 99 2.11.3 Responsible Authority .................................................................................................................................... 99 2.11.4 Focal Areas........................................................................................................................................................... 99 2.11.5 Capacity...............................................................................................................................................................100 2.11.6 Academy Education........................................................................................................................................100 2.11.7 University Education (Bachelor and Masters Level)........................................................................101 2.11.8 University Education (Doctors Level) ...................................................................................................102 2.12 Training Courses Offered by Piareersarfiit and Vocational Education and Training Schools .105
2.12.1 Definition ............................................................................................................................................................105 2.12.2 Target Groups ...................................................................................................................................................105 2.12.3 Responsible Authority ..................................................................................................................................106 2.12.4 Focal Areas.........................................................................................................................................................106 2.12.5 Capacity...............................................................................................................................................................106 3 Status of the GREENLAND EDUCATION PROGRAMME; lessons learned and main challenges
in 2013 ....................................................................................................................................................................... 108
3.1 3.2 3.3 3.4 3.5
Status of the Greenland Education Programme in general...........................................................................108 The Elementary school....................................................................................................................................................110 School leavers outside the educational system....................................................................................................110 The Vocational Education and Training Schools (VET)..................................................................................110 The High Schools................................................................................................................................................................111 Reform of the high school ............................................................................................................................111
3.5.1 3.6 3.7 4
Oil and Mineral Sector ....................................................................................................................................................112 Resource utilisation ..........................................................................................................................................................112
Budgets, activities and targets for 2013 ................................................................................................ 114 4.1 Total budget of the Government of Greenland and the budget of the Greenland Education
Programme ........................................................................................................................................................................................114 4.2 Budgets, activities and targets within the focal areas .....................................................................................117 Focal area 1: Preparatory courses and programmes youth educational and training
4.2.1
programmes .......................................................................................................................................................................118 4.2.2 Focal area 2: Competence (skills training) courses, the Piareersarfiit and unskilled labour
in the work force...............................................................................................................................................................123 4.2.3 4.2.4 4.2.5 4.2.6 4.2.7 Focal area 3: Higher education and strategic sectors ......................................................................128 Focal area 4: Cross-cutting initiatives ....................................................................................................130 Focal area 5: Drop-out rates and completion ......................................................................................132 Focal area 6: Building and housing..........................................................................................................137 Focal area 7: Structural monitoring, development potential and perspectives. ..................139
LIST OF TABLES Table 1: Labour demand in raw material projects to be initiated in 2013-2018 .............................. 54 Table 2: Resources allocated to upgrading and retraining of adults (Finance Act) ........................ 64 Table 3: Educational status by mid-September 2010 for pupils from Danish continuation schools 81 Table 4: Indicator 5.1 Apprenticeships - Students by sector (numbers), 2012 ............................... 88 Table 5: Number of applicants to high school (2012), and numbers enrolled (2011) per municipality ..................................................................................................................................................... 95 Table 6: Indicators in the calculation of the variable tranche 2013 .............................................. 114 Table 7: Total budget and total education budget for the Government of Greenland 2013 ( m) . 115 Table 8: The Greenland Education Programme budget for the focal areas 2013 ( m) ............... 116 Table 9: Indicators in the calculation of the variable tranche 2013 .............................................. 118 Table 10: Applicants for Vocational Education and Training (indicator 3.1) ................................. 120 Table 11: Applicants for High School Education (indicator 3.2) ................................................... 120 Table 12: Number of students by type of education (indicator 4a.1) ............................................ 121 Table 13: Number of attending students by type of education, relative to the relevant population (indicator 4a.2) ............................................................................................................................ 122 Table 14: Students by type of education, indexed (2005 =100) (indicator 4a.3) .......................... 122 Table 15: Number of apprenticeships at Vocational Education and Training (indicator 5.1) ........ 123 Table 16: Attendance at skills and competence courses (indicator 4.b) ...................................... 125 Table 17: Drop-out at skills and competence courses (indicator 11.b)......................................... 126 Table 18: Enrolment into education after Piareersarfiit (indicator 12.b) ....................................... 127 Table 19: Enrolment into education after Piareersarfiit, relative to attendance (indicator 12.b) .... 127 Table 20: Applicants for Higher Education (indicator 3.3) ............................................................ 129 Table 21: Number of students in higher education, by type (indicator 4c.1)................................. 130 Table 22: Students in higher education, by type (2005=100) (indicator 4c.2) .............................. 130 Table 23: Expenditure on education as a percentage of total public expenditure (indicator 1.1) .. 132 Table 24: Expenditure on education (Million Euro) (indicator 1.2) ............................................... 132 Table 25: Expenditure on education, indexed (2005=100) (indicator 1.3) .................................... 132 Table 26: Number of graduates by type of education (indicator 9.1) ........................................... 134 Table 27: Graduates by type of education, indexed 2005=100 (indicator 9.2) ............................. 135 Table 28: Repeaters attending relative to total attendance in vocational education and training and high school education (indicator 10.2) ......................................................................................... 135 Table 29: Drop-out rate relative to total attendance by type of education (indicator 11a.2).......... 136 Table 30: Dormitory Capacity 2011 ............................................................................................. 138
Annual Work Plan 2013 5
Table 31: Dormitories and buildings ............................................................................................ 138 Table 32: Share of work force divided by ISCED level (total numbers)........................................ 142 Table 33: Share of work force divided by ISCED level (percentage) ........................................... 142 Table 34: Graduates obtaining a job (numbers), (Indicator 12.a1)............................................... 144 Table 35: Graduates obtaining a job (in Greenland, based on tax records) relative to total graduates, (Indicator 12.a2) ........................................................................................................ 144 Table 36: GDP (Indicator 14) ...................................................................................................... 145 Table 37: Total external grants by origin (Denmark and EU) (In Euro) ........................................ 146 Table 38: Total external grants in percentage of total public budget (indicator 15.2) ................... 146 Table 39: Total external grants by origin (Denmark and EU) 2005=100 (indicator 15.3).............. 146 Table 40: Employment by sectors, numbers (indicator 16.1) ....................................................... 147 Table 41: Life expectancy at birth (Indicator 17.1) ....................................................................... 150 Table 42: Birth rate- born per 1000 (indicator 17.2) ..................................................................... 151 Table 43: Number of children per household (indicator 17.3) ...................................................... 151 Table 44: Infant mortality, per 1,000 children born (indicator 17.4) .............................................. 151 Table 45: Rate of suicide, per 1,000 inhabitants (indicator 17.5) ................................................. 152 Table 46: Main diseases reported (Indicator 17.6) ...................................................................... 153
LIST OF FIGURES
Figure 1: Overview of the Greenland Education Programme ........................................................ 31 Figure 2: Indicators of the Greenland Education Programme ........................................................ 34 Figure 3: Distribution of the population by way of municipalities (1 January 2013) ........................ 38 Figure 4: Demographic developments 2012-2040 (index 2012=100) by age groups ..................... 39 Figure 5: Public expenditures on education as a percentage of GDP (2009) for Greenland and various countries ........................................................................................................................... 50 Figure 6: Public expenditure by types of education (2011) ............................................................ 52 Figure 7: The expected changes at the Greenlandic labour market: Change in number of positions compared to 2012 ......................................................................................................................... 62 Figure 8: Overview of the formal education system ....................................................................... 71 Figure 9: Overview of training courses .......................................................................................... 71 Figure 10: The school leavers choice of education (2011) ............................................................ 76 Figure 11: Drop-out rates (NEW definition!), Vocational Education Training Schools .................... 91 Figure 12: Drop-out rates (NEW definition!) at high schools .......................................................... 96 Figure 13: Drop-out rates (NEW defintion!) Higher University Education ................................... 103 Figure 14: Drop-out rates (NEW defintion!), Higher Profession Education................................. 104 Figure 15: Focal area 1 budget ( 8 m) divided into main categories .......................................... 119 Figure 16: Focal area 2 budget ( 7 m) divided into main categories .......................................... 123 Figure 17: Focal area 3 budget ( 12.7 m) divided into main categories ..................................... 128 Figure 18: Focal area 4 budget ( 14.9m) divided into main categories ...................................... 131 Figure 19: Focal area 5 budget ( 0.8 m) divided into main categories ....................................... 133 Figure 20: Focal area 6 budget ( 10.0 m) divided into main categories ..................................... 137 Figure 21 Focal area 7 budget ( 2.6 m) divided into main categories ........................................ 140
LIST OF ANNEXES
1. The yearly budget allocations and projections 2006-2014 in the overall education sector (Million Euros) 2. Focal areas expenditure 3. Terms of reference for GEP 4. Description of the 17 Agreed Indicators 5. Weight for the variable tranche 6. List of targets established for 2012 7. Interviews regarding the Greenland Education Programme - List of respondents
ABBREVIATIONS
ACERC Agency for Culture, Education, Research and the Church (merged with MoCERC from 1 January 2011) AEU AIR AMA AWP DTU EC EU EUR FA FSA GDP GEC GEP GoG GU HE HHX HTX ICT ISCED KANUKOKA LEB Mill MoCERC Recognised Vocational Education Annual Implementation Report Labour market courses (mainly for skilled workers) Annual Work Plan Denmarks Technical University European Commission European Union Euro Finance Act (the Budget) The Leaving Examination of the Elementary School 10th grade Gross Domestic Product Greenland Economic Council Greenland Education Programme Government of Greenland Gymnasiale Uddannelser (High School) Higher Education Commercial High School Technical High School Information and Communication Technology International Standard Classification of Education Association of Municipalities Life Expectancy at Birth Million Ministry of Culture, Education, Research and the Church, dissolved march 2011 MoER MoFA Ministry of Education and Research, from march 2011 Ministry of Family Affairs (formerly a part of Ministry of Family Affairs and Health) (dissolved march 2011) MoFCCGE MoF Ministry of Family, Culture, Church and Gender Equality, from march 2011 Ministry of Finance
MoH MoHIT MoILM PD PEFA Piareersarfiit PKU POEB PKU RDS SG VET
Ministry of Health Ministry of Housing, Infrastructure and Transport Ministry of Industry and Labour Market Pedagogical Diploma Public Expenditure and Financial Accountability Career guidance and counselling centres Competence development courses (mainly for unskilled workers) Political Economic Report (Politisk konomisk Beretning) Personal development courses Regional Development Strategy Statistics Greenland Vocational Education and Training
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EXECUTIVE SUMMARY
The Annual Work Plan (AWP) for 2013 follows almost the same structure as the work plan for 2012 with respect to chapters and sections. This report reflects information available as by end of December 2012, except for the data on results 2012, which were available at the time of writing and subsequently influenced the targets set for 2013. In March 2013 a new parliament and government was elected, with the consequence that the Education Strategy from 2012 is now under revision by the current Government. The revision has not yet been completed and is not reflected in this report.
0.1
Introduction to the Annual Work Plan with Brief Readers Guide (Chapter 1)
The Government of Greenland prepares the Annual Work Plan every year on the basis of the visions, strategies and intended results regarding the Greenland education and vocational training sector with specific reference to the Greenland Education Programme. An important part of the Annual Work Plan is to report the Greenland Education Programme funds allocated to different activities. Another important part is to set specific targets for the year in progress regarding various elements of the education sector, such as number of attendances, drop-out rates and the number of completions. The Annual Work Plan is submitted by Government of Greenland to the European Commission and is a condition for receiving the Fixed Tranche (80 %) of the annual EU sector budget support. The Annual Work Plan is also a tool for those responsible of Greenland Education Programme, i.e. the involved Ministries, the Executive Steering Committee, and the Planning Steering Committee for the Greenland Education Programme. It is furthermore a tool for communication between the Government of Greenland and the European Commission about actual plans, targets and indicators for monitoring the implementation of the Greenland Education Programme. The Greenland Education Programme plays an important part of the overall education policy in Greenland. The program has a clearly stated vision and a precise goal for achieving this vision. The vision is: To obtain a higher standard of living and quality of life through better education.
The goal for reaching the vision is: 2/3 of the work force should have academic qualifications or vocational skills by 2020. In 2012 a new education strategy was adopted. The education strategy builds on the
Greenland Educations Programme from 2005 and takes its point of departure in the results achieved by the programme. From this basis the education strategy sets the overall visions and goals of the Government of Greenland for the education sector in the period towards 2025. Revised goal (new education strategy of 2012): 70 % of a cohort (elementary school leavers) has obtained a qualifying education in 2025 The target groups in the first phase of the Greenland Education Programme (2006-12) were: 1. Elementary school leavers 2. Unskilled workers under 50 years of age who are either unemployed or in vulnerable branches of the market and/or for breadwinners. In addition to the above target groups the new education strategy of 2012 includes 3. Preschool children 4. Elementary school pupils including the large residual group of school leavers outside the education system which is of particular concern 5. Students in higher education e.g. university education The Greenland Education Programme is organised in seven focal areas: 1. Preparatory courses and programmes - youth educational and training programmes 2. Competency (skills training) courses 3. Higher education and strategic sectors 4. Cross-cutting initiatives 5. Drop-out rates and completion 6. Buildings and housing 7. Structural monitoring and development
These seven focal areas are divided into a variety of activities that receive funding from the Greenland Education Programme. The results achieved within the seven focal areas are measured and evaluated yearly by 17 statistical indicators. In relation to the preparation for the second phase of the Greenland Education Programme foreseen to be started from January 2014 the education strategy was developed by the former government in 2012. The strategy needs to be endorsed by the current government which was elected on 12 March 2013. However, as all parties agree education is a key to the sustainable development of the Greenlandic society the high political prioritisation of education is unlikely to change. Changes in the concrete direction of political initiatives may occur but there is general consensus about the support for the partnership agreement and the high priority given to education. Regarding the Annual Work Report for 2013 the goals were already agreed in 2005 as mid-term objectives for the Greenland Education Programme, and the planned activities were approved upon the endorsement of the Finance Act for 2013. The relationship between the baseline, the political aspirations and the resources allocated is a concern for some of the major stakeholders as well as the institutional capacity to implement the reforms within the predicted timelines is questioned. In particular the performance metrics needs to be reviewed in order to ensure the indicators are perceived relevant by the major stakeholders, valid data at disaggregated level are readily available, and the institutions monitored are receiving feedback on their performance in order to analyse reasons for under-performance to continuously improve their performance. Going forward the targets chosen should be based on solid information about the current state.
0.2
Introduction to the Greenland Education sector (Chapter 2)
0.2.1
Demographic, geographical and linguistic aspects
Description of available work force (supply side) and special Greenlandic conditions 0.2.1.1 Demographic Greenland is a so-called microstate with only 56,370 inhabitants as per 1. January 2013. The Majority of the population (85 %) is living in towns, while the remaining (15 %) live in the
13
settlements1. According to statistics approximately one third of the population has an education. Most people in the settlements are unskilled workers in the traditional sectors. A steady tendency towards an ageing population will put pressure on the public finances in the coming years as in the rest of the OECD countries. The population size of the age groups that will enter the education sector the next five years is decreasing by approximately 5 %. 0.2.1.2 Geographic mobility A significant trend that is apparent from the demographic forecasts is the movement of people from settlements to towns. This trend is primarily due to the fact that living conditions in the settlements generally are difficult and job opportunities scarce. Mobility of the work force (and students) is an important feature in order to close the gap between labour (and education) market demand and supply. The infrastructure in Greenland is limited as no roads are connecting the towns and settlements. Means of transportation are boats and aircrafts and since the distances are vast, transportation is costly. The special conditions in Greenland require many young people to leave the home at the age of 15 in order to get an education. The challenges are: To convince families education is a necessity and to ensure adequate accommodation and support from other adults and peers.
From 2013 Greenlandic students studying in Denmark will receive study grants from the Danish study grant system, except for students in youth education below the age of 20. Students who receive study grants from the Danish system will however still be eligible to receive supplementary study grants for books and home leave once a year from the Greenlandic study grant system in order to encourage young people to enter education and prevent drop-out.
With respect to distance work and e-learning the possibilities are limited due to expensive internet usage, IT-skills among teachers, lack of hardware equipment and IT support. However a separate working group preparing for the 2nd phase of the Greenland Education Programme has been established to identify barriers and solutions in relation to the
Statistics Greenland, Jan 2011
14
implementation of the Information and Communication Technology strategy (IKT, 2011) aiming at ensuring teachers have adequate competences and access to IT. 0.2.1.3 Linguistic aspects Greenland is a bi-lingual or tri-lingual society, with Greenlandic being the official language and Danish the second language with the latter particularly used in the larger towns and the Government of Greenland administration. Greenlandic and Danish are taught from the 1st grade, whereas English is taught from the fourth grade in elementary school. Linguistic and cultural skills are prerequisites for success in the education system and the modern labour market. At the same time the foundation of the education system should be the culture of each of the pupils. This idea as well as other ideas and initiatives are to prevent social and psychological problems from arising. establish a good life in the modern society. Especially children from the settlements are disadvantaged and need relatively more support to continue education, and Addressing the language problems has therefore been given a high political priority in recent years.
A general policy/law of language was put into force 1 July 2010. The purpose of the law is on the one hand to secure and strengthen the Greenlandic language while on the other hand to remove barriers for the use of other languages so that a multi-lingual society can pave the way for a sustainable and prosperous society.
0.2.2
Political, Economic and Strategic Aspects
0.2.2.1 Political Aspects Self-Government was implemented in Greenland on 21 June 2009. The Government of Greenland maintains the vision of a self-sustainable Greenland through education, growth industries and gradual repatriation of areas formerly undertaken by Denmark. Consequently the responsibility for oil and mineral resources was transferred to the Government of Greenland from 2010. The most important policies in relation to the education sector are: The reform of the daycare system, the elementary school reform (2003), the establishment of continuation schools in Greenland (2008), reform of the vocational education and training-schools (2011), the high school reform (2012), and the education strategy (2012).
15
The educational reforms are aiming at increasing the institutional capacity at all parts of the education sector to ensure that there is enough room to include a much larger part of the population in the education system, that the teachers are qualified to provide high quality education and that the students are living in a safe and healthy environment and are motivated and able to meet the requirements of their study and their future employers. In addition the financial sustainability of the educational sector must be secured by basing decisions on the principles of cost-effectiveness, since the block grant from Denmark is diminishing due to differences in economic development between Greenland and Denmark. In general the stakeholders assessment of the educational reforms with regards to policy relevance and credibility is very positive, and it is widely perceived that the elementary school needs to be strengthened. The stakeholders concerns are whether the resources available are sufficient to realise the high ambitions of the education reform agenda. In particular there seems to be a widespread consensus that strengthening the social area is necessary in order to improve the performance of the education system, as many students are suffering from severe social/psychological problems. 0.2.2.2 Economic Aspects Education is seen as a key to sustainable development and economic independence which is reflected in the relatively high resource allocation to this sector. Public expenditure on education as a percentage of Greenlands Gross Domestic Product (GDP) is 11 % (2010). This is higher than in other Nordic countries. The pattern of the population scattered around the scarcely populated country is becoming increasingly important in the political discussion of how the society will develop the coming years. 0.2.2.3 Strategic Aspects Besides the reforms of the education system, focus is on strategic sectors i.e. raw material and mineral exploitation and the welfare sector, where qualified labour is expected to be in shortage in the future. Most of local job creation in relation to the oil and mineral sectors is expected among the suppliers of associated services as these jobs require less specialised competences than the jobs in relation to the initial phases of exploration and exploitation.
16
There are great expectations attached to the so-called large scale projects, mainly related to the oil and mineral sector. However, the timing of when these upcoming industries will be established as well as when these industries will demand specific types of labour is not known with certainty. This uncertainty gives rise to specific challenges in the education sector as the education system must educate the various types of the labour in demand and at the right time. The risks are on one hand to educate people for positions for which there is no current demand and on the other hand to be unable to match the demands of the sector with the consequence of foregoing the opportunities for job creation. Currently, two large scale projects are considered to be implemented and these two projects are expected to generate a significant number of new jobs. In 2013 the preparatory work regarding the establishment of an aluminium smelting plant with its accompanying hydroelectric plants continued in cooperation with the private company Alcoa Inc. Initial study results have revealed that some aspects of the project related to provision of energy, construction and infrastructure require additional investigation. This is currently underway, with the government and Alcoa working together to assess the available options. Some of the options under consideration carry the potential to extend the time required to complete the project, but others offer potential for gains that would help reduce such an extension. The environmental, social and health impact assessment (EIA) process has been idled temporarily to allow for exact definition of the scope of the project. During its fall session in 2012, the parliament passed legislation that defines a framework for the development of potential large-scale projects in the country. The parliament also reconfirmed the governments mandate for conducting further studies of the aluminium project. Alcoa will continue to consult with the government to evaluate the impact of the framework legislation on the feasibility of the proposed project. If the Parliament endorses the plant and Alcoa decides to go ahead with the planning this project is expected to create 766 permanent jobs, 350-450 derived jobs and new apprenticeships. The aspect of employment should be part of the final agreement. Moreover London Mining has applied for an exploitation licence for the deposits of iron ore near Isua. The application is currently pending negotiations of an impact benefit assessment. The negotiations are currently on hold until a new government has been consolidated. In order to meet the educational requirements in the large scale projects the development of a total education programme for all short-term courses regarding research and production of oil products has been initiated at a conference held in December 2010. The participants were representing relevant education institutions and private companies. Subsequently
curricula have been developed for education in: oil/gas, languages, building and construction, iron and metal, shipping, food production and commercial. The first courses started in the first quarter of 2011. Two vocational education and training educations were established in the autumn of 2012: One as a trained miner and one as a heavy equipment contractor. 0.2.3 Horizontal strategies
During 2011 the Government of Greenland developed two strategies: The Regional Development Strategy and the Strategy for Children and Young People. In 2012 the 2025plan for economic growth and financial sustainability, and an employment plan was developed incorporating elements from the previous strategies regarding education policy and other related policy areas. 2025 (the 2025-plan). The common goal for the horizontal strategies is the realisation of the visions presented in The Strategy to Improve Welfare and Prosperity in
0.2.3.1 The 2025-plan2 Based on the external advice from the Welfare Commission and the Economic Council a long-term plan has been developed in collaboration with the key stakeholders to stimulate economic growth, ensure sustainability on public finances and secure welfare for the future generations. This strategy constitutes the overall framework of a whole package of structural reforms and the strategy replaces the former regional strategy and its sub-strategies. According to the plan the private sector should be driving the development, and the public sector should shrink and increase its efficiency. Massive investments in the education sector should ensure that all citizens have the opportunity to get an education and subsequently a job. Hence only a very small residual group outside the labour market would be eligible to public benefits. The plan is based on the core values of personal responsibility and solidarity and a healthy and educated population is considered key to sustainable economic development of an equitable society.
The 2025-plan is the vision for the Greenlandic society as presented by the current Government of Greenland.
The plan is thus subject to political approval after the consolidation of a new government. Annual Work Plan 2013 18
0.2.3.2 The Strategy for Children and Young People The strategy for children and young people was formulated during 2011. The strategy
focuses on early intervention to ensure every child a good childhood and thereby increase the probability of attainment of continuous education, which should lead to a good life as an adult. The strategy has a broad and horizontal perspective and includes themes related to education policy.
0.2.3.3 The Employment Strategy The new employment strategy is based on the recommendations from the Tax and Welfare Commission from March 2011. The strategy advocates the replacement of the former employment policy of hiring as many people as possible in order to secure integration into the labour market with a new welfare policy in which the economic viability of the companies is central. Consequently the Parliament has asked the National Employment Council that includes representatives from the labour market parties, the municipalities and the Government of Greenland to find common solutions ensuring that people on public benefits or low income jobs can be moved into employment in the better paid future-proof jobs in profitable business in order to sustain the welfare. Currently a significant part of the Greenlandic workforce does not meet the competence requirements of the employers and their geographical mobility is too low. Especially the unemployment rate for young people is alarming (15.8 % for 20-24 years old), and the highest unemployment rate for this group belongs to the age group of 18-19 years living in settlements3. In order to achieve the vision and goals of the education strategy it is crucial to move young people from unemployment into formal education. Hence a close coordination between the education strategy and employment strategy is necessary. 0.2.4 Advisory Bodies
2011 figures Statistics Greenland. 19
0.2.4.1 The Economic Council In its 2010 report the Greenland Economic Council (GEC) found indications of inadequate budget control in relation to the municipality based management of the elementary schools. The Greenland Economic Council also found that prospects for income earning are unevenly distributed across children from settlements and towns, children from settlements having the lowest income prospects. Moreover it was found that teachers resources have not been adjusted according to the drop in pupils in the recent years. In 2012 a new settlement between the municipalities organisation and the teachers association was reached meaning teachers are teaching two additional lessons per week compared to the previous settlement.4 With respect to the latter finding, politicians are determined to fight inequality in society.
0.2.4.2 The Tax and Welfare Commission The Tax and Welfare Commission of Greenland published a report in 2011 including an analysis of the education system. Particularly the elementary school system was highlighted as one of the key factors in raising the overall welfare of the society.
0.2.5
An Overview of the Education System
In order to attract the population into education a study grant system is established, and students are entitled to relatively cheap dormitory rooms. Students on the Greenlandic study grant system are better-off in terms of no income limits, whereas the Danish study grants are graduated in accordance with the parents and students income levels. The Day Care System A reform of the day-care system is in progress. The reform aims to ensure that children get a good and stable day-care founded in accordance with Greenlandic traditions. This initiative should be seen in connection with the reform of the elementary school, stimulating children from an early age to learn foreign languages while stressing the importance of a good childhood. 0.2.6 Elementary School
The elementary school is not part of the Greenland Education Programme supported by the European Commission and the elementary schools are under the jurisdiction of the municipalities. The Government of Greenland is however responsible for monitoring, advice and legal framework.
Source: Settlement regarding school teachers working hours (2012) 20
A reform of the elementary school (The Good School) was put into force in 2003. The purpose of The Good School is that the pupils get the opportunity to obtain the life skills and competences that is required in order to cope with an ever-changing world. It is also the purpose to strengthen the sense of responsibility and the cooperation between the teacher and the pupil and between home and school. Further the school should provide the pupils with the skills to live a harmonic and independent life. The reform was evaluated in 2010. The main findings of the evaluation were that children taught by teachers adhering to the principles of the reform performed better than those who have been taught by teachers who were not fully implementing the principles of the reform. An evaluation of the first 10 years cohort that has followed the principles of the reform in all grades is expected to start in 2013. Critics are questioning the pedagogical philosophy solely focussing at establishing general didactics instead of combining different pedagogical methods adapted for the local needs. Moreover the introduction of tests in the elementary school is being disputed. In particular an external evaluation of the elementary school is asked for by the teachers' organisation and the university. To the contrary the municipalities, and parent representatives supports the school reform, and would like to see more resources allocated for applied research carried out by the Department of Arctic Education. Some of the barriers for the implementation of the school reform have been: A longstanding conflict regarding the teachers working conditions, framework conditions not in place due to the conjunction of the structural reforms of the municipalities and the school reform, inadequate professional skills endowments among school managements to effectively implement the reforms.
0.2.7
Continuation Schools
Continuation schools constitute an integral part of the education system, as many young people will complement their elementary school with a stay in a continuation school in Denmark or Greenland. The continuation school offers an extra school year where pupils have the possibility to improve their examination results before applying to high schools, vocational education and training schools etc. Furthermore the schools allow the pupils to mature, gain independence and improve the language skills. In 2008 four temporary continuation schools were introduced in Greenland. Two new and now permanent continuation schools in Greenland are aimed primarily at pupils from outer districts and settlements. An important purpose is to secure that more of these pupils will proceed in an education and not become marginalised.
0.2.8
Vocational Education and Training (VET)
The vocational education and training schools constitute the biggest share of the education sector in Greenland and are offered at eleven schools scattered around Greenland.
The vocational education and training programmes are offered, as of February 2012, on the following schools:
The Technical College (Former Iron and Metal School) (Nuuk) Building- and Construction College (Sisimiut) Business Schools (Nuuk and Qaqortoq) The Food College INUILI (Narsaq) Skippers School (Paamiut) The School for Hunting and Fisheries (Uummannaq) The College of Social Education (Ilulissat) The Greenland School of Minerals and Petroleum (Sisimiut) The Design School (Sisimiut) The School for Health Educations (Nuuk) The Agricultural School (Qaqortoq)
A reform of the vocational education and training-schools was put into force by 1st January 2011 including performance based financing and board members representing the labour market. The experiences from the first years after implementation are very positive: Board members eagerly engage in proposing changes in the educations provided by the schools, act as ambassadors in relation to private employers and propose solutions to create more apprenticeships and develop curricula in responding to feedback from the employers. However, both lack of apprenticeships, insufficient school and dormitory buildings present major challenges in order to expand the entire system capacity further.
0.2.9
High Schools
High school education is offered at five schools in Greenland. In recent years more tracks has been added to existing schools in order to increase the capacity. However, both a lack of school buildings and of sufficient dormitory capacity presents major challenges to a further expansion of the capacity.
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From August 2012 a reform of the high school education system was implemented. The reform will ensure that the ways of teaching and the curricula focuses on the individual students background and environment, making the education more relevant for the students by offering a variety of new educational profiles and thereby intending to raise the number of completions. The new high school includes a six-month introductory course and extensive counselling during the introductory part in order to support students in making the right choice of educational profile. In addition adult support to students living in dormitories will be increased to prevent drop-out due to personal problems. The proposed changes are based on evidence collected from pilot projects and drop-out survey on high schools (2010). Since mid-2012 the new high school education has been offered at four schools and the education is replacing the former high school educations (GU (general high school), HHX (commercial high school) and HTX (technical high school))
0.2.10 Higher Education Almost all higher education is concentrated in Nuuk at Ilimmarfik (the campus area) which opened in 2008. The university Ilisimatusarfik at Ilimmarfik provides higher educations from academy level to Masters level. In addition some of the vocational education and training schools also provide higher education from academy to professional bachelor level. Education at doctoral level (PhD) is supplied either from the Ilisimatusarfik or in collaboration with foreign universities; the latter requires students to study abroad. The university can only supply PhDs within some areas.
0.2.11 Training Courses Offered by Piareersarfiit and Vocational Education and Training Schools In addition to the formal education system, the vocational education and training schools and the Piareersarfiit provide a number of training courses for skilled and unskilled employed workers (AMA) and for unskilled workers and employed and unemployed adults (PKU). Also, upgrading on various non-literary competencies is provided. Piareersarfiit was introduced in 2006 by the municipality as a mean to move unskilled workers (18+ years) from unemployment into education or work through counselling and competence development. In addition to attracting the target groups i.e. unemployed and unskilled workers, Piareersarfiit has become very popular also among the youth (16-18 years) outside the target group of Piareersarfiit.
0.3
Status of the Greenland Education Programme Lessons Learned and Main Challenges in 2013 (Chapter 3)
0.3.1
Status of the Greenland Education Programme in General The current challenge is to
So far the Greenland Education Programme has been successful in increasing attendance at vocational education and training (VET) and high schools. immediately after elementary school. Right now there are several constraints for further development: lack of dormitories, institutional buildings, apprenticeships, teacher qualifications and support from adults to students suffering from social and personal problems and social problems affecting children and adults. 0.3.2 The Elementary School reduce drop-out rates and increase the number of students that continue education
If the Greenland Education Programme is to succeed in increasing the rate of young people who enter education, special attention has to be directed towards language. An element could be to establish a support function for those students whose abilities in Danish are weak. Proficiency in Danish is important in the further stages of the education system as many teachers are Danish-speaking, not all curricula are available in Greenlandic and many types of education are not provided within Greenland. For some educations English proficiency can also be important as curricula for some educations are only available in English. 0.3.3 The Vocational Education and Training Schools
Initiatives will be taken to increase the number of apprenticeships, and also to establish more school apprenticeships. New board members representing the local industry are deeply involved in this process at the vocational education and training schools. The experiences with the new board members are generally very positive from both sides i.e. school management and board members representing labour market parties. 0.3.4 High School
Establishment of new student dormitories has been given high priority and new buildings were finished in 2012 and in the years to come more dormitories are planned. However, the expansion is slowed down by the demolishment of older dormitories which are not fit for habitation and need to be replaced by new buildings.
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Until recently only the students with good exams and/or language skills (mainly Danish and English) have been enrolled. However further progress in the Greenland Education Programme requires that also students with more limited language skills enrol and are able to successfully complete their studies. This vulnerable group of students are at higher risk of drop-out and requires a more supportive environment, as many are moving far from home and has no experience in taking care of themselves. Several initiatives addressing these challenges are an integral part of the new high school reform including introduction of tutor arrangements, various measures to support daily living, establishment of homework cafs etc. 0.3.5 Oil- and Mineral Sector On that
In 2011 an increased focus on educating individuals for work within the oil- and mineral sector was observed from both the government and the business sector. background the Ministry of Industry and Labour made extraordinary initiatives to keep track of the unemployed part of the workforce in order to respond faster to the changes in labour demand. Furthermore the Greenlandic School for Minerals and Petroleum attracted many students, during the first year, especially for English courses and courses relating to the oil and mineral sector. In 2012 the school established two new educations as part of the strategic focus on the area.
0.4
0.4.1
Budgets, Activities and Targets for 2012 (Chapter 4)

