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KALAALLIT NUNAANNI NAMMINERSORLUTIK OQARTUSSAT
Annual Implementation Report 2018
Greenland Education Programme II
Ministry of Education, Culture, and Church
November 2019
The European Union The Government of Greenland
i
Executive Summary
The central focal point of education policy in Greenland is the Greenland Education Programme II.
Education is a key parameter in achieving the long-term goals of the Government of Greenland,
Naalakkersuisut (hereinafter “the Government”); both in terms of providing the population with the
necessary means to take up positions as skilled labour, and further in order to secure the administrative
and institutional capacity to provide counselling and implement the administrative and practical
consequences of reforms.
The Greenland Education Programme is subject to financial cooperation through budget support, in
connection with the Greenland Decision, defining cooperation between the European Union on the one
hand, and Greenland and the Kingdom of Denmark on the other. The indicative amount for the
implementation of the Greenland Decision the period of 2014 to 2020 is EUR 217.8 million. As part of this
agreement, the Government will submit an Annual Implementation Report to the European Commission
each year. The Annual Implementation Report is a tool for those responsible for the programme to
diagnose gaps, challenges, and progress as well as identify measures needed to improve progress. These
reflections and how to address challenges will then be reflected in the following Annual Work Plan. It is also
a tool for communication between the Government and the European Commission on plans, targets,
implementation, and performance of the Greenland Education Programme II.
In 2018, one of the main priorities was that the Government would continue its focus on initiatives to improve
the quality of elementary education. The elementary school system has been the object of much attention,
especially following the 2015 external evaluation “The Primary School of Greenland” and the 2016 final
evaluation of the Teacher Training Programme, summaries of which are included in Annexes 7 and 8. As both
evaluations pointed out, the political goals of lifting the quality of the elementary school system had not been
completely achieved, and further efforts were needed in order to provide children with a sound basis for lifelong
learning. Among the activities undertaken in 2018 was the work on increasing the use of IT in elementary
schools. Also, the Agency for Education has focused on improving cooperation with the municipalities as both
preschools and elementary schools remain a municipal responsibility. One of the main issues remain
recruitment and retention of personnel. Therefore, the Agency for Education has finalised a “Strategy and Action
Plan for professionals in day-care institutions” in 2018 (see Annex 11). The strategy will form the basis for future
initiatives targeting recruitment and retention of staff in preschools.
Furthermore, the Government continued its focus on accessibility to education, including a continuation of
the work on examining how distance learning can contribute to both a higher level of accessibility and a
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higher quality of education, especially for, but not limited to, the elementary and high school levels. The
scattered population and limited infrastructure in Greenland remains a challenge for recruting teachers for
elementary schools in settlements and for students to move to cities with youth education institutions.
Accessibility to education also covers a need for providing education opportunities for students who are
unable to follow regular in-class programmes due to a diagnosis such as autism or ADHD. In 2018, the
Government has therefore started both a trial distance learning high school programme (eGUX) and a trial
high school programme for students with a diagnosis (GUX-S).
In the Vocational Education and Training sector, the Government decided to work towards more coherence
between the education programmes offered and the needs of the labour market. In 2018, the Ministry of
Education therefore focused on developing new education programmes that fit the labour market needs, one
within technology management and two programmes targeting the fishing industry. Unfortunately, the number
of apprenticeships remain at a low level, as companies seem to remain reluctant despite improvements in the
economy. In 2018, the Ministry of Labour therefore continued to work on a bill that sets minimum requirements
for the number of apprentices a company must have based on the amount of skilled workers they employ.
In terms of higher education, the Ministry of Education presented a new Law on Higher Education at the
2018 Parliament Fall Session, which will be further discussed during Spring Session 2019. The new
legislation is, among other things, a continuation of the work towards implementing a procedure for quality
development, in order to live up to international standards. The implementation is expected to take as
much as a decade, since the process includes development of a quality culture and multiple cycles of
review to be undertaken in order to fulfil the standards of the European certification ESG-2015. The
Government also welcomed a new education programme at the University of Greenland, who is now
offering a Bachelor of Law with specific focus on the Greenlandic legal system.
Even though the education sector is experiencing an overall positive development, Greenland still faces
challenges in terms of education. A large group of children and young people still do not achieve the necessary
skills in elementary school in order to continue straight to youth education and therefore must acquire these in
other ways. In 2018, 45 % of the pupils leaving the elementary school progressed to further education within a
year, and even though there has been an increase since 2017, this rate needs to be improved further. The youth
group outside the education system is decreasing, indicating that it is becoming more and more natural for
young people to enrol in further education after completing elementary school. Meanwhile, there is still room
for significant improvement in terms of drop-out and completion rates.
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In light of the above, the Ministry of Education decided to start looking into possible long-term and
preferably cross-cutting solutions to address the challenges in the education sector, and in 2017 the
Government launched the preparatory work on creating a cohesive and flexible education system. The
future structure of the education system – if approved by Parliament – will consist of 12 years of
compulsory schooling, which in turn will create a natural basis for further education, both in Greenland and
abroad. In addition to a wide range of new flexible educational opportunities, it will still allow the
possibility of continuing straight to high school or vocational education after the 10th school year.
The total public expenditure for the education sector in 2018 was EUR 351.5 million, which accounts for
25.02 % of the total expenditure of the public sector. There has thus been a decline in expenditure on
education, both in relation to baseline year 2013 (25.8 %) and to 2017 (25.3 %). In 2018, the Greenland
Education Programme II included initiatives from the Education Plan II amounting to EUR 19.3 million.
Even though many of the indicators saw a positive development in 2018 and the trends in many areas seem
stable, some indicators did show a negative development. This indicates that there are still important
challenges to be solved regarding, in particular, the share of professionals in preschool and elementary
school, completion rates, and the share of young people outside the education system.
For the variable tranche indicators, EU2b, EU4, EU8 and EU13 were fully met. EU11a2 was below baseline
and was thus not achieved. The overall achievement rate for the variable tranche is 80 %, which is higher
than in 2017 (73.94 %).
No. Indicator Weight
2018 Baseline
2013 Target 2018
Result 2018
Target Achieve-
ment*
Contri- bution**
EU2b Share of professionals in elementary school 0.20 80.3 % 81.7 % 83 % 1.9286 0.2000
EU4 Transition rate to education 1 year after elementary school
0.20 35.4% 42 % 45 % 1.4545 0.2000
EU8 Number of completions 0.20 968 1000 1001 1.0312 0.2000
EU11a2 Transition rate to education 2 years after drop-out (high school to VET)
0.20 17.5 %% 22 % 16.8 % -0.1555 0.0000
EU13 Expenditure on education as percentage of total public expenditure****
0.20 25.8% 25 % 25.02 % 1.0000 0.2000
Tranche 1.00 0.8000
Notes:
* Target achievement is defined as TA = (R-B) / (T-B). ** Contribution is defined as CT = MIN(W, TA x W). *** TA is not defined as T = B. As R > B, TA is set to 1.000. **** As T < B in 2013, the baseline value is not used in the calculation of TA.
The Annual Implementation Report 2018 is an evaluation of the Annual Work Plan 2018, which was
submitted and approved in October 2018. The targets for the variable tranche indicators were originally
iv
discussed during the Policy Dialogue Meeting held in Brussels in March 2018 and agreed upon in following
consultations between the Ministry of Education and the Commission.1
Also following consultations between the Ministry of Education and the Commission, the indicator EU3 7th
grade tests has been replaced by EU2b Share of professionals in elementary school in 2018. The reason
behind the replacement was twofold. First, the Agency for Education and Greenland Statistics reported a
discrepancy between their respective results. Second, results from two larger schools were unobtainable
for 2018. The results from the school in Narsaq reportedly disappeared following administrative changes,
and the results from Nuuk Internationale Friskole – the private school in Nuuk – were destroyed following
water damage. Due to these unfortunate conditions, the data used for reporting the indicator EU3 was
rendered incomplete. The choice for a replacement indicator and target was based on the
recommendations of the External Evaluation of the Greenland Education Programme of 2017.
The target for EU2b in 2018 was set at 2017 level. The results of this indicator have seen a beginning
negative trend in recent years, but this development has been expected to happen for some time. A large
portion of the qualified teachers in Greenlandic elementary schools were educated in the 1970’s, and this
group have now reached the age of retirement (65 years). The amount of new qualified teachers declined
following the introduction of a high school programme in the late 1970’s that allowed for entrance into the
Danish higher education system, and the consequences of fewer students choosing to enrol in the teacher
training programme since then are now reflected in the amount of qualified teachers employed in
Greenlandic elementary schools. This issue is currently being addressed by means of upskilling efforts, but
it remains and will continue to remain a significant challenge in the coming years. EU3 is expected to be
featured as a variable tranche indicator again in the Annual Work Plan 2019.
EU11 Transition rate to education 2 years after dropout is composed of three levels of education (High School,
VET and Higher Education) and does therefore not provide any information that pinpoints dropout patterns on
specific levels. Furthermore, the total share of reenrolments includes a number of illogical steps, which may
cause the overall result to be inaccurate. The variable tranche indicator has therefore, in accordance with the
recommendation of the External Review of the Performance Indicators from 2018, been adjusted to pinpoint
possible problem areas more accurately and is now called EU11a2 Transition rate to education 2 years after
dropout (High school to VET). The target for this indicator in 2018 was set following consultations between the
Ministry of Education and the European Commission, and did also follow the recommendations of the review.
1 For an overview of indicators EU1-EU18, see chapter 3.1.1. For details on the targets for the variable tranche indicators see chapter 3.1.2.
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Table of Contents
Executive Summary ............................................................................................................................................. i
Table of Contents ............................................................................................................................................... v
1 Introduction ............................................................................................................................................... 1
2 Readers Guide ........................................................................................................................................... 5
3 Implementation Report 2017 .................................................................................................................... 6
3.1 Indicator sheet and variable tranche indicators ................................................................................ 6
3.1.1 Indicator developments ................................................................................................................ 8
3.1.2 Variable tranche indicators ......................................................................................................... 15
3.2 Inputs ............................................................................................................................................... 17
3.3 Description of planned activities and results ................................................................................... 18
3.3.1 Pre-school ................................................................................................................................... 18
3.3.2 Elementary school ....................................................................................................................... 23
3.3.3 Young people outside the education system .............................................................................. 31
3.3.4 High School ................................................................................................................................. 34
3.3.5 Vocational Education and Training ............................................................................................. 40
3.3.6 Higher Education ......................................................................................................................... 45
3.3.7 Cross-Cutting Initiatives .............................................................................................................. 50
3.4 Impacts ............................................................................................................................................. 58
Annex 1: Education budget and expenditure 2018 ................................................................................... 61
Annex 2: Education Plan II, budget 2018 ................................................................................................... 62
Annex 3: The Greenland Education Programme II ..................................................................................... 63
Annex 4: The Greenlandic Education System ............................................................................................ 67
Annex 5: Indicator Documentation Sheets ................................................................................................ 75
Annex 6: Population projections for Greenland 2018 ............................................................................... 84
Annex 7: Summary of “The Primary School of Greenland – Evaluation 2015” .......................................... 86
vi
Annex 8: Overall Recommendation and Assessment of “The Teacher Education Programme – Evaluation
of Greenland’s teacher education programme at Ilinniarfissuaq” .................................................................. 91
Annex 9: High School Reform..................................................................................................................... 99
Annex 10: Survey of the day-care sector ................................................................................................... 106
Annex 11: Strategy and Action Plan for Professionals in Day-care Institutions ........................................ 112
1
1 Introduction
Since 2006, the Greenland Education Programme has been the central focal point of education policy in
Greenland. The programme, which was adopted by the parliament, Inatsisartut, in March 2006, is
comprised of two phases: phase one (2006–2013) and phase two (2014–onwards). The programme is part
of a long-term strategy to contribute to Greenland's development into a more self-sustaining economy, in
which a well-educated and well-trained population is paramount. The Greenland Education Programme II
has been expanded to accommodate the 10-year planning horizon of the Government and will thus run
from 2014 to 2024. In the first phase of the Greenland Education Programme (2007–2013), emphasis was
put on vocational training, the acquisition of real qualifications for jobs requiring skilled persons, and real
competence courses for unskilled persons. In the second phase (2014–2024) emphasis will be on pre-school
and elementary school systems in addition to a continuation of the support for vocational education and
training, and the post-elementary school system in general.
The Greenland Education Programme II is defined by the Government’s Education Strategy and the
Education Plan II. In the Education Strategy, the Government has set overall objectives for the period as
well as targets to be achieved in 2017, 2020 and 2024. The Education Plan II contains initiatives to be
implemented in order to realise these objectives. The Education Plan II is subject to yearly updates
according to status and new developments. Updates of the Education Plan II are formalised in connection
with the Spring Session of the parliament, so that it is interlinked with the yearly adoption of the Finance
Act.
In order to measure results and outcomes, a performance assessment framework has been developed. The
performance assessment framework builds on lessons learnt under Greenland Education Programme I and
foresees modifications, where indicators have proven inexpedient and/or needed to be adjusted to suit the
objectives of phase two.
The Greenland Education Programme is receiving sector budget support based on the Greenland Decision,
defining cooperation between the European Union on the one hand, and Greenland and the Kingdom of
Denmark on the other2. The indicative amount for the implementation of the Greenland Decision for the
period of 2014 to 2020 is EUR 217.8 million. The annual disbursement contains a fixed tranche of 80 % and
a variable tranche of up to 20 %, conditional on the performance of the programme. As a part of this
agreement, the Government will submit an Annual Work Plan and an Annual Implementation Report to the
2 Council Decision 2014/137/EU of 14 March 2014
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European Commission each year. The Annual Work Plan and the Annual Implementation Report are thus
both tools for planning and evaluation for those responsible for the programme, and are tools for
communication between the Government and the European Commission on plans, targets,
implementation, and performance of the Greenland Education Programme II. Furthermore, the Annual
Work Plan and the Annual Implementation Report are published on the Government’s website3 upon
finalisation.
The Annual Work Plan 2018 and the Annual Implementation Report 2018 contain the initiatives from the
Education Plan II that were planned to be implemented in 2018 in order to realise the objectives and
targets set by the Government in the Education Strategy. The Annual Work Plan and the Annual
Implementation Report are prepared by the Ministry of Education, who is responsible for implementation
of the Greenland Education Programme II. In the Annual Work Plan 2018, financial commitments,
initiatives, and targets of the Government’s education policy as of 2018 are accounted for using all
information available by the end of the year before (i.e. 2017), and relevant material that becomes
available during the drafting of the document.
The Annual Work Plan is evaluated in the Annual Implementation Report. The Annual Implementation
Report 2018 takes stock of all commitments, initiatives, and targets from the Annual Work Plan 2018.
Activities undertaken during 2018 that were not described in the Annual Work Plan 2018 are described as
deviations from the original plan. A subset of the indicators in the performance assessment framework has
been selected for reporting in the Annual Work Plan and the Annual Implementation Report.
The general objective of the Greenland Education Programme is to contribute to a higher standard of living
and quality of life through development of better education, technical skills, and knowledge. In order to
raise the education level of the population, the Government seeks to establish an inclusive and cohesive
education system from pre-school to higher education. The specific objectives of the programme are:
• Reducing inequality in education by ensuring a well-functioning pre-school and elementary school
system, no matter where the children live. The elementary school system shall provide elementary
school graduates with the skills needed for them to pursue further education;
• Increasing quality of the education system with special emphasis on pre-school and elementary
school and increased share of educated personnel in the system;
3 http://www.naalakkersuisut.gl
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• Increasing efficiency in the education system through reducing dropout between stages in the
system, increasing completion in the post-elementary education system, and decreasing the time
spent in the education system before graduation.
For 2017 and 2018, the Government decided to pursue the following three main activities and priorities in
the education sector:
Following the external evaluations of the elementary school and teacher training programme in
2015 and 2016 respectively, the Government continues to focus on improving the elementary
school system. Furthermore, the challenges in relation to dropout and completion endure. In order
to address these issues, the Ministry of Education has launched the preparatory work on creating a
cohesive and flexible education system based on 12 years of compulsory schooling. The aim of the
work is to create a sound basis for further education, both in Greenland and abroad. In addition to
a wide range of new flexible educational opportunities, the new system will still allow the
possibility of continuing straight to high school or vocational education after the 10th school year.
In order to keep up with increasing globalisation, the Government has identified a need to update
existing legislation on higher education. In 2018, a new Law on Higher Education was therefore
presented. The new legislation includes new stipulations regarding capacity, exchange studies, and
admission requirements. Furthermore, the legislation includes quality assurance, aiming at
implementing a procedure for quality development in order to fulfil the standards of the European
certification ESG-2015.
Identifying issues and implementing the best possible solutions require a sound analytical basis.
The Ministry of Education will therefore seek to intensify its efforts in relation to conducting
analyses to be used as a basis for decision making within the educational sector. This includes the
production of both small and large-scale reports as well as a sounder data readiness.
The scattered population and limited infrastructure in Greenland is a challenge for recruting
teachers for elementary schools for a longer period at settlements and for students to move to
cities with further-education institutions. Furthermore, there is a need for providing education
opportunities for students with disabilities, who are unable to follow regular in-class programmes.
Therefore the Government of Greenland seeks to have an increased focus on accessibility to
education, which includes a continuation of the work on examining how distance learning can
contribute to both a higher level of accessibility and a higher level of education, especially for, but
not limited to, the elementary and high school levels.
4
In 2017, an international expert group was appointed by the Government in order to strengthen
the quality of language training (Greenlandic, Danish and English) in elementary schools. The group
consisted of experts from Greenland, Denmark, Iceland, and Canada, it submitted its
recommendations in late 2017 and delivered a final report in 2018.4 Their findings will be
incorporated in the overall work on improving the education system.