Total Budget of the Government of Greenland and the Budget of the Greenland Education Programme
If the education budget does not grow every year activities cannot be expanded as current expenditures relating to activities initiated in previous years are consuming a steadily increasing part of the total budget for the education sector. The budget therefore limits the scope and means to implement new initiatives. The total education budget for 2013 is 159.4 m, thus accounting for 18.2 % of the total budget of the Government of Greenland ( 877.4 m). The Greenland Education Programme (GEP) has been allocated a total of 56.1 m equal to 35 % out of the total education budget. Focal area 4, Cross-cutting Issues (study grants) has been allocated 14.9 m and this focal area constitutes the largest share (26.6 %) out of the GEP budget. For the focal areas 1 (youth education programmes), 2 (competence courses, unskilled workers), 3 (higher education and strategic sectors) and 6 (buildings and housing) the following budget shares have been allocated respectively from the Greenland Education Programme budget: 14.3 %,
25
12.5 %, 22.6 %, and 17.8 %. Finally, focal areas 5 (drop-out, completion) and focal area 7 (monitoring and development projects) have budget shares of 1.5 % and 4.6 %, respectively. 0.4.2 Budget, Activities and Targets within the Focal Areas
As the Greenland Education Programme is progressing current expenditures relating to ongoing activities are taking up an increasing share of the total budget. At the same time monitoring and evaluation of the initiatives and reforms of the previous years is being highly prioritised within the Ministry of Education and Research in order to assess the effectiveness of the initiatives. 2013 is also the year where the Greenland Education Programme II will be formulated. The process of preparing the programme was initiated in the autumn of 2012 and working groups including relevant parties from schools, institutions, ministries, labour market parties and other stakeholders have been established. The working groups were due to give their recommendations and assessments in March 2013. However, the work on the Greenland Education Programme II is currently suspended. When a new government is consolidated the future work on the programme will be decided upon. For these reasons not many new activities are planned for 2013 as focus will be put on follow-up, monitoring, adjustments of existing initiatives and development of the new programme. A special effort will also be made to reduce drop-out from all youth educations. Below an overview of on-going and planned activities being conducted within the scope of the Greenland Education Programme in 2013 can be found. 0.4.2.1 Focal Area 1: Preparatory Courses and Programmes - Youth Educational and Training Programmes The High School reform was implemented from August 2012. The effects of the reform will be followed closely from the Ministry of Education and Research A new education as arctic guide will be initiated at the commercial school in Qaqortoq An extensive effort for the 15-18 year olds will be initiated. The extra initiatives will include: o Stays at folk high schools in Denmark for students who are challenged by social factors and language difficulties o Creation of more apprenticeships through establishment of the physical capacity for more school apprenticeships. Capacity will be created by refurbishment of existing buildings or rental of appropriate buildings o Improvement of the counselling effort. This includes development of a more extensive counsellor education, more classes at the education for counsellors and increased counselling during educational transition periods in the smaller settlements
o Preparatory courses of a non-literary character: One additional boot-camp and four Timi Asimi courses. The effort is financed by additional resources made available by the Government of Greenland. 0.4.2.2 Focal Area 2: Competency (Skills Training) Courses, the Piareersarfiit and Unskilled Labour in the Work Force A new boot-camp for young people outside the education system will be organised. The boot-camp will be based on the positive experiences from the boot-camp conducted in 2012. 0.4.2.3 Focal Area 3: Higher Education and Strategic Sectors Three new associate professorships will be established at The University of Greenland One extra class will be established at the teacher training college.
0.4.2.4 Focal Area 4: Cross-cutting Initiatives A new law for the area of study grants took effect from 1st January 2012. Students that receive study grants from Denmark are allowed to receive a free travel between Denmark and Greenland every year. This new possibility should be seen as an intervention regarding reducing drop-out rates for students studying abroad. Some of the reasons that Greenlandic students choose to receive a Danish study grant rather than a Greenlandic study grant are the conditions in relation to study loans. From 1st January 2013 Greenlandic students studying in Denmark were transferred to the Danish study grant system with few exceptions. The effect of this law will be monitored throughout 2013. 0.4.2.5 Focal Area 5: Drop-out Rates and Completion A study on drop-outs and a student tracking system has been developed in 2012 within the budget of technical assistance from the European Commission. The student tracking system enables the Ministry of Education and Research to identify patterns in enrolment, completion and drop-out. The study on drop-outs provides a broader perspective on drop-outs and establishes an analytical division between drop-out and study change or temporary leave from the studies. In addition a database for children and youth is being established in order to facilitate analysis on elementary school leavers, who are not continuing their education. This group is a major concern of the Government of Greenland.
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0.4.2.6 Focal Area 6: Buildings and Housing In 2013 the expansion of the dormitory capacity continues, and it is expected that the capacity will be increased by 241 units in 2013 and 50 units in 2014. Expansion of the high school in Aasiaat will be put out to tender.
0.4.2.7 Focal Area 7: Structural Monitoring and Development Due to a new government the work on developing the Greenland Education Programme II is currently suspended. It is decided that the further process of the programme will continue at seminars in fall 2013 and the result will be presented at the spring assembly 2014. Work on the youth database will continue Effects of the 2012 high school reform and the new law on study grants will be closely monitored by the Ministry of Education and Research During 2013 the Ministry of Education and Research section for monitoring and analysis has been expanded with two new full time employees
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INTRODUCTION READERS GUIDE
TO
THE
ANNUAL
WORK
PLAN
WITH
BRIEF
1.1
Annual Work Plan in relation to the Greenland Education Programme
The Annual Work Plan is prepared by the Ministry of Education and Research within the Government of Greenland every year on the basis of the visions, strategies and intended results of the Greenlandic education and vocational training sector with specific reference to the performance measures set within Greenland Education Programme. In this years report the mid-term objectives which were established in the document Mid to Long-Term Objectives for the Greenland Education Programme (GEP) from 23rd of September 2009 will be included as a point of reference. The mid-term targets were to be reached at the end of the first phase of the Greenland education programme. If targets set for 2013 deviates from the mid-term targets set in 2009 an explanation will be given in the text. The Annual Work Plan is being prepared using all information available by the end of the year before (i.e. information available by the end of 2012 for Annual Work Plan 2013) of how the education sector and related policies are expected to develop in the year to come. However data that becomes available and deemed to be relevant during the drafting of the report in the first quarter of 2013 will be included in the Annual Work Plan. Information not incorporated in the Annual Work Plan will be included in Annual Implementation Report to be produced in the subsequent year (i.e. 2013 to be finalised in 2014). If the activities were not described in the Annual Work Plan these will be described as deviations from the original plan. Hence the Annual Work Plan will be forward looking whereas the Annual Implementation Report will be backward looking. With respect to the future direction of the education strategy it should be noted an election on the 12th of March 2013 has been held during the development of this report. Consequently strategies and policies with a forward-looking strategic and political focus described in Annual Work Plan 2013 are pending the endorsement of the new government. Since all parties agree that raising the educational level of the population is a necessity to ensure the future welfare of Greenland no major shift in the commitment to the reforms is anticipated. In accordance with democratic principles the work plan for 2013 will only include initiatives that are already decided upon by the parliament in the Finance Act 2013 and will not include strategic and political visions with a forward-looking focus.
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One important part of the Annual Work Plan is to report on how the Greenland Education Programmes funds will be allocated for different activities. Another important part is to set specific targets for the year in relation to the performance metrics agreed upon in the partnership agreement. As the mid-term targets for 2013, which were agreed upon in the document Mid to Long-Term Objectives for the Greenland Education Programme (GEP) from 23rd of September 2009, and the Finance Act for 2013, have already been approved by the Parliament no major changes are expected in 2013. For these reasons the execution of planned educational activities in 2013 falls within administrative capabilities of the current Government of Greenland. It has already been decided that extra revenue in 2013 will be assigned to the education system (dormitories). The concrete direction of the future education strategy and the Greenland Education Programme II is awaiting approval by the new government and will thus not be elaborated upon in the work plan as long as it has not been approved. The finalised Annual Work Plan is submitted by the Government of Greenland to the European Commission and is a condition for receiving the Fixed Tranche (80 %) of the annual European Commission sector budget support. For 2013 the final draft is scheduled for delivery to the European Commission by the end of June and the final approval is expected to take place in the beginning July 2013. A Greenland Education Programme team established within the Ministry of Education and Research is responsible for the drafting and submission of the Annual Work Plan as well as the Annual Implementation Report to the European Commission. In addition to the responsibility of reporting and cooperation with the European Commission services the team is also responsible for carrying out the administrative day-to-day functions as well as longer term planning of the Greenland Education Programme activities. The Annual Implementation Report evaluates the difference between the targets set in the Annual Work Plan for the relevant year with the results including spending in relation to budget. The approved Annual Implementation Report submitted to the European Commission is a precondition for receiving the Variable Tranche of a maximum of 20 % of the European Commission sector budget support. The precise percentage is established by comparing the targets with the actual results. Each target is given different weights in order to calculate a composite performance index coupled to the variable tranche disbursement mechanism. The technical details of the calculation method are presented in the Annual Implementation Report. The Annual Work Plan is a planning and evaluation tool for those responsible of the program, i.e. Ministry of Education and Research, the Executive Steering Committee and the Planning
Steering Committee for the Greenland Education Programme. It is furthermore a tool for communication between the Government of Greenland and the European Commission about actual plans, targets and indicators for monitoring the implementation of the Greenland Education Programme5. and autumn assemblies. Upon finalisation the Annual Work Plan and the Annual Implementation Report including executive summaries are published on the Government of Greenlands homepage. To ensure high visibility and transparency the Government of Greenland is promoting the Greenland Education Programme through television spots and articles in newspapers, by taking active part in the discussion of education policy in public life and the mass media, and by delivering information materials which in a pedagogical way highlight topics of general appeal and relevance for the general public. 1.1.1 The Greenland Education Programme However, as the reports are quite complex and contain much information, executive summaries are submitted to the parliament in relation to the spring
The overall structure of the Greenland Education Programme is illustrated in Figure 1. The Greenland Education Programme is organised as a monitoring system where the visions and goals of the programme are evaluated on the basis of quantitative indicators.
Figure 1: Overview of the Greenland Education Programme
See Annex 4, Terms of Reference for the Steering Committee for Sector Programme and the Greenland Education Programme. Annual Work Plan 2013 31
Vision: The aim is to achieve higher standards of living and improved quality of life through better education. The strategic background for Greenland Education Programme is based on the analysis of the education and labour market requirements for the future, prepared by the Greenland Home Rule Government in 2004, with the title; "Progress through Training, Education and Development of Competencies", which resulted in formulation of the Greenland Education Programme 2006-2020, adopted by Parliament in 2006. In support of the Government of Greenlands overall education reform programme, the European Commission through the Programming Document for the Sustainable Development of Greenland 2007-2013 (PDSD) has decided to support the Education Sector in Greenland, in the form of a Sector Policy Support Programme to be implemented through Sector Budget Support (Sector Reform Contract) amounting to a maximum of 25 million (in 2006 prices) per year for the period 2007-2013. Furthermore a new education strategy was presented by the incumbent government in 2012 including revised visions and goals.6 Main goal: To contribute to a higher standard of living and quality of life through development of better education, technical skills and knowledge with the strategic goal, that 2/3 of the workforce should have academic qualifications and/or sufficient vocational skills
6
http://naalakkersuisut.gl/da/Naalakkersuisut/Departementer/Uddannelse-Kirke-Kultur-og-
Ligestilling/Uddannelsesstrategi Annual Work Plan 2013 32
by 2020. Qualifications are to be measured by international standards using ISCED level 37 as indication of these qualifications. Target groups: The Greenland Education Programme is divided into two phases. During the first phase of the Greenland Education Programme (2006-2012) focus is on the target groups: Elementary school leavers. Unskilled workers under 50 years of age who are either unemployed or in endangered professions and/or for breadwinners. The year 2013 is seen as a transition year, since the Greenland Education Programme II is expected to start in 2014 after endorsement of the implementation plan for the Greenland Education Programme II by the Parliament in the spring assembly 2014. Focal areas: The Greenland Education Programme is organised in 7 focal areas listed in Figure 1. The activities within the seven focal areas are the means for achieving the results as intended and described in the strategic goals and the long-term visions. Some of the results expected will be influenced by factors not foreseeable or predictable at the time for implementing the Annual Work Plan 2013. Deviations from the planned results might occur due to impact of external or internal factors and in such cases steps will be taken to suggest adjustments in the planning process and to the performance of activities8. The 7 focal areas are divided into a variety of activities that receive funding from the Greenland Education Programme. The results achieved within the 7 focal areas are measured and evaluated yearly by 17 indicators. Indicators: To monitor and evaluate that the activities have the expected impact on the vision and the objectives, the Government of Greenland and the European Commission have agreed on a set of performance indicators. The indicators define what the education sector is supposed to deliver (input), and results from the activities (output, outcome and impact). Annex 4 and 5 contains a description of the indicators, including the extent to which they have an impact on the variable tranche. Annex 6 states the baseline and detailed results for the indicators.
7 8
In Greenland this is equivalent to a high school diploma or an education within the area of vocational Education and training. In accordance with the Financing Agreement between the European Commission and the Government of Greenland
33
Input indicators: Measure the financial resources provided and the administrative and regulatory measures taken (for example, resources allocated, resources used, measures taken, laws passed). Output indicators: Measure the immediate results of the resources used and measures taken. For example, schools built, teachers employed, nurses trained. The definition of output covers those goods and services "supplied", produced or "provided" by the public sector with the inputs. Outcome indicators: Measure the consequences of the goods and services delivered by the public (output) at the level of beneficiaries. elementary schools. services (output) by the beneficiaries (users). Impact indicators: Measure the consequences of for example an increased uptake at educational institutions (outcome) in terms of wider societal objectives (for example, literacy rates, health improvement). The definition covers the utility derived at the societal level encompassing broader objectives such as economic growth and income poverty reduction. In order to isolate the impact of the Greenland Education Programme from other activities influencing the impact, an assessment of both internal and external effects must be made in order to subtract the latter, and estimate the net impact of the Greenland Education Programme. Figure 2 gives an overview of the various indicators of the Greenland Education Programme grouped as input, output, and outcome or impact indicators.
Figure 2: Indicators of the Greenland Education Programme
For example, gross enrolment rates in
The definition covers the utility derived from the public good and
34
1.2
Brief readers guide
Chapter 2 provides the reader with an overview of the education sector and further provides an introduction to the magnitudes and proportions involved when monitoring and analysing the education sector in Greenland. It is of key importance to have the specific demographical and geographical aspects of Greenland in mind when looking at the education sector and these aspects are briefly being described in the beginning of the chapter. References to the political environment and related strategic aspects having influence on the Greenland Education Programme are also included in this chapter. Finally, a general description of the various parts of the education sector is presented. . The sources of the text describing the various policies are the official strategy and policy documents.
35
Chapter 3 provides a status analysis on the Greenland Education Programme development conducted as a self-assessment. The self-assessment briefly considers the progress and setbacks experienced during 2012, highlighting the factors that have had an impact. The self-assessment is based on future-related considerations and reflections, but relates to subjects and issues to be addressed in 2013. Chapter 4 provides the work plan for the Greenland Education Programme in 2013. The chapter presents the overall budget for the Government of Greenland and for the Greenland Education Programme. For each focal area a brief status is given, on-going activities in 2013 are listed, and planned (new) activities for 2013 are described. The indicators are presented as per focal area combining statistical data with 2013 targets set by Ministry of Education and Research. The source of the majority of the data for the indicators is Statistics Greenland, whereas the rest is mainly from sources within the Ministry of Education and Research. If nothing else is stated all data is collected at the same time, in this report 31.12.2012.
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2 2.1
INTRODUCTION TO THE GREENLAND EDUCATION SECTOR Demographic, Geographical and Linguistic Aspects
2.1.1
Demographic
2.1.1.1 Regional Distribution of the Population Population wise Greenland is comparable to microstates9 providing a specific challenge when monitoring population indicators by annual observations10. As per 1 January11 2013 56.370 inhabitants were living in Greenland. According to a recent population projection (2011-2040) the total population is expected to stabilise around a level of 56.000 inhabitants for the next 20 years. The largest part of the population, approx. 16,500 inhabitants is living in Nuuk, the capital of Greenland. Sisimiut and Ilulissat are also considered large towns with approx. 5,600, and 4,500 inhabitants respectively. The rest of the population is scattered around the coast, living in smaller towns and settlements. 48.151 inhabitants (85 %) live in the towns, while the remaining 8219 (15 %) live in the settlements.
However, contrary to most microstates Greenland has its population spread over a large land area thereby making Greenland a special case comparatively. 10 The challenge when analysing on annual variations in small population numbers is to judge whether the observed yearly variation is due to a random factor or whether observed changes are due to a beginning trend that can be attributed to some underlying causal processes. The small numbers also make it difficult to apply statistical methods as to estimate robust trends based on ex-post time series for making future extrapolations. 11 Statistics Greenland
37
Figure 3: Distribution of the population by way of municipalities (1 January 2013)
Source: Statistics Greenland
According to Statistics Greenland approximately one third of the population has an education comparable to ISCED level 3 or higher12 which is equivalent to a high school and vocational education and training-school exam. The level of education is unevenly distributed between towns and settlements i.e. most people in the settlements are unskilled workers in the traditional subsistence sectors. 2.1.1.2 Age Distribution Though total population size is expected to remain stable, a steady tendency towards an ageing population is apparent from the demographic forecasts carried out by Statistics Greenland13 i.e. the trend follows the demographic trends observed in almost all OECD-countries. This trend will put pressure on the public finances in the coming years and policy actions must be taken to secure sound public finances and fiscal sustainability in the medium and long run14.
ISCED is designed to serve as an instrument suitable for assembling, compiling and presenting comparable indicators and statistics of education both within individual countries and internationally. It presents standard concepts, definitions and classifications. ISCED covers all organized and sustained learning opportunities for children, youth and adults including those with special needs education, irrespective of the institution or entity providing them or the form in which they are delivered. For further information see: http://www.stat.gl/dialog/main.asp?lang=da&version=201001&link=UD&colcode=m&version=201001 13 See www.stat.gl for references and descriptions of these forecasts. 14 The challenges confronting the fiscal policy until 2040 is analysed in detail in chapter 3 of the first report of The Economic Council of Greenland that was published in November 2010. The report can be found (in Greenlandic and Danish only) on www.nanoq.gl
12
38
For the education sector the size of the year groups of persons between 15-29 years is of particular interest. As per 1 January 2012 there were 4.396 persons in the year group 15-19 years, 4.669 in the year group 20-24 years and 4.095 in the year group 25-29. The number of persons leaving elementary school each year is approximately 850. However, as the analysis shows in the above-mentioned report, in the coming five years the size of the population that enters various parts of the education sector is decreasing by approximately 5 %. A further drop is expected in the longer run, cf. Figure 4. The policy implications of the observed trends have been analysed by the Economic Council and a short summary of this analysis is presented in section 2.4.
Figure 4: Demographic developments 2012-2040 (index 2012=100) by age groups
2.1.2
Geographic Mobility (Pull-Push Factors)
A significant trend that is apparent from the demographic forecasts is the movement of people from settlements to towns. This trend is primarily due to the fact that living conditions in the settlements generally are difficult and job opportunities scarce. Moreover in relation to the structural reforms of the municipalities the levels of support to the poor has been levelled up to the standard of the wealthier larger cities which means the working poor former living in remote areas of the new larger municipalities are better-off by moving to Nuuk to live on social security. This tendency has aggravated the problem of scarcity of housing in the capital.
39
Mobility of the work force is an important feature in order to close the gap between labour market demand and supply. The regional development strategy described in section 2.3 includes subsidiary strategies addressing some of the challenges mentioned in this section. A survey15 investigating peoples willingness to move for a job has shown 67 % of the Greenlandic population are willing to move, and 25 % are willing to commute for a job. With respect to the emerging oil and mineral sector 21 % of the workforce in the villages is interested in these job opportunities. Particular the younger part of the workforce is interested in aluminium (23 %), whereas the age group of 26-40 years are the most interested in mining (19 %), followed by the age group of 15-25 years (18 %). In order to increase geographical mobility a so-called mobility (public) benefit is available to people who wants to move for a job, if the employer does not cover travel costs and/or provide accommodation. With regard to education policy the young people in the settlements will, however, still pose a serious problem in the coming years, especially within the elementary school. Although only 15 % of the pupils within the elementary schools live in the settlements it is of utmost importance to ensure that these pupils are given the same education opportunities as pupils from larger towns. In many cases it is necessary to make special efforts to convince pupils and parents especially from the small settlements that education is a necessity in a modern sustainable Greenland. This challenge is primarily related to the cultural characteristics and family patterns of the Greenlandic population. Special conditions and challenges in Greenland make it necessary to move away from home for many young people (students and/or apprentices) aged 15 in order to get an education. Currently only half of the school leavers are entering further education, cf. section 2.7.5. Some children from the settlements are even younger as they have to move to school homes by 8th grade (approximately at the age of 13 years). Hence the children and youth have to live on their own - far away from family and friends - at a relatively early stage of their lives. A major issue for the receiving institutions is therefore to train
15
The employment strategy (2012)
40
and support these youth in how to cope with this new life situation securing that the individuals continue their study and/or work in spite of inconveniences forced on them. Especially boys have often not been used to take responsibility for housekeeping tasks due to cultural reasons which makes the change more challenging for them. Another challenge is to ensure that there are dormitories and housing available for those who want to either study or work where this is possible. It is also important to ensure that new dormitories to be constructed have a sufficient supply of pedagogical resources and make sure that the young people are in contact with grown up people. In order to encourage young people to enter and get an education an advanced study grant system has been established which includes one free travel home per year (see section 2.5). Since so many students have to leave home in order to study or work, and since it is so important for the country to educate and train people for the future jobs in Greenland, establishing an attractive study grant system is seen a necessity to attract young people into education instead of unskilled jobs in the towns which has been the most attractive alternative for many school leavers in the past. Providing adequate housing is another prerequisite to attract and retain students in the education system, as housing is scarce. Infrastructure between towns and settlements in Greenland is hampered since there are no road connections between towns and settlements. Airplanes or ships carry all transportation within Greenland. Transportation is expensive and the weather occasionally hinders the traffic by sea as well as by air. In 2010 a Transport Commission was established to analyse the area and provide recommendations as cost-effective transportation is essential in relation to economic growth. Due to lacking data on transportation patterns the report has been significantly delayed and the scope of the report has been reduced. The report from the commission was published in January 2011.16 The transport sector contributes almost 1/7 of the value adding growth in the country. In addition spill-over effects to the rest of the economy underline the importance of a well-functioning infrastructure for the sustainable development of the society. Regrettably it has not been possible for the Transport Commission to include all the derived effects of infrastructure projects. However, the derived effects on the sector of tourism have been included in the analyses due to the strategic importance of this sector.
16
http://naalakkersuisut.gl/da/Publikationer?pn=7 (Transportkommissionens betnkning).
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The three main political questions to be analysed by the commission were:
Should the harbour in Nuuk be expanded? Should the airport in Southern part of Greenland be moved from Narsarsuaq to Qaqortoq? Should the main airport for overseas flights be moved from Kangerlussuaq to Nuuk or Keflavik at Iceland as a central hub for overseas flights to Greenland?
Furthermore the commission has analysed the cost-effectiveness of the airports, the organisation of airports and harbours and service contracts. As a result of this work the former government has proposed to expand the harbour in Nuuk, however the final decision is pending the approval of the new government. No decision has yet been taken regarding the airport in Qaqortoq or the airport for overseas flights. Internet access and IT in general is available at all Greenlandic education institutions, however the price for data transmission and the fact that in some areas transfer rates are low are limiting factors for a widespread distribution of distance work and e-learning. The submarine communications cable system Greenland Connect was put into operation on 23 March 2009. The system consists of two cables running from Milton in Canada to Nuuk in Greenland and from Landeyjarsandur in Iceland to Qaqortoq in Greenland. The cable contains two fibre pairs specified for 128*10 Gbit/s wavelength each. Initial lit capacity is 1*10 Gbit/s for each fibre pair. to other countries. Greenland Connect has lowered costs and improved speeds on use of Internet, however prices are still very high compared Furthermore there has so far only been one internet service provider in Greenland, however this is about to change in August as another provider is launching its service. An important problem that remains to be resolved is a massive lack of educated school teachers with IT skills. Teachers and pedagogical seminars need more understanding of the importance of having good IT skills and the perspectives of using IT in education. Also a general lack of hardware equipment and maintenance of local IT systems in the remote settlements provide challenges. There is a need of local IT persons with the necessary competences. 2.1.3 The Educational Level of the Population Incl. Linguistic Aspects
The linguistic situation is another important factor to take note of. Greenland is a bi-lingual or trilingual society, with Greenlandic being the official language and Danish very often used as a second language with the latter particularly used in the larger towns and the Government of
42
Greenland administration. English is taught from the fourth grade in elementary school, whereas Greenlandic and Danish is taught from the first grade. Linguistic and cultural skills are important prerequisites for individuals in order to have success in a continuous education system and to be adequately equipped for a modern labour market. This is reflected in the curriculum for elementary school. At the same time the foundation of the education system should be the culture of each of the pupils. This among others to preserve the social cohesion of the small society (i.e. collectivism). The linguistic skills differ considerably and are very much dependent on whether a person is being raised and lives in a larger town, where Danish is often used, or whether a person lives in a smaller town or a settlement where Greenlandic is spoken predominantly. Most of the educational material is in Danish and many teachers, especially within the high school education and higher education, are primarily Danish speaking which causes problems for many students. textbooks - in particular in elementary schools - are now issued in Greenlandic. A general policy of language was put into force 1 July 2010. The purpose of the law is to assure clear and formulated rules for the policy regarding language. The purpose of the law is on the one hand to secure and strengthen the Greenlandic language while at the same time remove barriers for the use of other languages so that a multi-lingual society can pave the way for a sustainable and prosperous society. An important part of the law is that all private enterprises with a total employment of 10 persons or more and all public institutions are to develop their own policy regarding language. Addressing the language problems has therefore been given a high political priority in recent years and more
2.2
Political, Economic and Strategic Aspects
The purpose of this section is to describe the labour markets requirements and identify skill gaps between the supply and demand for labour in relation to traditional and new strategic sectors. Moreover this section describes the economic conditions for the reforms, and the political sentiments.
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2.2.1
Political
In 2008 the Government of Greenland underwent large organisational changes, which was fully implemented by 2009; however a fundamental change took place when self-governance was implemented in Greenland on 21 June 2009. The implications of self-governance is among other things the opportunity to repatriate over 33 administrative functions undertaken by Denmark. By 1 January 2010 Greenland took over the responsibilities in mineral resources and the activities associated. At the same time as the self-rule was implemented, Greenland changed government, with the former opposition assuming office. This has however changed again with the election on 12 March 2013. The new government is based on political cooperation between the three political parties Siumut, Atassut and Partii Inuit who on 2 April 2013 presented a Coalition Agreement.17 All political parties agree education is a prerequisite to a sustainable Greenlandic society and therefore the commitment to education policy transcends party politics. The current education strategy is based on the foundations laid down in the first phase of the Greenland Education Programme, and the lessons learnt during implementation which has resulted in a more holistic approach to the educational reforms aspiring to take the education system to the next level towards achieving the vision of a self-sustainable Greenland through education, growth industries and gradual repatriation of areas formerly undertaken by Denmark. 2.2.1.1 Education Policies and Strategies According to the Greenlandic Education Programme the education system should be demand driven and cost effective, offering courses in strategic sectors and also provide education for those who only speak Greenlandic. As mentioned in the former section some of the most important skills are linguistic and cultural meaning the ability to communicate and interact with people from different cultural backgrounds. In addition vocational skills in the new strategic areas, i.e. oil and minerals and related sectors such as building and construction and service sector, are needed. There is also a lack of people with higher education to fill positions with public administration and larger companies. According to the former education policy the Greenlandic education sector should offer higher education at all levels from academy and profession-bachelors to masters and doctoral level. agreement with the European Commission.
Description of the three parties and their coalition agreement can be found on http://uk.nanoq.gl/Emner/Government/coalition_agreement.aspx
17
Currently an
evaluation of the higher education in Greenland is being carried out in relation to the partnership
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Although only 15 % of the pupils within the elementary schools in Greenland live in settlements it is of utmost importance for the politicians to ensure that these pupils are given the same education opportunities as pupils from larger towns. On the background that it is very expensive to offer welfare services and facilities to all the small settlements in the remote areas the issue of providing equal opportunities despite geography has become a topic discussed currently at the political level. Moreover, due to recruitment and retention problems it is connected with significant challenges, to ensure appropriate quality levels of these services which is also reflected in the migration patterns from settlements to towns where quality in service provision generally is found to be higher. The most important reforms in relation to the education sector are: The reform of the day-care system (2006), the elementary school reform (2003), the establishment of continuation schools in Greenland (2008), the reform of the vocational education and training-schools (2011), the high school reform (2012), the establishment of profession-bachelor programmes and the education strategy (2012) encompassing all the aforementioned areas including higher education and upgrading and retraining of the workforce. The educational reforms are aiming to increase the institutional capacity in all parts of the education sector to ensure there is enough room to include a much larger part of the population in the system, that the teachers are qualified to provide high quality education, and that the students are living in safe and healthy environments. The education systems should ensure that the students are motivated and able to meet the requirements of the study and their future employers. In addition the financial sustainability of the educational sector must be considered in relation to future planning since the block grant from Denmark is diminishing due to differences in economic development. The subsidiary goals for the different parts of the education system are described in chapter 2.5 providing an overview of the education system. In addition to this there are some specific areas which the former government aimed to strengthen: Management training Exam preparatory education in leisure time Improvement of the populations literacy skills Education of disabled students Education outside of Greenland
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A comprehensive description of the newly proposed educational reforms can be found on the official website of the Government of Greenland.18 With respect to policy relevance and credibility there is a broad support among the stakeholders19 to the first phase of the Greenland Education Programme and its ambitious goals. population. With respect of the overarching goal of creating a sustainable and inclusive economic development all the stakeholders agree that education is the most important mean to increase equity and reduce poverty. Moreover it is mentioned that education is reducing gender inequality, however, it seems that women are more capable of adapting to the education system, and hence men are at risk of falling behind. The initiatives in relation to high school and vocational education training schools seems to be successful in terms of increased attendance, but there is a general concern among the stakeholders and politicians for the large residual group of school leavers without the necessary qualifications or motivation to enrol into youth education, and the unskilled and unemployed adult workers. The better-off part of this group are approaching Piareersarfiit to attend preparatory courses and counselling, but the most vulnerable group without self- confidence needs bridgebuilding initiatives at a more basic level than Piareersarfiit before they will be prepared to enter an education or take a job. Such youths might need to attend one of the production schools to develop the necessary personal competencies in order to meet the requirements of future employers or educational institutions. On the other hand it is necessary to ensure action plans for the individual to prevent that youths are kept in unskilled work or unemployment. The employer organisation NUSUKA20 is concerned over the level of social benefits for unemployed (adults) being too high and thereby create disincentives to enter into education or to take a job. Several stakeholders mentioned that some children are not educated by their parents due to various social problems. Consequently the day care and elementary school needs to provide an Several respondents mentioned the positive impact on attitudes and behaviour towards education in the
18
http://naalakkersuisut.gl/da/Naalakkersuisut/Departementer/Uddannelse-Kirke-Kultur-ogSee interview list from 2nd and 3rd mission, 15-26 February and 12 to 23 April 2013 in annexes NUSUKA is mainly organizing smaller business enterprises in Greenland, and is the smaller of the two employers organizations in
Ligestilling/Uddannelsesstrategi
19 20
Greenland.
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extra effort for this group of children with special needs. According to a representative from one of the employers associations (GA21) employees with the right attitude (engagement, and responsibility) can always get a job, as the employers are willing to develop their technical skills as long as the motivation is there, as these workers are in scarce supply. It is necessary to change the attitude of the local workforce in order to ensure the needed quality for the new strategic sectors. According to one of the employers organisations in Greenland (NUSUKA) more needs to be done to increase the competences for adult workers, and the resources allocated for employed (labour market courses) and unskilled (competence development courses) workers should be pooled to optimise the effect. Moreover registration22 needs to be improved in order to follow the individuals and develop competency development plans. In particular the employers are worried about the adult workers in the settlements, who might not be able to attend courses in town. Consequently they propose more courses should be held at location. In addition they mentioned the physical capacity at educational institutions is insufficient meaning it is only possibly to organise large courses during the summer holidays. Moreover an upgrading of the labour market consultants in the municipalities is necessary to improve the assessments of readiness for the labour market and need for courses. Regarding the municipalities responsibility in relation to the elementary school leavers outside the education system, the resources in the municipalities are not sufficient to solve all the social problems, and several stakeholders said people should take responsibility for their own lives. According to the municipalities especially the Greenlandic speaking part of the population are disadvantaged in the education system, as there are too few options for people with weak language skills or dyslexia which is a widespread problem. For this reason more educations for Greenlandic speaking people should be established. agrees with this point of view. The employer organisation (NUSUKA) The municipalities prioritise to prevent these problems by
strengthening the day care system and the elementary school, and counselling during transition periods. Some stakeholders23 are concerned that society is taking away the responsibility from the parents, schooling should not be part of the day care (NUSUKA).
21
GA (Grnlands Arbejdsgiverforening) is the largest employers organization in Greenland which mainly organizes
larger business enterprises, the members of GA represents around 90 % of all business activities in Greenland.
22
23
IT-Reg
Concerns shared by NUSUKA and a parent representative in a school board, cf. focus group discussions held in
February and April 2013.
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One of the employers organisations (GA) addresses the principle of enforcing a common pedagogical methodology to all schools in relation to the reform of the elementary school, as teachers should be given the right to choose a method (didactics) adapted for the individual child and subject. To the contrary the municipalities argue the mid-term evaluation of the elementary school has shown schools applying these principles experienced better results. The pedagogic principles are based on evidence-based pedagogical research from Canada which has been adapted to the Greenlandic context. Although the most recent settlement between the teachers organisations and the municipalities has increased the hours taught per teacher the municipalities still lacks educated teachers, and non-educated teachers needs more guidance to facilitate the transition related to the reform agenda. According to several stakeholders it is necessary to increase the salary levels of the school teachers in order to attract more experienced and educated teachers. The municipalities have undergone a structural reform a few years ago and are now ready to take on new areas of responsibility. For example, the municipalities would like to have the full responsibility for the school buildings, as today they are only responsible for maintenance. Also the board members at vocational training schools want more responsibility and degrees of freedom in terms of self-governing institutions owning their own buildings. The responsibility split in relation to school buildings creates an economic incentive for municipalities to spend too little on maintenance as it is the responsibility of the government to rebuild elementary school buildings when they are in such a bad shape that it is no more economically sensible to renovate them. The municipality on the other hand asks for better framework conditions. The stakeholders agree that it is necessary to consider cost-effectiveness in relation to higher education, and therefore some students might have to study abroad. However it is necessary to provide some of the educations in Greenland in order to secure an adequate supply of academics. Additionally, representatives from Ilisimatusarfik are raising concerns that resources are not sufficient for the high ambitions of research based teaching at all educations, therefore they are trying to establish partnerships with foreign universities and attract external funding. Especially the education for social advisors in the municipalities needs to be strengthened. In order to reduce drop-out rates at higher education it is necessary to strengthen student counselling as many students have severe psychological or social problems. Furthermore the majority of university students are taking a break after high school, therefore they are referred to
48
the counsellors at Piareersarfiit for advise on choice of study, but these counsellors are not sufficiently qualified for providing advocacy on choice of higher education study. Generally, the stakeholders are very positive in relation to their involvement in the development of the education strategy as well as the planning of the second phase of the Greenland Education Programme. There seems to be a high level of trust between the government and the stakeholder organisations. However, Transparency Greenland has raised some concern that there is still room for involvement of the civil society. Even though it is widely conceived by the political parties that transparency has increased during recent years dialogue and real involvement of the citizens needs to be improved although it is difficult due to the special geographical conditions in Greenland making it very difficult for politicians to meet the people living in the remote towns and settlements. The employers organisations praised the new boards at the vocational education training schools, as their influence has increased significantly as becoming heads of the boards. However a critical voice was raised in relation to the former governments decision to move a vocational training school without hearing the board beforehand. There is a strong political willingness to invest in the education sector. This is reflected in the relatively high resource allocation to this sector in previous in years. Moreover, extraordinary income from mineral investigations of 19 million and 7 million in 2011 and 2012 respectively were invested in construction for the education sector. The municipalities have further allocated approximately 10 million in addition to the block grant to strengthen the elementary school. In relation to the physical framework for high schools, vocational education schools and higher education institutions the government has increased the allocation to maintenance with approximately 20 % at the outset of the Greenland Education Programme to protect the investments in buildings funded under this programme. Moreover the new school buildings and dormitories are constructed for the harsh climatic conditions whereas the majority of the old building-stock was originally constructed as temporary buildings from the 60s and 70 s for craftsmen coming to work on development programs in Greenland. The stakeholders agree that the goals are very ambitious, but some are unsure whether the goals are realistic within the timeframe of 2025 as the baseline information is incomplete. For example in order to assess the gap between the current educational level of the population and the long-term goal it is necessary to carry out competency assessments of all employees without a formal
49
education to get a complete overview, as the data on educational level of the population is deficient. 2.2.2 Economic aspects
2.2.2.1 Public Expenditures on Education Comparatively, the Greenlandic dedication to education stands out as a high-prioritized area when looking at the relative size of the total education budget. Public expenditure on education as percentage of Greenlands Gross Domestic Product (GDP) is 11 %. The relative higher share of GDP invested in educating is reflecting the point of departure for the Greenlandic Education Programme i.e. relatively low level of education in combination with very ambitious goals. Moreover the cost of delivering education to the population in a sparsely populated Arctic area is of course much higher than for most other countries. Compared to other micro-states that to a certain extent resemble Greenlands specific conditions, such as the Faeroe Islands and Iceland, Greenlands share on education relative to GDP is significantly higher, which first and foremost reflects the differences in the geographical space and distances between the populated areas. Due to the geographical differences Greenland does not share the infrastructural set-up found in the Faroe Islands and Iceland in terms of roads and other transportation infrastructure. Distances between population centres also vary significantly in Greenland and schools in remote areas of Greenland are often very small with only a very limited number of pupils with high age dispersion often among classes. To some extent these differences are therefore reflected in the educational levels of the populations in the three countries i.e. the relative share of the population with an educational level of ISCED 0-2 in 2010 was 35 % in Faroe Islands and 37 % in Iceland as compared to 65 % in Greenland.24
Figure 5: Public expenditures on education as a percentage of GDP (2009) for Greenland and various countries
24
Source: Nordic Statistical Yearbook 2011 and Statistics Greenland. Note: Population is 15-74 years in other Nordic countries as compared to 15-62 years for Greenlandic population.
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Source: Statistics Greenland, Hagstova (Faroe Islands), and Eurostat (other)
2.2.2.2 Cost-Effectiveness Besides the significant allocation of public funds the education policy and strategy are underlined by various reforms and some specific initiatives all aiming at making education more linked to the culture of the Greenlandic society. For example, courses for national garment making and use of local materials and fur have been established to preserve traditional sewing and cloth making techniques. When it comes to the elementary school, that forms the basis for all further education, the challenge is to ensure pupils can attend schooling in the area where they live. Consequently many rather small elementary schools are scattered all over the country. This poses at least two challenges in relation to cost-effectiveness of the educational institutions:
It is costly to establish and maintain small schools, and to teach only a few pupils It is difficult to recruit and retain qualified teachers to work and live in the settlements.
As mentioned in the previous section the pattern of the population scattered around the country is becoming increasingly important in the political discussion of how the society will develop in the coming years, especially the question of how to ensure sustainable living conditions for people in the settlements, cf. section 2.3. A strategy for the development of the regions of Greenland was
51
formulated and passed in Parliament in 2011. In addition cross-sectoral conclusions have been incorporated into future strategies. 2.2.2.3 Public Expenditure by type of education In Figure 6 total public expenditure on education is broken down into types of education. Elementary schools take up 45 % of the expenditures. Vocational education and training and high school education accounts for 28 %, reflecting that the Greenland Education Programme has special focus on these youth educations in phase 1.
Figure 6: Public expenditure by types of education (2011)
The budget of the education sector is drafted a year before implementation by the Ministry of Education and Research and is endorsed by the Greenland Education Programme Steering Committee before being passed to the parliament. The budget for the year to come is accompanied by budget projections for the subsequent three years. The budget for the Greenland Education Programme includes a reserve fund containing non-allocated resources, which can be allocated in accordance with emerging needs during the year. Especially rapid changes in the new strategic sectors require flexibility in funding. As an example additional resources were needed to meet the demand for courses targeted towards workers in the oil industry in 2012 (cf. section 2.2.1). Approximately 267,000 was set aside for to combat unemployment on the Finance Act.
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2.2.3
Strategic Aspects
In addition to the reforms of the education system mentioned above, the strategic focus of the education policy is on the sectors where qualified labour is needed presently and presumably in the future. These sectors include sectors, such as the education, health, social sector, construction, raw material and minerals exploitation. These sectors are expected to grow in the future and therefore employees possessing qualifications and skills in this area will be in high demand. In addition, though on a smaller scale, there is focus on education within non-literal qualifications, such as the making of the national garment. Currently this traditional handicraft is being taught at the folk high school for women in Sisimiut. Large scale projects in the oil and mineral sector will increase the demand for labour in the construction and operational phase. A report25 on the large scale projects (Naalakkersuisut, 2012) assesses the potential of the two most advanced projects, i.e. the iron mine project in Isua and the aluminium smelting plant project in Maniitsoq. If both projects are established at the same time, 4,700 jobs are expected to be established in the construction phase and 1,650 jobs in the operation phase. The demand for labour in the construction phase is huge within a very short timeframe, therefore foreign labour needs to be imported as the Greenlandic labour force is only 27,000 persons. A new legislation allowing foreign labour in the construction phase was endorsed by Parliament in December 2012. In order to secure local people are inserted in jobs during the operational phase it is necessary to increase the labour supply by releasing workers from other professions and including marginal groups. The skills of the local work force needs upgrading and social and employment policies need to support geographical mobility and inclusion of marginal groups to the labour market. A temporary solution is to import foreign labour to fill the open positions. 2.2.3.1 Oil and Mineral Sector There is a great expectation of upcoming industries within the oil and mineral sector. However, it is uncertain when these industries will be established and for this reason the timing of the labour supply requires flexible planning and close collaboration with the industry to ensure that resources are spend efficiently. This gives to rise to specific challenges for the education sector. The challenge is to educate the various types of the labour in demand and at the right time.
25
Report on the framework conditions for realisation of large scale projects in Greenland
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Already at this stage there has been a demand for competencies in jobs relating to the search for oil and gas made by the Scottish company Cairn Energy. Especially functions related to the harbour terminals, catering and shipping services, e.g. concerning staffing of support ships. Also, competencies in counselling of future job seekers in the area of oil and gas business will be needed.
Table 1: Labour demand in raw material projects to be initiated in 2013-2018
2013 Nalunaq (Crew Gold Canada Ltd.) Citronen Fjord (Ironbark) Isua (London Mining) Kringlerne (TANBREEZ Mining Greenland) Fiskensset (True North Gems Inc) Maarmorilik (Angel Mining) Kuannersuit (Greenland Minerals & Energy) White Mountain (Hudson Resources Inc) Total 90-92
2014
2015
2016 No further information available
2017
2018
90 (O)
n/a n/a
n/a (C) 2,200 (C)
n/a (C) 3,300 (C)
300 (O) 2,000 (C)
300 (O) 700 (O)
300 (O) 700 (O)
n/a
30-140 (C)
30-140 (C)
80-100 (O)
80-100 (O)
80-100 (O)
n/a
40-50 (C)
40-50 (O)
80 (O) No further information available
80 (O)
80 (O)
0-2 (C)
1,000 (C)
1,000 (C)
380 (O)
380 (O)
40-50 (C) 2,3102,440
40-50 (O) 4,6104,740
40-50 (O) 3,5003,530
40-50 (O) 1,6001,630
40-50 (O) 1,6001,630
Note: (C) indicates construction phase, (O) indicates operating phase Source: Bureau of Minerals and Petroleum 14. June 2012
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Since the exploration phase has only just taken place it is unlikely that off-shore employees will be needed up until five to ten years at the earliest when the production phase will start as it depends on successful explorations. The plan is to involve the municipalities in the further process at this later stage. 2.2.3.2 Large Scale Projects The preparatory work regarding the establishment of an aluminium smelting plant with its appurtenant hydroelectric plants will continue in 2013 in cooperation with the private company Alcoa Inc. All preparatory investigations have been concluded and the project is judged to be technically and environmentally feasible. Public opinion has been surveyed through the preparation phase period using opinion polls. However the original time schedule has been postponed, mainly due to the financial crisis and the delay of certain investigation activities, including technical and environmental investigations. Another factor adding to the uncertainty of the plans has been the findings of ancient settlements worth preserving during the archaeological investigations. These findings might influence the final decision to grant a license for Alcoa Inc. to establish the aforementioned plants in Maniitsoq. So far a number of issues still need to be settled before a final agreement can be reached, including taxation, labour and ownership. The issues in relation to the establishment of aluminium production near the town Maniitsoq have been on the agenda at the Parliament Autumn Assembly 2012. The parliament passed legislation that defines a framework for the development of potential large-scale projects in the country. The parliament also reconfirmed the governments mandate for conducting further studies of the aluminium project. In addition London Mining has applied for an exploitation licence for an iron ore mine in Isua situated 150 kilometres North-East from Nuuk. It is the anticipation that foreign labour will be employed for the construction phase. An Impact Benefit Assessment agreement is presently being negotiated. Even though planning of these projects have progressed and reached semi-mature states several factors remain to be resolved. In addition the establishment of a new government due to the parliament elections in March 2013 has meant a slight change in policy towards large scale projects.
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2.2.3.3 Greenland School of Minerals and Petroleum (Sisimiut) The development of a total education programme for all short term courses regarding research and production of oil products has been initiated at a conference held in December 2010 at the newly established Greenland School of Minerals and Petroleum in Sisimiut. Before the conference, an external consultant did a survey of the possible types of jobs including projections of the required competencies for the oil and mineral sector development. This process has been initiated in order to ensure that the relevant know-how and expertise in this new area will be available in the relevant educational institutions. The conference participants represented public and private sectors: The vocational education and training schools, NunaOil, Cairn Energy, Bureau of Minerals and Petroleum (under the Ministry of Industry and Labour), AMU-Vest (education centre West in Denmark) and the Ministry of Education and Research. The conference resulted in concrete plans for making education possible in all involved branches: Oil/gas, languages, building and construction, iron and metal, shipping, food production and commercial. The first courses started in the first quarter of 2011. In 2012 new educations as miner and heavy equipment contractor were instituted at the school. 2.2.3.4 Risk Management In order to optimize the benefits of mining projects to society in terms of jobs, Greenlandic subcontractors, skill enhancement, etc. the so-called Impact Benefit Assessment (IBA) agreements are being entered between the mining- or oil-company, the relevant municipality and the Government of Greenland26. An Impact Benefit Agreement (IBA)27 was made between Cairn Energy and the Government of Greenland that includes funding for the education of local work force for the years 2010 and 2011. In 2011 these funds amounted to 347.000 and were primarily used for English courses for Greenlanders. Since Cairn Energy has not had any activity in Greenland since 2011, no further funding for education of the local workforce has been made available by Cairn Energy in 2012 and no funding is expected in 2013. Negotiations about an impact benefit agreement are also going on between London Mining and Government of Greenland in relation to the Iron Mine exploitation project at Isua.
26 27
For additional information about IBA agreements, see the website of the Bureau of Minerals and Petroleum
See IBA agreement between Cairn Energy and Government of Greenland here at http://www.qaasuitsup.gl/~/media/Files/Erhverv/Olie-og-mineraler/IBA-aftaler/IBA-Cairn-2011.ashx
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An improvement of the educational level is essential to the solid foundation of a self-sustaining economy. Hence the basic educations must be improved to increase the number of elementary school leavers who possess the necessary skills and motivation to continue education. Likewise vocational education training must be improved to ensure the local workforce possesses the basic vocational skills required by employers. The risk of investing in basic education is low compared to investments in specialised skills for the new strategic sectors. Moreover the cost-effectiveness of supplying specialised educations in Greenland may be too low. labour e.g. the construction phase of the large scale projects. In general there is an increasing tendency of larger companies to engage in social development in the local community through partnership agreements with the government, the so called Corporate Social Responsibility (CSR) agreements. CSR Greenland organises this work, and the Greenland Employer Organisation (GA) is heavily involved. In September 2012 a seminar in order for the former government and CSR Greenland to discuss how best to work together and use the companies core competencies to the benefit of the sustainable development of the society. According to the Greenland Employer Association the employers intend to support the society and are willing to allocate resources to this end. The politicians are also supportive, but due to administrative weaknesses some initiatives from the employers have failed. For example 45 mentors have been trained by the employers, but it has not been possible to find a sufficient number of mentees to match these mentors. Examples like these have the potential consequence that employers loose interest in entering similar engagements, if the administration does not have the capacity to receive their offers according to the Greenland Employers Organisation (GA) and CSR Greenland. Consequently the need for specialised skills should be covered by sending Greenlandic students abroad or attracting foreign
2.3
Horizontal Strategies28
In 2010 the Government of Greenland launched the work on two strategies: The Regional Development Strategy and the Strategy for Children and Young people. The two strategies have a
28
During the preparation of this document the Government of Greenland called for elections on 12th March 2013. The
strategic and political visions presented in this section represent the policy of the former government and are therefore conditional on the policy of the new political leadership.
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broad, horizontal perspective including education policy related themes. These strategies were fully developed in 2011 and put forward for endorsement in the assembly autumn 2011. In 2012 the 2025-plan for growth and prosperity, and an employment plan was developed the former government. The horizontal strategies contain elements regarding education policy and other related policy areas which has been incorporated in the 2025-plan and the whole package of structural reforms. Hence formulation of the strategies has been based on input from the ministries working within these areas to ensure coordination with existing areas, programmes, plans and strategies. The numerous recommendations regarding education will be integrated into the future implementation plans of the Greenlandic Education Programme. There is a general focus on initiatives targeted towards the unemployed at national and regional levels. The strategies are part of a whole package of interrelated reforms which has been developed during 2012. The reform package is a result of the recommendations from independent advisory bodies i.e. the Welfare Commission and the Economic Council (see section 2.4). An example of an activity related to the educational sector is a job portal to make it easier for the unemployed to seek employment. In relation to the Strategy for Children and Young people the main focus is on securing young children a good childhood emphasising day-care, health care and substance abuse treatment for the mother and or family. 2.3.1 The education strategy
The education strategy is under revision due to the new government. It incorporates the educational goals set out in the regional strategies, and will be guiding the preparatory work for the second phase of the Greenland Education Programme which is expected to be presented at the spring assembly 2014.
2.3.2
The Strategy for Children and Young People
Living conditions for children and young people constituted a focal area for the former Government and are highlighted in the former coalition agreement. Several studies have pointed to the fact that many children and young people are subject to poor living conditions, not only regarding economic
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possibilities, but also other conditions are included. International research shows that a good and secure childhood lays the foundation for motivating young people to enter education, and successfully complete. In other words investments in the social and health sector are correlated with the outcome of investments in the education sector. Hence the strategy for children and young people constitutes an important element of the whole package of reforms supporting the development of a sustainable welfare society in Greenland. In 2010 an amount of 3.3 m (not part of the Greenland Education Programme budget) was allocated in the Finance Acts for the years 2010-2013 to strengthen the work for children and young people and to work on prioritized projects. In the spring of 2010 a steering group consisting of permanent secretaries (including the Ministry of Education and Research), was established to propose the vision and mission of the strategy. The parliament endorsed the strategy and its elements in June 2010. Since then a number of working groups have been established to deal with various aspects of the strategy. The Ministry of Education and Research is represented in the working group responsible for the development of the day care system. Hence coordination between the activities under the Greenland Education Programme concerning the day care reform and the overall strategy for children and young people is assured by the Ministry of Education and Researchs participation at the high level steering group as well as relevant working groups. The finalised strategy was endorsed by the parliament on the autumn assembly in 2011. A gradual implementation in accordance with the priorities of the Parliament will take place over the coming years. Main focus areas are early intervention during pregnancy, infant care, and substance abuse for the young mother/family and other related fields. In 2012 the Ministry of Education and Research formulated a Educational Strategy which was endorsed by the Parliament at the spring assembly. section 2.2.1.1. The Education Strategy is described in
2.3.3
The Employment Plan
The new employment plan is based on the recommendations from the Tax and Welfare Commission from March 2011 of replacing the former employment policy that aimed at hiring as many people as possible disregarding the economic viability of the companies. In the new welfare policy the economic viability of the companies is central. Consequently the Parliament has asked the National Employment Council including representatives for the labour markets parties, the municipalities and the Government to find common solutions ensuring people on public benefits or
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low income jobs can be moved into employment in better paid, future-proof jobs in profitable business in order to sustain the welfare. Act. In addition to the aforementioned challenge, there are structural challenges at the labour market which need to be addressed by the new employment strategy New initiatives should be ready for large scale implementation in the end of 2013, and funds have been set aside for this purpose on the Finance
The Greenlandic working force is neither meeting the competence requirements of the employers presently nor the future labour market meaning high unemployment while at the same time foreign labour is imported to Greenland29
Geographical mobility across regional and municipal boundaries is too low Open positions are not always publicly announced in Greenland.
Especially the unemployment rates of for the youth is alarming (15.8 % for 20-24 years old). Unemployment rates for men are higher for all age groups than for women. In order to achieve the vision and goals of the education strategy it is crucial to move young people from unemployment into formal education, hence a close coordination between the education and employment strategy is necessary. Approximately 90 % of the unemployed are unskilled workers, whereas the unskilled workers constitute 72 % of the Greenlandic workforce. Hence the risk of unemployment is higher for unskilled workers, than for workers with a qualifying education. The rest of the group consists primarily of educated people between jobs, and people with social or health problems. Seasonal unemployment among fishermen has increased by 37 % from 2009 to 2011 and many receive public benefits for five months or more during the year30. Also for this group formal education should be considered a possible road into permanent employment. Hence individual counselling should explore which initiatives are necessary to make the individual consider education in spite of familiar- and economic-obligations. Many lines of business demand mostly unskilled workers, but a significant part of the jobs in the building and construction sector and the public sector requires formal education.
29 30
413 working permits granted in 2011 to mostly unskilled workers (hotels and restaurants, construction, cleaning and housekeeping) from 174 to 239 according to the Employment Strategy, 2012
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Efficiency initiatives in the fishery sector and in government-owned companies are reducing the number of positions in these areas to secure competitiveness. unemployment when the quotas are reached each year. With respect to the future labour market it is expected to change due to changes in the society, especially the oil and mineral sector is expected to increase the labour demand significantly (cf. section 2.3.3). Consequently the Greenlandic workforce needs to acquire the necessary personal and technical skills in order to match the new job requirements, and they will probably have to move to obtain a job. The future changes on the labour market are illustrated in Figure 7. In addition the biological conditioned quotas are limiting the production in the fishery sector and leading to seasonal
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Figure 7: The expected changes at the Greenlandic labour market: Change in number of positions compared to 2012
Working Places
Potential other raw material projects Health, elderly care etc..
Tourism Initiated raw material projects and induced activity in trade, transport, and building sectors
Lost positions in fishery
Note: Projections made by Copenhagen Economics based on the following assumptions: Employment in the fishery sector decreases with 708 people from 2013-2017. Tourism and related jobs (total: 1000 people) increases with 5 % from 2013 to 2017. The employment in social and health institutions is increased by the number of people above 64 years (based on figures from Statistic Greenland). Raw material sector increases by 20 % of the number of people employed during the construction phase, and 50 % in the operating phase. The implied growth in the activity of the trade, transport and building sector is 5 % during the construction phase, and 2 % in the operating phase. Source: The Employment Strategy, 2012
It is cheaper for foreign companies to employ local people if they are stable and have the right competences. Regrettably this is not always the case meaning foreign labour is imported as a temporary solution. In order to ensure that foreign companies are willing to hire local labour it is necessary to invest in the development of the workforce. Often private companies are willing to cater for part of this investment, and many companies are also willing to provide job training for people who has been outside from the labour market for a couple of years. With respect to the new oil and mineral projects the government is determined to play an active part to ensure that the value of these projects has a positive impact on the society as a whole. The government is fully aware of the problems and challenges of the society will not automatically be solved by the raw material deposits. The former government saw the impact benefit agreements as one of the means to help solve these problems and challenges. Another important mean to achieve the vision of the employment strategy is individual counselling which is taking into consideration all the possible barriers to entry into the education system or labour market. For example substance abuse, personal debt, housing, childcare. Only around 50 % of the unemployed are ready for a job according to the municipalities assessment system.
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Regrettably, the resource constraints in the municipalities makes it difficult to provide individual counselling in order to ensure all citizens are included in the education system or the labour market. People living in settlements are of higher risk of unemployment31, and of not having access to individual counselling. Many businesses in the remote areas have been publicly subsidised, and when they close down many people in the settlements are caught in a poverty trap which makes it impossible to move due to debts to e.g. the housing company. In order to strengthen the individual counselling in the settlements a mobile task force of job consultants has been suggested in order to improve the assessment of the individuals readiness for the labour market, and develop an action plan. Regarding the cost-effectiveness of competence development courses the economic incentives in the system creates some intended as well as unintended effects. The positive side is unemployed people are attracted into education as the rates on social security schemes and unemployment benefits32 are lower than the reimbursements received by participants at competence development courses. From the perspective of the municipality referring unemployed people to competence development courses saves the municipality money, as the reimbursements to course participants are paid by the central government33 whereas the social security schemes and unemployment benefits are paid by the municipality. The negative side is some of the course participants are not motivated, and/or does not have an action plan to ensure the particular course is a mean to achieve a job. According to the experience of the vocational education training institutions the referrals from the municipalities are insufficient leading too many people being to competence development courses although they are not motivated, and/or have other problems which need to be solved first, e.g. substance abuse. Consequently the referral procedure should be evaluated to ensure resources are not wasted. With respect to the impact of the funds allocated for competence development courses another survey is being carried out at the moment, and the preliminary results indicates a positive effect of course participation on job insertion.
31 32
Some of villages have unemployment rates of 20 % and above (Jan 2012) 90 % of the minimum wage for unemployment benefits (DKK 2977,60 per week), 65 % of the minimum wage for social security
schemes, and DKK 3250 per week reimbursed to participants at competence courses in addition to coverage of travel and accommodation costs
33
financed by The Greenland Education Programme
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Table 2 provides an overview of the resources allocated for upgrading and retraining the adult labour force. Approximately one third of the resources are funded by the Greenland Education Programme, the rest is funded from other sources.34
Table 2: Resources allocated to upgrading and retraining of adults (Finance Act)
Mil. Piareersarfiit account 64.13.23 PKU account 64.01.04 AMA account 40.91.03 Revalidation account 64.13.21 RUS, regional development strategy account 64.01.05 * I alt
Note: There are no other accounts at the Finance Act aiming at * A partial sum of the RUS-resources are allocated for employment initiatives Source: Government of Greenland, Fiscal Act 2012.
B.P. 2013 4.77 3.28 3.91 1.87 1.33 15.16