4 An English version of the final report can be found at: https://naalakkersuisut.gl/~/media/Nanoq/Files/Publications/Uddannelse/Sprograpport%20UK%202018indd-1.pdf
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2 Readers Guide
Chapter 3 provides the activities for the Greenland Education Programme in 2018 divided into four overall
sections that are structured according to the results chain terminology.
The first section gives an overview of all indicators and the targets and results for the variable tranche
payment of the EU support for 2018. The second section presents the overall education accounts for the
public sector and for the Greenland Education Programme. In the third section, a detailed description of
the results of planned initiatives for 2018 is given, along with the relevant indicators within each education
area. The fourth section presents the long-term educational and economic impacts of the Greenland
Education Programme. In each section, historical data and targets set by the Government in its Education
Strategy are included for each indicator. The targets are based on the Government’s Education Strategy
2014 and agreed between the Government and the European Commission in the Performance Assessment
Framework for the Greenland Education Programme II.
As a supplement to the Annual Implementation Report, the education budget and expenditure framework
2018 and the Education Plan II budget and expenditure framework 2018 are found in Annex 1 and Annex 2.
Furthermore, a description of the Greenland Education Programme II is found in Annex 3 along with an
introduction to the Greenland education system in Annex 4. A detailed description of each indicator,
presented as documentation sheets, is found in Annex 5. Population projections for Greenland are found in
Annex 6. Finally, summaries of relevant reports are found in Annex 7, Annex 8, Annex 9, Annex 10 and
Annex 11.
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3 Implementation Report 2017
3.1 Indicator sheet and variable tranche indicators
An overview of all indicators with baseline values, results, and targets is given in the table below. Each sub-
indicator is decomposed under each education area.
Table 1: Overview of indicators
No. Indicator Education area Baseline
2013
Result
2017
Target
2018
Result
2018
Target
2020
EU1 Share of children in Pre-School Pre-School 69.1 % 74 % 76 % 77 %
EU2 Share of professionals5 Total 69.6 %6 66% 67 % 76 %
Pre-School*** - 48 % 47 % 64 %
Elementary School 80.3 % 81.7 % 81.7 % 83 % 87 %
EU3 7th grade test Elementary School 56.25 59.25 58.00 54.50 63.00
EU4 Transition rate to education 1 year
after completion Elementary School 35.4 % 40.0 % 42 % 45 % 48 %
EU5 Share of age group outside
education system 16–18 years old 61.6 % 60.1 % 57.4 % 40 %
EU6 Number of apprenticeships
Vocational
education and
training
833 779 707 960
EU7 Enrolment7 Total 3,856 3,710 3,684 3,856
High School 1,317 1,205 1,198 1,320
Vocational education
and training 1,333 1,205 1,190 1,340
Higher education 1,206 1,300 1,296 1,175
EU8 Number of completions Total 968 999 1,000 1,001 1,110
High School 357 328 304 365
Vocational education
and training 410 427 421 480
Higher education 201 244 276 265
EU9 Completion rate8 Total 52.25 % 51.49 % 50.69 % 60 %
High School 60.85 % 49.57 % 50.88 % 67 %
Vocational education
and training 48.07 % 50.76 % 50.78 % 55 %
Higher education 48.72 % 52.39 % 50.80 % 57 %
EU10 Transition rate to education 2 years
after completion High School 64.1 % 46.3 % 49.1 % 72 %
5 As results for EU3 were unobtainable for several larger schools in Greenland, it was decided to use EU2b ad a variable tranche
indicator in 2018. In 2019, EU3 will be reintroduced as a variable tranche indicator. 6 Total number based on data from 2014 for EU2a Share of professionals in pre-school and data for 2013 for EU2b Share of professionals in elementary school due to an error in EU2a 2013 data. 7 This indicator has previously been known as “Attendance”. Due to risk of misinterpretation it has been decided to rename it “Enrolment”. 8 The completion rate is a probability and will change each year as long as it covers students active in the education system. For earlier cohorts (where enrolled students in that year/cohort have all either dropped out or graduated) the rate is constant.
7
EU119 Transition rate to education 2 years
after drop-out Total 41.5 % 39.6 % 44 % 50 %
High School 57.5 % 36.9 % 52.6 %
Vocational education
and training 29.1 % 30.8 % 36.8 %
Higher education 47.4 % 57.4 % 44.8 %
EU12 Administrative staff completing
training*** Total - 2,466 1,500 1,261 1,500
EU13 Education as a percentage of total
expenditure Total 25.8 % 25.3 % 25% 25.02 % 25%
EU1410 Education level; share of 35 year
olds with a qualifying education ** Total 54.2 % 51.3 % 51 % 52.6 % 53 %
EU1511 Job insertion** Total 85.6 % 87.3 % 85.9 %
Vocational education
and training 80.8 % 83.5 % 82.4 %
Higher education 98.4 % 95.6 % 93.7 %
EU16 Percentage of trade balance in GDP
** Total -16.1% -5.3
EU17 Percentage of the fisheries sector in
total exports Total 76.4 % 95.2 % 92.4 %
EU18 Long term residents among civil
servants ** Total 87.2 % 87.6 % 93.4 %
* An error in the reported value for 2013 regarding indicator EU2a: share of professionals in pre-school has been found. For this reason, the baseline 2013 cannot be established. Instead, baseline value will be 2014. ** Data lag one year *** As registration did not take place prior to 2014 the baseline year is 2014.
9 2015 and 2016 are not directly comparable, as Statistics Greenland has revised the method of calculation. Using the new method, figures for previous years have been recalculated. 10 This number is very sensitive to migration patterns and random fluctuations. 11 Does not include students, who become self-employed.
8
3.1.1 Indicator developments
In general, the performance indicators for the programme indicate progress. However, some indicators
have shown negative developments in 2018. The development of the indicators is described below.
Indicator EU1: The share of children in pre-schools has been calculated by Statistics Greenland since 2015.
In 2018, the amount of children in the pre-school age group (0–6 years old) was 76 %, which is an
improvement since 2015, where the share was 74.8 %, and in comparison to 2017, where the share was 74
%. The share of children in pre-school already reached the 2017 target of 74 % in 2014, and although there
have been minor fluctuations, the midterm target for 2017 was achieved. In 2018, the share of children in
pre-school was 81 % in towns and 47% in settlements. The share of children in pre-school is traditionally
much higher in towns than in settlements. This is because it is more common to care for children at home
in settlements than in larger towns.
Indicator EU2: As with indicator EU1, the share of professionals in pre-schools has been calculated by
Statistics Greenland since 2015. Previously, data was collected through a questionnaire measuring the staff
in October. The indicator is now calculated as full-time equivalent staff using data from the wage-system.
This gives a break in the data series and makes it difficult to compare the share of professionals before and
after 2015, as the method of data collection varies. In 2015, the share of professionals in pre-schools was
51.4 %. In 2016, the share dropped 1.1 percentage points to 50.3 %. In 2017, this share dropped further to
48 % and was thus quite far from reaching the 2017 target of 58 %. In 2018, the share saw yet another
decrease, as the result was 47 %. In total, 896 full-time equivalent staff are employed in pre-schools as of
2018, of which 422 are qualified. Among the reasons for the challenges with retention and recruitment,
according to a recent report by Epinion,12 is that the pedagogical professionals can obtain a higher salary by
working in elementary schools or residential institutions than by taking up employment in the pre-school
institutions. Furthermore, the lack of qualified personnel itself seems to be a challenge to retention, as
understaffing can cause both emotional and physical stress. Although the Government has launched a
strategy and action plan for retention and recruitment in pre-schools, it will take some time to change the
current discourse and perception of the profession and its conditions, and subsequently for a significant
increase in the share to happen.
For the elementary schools, the share of professional teachers, which has seen a relatively steady increase
since 2013, decreased from 83.2 % in 2016 to 81.7 % in 2017. In 2018, however the share saw an increase,
as 83 % of the teachers on national level had a formal education. The share has increased in both towns
12 “Kortlægning af daginstitutionsområdet”, Epinion, December 2017. For a summary of main conclusions in English, see Annex 8.
9
and settlements. This development was not as such expected, as a steady decrease has been expected to
happen for some time. A large portion of the qualified teachers in Greenlandic elementary schools were
educated in the 1970’s, and this group have now reached the age of retirement (65 years). The amount of
new qualified teachers declined following the introduction of a high school programme in the late 1970’s
that allowed for entrance into the Danish higher education system, and the consequences of fewer
students choosing to enrol in the teacher training programme since then are now expected to be reflected
in the amount of qualified teachers employed in Greenlandic elementary schools. This issue is currently
being addressed by means of upskilling efforts, and it seems to have had a positive effect in 2018, but it
remains and will continue to remain a significant challenge for years to come. Also, there has been an
increase in the number of graduations from the Teacher Training College from 23 students in 2017 to 37
students in 2018. As a reaction to the evaluation report of the Teacher Training Programme in 201613, the
Teacher Training College decided to revise the programme, including the admission requirements (which
became stricter), in 2017. While it is necessary to maintain increasing focus on the quality of teacher
training, it is highly likely that the new admission requirements will affect the number of professional
teachers in coming years. In order to solve the issue of low admission rates without compromising on
applicant qualifications, the Ministry of Education ran a trial-based up-skilling programme in 2017 for a
selected group of applicants, who were initially not accepted to the teacher training programme due to lack
of formal qualifications such as, for instance, a low high school grade in English. These applicants were
offered the opportunity to improve their grades and subsequently enrol in the teacher training programme.
Indicator EU3: 7th grade tests have been administered since 2006 and are (apart from 3rd grade tests) the
only standardised tests in elementary schools. 7th grade tests are a pedagogical tool for the teachers, giving
them insight in the skills of each of their pupils in four of the main subjects in elementary school
(Greenlandic, Danish, English and Mathematics).14 Although a low score is never good, pupils cannot fail the
tests, and the tests are constructed in a way that makes achieving a 100 % score highly unlikely. The overall
result is used as a qualitative measure of the competences in the elementary schools, where it is possible to
compare the results from year to year. Generally, all students in 7th grade are obliged to take part in the
tests. Some students in special education are, however, exempted from participating. Furthermore, illness
on the day of the test can also prevent individual participation. The amount and variety of factors that can
have an effect on the results in 7th grade tests makes the development in the indicator very sensitive, and
as a result, it has seen some fluctuation over the years. For the same reason, and because of the way the
13 For a summary of the main conclusions, see Annex 8 14 The Agency for Education is currently examining the possibility of expanding with a fifth test in natural science.
10
test is constructed, the conditions under which it is held, and a lack of both feedback and interpretation at
school level, it is very difficult to draw sound conclusions based on the development in the results from
year to year with the amount of information currently available. Since 2016, however, the Agency for
Education has increased its focus on communicating with and collecting information from the schools
relating to both 3rd and 7th grade tests, and these efforts are expected to provide a much better basis for
analysis in time.
Between 2013 and 2015, the 7th grade test declined from baseline each year, but in 2016 the tide suddenly
turned, and in 2017 the national score reached 59.25 compared to 56.25 in the baseline year 2013. In 2018,
the overall result saw a decline and was at 54.50. In 2018, Sermersooq Municipality had the highest scores
for Danish, English, and Mathematics, but the lowest score in Greenlandic, where Qeqertalik Municipality
performed the best. The data on which this result is calculated has, however, been rendered incomplete, as
results from two larger schools were unobtainable. Furthermore, the Agency for Education and Statistics
Greenland reported a discrepancy between their respective results. These issues may have had a significant
influence on the fact that the results in all subjects declined since 2017 and that the amount of students
who took part in the tests have also decreased – especially in the municipalities of Kujalleq and
Sermersooq, where results were unobtainable.
Historically, the results in the language subjects Greenlandic and English have consistently been equal to or
above baseline year, while results for Danish and Mathematics have seen a decline. Results for Danish are,
however, consistently above 50.00, whereas results for Mathematics remain below 50.00. In 2017, 90 % of
the students took part in one or more of the tests (an increase of 5 percentage points since 2016), while 93
% of the students took part in all four tests (Greenlandic, Danish, English and Mathematics) in both 2016
and 2017. The absence rate was 15 % in 2016 and 10 % in 2017.
Indicator EU4: From 2013 to 2015 the transition rate to education 1 year after completion increased by 5.6
percentage points, but in 2016 it suddenly decreased by 3 percentage points. In 2017, although the overall
rate for transition rate to education 1 year after completion did not reach the target (42 %), it had
improved by 2 percentage points, and it seems that the positive trend has returned, as the result for 2018
has reached 45 %. There is no apparent explanation for the drop in 2016, and it is thus – for the time being
– perceived as a fluke.
The transition rate in Kujalleq Municipality has decreased by almost 3.7 percentage points between 2017
and 2018. As the amount of graduates is relatively unchanged, one possible reason for the decline might be
that the Municipality ran a trial teacher exchange programme between elementary schools and high
11
schools in 2017 as a response to the grade average of elementary school graduates in 2016 being very low.
This might both have influenced the amount of applicants, who met the admission requirements, but it
might also have created a more natural flow between the local elementary schools and the high school. The
programme was unfortunately discontinued in 2018 due to exchange only happening one-way, but the high
school and elementary school are currently conducting an evaluation, which will feed into an adjustment of
the initiative. The transition rate in Avannaata Municipality decreased by 3.1 percentage points between
2017 and 2018, and the decline may be attributed to the Municipal divide, as students from Avannaata
Municipality now do not have a high school in their own municipality and must therefore move to another
municipality (Qeqertalik) in order to attend high school.
In the other three municipalities, transition rates increased. Qeqqata Municipality saw an especially large
improvement (18.8 percentage points between 2017 and 2018), which indicate that they have been able to
turn the tide since 2017, which saw a decrease in the performance. The main improvement occurred in the
high school sector. One possible reason behind this development is increased cooperation between the
elementary school and high school in Sisimiut. The schools have started a series of collaboratory project
weeks, where teachers and students from both schools take part in the same classes. This creates a natural
flow from elementary education to high school, as the students are introduced to the high school much
earlier than what is normally the case. This development, and the development in Kujalleq in 2017,
supports the idea of creating a flexible and cohesive education system, as it seems that facilitating better
connections between elementary and youth education can lead to better transition rates.
Indicator EU5: The share of 16–18-year-olds outside the education system has overall had a positive
development since 2013, as more young people continue into continuation schools and youth education.
However, the share outside the education system remains too high. In 2018, the share of 16–18-year olds
outside the education system was 57.4 % and has therefore decreased somewhat since 2017, where the
share was 60.1 %. In addition, the number of active students has decreased slightly from 3,710 in 2017 to
3,684 in 2018. Demographic changes might contribute to these developments, as the Greenlandic
population is – and has been – decreasing steadily for a number of years. As the total number of
attendances at VET decreased, the share of young people in high school increased. Furthermore, higher
education is generally increasing, and it seems like the students get younger and younger upon starting
their education. This is potentially a result of the transition guidance made by the Majoriaq centres, as they
report an increase in the number of applications from where transition guidance has taken place. Overall,
the share of young people outside the education system has continually decreased from 61.6 % in 2013 to
57.4 % in 2018, as has the amount in absolute numbers, which has gone from 1,655 in 2013 to 1,346 in
12
2018. The share of males in the age group outside education is continuously slightly higher than the female
share, but has also decreased between 2017 and 2018.
Indicator EU6: The number of apprenticeships was below baseline 2013 (833) by 126 apprenticeships in
2018 (707). This is a regrettable tendency. Apprenticeships are not required for students in tourism and
maritime programmes, and although not all students at, for instance, the Food College (INUILI) are able to
find apprenticeships, the greatest problem remains within the building sector. Even though the import,
which is an indicator for the activity level in the building sector, has risen in recent years, the number of
apprenticeships has consistently been below baseline level. The “Study of dropout and completion at
Vocational Education and Training programmes in Greenland” confirms, that the decline of GDP and drop in
production in construction and civil engineering in recent years have caused problems for businesses, as
they cannot guarantee a full-length apprenticeship due to uncertainty on future activities. This uncertainty
is still present, even though the activity in the sector is increasing. A legal reform, aiming at turning this
negative trend, is currently being drafted by the Ministry of Labour. Also, the work on creating a cohesive
and flexible education system aims at solving this issue on a long term basis.
Furthermore, in order to qualify for having apprentices, companies must have a certain amount of
employees, who are able to train and supervise apprentices. Between 2012 and 2017, the average amount
of apprentices per 100 qualified supervising employees (the apprentice quota) declined from 15 to 11,
indicating that the decline in apprenticeships was not due to fewer qualified supervisors in companies.
These conditions imply that the current apprenticeship-system needs to be revised. Currently, focus is
mainly on increasing the amount of apprenticeships in the private sector, but the Government is aware that
the lack of, for instance, administrative apprenticeships in the public sector will need to be addressed in the
future as well.
Indicator EU7: In 2018, the total enrolment number (3684) has experienced a slight decrease, both in
relation to 2017 (3710) and baseline year 2013 (3856). It is important to note that the indicator is cohort
sensitive, meaning that the enrolment number may vary according to the size of the total age group that
can be expected to be enrolled in certain levels of the education system. Greenland is currently
experiencing a decline in these age groups, which may affect the indicator result for some years to come.