employment
B.P. 2014 4.77 3.28 3.91 1.87 1.33 15.16

initiatives.
In addition to the public resources it is possible to finance upgrading and retraining of adults through contributions from the private sector. Examples of private provision of competency development are Impact Benefit Agreements, and through the provision of job consultants by large scale projects in the oil and mineral sector in order to ensure the employment of local labour. In order to assess the adjustments at the labour market it is necessary to distinguish between the micro- and the macro level. At the macro level it is necessary to transfer labour from the fishery sector into the large scale projects. At the micro level this means skilled workers are hired at the hydropower plant, and thereby leaving their previous positions open for unemployed fishermen who has been upgraded or retrained. For this process to work the fishermen (and his family) should be willing and able to move from the village to town for education and work. In order for this to happen personal debt may have to be solved, affordable housing, day-care, and job opportunity
34
Based on figures on account 20.11.61 in the Finance Act, 2013
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for the spouse should be available in town and so forth. As long as some of these conditions do not exist the transition period will be longer35. A significant change in the educational level of the work force will require changes in different levels of the educational system, but the changes will not be tangible until the younger generations have achieved a higher educational level, and obtained a job.
2.4
Advisory Bodies
In 2009 and 2010 the Government of Greenland established two advisory bodies. These bodies were mainly established to describe the economic situation in the short and long run and to give advice on the most appropriate economic policy to conduct. Both bodies have shown considerably interest in the education sector that is seen as the key factor in promoting a high and sustainable economic growth. The advice based on analysis received from these bodies, although not binding, has stimulated the debate on the education sector and influenced the education policy from 2011 and onwards. 2.4.1 The Economic Council
When self-rule governance was implemented the Government of Greenland decided to establish an independent Economic Council of Greenland (GEC)36. The members of the council are three Danish experts within economics and three Greenlandic economists with a broader knowledge of economics and social affairs. This new council replaces the former Advisory Council of Greenlands Economy that was headed by the Danish State Ministry. The councils first report was published in November 2010. It contained a specific chapter dealing with the education sector, especially the elementary school. The second report was published in 2011, and the third report was published in 2012. The first part of the chapter regarding the education sector37 dealt with allocation of financial resources allocated by the municipalities to the elementary school. The analysis takes as its starting point the fact that the number of pupils has been decreasing in the period 2000-2010, especially from 2008 to 2009 where the 11th grade was
35 36 37
The Economic Council This new council substitutes the former Economic Council of Greenland that had been in operation since 1979. The Economic Councils Report (Nov 2010), P 97
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abolished. However, the number of teachers has not gone down accordingly. This was seen as a problem of budget control at the local level. The GEC analysis has been met with critic, especially the school teachers labour union (IMAK) pointed out that the abolishment of 11th grade should not have an impact on the number of teachers since the total number of teaching hours a pupil receives during a period of ten years remains the same, as it is just a matter of intensification of the learning process. In 2012 a new settlement between the municipalities organisation and the teachers association was reached meaning teachers are teaching two additional hours per week compared to the previous settlement.38 The second part of the chapter deals with a comparison of pupils from towns and settlements respectively. A cohort of pupils born over the period 1971-1976 is being analysed. The analysis compares pupils from settlements and towns with regard to their income. The analysis shows that even if the pupils have attained the same education level, pupils from the settlements achieve a lower income. The difference in income is significant and amounts to 10-20 %. At least from a macroeconomic perspective this constitutes a major problem since the society as a whole accrues lesser tax revenues39. Living standards in Greenland has increased significantly over the past 50-60 years and converges to the levels of many other countries. Regrettable productivity increases have not grown at the same level, i.e. compared to Denmark the consumption possibilities per capita are 20 % lower, whereas the productivity is 40 % lower. Consequently productivity must increase to sustain a welfare society as the block grant from Denmark diminishes. Education is contributing to increase the productivity of the human factor. The labour supply of qualified workers must be expanded by increasing the numbers of young people attending a qualifying education, removing barriers for completing such as lacking apprenticeships and dormitories. Structural changes to ensure geographical mobility and adjustment of competencies to the employers requirements are necessary. In addition economic incentives must be corrected to attract more unemployed people into jobs.
38
39
Source: Settlement regarding school teachers working hours (2012) The analysis makes use of sophisticated regression analysis (Mincer regression models).
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In order to achieve the goals of the 2025-plan a range of initiatives have been taken to improve public finance management, and thereby ensure a stable and balanced development of the public finances. Some of the means are the introduction of expenditure caps, and criteria for prioritisation of public investments, increased investments in education and employment-stimulating initiatives to increase productivity, tax reform reducing income tax reducing public subsidies to housing, and changing tax exemption rules etc. Large scale projects could destabilise the economy and threaten the balance on public finances, and cause increases in wages and housing. Consequently it is necessary to control this development by slowing down construction activity in other parts of the economy i.e. a tight fiscal policy. In case of need for expansive fiscal policy it must be targeted towards structural reforms e.g. increased investments in education to reduce unemployment. In the longer perspective large scale projects are anticipated to benefit the society; however the benefits are not of a size making structural reforms redundant. 2.4.2 Tax and Welfare Commission The
In 2009 the Government of Greenland established a Tax and Welfare Commission. reflected in a high economic inequality40.
background for the Commission is the observed differences in income and wealth that are
The purpose of the Commission is to propose initiatives to raise the economic welfare of the inhabitants, especially among the poorer groups of the society. The former government appointed the members of the Commission41. The head of the Commission Torben M. Andersen was also head of the Danish Tax and Welfare Commission presenting their report to the Danish government in 2008. The Commissions primary tasks were originally to look into the tax system as well as the supplies of welfare services and benefits. However, it soon became clear that the Commission also had to deal with the education system, especially the elementary school, as education is seen as the key factor in raising the overall welfare of the society. The analysis of the education sector has been
Measured by way of the Gini- Coefficient Greenland has an equality of around 40%. The members of the Commission are: Torben M. Andersen (Professor in Economics at Aarhus University), Peder Andersen (Associate professor in Economics in Copenhagen), Nina Banerjee (former head of Greenlands Science Centre for Children and Youngsters), Peter Schultz (Head of Government of Greenland) and Magga Fencker (Head of Social Affairs, Qaasuitsup Kommunia). Ministry of Finance serves as secretary for the Commission.
41
40
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carried out with assistance from the Ministry of Education and Research, and many discussions have taken place between the Commission and the Ministry of Education and Research. The Commissions final report was published in March 2011. For the autumn assembly in 2011 a report on follow-up of the tax and welfare commission report was made with the deliberations made by the former Government on the various recommendations from the report. The former agreed with the recommendations in the report on the area of education. The former Government wanted to strengthen the elementary school, ease transitions within the educational system and start more initiatives to reduce drop-out. The new Education Strategy presented in 2012 formalises these visions at the strategic level. At the implementation level recommendations are also taken into consideration during the development of the Greenland Education Programme II. This process commenced in the autumn of 2012 and continues in 2013. Preliminary recommendations from the working groups are expected by March 2013 and the recommendations will be compiled and edited into a full education programme to be presented at the autumn assembly of the parliament in September 2013.
2.5
An Overview of the Education System
A comprehensive overview of the education system including a description of the current capacity and developments is given in the following sections (2.5-3.2) Greenlands formal educational system consists of: Elementary school Vocational Education and Training school High School Higher Education
In addition below institutions also provides education complementing the formal education system Pre-school Continuation school Piareersarfiit (counselling and preparatory courses for the continuous education and labour market) The formal education system resembles in many ways that of Denmark (and many other western countries) and is financed through general taxes like in the Nordic welfare states.
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Postgraduate, supplementary training and in-service training for adults etc. can be delivered at different levels and by different educational institutions not least by the vocational education and training schools. Almost all education is organized within the government sector and is free of charge. Until higher education all books and most materials are lend out and/or free of charge. There are two private elementary schools, located in Nuuk and Sisimiut. The vocational education and training schools and the university offer seminars on smaller scale that are based on fees. Although the Greenlandic education is still very much influenced by the former colonial power, there is an increasing awareness of the importance of the educations systems role in conserving the indigenous culture and creating a sustainable welfare society. Consequently the Danish textbooks are being replaced by Greenlandic textbooks, curriculums are adapted to Greenlandic conditions and a range of higher educations are today offered in Greenland in order to educate the students to work and live in Greenland rather than travelling abroad for continuous education as in the past After elementary education, all formal education is supported by a study grant given to all students in two levels: 1) under 18 years old and 2) over 18 years old. The vocational education and training apprentices normally receive pay from the employers/apprenticeship which is however subsidized by the government through the study grant system. Those subsidies are not differentiated by age. At vocational education training schools only students at social and health educations and school apprenticeship are entitled to receive study grants, as they do not receive a salary during their apprenticeship. The principles for student grants at preparatory courses are the same as for higher education, except for the access to study loans. Furthermore students are entitled to affordable housing i.e. dormitories.
The study grant system is very similar to the Danish system. The monthly rates are higher for students above 18 years (DKK 4,500), students below 18 years (DKK 2,100). Students below 18 years receive free meals and dormitory room, or a supplement covering the meal (DKK 1,500), students with children receives a supplement (DKK 1,000)42, and students at higher education are entitled to supplementary grants for books (DKK 200-1,1000 per semester). There are no income
42
Greenlandic Study Grant Legislation
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limits in the Greenlandic study grant system, whereas the Danish study grants are graduated in accordance with the parents and students income.
Study grants are granted according to the standard time limit of the study. For each study it is possible to obtain study grants for one year in addition, if necessary to complete the study. Since bachelor and masters degrees are considered two separate studies it means a student at higher education will be entitled to receive study grants for 82 months. Moreover students at higher education are entitled to interest-free study loans of maximum of 6000 DKK (800 ) per semester, and once during an education a loan of DKK 10,000 can be offered.
A recent reform of the Danish study grant system (April 2013) has increased the requirements to study activity in order to encourage the students to complete their studies faster and to save money, and lowered the grants for students living with their parents. Hence the gap between students on the Danish and the Greenlandic study grant will widen.
Until 1 January 2013 Greenlandic students studying in Denmark could choose between Greenlandic and Danish student grants as they are Danish citizens. In the future they will receive Danish student grants, this is expected to save the Greenlandic study grant system DKK 30.2 mil. , The Greenlandic students will be subject to the same study grant rules that apply to Danish students. Student travels are paid by the Government for the initial travel between a students hometown and the town of the educational institution both within and outside Greenland. In this connection a free annual return journey to the students hometown is also offered. In 2012 the overall cost of the study grant system was DKK 272 mil. The government employs many bachelor students who are still enrolled at a masters programme, and therefore entitled to receive full study grants and dormitory rooms, although they are working full time i.e. there is no income limit upon study grants or the right to cheap dormitories. Students are not automatically expelled from their studies after a certain period of study inactivity, and study grants are not terminated until one year of study inactivity. Moreover some students at higher education might delay the completion of their studies if they are not able to find affordable housing. This is an unintended negative effect of the favourable conditions for students especially in periods of recession and scarcity on affordable housing.
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The linkages between the different parts of the education system are illustrated in Figure 8 and Figure 9.
Figure 8: Overview of the formal education system
Figure 9: Overview of training courses
Educations not offered at Greenlandic education institutions can be attained in foreign countries with study grants from Greenland. Greenlanders have free access to education in the Nordic
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countries. It is however most common for Greenlanders studying abroad to study in Denmark. Around 620 students were studying abroad in 2012 (source: Ministry of Education and Research).
2.6
The Preschool 43
There is an increasing awareness that early interventions are less costly and more effective both from an individual and a societal perspective. Social and psychological problems can be Early intervention can eliminated or reduced at an early age, thereby securing all children a good childhood to facilitate learning and development of language, social and emotional skills. substance abuse and criminal activities. 2.6.1 Definition therefore mitigate some of the causes for dropping out of the education system later on, e.g.
The preschool covers all institutions44 offering pedagogical work targeted children in age from 0-6 years, or until the child enrols elementary school. Early childhood care refers to the age group from 0 to 2 years, and day care institutions refer to the age group from 3 to 6 years. Day care to children with special needs is also included. 2.6.2 Target Groups
Children in the preschool category have been included in the new education strategy as this category is acknowledged as an integral part of the education system preparing the child for elementary school. 2.6.3 Public authority
The provision of preschool services is the responsibility of the municipalities. However it is the responsibility of the government to provide stewardship in terms of: research and development, securing an adequate supply of qualified teachers, providing monitoring and evaluation tools, develop guidelines to the daily work, providing the regulatory framework and overseeing the preschool institutions performance are in compliance with the guidelines.
43 44
The education strategy (2012)