Enrolment numbers have decreased in high schools, VET, and bachelor programmes between 2017 and
2018, while short tertiary and master programmes have experienced a slight increase. However, it is
interesting to note that while enrolment abroad has declined, the enrolment number has increased in
Greenlandic high schools and higher education institutions. The main cause for this development is
13
believed to be the expansion of the course catalogue, as the variety of programmes offered at the
University of Greenland has gradually become more diverse. The high schools report higher admission
numbers – especially in Sisimiut, where they have been expanding cooperation between elementary school
and high school. The consistent decline in VET’s is a likely effect of the persisting problem with
apprenticeships. The number of completions in high school is lower than in 2017, which might be the cause
of the overall decrease in enrolment in bachelor programmes. Generally, the amount of female students
enrolling in further education is higher than the amount of male students, but this tendency is not unique
to Greenland.
Indicator EU8: The number of completions has increased by 2 graduations from 2017 to 2018 but has
increased by 3.4 % from 2013–2018. This is mainly due to an increase in graduations at bachelor level. The
number of graduations has increased in Greenland, while the number of graduations abroad have
decreased. This may be a consequence of the expansion of the course catalogue that has happened at the
University of Greenland in recent years, which has made it possible for more students to enrol in their
preferred bachelor programme without having to move abroad. However, it is important to note that the
indicator is cohort sensitive.
Indicator EU9: The overall completion rate, based on probability calculations, seems to be rather constant
around 50 % with only small fluctuations. The development in VET’s have improved since 2013, and high
school completion rates have dropped, although the latter has seen an increase between 2017 and 2018.
Going to high school is still the top priority for many students, even though it might not be the right choice
for them. However, recent efforts to accommodate a more diverse student group might have made a
difference on the overall result. Completion rates in higher education seems to be increasing over time with
some fluctuations. However, the indicator will change every year back in time until all students enrolling
that year have either graduated or dropped out. For this reason, it is too early to make any final conclusions
on the development of the indicator.
Indicator EU10: Transition rate to education within 2 years after completion in high school was below
baseline 2013 (64.1%) by 15 percentage points in 2018, but saw an overall increase of 2.8 percentage
points between 2017 and 2018. There has been an increase in high school students since the start of the
Greenland Education Programme, and the number of graduates has increased by 8 % in comparison to
2013. Many of these graduates come from families with no educational background and a high school
education in itself might be a huge achievement for them. The next step is therefore to create a culture for
continuing faster into higher education after high school. This overall aim also informs the work on the high
school reform, but it might take some years before an increase is seen in the indicator. As the high school
14
reform is being implemented, it is expected that the students’ competence level when graduating will
increase and thereby have a positive impact on the transition rate to further education. In recent years, the
opinion of the University of Greenland has been that the students enrolling in higher education are not
qualified enough, and they have subsequently tightened their admissions requirements in order to increase
the quality at the university. The effect of this decision might have influenced the development of the
indicator in 2017 where a decrease in the indicator was recorded. The Ministry of Education has since
continued the dialogue with the University of Greenland about ensuring that students are not kept out of
the education system. In 2018, as mentioned in the section regarding EU2, an upskilling programme for
prospective teacher students ran on a trial basis, aiming at increasing enrolment without compromising on
student qualifications. This seems to have had a positive effect, as the transition rate from high school to
bachelor level increased by 2.4 % between 2017 and 2018.
Indicator EU11: In 2016, the transition rate to education within 2 years after dropout saw an unexpected
decrease (38.2 %) from 2015 (41.5 %). The decrease was in particular due to a decrease in transition from
high school to reenrolment to high school and from high school to VET. In 2017 the transition rate
increased again (39.6 %), but remained below baseline (41.5 %). However, EU11 is composed of three levels
of education (High School, VET and Higher Education) and does therefore not provide any information that
pinpoints dropout patterns on specific levels or indicates whether dropout rates should be considered high,
normal or low. Also, although, for instance, a high transition rate from high school to high school may
influence the indicator positively, it is not necessarily a positive development, that an increasing amount of
students need to drop out of high school in order to start over again. Furthermore, the total share of
reenrolments includes a number of illogical steps, which may cause the overall result to be inaccurate. It
was therefore agreed to adjust the variable tranche indicator to focus on transition to VET after dropout
from High School (EU11a2) in order to pinpoint possible problem areas more accurately. High School to VET
movements was chosen, as it is a valuable input, especially in connection with the work on creating a
cohesive and flexible education system.
Between 2017 and 2018, EU11 saw an increase of 4.4 percentage points. Unfortunately EU11a2 has seen a
negative development between 2017 and 2018. In 2017, transition rate from high school to VET was 21.3 %
and in 2018 the rate had decreased to 16.8 %. A possible reason for this decline may be that some high
school drop outs are awaiting the launch of the eGUX programme scheduled in 2019 instead of enrolling in
a different youth education. From 2019, where eGUX is expected to have a positive influence on many
other indicators, it may therefore have a negative influence on transition from high school to VET. Many
high school students, who might consider applying for a VET programme after dropping out, might choose
15
to try again in the distance learning high school programme. If this is the case, the indicator might be
influenced by this in years to come, but should gradually become less significant as the distance learning
programme grows older and more students choose this option the first time. On the positive side,
indicators reporting completion rates in high school might consequently increase if this is the case.
Furthermore, the development of the indicator could be a consequence of shortcomings in the guidance
efforts. The results of the upcoming “Study to assess the current overall educational and vocational
guidance effort” are therefore highly anticipated by the Government of Greenland, as they might produce
valuable insight in terms of future efforts in student guidance. Naturally, the lack of apprenticeships also
has an effect on transition to VET. The preparatory work on creating a cohesive and flexible education
system will be taking all of the above into account.
Indicator EU12: Administrative staff completing training was measured for the first time in 2014. The
indicator reflects the planned activity levels for the Office for Human Resource Development in the
Government. The number of administrative staff completing training has been increasing since 2014. The
number of participant days was 1,484 in 2014, 1,972 in 2016, and 2,466 in 2017. In 2018, however the
number experienced a significant decline and was 1,261 participant days. The decline may be a result of
fewer courses being offered and fewer employees partaking in them.
3.1.2 Variable tranche indicators
The indicators for the variable tranche payment are shown in Table 2 with baseline value 2013, targets and
results for 2018 and weights used for the calculation. Total achievement for the variable tranche in 2018 is
80 %.
16
Table 2: Variable tranche indicators
No. Indicator Weight
2018 Baseline
2013 Target 2018
Result 2018
Target Achieve-
ment*
Contri- bution**
EU2b Share of professionals in elementary school 0.20 80.3 % 81.7 % 83 % 1.9286 0.2000
EU4 Transition rate to education 1 year after elementary school
0.20 35.4% 42 % 45 % 1.4545 0.2000
EU8 Number of completions 0.20 968 1000 1001 1.0312 0.2000
EU11a2 Transition rate to education 2 years after drop-out (high school to VET)
0.20 17.5 %% 22 % 16.8 % -0.1555 0.0000
EU13 Expenditure on education as percentage of total public expenditure****
0.20 25.8% 25 % 25.02 % 1.0000 0.2000
Tranche 1.00 0.8000
Notes:
* Target achievement is defined as TA = (R-B) / (T-B). ** Contribution is defined as CT = MIN(W, TA x W). *** TA is not defined as T = B. As R > B, TA is set to 1.000. **** As T < B in 2013, the baseline value is not used in the calculation of TA.
17
3.2 Inputs
The total public expenditure for the education sector in 2018 was EUR 351.5 million, which accounts for
25.02 % of the total expenditure of the public sector. There has thus been a decline in expenditure on
education, both in relation to baseline year 2013 (25.8 %) and to 2017 (25.3 %). In 2018, the Greenland
Education Programme II included initiatives from the Education Plan II amounting to EUR 19.3 million.
EU13: Education as a percentage of total expenditure
2013 2016 2017 2018 Target 2018 Target 2020
Government 23.0 % 23.2 % 23.9 % 21.9 %
Municipalities 29.9 % 28.2 % 27.1 %15 28.6 %
In total 25.8 % 25.4 % 25.3 % 25.02 % 25 % 25 %
15 Due to Qaasuitsup Municipality splitting into Avannaata Municipality and Qeqertalik Municipality as of 1. January 2018, it was
difficult for the municipal administration to finalise their expenditure for 2017. Following agreement between the Ministry of Education and the Commission, the final result for 2017 was calculated using Qaasuitsup Municipality’s expenditure for 2016.
18
3.3 Description of planned activities and results
3.3.1 Pre-school
Lifelong learning begins in pre-school. Early efforts can provide children with a good basis for continued and
lifelong learning. The Government wants to ensure, that there is sufficient capacity in public institutions for
all pre-school children, so that the children develop social and personal skills and the best preconditions for
their future learning in elementary school and further education. Moreover, it is important that the
professionals in the day-care institutions are qualified in order to develop and prepare children for
elementary school.
The demand for qualified professionals in the pre-school sector depends on the share of children in pre-
schools. In 2018, 76 % of all children attended pre-school on a national basis. From 2013–2018, the share of
children in public day-care (age 0-5) has increased by 6.9 %-points, and if this increase continues, the
demand for qualified professionals will follow suit. Urbanisation will also put increased pressure on the
recruitment and retention of qualified personnel in day-care institutions, as the share of children in pre-
school tends to be a lot higher in cities than in settlements, where it is more common for children to be
cared for at home or in private day care. For many years, Greenland has seen an increasing tendency of the
settlement inhabitants relocating to larger towns and cities, and there is no indication that this tendency
will shift in the near future.
Recruiting qualified personnel to day-care institutions in Greenland is, however, already a challenge today.
It is particularly evident in settlements, where the remoteness and relative isolation is a challenge for
recruitment and retention of qualified personnel. Despite educating a large (and increasing) amount of
professionals for the day care area, many of the graduates choose to take up employment in other sectors.
Around half of the employees in day-care institutions are professionals, and according to a report by
Epinion, the average seniority among the staff is 7 years and 9 years for managers.16 Among the reasons for
the challenges with retention, according to the report, is that the pedagogical professionals can obtain a
higher salary by working in elementary schools or residential institutions than by taking up employment in
the pre-school institutions. Furthermore, the lack of qualified personnel itself seems to be a challenge to
retention, as understaffing can cause both emotional and physical stress. Bargaining rights on behalf of
pedagogical staff belongs to their Union, and the Government of Greenland therefore awaits upcoming
negotiations in 2020 before formulating concrete measures for salary increase.
16 “Kortlægning af daginstitutionsområdet”, Epinion, December 2017. For a summary of main conclusions in English, see Annex 10.
19
So far, unskilled personnel in the pre-school sector have been offered courses and upskilling in order to
meet the demand, and although it has improved the situation, this effort does not seem to sufficiently
address the issue. In order to provide children with the best possible pre-school system in the future,
recruitment and retention in day-care institutions must therefore receive increased attention.
Pre-schools in Greenland are a municipal responsibility, but the Government provides framework and
assistance to municipal administrations and institutions through the services of the Agency for Education.
In order to act as a coordinating institution between municipalities and Government, the Agency for
Education underwent a large-scale organisational change in 2017. Although the new structure and role of
the Agency for Education has facilitated a more structured cooperation between different actors in the pre-
school sector, it is clear that further improvement is needed.
Indicators within the Pre-School area are shown below with baseline values, results and targets.
EU1: Share of children in Pre-School
2013 2017 Midterm target 2017
Result 2018 Target 2020
Total 69.1 % 74 % 72 % 76 % 77 %
Qaasuitsup17 65.9 % 68 % -
Qeqertalik - - 79 %
Avannaata - - 68 %
Qeqqata 79.9 % 86 % 84 %
Sermersooq 68.3 % 75 % 77 %
Kujalleq 64.6 % 76 % 75 %
Town 73.7 % 80 % 81 %
Settlement 41.1 % 42 % 47 %
17 As of January 1 2018, the Municipality of Qaasuitsup has been divided into two new municipalities. The data from Statistics Greenland on 7th grade results has been divided retrospective.
20
EU2a: Share of professionals in Pre-school
201418 2017 Midterm target 2017
Result 2018 Target 2020
Total 56.0 % 48 % 58 % 47 % 64 %
Qaasuitsup 54.9 % 52 % -
Qeqertalik - - 50 %
Avannaata - - 46 %
Qeqqata 54.1 % 47 % 45 %
Sermersooq 54.6 % 42 % 43 %
Kujalleq 66.3 % 58 % 62 %
Town 59.9 % 50 % 51 %
Settlement 27.9 % 25 % 21 %
In order to achieve the targets for the share of children in pre-school and share of professionals, the
following activities have been carried out in 2018.
3.3.1.1 Expansion of day-care capacity
Even though the Government does not aim for all children to be enrolled in pre-school, efforts to provide
the opportunity for all children to attend pre-school continue. The share of children in pre-school has
already reached and exceeded the 2017 midterm target by 4 %-points, but there is still a need for
expanding day-care capacity, as the waiting lists – especially in larger towns and cities – can be very long.
The positive development between 2014 and 2015 saw a decline in 2016 and 2017, so efforts to increase
the share of children in pre-school continued in 2018, and it seems that the positive trend has returned. In
settlements, it is less common for children to attend day-care, as they are often taken care of at home or,
for instance, by grandparents. However, as these children are likely to have to move to a larger town at
some point during their elementary education, it is key that efforts to prepare them for school begin as
early as possible and that their school readiness is assessed in a professional way. To support the objective
of increasing the share of children in pre-school, this initiative has therefore been aimed at developing pre-
school facilities in settlements that are currently without pre-school facilities.
As of 1 January 2018, construction of day-care facilities has become a municipal responsibility. The Agency
for Education does, however, still provide guidance and support to the municipalities and their day-care
institutions. Therefore, this initiative now mainly concerns professionals and other staff in pre-schools.
18 An error in the reported value for 2013 regarding indicator EU2a: share of professionals in pre-school has been found. For this reason, the baseline 2013 cannot be established. Instead, baseline value will be 2014.
21
Activities and results
In 2018, the Government decided to continue its focus on securing enough personnel in day care
institutions. The review of the current situation and forecast of the need for recruitment and retention of
staff in the day care sector, conducted by Epinion in 2017, formed the basis for developing a strategy and
action plan for personnel in day care institutions. The strategy and action plan was completed in 2018 and
will be used as input for future initiatives targeting recruitment and retention of professionals in
preschools.19
3.3.1.2 The day-care sector
Within the day care sector, focus remains on implementing pedagogical principles for learning and
development that can help create a sound basis for developing social competences and inspire children to
take an interest in learning so they become ready to continue into elementary school. The principles are as
follows:
all children should have a safe upbringing with well-being,
all children should be able to develop and unfold their full potential,
all children should have an equal chance to get a good schooling through ensuring the best possible physical, mental and social readiness for school
all children should have a healthy adulthood and contribute to society.
Activities and results
In 2018, a tool for screening children’s school development and school readiness has been implemented in
all towns, settlements and sheep farms.
Furthermore, the Agency for Education has continued to develop materials that can support the
pedagogical work in day-care institutions, and has carried out a series of conferences on the transition from
day-care to elementary school. Also, education programmes for personnel in day-care institutions have
been developed and coaching sessions for personnel has taken place in settlements.
19The report is currently being translated into English, but can be found in Danish here: https://naalakkersuisut.gl/da/Naalakkersuisut/Departementer/Uddannelse-Kultur-Kirke-og-Udenrigsanliggende/Publikationer
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3.3.1.3 Strategy and Action Plan for professionals in day-care institutions
In order to get a proper overview of the many ongoing initiatives in the pre-school sector as well as
securing recruitment, education, up-skilling, and retention of personnel in day-care institutions, work
began on developing a strategy and action plan in cooperation with relevant stakeholders.
The strategy and action plan for retention of personnel in day-care institution should contribute to:
Higher retention of pedagogical personnel in day-care
Optimisation of the quality and content of education and up-skilling
Securing continuous focus on the working environment and well-being of the personnel
Securing that the use of IT is up to date and in line with Government strategies
Monitoring and evaluating the overall efforts and securing continuous development within the pre-
school area
Activities and results
Based on the above, the Agency for Education started working on mapping the entire pre-school area in
2017. A report (published by Epinion in late 2017) formed the basis of two seminars held in early 2018,
where representatives from Government, municipalities, education institutions, and relevant organisations
met to discuss the conclusions. The final report, “Strategy and action plan for professionals in day-care
institutions”, has been submitted and approved by the Cabinet in 2018. An English translation of the report
is attached in Annex 11.
23
3.3.2 Elementary school
The elementary school is one of the most important focal areas of the Greenland Education Programme II,
as it lays the academic foundation for all further education. When children leave elementary school, they
must have achieved the competencies necessary to continue into further education.
One of the major challenges is recruiting qualified teachers for all schools in Greenland (EU2b). Particularly
in the settlements, where the extreme remoteness and relative isolation is a challenge to the recruitment
and retention of personnel. In baseline year 2013, only 50 % of the teachers in settlements were qualified,
and although that number increased between 2013 and 2016, it dropped slightly in 2017. In 2018, however,
the share of qualified teachers in elementary schools saw an increase, as 83 % of the teachers on national
level had a formal education. The share has increased in both towns and settlements. As such a positive
development was not expected, it will be interesting to see if it can continue in the future.
Qualified teachers still have good possibilities for obtaining permanent employment in the larger towns and
therefore tend to not take up employment in the settlements. There are already incentives for taking
employment in settlements and remote districts, as a teacher in a remote district will earn 80 EUR extra a
month and have a reduced rent of approximately 270 EUR per month. Furthermore, the municipalities can
choose to offer fixed-term employment contracts, which entail a yearly free travel to the teachers’
hometown along with a bonus of approximately 2,700 EUR when the fixed-term ends.