E.g. day care institutions, and family day care
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2.6.4
Focal area
Preschool is not related to a specific focal area in the first phase Greenland Education Programme, but has been included in the education strategy (2012) as research on education shows the foundation for a successful entry into education is laid in the early years of childhood45. Consequently the Good Day-Care Institution (Meeqqerivitsialak) reform is financed under the Greenland Education Programme. 2.6.5 Capacity
There are approximately 5,000 pupils below the age of 6 in Greenland, hereof 17 % living in the settlement and 83 % in the towns. 900 children are not attending preschool corresponding to 54 % and 23 % of the children in the settlements, and the towns respectively. The majority of the preschool institutions are public or self-governing institutions i.e. 3,500 of the children. The education strategy includes the subsidiary goals (stated below) for the preschool area in order to strengthen the transition to elementary school, and thereby improve the individual childs benefit from the rest of the education system which should be achieved by 2015:
National guarantee for access to pedagogical day-care Expansion of the physical framework Prioritisation of educated staff and upgrading of skills for the non-educated staff Mandatory screening46 of childrens health, development and readiness for elementary school
Attract more men into the pedagogue profession Development of alternative pedagogical day-care institutions for all children Systemic application of pedagogical principles and learning plans Pedagogical-psychological research to support implementation, monitoring and evaluation.
From 1 January 2013 a new regulatory framework supporting the reform of the day care system has come into effect.
45
46
See for instance Carneiro og Heckman (2003). Pedagogical screening at the age of 3 years, and a school readiness screening at the age of 5 years. Moreover the
latter test should detect social problems
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2.7
Elementary School
Although not being a part of the current Greenland Education Programme, the elementary school is the foundation for all further education. parts of the education system later on. 2.7.1 Definition It is therefore considered important to give an introduction to this sector to understand the problems and challenges that confront the various
Elementary School starts the year a child turns 6 years old. Before 2008 elementary education was compulsory up to 11th grade, now it is compulsory to the 10th grade. The school is divided into three stages: Primary school spans from year 1-3. Middle school spans from year 4-7. Secondary school spans from year 8-10.
The child leaves the elementary school at the average age of 16 years. 2.7.2 Target Groups
Although the Greenlandic Education Programme does not address elementary school, it does include elementary school education to those school leavers and unskilled workers, who failed to pass their elementary school examination, cf. section 2.7 and 3.2. 1. Elementary school leavers i.e. age group is between 16 and 18 years 2. Unskilled workers under 50 years of age who are either unemployed or in vulnerable branches of the market and/or for breadwinners 2.7.3 Public Authority
The provision of elementary schooling is the responsibility of the municipalities. However it is the responsibility of the government to provide stewardship in terms of: Research and development, securing an adequate supply of qualified pedagogues and preschool teachers, providing monitoring and evaluation tools, develop guidelines to the daily work, providing the regulatory framework and overseeing the schools performance are in compliance with the guidelines. In addition the government provides school buildings. Greenland Education Programme II. A working group is appointed to give recommendations on the area of elementary school in connection with the work on developing the
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2.7.4
Focal Area
Elementary school is not related to a specific focal area in the Greenland Education Programme, because it is not directly part of the Greenland Education Programme, however the elementary school leavers are the ones affected by activities under focal area 1 Preparatory Courses and Programmes - Youth Educational and Training Programmes. 2.7.5 Capacity
For the education year 2011/2012 and at national level a total of 7.939 pupils were attending 26 town schools and 56 settlement schools. Hereof 26 schools have less than 15 pupils per school, and 7 of these schools do not have an educated teacher. Approximately 85 % out of all pupils in Greenland live in towns. Elementary schools are spread all over the country, and can be found in the following 18 towns, which correspond to the number of municipalities prior the Municipal Structure Reform47, which came into effect as of 1 January 2009. Almost all of them with more than one school: Nanortalik, Qaqortoq, Tasiilaq. Elementary schools are public. At the moment there are two private schools in Greenland. One is situated in Nuuk, and is called Nuuk International Free School and opened in the school year 2006/07, one in Sisimiut that opened in 2008. In 2011/12 close to 1000 students left elementary school. Elementary schools are confronted with a number of problems these years. Figure 10 shows only 14 % school leavers were enrolled in a youth education directly from elementary school in 2011. Almost half (48 %) of the school leavers had to participate in different kinds of bridge-building activities after elementary school such as continuation schools or similar educations. At least 15 % are outside the labour market, 12 % are employed, and information is missing for 11 % of the school leavers Narsaq, Ivittuut, Paamiut, Nuuk, Maniitsoq, Sisimiut, Kangaatsiaq, Aasiaat, Qasigiannguit, Ilulissat, Qeqertarsuaq, Uummannaq, Upernavik, Qaanaaq, Ittoqqortoormiit and
47
Greenland had a municipal structure reform in 2009 where 18 municipalities were reorganized into 4 municipalities.
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Figure 10: The school leavers choice of education (2011)
Source: Ministry of Education and Research
Approximately half of the school leavers in the age group of 16-18 years with a school-leaving examination do not continue education after elementary school48, and 30 % of the group were attending education or completed education. It is estimated approximately 25 % leaves the Approximately 40 % are elementary school without an examination. Various analyses estimates only around 15 % of the elementary school leavers continues directly to youth education49. enrolled in continuation schools which is a relatively large number.50 The large residual group of 50 % of the school leavers outside the education system is considered a quality indicator of the elementary school, and is major concern as the risk of not getting a qualifying education increases the longer the school leaver stays outside the education system. Test results from the National Centre for Research into Education show that pupils from settlements when compared to pupils from towns - perform better in Greenlandic language, have equal performance in mathematics, but underperform significantly in Danish and English. Recent
48 49 50
According to Greenland Statistics, Jan 2011 The education strategy, 2012 (Ministry of Education and Research) The education strategy. 2012 (Ministry of Education and Research)
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studies carried out by the National Centre for Research into Education show that 39 % of a cohort from 2010 continues education within two years after finishing elementary school. A simple, but important, indicator of the resources devoted to the elementary school is the ratio of pupils per teacher. Overall the ratio is 6.8 pupils per teacher and 10.3 pupils per educated teacher. This is lower than compared with Denmark where the overall ratio is 11.2. There are however a great difference in the numbers for towns and settlements. In the towns the overall ratio between pupils and teachers is 7.2 and between pupils and educated teachers the ratio is 9.88. In the settlements the ratio between pupils and teachers is 5.3 and the ratio between pupils and educated teachers is 13. Approximately one third of the teachers are not educated teachers, and for the settlement schools it is 13 % of the children who attend schools that do not have an educated teacher51. The organisation and pedagogical framework of the school homes also differ. Consequently some pupils from the settlements do not receive adequate supervision from adults, and too many school leavers do not have the necessary qualifications or motivation to enter into a youth education (high school or vocational education training) after leaving elementary school. In order to address some of the problems mentioned above a school reform The Good School (Atuarfitsialak) was initiated in 200252. The reform was inspired by the principles from American universities (CREDE53). A basic element of this reform is that pupils and teachers are setting individual goals for learning. The reform also supports pedagogical principles putting the individual pupil in the centre of the education process. Finally, a system of national tests was put into force in 2006.
The good school reform has originally been designed54 by the Department of Arctic Education (Inerisaavik) which is an institution supplying continuous education to teachers, research and development and evaluation of the elementary school. The Department of Arctic Education used to be an autonomous institution with board representatives from the employer-side (the municipalities organisation) and employees (the teachers organisation). Today the Department of Arctic Education has been merged into the university, and some of the stakeholders feel they have too little influence on the activities of this institution.
51
52 53
Folkeskoledatabasen 2009-2012 numbers are from school year 2011/2012 Landstingsforordning nr. 8 af 21. maj 2002 om folkeskolen The Center for Research on Education, Diversity & Excellence (http://crede.berkeley.edu/)
54
Inspired by international research from Centre for Research on Education, Diversity & Excellence from University of
California, and adapted to the Greenlandic conditions
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In November 2010 a mid-term evaluation of the reform was carried out which confirmed the positive impact of the reform on quality of education.55 Statistical analysis points to the fact that the implementation of the principles of the reform is positively correlated with the test results attained at 3rd, 7th and 10th grade. Especially the two lowest levels in elementary school are much better now than similar year-groups were just a few years ago according to the Ministry of Education and Research. Furthermore it was demonstrated that the test results at 3rd, 7th and 10th grade have a great predictive value for the pupils success and attainments at later stages. These results are encouraging and in line with the goal of Greenland Education Programme to increase the percentage of elementary school-leavers attending continuous education. The experience from the Good School has been transferred into the high school reform. However, the evaluation also found that the principles of the Good School have mostly been implemented in larger (town) schools while smaller (settlement) schools have not implemented all of the reforms principles. Although all students are tested nationally, many schools do not use the test results as a tool for strengthening the education for the pupils. Consequently enforcement of the principles of the Good School at all schools has been a priority in 2011, and in 2012 a new education strategy was put forward by the government which aims at securing all school childrens right to education of a sufficient quality and increase cost-effectiveness in delivering education. A mean to this end is to strengthen the cooperation between the larger schools in the towns and their related settlement schools. Moreover there is an increased focus on languages within the education system, both in regards to how much the students learn at a given education/institution, but also on what level of and/or what language is needed to attend a particular education. With respect to school homes priority will be given to ensure that school homes will be operating with more uniform rules and supervision guidelines.
Critics are questioning the pedagogical philosophy solely focussing at establishing general didactics instead of combining different pedagogical methods adapted for the local needs, especially didactics adapted for the specific subjects are missing, and competency development in order to handle an increasing number of children with special needs. Moreover the introduction of tests in the elementary school is being disputed, as the intention was to provide the teachers with a tool facilitating teaching adjusted to the individual childs needs. Regrettably, the teachers organisation has a negative perception of these tests since it is seen as a measure of control.
55
The evaluation was organized by: Institute for Learning Processes, see results on www.Inerisaavik.gl (only in Greenlandic and Danish)
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In particular an external evaluation of the elementary school is asked for as some of the major stakeholders (the university and the teachers organisation) are disputing the effectiveness of the reform of the elementary school. To the contrary the municipalities support the school reform, and praise the good collaboration with the Department of Arctic Education (Inerisaavik) and the government regarding the development of the good school. The municipalities would like to see more resources allocated for applied research carried out by the Department of Arctic Education, as they indicate the department has better grasp of what is going on in the elementary school than the teachers college. This viewpoint is supported by representatives from the school management and the parents organisations. Apparently young (non-educated) teachers are embracing the pedagogical principles in the reform whereas more experienced teachers are reluctant and wish to maintain their freedom to choose methods. Furthermore the relationship between the government, the municipalities and the teachers organisation seems to be damaged by a longstanding conflict regarding the working conditions for teachers which hampers implementation of the reform. Furthermore the conjunction of the structural reform of the municipalities and the school reform also seems to have hampered implementation of the good school reform due to severe financial constraints in the municipalities. Other barriers to implementation mentioned by the stakeholders were the absence of local school policies to provide direction on how to prioritise scarce resources and lacking competencies among school management to handle the increased complexity of their areas of responsibility (professional leadership and administration). It was suggested to strengthen school management by providing administrative support.
The education strategy (2012) includes subsidiary goals (presented below) for the elementary school aiming to improve the readiness to continue directly from elementary school to youth educations including the development of language skills in Greenlandic, Danish and English.
The functioning of school managements should be strengthened The organisation of elementary schools at both governmental and municipality level should be analysed and improved
The usage of yearly tests including language and math should be extended and used as an active tool to evaluate the individual pupils performance
Tests and evaluations of the individual pupil should be actively used by the school in the learning situation and a special focus on male pupils is needed.
Language teaching should be strengthened (Greenlandic, Danish and English)
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The teaching in schools should be evaluated and accredited School homes should meet the pedagogical goals Counselling, apprenticeships and career planning should be in focus during the last school year in order to ensure no school leaver does not have an action plan
IT application should be an integral part of the teaching More educated teachers are required Decrease the relative share of the residual group56 from 50 % to 5 % in 2025.
From the 1st of January 2013 a new regulatory framework supporting the reform of the elementary school will become effective.
2.8
Continuation Schools in Greenland
2.8.1
Definition
The continuation school should be seen as an extra school year where the pupils have the possibility of improving their examination results before applying for high schools, vocational education and training schools etc. The model has been imported from the Danish school system where continuation schools have been a part of the educational framework for more than 150 years. The continuation school is characterized as a school where pupils eat, live and go to. It is usual that 2-4 pupils live in the same room at the schools and responsibilities like cleaning and kitchen assistance are part of the common daily life at the schools. The philosophy behind the students living at the school is that the pupils get to know each other and the teachers better, when the time spent at school is not only limited to school hours. Continuation schools are not admitting pupils from the town they are situated in since the whole idea of the formation process is that the young people should leave their home environment and see themselves as moved out of home. The self-confidence obtained in the schools aims at achieving a calm and stable environment for development and deeper knowledge of the pupils. Learning at the continuation schools is divided into mandatory courses and optional courses. Mandatory courses are Greenlandic, Danish, English and mathematics where the aim is in the end
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School leavers (15-18 years) outside the education system
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of the school year to attain the elementary school diploma in these subjects. All subjects are taught 6-8 school hours a week. The optional courses are creative subjects like media-IT, outdoor life, music, and sports. Pupils select one optional course and follow that throughout the school year, typically 9-10 hours a week. In addition, an after- school scheme consists of a list of subjects, thematic weeks, commercial counselling and trainee visits. 2.8.2 Target Group(s)
1: Elementary school leavers i.e. age group is between 16 and 18 years. 2.8.3 Responsible Authority
Continuation schools are the responsibility of the Government. 2.8.4 Focal Area
The continuation schools relates to focal area 1 - Preparatory Courses and Programmes - Youth Educational and Training Programmes in the Greenland Education Programme. 2.8.5 Capacity
There has been a long tradition for young Greenlanders to attend continuation schools in Denmark with the wish or need for an additional year, focusing on improving grades/skills enabling the youth to enter further education. The pupils are mainly from smaller towns and settlements, and have in principle finished elementary school and obtained their diploma. From September 2011 Greenland has two permanent continuation schools: Villads Villadsens continuation school in Qasigiannguit admits 80 pupils and the continuation school in Maniitsoq admits 70 pupils from September 2011. It is expected that around 15 % of them are students with special problems in reading and spelling. In addition around 280 Greenlandic pupils start every year on a continuation school in Denmark, see Table 3. Table 3 shows cohorts of Greenlandic pupils from continuation school in Denmark in relation to their educational status. It is apparent that a great part of the pupils from continuation schools proceeded with other education. It should be noted, however, that it is a requirement that in order to be admitted to a Danish continuation school the pupil should be able to speak and understand Danish at a high level and that the pupil has contact with a Danish family.
Table 3: Educational status by mid-September 2010 for pupils from Danish continuation schools
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Cohort Pupils in education (total in %) High Schools VET schools Other Total
2007/2008 49 % 70 53 126 249
2008/2009 53 % 184 51 211 446
2009/2010 44 % 110 12 156 278
2011/12 64 %
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Source: Language Centre of Sisimiut and the Educational Financial Support Register
The continuation schools in Greenland are aimed primarily at pupils from outer districts and settlements. An important purpose is to secure that more of these pupils will proceed in an education and thereby not become marginalised. The employer organisation (NUSUKA) suggests to reintroduce the 11th school year which was abandoned in 2008. Instead the 11th school year should be replaced with a vocational continuation school including internships in order to support the youngsters in choosing the right education. A quantitative study of the effect of the continuation schools would be highly desirable. It is important to know whether attendance in the continuation school makes a difference on language abilities and other competencies required for further education. It should be analysed where the pupils proceed after the continuation schools and if the continuation school increases the probability that they enrol and complete formal education. In 2012 a tracking system to follow the individual student through the education system was established, where efforts will be made to include the data on the students that have attended a continuation school, with technical assistance through the Greenlandic Education Programme.
2.9
Vocational Education and Training
2.9.1
Definition
A vocational education and training programme is a qualifying education. This means that the programme is based on requirements from elementary school. A completed vocational education and training programme gives direct access to the labour market as skilled worker. The duration of vocational training is four years for a craftsman education. Whereas the duration of an education at the School for Fishermen and Hunters is only two years, and the vocational training education school also provides a range of courses of shorter duration.
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Vocational education and training is practice-related competence development primarily targeted for the private sector e.g. industry and business. Vocational education and training-schools provide education in strategic areas such as building & construction, iron & metal, food production & catering, business & trade, specialized areas like process technology, and traditional areas as sheep-farming, hunting & fishing, maritime education. In addition practice-based training in health care & social work is also included in this sector. 2.9.2 Target Groups
1: Elementary school leavers i.e. vocational education for youth (apprenticeship), 2: Unskilled workers under 50 years of age who are either unemployed or in vulnerable branches of the market and/or for breadwinners. 2.9.3 Responsible Authority
Vocational education and training is the responsibility of the vocational education and training schools, since they became public private institutions ruled by a board by 1 January 2011. 2.9.4 Focal Area Vocational education and training educations and schools
Vocational education training receives support from the European Commission through the Greenland Education Programme. relates to the following focal areas under the Greenland Education Programme:
Preparatory courses and programmes - youth educational and training programmes Competency (skills training) courses Higher Education and Strategic Sectors Drop-out rates and completion Buildings and housing 2.9.5 Capacity
The vocational education and training-schools are specialised so that all vocational education, within a specific area, takes place at only one vocational education and training-school. Some of the schools also provide the high school education and several higher education programmes. Vocational education and training is offered at 10 schools that are scattered around in Greenland. The Technical College (Nuuk) Building- and Construction College (Sisimiut)
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Business Schools (Nuuk and Qaqortoq) The Food College INUILI (Narsaq) Skippers School (Paamiut) and the School for Hunting and Fisheries (Uummannaq) 57 The College of Social Education (Ilulissat) The Greenland School of Minerals and Petroleum (Sisimiut) The Design School (Sisimiut) The School for Health Educations (Nuuk) The School for Agriculture (Qaqortoq)
An overview of the schools is given below The business schools are situated in Nuuk and in Qaqortoq and provide: The school in Nuuk offers a wide range of traditional lines aimed at working in commerce and IT. Basic commercial education programmes for o Shops assistants and clerks o Trade-assistants, sales-assistants, decorators, medical secretaries, purchasing assistants in collaboration with Danish schools The Management Academy (administered by the commercial school in Nuuk) was established in order to facilitate leadership and management in the Greenlandic society. It was established in connection with the Greenland Education Programme, and it provides courses and educational programmes in relation to Greenlandic conditions, inspired by international research, and in cooperation with international educational institutions. It is supposed to be a knowledge centre for management development in Greenland. o Higher Education course on Management and Leadership (higher education, short cycle) The school in Qaqortoq offers Specialised lines such as education in working in the tourism business Commercial and clerical training
The Technical College in Nuuk provides education within three areas
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To be merged into a new Centre for Maritime Education
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Crafts and engineering: Blacksmiths and mechanics, ship-fitters, welders. Mechanical engineering, transport and logistics: Auto mechanics, terminal workers, stock- and transport workers, cycle-mechanics.
Technology and communication: Electricians, electro-technicians, automatic technicians, officemachine technicians, radio- and data technicians, technicians for film and TV-production.
In addition the school provides supplementary (in-service) training in the above-mentioned areas, and also in areas like quality assurance, Arctic first aid, etc., is provided. The Technical College in Nuuk and the Building- and Construction College in Sisimiut were merged into one organizational unit with one principal per 1 January 2011. However, the schools remain physically or geographically separate. According to the new education strategy it should be investigated how to move most of the present activities of the Technical College in Nuuk to Sisimiut, and at the same time establish 1-year vocational education and training courses for example in Nuuk in the existing buildings to ensure economies of scale and the academic environment. The Building- and Construction College in Sisimiut is extended with appropriate classrooms, a cool hall, as well as minor expansions derived from a higher intake. The Building- and Construction College in Sisimiut provides education and courses within: The building and construction sector for carpenters, plumbing (Water, heating and sanitary facilities) and painters All different kinds of supplementary training regarding the professional area are delivered e.g. PKU courses at regional schools The school is also involved in research projects, in cooperation with the Greenland Innovation Centre, on building and construction technology, energy production, raw material utilization and environmental protection. It is also the place where entrepreneurs from all over the country can find help in Raising the efficiency of work processes Testing their invention Investigating the opportunities for selling a new product.
The school is also involved in the education of arctic engineers (see section 2.11).
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The Greenland School of Minerals and Petroleum (Formerly School of Mining) in Sisimiut (alongside the school for Building and Construction) provides education for: Courses (short term) regarding research and production of oil, gas and petroleum Courses within mining (demolition and rescue Common Core courses) Education as a miner Education as heavy equipment contractor
The Design School in Sisimiut provides (two years) education within: Making of the national garment Treatment of skins and furs (from e.g. seals and caribou)
The Food College INUILI in Narsaq provides basic vocational education for Bakers, waiters, cooks and butchers. Various positions in relation to tourism incl. receptionists and hotel business. The final part of the education must be carried out in Denmark. Competence development courses for technicians related to o o o Production Laboratory work Environment
Process Technology for the whole food-industry in Greenland at a higher education level (the short cycle)
Supplementary training is offered in all above-mentioned areas
The Fishing Industry School (ATI) in Maniitsoq was merged with The Food Industry School (INUILI) in Narsaq into the Hotel- and Restaurants School in Narsaq. A one-year preparatory course (ATX) for high school was closed down in relation to the merger. The buildings have been taken over by the new continuation school in Maniitsoq (see section 2.8). The Skippers School in Paamiut provides education to: Qualified coast and fishing skippers
The school was supposed to be closed in 2009 due to low number of applicants during recent years as well as decreasing labour market demand for these educations. However, due to recent decisions the school continued to operate into 2012, while a board investigation different other
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possibilities takes place. In the beginning of 2013 it was decided to establish a new center for maritime educations in Nuuk merging the education programmes for skippers, and hunters and fishermen. A common basic education course is envisaged for all basic education courses; ships assistant merchant/fisherman, hunting and fishing training and the training as seine maker with subsequent specialisation in individual disciplines. The basic training will be shortened down to 5 months, like those offered at similar programmes in other Nordic countries. The School for Hunting and Fishery in Uummannaq provides education in: Practice and theory based education within the craft of hunting and fishing.
The School for Agriculture in Qaqortoq provides education in: Sheep-farming Production gardening Greenhouse gardening
The College of Social Education (PI/SPS) in Ilulissat provides education in: Social worker (pedagogue, assistant)
The School for Health Educations (PI) in Nuuk provides education in: Healthcare worker Healthcare assistant Porter-rescues Dental assistant (new 2011) Dental therapist (new 2011) Healthcare worker in the settlements (new 2011) target towards health related services in the settlement, such as preventive work and promote health Supplementary training for staff in the social and health sector e.g. PKU courses at regional schools The educational programmes for social workers, socio-educational teachers, and nurses have been transferred to the University of Greenland. The health area and the area of social affairs are very important for Greenlands development. There is a huge lack of labour capacity here, which is why the College of Social Education has established cooperation with the Centre for Health Education and with the Institute for Social
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Workers on provision of courses for unskilled staff within these areas.58 The new educations at the School for Health Educations are a result of labour market demand for providing employees with adequate education in the health centres and dental clinics. The total number of students at vocational education and training-schools was 1,352 in 2012. The number of students has gradually increased over the period 2005-2010, except for 2009, to a level approximately 35 % above the baseline. From 2011 the attendance has dropped and is now 23 % above baseline. During the same period the number of students attending high school education has been steadily increasing since 2006, and from 2010-12 attendance at high schools seems to substitute attendance at vocational education training. The number of apprentices attending various types of education at vocational education and training schools is displayed in Table 4.
Table 4: Indicator 5.1 Apprenticeships - Students by sector (numbers), 2012
Branch/education The Technical College Building- and Construction College Business Schools Food College INUILI Navigation School Farming Social and Health Education with school periods in Denmark and others Total
e.g. nurses and teacher.
Number 374 261 503 162 1 2 48 33
1,384
Note: A few educations besides vocational education and training have apprenticeships, which are not included, Note: The sector is defined by the education the apprentice attends in school periods.
58
These education facilities are as such not a part of the vocational education and training-system; never the less they provide significant knowledge and training within their respective areas.
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Note: Total figures in Table 4 and Table 12 deviates due to different input data as the data is from different sources and collected at different times of the year.
The number of apprenticeships remained stable from 2005 until 2007. In 2009 and 2010 the level increased to 25 % above the baseline, and 30 % in 2011. Regrettable the number dropped in 2012 to the same level as 2009-10 One of the biggest challenges in this area is to provide sufficient apprenticeships. More than 70 % of applicants for vocational education and training have thus no apprenticeship for which reason they cannot start their education, or drop-out59. At the same time, this also means that a number of programmes are implemented with low class sizes, despite the fact that more young people could take an education without major additional costs to society. Regrettable the drop-out rate for vocational education training education has increased from 2011 to 2012 from 25.3 % to 33.1 %. Increasing the number of apprenticeships in order to absorb the increased volume of students and prevent drop-out remains a challenge for the successful graduation of students from many commercial educations. Moreover it is acknowledged by the various industries that school training alone is not sufficient and should be supplemented by practical periods. If educational institutions are not able to deliver the employees demanded by the labour market, economic growth could be hampered. Requests have been sent from the Ministry of Education and Research to the vocational education and training schools motivating school staff to consider how the number of apprenticeships can be increased. It is suggested that decisions regarding length of apprenticeships could be shortened or for example be supplemented by school apprenticeship for everybody in education. Furthermore new board members (from the industry) at some of the vocational education and training schools have proposed increased flexibility in apprenticeships in order to allow more than one employer share the responsibility for one apprentice. There seems to be an increasing awareness among the employers that they need to take responsibility to create apprenticeships in order for the vocational education and training schools to deliver the employees they need. As mentioned in section 2.2.3.4 Corporate Social Responsibility (CSR) is now on the agenda in Greenland. CSR Greenland was jointly founded by the Employers Association of Greenland, Air Greenland, the Bank of Greenland, Royal Artic Line and Kompetence Kompagniet, and includes a
59
The education strategy, 2012
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wide range of Greenlandic companies among its members. CSR Greenland has organised a mentor network for young Greenlandic students. Recruiting is a major challenge for companies in Greenland, because there is a lack of qualified young people. It is therefore important that companies undertake to train young people. This benefits both the young people, society and companies themselves (Quote from Anne Mette Christiansen, Head of Administration at CSR Greenland60). Another challenge is the lack of dormitories which presents a barrier to increased attendance and causing drop-out. Consequently expanding the dormitory capacity was a top priority for the former government. However due to the low standard of the existing dormitories the total dormitory capacity will remain a constraint to an increase in attendance and completion rates. An assessment by the Ministry of Education and Research in October 2011 of the dormitory capacity has estimated the shortage in dormitory capacity: Sisimiut (Technical High School and general high school, Artic engineer, vocational education and training): 50 to accommodate for increased uptake in relation to new education at courses at school for building and construction + 60 rooms for increased uptake in relation to the new high school reform + 50 rooms due for demolition. For 2013 an expansion of 50 rooms is planned. Aasiaat (the new High School Education): 100 rooms to reduce expensive rentals at the private market + 130 rooms to replace the remaining rentals at the private market and rooms due for demolition. In 2012 the dormitory capacity was expanded with 50 rooms in Aasiaat, and an expansion of 100 rooms is planned for 2013. Qaqortoq (the new High School Education): 50 rooms to replace rentals in the private sector and rooms due for demolition + 100 rooms to replace 70 old rooms of very low standard and 30 rooms spread all over the town. However it is possible for the educational institutions in Qaqortoq to rent rooms through INI A/S61 as opposed to the other three towns in which private rentals are in scarce supply and therefore very expensive. In 2012 the dormitory capacity was expanded with 8 rooms, and an expansion of 49 rooms is planned for 2013.
60 61
Greenland A key player in global growth (a business magazine produced by the Employers Association of Greenland
Cooperative Housing Society owned be the Government of Greenland with houses/apartments all over Greenland.
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Nuuk (the new High School Education):
130 rooms to replace rooms due for demolition. An
expansion of 42 rooms happened in March 2013. Furthermore in the end of 2012 it was decided to spend an extra 6.7 m from an expected tax revenue increase to replace closed mould-infested dormitories in Nuuk. This project is still in the programming phase. In relation to the school buildings the planned expansion of the Food Industry School in Narsaq has been delayed significantly and this might have a negative impact on the uptake and drop-out rates for this school. With respect to the human resources vocational education training programmes have the same difficulties attracting and retaining qualified teachers to conduct classes at the schools as the rest of the education system in Greenland.
Figure 11: Drop-out rates (NEW definition!), Vocational Education Training Schools
Source: Student Tracking System by Epinion (2012) Note: The drop-out rate used in the performance metrics for the Greenland Education Programme calculate drop-out rates as the number of drop-outs divided by the number of active students. Whereas the definition of the drop-out-rate used in the student tracking system defines the drop-out rate as the share of a yearly cohort of entrants, which drops out or is expected to drop-out from the education they started in a certain counting year. The drop-out rate (and completion rate) is thus related to the number of entrants in a certain year. The calculation rests on the cohort analysis of this group of students. The definition also implies that a student at the end of his study only has one of two different kinds of status a student can either drop-out or complete the study he or she attended. If a student change study during the study time the first education he or she attended is not completed, however if the student took a short break and returned to the same education he or she can complete the study. Note: 2012 is not included as it would be ekstrapolation.
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Figure 11 above shows the development in drop-out-rates for students attending vocational education from 2000 to 2011. From 2005 to 2012 enrolment at VET-schools has increased by approximately25%, whereas the drop-out rates only slightly increased although today more students enrol into education. Figure 11 shows that more than half of a year group drop-out during the vocational education training. According to the employers organisations, students drop-out due to language problems and lacking apprenticeships. Due to a huge backlog of school leavers without education there is not enough capacity to include a sufficient number of apprentices in the education system. A reform of the vocational education and training-schools was implemented in 2011. The reform consists of a change in the financing mechanism and the schools governance structure. The financing mode of the vocational education and training-schools has been changed from a fixed budget to activity based financing in order to provide an economic incentive for the individual school management to ensure higher attendance rates, lower drop-out and to increase transparency in unit costs. At this stage after the introduction of the activity based financing system it is still too early to make any firm conclusions on the possible impact. However, according to the employers organisation the quality of the vocational education and training needs to be improved by ensuring that the performance based financing are more directly reflecting actual costs, which is an issue being addressed currently. Moreover, it is proposed to increase financial autonomy by transferring ownership of buildings from the government to the educational institutions (NUSUKA). Six vocational education and training schools in Greenland have established a new organizational model with school boards consisting of representatives for local industries appointed by the school managers and approved by the Ministry of Education and Research. The board ensures that the vocational education and training education becomes more demand-driven reflecting the needs of the private enterprises for educated work force in Greenland. A special focus area is to establish school apprenticeships and to find more educational possibilities for apprentices who only command Greenlandic language. In general it is considered how more educations could be supplied in Greenlandic language. The experiences from the first year are very positive e.g. board members are eagerly engaged in proposing changes in the educations provided by the schools and act as ambassadors persuading private employers to take more apprentices by listening to their concerns and developing solutions to overcome this. A concrete outcome of this work is a new legislation allowing for increased flexibility in the apprenticeships agreement which makes it
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possible for more employers to share the obligations for an apprenticeship. learning goals, if more than one employer is involved.
However, some
concerns have been raised regarding who has the overall responsibility for the apprentices
The Government Executive Order no 10 of 12 July, 2010 on apprentices in construction works stipulates under which conditions the Government can require businesses to set up apprenticeships in connection with construction tasks for the Government, companies on which the Greenlandic Government has an influence as well as municipal authorities. One possibility is to introduce apprentice hours. Construction projects of a certain size, as shown by the executive order on internships, can be estimated to hold a certain number of apprentice hours apprentice hours which can be accomplished through the employment of apprentices or by companies buying themselves free at a fixed given price per apprentice hour. Another suggestion is to introduce 1year basic courses, so the student only has 3 years of apprenticeship realising a year for each intern, which accumulated leaves room for more apprentices. As the public sector and the Government owned businesses make up the countrys largest employer they must take the lead and set an example for the countrys private employers to take on more apprentices. The education strategy of 2012 with the overall goal of developing educational programmes meeting labour market needs includes the following subsidiary goals:
Improved guidance and increased cohesiveness Creation of more apprenticeships and reduction of drop-outs Rationalisation and capacity expansion New and improved framework for demand management Creation of new education centres
Furthermore there must be focused on common pedagogical principles that ensure the cohesion of the entire education system.
2.10 High Schools
2.10.1 Definition The high school system has eight different education profiles targeted towards different strategic areas. The profiles are: Technical-natural science, natural science, mercantile, language and
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humanities, health science, social science, creativity and general. The mercantile and technicalnatural science profiles replace the commercial high school education at the Commercial School and the technical high school education at the Building- and Construction College. The duration of the high school programme is three years. From August 2012 the high school reform was implemented, for description of the aspects of the reform please see section 2.10.5. 2.10.2 Target Groups 1: Elementary school leavers 2.10.3 Responsible Authority The administrative responsibility of the high school education has been transferred from Denmark to Greenland in January 2009. 2.10.4 Focal Areas High Schools receive support from the European Commission through the Greenland Education Programme. Funds are allocated to focal areas listed below: 1 Preparatory Courses and Programmes - Youth Educational and Training Program. 4 Cross-cutting initiatives 5 Drop-out rates and completion 6 Buildings and housing 7 Structural monitoring and development 2.10.5 Capacity High school education is offered at four schools located in Nuuk (Sermersooq), Aasiaat (Qaasuitsup), Sisimiut (Qeqqata) and Qaqortoq (Kujalleq) offering eight new educational profiles (cf. section 2.10.1). In 2012 a total of 1,321 students attended high schools62. According to the education strategy it is a goal to establish a fifth high school in Ilulissat, however resources has not yet been allocated. There is a need for additional capacity in Ilulissat in the northern municipality (Qaasuitsup) in order to absorb the large group of rejected applicants. In a number of years, when the current residual group has completed high school, and the capacity
This figure represents the number of students attending high school while receiving a Greenlandic study grant, regardless where they attend high school, typically in Greenland, but a few attend high school in Denmark. Greenlanders have a Danish citizenship and can thus attend high school in Denmark if they choose without extra costs. The Greenland Education Programme has always been based on providing as many people as possible with and education, not limited to institutions in Greenland.
62
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needs decrease, the buildings being built for the high school in Ilulissat will be transferred to the Social-Educational College in Ilulissat, which prospectively will need to increase capacity due to the demographic trends. The figures for newly enrolled students and applications distributed between the four municipalities and the four high schools are listed below.
Table 5: Number of applicants to high school (2012), and numbers enrolled (2011) per municipality
Applicants per municipality in 2012 Qaasuitsup Qeqqata Sermersooq Kujalleq Total 252 179 202 157 790
Applicants per municipality in 2012 (%) 32 23 25 20 100
Enrolled per municipality 2011 138 126 151 102 517
Enrolled per municipality 2011 (%) 27 24 29 20 100
Source: The Education Strategy (2012)
There are significantly more applicants than students actually starting high schools. This is partly due to the fact that a number of applicants do not meet the requirements for admission, partly because the current capacity puts some restrictions on admission. The high schools are not in the same way as vocational education and training schools dependent on business cycle conditions. However, lack of school buildings and dormitory capacity provides problems for this education type. The high school located in Aasiaat attracts pupils from a wide area, making it necessary to ensure the supply of required dormitory capacity. Consequently building and replacement of depleted dormitories continue to be a top priority in the Greenland Education Programme (see assessment of dormitory capacity in section 2.9.5). In relation to the new high school reform an expansion of the high school in Nuuk was ready in 2012.
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Figure 12: Drop-out rates (NEW definition!) at high schools
Source: Student Tracking System by Epinion (2012) Note: See Figure 11 for an explanation of the new definition of the drop-out rates Note: 2012 is not included as it would be ekstrapolation.
Figure 12 shows drop-out rates have been reduced by one third from 2000 to 2011. However from 2007 to 2011 drop-out rates seem to stabilise on a level of approximately 40 % despite of a 60 % increase in enrolment from 2006 to 2012. In other words around 60 % of a year group complete their high school education. Next step is to decrease drop-out rates even further i.e. the primary focus of the Greenland Education Programme in 2013. A high school reform was implemented from August 2012. The reform should ensure as many young people as possible the necessary qualifications for attending higher education studies in Greenland, Denmark and abroad. In other words high school should not be the end goal for the young people they should pursue higher education. The reform is seen as a next logical step following the reform of the elementary school. Some of the important changes are: The structure will be changed into a one-door-system i.e. the first six months serve as an introduction to the high school life and includes intensive counselling on making the right educational choice and thereby increase the probability of success.
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Eight different education profiles targeted towards new strategic areas. The profiles are: Technical-natural science, natural science, language and humanities, health science, social science, creativity and general.
Four different high schools will offer variants within each educational profile including geology (former offered by the technical high school), health, body and environment. The new high school education is replacing the former high school educations.
The education will be more practice-oriented in accordance with the Greenlandic tradition of learning, but without comprising international educational standards i.e. the new high school education is acknowledged by higher education institutions in Greenland and abroad.
Different kinds of adult support will be given students in dormitories in order to teach them how to live by themselves, develop a social network etc.
After the first semester the students will be placed in class and subsequently town depending on their choice of study profile. As something new, there will be initiatives optimising the social learning environments, including the close relationship between student- and dormitory-life, both in connection with the generally educating elements of the programme and also as a foundation for the study preparatory and academic education. The High School Reform introduces among others admission requirements and screening of Danish language skills The intent of the reform is to increase social inclusiveness of the system by generating growth and development of all students abilities and potential regardless of residence, gender and age. In collaboration with the students, high school must create motivation for independence and to work with others to achieve success regardless of social, cultural and linguistic backgrounds. Teachers must use pedagogical principles adapted to Greenlandic context. Furthermore three new subjects are introduced, including methodology, science and cultural subject areas that are important for the transition to higher education. However the new organisation of the schools will not prolong the time spent attending the high schools; i.e. the duration is still three years. Full responsibility for the high school education was transferred from Denmark to the Government of Greenland by 1 January 2009. Nevertheless, there is still a close cooperation with the Danish Ministry of Education regarding the preparation of examination papers and appointment of examiners. Specialised administrators within the Ministry of Education and Research will be responsible for carrying out the reform in close cooperation with the Danish Ministry of Education
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to ensure that the new high school education complies with Danish standards. In addition the reform development has involved staff from the Government of Greenland, teachers and leaders from the high schools (including general high school as well as technical high school and business high school) in workshops, group work, and hearings to ensure the reform is based on available evidence and to establish a strong ownership, and thereby facilitate implementation In order to build the capacity to implement the reform a comprehensive plan for supplementary training of teachers and schoolmasters has been developed. Important elements in the pedagogy are: Greenlandic teaching materials culturally based learning Greenlandic, Danish, statistics, biology, culture, psychology, geography, science. Electronic teaching portal knowledge sharing Pedagogic inspector Teacher Teams - coordination of pedagogical and teaching efforts Student focused pedagogy Second language pedagogy Vulnerable students New subjects: Science, culture, methodology
The high school reform is based on evidence collected through pilot projects and a drop-out survey of the high schools i.e. activities conducted within the scope of the Greenland Education Programme in previous years. Hence the reform is expected to have a positive impact on the Greenland Education Programme performance indicators in relation to high school and higher education. In particular more students are expected to continue and complete higher education. The school administrative systems must support continuous monitoring, and follow up on the (24) individual initiatives. The education strategy for the high school area includes following subsidiary goals. High school must have room for diversity More should start in high school and completion rate must rise (drop-out rates must fall) The education must have a higher academic level High school must be a step towards higher education
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2.11 Higher Education
2.11.1 Definition In terms of higher education, Greenland provides educational programmes within three cycles: 1. The first cycle (higher profession education) 2. The second cycle (academic university education) 3. The third cycle (doctors level) In order to evaluate educations across countries and institutions a common framework has been agreed upon by the participating countries in which 60 ECTS points is equivalent to 1 full-time study year. This means the duration of an education at academy level is 2 years, bachelor level 3 years, master level 5 years and doctor 8 years. 2.11.2 Target Groups This target group is not included in the Greenland Education Programme phase 1 (2006-12) meaning only activities targeted towards the new strategic areas are included in the programme at this stage. No specific activities are targeted towards higher education, cf. section 4.2.3. However indicators on higher education (and job insertion) are included in the variable tranche, which is part of the financing agreement between the European Commission and the Government of Greenland as these indicators measure the impact of educational activities included in the 1st phase of the Greenlandic Education Programme, cf. section 1.1.1. 2.11.3 Responsible Authority The administrative responsibility of the higher education lies with the Government of Greenland. 2.11.4 Focal Areas Higher Education receives support from the European Commission through the Greenland Education Programme. Funds are distributed to below focal area 3 Higher education and strategic sectors
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3.1.1
Capacity
Institutions providing higher education are concentrated in Nuuk at Ilimmarfik (campus area). The campus opened in 2008 and almost all higher education is located here. However, the College of Social Education runs the profession-bachelors programme in social education, while Technical University of Denmark runs the programme Arctic Engineer at the Arctic Technology (ARTEK) in Sisimiut. Furthermore, the Language Centre in Sisimiut has been offering the education programme as interpreter previously, which is now being upgraded to a profession-bachelors degree in Business Language and Translation, starting in 2012 under Ilisimatusarfik. In order to give as many opportunities to the Greenlanders as possible, close cooperation with other universities has been established and Greenlanders have free access to enrol in universities in the Nordic countries. Furthermore Greenlandic legislation secures that students with sufficient aptitude can be granted funds for attending fee based education abroad. The following is a brief description of the institutions providing higher education in Greenland. 3.1.2 Academy Education
Academy education (the short cycle) is provided by the vocational education and training schools (see section 2.9) in many cases in cooperation with Danish Business Colleges (Academies)63 with access to the Danish Distance Education platform NETAU (www.netau.dk). The business schools in Nuuk and Qaqortoq provide academy education in the following areas: Service economist with specialty in tourism management, international trade and marketing Legal administrative procedure Economics and resources management Management and leadership (the Management Academy) Banking and finance programme IT and Assistant Accountant Programme
63
Aalborg and Aarhus
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3.1.3
University Education (Bachelor and Masters Level)
A university park (Ilimmarfik) has been established, new buildings constructed and a new legislation has been passed64 in order for Greenland to supply education at higher level in accordance with the education policies described in section 2.2.1.1. University Education i.e. from Bachelors Degree to Ph.D. is provided by the University of Greenland or in other institutions in Greenland in collaboration with universities in Denmark. The University of Greenland has three institutes providing traditional bachelor degrees in Management and Economics. B.Sc. and M.Sc. Cultural and Social History. BA and MA Language, Literature and Media Studies. BA and MA Theology. BA Educational Science (Inerisaavik). MA
And profession-bachelors degrees65 in Teacher education, journalism, nursing education, social education, social work, interpretation and translation Institute for Educational Science (Inerisaavik)66 supplies pedagogical diploma courses (PD) at bachelors and masters level for teachers, counsellors, ICT-staff and managers in elementary school in General pedagogic (BA) Didactics with a special focus on (BA) o Greenlands history in a cultural and psychological perspective o Pedagogical psychology o Coaching of leaders and teachers in elementary school o Foreign language teaching Pedagogical and psychological subjects (MA)
64
These bachelor degrees are designed to provide immediate access to the labour market, while other bachelor degrees can be used for admission to graduate studies at the masters and doctoral levels, see The Bologna Packet. These educations usually requires the student to spend some time as a sort of apprenticeship, meaning to apply the theory learned hands on during the education, i.e. a teacher is an apprentice at an elementary school to practice teaching in the real world. 66 Regulation No. 14 of 19 May 2005 on masters education at the Institute for Education and Research
65
Law No. 19 of 19 November 2007 on Ilisimatusarfik
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The Building- and Construction College in Sisimiut provides - in cooperation with the Technical University of Denmark (DTU)67 a bachelor degree in Arctic engineering
The education can be continued at the Technical University of Denmark and leads to a masters degree. The Language Centre Oqaatsinik Pikkorissarfik in Sisimiut provides Language courses to individuals and institutions e.g. English with a special focus on mining Personal development courses to the Piareersarfiit centre in Nuuk.
The centre also functions as a knowledge centre providing guidance individuals, institutions and companies regarding language courses and education, and has also been a driving force in development of materials, concepts and methods for e-learning especially in the so-called eforum network68. 3.1.4 University Education (Doctors Level) In beginning of 2008 the first industrial PhD grant was advertised in
An important part of research in Greenland is the PhD studies, and a number of PhD grants are advertised each year. Greenland (financed by the Greenland Education Programme the Bank of Greenlands Industrial Fund). In 2009 there are two participants on this programme. All the PhD projects must be related to Greenland and to Greenlandic issues but can be carried out in cooperation with (for instance) Danish universities. Higher education in Greenland is at the same level as in Denmark (and other European countries) but is specifically focused on Greenlandic conditions and circumstances. For example the University of Greenland participates in activities organized by the International Arctic Social Sciences Association, for instance the International Polar Year (IPY69) held in Nuuk 2008. The International Polar Year Programme (2007-2009) was focussing on issues such as 1) Arctic
Part of the education must be done in Denmark. It is planned that candidates from this Higher Education programme should also have the opportunity to teach at high schools in Greenland. 68 A cooperation between a number of schools in Greenland most of them are vocational education and trainingschools 69 http://www.ipy.org/
67
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climate variability, change and impact, 2) Greenland's ice sheet scientific frontiers and 3) Man, nature and arctic societies. Figure 13: Drop-out rates (NEW defintion!) Higher University Education
Source: Student Tracking System by Epinion (2012) Note: See Figure 11 for an explanation of the new definition of the drop-out rates Note: 2012 is not included as it would be extrapolation.
Figure 13 shows a 12 % point decrease in the drop-out over the period from 2000 to 2011. In 2011 approximately 52 % of a year group does not complete their education. In Figure 14 the drop-out rates for higher profession education are shown. The figure indicates a positive trend in the drop-out rates at higher profession education from 2005 to 2011.
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Figure 14: Drop-out rates (NEW defintion!), Higher Profession Education
Source: Student Tracking System by Epinion (2012) Note: See Figure 11 for an explanation of the new definition of the drop-out rates Note: 2012 is not included as it would be ekstrapolation.
The subsidiary goals for higher education support the overall goal of continuing to provide higher educational programmes that correspond to the needs of society, while the number of graduates must increase significantly. The Greenlandic higher education programmes must have a high academic level corresponding to similar international education programmes. Enrolment on higher education programmes must be increased The completion rate of higher education must be increased Implementation of an external evaluation of the higher education programmes in Greenland The Department of Theology and Religion at Ilisimatusarfik is being evaluated presently as the education programme does not live up to similar international theological university programmes. The new government wishes to maintain the education in Greenland due to the shortage of priest, but has not yet decided how to tackle the quality issue in relation to this study.
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In relation to the development of the 2nd phase of the Greenland Education Programme it will be analysed whether a division between a traditional university and a University College can strengthen interdisciplinary and build strong study and research environments.
3.2
Training Courses Offered by Piareersarfiit and Vocational Education and Training Schools
3.2.1
Definition
Piareersarfiit centres currently form the link between elementary school and further education and the labour market, providing counselling and education for both the youth and the older age groups of the population. The vision is that the Piareersarfiit centres should be working according to the one-door-principle, meaning that they take care of labour market issues as well as educational guidance. Recognised vocational education (the so-called AEU courses) is established at Piareersarfiit and the overall aim is to enable young people to be admitted to a recognised education e.g. vocational education and training school and acquire the competences needed to graduate. These preparatory courses are concentrated on qualifying the pupils in 4 main topics: Greenlandic, Danish, English and mathematics (educational level of elementary school). Project competence improvement for unskilled
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(the so-called PKU-courses) is a part of
Government of Greenlands Education Programme. The target group is unemployed or employed unskilled labour in declining business or labour in need for upgrading in business where growth is expected. The courses are typically implemented in 3-5 modules each of one-week duration. The students are typically enrolled by their employers or their municipalities (for unemployed). Vocational training for the labour market (the so-called AMA-courses) is targeted towards skilled and unskilled workers, including unemployed. These courses should according to the main principle be part of an individual plan developed in collaboration with Piareersarfiit or be part of a competence improvement course (a module) 3.2.2
70
Target Groups
Earlier called real competence courses.
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1: Elementary school leavers 2: Unskilled workers under 50 years of age who are either unemployed or in vulnerable branches of the market and/or for breadwinners 3.2.3 Responsible Authority
Piareersarfiit centres are the responsibility of the municipalities 3.2.4 Focal Areas
Training courses offered by Piareersarfiit and the vocational training education Schools receive support from the European Commission through the Greenland Education Programme. Funds are distributed to focal area noted bellow: 2 Competency (skills training) courses 3.2.5 Capacity
Besides the degrees and qualifications from the formal education system, the vocational education and training schools and the Piareersarfiit provide a number of training courses: For skilled or unskilled employed workers (AMA courses) For unskilled workers and employed and unemployed adults (PKU courses)
The courses are primarily provided with the strategic aim of training for work that is to qualify the apprentices within specific strategic area like social work, health, trade and industry and the new strategic areas mining and tourism.
The Piareersarfiit centres provide preparatory (AEU) courses, whereas vocational education and training schools provides competency development (PKU) courses for unskilled and labour market (AMA) courses.
There are 18 Piareersarfiit centres within Greenland's four municipalities constituting an important element in the whole educational system as these centres provide counselling and preparatory courses (AEU) in languages and mathematics for admission to a vocational education and training education and supports the development of individual competence development plans.
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There are two pools of funds used for courses and further education, both skilled and unskilled workers: Competency development courses (PKU) and labour market courses (AMA). The competency development (PKU) funds are used for taylor-made professional courses supplied by some of the regional schools primarily for unemployed and unskilled workers in jobs within a range of fields. A quarter of the funds are spent on the growth industries, i.e. in the mining industry or language courses targeted the mining industry. The courses are continuously evaluated by the students and by contact with the employers after the student returns and adjusted if needed. The Government covers all expenses, including salary to the participants. During 2012 the activities included 644 participants taking part in 1530 course participant weeks. performed in 13 towns. In the 2012 the total allocations were 3.26 m. The courses were
The labour market (AMA) funds are targeted skilled workers in occupation, primarily for further educational courses. As part of changed conditions for some industries, the Government has initiated the preparation of an analysis of the fishing industry with the aim of retraining people from the fishing industry as a consequence of the new fishing legislation. This is based on the identification of new and other employment opportunities for citizens engaged in fishing. In relation to retraining and upgrading of skills, the goal of the education strategy is to offer courses/programmes in the following areas: The mining area and growth industries in general. It is important to retrain or upgrade to real work opportunities and not in the hope of employment in potential large-scale projects or mines with a long horizon of realisation and a real risk that these are not realised. Close cooperation between the business industry and the labour market leaders with those responsible for training is a necessity to provide proper training at the right time The health and social services. That is, courses in areas affected by future demographic developments. There must be focus on courses that provide credit for further courses or traditional higher education Retraining of groups within industries in liquidation/reduction so they can continue to be part of an active labour market.
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STATUS OF THE GREENLAND EDUCATION PROGRAMME; LESSONS LEARNED AND MAIN CHALLENGES IN 2013
3.1
Status of the Greenland Education Programme in general
The Greenland Education Programme is generally proceeding according to targets set with a few exceptions in 2012. So far the Greenland Education Programme has been successful in increasing attendance especially at high schools, and higher education with more than 50 %71 due to an increased awareness of the importance of continuous education within the general population. The most important72 setbacks in the positive developments from 2011 were the increase from 20 to 24.5 % in the overall drop-out rates from 2011 to 2012, and the decrease in job insertion after formal education (61.6 % to 59.1 %). The increase in drop-out rates was mainly driven by a disappointing rise in the drop-out rates at vocational education and training schools (25.3 % to 33.1 %), and second cycle of higher education (17.4 % to 25.3 %). Regarding the job insertion the decrease is not because of a rise in unemployment rate after graduation but rather because more graduates choose to continue their studies on a higher level. Therefore a decrease in job insertion can be seen as a positive development. The overall drop-out rate73 increased from 20.0 % to 24.5 % from 2011 to 2012. However as explained in chapter 2.10 this indicator does not really measure the interesting part, namely the proportion of a year group completing or expected to complete their education. Instead a new dropout indicator has been developed in relation to the new student tracking system. According to the new drop-out rate74 completion rates are improving for high school education, higher professional education and higher university education, whereas completion rates for vocational education and training has decreased from 2005 onwards. With respect to the completion rates for vocational education and training students, the shortage of apprenticeships is a major challenge which is closely related to the economic developments in the society. Although attendance at vocational education training has also increased by almost 30 % in 2011 it has decreased with 7 percentage points from 2011 to 2012 probably due to the impact of the
71 72 73 74
Compared to the baseline level indicators included in the variable tranche for 2012 Definition in the previously agreed performance metrics for the Greenland Education Programme Based on 2011 figures as 2012 figures are not yet available
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economic recession. If students loose their apprenticeships they tend to drop-out. At the same time attendance at high school increased by 9 percentage points75. anticipated in the target (2770 students). So far the Greenland Education Programme has been successful in increasing attendance at high schools due to an increased awareness of the importance of continuous education within the general population. Although drop-out rates are improving76 in high schools, and first and second cycle of higher education the current challenge is to further reduce drop-out rates at all educations in order to harvest the fruits of the huge investments in education. The new education strategy includes a range of means toward this end (see section 2.2.1.1). Strengthening the pre-school and elementary education is now seen an important requisite, by all political parties, to ensure students have the necessary personal and technical skills to enrol and complete youth education. Moreover the whole reform package is expected to support the same vision as the Greenland Education Programme to increase welfare through better education of the population, employment in the new strategic sectors, and thereby decreasing poverty, securing all children a good childhood and preventing students from dropping out due to social and psychological problems. In 2012, one year after graduating elementary school, 34 % are attending youth education. The rest of the group is the so-called residual group and is subject of major concern for the Government of Greenland. If the relative proportion of school-leavers continuing education does not rise significantly the vision of the Greenland Programme cannot be reached within a foreseeable timeline. Moreover the reform package based on the recommendations from the tax and welfare commission calls for action, innovative and visionary thinking in order to overcome the challenges the Greenlandic society is facing as the demographics are changing rapidly. Consequently there was stagnation in the overall attendance in the recent year (2673 students) even though a growth was
75
It is not possible to see whether a part of the increase in high school attendance are in fact former student at
vocational education and training shifting to high school, probably due to loss of apprenticeship place
76
Compared to the baseline level
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3.2
The Elementary school

If the
Language is becoming more and more important in the Greenland education sector.
Greenland Education Programme is to succeed in increasing the rate of young people that enter education, special attention has to be directed towards language already at preschool level and elementary level. An element could be to establish supporting function for those students whose abilities in other languages than Greenlandic are weaker. The education strategy of the former government puts increased focus on the pre-school and elementary school areas. It is emphasised that a good progress through these stages is a prerequisite for future success in the education system and that these areas should be prioritised accordingly. In relation to the elementary school increased emphasis is also put on the transition between elementary school and youth education.
3.3
School leavers outside the educational system
A major concern for the Government of Greenland is the large group of elementary school leavers who do not enrol in further education. The challenge of how to reduce this group is considered one of the most important subjects to be treated in the work with the forthcoming Greenland Education Programme II.
3.4
The Vocational Education and Training Schools (VET)
From 2011 to 2012, according to the old drop-out rate, the drop-out rate for vocational education and training has increased by approximately 8 percentage points. About 2 percentage points of this can be explained by the aforementioned drop in attendance. The number of apprenticeships dropped by 4 percentage points which indicates the shortage of apprenticeships is a major driver of the development in drop-out rates on vocational education schools, and an important constraint for a further increase in attendance. The number of apprenticeships in Greenland has increased by 26 % compared to the baseline. This is almost equal to the development in the attendance on vocational education and training school. Regrettable a drop of 4 percentage points was seen from 2011 to 2012 and this limits the number of students enrolling into vocational education and training schools.
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A group consisting of representatives from the Ministry of Education and Research, representatives from the employers associations and representatives from the vocational education and training school boards have begun work on how to establish more apprenticeships and also try to come up with alternative solutions. This work has not yet been finalised, but several new initiatives are under way. These new initiatives comprise of: inclusion of apprenticeships in the performance based financing of the VET-schools (calculated as team-weeks), inclusion in public tenders, apprenticeships in Denmark (increased by 20 students in 2012) and agreements that with the counsellors that they should promote the possibility of apprenticeships in Denmark. New organisational models with school boards and performance based financing have been introduced at most VET schools. The experiences from 2011 are generally very positive from both sides i.e. school management and board members representing labour markets. Especially the board members at the Building- and Construction College have engaged in advocacy for apprenticeships and provided feedback from employers and developed solutions e.g. shared apprenticeships and new educations. Furthermore the Ministry of Education and Research is working on an evaluation of the new organisational model, the evaluation is expected to be finished in May 2013.
3.5
The High Schools
The primary limiting factor for high schools is the physical capacity of the high school buildings both regarding capacity for education and for dormitories. Establishment of new student dormitories has been given high priority, in 2012 new dormitories were finished and one new institutional building extension is expected to be finished in 2013, please see section 4.2.6 for elaboration. In addition to the physical factor the new high school reform addresses the human factor (Cf. 2.1.1.1. for an elaborate description of the reform). 3.5.1 Reform of the high school
So far only the best students with good language skills have been enrolled in high school education. Further progress in the Greenland Education Programme requires that also students with fewer skills in language subjects enrol and are able to successfully complete their studies. This group of students are at higher risk of drop-out and require a supportive environment as many are moving far from home and have no experience in taking care of themselves. Several initiatives addressing these challenges are an integral part of the new high school reform including tutors,
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support in daily living, homework cafs etc. Please refer to section 2.2.1.1 for more details on the high school reform.
3.6
Oil and Mineral Sector
Expectations to upcoming industries within the oil and mineral sector give rise to new demands on specific types of labour and therefore also specific challenges for the education sector. A development of a total education programme for all short term courses regarding research and production of oil products has been initiated at a conference held in December 2010 the Greenland School of Minerals and Petroleum in Sisimiut. This process has been initiated in order to ensure that the relevant know-how and expertise in this new area will be anchored in the Greenlandic vocational education and training schools. Concrete plans for making education possible in all involved branches: oil/gas, languages, building and construction, iron and metal, shipping, food production and commercial have been made and the first courses started in the first quarter of 2011. In 2011 a lot of courses were concentrated on the language courses for obtaining work in the oil and mining industries, in 2013 as in 2012 the focus is still on these branches, but more awareness is on the courses and educations needed for the branches related to an expansion within the oil and mining industry in Greenland, i.e. catering, operation of heavy machinery and so forth. To accommodate the needs for qualified labour in connection with expected mining activities, two new educations have commenced in 2012 at the Greenland School of Minerals and Petroleum: an education as a trained miner and an education as heavy equipment contractor. Currently 19 students are enrolled in the first year of education which is common for the two educations.
3.7
Resource utilisation
The progress in the expansion of the physical framework is slowed down due to the demolition of old dormitories that are unfit for human habitation. For some buildings renovation is not an economically viable option because of the poor state they are in. Besides from dormitories some school buildings are also infected with mould and otherwise in need of maintenance. This emphasises the need for further investment in buildings both with respect to renovation and new construction. The need for buildings is sought to be addressed in a cost-effective way which includes assessments of renovation vs. new construction based on the concrete state of the specific building. In some cases private-public collaboration is explored; one example of private-public collaboration is private companies developing and erecting the buildings
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and the government only acquiring the building upon completion. Another way of accommodating the capacity constraints is to acquire vacant buildings and refurbish them to suit their new purpose. The government has recently decided to acquire a closed down hotel in Uummannaq in order to use it as a school-home. Another important question in relation to resource utilisation is reducing the number of drop-outs. Drop-out reduces the number of students in a class which results in unused capacity both in terms of buildings and teaching. Since it is not an option to put new students in a class in the middle of a school year, reducing drop-out is therefore not only a goal in and of itself also a means to an improved resource utilisation.
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BUDGETS, ACTIVITIES AND TARGETS FOR 2013
Table 6 summarizes the result 2012, target and midterm target 2013 for the variable tranche indicators.
Table 6: Indicators in the calculation of the variable tranche 2013
Indicator 1.2 Public expenditure on education 4.c Attendance (higher education) 8 Education level of the workforce 9 Completion 11a Dropouts (formal education) 11b Dropouts (Skills and competence courses) 12.a Job insertion (formal education) 12.b Enrollment into education after attending Piareersarfiit
Weight 0.10 0.10 0.20 0.20 0.10 0.10 0.10 0.10
Result 2012 169.50 1,188 37 % 951 25 % 8.5 % 451 23 %
Target 2013 159.40 1,250 36 % 1,000 22 % 7.8 % 485 25 %
Midterm Target 2013 NA 1,488 37 % 813 20 % NA 475 NA
4.1
Total budget of the Government of Greenland and the budget of the Greenland Education Programme
An overview of the budget for the Government of Greenland for 2013 is given in Table 7. The total overall Government budget is 877.4 m, while the total education budget is 159.4 m. The education budget accounts for 18 % of the total budget. Greenland Education Programme (business-as-usual). Under the heading Base is listed Under the heading the Greenland expenditures for the normal running of the educational system before the initiation of the Education Programme the expenditures for the new (extra) activities aimed at raising the educational level through initiatives under the Greenland Education Programme are listed. The expenditures listed under these two headings add up to the expenditures listed under the heading Total.
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Table 7: Total budget and total education budget for the Government of Greenland 2013 ( m)
Total budget Greenland Of which education budget Base Education Programme 1. Elementary Education 2. High School Education 3. Vocational Education and Training 4. Higher Education 5. Building Institutions 6. Building Dormitories 7. Reserve (Greenland Education Programme fund) Total Education Budget Education in % of the total budget
Source: Finance Act 2013
877.4
Total
3.2 19.5 27.8 34.9 16.3 1.5
3.5 6.6 30.3 5.8 4.0 6.0
6.8 26.0 58.0 40.7 20.3 7.5
103.3
56.1
159.4 18.2 %
Table 7 compares the expenditures under the Greenland Education Programme with the base expenditures in seven categories, not to be mixed up with the allocation of the Greenland Education Programme expenditures to the seven focal areas that are presented in Table 8. It is seen that within Vocational Education and Training and Building of Dormitories and Institutions the extra activities financed through the Greenland Education Programme are substantial compared to the base expenditures in 2013. This item also includes rent and maintenance of buildings, which explains the expenditure figure under Base. It should be mentioned that the central governments total education budget, including expenditures by the municipalities, was 169.5 m in 2012. Expenditures for the Government of
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Greenland under elementary education are for the most part research into education, development of teaching material and educational training for teachers. Expenditures for continuation schools are also included in the category of Elementary Education. In Annex 1 the numbers in Table 7 are presented for the period 2006-2015. The Greenland Education Programme budget for 2012 and relative allocations to the seven focal areas are presented in Table 8.
Table 8: The Greenland Education Programme budget for the focal areas 2013 ( m)
Focal Area
Title of the focal area Preparatory courses and programmes Youth educational and training programmes Competence (skills training), courses, the Piareersarfiit and unskilled labour in the work force Higher education and strategic sectors Cross-cutting initiatives (study grants) Drop-out rates and completion Buildings and housing Structural monitoring, Development potential and perspectives
Focal area 1
8.0
14.3 %
Focal area 2
7.0
12.5 %
Focal area 3 Focal area 4 Focal area 5 Focal area 6
12.7 14.9 0.8 10.0
22.6 % 26.6 % 1.5 % 17.8 %
Focal area 7
2.6
4.6 %
Reserve (Greenland Education Programme fund, not allocated) Total