However, the challenges with recruitment and retention endure, and as a large number of existing teachers
will retire in the near future while fewer new teachers are expected to graduate in the coming years, it is
necessary to increase the attention on finding alternative solutions in order to provide the best possible
education for all children, while working on building a larger pool of qualified teachers, as this will take
some years. Online tools may be a remedy for the lack of qualified teachers in remote areas, as it enables
the pupils in settlement schools to follow classes taught by qualified teachers in larger towns or cities via,
for instance, online video conferences. Therefore, the Ministry of Education maintains its focus on the
possibilities of implementing e-learning in elementary schools. In this regard, the Government is aware of
the importance of establishing a stable internet connection.
Furthermore, although the transition rate to education 1 year after completing elementary school (EU4)
has reached the set target in 2018, it has historically had difficulties doing so, and the results have
fluctuated. This underscores the conclusions of the 2015 report on the Greenlandic elementary school, and
indicates a need for improving the elementary school system’s ability to prepare its pupils for further
24
education. Focus is therefore on increasing quality in the elementary schools and thereby increasing the
share of pupils continuing into youth education.
Elementary schools in Greenland are a municipal responsibility, but the Government provides framework
and assistance to municipal administrations and schools through the services of the Agency for Education.
In order to act as a coordinating institution between municipalities and Government, the Agency for
Education underwent a large-scale organisational change in 2017. Although the new structure and role of
the Agency for Education has facilitated a more structured cooperation between different actors in the
elementary school sector, it is clear that further improvement is needed.
Indicators within the elementary school area are shown below with baseline values, results, and targets.
EU2b: Share of professionals in elementary school
2013 2017 Midterm target 2017
VT target 2018
Result 2018 Target 2020
Elementary school 80.3 % 81.7 % 84 % 81.7 % 83 % 87 %
Qaasuitsup 76.3 % 86.1 %
-
Qeqertalik - - 87.8 %
Avannaata - - 72.4 %
Qeqqata 78.1 % 76.6 % 86.0 %
Sermersooq 86.8 % 90.1 % 91.2 %
Kujalleq 74.8 % 67.9 % 70.3 %
Towns 88.9 % 89.9 % 90.8 %
Settlements 50 % 50.9 % 51.4 %
EU3: 7th grade test
2013 2017 Midterm target 2017 Result 2018 Target 2020
Elementary school 56.25 59.25 58.25 54.50 63.00
Qaasuitsup 58.25 - -
Qeqertalik - 53.25 54.50
Avannaata - 55.00 51.00
Qeqqata 54.25 59.75 54.50
Sermersooq 59.00 65.25 60.00
Kujalleq 53.25 55.00 50.75
Male 52.75 56.00 51.50
Female 60.00 61.75 56.25
25
EU4: Transition rate to education 1 year after completion
2013 2017 Midterm target 2017
VT target 2018
Result 2018 Target 2020
Elementary school 35.4 % 40 % 42 % 42 % 45 % 48 % Qaasuitsup 32.3 % 37.0 % -
Qeqertalik 63.2 % 32.8 % 42.2 %
Avannaata 29.1 % 38.3 % 35.2 %
Qeqqata 38.8 % 32.6 % 51.4 %
Sermersooq 34.8 % 45.4 % 49.3 %
Kujalleq 43.5 % 42.5 % 38.8 %
Male 32.2 % 36.2 % 49.3 %
Female 38.2 % 43.4 % 38.8 %
In order to achieve the targets for share of professionals, improved quality in the elementary school, and
increased transition to further education, the following activities have been carried out in 2018.
3.3.2.1 A better basis for youth education
In order to address the issues regarding the transition rate to education 1 year after completion, the
Government decided to start working on examining the possibilities for creating a cohesive and flexible
education system, modelled upon 12 years of compulsory education, which will create a natural basis for
further education (see section 3.3.7.1).
In the elementary school area, the goal is to provide pupils from settlements with the opportunity to stay
there until grade 9, when they will have to transfer to schools in larger towns. Grade 11–12 will take place
in campus cities within the pupil’s academic discipline of choice (technical, language, business etc.) and on
the level that suits the pupil’s qualifications. A precondition for this is that the academic level of the
elementary school system is improved early on and in a way that contributes to enabling the pupils to make
qualified decisions regarding their educational choices. This includes communicating the importance of
pursuing an education and of mobility in connection with education early on in elementary schools. The
target group for this communication is both pupils and their parents.
Activities and results
In 2018, as part of the work on creating a cohesive and flexible education system (see section 3.3.7.1), a
working group was appointed with the task of developing project. Also, several project groups consisting of
people with direct experience within different fields of education were appointed, one of which deals
directly with elementary education. They have delivered their individual recommendations to the working
group in 2018. A final report containing initiatives and recommendations will be submitted to the
Government in late 2019.
26
3.3.2.2 IT in elementary schools
Digital appliances and platforms play an increasingly significant role in our everyday lives, and it is therefore
important to equip future generations with the necessary tools to navigate and partake in an increasingly
digital society. It is no longer sufficient to rely solely on local teachers to secure that future citizens receive
an adequate digital education, which is an increasingly important skill. Digital education covers both
technological skills, but also the ability to critically approach the massive amount of information that we are
exposed to on a daily basis on digital platforms and social media.
Activities and results
In cooperation with the Agency for Digitalisation, the Agency for Education has submitted a strategy for
digitalisation in elementary schools, “A Digital Elementary School”.20 The strategy covers three main
themes
Digital materials will allow for greater focus on academic development and quality, as it will save
time and resources as well as improve conditions for both distributing and updating materials.
Furthermore, it will help minimising errors and thus increase the quality of written tests. It is
necessary to keep the current IT-infrastructure in mind, and have both online and offline options
available. It is expected that, in time, digitalisation of materials will lead to better conditions for
differentiated teaching, which will benefit a more diverse pupil group, including students with
special needs.
Digital skills are increasingly important to master. First, it provides students and teachers with a
new opportunity to work creatively and innovatively with a variety of complex tasks. Furthermore,
the internet has opened up for new experiences, knowledge, games, and communication. The
digital world that has opened up for both children and young adults is enormous, and navigating
and partaking in it is not without risk. It is therefore key to equip the pupils with the necessary tools
in order to approach it critically and provide professionals with the ability to teach these skills.
Infrastructure and administration is key in developing a digital elementary school. Successful
implementation depends on communication. This implies limiting the amount of communication
channels, increasing the availability of data and facilitating exchange of knowledge and
experiences. Furthermore, it is important to establish a common understanding of how distance
learning can be utilised.
20 http://iserasuaat.gl/da/Folkeskole/Nyheder/2017/12/Atuarfik%20Digitaliusoq (Danish and Greenlandic only).
27
The two agencies have started drafting possible initiatives within the framework of the strategy. Among
these are digital learning materials and tests, developing the use of technology in elementary schools
(digital didactics and digital education), digital information sharing, and improved administration and data
readiness. For the school year 2018/2019, 250 digital titles have been made available for use both online
and offline.
Many of the projects relating to the initiative has required cooperation with municipalities, the Teacher
Training College, and external partners. In addition, both the Agency for Education and the Teacher Training
College have been working on developing the digital skills among their employees in order to make IT a
natural part of everyday activities.
3.3.2.3 Revision of Elementary School Legislation
Following the independent evaluations of the elementary school system in 2015 and Teacher Training
Programme in 2016, it was concluded that existing elementary school legislation has not been sufficiently
implemented in Greenlandic elementary schools. Also, the quality of the teaching does not live up to the
political goal that all children, regardless of social inheritance or place of residence, have equal access to
qualified teaching based on their individual prerequisites and needs. The consequences of this is especially
clear in relation to the 7th grade tests, but also in connection with the transition and completion rates.
Implementation and control regarding elementary education in Greenland remains a municipal
responsibility. However, because of the above issues, the Government decided to revise current legislation
on elementary schools in order to provide a better national framework for local implementation. During its
fall session 2017, Parliament approved a number of amendments to the existing legislation, including the
opportunity for pupils to either retake or skip a school year, if it is deemed important for the pupil’s well-
being or beneficial to their learning or development. Furthermore, the Order on Special Education has been
revised, in order to offer more suitable options and better support for pupils with special needs.
Activities and results
In connection with the work on creating a cohesive and flexible education system (see section 3.3.7.1), the
Government decided to revise the organisation and content of elementary education in order for it to
become part of an education system with a better flow in the transition to youth education. Therefore, in
2018, the Agency for Education has worked on conducting relevant surveys and drafting a report in close
cooperation with the municipalities. The results of this work will form the basis for a new Order and an
action plan for further activities. As this is a large scale operation, which is still in its early stages, there is
currently no timeline available.
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3.3.2.1 Quality and School Development
As elementary schools are a municipal responsibility, and as learning primarily happens in the classrooms
through interactions between student and teacher, it is difficult for the central administration to directly
influence these processes. Therefore, the Government’s main role is to set targets, provide the necessary
framework, and evaluate the efforts. Through the Agency for Education, the Government supports the
elementary school system with education, upskilling, learning materials, and counselling. The municipalities
are responsible for the operation and activity in elementary schools and are better equipped to influence,
for example, pedagogical initiatives and local developments. Based on this, the Agency for Education is
working on developing a new structure for cooperation between the involved actors, where the municipal
school authorities take main responsibility for forming their efforts based on their own needs.
Activities and results
In close cooperation with the municipalities, the Agency for Education has begun drafting the processes for
closer cooperation. Instead of offering the current extent of short courses, the effect of which has been
limited, the Agency for Education has been working on developing initiatives in cooperation with
municipalities and schools, based on individual needs and on binding agreements. Among the initiatives
being developed are IT in elementary schools (see section 3.3.2.2) and Education and Up-skilling (see
section 3.3.2.2).
Furthermore, in 2017 an international expert group was appointed by the Government in order to
strengthen the quality of language training in Greenlandic elementary schools (see section 3.3.2.3). The
expert group submitted its recommendations in late 2017, and its final report in 2018.21
3.3.2.2 Education and Up-skilling
Based on the independent evaluation of the elementary school, and in line with recommendations from the
“External Review of EU Support to the Education Sector 2007–2013”, the Ministry of Education will continue
to work for qualified and trained personnel at all schools, as it is of utmost importance, that all children are
met by trained staff. At schools, where they lack trained teachers, the teachers will be offered relevant and
qualified up-skilling in order to educate the children in a pedagogically responsible and developing manner.
Non-trained personnel are particularly used in settlements, which is why education and up-skilling among
the settlement’s personnel is a special area of focus. Furthermore, up-skilling opportunities for teachers,
who teach students with special needs, will be developed.
21 The final report is published in English at http://naalakkersuisut.gl/en/Naalakkersuisut/Departments/Uddannelse-Kultur-Kirke-og-Udenrigsanliggende/Publikationer/Sprograpport
29
All children must be offered learning activities that fit their needs. The school personnel must therefore be
trained to be able to care for all children, despite their physical, emotional, social, and cultural
development and strengthen their wellbeing, resilience and connection to the community. The qualified
part of the staff is still to be offered upskilling through graduate studies.
Activities and results
Based on the evaluation of the Greenlandic elementary school system, the Agency for Education initiated
an organisational change in 2017, enabling the agency to offer more need-oriented counselling services and
courses to the municipal administrations and schools. The municipalities, who are the main target for the
courses and services, will now be able to make requests based on individual needs. Courses that are
centrally planned and structured have therefore be downsized in order to make room for courses and
programmes that are planned in cooperation with the recipients. The courses integrate IT in the didactic
approach.
Furthermore, the Agency for Education and Teacher Training College have increased their cooperation, in
order to develop and strengthen coordination between the two parties. The Teacher Training College will
still be responsible for upskilling and graduate studies and has started working on starting a large-scale up-
skilling programme in 2018.
In 2018, the Agency for Education has focused on upskilling non-trained staff in elementary schools and
offering courses to part time teachers and school principals have received special attention. The planning of
these initiatives have been carried out in close cooperation with the municipalities.
3.3.2.3 Strengthening language training
Data from the Agency for Education indicates that elementary school pupils continue to face difficulties in
language subjects (Danish, Greenlandic and English). Therefore, the Ministry of Education appointed an
international expert group consisting of experts from Greenland, Denmark, Iceland, and Canada, which – in
close cooperation with municipalities and schools – was given the task of strengthening and developing
language learning.22
The international expert group covered, described and analysed the following issues:
The relationship between and relative status of languages
The current language prioritisation’s effect on education strategy
22 An English version of the final report of the Expert Group on Language Training can be found here: https://naalakkersuisut.gl/~/media/Nanoq/Files/Publications/Uddannelse/Sprograpport%20UK%202018indd-1.pdf
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Assessment of the opportunities and challenges that will occur following a possible change in the
current prioritisation
Assessment of the quality of language training
Comparison between language training in preschool and elementary schools in Greenland and
other bilingual countries
Activities and results
In 2018 a final report has been submitted.23 Possible actions will be considered based on its
recommendations. So far the work of the expert group has served as the basis for conducting four seminars
on language learning, including a variety of actors within elementary education in Greenland. The planning
of a fifth seminar begun in 2018, and invitations have been extended to relevant parties across Greenland
as well as Iceland and Nunavut, Canada. The fifth seminar will take place in March 2019.
23 The final report is published in English at http://naalakkersuisut.gl/en/Naalakkersuisut/Departments/Uddannelse-Kultur-Kirke-og-Udenrigsanliggende/Publikationer/Sprograpport
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3.3.3 Young people outside the education system
The term “young people outside the education system” refers to 16–18-year-olds, who are not enrolled in a
youth education or a continuation school after finishing elementary school. The longer it takes before you
start your further education, the greater the risk that you will never get started.
Many young people do not have the qualifications from elementary school to continue into further
education. Therefore, focus is on up-skilling of these young people to continue into a youth education and
thereby decrease the share of young people outside the education system (EU5). The share of 16–18-year-
olds outside the education system has overall had a positive development since baseline year 2013, as
more young people continue into continuation schools and youth educations. However, the share outside
of the education system does fluctuate and remains too high.
The work on creating a cohesive and flexible education system aims to deal with this issue by making the
transition from elementary school to youth education smoother and thus creating a natural flow, carrying
elementary school graduates into the educational programme that suits them best, be it high school or
vocational education and training.
The fact that initiatives targeting this age group are initiated in both the Ministry of Education and the
Ministry of Labour has made it evident that better coordination within the Government is necessary. From
2019, relevant initiatives coming from the Ministry of Labour will therefore be featured in the Education
Plan II and the corresponding Annual Work Plan.
The indicator within the area is shown below with baseline value, result, and targets.
EU5: Share of age group outside education system
2013 2017 Midterm target 2017
Result 2018 Target 2020
16–18 years old 61.6 % 60.1 % 57 % 57.4 % 40 %
Women 59.0 % 58.1 % 54.8 %
Men 64.2 % 62.2 % 60.1 %
In order to decrease the share of young people outside the education system, the below activities were
carried out in 2018.
3.3.3.1 Stays at Folk High Schools and Continuation Schools in Denmark
Funds have been allocated so more young people from families that are financially hard-pressed will be
able to attend folk high schools or continuation schools in Denmark. The aim of the initiative has been to
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ensure that young people, who experience difficulties with foreign languages and who do not have the
qualifications to continue in education after elementary school, get the opportunity to acquire these
competencies at a folk high school or continuation school in Denmark. Furthermore, a stay abroad and
away from home will prepare the pupils for their further education where many young people will have to
move away from home.
Activities and results
An amendment to the Folk High School Act entered into force 1 January 2018. The amendment allocates
funds for the Folk High Schools in Greenland based on the amount of students they accept. In addition, the
amendment will allow the schools to offer preparatory training for tests, such as the Elementary School
Exam. From 2018 and onwards, continuation school students in Greenland have also gained the
opportunity to take the Elementary School Exam in main subjects at the continuation school. This is offered
in order to ease their transition to youth education in Greenland.
In order to minimise dropouts at continuation schools, the Agency for Education drafted a plan for
organising preparatory camps for continuation school students in cooperation with, among others, the
Danish Continuation School Association and the Greenlandic Houses in Denmark. The preparatory camps
were carried out immediately before the beginning of the school year 2018/2019.
3.3.3.1 A smoother transition from elementary school to youth education
Between 2013 and 2018, only 10–15 % of elementary school graduates transitioned to youth education
immediately after finishing elementary school, and even though 40–50 % transitioned to continuation
school in Greenland or in Denmark, only approximately 45 % of the students had enrolled in youth
education within a year of completing elementary school. Thus, around 60 % was not enrolled in an
educational programme during the above period. A considerable share of this group does not continue into
youth education at all, a share that the Government wishes to reduce to 25 % in 2024.
The reasons behind these numbers may be many and complex, but they indicate that the counselling and
guidance that the pupils receive in elementary school is insufficient. The work on creating a cohesive and
flexible education system therefore includes this issue as an area of special attention (see section 3.3.7.1).
Activities and results
In 2018, as part of the work on creating a cohesive and flexible education system (see section 3.3.7.1), a
working group was appointed with the task of developing project proposals. Also, several project groups
consisting of people with direct experience within different fields of education were appointed, of which
33
several have been focusing on areas relating to young people outside the education system. They have
delivered their individual recommendations to the working group in 2018. A final report containing
initiatives and recommendations will be submitted to the Government in late 2019.
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3.3.4 High School
The high school must have a high academic level and prepare the students for higher education, but it is
also important that it is inclusive and has room for diversity. This implies a need for focus on supporting the
students, who are academically challenged in one or more subjects, and provision of support and guidance
to students with psychological or social problems. However, it also implies accommodating students with
very different social, geographical, and academic backgrounds. The objective is that more students
complete high school and continue into higher education.