Source: Finance Act 2013.
0.0 %
56.1
100 %
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The largest part, 14.9 m, or 26.6 % of the Greenland Education Programme budget, is allocated to focal area 4 Study grants. Focal areas 1, 2, 3 and 6 each receives respectively 14.3 %, 12.5 % and 22.6 % and 17.8 % from the Greenland Education Programme budget. Finally focal areas 5 and 7 receive 1.5 % and 4.6 % respectively. It can be observed that focal area 5 concerning dropout-rate and completion receives the smallest part of the Greenland Education Programme budget despite of the importance of this area. The activities financed under focal area 5 are directly aimed at lowering drop-out rate, such as psychological assistance. Under the other focal areas, and in particular focal area 6, financed activities are indirectly expected to have a positive effect on dropout rates, for instance better facilities for doing homework. All in all, resources allocated for activities aimed at reducing drop-out therefore significantly exceeds the specific amount allocated for focus area 5. The Greenland Education Programme budget for the period 2012-2016 is presented in Annex 2, which also provides a detailed specification of allocation of expenditures to the different activities under each focal area. 4.2 Budgets, activities and targets within the focal areas
In this section each focal area is presented with a brief status of planned activities in 2013, including on-going activities carried on from previous year and new activities. Finally results in relation to previous years targets are evaluated, and new targets set by the Ministry of Education and Research. The results and targets are used for monitoring progress during the year, and to communicate the priorities of the Greenland Education Programme. Due to the short timeframe from statistical information on results are released until targets should be set (according the partnership agreement) the process of target setting is mainly the responsibility of the team and steering committee for the Greenland Education Programme. However relevant experts are consulted on ad hoc basis whenever relevant to obtain valid estimations. As the data basis for monitoring the programme is being improved the robustness of the targets also improves. However, it is acknowledged a broader involvement would be desirable to increase transparency and strengthen ownership, but for practical reasons it have not been possible to involve a broader range of stakeholders in this process.
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Finally, it should be mentioned that the calculation of the variable tranche for 2013 includes changes to the relative weights compared to 2011 and 2012. The calculation method measures the target achievement in relation to baseline and multiplies it with the indicator weight. Within the indicator framework 2007-2013 the emphasis moves gradually from input and output indicators to outcome indicators. The indicators that enter the calculation of the variable tranche in 2013 are shown in Table 9: The growth rate for the targets set for the various indicators are established under the assumption that the capacity of dormitories and education facilities increasingly constitutes a limiting factor.
Table 9: Indicators in the calculation of the variable tranche 2013
Title 1. Public Expenditure on education 4c Number of students attending higher education 5 Apprenticeships 8 Education level of the workforce 9 Completion 11a Drop-out rates (formal education) 11b Drop-out rates (skills and competence courses) 12a Job insertion from formal education 12b Enrolment into education after Piareersarfiit Total
Type Input Outcome Output Outcome Outcome Outcome Outcome Outcome Outcome
Weight (%) 10 10 5 20 20 10 10 10 5 100
4.2.1
Focal area 1: Preparatory courses and programmes youth educational and training programmes
The overall objective of the initiatives under focal area 1 is to support, motivate and make room for more young people to enrol into education at high schools or vocational education and training schools. This focal area is primarily focusing on elementary school leavers. Initiatives for supporting continuation schools in Greenland are also financed under focal area 1.
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On-going activities Focal area 1 receives 8 m, or 14.3 %, of the Greenland Education Programme budget in 2013. The allocation of the total amount to different activities is shown in Figure 15.
Figure 15: Focal area 1 budget ( 8 m) divided into main categories
A major part of the activities under this focal area is a continuation of on-going activities established in the previous years. Planned new activities in 2013 The High School reform was put in force by August 2012, cf. section 2.2.1.1 for more details on the reform. Monitoring and follow-up will go on throughout 2013. Ministry of Education and Research will follow the results and implementation closely. A new education as an arctic guide will be initiated at the commercial school in Qaqortoq. Additional resources outside the Greenland Education Programme have been made available by Ministry of Education and Research to create more apprenticeship places. These resources will be directed to establishment of physical capacity for expanding school apprenticeships either through refurbishment or rental of buildings (ca. 133.000). Resources from this effort will also be used for paving the way for more students for them to take up an apprenticeship in Denmark (ca. 67.000 ). The activities above together with increased efforts for monitoring, data collection, analysis and a pool of funds for folk high school stays, boot-camp and other concrete projects at Piareersarfiit
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(described under focal area 2) amounts to a total extra appropriation from the Ministry of Education and Research of 3.9 m. Targets The results under focal area 1 are evaluated on the basis of the following indicators: Applicants, vocational education and training and high school (indicator 3.1 and 3.2) Attendance, vocational education and training and high school (indicator 4.a) Apprenticeships (indicator 5)
Applicants (indicator 3.1 and 3.2).

Table 10: Applicants for Vocational Education and Training (indicator 3.1)
Difference Result 2006 Result 2007 Result 2008 Result 2009 Result 2010 Result 2011 Result 2012 Target 2013 target 2013 % of result 2012 Total Indexed 2006= 100
Source: Ministry of Education and Research Note: This is an output indicator. Note: The index figure for 2010 as well as the total figure for 2011 has been corrected.
1,223
1,189
1,396
1,579
1,729
1,787
1,849
1,850
0.1 %
100
97
114
129
141
146
151
151
0.1 %
Table 11: Applicants for High School Education (indicator 3.2)
Difference Result Result 2006 2007 Result 2008 Result 2009 Result 2010 Result 2011 Result 2012 Target 2013 target 2013 in % of result 2012 Total Indexed 2008= 100 757 100 796 105 864 114 1.073 142 1.048 138 1050 139 0.2 % 0.2 %
Source: Ministry of Education and Research. Note 1): This is an output indicator. Note 2): The numbers presented in Table 11 differs from what was presented in AIR 2008. A new data reporting system was set up, resulting in more valid data.
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The target set for applicants for vocational education and training schools has been set conservatively. It is not a desired result to increase the number of applicants, as a decrease in drop-out and better study counselling will impact the number of applicants negatively. As the duration of vocational education is four years the number of apprenticeships77 needs to be expanded with the number of eligible applicants minus the number of students who dropped out or completed in the previous school year. As the number of applicants is higher than the attendance (of four school years) apprenticeship places is the most important limiting factor in further expansion of admissions to vocational education training. The Ministry of Education and Research does not currently have knowledge as to how many of the applicants meet the qualifications required to attend the education of their choice and how many does not. The number of applicants for High Schools is expected to stagnate in 2013. The stagnation expected in applications for the high school educations is due to several factors including that the double year group has been more or less taken care of by now. As with vocational education and training a decrease in drop-out and better study counselling will also have an impact on the number of applicants. Students attending VET and high school education (indicator 4a.1-4a.3).
Table 12: Number of students by type of education (indicator 4a.1)
Difference target 2013 in
Annual average growth

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Midterm Target 2013
Total VET High School
1,925 2,077 2,178 2,410 2,484 2,649 2,679 2,673 2,780 4.0 % 2,888 1,098 1,246 1,313 1,439 1,386 1,477 1,429 1,352 1,430 5.8 % 1,647 827 831 865 971 1,098 1,172 1,250 1,321 1,350 2.2 % 1,241
5% 3% 7%
Source: Statistics Greenland. Note: This is an output indicator. It is not a part of the calculation of the variable tranche in 2012.
77
It is the responsibility of the student to find an apprenticeship place in order to enroll vocational training
rate 2005-2012 in %
Target 2013
Result 2005
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
% of result 2012
Note: Total figures in Table 4 and Table 12 deviate due to different input data as the data is from different sources and collected at different times of the year.
Table 13: Number of attending students by type of education, relative to the relevant population (indicator 4a.2)
Total 15-19 VET High School Total 20-24 VET High School
Result 2005 16 % 5% 11 % 22 % 13 % 8%
Result 2006 17 % 5% 11 % 22 % 15 % 7%
Result 2007 18 % 6% 12 % 21 % 15 % 7%
Result 2008 20 % 6% 14 % 24 % 16 % 8%
Result 2009 23 % 6% 16 % 23 % 16 % 8%
Result 2010 24 % 7% 17 % 23 % 15 % 8%
Result 2011 24 % 6% 18 % 24 % 15 % 8%
Result 2012 24 % 5% 19 % 22 % 13 % 9%
Target 2013 25 % 5% 20 % 21 % 12 % 9%
Source: Statistics Greenland. Note: This is an output indicator. Note: This table has been changed due to a new calculation method.
Table 14: Students by type of education, indexed (2005 =100) (indicator 4a.3)
Total VET High School
Result 2005 100 100 100
Result 2006 108 113 100
Result 2007 113 120 105
Result 2008 125 131 117
Result 2009 129 126 133
Result 2010 138 135 142
Result 2011 139 130 151
Result 2012 139 123 160
Target 2013 144 130 163
Source: Statistics Greenland. Note: This is an output indicator.
In 2012 the total number of attendances stagnated. However the number of students is expected to grow in 2013 due to the number of students at vocational education and training schools is expected to reach the level from 2011. The low growth rate in the number of attendances within the vocational education and training schools over the last years is mainly due to capacity constraints at the educational institutions and the shortage in apprenticeships. In order to overcome these constraints the Government of Greenland are giving priority to expanding the institutional capacity and the creation of new apprenticeship places. The employer-side acknowledges the problem and is involved in finding solutions through the new boards on the vocational education and training schools. Another solution currently being investigated by the Ministry of Education and Research is to establish an agreement with educational institutions in Denmark having the necessary institutional and dormitory capacity to receive students from Greenland.
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Regrettably, the expected impact of these initiatives is not likely to be reflected in the indicators for 2013. The target for apprenticeships is thus set conservatively at 1,390 in 2013. Apprenticeships (indicator 5).
Table 15: Number of apprenticeships at Vocational Education and Training (indicator 5.1)
Differenc e target 2013 in % of result 2012
Average annual growth rate 20052012 in %
Total
1,098 1,100 1,098 1,316 1,376 1,377 1,431 1,384 1,390
Target 2013
Result 2005
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
0.4 %
3.4 %
Index 2005 =100
100
100
100
120
125
125
130
126
127
0.4 %
3.4 %
Source: Statistics Greenland. Note: This is an output indicator.
4.2.2
Focal area 2: Competence (skills training) courses, the Piareersarfiit and unskilled labour in the work force
Status Only about one-third of the potential workforce in the country has undertaken a programme of formal training or education. On-going activities Focal area 2 receives 7 m, or 12.5 %, of the Greenland Education Programme budget in 2013. The allocation of the total amount to different activities is shown in Figure 16.
Figure 16: Focal area 2 budget ( 7 m) divided into main categories
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Source: Finance Act 2013
Almost half of the budget (48 %) is allocated to develop competence courses. Support to Piareersarfiit accounts for 33 % of the budget for this focal area. The Mining and Construction School takes up 20 % of the budget. Planned new activities in 2013 The Piareersarfiit-centres are continuing the work related to the target groups. A boot-camp will be organised in 2013 based on positive experiences gathered in connection with the boot-camp 2012. 18 out of 22 young people who participated in the 2012 boot-camp are now at folk high schools in Denmark to improve their social and language skills. Ministry of Education and Research is monitoring these students individually (at Personal Identification number level) to learn more about their future education and the effectiveness of the boot-camp and subsequent folk high school78 stay. Hopefully they will enrol in an education in august 2013. Additional funding has been allocated to stays at folk high schools in Denmark for students who are challenged by social factors and have language difficulties. About 33.000 is allocated towards establishing new collaborations and agreements with Danish folk high schools. A pool of funds of 333.000 is also made available for extraordinary stays at continuation schools and folk high schools in for challenged students. The funds will be administrated and allocated by the Piareersarfiit.
78
Folk high school are institutions for adult education that generally do not grant academic degrees. Typically a student would spend
between 2-6 months at a folk high school.
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Activities will also be increased through extraordinary funding for non-literary preparatory courses. One additional boot-camp (adding to the one financed under GEP) and four other boot-camps are planned amounting to a total of 667,000. The boot-camp is currently put out to tender and is expected to be conducted in the fall 2014 in Qaqortoq. Targets The results under focal area 2 will be evaluated on the basis of the following indicators, which were developed in 2010 by Government of Greenland in cooperation with Statistics Greenland to ensure the best available measurement of the focus of the indicator: Attendance at skills and competence courses (indicator 4.b) Drop-out at skill- and competence courses (indicator 11.b) Enrolment into education after Piareersarfiit (indicator 12.b)
Table 16: Attendance at skills and competence courses (indicator 4.b)
Difference target 2013 in % of 2012 -11.2 % 39.4 % 78.1 % 28.0 % 8.7 % -4.9 % 21 %
Fishing Mining Electricity and water supply Construction Wholesale and retail trade and restaurants Hotels Transport Finance and insurance Sale of real estate Public administrations Other Total
262 59 0 26 63 40 0 0 0 425 0 875
75 93 0 50 74 45 0 0 0 340 0 641
111 50 0 81 34 82 0 0 0 509 0 867
98 104 0 146 75 23 0 0 0 283 0 729
87 145 0 260 96 25 0 0 0 269 0 882
Source: Ministry of Industry and Labour and Ministry of Education and Research. This is an outcome indicator. It does not enter into the calculation of the variable tranche in 2012.
Due to the flexibility of the funds within the area of skills and competency courses it is possible promptly to adjust educational plans to changes in employers needs, and thereby educating local people to undertake these jobs e.g. in 2012 a need for wildlife observers from the ships doing oil
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Midterm Target 2013 275 62 0 27 66 42 0 0 0 446 0 919
Result 2009
Result 2010
Result 2011
Result 2012
Target 2013
related surveys in the waters around Greenland occurred. This flexibility however can make it difficult to set targets for the indicator, as the indicator is counting heads rather than course weeks this is also why the target 2013 deviates from the midterm target 201379.
Table 17: Drop-out at skills and competence courses (indicator 11.b)
Result 2009
Result 2010
Result 2011
Result 2012
Target 2013
Fishing Mining Electricity and water supply Construction Wholesale and retail trade Hotels and restaurants Transport Finance and insurance Sale of real estate Public administrations Other Total
Source: Ministry of Education and Research.
22 3 0 5 11 6 0 0 0 28 0 75
8 4 0 8 20 4 0 0 0 37 0 81
8 4 0 8 21 4 0 0 0 39 0 85
0 11 0 8 7 0 0 0 0 36 0 62
0 21 0 8 5 0 0 0 0 36 0 69
This is an output indicator and part of the variable tranche calculation 2013.
The indicator 11b drop-out at skills and competence courses indicates an average drop-out rate over the last 3 years (2010-2012) of 10.2 %, which is relatively low compared to other types of
79
Regrettable data on number of participant weeks are not available at this point, as this would provide a better picture of the development in the activity in relation to indicator 4.b.
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education (high school, VET and higher education). There have been no surveys exploring the reasons for drop-out in this area, mainly due to the small percentage of drop-out.
Table 18: Enrolment into education after Piareersarfiit (indicator 12.b)
Result 2010 VET High School Higher Education Total

This is an outcome indicator.
Result 2011 138 33 0 171
Result 2012 113 66 2 181
Target 2013
100 43 29 172
120 45 25 190
Source: Ministry of Industry and Labour and Ministry of Education and Research
Table 19: Enrolment into education after Piareersarfiit, relative to attendance (indicator 12.b)
Result 2010
Result 2011
Result 2012
Target 2013
VET High School Higher Education Total
14.0 % 6.0 % 4.0 % 24.0 %
18.3 % 4.4 % 0.0 % 22.7 %
14.6 % 8.5 % 0.3 % 23.4 %
16 % 5% 4% 25 %
Source: Ministry of Industry and Labour market and the Ministry of Education and Research
Most people attending Piareersarfiit, primarily attend courses qualifying for admission to vocational education and training educations (the so-called AEU-courses). Consequently the relative share continuing to high school and higher education is relatively small. In addition the high school reform will make it easier for school leavers to continue directly to high school without having to attend qualifying courses at Piareersarfiit. Therefore a small number in the relative share of students enrolling into high school and higher education could actually be a positive sign of school leavers progressing faster through the education system.
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4.2.3 Status
Focal area 3: Higher education and strategic sectors
Focal area 3 receives 12.7 m, or 22.6 %, of the Greenland Education Programme budget in 2013. The allocation of the total amount to different activities is shown in Figure 17.
Figure 17: Focal area 3 budget ( 12.7 m) divided into main categories
Source: Finance Act 2013. (The category other reflects a number of smaller categories, too diverse to categorize, please see annex 2 focal areas expenditures for detailed list of each focal areas expenditures)
A large part of the budget, around 22 %, is allocated for upgrading qualifications within the Health and Social sector. The funding under focal area 3 supports beside that a great variety of supply of courses organised at the VET schools aimed at various other strategic sectors such as tourism. A detailed list of the activities can be seen in annex 2. Planned new initiatives in 2013 Many of the activities under this focal area are on-going.
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Capacity and activities will be expanded in 2013 by establishing three new associate professorships at The University of Greenland. Further, one extra class will be established at the teacher training college.
Targets The results under focal area 3 are evaluated on the basis of the following indicators: Applicants, higher education (indicator 3.3) Attendance in higher education (indicator 4.c.1 and 4c.2)
Applicants for higher education (indicator 3.3):

Table 20: Applicants for Higher Education (indicator 3.3)
Result Result Result Result 2008 2009 2010 2011
Result 2012
Target 2013
Difference target 2013 in % of result 2012
Total Indexed 2008=100
551
615
667
741
731
750
2.6 %
100
112
121
134
133
136
2.6 %
Source: Ministry of Education and Research. Note 1): The numbers presented in Table 20 differs from what was presented in AIR 2011. A new data reporting system was set up, resulting in more valid data. Note 2): This is an output indicator and not part of the variable tranche in 2012
Although in previous years a growth of approximately one hundred students attending higher education per year has been seen, the targets for 2013 have been set very conservatively as it is expected the maximum number of potentially qualified and motivated students has been reached. This is also therefore that the target for 2013 deviates from the midterm target 2013. However it is worth noticing that since 2005 there has been a rinse in attendance of 51 %.
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Students attending higher education (indicator 4c):

Table 21: Number of students in higher education, by type (indicator 4c.1)
Difference target 2013 in % of result 2012
Total First cycle Second cycle
775 454 321
840 489 351
862 497 365
924 534 390
930 1,031 1,149 1,188 1,250 5.2 % 510 420 572 459 660 489 697 491 750 500 7.6 % 1.8 %
1,488
6.3 % 6.3 % 6.3 %
Source: Statistics Greenland. Note: This is an outcome indicator. It enters the calculation of the variable tranche with a weight of 10 % in 2012.
Table 22: Students in higher education, by type (2005=100) (indicator 4c.2)
Result 2005 Total First cycle Second cycle 100 100
Result Result Result Result Result Result 2006 2007 2008 2009 2010 2011 108 108 111 109 119 118 120 112 133 126 148 145
Result 2012 153 154
Target 2013 161 165
100
109
114
121
131
143
152
153
156
Source: Statistics Greenland. Note: This is an outcome indicator.
4.2.4
Focal area 4: Cross-cutting initiatives
On-going activities Focal area 4 receives 9.1 m, or 18.1 %, of the Greenland Education Programme budget in 2012. The allocation of the total amount to different activities is shown in Figure 18.
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Annual growth rate 20052012 in %
Midterm Target 2013
Target 2013
Result 2006
Result 2005
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
Figure 18: Focal area 4 budget ( 14.9m) divided into main categories
The study grant system continues in 2013 without any significant changes. A total of 26.8 m is allocated in 2013 for study grants. Part of this, namely study grants derived from more students being admitted to programmes (and increase in study grants in connection with the double yeargroup), is financed under the Greenland Education Programme with 13.8 m and 1.2 m respectively. New planned activities in 2013 From 1 of January Greenlandic Students studying in Denmark were transferred to the Danish study grant system. The students retain the privileges of the Greenlandic system including free travel to and from Denmark at commencement and end of study, subsidy for buying books and one free travel between Denmark and Greenland every year. This policy is expected to represent a net economic gain for the students while at the same time representing a cost-reduction for the Government of Greenland. The resources saved by the policy are transferred to the high school area, so the cost-reduction does not represent a cut in the education budget. The effects of the law will be monitored by the Ministry of Education and Research throughout the year. Targets The results under focal area 4 are evaluated on the basis of the indicator that measures public expenditure on education, which is a precondition for managing a cash based study grant system. Target for 2012 is set in accordance with the approved Finance Act for 2012.
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Table 23,Table 24 and Table 25 summarizes results and targets for this indicator. Expenditure on education (indicator 1).
Table 23: Expenditure on education as a percentage of total public expenditure (indicator 1.1)
Result Result Result Result Result Result Result Result Target 2005 2006 2007 2008 2009 2010 2011 2012 2013 16.1 % 15.5 % 17.6 % 19.7 % 19.2 % 19.2 % 19.7 % 19.2 % 18.2 %
Source: Finance Act for various years. Note: This is input indicator.
Difference between target 2013 and result from 2012 %-point -1.0 %
Table 24: Expenditure on education (Million Euro) (indicator 1.2)
Difference target 2013 in % of result 2012 -5 %
Average Annual growth rate 20052012 6%
Result 2005
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
Result 2006
115.5
114.7
141.3
161.4
167.3
167.9
174.0
169.5 159.4
Source: Finance Act for various years. Note: This is input indicator. It enters the calculation of the variable tranche with a weight of 10 % in 2012.
Table 25: Expenditure on education, indexed (2005=100) (indicator 1.3)
Result 2005 100
Result 2006 99
Result 2007 122
Result 2008 140
Result 2009 145
Result 2010 146
Result 2011 151
Target 2013
Result 2012 147
Target 2013 138
Source: Finance Act for various years. Note: This is input indicator.
4.2.5 Status
Focal area 5: Drop-out rates and completion
It is obvious that the drop-out is especially a problem for optimal utilization of the resources in the education sector. The drop-out rate is especially high with youth education, i.e. vocational education and training educations and high schools. After a steady decrease in the general drop-out rate from 2005 to 2008 the drop-out-rate rose steeply in 2009, especially for the vocational education and training educations schools. This
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development seems likely to be connected to the effect of the financial crisis in progress, as employers become more hesitant to hire an apprentice, and will have to fire one in case of bankruptcy. In addition some students with kids might drop-out to find a job, if their partner is affected by unemployment. However in 2012 it increased to 24.5 %, the highest level ever. At this point the reasons behind this deterioration have not been fully investigated. However in order to explain these changes in dropout an investigation is currently in progress, with the support of the European Commission. It is expected drop-out-rates will improve in 2013 as a result of the new insight obtained through the technical assistance in 2013, and subsequent initiatives. Focal area 5 receives 0.8 m, or 1.5 %, of the Greenland Education Programme budget in 2013. The allocation of the total amount to different activities is shown in Figure 19.
Planned new activities in 2013 It is expected that the implementation of the high school reform will reduce drop-out-rates. However a preliminary assessment of the impact will not be possible before august 2013 when the reform has been effective for one school year. The counselling effort will be intensified through additional resources appropriated by the Ministry of Education and Research of total 573.000. These resources will be allocated towards development of further education for counsellors and one extra class at the education for
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counsellors and increased counselling for young people in the settlements during transition periods in the education system. Targets The results under focal area 5 are evaluated on the basis of the following indicators: Number of graduates (indicator 9) Number of repeaters (indicator 10) Number of drop-outs (indicator 11a)
Number of graduates (indicator 9): The total number of graduates was 951 in 2012. This is a growth of 11.8 % compared with 2011. The average annual growth over the period 2005-2012 was 7.4 %. The target for 2013 is reflecting that the growth rate of graduates is stabilizing at a lower level, due to the fact that the absolute number of students have increased to significantly higher level, in other words Greenland is reaching a point where the number will not increase much within the current capacity. It is worth noticing that the target for 2013 is set 23 % above the mid-term target 2013. In the first year of the Greenland Education Plan the most qualified and motivated students were attracted into education, as the programme is progressing the residual group becomes more difficult to attract and retain in the education system. In addition some students may apply for an education to obtain accommodation and study grants, as housing and unskilled jobs are becoming increasingly difficult to find. The residual group has a higher risk of drop-out due to lack of motivation or qualifications. Consequently the new high school reform attempts to cope with these new challenges.
Table 26: Number of graduates by type of education (indicator 9.1)
Total
581 597 679 716 754 799 851 951 1,000 5.2% 813
Average annual growth rate 20052012 in % 6.4%

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Difference Target 2013 in % of 2012
Midterm Target 2013
Target 2013
Result 2005
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
VET High School
247 251 292 309 331 321 395 428 173 213 221 237 236 278 275 314
430 350 220 145 75
0.5% 346 11.5% 242 5.3% 220 5.1% 145 5.6% 75
7.1% 7.7% 3.3% 3.4% 3.2%
Total Higher Education 161 133 166 170 187 200 181 209 Of which first cycle Of which second cycle
Source: Statistics Greenland.
106 85 111 115 116 124 137 138 55 48 55 55 71 76 44 71
Note: This is an outcome indicator. It enters the calculation of the variable tranche with a weight of 20 % in 2012.
Table 27: Graduates by type of education, indexed 2005=100 (indicator 9.2)
Total VET High School Education Total Higher education Of which first cycle Of which second cycle
100 100
103 102
117 118
123 125
130 134
138 130
146 160
164 173
172 174
100
123
128
137
136
161
159
182
202
100
83
103
106
116
124
112
130
137
100
80
105
108
109
117
129
130
137
100
87
100
100
129
138
80
129
136
Source: Statistics Greenland. Note: This is an outcome indicator.
Repeaters (indicator 10)

Table 28: Repeaters attending relative to total attendance in vocational education and training and high school education (indicator 10.2)
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Midterm Target 2013 140 140 140 140 140 140
Result 2005
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
Target 2013
Result 2005 Total VET High School 2.4 1.6 3.5
Result 2006 1.9 1.4 2.6
Result 2007 1.7 2.1 1.3
Result 2008 2.8 1.9 4.1
Result 2009 2.6 2.5 2.7
Result 2010 2.9 2.9 2.9
Result 2011 2.7 2.3 3.0
Result 2012 3.7 3.5 4.0
Target 2013 3.7 3.5 4.0
Source: Statistics Greenland. Note: This is an outcome indicator. Note: Figures for VET and High School has changed due to a correction in calculation method (repeaters relative to attendance, not total attendance).
There is not yet an explanation for the huge increase in the drop-out rates for 2012, but the Ministry of Education and Research does expect the rate to drop in 2013. The target for 2013 have been set higher than the achieved result in 2011 and higher than the mid-term target 2013 due to a number of factors: There is still a capacity problem in the dormitories and institutional buildings due to the large backlog in buildings which need renovating (cf. section 2.9). An increased intake of students in some institutions, for example at the School for Health Educations where three new educations were started in 2011 might also increase overall drop-out-rates as certain educations experiences higher drop-out-rates than others for a number of reasons including future prospects, attractive alternatives and family reasons. Furthermore, it is difficult to predict the development in the high school, as the reform is aiming for a more inclusive high school. However, the other side of this may be increased drop-out rates due to lower admission demands than previous years Number of students to drop-out from formal education (indicator 11a):
Table 29: Drop-out rate relative to total attendance by type of education (indicator 11a.2)
Difference target 2013 in %-point of 2012 -2.2 %point -8.1 %point -0.7 %point
Total VET High School Education
23.7 26.5
23.6 23.0
22.2 22.1
21.5 19.5
23.7 26.5
23.8 28.3
20.0 25.3
24.5 33.1
22.3 25
21.6
26.2
21.6
24.7
23.7
21.9
17.4
18.7
18
136
Midterm Target 2013 20 20 18
Target 2013
Result 2005
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
Total Higher Education Of which first cycle Of which Second cycle

Source: Statistics Greenland. Note: This is an outcome indicator. It enters into the calculation of the variable tranche with a weight of 10 % in 2012.
21.8
21.9
23.0
20.6
19.6
19.4
16.1
21.0
19.8
-1.2 %point -0.1 %point -2.8 %point
18
24.4
26.0
21.9
22.0
21.8
19.8
15.2
18.1
18
18
18.1
16.2
24.4
18.8
16.9
19.0
17.4
25.3
22.5
18
4.2.6
Focal area 6: Building and housing
Status Problems with the structural framework of the education sector became very visible during 2011. Many buildings related to the educational system have been infested with mold, some dormitories where due to that closed and alternative accommodation had to be found for the students, thus
137
long waiting lists showed up in Nuuk, Aasiaat and Qaqortoq again during 2011. This tendency has continued through 2012 At present it is estimated that a number of units are in a condition that must be characterized as unsatisfactory. Also at several institutions they had to rent rooms on the private market to meet demand for dormitories, which is an expensive solution for the institutions. All in all, approximately 670 units is needed if it has to be insured that dormitories are of sufficient quality and that all demand are met by owned capacity. It is not possible to make forecasts on the dormitory capacity in 2013, due to the complex nature of this field and due to the fact that the school year begins midway in a calendar year. Government of Greenland reports within the frame of a calendar year, whereas the dormitory capacity is relevant during a school year.
Table 30: Dormitory Capacity 2012
City Aasiaat Ilulissat Maniitsoq Narsaq Nuuk Paamiut Sisimiut Qaqortoq Total
Education 233 161 0 85 570 59 321 181 1,610
Piareersarfiit 29 40 26 12 31 0 80 16 234
Total 262 201 26 97 601 59 401 197 1,844
Rentals 98 0 0 5 43 0 0 68 214
Source: Ministry of Education and Research.
On-going activities and expected expansion

Table 31: Dormitories and buildings
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Result 2011
Result 2012
Expected 2013
Under contract 2013 (not expected completed until 2014/2015) 50
Dormitories completed (7.a) New educational institutions completed (7.b) Extensions of educational institutions completed (7.c) Renovation of educational institutions
Source: Ministry of Education and Research. Note: This is an output indicator.
156
88
241
Note: Out of the 88 dormitories completed 30 were replacements for others that were taken out of use. Furthermore were 27 dormitories were renovated in 2012.
Indicator 7a. Number of dormitories completed: 241 dormitories (units) are expected completed in 2013, 50 units will be contracted during 2013. Indicator 7b. New educational institutions completed: None are expected for 2013. Indicator 7.c: Extensions of educational institutions completed There is on-going extension of the high school in Aasiaat. It is expected to be finalized in 2015. 4.2.7 Focal area 7: Structural monitoring, development potential and perspectives.
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Figure 21 Focal area 7 budget ( 2.6 m) divided into main categories
The Good Day Care Reform makes up 26 % of the allocated funds under focal area 7. Recent research has shown that the condition for success in further education is laid out in the early childhood. Therefore day care is being seen as one of the important areas regarding development of children in to school children and then young adults with competencies to begin further education. Also looking into the use of ICT and e-learning as a way of improving teaching conditions is important and the share of the budget is 33 %. Planned new activities in 2013 Many of the initiatives from the Greenland Education Programme I are currently on-going. Monitoring, evaluation and adjustments to on-going initiatives will therefore be highly prioritised in 2013. At the same time the preparation of the Greenland Education Programme II is in progress. The development of the new programme and the monitoring and evaluation effort will be linked together in order to root the future education programme in the experiences gathered during the Greenland Education Programme I. The focus on evaluation and monitoring is strengthened by the expansion of the Ministry of Education and Research section for analysis and monitoring by two full time positions. The project groups that are working on the development of the Greenland Education Programme II consist of representatives of the relevant stakeholders in each focal area of the programme and is
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directed and coordinated from the Ministry of Education and Research. Project groups are appointed to give their recommendations on the following areas: Pre-school Elementary school Young people outside the education system (the residual group) Youth education programmes Higher education People with special needs including lack in reading and writing proficiency Management and leadership educations Education during free time Study grants and education outside Greenland Information- and communication technology in the education system Resource allocation
The project groups gave their recommendations in March 2013. The Ministry of Education and Research will consequently prepare the new education programme for presentation on the autumn assembly of the parliament in September. Because of the election and subsequently new government in march 2013, the new education programme will now be prepared for presentation at the spring assembly 2014 by the Ministry of Education, Church, Culture and Gender Equality. Development of the youth database is in progress and is expected to be finished in 2013. This database will be an important tool for surveying the educational behaviour of the target groups and identify subpopulations that need increased focus. Targets and impact indicators Most of the targets that are related to focus area 7 are impact indicators monitoring medium to long term impact on the Greenlandic society. Indicators 12.a and 8 are included in the variable tranche calculation. Indicator 8 As mentioned above the main goal of the Greenland Education Programme is that 2/3 of the workforce should have an education at minimum level 3 by ISCED standards80 by 2020. This is in
ISCED is designed to serve as an instrument suitable for assembling, compiling and presenting comparable indicators and statistics of education both within individual countries and internationally. It presents standard concepts, definitions and classifications. ISCED covers all organized and sustained learning opportunities for children, youth and adults including those with special needs
80
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practice measured by the internationally accepted classification ISCED. Up until now there have been no official statistics measuring the level of education in Greenland. In 2010 Statistics Greenland did the first calculations based on register data for the use of measuring the value of indicator 8. For results see Table 32 and Table 33 below.
Table 32: Share of work force divided by ISCED level (total numbers)
ISCED
Result 2008
Result 2009
Result 2010
Result 2011
Result 2012
Target 2013
ISCED level 0-2
21,812
21,775
21,944
21,612
21,149
21,000
ISCED level 3-6 Total
11,519 33,331
11,765 33,520
11,650 33,594
11,889 33,501
12,338 33,487
12,500 33,500
Note: This is an outcome indicator. It enters into the calculation of the variable tranche with a weight of 20 % in 2012
Table 33: Share of work force divided by ISCED level (percentage)
ISCED ISCED level 0-2 ISCED level 3-6 Total
Result 2008 65.4
Result 2009 64.9
Result 2010 65.3
Result 2011 64.5
Result 2012 63.2
Target 2013 63
Midterm Target 2013 60
34.6 100
35.1 100
34.7 100
35.5 100
36.8 100
37 100
40 100
The source data contains some drawbacks and flaws that mean that the measured level of the education level is at best a minimum level number. First and foremost, the register data for the persons educated receiving Greenlandic study grants only covers the period from 1980 and onwards, meaning that the older part of the population is not covered by the statistics. Secondly,
Education, irrespective of the institution or entity providing them or the form in which they are delivered. For further information see: http://www.stat.gl/dialog/main.asp?lang=da&version=201001&link=UD&colcode=m&version=201001
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the part of the work force that has achieved an education without study grants, but has received salary during the education, such as policemen and airplane mechanics, are only partly covered. Statistics Greenland has not been able to make adjustments to the above statistics to cover these areas with estimates, and to come closer to a reliable number of the level of education. The reported statistics does however give a reasonable good picture of the overall positive development in the level of education. In addition the lack of adequate housing is a barrier to job insertion after finalised education. Geographical mobility is slowed down due to the scarcity of housing both publicly owned and the private rentals. As a result neither the Government of Greenland nor the municipalities can offer housing to their new employees. Consequently job insertion after finalised education is delayed due to lack of accommodation reflected by the indicator into a lower level of education than actual. In other words the indicator underestimates the level of education of the Greenlandic work force. Finally, it should be noted that the definition of the Greenlandic work force differs from the international standard used by OECD which defines the work force as persons in the age group from 15-64 years, while the Greenlandic work force is defined as persons in the age group 18-64 years, excluding those persons receiving study grants or social benefits, i.e. not available for the labour market. Indicator 12a: Job insertion, number of graduates from formal education obtaining a job after This indicator was introduced in the Annual Work Plan 2009 to the calculation of the variable tranche in the 2010. Indicator 12.a1 measures how many graduates obtain a job. The impact year, i.e. the year of obtaining a job, is set as one year after graduation. The relation to the labour market is measured using the reporting of salaries to The Tax Agency. A person is considered to be job inserted if the yearly wage is above 100.000 DKK (13.333 Euro). Study Grants are not counted as part of wages. Seeing as the number of graduates continues to rise, the Ministry of Education, Church, Culture and Gender Equality still foresees a rise in the number of graduates obtaining a job. As the number of graduates in 2011 decreased within high school and higher education (second cycle), the number obtaining a job in 2012 is expected to decrease as well. Within the number of graduates obtaining a job relative to the total number of graduates, it is predicted that a higher share of
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graduates from vocational education and training will obtain a job whereas a higher share of graduates from higher education second cycle will continue their studies and not enter the job market. Also there is a shortage of jobs offered with housing which might also have an influence on whether a graduate continues studying or obtains a job.
Table 34: Graduates obtaining a job (numbers), (Indicator 12.a1)
Result 2008 Total Of which VET Of which high school Of which higher education (first cycle) Of which higher education (second cycle)
Source: Statistics Greenland.
Result 2009 451 251 85 92
Result 2010 441 245 89 89
Result 2011 451 253 71 100
Target 2012 515 320 70 110
399 231 66 88
14
23
18
27
15
Note: This is an outcome indicator. It enters the calculation of the variable with a weight of 10 % in 2012.
Table 35: Graduates obtaining a job (in Greenland, based on tax records) relative to total graduates, (Indicator 12.a2)
Result 2008 Total Of which VET Of which high school Of which higher education (first cycle) Of which higher education (second cycle) 26 % 79 % 59 % 79 % 30 %
Result 2009 63 % 81 % 36 % 80 %
Result 2010 58 % 74 % 38 % 74 %
Result 2011 59 % 79 % 25 % 80 %
Target 2012 64 % 81 % 25 % 80 %
42 %
25 %
36 %
34 %
Source: Ministry of Education and Research calculated on the basis of figures for indicator 12a from Statistics Greenland.
Enterprise start-ups (indicator 13). Data received from Statistics Greenland concerning this indicator show implausible values at aggregated as well as disaggregated level. The problem still
144
seems to be the registration in GER (Grnlands Erhvervs Register/Business Register of Greenland). GER still seems to register genuine new enterprises as well as old enterprises that have registered for the first time. It is not possible to divide between these two forms of registrations and for this reason the reported statistic is a mixture of new enterprises and old enterprises that enters the register for the first time. The share of old enterprises that registers for the first time seems still to be of a great magnitude and for this reason no reporting will be done in the Annual Work Plan 2013 or the Annual Implementation Report 2012 regarding this indicator. However, Statistics Greenland and the Ministry of Education and Research continue to evaluate the quality of the business register to see if improvement in the statistical data occurs. GDP (indicator 14). It should be noted that the national accounts of Greenland was revised back in time with the release of the new time series in December 2011. The new data are based on the production account method in accordance with the recommendations in EUs statistical system ESA95.
Table 36: GDP (Indicator 14)
Result 2006 GDP per capita, Euro (indicator 14.1) GDP per capita, indexed (indicator 14.2) 100 25,239
Result 2007
Result 2008
Result 2009 (prel.)
Result 2010 (prel.)
Result 2011 (prel.)
Result 2012 (est.)
Target 2013
Midterm Target 2013
26,140
27,715
28,770
30,094
30,758
31,321
31,954
28,801
104
110
114
119
122
124
127
114
Note1): This is an impact indicator. Note2): Due to an error it was not noted in the Annual Work Plan 2012 that the figures for indicator 14 for the years from 2006 to 2011 were preliminary. This year only the figures from 2009 to 2011 are preliminary and the figures from 2012 are estimated. Because the figures for 2006 were preliminary in 2012 and the final figures are now available the baseline has therefor been changed for this indicator.
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Total external grants by origin (indicator 15).

Table 37: Total external grants by origin (Denmark and EU) (In Euro)
Result 2005 Total From EU From DK
Result 2006
Result 2007
Result 2008
Result 2009
Result 2010
Result 2011
Expected 2012 608,104 41,982 566,121
528,483 544,375 557,753 575,501 601,794 605,936 616,581 42,426 42,927 42,251 42,479 42,514 42,280 41,153
Expected 2012 % of 2011 -1 % 2% -2 %
486,057 501,448 515,501 533,021 559,280 563,656 575,428
Source: Statistics Greenland Note: This is an impact indicator. Note: This indicator cannot be updated due to delays on data from Statistics Greenland. The figures for 2012 are expected finished by the end of November, which is too late to be included in this report.
Table 38: Total external grants in percentage of total public budget (indicator 15.2)
Result 2005 Total From EU From DK 52.6 % 4.2 % 48.4 %
Result 2006 51.1 % 4.0 % 47.1 %
Result 2007 50.4 % 3.8 % 46.6 %
Result 2008 49.1 % 3.6 % 45.4 %
Result 2009 48.2 % 3.4 % 44.8 %
Result 2010 48.4 % 3.4 % 45.0 %
Result 2011 49.5 % 3.3 % 46.2 %
Source: Statistics Greenland. Note: This is an impact indicator. Note: This indicator cannot be updated due to delays on data from Statistics Greenland. The figures for 2012 are expected finished by the end of November, which is too late to be included in this report. Table 39: Total external grants by origin (Denmark and EU) 2005=100 (indicator 15.3)
Result 2005 Total From EU From Denmark 100 100
Result 2006 103 101
Result 2007 106 100
Result 2008 109 100
Result 2009 114 100
Result 2010 115 100
Result 2011 117 97 118
100
103
106
110
115
116
Source: Statistics Greenland. Note: This is an impact indicator. Note: This indicator cannot be updated due to delays on data from Statistics Greenland. The figures for 2012 are expected finished by the end of November, which is too late to be included in this report.
146
Employment (indicator 16): Below is listed the indicators measuring aspects of employment (indicator 16). No targets are set in relation to these indicators. It should be noted that the method of calculation has been changed between 2006 and 2007 by Statistics Greenland, making a comparison between the years and midterm target 2013 difficult.
Table 40: Employment by sectors, numbers (indicator 16.1)
Result 2005 Total 1. Agriculture, horticulture forestry 2. Fishing 3. Mining and quarrying 4. Mfr. Of food, beverages and tobacco 5. Mfr. of textiles 6. Mfr. of wood products, printing and publ. 7. Mfr. of chemicals and plastic products 8. Mfr. of other nonmetallic mineral products 9. Mfr. of basic metals and fabr. metal prod. 10. Electricity and water supply 11. Construction 12. Sale and rep. Of motor vehicles, sales of auto 13. Wholesale except of motor vehicles 14. Re. trade and 28,715 16 1,404 139 602 33 99 4 11 117 445 2,864 228 1,793 2,755
Result 2006 29,473 14 1,442 160 653 32 99 5 10 126 420 2,904 243 1,933 2,827
Result Result 81 2007 2008 23,022 11 1,121 34 724 34 86 5 8 70 383 1,770 213 2,717 1,697 24,424 9 1,301 41 738 33 91 2 9 74 389 1,952 203 3,202 1,685
Result 2009 24,228 7 1,203 28 704 31 84 3 10 68 394 1,950 212 2,822 1,682
Result 2010 23,826 9 1,192 18 615 30 63 3 9 67 401 1,823 211 2,672 1,629
Result 2011 25,581 10 1.080 64 606 32 53 3 10 65 386 1.736 192 2.677 1.607
Midterm Target 2013 29,968
81
New method of calculation the Employment by sector was put in use, thus the big difference in the figures.
147
repair work ex. of motor vehicle 15. Hotels and restaurants 16. Transport 17. Post and telecom. 18. Finance and insurance 19. Letting/sale of real estate 20. Business activities 21. Public administration 22. Education 23. Human health act. 24. Social institutions 25. Associations, culture and refuse disposal 26. Activity not stated 881 2,111 386 161 383 786 12,888 44 8 49 507 3 859 2,204 374 166 386 895 13,064 50 8 77 518 3 777 1,780 521 262 302 632 9,043 67 5 84 465 212 788 1,850 517 223 460 748 9,406 74 5 100 477 39 771 2,019 516 125 409 785 9,699 82 6 102 489 28 799 1,995 518 124 375 818 9,729 92 6 107 500 24 800 2,015 480 125 371 808 9.686 80 9 123 504 60
Source: Statistics Greenland. Rounding to whole figures by Ministry of Education and Research Note: This is an impact indicator.
Seeing as the method for calculating the figures for Indicator 16 keeps being changed by Statistics Greenland, it does not make any sense comparing the figures in an index table, thus such a table is no longer shown in this report. Health (indicator 17). Experienced health achievements in the Greenlandic society are considered as a direct result of those significant societal changes that has happened since beginning of the 20th century. Among the changes that have had greatest influence (positively as well as negatively) on social and health status of the Greenlandic population are the following82: The transition from a traditional hunting based society to a modern society based on wage earning. Improvements in: housing conditions, waste disposal and food security. Increased contact with the rest of the world. Immigration of Europeans to Greenland implying increase of total population as well as higher population concentrations.
82
From the National Plan on Public Health of the Greenlandic Population 2007-2012, cf. http://www.peqqik.gl/Home/Sundhed/~/media/7D18669C75BD44479F42825260AF8C22.ashx
148
Changes in diet and physical activity. Increased access to alcohol and tobacco. Increased access to modern and effective health care. Change in the family pattern from 3 generations in one household to 2 generations. Improvements in the populations general educational level.
Improvements in the public health status of the Greenland population status have therefore been dependent on the relative combined impact of developments in mainly basic social and societal conditions. The experiences from Greenland are therefore comparable to international evidence that mainly improvements in population nutritional status, general housing conditions, increased education level, high employment level and a high degree of social and economic equality constitutes the most important factors for improvements in the population heath status. Education policy is to a large degree based on this evidence including new horizontal strategies (children & youth, regional development, general welfare) In the past 30-40 years many of the life style factors related to modern life found in the developed world populations are also found to have a significant impact in Greenland. These include an elevated level of alcohol and tobacco consumption, limited physical activity and unhealthy diet habits causing cancer and circulatory diseases. The Greenlandic population is therefore described as being subject to a double disease burden, i.e. with disease burden components characteristic for a population in transition in addition to disease components common for populations in developed countries. A particular public health related issue in Greenland is the high rate of suicide, which is found to be among the highest in the world. Suicides are mainly found among males in the age group 1535 years and the phenomenon is also found in many other indigenous populations in the Arctic area. Possible explanations for the particular high suicide rates have been suggested83 but no exact reasons are identified for the high suicide rate in Greenland. A national strategy for suicide prevention was launched in 200484. Though significant improvements has happened in this key public health indicator during the past 30-40 years infant mortality rate (IMR) is found to be relatively high not only to developed countries but also compared to other Arctic populations. Main reasons for the experienced improvements are
83
Coping and adaptation issues related to life in a modern society including change in related sex roles are one of the hypotheses for the high suicide rate among young Greenlandic men. 84 See link to National Strategy for Suicide Prevention: http://www.peqqik.gl/Home/Sundhed/~/media/ADE5BBDBA37F4D1B9F5B555A75C8BFF3.ashx
149
found to be general improvements in general life conditions but also issues related to effectiveness and coverage in the health care sector are found to have an impact also for potential future improvements. Life expectancy at birth (LEB) is still at a relatively low level compared to other developing countries but comparable to other indigenous populations in the Arctic. Main reasons for the relative low life expectancy are due to the high rates of violent deaths, including suicides, as well as the relatively high IMR. Accidents and injuries are also causing a high toll of years lost, in particular among men. Alcohol consumption in combination with the specific climate conditions prevailing in Greenland provide risk factors where accidents often can have fatal consequences, e.g. at sea. Suicides and other violent deaths (including alcohol related accidents and injuries) are therefore main reasons for the difference in life expectancy on app. 5 years between Greenlandic men and women. LEB has increased steadily from 2005 to 2011, by 2.3 years for men and by 1.7 year for women. This aggregate indicator therefore verifies overall progress in health status of the Greenlandic population. Below is listed the indicators measuring various aspects of public health in Greenland. No targets are set in relation to these indicators. It should be taken into consideration that the absolute magnitude of data behind many of the statistics below is small. This means that small changes in the absolute data can result in large changes in the relative aggregate data. Statistics about health are summarized in Table 41 to Table 46.
Table 41: Life expectancy at birth (Indicator 17.1)
Result 2001/2005
Result 2002/2006
Result 2003/2007
Result 2004/2008
Result 2005/2009
Result 2006/2010
Result 2007/2011 68.2 72.9
Male Female
65.9 71.2
66.1 71.7
66.7 71.9
67.1 72.1
67.9 72.2
67.8 72.8
Source: Statistics Greenland. Note: This is an impact indicator. Note: Five year average
150
Midterm Target 2013 68.7 72.5
Table 42: Birth rate- born per 1000 (indicator 17.2)
Result 2005 Male Female 8.0 7.6
Result 2006 7.3 7.6
Result 2007 7.9 7.2
Result 2008 7.8 7.0
Result 2009 8.4 7.5
Result Result 2010 2011 8.0 7.4 7.7 6.8
Result Midterm 2012 Target (prel.) 2013 6.9 7.0 14.0 15.0
Source: Statistics Greenland. Note: This is an impact indicator.
Table 43: Number of children per household (indicator 17.3)
Result Result Result Result Result Result Result Result 2005 2006 2007 2008 2009 2010 2011 2012 Male Female 0.41 0.40 0.41 0.39 0.40 0.38 0.38 0.37 0.37 0.36 0.36 0.35 0.35 0.34 0.34 0.35
Result Midterm 2013 Target (prel.) 2013 0.33 0.32 0.34 0.33
Source: Statistics Greenland. Note: This is an impact indicator. Note: Due to a change in what Statistics Greenland considers households the figures from the years 2005 to 2011 has been revised.
Table 44: Infant mortality, per 1,000 children born (indicator 17.4)
Result 2005 Total

Source: Statistics Greenland Note: This is an impact indicator
Result 2006 16.9
Result 2007 14.0
Result 2008 20.3
Result 2009 15.6
Result 2010 11.5
15.7
Note: This indicator cannot be updated due to delays on data from Statistics Greenland.
151
Table 45: Rate of suicide, per 1,000 inhabitants (indicator 17.5)
Age 2005 Male Female 2006 Male Female 2007 Male Female 2008 Male Female 2009 Male Female 2010 Male Female Midterm Target 2013
0-14
15-24
25-34
35-44
45-54
55+
Total
0.18 0.18
2.98 0.53
1.23 0.53
1.58 0.18
0.53 0.18
0.18 0.35
1.11 0.33
0.18 0.00
2.28 1.41
1.41 0.18
1.58 1.05
1.05 0.18
0.53 0.35
1.17 0.53
0.18 0.35
2.12 1.24
0.53 0.00
0.88 0.18
0.71 0.35
0.35 0.00
0.80 0.35
0.18 0.18
2.13 0.53
1.59 0.00
0.71 0.00
0.35 0.35
0.35 0.00
0.89 0.18
0.00 0.53
1.78 0.36
1.60 0.18
0.89 0.18
0.71 0.36
0.53 0.00
0.92 0.27
0.00 0.18
3.01 1.77
1.24 0.35
1.42 0.71
1.24 0.71
0.18 0.35
1.18 0.68
152
Male Female
0.89 0.18
Source: Statistics Greenland. It should be noted that the figures vary from previous years, because the National Health Office have reported in a new form to Statistics Greenland this year. Statistics Greenland report the figures on to Government of Greenland and does not change them to fit previous years reporting form. Note: This is an impact indicator. Note: This indicator cannot be updated due to delays on data from Statistics Greenland.
Table 46: Main diseases reported (Indicator 17.6)
Result 2006 Hepatitis Tuberculosis HIV positive AIDS Syphilis

Source: Statistics Greenland. Note: This is an impact indicator.
Result 2007 0 60 3 0 2
Result 2008 0 62 1 1 1
Result 2009 4 63 4 0 0
Result 2010 116 3 0
6 73 5 2 -
Midterm Target 2013 0 31 2 0 1
Note: This indicator cannot be updated due to delays on data from Statistics Greenland.
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KALAALLIT NUNAANNI NAMMINERSORLUTIK OQARTUSSAT