The quality of the elementary education that students have received prior to high school varies, many are
first generation high school students, and it is not uncommon for students to have one or more children
while attending high school. In addition, some students encounter difficulties as a result of the language
barrier that occurs when classes are taught in either Danish or the West Greenlandic dialect. Furthermore,
Greenland is currently home to four high schools in Nuuk, Qaqortoq, Aasiaat and Sisimiut, and prospective
students, who do not live in a city, where high school education is offered, have traditionally had to move
in order to attend a high school programme. This will change with the introduction of the distance learning
high school programme, eGUX, based at the school in Sisimiut.
Recruitment and retention of personnel is also a challenge in high schools. There are very few qualified high
school teachers who are able to teach in both Danish and Greenlandic, and a high turnover rate among teachers
recruited from Denmark often leads to loss of valuable information and experience, that will have to be rebuilt
when new teachers are hired. The high turnover rate also leads to a sense of instability among both students
and staff, who will need to adjust to a new teacher and colleague. The Government expects that employing
more Greenlandic teachers will improve retention of both students and teachers. In recent years, there have
been sufficient applicants from Denmark and other countries, and in addition, the high school in Nuuk is
participating in an ETA (English teacher assistant) exchange programme, currently involving a teacher from the
USA. Especially the high schools in Aasiaat and in Qaqortoq (the smallest communities) are experiencing
recruitment issues. These two schools also have the largest percentage of students, whose primary language is
Greenlandic, so providing lessons in English is a major challenge, particularly here.
Overall, there has been a focus on continuous development of initiatives within the fields of pedagogy and
academic competence. In this process, it is important to secure that local development is consistent with
general strategies for quality assurance and evaluation. The general objective is that more students
complete high school and continue into higher education (EU10).
Indicators within the high school area are shown below with baseline values, results, and targets.
35
EU7a: Enrolment; High School24
2013 2017 Midterm target 2017
Result 2018 Target 2020
Total 1,317 1,205 1,320 1,198 1,320
Women 62.0 % 60 % 62 %
Men 38.0 % 40 % 38 %
EU8a: Number of completions; High School
2013 2017 Midterm target 2017
Result 2018 Target 2020
Total 357 328 354 304 365
Women 64.1 % 56 % 62 %
Men 35.9 % 44 % 38 %
EU9a: Completion rate; High School25
2013 2017 Midterm target 2017
Result 2018 Target 2020
Total 60.85 % 49.57 % 62 % 50.88 % 67 %
Women 59.76 % 50.83 % 54.16 %
Men 62.61 % 47.70 % 45.93 %
EU10: Transition rate to education 2 years after completion
2013 2017 Midterm target 2017
Result 2018 Target 2020
High School 64.1 % 46.3 % 70 % 49 % 72 %
Women 70.5 % 47.6 % 53.5 %
Men 53.0 % 43.8 % 40.7 %
EU11a26: Transition rate to education 2 years after dropout
2013 2017 Midterm target 2017
Result 2018 Target 2020
High School 57.5 % 39.6 % 40 % 44 %
Women 64/116 55/153 104/203
Men 51/84 42/110 81/149
Note: Due to the small number, the indicator divided into gender is not shown in percentage, as small changes will have a huge effect on the numbers reported.
24 This indicator has previously been known as “Attendance”. Due to risk of misinterpretation it has been decided to rename it
“Enrolment”. 25 Please note that these results have changed. This is a consequence of the method of calculation as described in Annex 5: Indicator Documentation Sheets 26 2015 and 2016 are not directly comparable, as Statistics Greenland has revised the method of calculation. Using the new method, figures for previous years have been recalculated.
36
In order to achieve the targets above, the following activities were carried out in 2018.
3.3.4.1 The High School Reform
The High School Reform of 2012 introduced a new education focusing on the development of the person as
a whole and giving each student the best possible conditions for academic and social development. As the
new High School programme is being implemented, the goal is that more young people start directly after
elementary school. The aim of the reform is to adjust structures, schools, and curricula to the students’
situations and needs, among other things the fact that many of the students complete high school in their
secondary language, but it also aims to comply with international standards. This is done in order for more
young people to be attracted to, included, and maintained in strong academic developmental
environments, so that they are ready and motivated for a higher education after three years. The reform
has 20 overall initiatives, but emphasis mainly lies within three areas:
Pedagogy: Including, but not limited to, secondary language training and culture based teaching
Academic competence: Including, but not limited to, fields of study, new subjects (culture, science,
study technique), and team work with a focus on both social and academic wellbeing
Guidance: Including, but not limited to, more professionalised guidance and extended study-,
career-, and personal counselling.
Since 2013, there has been an on-going external evaluation of the implementation and impact of the
reform, with mid-term evaluations in 2014 and 2015. The final evaluation of the first phase, was conducted
in 2016. The evaluations in this first phase have focused on the implementation of the reform and will be
used to determine where further implementation requires adjustment. Overall, the yearly external
evaluations show that the implementation has increased over the years, but there is still room for
improvement. The first evaluation phase ended after two cohorts had completed the education under the
new reformed system, and phase two is now taking place. The plan was to follow the developments closely
the first five years and then adjust according to the findings. The second phase will focus on the following
actions and continued evaluations as described below. As such, the final evaluation of phase one does not
conclude the evaluation of the impact of the reform of 2012 as there will be continuous developments and
evaluations within a 5-year cycle. See also Annex 9.
Activities and results
A revision was completed in 2016–2017, in which the schools, staff, and students have contributed to the
initiatives of the coming 5 years. 15 focal areas in need of special attention have been identified, sharing a
common objective of increasing implementation and the effect of the High School Reform of 2012. A large
37
part of this work will consist of examining opportunities for meeting the demands that follow in the wake
of increasing diversity.
New activities based on the evaluation in 2016 were initiated in 2017, including the establishment of
different local working groups in each of the schools. The schools will develop project plans, submit them
for approval to the Ministry of Education, try the structures of each evaluation item, and finally evaluate
them. The results and experiences from the schools will then form the basis for future practices and for the
final decisions regarding restructuring of the high school area. As Greenland only has four high schools with
limited resources, it has been deemed impossible for all schools to get involved in all evaluation items at
once. Therefore, the revision process is expected to be on going for several years with regular follow-up on
and conclusion of individual evaluation items.
3.3.4.2 Distance learning (E-GUX)
As a follow up on the closure of the 1-year study preparatory course, the Ministry of Education is examining
the possibilities of providing a high school programme through distance learning. The target group is the
same as for the closed study preparatory course, as the targeted potential students often have established
families and/or have full-time jobs in other cities than those with high schools. Distance learning is
estimated to provide educational opportunities for a number of people, who are either seeking the
flexibility that distance learning offers (e.g. in relation to job, family, etc.), or who do not want to/cannot
move to a city that offers a high school education. The Ministry of Education will also examine the
possibilities of extending the programme to fit students with special needs. Offering an online version of
the high school programme is expected to have a positive effect on the transition rate to higher education
within 2 years from completion.
In spring 2016, the Ministry of Education established a working group in order to examine the possibilities
of providing high school education via distance learning. The working group examined relevant issues, set
concrete proposals for political position, and submitted its final report in March 2017. Previously, distance
learning, where the students are located in school and their teacher is elsewhere, has been carried out in
high school. This working group should examine the possibilities of distance learning, where individual
students can study from home via the internet, and their teacher be located anywhere, as long as there a
stable internet connection is available.
Activities and results
The working group examined relevant issues and set concrete proposals for political position. Among the
conclusions were:
38
that the current internet infrastructure is in most cases reliable enough for distance learning to take place
that distance learning students need a support system of counsellors etc.
that a firm and recognisable weekly structure is needed. This could be especially suitable for students with special needs.
that the most suitable location for establishing the distance learning programme would be in Tech College Sisimiut.
Following the recommendations of the working group, the Ministry of Education has continued to develop
the initiative and is now aiming at launching a distance learning pilot project to be offered in 2019. This
project – a 2-year distance learning high school programme to begin in August 2019 – will build on the
lessons learned in connection with upskilling high school graduates, who do not meet the formal
qualifications for admission to higher education (such as the teacher training programme) due to
inadequate grades in individual subjects. Such an upskilling programme ran in 2018 and resulted in an
increase in acceptances at the Teacher Training College, despite tightened requirements.
3.3.4.1 2-year High School Programme for Adults
The study preparatory course ran on a trial base at the High School in Nuuk since 2005 and at the High
School in Aasiaat since 2008. The target group was adults above 23 years with at least three years of
documented professional experience, who would like to continue studying but lacked a qualifying exam. An
analysis of the course, based on the experiences of the trial scheme, concluded that it needed to be
revised. Furthermore, the University of Greenland experienced that students enrolled with a study
preparatory course background, have significant professional challenges. As it has not been possible to
improve the courses’ academic and educational content, the course ended in summer 2016, and a
replacement needed to be found.
In 2017, the Ministry of Education established a 2-year high school programme on a trial basis, replacing
the former 1-year study preparatory course for adults. The programme consists of compulsory standard
high school subjects as well as specific subjects required for a variety of further education programmes in
Greenland, such as the nurse practitioner programme. The 2-year programme entails twice as much
teaching at a higher level, and thus lives up to the minimum requirements of the high school exam and
provides access to higher education. The standard 3-year high school programme, however, remains the
most comprehensive and direct path towards pursuing higher education.
39
Activities and results
The programme started on a trial basis in Aasiaat in 2017 and 2018 and there is a wish to run another
round in 2019. The programme will be evaluated in cooperation with the higher education institutions.
Therefore, data on the amount of completions on higher education following the 2-year programme cannot
be collected until 2023–25.
3.3.4.1 GUX-S
In recent years, there has been an increase in the international community’s attention towards people with
disabilities. The United Nations, for instance, has demanded an increased focus on providing children and
young people with a disability with equal access to education. In order to accommodate a more diverse
population in the educational system, the Ministry of Education has launched a high school programme for
students with special needs in 2017. This programme has been prepared in close cooperation with relevant
organisations in Greenland, and consists of individually prepared study programmes, according to the
needs of each student. Prospective students are those who live up to the standard admissions
requirements of the regular high school programme, but are unable to partake in the standard high school
programme due to disabilities such as ADHD and autism.
Activities and results
The aim of the programme, named GUX-S, is to increase the opportunities for students with special needs,
who are deemed capable of completing a high school programme. In 2017, a trial programme started,
including the establishment of a special unit with competencies within the psychological, social, and special
education field, placed at Campus Kujalleq in Qaqortoq. The special unit supports all four high schools in
Greenland in terms of visitation, planning, up-skilling, and supervision. Meanwhile, the Ministry of
Education also examines the opportunities of connecting GUX-S to the e-GUX programme in order to
accommodate students, for whom moving to a city with high school education is not a feasible option due
to their disability.
The trial programme will end in 2021 and will be subject to yearly evaluations. These evaluations will form
the basis of deciding whether to make the programme a permanent offer.
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3.3.5 Vocational Education and Training
A vocational education is a qualifying education that gives the individual direct access to skilled
employment in the labour market. Vocational education and training is fundamental to the Greenlandic
society, as practically oriented educational programmes, such as construction, senior care, fishing, and
transportation, relies highly on local skilled labour.
50 % of students in a vocational education programme do not complete their education. Of the dropouts,
36.8 % transitioned to education within 2 years in 2018. In addition, the average age upon completion
tends to be relatively high for vocational education and training. This indicates a need for improving the
transition from elementary education. Furthermore, the vocational education programmes must be
developed according to the present and future needs of the labour market, and the course catalogues at
the vocational colleges need to reflect these requirements. Therefore, the boards of directors at the
vocational colleges shall ensure the link to the labour market. Also, to secure better coordination within the
Government, a selection of initiatives coming from the Ministry of Labour will be featured in the Education
Plan II and the corresponding Annual Work Plan from 2019.
The economic situation influences the vocational educations as the students alternate between school
periods and internships in companies. In periods of low economic growth, the number of apprenticeships
traditionally tends to be low, but in recent years, periods of high economic growth has not appeared to
lead to a significant increase in the amount of internships either (EU6). It is important to ensure that
students still have the possibility to start and complete their education regardless of the economic
situation. Therefore increasing and then maintaining the number of apprenticeships has a high focus.
Indicators within the vocational education area are shown below with baseline values, results, and targets.
EU6: Number of apprenticeships
2013 2017 Midterm target 2017
Result 2018 Target 2020
Vocational education and training
833 779 930 707 960
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EU7b: Enrolment27
2013 2017 Midterm target 2017
Result 2018 Target 2020
Vocational education and training
1,333 1,205 1,340 1,190 1,340
Women 49.0 % 49.9 % 49.5 %
Men 51.0 % 50.1 % 50.5 %
EU8b: Number of completions
2013 2017 Midterm target 2017
Result 2018 Target 2020
Vocational education and training
410 427 407 421 480
Women 56.8 % 53 % 53 %
Men 43.2 % 47 % 47 %
EU9b: Completion rate28
2013 2017 Midterm target 2017
Result 2018 Target 2020
Vocational education and training
48.07 % 50.76 % 50 % 50.78 % 55 %
Women 53.40 % 52.44 % 52.70%
Men 42.60 % 49.03 % 48.84 %
EU11b29: Transition rate to education 2 years after dropout
2013 2017 Midterm target 2017
Result 2018 Target 2020
Vocational education and training
29.1 % 30.8 % 36.8 %
Women 41/148 58/202 85/217
Men 61/202 68/207 80/231
Note: Due to the small number, the indicator divided into gender is not shown in percentage, as small changes will have a huge effect on the numbers reported.
EU11a230: Transition rate to education 2 years after dropout (High school to VET)
2013 2017 Midterm target 2017
Result 2018 Target 2020
High School to VET 17.5 % 21.3 % 16.8 %
27 This indicator has previously been known as “Attendance”. Due to risk of misinterpretation it has been decided to rename it “Enrolment”. 28 Please note that these results have changed. This is a consequence of the method of calculation as described in Annex 5: Indicator Documentation Sheets 29 2015 and 2016 are not directly comparable, as Statistics Greenland has revised the method of calculation. Using the new method, figures for previous years have been recalculated. 30 2015 and 2016 are not directly comparable, as Statistics Greenland has revised the method of calculation. Using the new method, figures for previous years have been recalculated.
42
EU12: Administrative staff completing training
2014* 2016 Midterm target 2017
Result 2018 Target 2020
Total 1,484 2,466 1,500 1,261 1,500
* As registration did not take place prior to 2014 the baseline year is 2014.
In order to achieve the targets of both an increasing number of enrolled students and graduates, the
following activities were carried out in 2018.
3.3.5.1 More apprenticeships
The vocational colleges experience a significant number of qualified and enrolled applicants who are unable
to initiate their education due to a lack of apprenticeships. The number of apprenticeships has consistently
been below baseline and has continued to decline. The problem of providing a sufficient number of
apprenticeships is particularly evident during periods of low economic activity, where it is often more
difficult for companies to sign a contract with apprentices for several years. However, years of increased
activity have not necessarily seen a significant rise in the number of apprenticeships. An amending bill to
the Parliament Act no. 10 of 19 May 2010, on vocational training and courses in vocational training, was
presented and adopted at the Spring Session in 2016. The amendment seeks to establish a clear framework
for the use of school apprenticeships. Previously, the apprentice contract has had to cover the whole
education period. Currently, it will be possible to make exemptions if the school can provide a school
apprenticeship and guarantee that the student can complete the practical training. The amendment
entered into force August 1st 2016.
Activities and results
In 2017, the Ministry of Education initiated the work on creating a cohesive and flexible education system
in Greenland (see section 3.3.7.1). Within the VET-sector, the reform will propose initiatives to make up for
the lack of apprenticeships and prevent a bottleneck problem. Among these initiatives are a 1-year
introductory programme, where students will not need an apprenticeship contract in order to start their
education. Proposed initiatives relating to the initiative are expected to be submitted to the Government in
2019.
The Ministry of Labour introduced a bill at the Parliament’s Autumn Session in 2016 that sets minimum
requirements for the number of apprenticeships a company must have, based on the number of skilled
workers in the company. In 2018, the Ministry of Labour has been working on a model for how the law can
be implemented. Parliament is expected to vote on the bill in 2019.
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3.3.5.2 Short Vocational Education and Training Programmes
Because of the lack of skilled labour, the construction industry has requested new short vocational
education and training programmes within specific areas. The short modular educations take 1–2 years but
will provide qualifications to continue a long vocational education. The new education programmes will not
only be targeting young students but will also up-skill the unskilled workers in the construction industry.
Short vocational programmes are in high demand within the business sector as there is a shortage of
educated labour. In addition, the short vocational programmes will also contribute to up-skilling of
unskilled labour.
Activities and results
From 2018, the work on developing short vocational education and training programmes has become a
part of the work on creating a cohesive and flexible education system (see section 3.3.7.1). A working group
was appointed with the task of developing project proposals. Also, several project groups consisting of
people with direct experience within different fields of education were appointed, among these a group
dealing specifically with the VET sector. They have delivered their individual recommendations to the
working group in 2018. A final report containing initiatives and recommendations will be submitted to the
Government in late 2019.
3.3.5.1 Technology Management Programme
As activities in the mining, offshore, and construction industries increase, the need for technology
managers with specific knowledge of Arctic conditions will grow. Investments in large-scale mining projects
are on the rise, geological surveys are conducted in the search for natural resources, and plans for large-
scale infrastructure projects are progressing, all of which indicate a substantial need for technical knowhow
in the future. Likewise, the need for technology managers with knowledge of the environment and climate
sector is estimated to increase.
The goal is to establish an Arctic Technology Management Programme in Sisimiut in cooperation with the
Technology Management College in Copenhagen, based on the ARTEK-model. This will entail an expansion
of Tech College Greenland in Sisimiut’s current facilities, including construction of classrooms, laboratories,
and workshops.
Activities and results
In early 2018, a working group was established and assigned the task of developing a proposed curriculum
and composition for the programme. Their task has been to map out the need for qualified technology
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managers, the need for and cost of expansion of facilities, and the pros and cons of sharing facilities with
other programmes at Tech College Greenland. The working group will submit a report to the Government
in 2019.
3.3.5.1 Education Programmes for the Fishing Industry
Based on requests from the fishing industry, where skilled labour is in high demand, the Ministry of
Education has been examining the possibilities of establishing educational programmes aimed at this
particular business sector.
Activities and results
In 2018, work on developing the following two programmes has been ongoing:
FishTechGL
A large part of the existing workforce in the fishing industry is unskilled, and it is estimated that upskilling
the personnel will be very beneficial for the companies. The Food College Greenland, INUILI, has been
working on developing a new programme in collaboration with Royal Greenland and the Employment
Office in Nuuk. The Ministry of Education and Food College Greenland, INUILI, have developed a curriculum
for the programme FishTechGL, expecting to start the programme in 2019.
Arctic Fishing Technology
A diploma programme in Arctic Fishing Technology targets the need for engineers, who are able to work in
the Greenlandic fishing industry and with sustainable use of maritime resources. The programme will thus
support the Greenlandic workforce with the technological skills needed to secure a sustainable and
effective development of the Greenlandic fishing and food processing industry.
The diploma programme in Arctic Fishing Technology is expected to start in 2019 in collaboration with the
Technical University of Denmark, DTU.
.
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3.3.6 Higher Education
It is important to educate the youth to fill in the academic positions in the labour market in Greenland. To
increase the share of the population with a higher education, focus is on expanding the range of
professional bachelor's degrees, and supporting the establishment of more education programmes with a
structure based on the ARTEK model31. Furthermore, in order to maintain an international standard in
higher education programmes offered in Greenland, procedures for quality assurance need to be
developed. At the same time, young people should also be aware of the opportunity of pursuing an
education abroad.
Getting an education above elementary school level is a relatively new thing in Greenland. In many cases,
students, who choose to go to high school, are the first ones in their family to do so, and completing high
school is therefore often seen as an achievement in itself and not as a step in the direction of getting a
higher education. Enrolment in higher education upon completion of high school has therefore not always
been the natural choice for the majority of high school graduates. Luckily, the number of students enrolling
in higher education (EU7c) has seen an increase since baseline year 2013, most likely due to a larger variety
of courses at the University of Greenland, but the transition rate to education within 2 years after
completing high school (EU10) has been declining since 2013, which may indicate that students choose to
take more gap years between high school and higher education. Between 2017 and 2018 the transition rate
did, however, see an increase of 2.8 percentage points.
Once the students have enrolled in higher education, another challenge – drop out – occurs. Only around
half of the students in higher education complete their education (EU9c). Reasons for drop out vary and
can be very complex. Among the reasons may be that the amount of programmes offered in Greenland are
still very limited and students often have to go abroad to pursue their programme of choice. Many of these
students have never been outside of Greenland and are therefore often faced with the challenge of having
to cope with cultural differences, the practicalities of moving abroad, homesickness and a language barrier.
Even for students, who do not face language problems, the study culture abroad can be vastly different
from the one to which they are accustomed. Another reason may be that students do not receive adequate
help in the process of choosing a higher education and therefore often end up making the wrong choice.
The earlier they reach this conclusion and can start in another programme the better, but ideally, they
should not have to make a wrong choice the first time around. Therefore, it is necessary to evaluate the
current student guidance system to see if any improvements can be made. Furthermore, it is not
31 The ARTEK-model is collaboration between a Greenlandic educational institution and a foreign educational institution offering an education partly taken in Greenland and partly abroad. The expenditure for operations is divided between the institutions.
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uncommon for students in higher education in Greenland, especially at master’s level, to be offered full
time work, which can lead to delayed graduation or even drop out.
Indicators within higher education are shown below with baseline values, results, and targets.
EU7c: Enrolment32
2013 2017 Midterm target 2017
Result 2018 Target 2020
Short cycle 126 195 126 210 126
Bachelor 957 941 957 919 957
Master 123 164 123 167 123
Total Higher Education 1,206 1,300 1,206 1,296 1,206
Women 69.0 % 68.4 % 71 %
Men 31.0 % 31.6 % 29 %
EU8c: Number of completions
2013 2017 Midterm target 2017
Result 2018 Target 2020
Short cycle 24 57 48 68 54
Bachelor 148 149 155 174 173
Master 29 38 32 34 38
Total Higher Education 201 244 235 276 265
Women 71.1 % 64.3 % 82 %
Men 28.9 % 35.7 % 28 %
EU9c: Completion rate33
2013 2017 Midterm target 2017
Result 2018 Target 2020
Short cycle 53.41 % 55.87 % 48 % 55.60 % 54 %
Bachelor 43.95 % 44.81 % 52 % 44.67 % 55 %
Master 73.65 % 88.11 % 80 % 84.66 % 82 %
Total Higher Education 48.72 % 52.39 % 53 % 50.80 % 57 %
Women 54.23 % 58.71 % 56.34 %
Men 38.17 % 41.10 % 43.82 %
32 This indicator has previously been known as “Attendance”. Due to risk of misinterpretation it has been decided to rename it “Enrolment”. 33 These results have changed as a consequence of the method of calculation as described in Annex 5: Indicator Documentation Sheets
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EU11c34: Transition rate to education 2 years after dropout
2013 2017 Midterm target 2017
Result 2018 Target 2020
Total Higher Education 47.4 % 57.4 % 44.8 %
Women 57/106 82/144 76/163
Men 35/88 58/100 57/134
Note: Due to the small number, the indicator divided into gender is not shown in percentage, as small changes will have a huge effect on the numbers reported.
In the process of achieving the targets for number of graduates, the below activities were carried out in
2018.
3.3.6.1 Quality Assurance of Higher Education
Due to internationalisation, it has become necessary for Greenland to implement a procedure for quality
development in its higher education system, in order to live up to international standards. Because of the
close connection to the European labour market, and because Europe has an internationally recognised
quality assurance system, the decision has been made to work towards the European certification ESG-
2015. The implementation is expected to take as much as a decade, since the process includes
development of a quality culture and multiple cycles of review to be undertaken in order to fulfil the
European standards.
Activities and results
The Ministry of Education has initiated the process on quality development and assurance of the higher
education following the European standards. In 2016, seminars on international experience with quality
work were held for the teaching staff and other stakeholders. In 2017, the Ministry of Education appointed
a working group, whose task will be to develop an action plan for the development of the process and
secure that all stakeholders are included. The Ministry of Education has also continued the series of
seminars regarding content and goals for quality assurance, targeting staff and students in higher education
institutions in Greenland.
In 2018, the working group for establishing a system for quality assurance in Greenland has been discussing
and developing proposals for further action during a series of 5–6 seminars. This includes an organisational
model and the development of a national quality framework. Furthermore, based on inspiration from
34 2015 and 2016 are not directly comparable, as Statistics Greenland has revised the method of calculation. Using the new method, figures for previous years have been recalculated.
48
Iceland, the working group has decided to establish a quality council consisting of international experts who
will lead the further development of a framework for quality assurance in higher education.
3.3.6.1 New legislation on higher education
The legislation on higher education was last updated in 2007 and is now outdated due to the development
and new initiatives in the sector. As a result, the Ministry of Education has prepared proposals for updating
existing legislation on the University of Greenland and at the same time unify legislation on higher
education under one Parliament Act.
The proposed new Act on the University of Greenland will regulate the administration of the University of
Greenland and is largely a continuation of existing legislation. The updated version, however, will be limited
to regulating only purpose, administration, and finances. The proposed Act on Higher Education will
continue to regulate the programmes and their content. Furthermore, it will regulate affairs related to
procurement and capacity control, quality assurance, application procedures and requirements, studies
abroad, teachers, student counsellors, and complaint procedures.
Activities and results
The new legislation was discussed by Parliament during the Fall Session 2018. Further discussion is
scheduled to take place during Spring Session 2019.
3.3.6.2 New education programs in the social sector
It is of great importance for the Government to strengthen, expand, and develop the existing education
efforts within the social sector. The Ministry for Social Affairs has therefore, in collaboration with the
Ministry of Education, established education and upskilling activities for employees in municipalities, family
centres, residential institutions, day-care institutions, etc. This focus will also share a close connection to
the needs within the healthcare and labour market sectors.
Activities and results
Parliament Act no. 20, 26 June 2017 on support for children, passed during Parliament’s Spring Session
2017, dictates an increased focus on, for instance, foster care and case management. According to the Act,
children and minors are entitled to a safe upbringing with stable relations and personal networks. The
Government sought to intensify efforts on education and upskilling in 2018, as this entails an increased
demand for case officers and other professionals within the social sector, especially in connection to case
management in municipalities and social pedagogical work. Initiatives within this area aims at securing that:
49
a. residential institutions are better equipped in supporting treatment
b. case officers are properly supported
c. family centres are properly equipped in supporting assessment and treatment
d. municipalities and family centres have the professional capacity to supervise personnel
e. the number of professionals working with case management in municipalities increases.
The initiatives are adjusted regularly to fit the needs of the social sector and the municipalities. The
education programmes included in this initiative in 2018 were as follows:
Decentralised social worker’s programme
Upskilling of social workers
Assistant counsellor programme
Decentralised pedagogue programme – special pedagogics
Diploma programme for pedagogues
Supervisor training
Psychotherapist
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3.3.7 Cross-Cutting Initiatives
To support the efforts at all levels of the education system, a range of crosscutting initiatives have been and
are carried out. These initiatives are not necessarily directed at specific areas of the education system but
will underpin the effort to increase its overall efficiency. The activities influence indicators such as number
of graduates, transition rates, and completion rates within all education areas.
3.3.7.1 A cohesive and flexible education system
The Ministry of Education wanted to explore the possibility of creating a cohesive and flexible Greenlandic
education system based on a 12-year compulsory schooling; a compulsory schooling serving as a natural
platform for subsequent education in both Greenland and elsewhere in the world.
Based on the experiences of the current overall education system – successes and issues of this system,
relevant data, evidence-based knowledge, involvement of experiences from other parts of the world, and
collaboration with relevant stakeholders – a proposal will be prepared with the goal of a 12-year long
continuous compulsory education system. A flow must be created in the young people's educational course
so that they avoid becoming part of the group of young people outside the education system (16–18 year
olds).
The goal is to ensure that pupils from the settlements can stay in the settlements up to and including their
8th school year, after which they start in newly established classes with pupils from towns in their 9th
school year. All young people, regardless of choice of direction, must therefore initiate a 4-year continuous
educational course. The 11th and 12th school year will take place in campus towns within the educational
direction chosen by the pupil (technology, language, trade, etc.) at an academic level suitable for the
competences of the pupil. This requires raising the academic level already in the first years of primary
school.
Residence Grade
All 1–8
Town/Campus Town 9–10
Campus Town 11–12
In the following model, the terms “primary school” and “secondary school” are used to refer to 1st–8th
grade and 9th–12th grade respectively:
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The objective is furthermore that new teaching and guidance activities during 9th–12th grade take into
account the competencies and interests of pupils who do not choose to commence one of the current well-
known programmes in the field of vocational education and upper secondary education. These new
activities should be characterised by the pupils acquiring practical and theoretical competencies through
other forms of flexible modular educational courses, enabling the individual to subsequently enrol in
further education – or enter the labour market – after the compulsory 12th grade. The modular and flexible
teaching will include professional and methodical teaching elements from current upper secondary and
vocational education programmes already in the 9th grade.
In addition, the model must ensure that pupils, who wish to start one of the current youth education
programmes after 10th grade, still have the opportunity to do so. Finally, the model should continue to be
linked to further education opportunities in Greenland – as well as correlate with the Nordic school system
in relation to boarding schools, youth-, and higher education.
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Activities and results
Based on the above, the Government approved a recommendation from the Ministry of Education (dated 3
August 2017) on the establishment of a working group. In 2018, this working group started analysing the
possibilities for establishing a coherent and flexible education system in Greenland. Furthermore, several
project groups consisting of people with direct experience within different fields of education were
appointed. They have delivered their individual recommendations to the working group in 2018.
This analysis will lead to a number of recommendations to be submitted in written form to the Government
at the end of 2019. The legal changes must be ready to be addressed in Parliament in connection with the
Autumn Session 2020 / Spring Session 2021.
The working group has chosen to base its work on the following three documented problem areas of the
current education system.
Problem Area 1: The Quality of the Primary School
The Evaluation Institute's reports from 2015 and 2016 respectively, relate critically to both the primary
school and the Teacher Training Programme. The message is that the primary school has performed poorly
and that the Teacher Training Programme has experienced serious quality issues. In the report, this is
documented by a survey of the correlation between poor results in the level tests at junior level with
similarly poor results in the primary school's final examinations.35 This connection, however, is not unique
to Greenland.
Overall, focus is placed on the lack of quality in the primary school, which has a significant impact on the
transition to and interaction with the subsequent youth education programmes.
Problem Area 2: Transition from Primary School to Youth Education Programmes
In the period from 2013 to 2018, only 10–15 % of a cohort enrolled in youth education immediately after
elementary school. In addition, although 40–45 % went to a continuation school in Greenland or Denmark,
it was only 45 % of the pupils, who enrolled in youth education within a year after elementary school in
2018.
35 Economic Council’s 8th report http://naalakkersuisut.gl/~/media/Nanoq/Files/Attached%20Files/Finans/DK/Oekonomisk%20raad/G%C3%98R%202017%20rapport%20DK.pdf
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Thus, 57.4 % of the cohort did not progress in the education system within a year of leaving elementary
school. A part of this group remains outside the education system for several years and becomes part of
the so-called youth target group.
The reasons for this may be many and complex, but it indicates that the education and counselling
processes, that are supposed to take place in elementary school, may not be sufficient enough to prepare
the pupils for a smooth transition into youth education.
Problem Area 3: Dropout at Youth Education Programmes.
Approximately 50 % of the students enrolling in high school or vocational education do not complete their
programme. The reasons behind this are also many and very complex. Surveys in the area of both
vocational education and high school show, that some of the reasons may be personal problems, lack of
readiness and motivation, academic difficulties, and social problems. In both high school and vocational
education, the dropout rate is, in part, directly linked to the education itself. For example, dropout at the
high school in Nuuk is in some cases due to inadequacies in previous schooling, causing students to lag
behind from the beginning. 24 % of the total number of students appear to be experiencing major
academic problems.36
Although the content and structure of the youth education matches the prerequisites of approximately 50
% of the students, there seems to be a mismatch between the built-in requirements and expectations at
the high school and vocational education level. The question is, whether the schools use pedagogy,
didactics, and language adequately in order to match the students' skills. For many students, there is also a
gap between the academic level at the end of elementary school and the academic level of the subjects’
content and methodology in youth education.
Project Groups
Based on a number of sub-areas of a future education model, the working group consists of eight project
groups. The groups are composed partly of representatives of relevant stakeholders (managers, teachers,
students, and parent representatives from both elementary schools, high schools, and vocational schools,
representatives from the Teacher Training College, Majoriaq, the Educational Board, etc.) and partly of
representatives from the Ministry of Education.
36 ”Jeg vil ikke give op mere” – Fastholdelse i Den Grønlandske Gymnasieskole, a survey on dropout and retention in Nuuk high school, by Naja Skadhauge Sano, published by GUX Nuuk 2017.
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The following project groups have been set up: elementary school, the secondary school, high school, VET,
other forms of youth education programmes, e-learning, organisational structure and implementation.
The project groups began their work in connection with a seminar held in Nuuk at the end of January 2018.
It has been followed up by a number of Skype meetings and another seminar in October 2018. The final
proposals of the project groups have submitted to the working group in late 2018. These will now be
incorporated into the continuing work.
Pilot Project
In parallel with the work of the project groups, a pilot project in Nuuk was implemented. The project
included selected teachers and students from the high school, the Iron and Metal School, and one of the
elementary schools. This pilot project was planned during spring 2018 and conducted /evaluated in the
period from August to December 2018. The teaching itself took place over six weeks – followed by an
evaluation involving both students, parents, and teachers.
The purpose of the project was to gain experience with collaboration between teachers from institutions
with different cultures - and knowledge about how students from the elementary school react when they
are taught in an unfamiliar environment and in new subjects.
The evaluation of the pilot project showed that both teachers and students had had a positive experience.
Students used terms such as “nice”, “different”, “fun”, “not boring” and “exciting”. Likewise, the involved
teachers have spoken positively about the cooperation with each other and with the students. However,
some challenges were also pinpointed. Among these were issues related to time and resources and better
preparation in order for two different educational environments to successfully meet.
3.3.7.2 Mapping best practice in elementary school
As part of the work on collecting and communicating relevant data and information to be used in future
efforts towards increasing the overall education level of the Greenlandic population, the Ministry of
Education has decided to conduct larger surveys focusing on specific areas of the education sector. The
surveys are to be conducted by the Sector Strategy Unit and will be based on ideas identified by relevant
stakeholders and the political visions of the Minister for Education.
Activities and results
In 2018, the focal area for such a survey was mapping best practice in elementary schools. The survey is
comprised by two parts. Part one was a benchmark analysis conducted in late 2017, the results of which
55
indicated, which schools might be performing better than expected based on the characteristics of their
individual student group (calculated using variables such as parents educational- and income level, gender
of pupils, and size of student group) and their grade test results (Greenlandic, Danish, and Maths). In the
latter half of 2018, the Sector Strategy Unit conducted part two of the survey, which consists of individual
interviews with principals and teachers of the school with the best grade test results seen in context of
their student group in each municipality:
Kujalleq Municipality: Tasersuup Atuarfia in Qaqortoq
Sermersooq Municipality: Ejnar Mikkelsenila Aluarpia in Ittoqqortoormiit
Qeqqata Municipality: Qinnguata Atuarfia in Kangerlussuaq
Qeqertalik Municipality: Gammeqarfik in Aasiaat
Avannaata Municipality: Prinsesse Margrethe Skolen in Upernavik
While the amount of available data might cause some degree of uncertainty of the benchmark results, visits
at the selected schools did prove that there are indeed some interesting ideas and lessons to be learnt
about their local practices. These lessons and experiences were collected based on interviews with local
informants and will be communicated to relevant stakeholders – including other school principals – in an
article form. The results of both the quantitative analysis and the qualitative interviews will also be included
in future efforts of the Ministry of Education, including the work on creating a cohesive and flexible
education system.
3.3.7.3 Study Grants and Dormitory Reform
The Study Grants and Dormitory Reform will, among other things, include a price adjustment in relation to
both study grants and dormitory rent. The aim is to strengthen the economically weakest part of the
students, recognising that young people, who move from their hometown when starting their education,
often have difficulty finding and maintaining work after school. At the same time, the Government wishes
to improve incentive structures in the study grant system. The students should be encouraged to undertake
and complete an education within the standard time limits. Further, the utilisation of existing dormitory
capacity should be improved. A greater extent of shared rooms and shared facilities between young
residents is foreseen in this context.
Parliament passed a reform of the study grant system in July 2017. The proposal entered into force 1
August 2017 and included:
Interests from the time of admission of student loans
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50 % repayment of student loans depending on the student's age when completing the study
(up to 26 years for short-cycle higher education and bachelor's degree programmes and 28
years for graduate programmes), as well as on whether the study was completed within the
stipulated time.
From the academic year 2017/18, study grants are paid in advance.
Activities and results
The work with the dormitory reform continued in 2018. It was originally planned to be presented to and
discussed in parliament in 2017, but that has been postponed to 2019 in order to include a proposal for a
Dormitory Act and to make room for in depth discussions with relevant stakeholders.
3.3.7.4 Expansion of dormitories
A development of standardised dormitory project design is needed in order to ensure an adequate
collection of experience and to lower the building costs for certain types of buildings, including design,
material selection, and functionality.
The current stock of dormitory units is approximately 1,800 units. Around 145 units are expected to be
taken out of service within a time horizon of 5 years due to mould and degradation. Furthermore, the
Government has several external rentals – depending on the time of the year, and it would be more cost-
efficient to replace external rentals with Government owned dormitories. The Government appropriations
for external rentals cover approximately 200 dormitory units per year, which is an approximation of current
excess demand.
Activities and results
In 2017, an architect studio in Nuuk conducted a survey on the needs for future dormitories in Nuuk,
Qaqortoq, Sisimiut, Aasiaat and Ilulissat on behalf of the Ministry of Education. The result of the survey is
shown below:
Location Apartment Dormitory Flat share 3-rooms 4-rooms Total
Qaqortoq 45 45 40 130
Nuuk 30 36 184 140 140 530
Sisimut 46 70 92 208
Aasiaat 16 16 16 48
Ilulissat 24 48 55 127
Total 161 106 321 244 211 1043
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Based on the survey, construction of standard dormitories is divided in to 3 phases stretching over a 10-
year period from 2018–2027.
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3.4 Impacts
The overall objective of the programme for the sustainable development of Greenland for 2014–2020 is to
contribute to a higher standard of living and quality of life, along with sustainable diversification of the
economy through improved education, skills, and knowledge. The Government therefore seeks to develop
an inclusive and coherent education system from pre-school to higher education.
The Government has formulated objectives from an overall perception that education is a paramount
factor in improving productivity, sustainable economic development, and self-sufficiency both on the
personal level and the national level. It is well known, that education has a direct impact on economic
growth and productivity both personally and on aggregate level. Besides from increased productivity,
education will also enable people currently holding low wage employment or living on public subsidies to
obtain higher wages and permanent employment. While the education level is generally experiencing a
positive development, it is important to note that health and social issues can often pose a barrier for
children’s ability to learn and develop from an early age, and harm their chances of obtaining a qualifying
education. The Government therefore wishes to improve the connection between initiatives in the social-,
health-, and education sector in the future in order to further strengthen the positive development in the
education level in Greenland and subsequently sustainable development of society as a whole.
It is of vital importance that the revenue base of the Government is expanded and diversified. This demands
initiatives within the mineral resource sector, the tourism sector, and the fisheries sector, and it underlines
the necessity to improve the productivity of the workforce through education. An increased level of skills and
knowledge will give developing sectors a good starting point concerning availability of a well-qualified labour
force. Furthermore, local labour will be able to fill positions in the developing industries, which will increase
job insertion, value added within Greenland, and ensure the inclusiveness of growth created in the sectors.
For this reason, the importance of the inclusiveness of the education system is emphasised by the
Government. Inclusive growth must necessarily be rooted in an inclusive education system, as education gives
people the means to contribute to, and have a share in, the growth. A higher level of education is also
expected to create and stimulate entrepreneurship and innovation, which can affect job creation, new
exports, and GDP. A higher level of education is expected to diversify the industry, and the Greenland
economy is still very much depending on the fisheries sector, as shown in indicator EU17.
Education is a central parameter in achieving the long-term goals of the Government; both in terms of
providing the population with the necessary means to take up positions as skilled labour, and further to
secure the administrative and institutional capacity to provide counselling and to implement the
administrative and practical consequences of reforms. Furthermore, a well-qualified workforce will
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decrease dependency on recruitment of foreign labour by private businesses and public institutions. As
seen below in indicator EU14, the education level has had a slow but steady increase, and the results for
the midterm target set for 2017 has already been met.
The impacts of the education effort are measured by the following indicators:
Education impacts
EU14: Education level: Share of 35 year olds with a qualifying education37
2012 2013 2014 2015 2016 2017 Midterm target 2017
Target 2020
Vocational education and training
30.1 % 32.2 % 31.0 % 30.7 % 31.7 % 33.2 %
Short cycle 5.9 % 4.3 % 5.1 % 3.4 % 4.4 % 3.4 %
Bachelor 9.0 % 10.7 % 12.3 % 11.8 % 8.7 % 10.9 %
Master + PhD 5.2 % 6.0 % 4.6 % 4.9 % 5.4 % 4.4 %
Total 50.9% 54.2 % 54.1 % 51.8 % 51.3 % 52.6 % 51 % 53 %
Note: Data lag one year
EU15: Job insertion
2012 2013 2015 2016 2017
Vocational education and training
80.8 % 85.8 % 82.4 % 83.5 % 82.4 %
Higher education 98.4 % 93.2 % 95.9 % 95.6 % 93.7 %
Total 85.6 % 87.8 % 86.0 % 87.3 % 85.9 %
Note: Data lag one year
Economic impacts
EU16: Percentage of trade balance in GDP
2012 2013 2014 2015 2016 2017
Total -14.6 % -15.5 % -10.8 % -10.3 % -2.7 % -5.3 %
Note: Data lag one year
EU17: Percentage of the fisheries sector in total exports
2012 2013 2014 2015 2016 2017 2018
Total 86.4 % 76.4 % 87.7 % 86.6 % 88.6 % 95.2 % 92.4 %
Note: Change in method of calculation so the indicator is not reported one year lagged anymore
37 This number is very sensitive to migration patterns and random fluctuations.
60
Institutional capacity impacts
EU18: Long-term residents among civil servants
2012 2013 2014 2015 2016 2017
Total 87.2 % 87.8 % 88.0 % 87.7 % 87.6 % 93.4 %
Note: Data lag one year
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Annex 1: Education budget and expenditure 2018
Table 1: Education budget and expenditure 2017; 1000 EUR
FA2018
Expenditure 2018
Education Area Government Municipalities Total Government Municipalities Total
Pre-school - 43,572 43,572 - 45,060 45,060
Elementary 12,806 101,806 114,611 14,285 107,536 121,822
High School 19,338 - 19,338 20,584 - 20,584
Vocational education and training 24,991 - 24,991 25,682 - 25,682
Higher education 20,592 - 20,592 19,222 - 19,222
Skills and Competence courses 23,411 7,973 31,384 20,723 20,739 41,462
Student grants incl. joint expenses 50,499 - 50,499 44,520 2,191 46,711
Construction and renovation - 7,661 7,661 - 11,744 11,744
Reserve 4,360 - 4,360 - - -
Initiatives Education Plan II 30,797 - 30,797 19,261 - 19,261
- hereof construction and renovation* 19,200 - 19,200 7,794 - 7,794
186,793 161,011 347,804 164,277 187,270 351,547
Table 2: Total expenditure on education as a % of total expenditure 2017; 1000 EUR
FA2018 Expenditure 2018
Government Municipalities Total Government Municipalities Total
Total expenditures 732,075 581,448 1,313,523 749,739 655,391 1,405,130
Education as a % of total expenditures 25.52 % 27.69 % 26.48 % 21.91 % 28.57 % 25.02 %
*Final construction cost for 2017 is not yet available.
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Annex 2: Education Plan II, budget 2018
Table 3: Education Plan II MTEF, EUR million
FA 2018
Pre-school 0.37
Expansion of day-care capacity 0.00
Strategy and Action Plan for professionals in day-care institutions 0.00
The Day-care sector 0.00
Holistic early effort 0.37
Elementary school 12.07
A better basis for youth education 0.07
IT in elementary schools 0.00
Revision of legislation 0.00
Quality and school development 0.00
Education and upskilling 0.00
Improving language training 0.00
Special education and inclusion 0.00
Publishing strategy 0.00
Construction and renovation 12.00
Young people outside the education system 2.82
Stays at continuation school 2.35
Stays at folk high school 0.41
A smoother transition from elementary school 0.00
High school 1.23
The high school reform 0.97
eGUX 0.12
GUX for adults 0.00
GUX-S 0.14
Vocational education and training 0.47
More apprenticeships 0.07
Future structure of vocational educations 0.07
Short-cycle Vocational Education and Training Programmes 0.07
Competence gab assessment and upgrading of skills 0.00
Increased activity at competence courses (PKU) 0.27
Higher education 2.41
Quality assurance of higher educations 0.03
New legislation on higher education 0.00
Artek Vision 125 0.00
Greenland Institute of Natural Resources 0.23
Education effort in the social sector 2.16
Cross-cutting Initiatives 11.43
A cohesive and flexible education system 0.07
Mapping best practice in elementary schools 0.03
National student guidance 2.39
Increased internet bandwidth at the school network "ATTAT" 1.73
New ICT-services for the schools 0.00
Internet portal for teaching "Iserasuaat" 0.00
Study grant and dormitory reform 0.00
Construction of education facilities 0.00
Expansion of dormitories 7.20
Total 30.80
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Annex 3: The Greenland Education Programme II
Since 2006, the Greenland Education Programme has been the central focal point of the education policy.
The programme, which was adopted by Parliament in March 2006, is comprised of two phases, phase I
running from 2006 to 2013 and phase II from 2014 to 2024. The programme is part of a long-term strategy
to contribute to Greenland's development into a more self-sustaining economy, in which a well-educated
and well-trained population is paramount. The Greenland Education Programme II has been expanded to
accommodate the 10-year planning horizon of the Government and will thus run from 2014 to 2024. The
Greenland Education Programme II consists of the Education Strategy 2014 and the Education Plan II.
The key lessons learnt during the first phase of the Greenland Education Programme boils down to three
key points:
(1) involvement of all stakeholders – in all phases of the reforms – is key to the successful
implementation of the reforms
(2) close monitoring of leading indicators during implementation is crucial to risk management
(3) a broader holistic approach to educational reforms is necessary to obtain a tangible impact on the
general educational level of the population, and to achieve the overall goal of developing a
sustainable society, in accordance with the fundamental values stated by the Government.
The Greenland Education Programme II therefore represents a more holistic approach based on the
experience gained through the first phase of the programme. Increased focus will be on the pre-school and
elementary school system and on youth educations, particularly vocational education and training. Focus
will also be on the transition from elementary school to youth education and on increased use of ICT in the
education system.
The pre-school and elementary school, which are administratively placed under the jurisdiction of the
municipalities, are thus included as focal areas of the programme. The Government has committed
resources to initiatives within these areas, but the responsibility of the development of these parts of the
education system remains with the municipalities. For this reason, most of the initiatives in these areas will
be implemented within municipal auspices and the municipal budgets. The Government will facilitate
initiatives in these areas through changes in legislation and framework conditions, policy dialogue, teacher
training, and facilities.
The links and transitions between the different levels within the system are acknowledged as important to
the overall performance of the system. A substantial part of the young people who drop out of the
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education system do not drop out during a formal education but during transition periods in the system.
Particularly, many young people do not enrol in any further education after completing elementary school.
For this reason, increased focus on the transition periods is important to secure the coherence and
inclusiveness of the system.
The preparation of the Greenland Education Programme II involved stakeholders across the country,
including boards and committees on the educational institutions as well as student organisations, non-
coalition political parties, labour- and employer unions, and other relevant stakeholders. These were
included in the preparatory workshops leading up to the final formulation of the programme.
In charge of implementing the Greenland Education Programme is the Ministry of Education in close
collaboration with other ministries and stakeholders. The Ministry of Finance is involved in all the stages of
programme implementation and close links and mechanisms are already in place to ensure coordination
with all the implementing government departments from the present programme period.
Objectives and results
The following specific objectives will be pursued in the Greenland Education Programme II:
1. Reduced inequality in education by ensuring a well-functioning pre-school and elementary school
system, no matter where the children live. The elementary school system shall provide elementary
school graduates with the skills needed for them to pursue further education;
2. Increased quality of the education system with special emphasis on pre-school and elementary
school and increased share of qualified personnel in the system;
3. Increased efficiency in the education system through reduced dropout between stages in the
system, increased completion in the post-elementary education system and a decrease in the time
spent in the education system before graduation.
Under the three specific objectives, the following results are expected:
Specific Objective 1:
a) Increased share of children attending pre-school resulting from providing pre-school facilities and
personnel to a larger part of the population.
b) Increased transition rate to further education as more pupils have access to elementary school of
high quality.
c) Improved literacy rate after elementary school.
d) Decreased share of young people (16–18 years) outside the education system.
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e) In the medium term, increased completion in post elementary education as a result of better
elementary education to a larger part of the population.
Specific Objective 2:
a) To provide a better quality in the pre-school system through increased share of qualified personnel
in the system.
b) Increased share of qualified teachers in the elementary schools.
c) Improved literacy after elementary school.
d) Increased transition rate from elementary school to further education.
e) Decreased share of young people (16–18 years) outside the education system.
Specific Objective 3:
a) Increased transition rate from elementary school to further education.
b) Increased transition rate from high school to further education.
c) Decreased share of young adults (16–18 years) outside the education system.
d) Decreased age at completion of post elementary education.
e) Increased completion at all levels of post-elementary education.
f) Decreased excess study time beyond standard time limits at higher educations
g) Increased completion rate at higher educations.
h) Increased number of graduates from higher educations.
i) Increased supply of apprenticeship places through school apprenticeships, incentives to businesses
and introductory courses at vocational education and training.
Performance Monitoring
In order to measure the results and outcomes of the Greenland Education Programme II, a performance
assessment framework has been developed. The performance assessment framework builds on lessons
learnt under Greenland Education Programme I and foresees modifications where indicators have proven
inexpedient and/or needed to be adjusted to suit the objectives of the Greenland Education Programme II.
The main data sources of the performance data for the Greenland Education Programme II are Statistics
Greenland and the Finance Act. The education statistics are normally provided mid-March each year by
Statistics Greenland. The remaining data regarding education is provided by the Ministry of Education and
its subordinate institutions as well as consultants working on fixed contracts for updates. As the Finance Act
is before the start of the fiscal year, these figures are also available from Q1. The accounts from the
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previous year are expected to be released in the beginning of March. A complete overview of the data
sources, definitions, and counting dates can be found in Annex 5.
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Annex 4: The Greenlandic Education System
Population
As per 1 January 2019, 55,992 inhabitants were living in Greenland. The largest part of the population (33
%), 18,221 inhabitants is living in Nuuk, the capital of Greenland, situated in Sermersooq Municipality. In
the main towns of the other municipalities, the number of inhabitants are 6,233 in Sisimiut (Qeqqata
Municipality), 4,873 in Ilulissat (Avannaata Municipality), 3,154 in Qaqortoq (Kujalleq Municipality), and
3,338 in Aasiaat (Qeqertalik Municipality). The rest of the population is scattered around the coast, living in
smaller towns and settlements.
Mobility in Greenland is hampered because of the limited infrastructure. There are no road connections
between the towns, and transport is therefore limited to air and sea transport.
An Overview of the Education System
Greenland’s formal education system consists of:
• Elementary school
• Vocational Education and Training school
• High School
• Higher Education
In addition, the following institutions also provide education complementing the formal education system:
• Pre-school
• Continuation school
• Majoriaq (counselling and preparatory courses)
In many ways, the formal education system resembles that of Denmark (and many other western
countries), and is financed through general taxes like in the Nordic welfare states.
Postgraduate, supplementary training, and in-service training for adults (etc.) can be delivered at different
levels and by different educational institutions – particularly the vocational education and training schools.
The linkages between the different parts of the education system are illustrated in Figure 1: Overview of
the education system.
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Figure 1: Overview of the education system
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 all the Nordic countries. However, it
is most common for Greenlanders studying abroad to study in Denmark.
The Pre-school
The pre-school covers all institutions providing pedagogical offers targeting children age 0–6 years until the
child enrols in 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 for children with special needs is also
included. The majority of the pre-school institutions are public institutions.
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The provision of pre-school 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 pedagogues, providing monitoring and evaluation tools, develop guidelines
to the daily work, providing the regulatory framework, and overseeing that the pre-school institutions’
performances are in compliance with the guidelines.
Elementary School
Elementary School starts the year a child turns 6 years old and is compulsory until the 10th grade. The
school is divided into three stages:
• Primary stage from year 1–3.
• Intermediate stage from year 4–7.
• Secondary stage from year 8–10.
Generally, English is taught from the Grade 4 in elementary school, whereas Greenlandic and Danish is
taught from the Grade 1. However, in the municipalities of Qeqqata and Sermersooq English is taught from
Grade 1.
The provision of elementary schooling is also a municipal responsibility. The administrative and educational
management of each municipality's school system is governed locally by each municipality. At each school,
there are school boards that, within the targets and framework set by the municipal councils, lay down
principles for the schools’ activities. However, it is the Parliament of Greenland that establishes the legal
framework for public school, while further provisions are set by the Government. Furthermore, it is the
Government’s responsibility 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 that the schools’ performances are in
compliance with the guidelines. The Agency for Education plays a key role in this respect. In addition, the
Government provides school buildings.
Elementary schools are public and found in towns and larger settlements. In smaller settlements, the
children move to the nearest town to attend the higher grades. Besides the public schools, there is a
private school in Nuuk that opened in the school year 2006/07.
Continuation Schools in Greenland
The continuation school should be seen as an extra school year, where the pupils have the opportunity to
improving their examination results before applying for high schools, vocational education and training
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schools etc. Teaching in the Greenlandic continuation schools is divided into mandatory courses and
optional courses. Mandatory courses are Greenlandic, Danish, English, and Mathematics, and the aim is to
attain the elementary school diploma in these subjects. The optional courses are creative subjects like
media, IT, outdoor life, music, and sports.
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 a boarding school
environment. Usually, 2–4 pupils live in the same room at the schools and chores, such as cleaning and
kitchen assistance, are a part of the daily life at the schools. This way, the pupils are a part of a social
community and learn how to live away from home, which can help them mature and develop their
personality.
Parents pay a weekly fee for their children to attend a continuation school, depending on their household
income.
Since 2011, Greenland has two permanent continuation schools: Villads Villadsen’s Continuation School in
Qasigiannguit admits 80 pupils, and the continuation school in Maniitsoq admits 70 pupils. In addition,
Greenlandic pupils can attend continuation schools in Denmark.
High Schools
The high school system has eight different education profiles targeting different strategic areas. The
profiles are: Technical-natural science, natural science, mercantile, language and humanities, health
science, social science, creativity and general. The duration of the high school programme is three years.
High school education is offered at four schools located in Nuuk, Aasiaat, Sisimiut, and Qaqortoq.
The high schools provide study preparatory education.
The administrative responsibility of the high schools lies with the Government.
Vocational Education and Training
A vocational education is a qualifying education that gives the individual direct access to skilled
employment in the labour market.
The vocational educations are structured as work-linked training, where students alternate between an
apprenticeship at a company or school apprenticeship and teaching at the vocational college. Students
acquire practical skills during their apprenticeship and theoretical and practical skills in vocational college.
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Vocational colleges provide education in areas such as building and construction, iron and metal, food
production and catering, business and trade, health care and social work, and traditional areas such as
sheep-farming, hunting and fishing, and maritime education.
Vocational education and training at the main vocational schools is the responsibility of the vocational
colleges since 1 January 2011, when they became public private institutions ruled by boards of directors.
The vocational colleges are specialised so that the vocational educations, within a specific area, mainly
takes place at only one vocational education and training school. Some of the schools also provide high
school education and even higher education programmes.
Vocational education and training is offered at eight schools in Greenland:
• Tech College Greenland
o The Technical College (Nuuk)
o Building- and Construction College (Sisimiut)
o Greenland School of Minerals and Petroleum (Sisimiut)
• Business College Greenland (Nuuk + Qaqortoq)
• The Food College INUILI (Narsaq)
o The School for Agriculture (Qaqortoq)
• Greenland Maritime Center (Nuuk)
o Skipper’s School (Paamiut)
• College of Social Education (Ilulissat)
• Design School (Sisimiut)
• School for Health Educations (Nuuk)
• Campus Kujalleq (Qaqortoq)
Higher Education
In terms of higher education, Greenland provides educational programmes within four levels at six schools:
1. Short-cycle tertiary education (2–3 years)
2. Bachelor’s (professional/academic)(3–4½ years)
3. Master’s (2 years)
4. Doctoral
Schools of Higher Education:
- Ilisimatusarfik – University of Greenland(Nuuk)
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The University of Greenland has four institutes:
• Institute of Learning
• Institute of Nursing & Health Science
• Institute of Social Science, Economics & Journalism
• Institute of Culture, Language & History
- The College of Social Education (Ilulissat)
- Tech College Greenland – ARTEK in cooperation with the Technical University of Denmark (DTU)
- Campus Kujalleq (Qaqortoq)
- Business College Greenland (Nuuk + Qaqortoq)
- The Food College INUILI (Narsaq)
An important part of research in Greenland is the PhD studies, and a number of PhD grants are advertised
each year. 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.
Student grant system
After elementary school, all formal education is supported by a student grant available to all students. The
vocational education and training students normally receive pay from their employers/apprenticeship
places. The employers will, in this case, be subsidised by the Government through the student grant
system. At vocational education and training schools, only students at social and health educations and
school apprenticeships are entitled to receive student grants, as they do not receive a salary during their
apprenticeship. Furthermore, students from abroad are entitled to affordable housing in dormitories.
The study grant system is very similar to the Danish system. The monthly rate is DKK 4,700/EUR 630 for
students studying in Greenland. Students with children receive a supplement per child (DKK 1,000/EUR
135), and students at higher education are entitled to supplementary grants for books (DKK 1,100/EUR 148
per semester). There are currently no income limits in the Greenlandic study grant system.
Student grants for preparatory educations are as such unlimited until the student receives a final exam
diploma.
Student grants for higher education are granted through clips according to the standard time limit of the
study. One month is equal to one clip. Students at higher education are entitled to receive student grants
for 82 months equal to 82 clips. For each study, it is possible to obtain study grants for one additional year,
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if it is necessary to complete the study. Bachelor- and master’s degrees are in this context, considered two
separate studies.
Students at higher education are entitled to study loans of maximum of 6,000 DKK/EUR 806 per semester,
and a one-off loan during an education of DKK 10,000/EUR 1,343.
As of 1 January 2013, Greenlandic students studying in Denmark receive Danish student grants. 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 student’s hometown and the
town of the educational institution both within and outside Greenland. In this connection, a free annual
return journey to the student’s hometown is also offered.
Majoriaq
Majoriaq centres currently form the link between elementary school and further education and the labour
market, providing counselling and education for both the youth and older age groups of the population.
The vision is that the Majoriaq centres should be working according to the “one-door-principle”, meaning
that they take care of labour market issues as well as educational guidance. Majoriaq centres are the
responsibility of the municipalities.
There are 18 Majoriaq centres within Greenland's four municipalities. These centres provide counselling
and preparatory courses and support the development of individual action plans.
AEU/FA courses
Recognised vocational education (the so-called AEU courses) is established at Majoriaq and the overall aim
is to enable young people to be admitted to a vocational college. These preparatory courses are
concentrated on qualifying the pupils in four main topics: Greenlandic, Danish, English, and Mathematics.
From August 2017, however, AEU is no longer offered at Majoriaq. The General Certificate of Secondary
Education (FA) can also be obtained through Majoriaq. Students can improve some of the grades from
elementary school or take the exam in all subjects. The level qualifies for admission at high schools.
Up-skilling
There are two pools of funds used for courses and further education for both skilled and unskilled workers:
Competency development courses (PKU) and labour market courses (AMA).
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The competency development (PKU) funds are used for tailor-made professional courses supplied by some
of the regional schools primarily for unskilled workers in declining businesses or for workers in need of
upgrading in businesses where growth is expected. The Government covers all expenses, including salary,
for the participants.
Vocational training for the labour market (the so-called AMA-courses) targets skilled and unskilled,
employed and unemployed adults. These courses should be part of an individual action plan developed in
collaboration with Majoriaq or be part of a competence improvement course (a module).
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Annex 5: Indicator Documentation Sheets
Indicator EU1: Share of children in pre-school
Description
Measurement unit %
Definition Share of children in the age group 0–5 in public day-care
Composition
Decomposition Municipalities, Town/settlement
Development and quality
Source Municipal database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Children 0–5 years old in pre-school to all children 0–5 years old
Periodicity of measurement 1st of January
Delivery date April
Baseline year 2013
Comments
Known limits and bias Private day care and private family day care are not included. This will lead to underrepresentation in the settlements in particular
Improvement in progress No
Indicator EU2 Share of professionals
Description
Measurement unit %
Definition Share of professional child care workers and teachers in pre-school and elementary school
Composition EU2a: Share of professionals in Pre-school EU2b: Share of professionals in Elementary school
Decomposition Municipalities, Town/Settlement
Development and quality
Source The payroll for the Government and the municipalities Municipalities October reporting
Responsible for collection and/or calculation
EU2a: Statistics Greenland + EPINION EU2b: The Agency for Education
Method of calculation Professionals in pre-school (pedagogues and other pedagogic educated) and elementary school (qualified teachers and pre-school teachers) to all child care workers and teachers
Periodicity of measurement October
Delivery date October
Baseline year EU2a: 2014; EU2b: 2013
Comments
Known limits and bias
Improvement in progress
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Indicator EU3: 7th grade test
Description
Measurement unit % correct answers
Definition Median in solution confidence in 7th grade (Løsningssikkerhed)
Composition
Decomposition Municipalities, Gender
Development and quality
Source Grade database
Responsible for collection and/or calculation
Agency for Education
Method of calculation Number of correct answers to number of test questions answered
Periodicity of measurement May
Delivery date August
Baseline year 2013
Comments
Known limits and bias -
Improvement in progress Indicator may be developed to represent 10th grade final exam rather than 7th grade test. At present, grades from 10th grade exams follow a normal distribution and are thus not comparable from year to year.
Indicator EU4: Transition rate 1 year after elementary school
Description
Measurement unit %
Definition Share of students completing elementary school that are enrolled, or have been enrolled, in youth education (high school or VET) one year after graduation
Composition -
Decomposition Municipalities, Gender, ISCED 24+25+34+35
Development and quality
Source Grade database + Study grant database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of elementary school leavers enrolled in high school or VET during the first year after elementary school to all elementary school leavers
Periodicity of measurement 1st of July 200x – 30th of September 200x+1
Delivery date March
Baseline year 2013
Comments
Known limits and bias Pupils leaving elementary school with no exam grades are currently not included in the database.
Improvement in progress Including school leavers with no exam grades will give a break in the data series.
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Indicator EU5: Share of age group outside education system
Description
Measurement unit %
Definition Share of 16–18 year olds outside the education system
Composition -
Decomposition Gender
Development and quality
Source Population statistics + Study grant database + Continuation school database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation 1 - Number of students aged 16–18 active at a youth education or continuation school to population in GL age 16–18 and active students abroad age 16–18
Periodicity of measurement 31st of December
Delivery date March
Baseline year 2013
Comments
Known limits and bias -
Improvement in progress From now on Statistics Greenland will make the calculation based on linking register data (personal identification number) and not cohort numbers. A redefinition of the indicator might occur as a result of the project of establishing a youth database.
Indicator EU6: Number of apprenticeships
Description
Measurement unit Number
Definition Apprenticeships in companies receiving salary subsidy
Composition EU6a apprenticeships
EU6b apprenticeships for adults
Decomposition -
Development and quality
Source MR register, subsidies for companies, Study grant database
Responsible for collection Ministry of Education
Method of calculation Number of persons that companies are receiving positive salary subsidies for and number of persons in apprenticeships for adults (code 70)
Periodicity of measurement September (regulations in October – December )
Delivery date March
Baseline year 2013
Comments
Known limits and bias Apprenticeships in public sector within, for example, social and health care are not included, as they receive study grants instead of a salary. They are thus not included in the database. School apprenticeships are not included.
Improvement in progress A method for assessing number of school apprenticeships is under development
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Indicator EU7: Enrolment
Description
Measurement unit Number
Definition Number of active students
Composition EU7a: Number of students in High School EU7b: Number of students in Vocational education and training EU7c: Number of students in Higher Education
Decomposition Greenland/abroad; Gender; Higher education: short cycle, bachelor and master students
Development and quality
Source Study grant database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of active students
Periodicity of measurement 31st of December
Delivery date March
Baseline year 2013
Comments
Known limits and bias Enrolment is dependent on the date of measurement and thus not a constant yearly value
Improvement in progress -
Indicator EU8: Number of completions
Description
Measurement unit Number
Definition Graduations within the last year
Composition EU8a: Number of graduates in High School EU8b: Number of graduates in Vocational education and training EU8c: Number of graduates in Higher Education
Decomposition Greenland/abroad; Gender; Higher education: short cycle, bachelor and master students
Development and quality
Source Study grant database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of students completing post-elementary education
Periodicity of measurement Finance year
Delivery date March
Baseline year 2013
Comments
Known limits and bias -
Improvement in progress -
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Indicator EU9: Completion rate
Description
Measurement unit %
Definition The share of a yearly cohort of entrants who complete, or is expected to complete, the education they started in a certain counting year
Composition EU9a: Completion rate in High School EU9b: Completion rate in Vocational education and training EU9c: Completion rate in Higher Education
Decomposition Gender; Higher education: short cycle, bachelor and master students
Development and quality
Source Study grant database
Responsible for collection and/or calculation
Epinion
Method of calculation Estimating completion rate: enrolled students multiplied with transition rates between study years for older students. For methodology see PROJECT N° 2011/280241: Student Tracking and Drop-out
Periodicity of measurement Finance year
Delivery date March
Baseline year 2013
Comments
Known limits and bias The completion rate is a probability and will change each year as long as it covers students active in the education system. For earlier cohorts (where enrolled students in that year/cohort have all either dropped out or graduated) the rate is constant.
Improvement in progress -
Indicator EU10: Transition rate in education 2 years after completion
Description
Measurement unit %
Definition Share of high school graduates enrolled in education 2 years after graduation. (ISCED 2011: 3.5, 4, 5, 6)
Composition -
Decomposition Gender
Development and quality
Source Study grant database
Responsible for collection Statistics Greenland
Method of calculation Number of high school graduates enrolled in education to total number of high school graduates
Periodicity of measurement Education status: 30. September 20xx+2; Graduation: finance year 20xx
Delivery date March
Baseline year 2013
Comments
Known limits and bias The limited number of graduates from high school makes the indicator very vulnerable to even small changes in real numbers
Improvement in progress -
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Indicator EU11: Transition rate in education 2 years after dropout
Description
Measurement unit %
Definition Share of drop-outs that are enrolled or have been enrolled in education 24 months after interrupting their studies. Dropout is defined as not being active at the same education for 15 months.
Composition EU11a: Transition rate in High School EU11b: Transition rate in Vocational education and training EU11c: Transition rate in Higher Education
Decomposition Gender
Development and quality
Source Study grant database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of drop-outs enrolled or have been enrolled in education 24 months after interrupting their studies to total number of drop-outs
Periodicity of measurement Dropout: Finance year. Been enrolled in education: 2 years after drop-out date
Delivery date March
Baseline year 2013
Comments
Known limits and bias The total share of reenrolments includes a number of illogical steps, which may cause the overall result to be inaccurate.
Improvement in progress -
Indicator EU11a2: Transition rate in education 2 years after dropout (GUX to VET)
Description
Measurement unit %
Definition Share of drop-outs that are enrolled or have been enrolled in vocational education and training 24 months after interrupting their high school studies. Dropout is defined as not being active at the same education for 15 months.
Composition Transition rate from High School to VET
Decomposition Gender
Development and quality
Source Study grant database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of drop-outs enrolled or have been enrolled in education 24 months after interrupting their studies to total number of drop-outs
Periodicity of measurement Dropout: Finance year. Been enrolled in education: 2 years after drop-out date
Delivery date March
Baseline year 2013
Comments
Known limits and bias The total share of reenrolments includes a number of illogical steps, which may cause the overall result to be inaccurate.
81
Improvement in progress -
Indicator EU12: Administrative staff completing training
Description
Measurement unit Participant days
Definition One participant day is defined as one person participating in one day of training
Composition -
Decomposition -
Development and quality
Source Courses organised through Office for Human Resource Development
Responsible for collection and/calculation
Office for Human Resource Development
Method of calculation Participants in a given course times the duration of the course in days. Sum of participant days over all courses organised through the Office for Human Resource Development.
Periodicity of measurement Finance Year
Delivery date January
Baseline year 2014
Comments
Known limits and bias The indicator only includes training of administrative staff organised through the Office for Human Resource Development in the Government. Decentralised training organised or contracted by the individual units of the Government is not included. Furthermore, training of administrative staff in the municipalities is not included. The indicator therefore systematically underestimates the actual up-skilling of administrative staff.
The indicator baseline will not be established before the end of the finance year 2014, as registration did not take place prior to 2014.
Improvement in progress The indicator will be developed to give a more accurate estimate of the up-skilling effort.
Indicator EU13: Expenditure on education as percentage of total public expenditure
Description
Measurement unit %
Definition Expenditure on education (at national and municipal level combined) as percentage of total public expenditure
Composition -
Decomposition Government/Municipalities
Development and quality
Source Annual national accounts
Responsible for collection and/or calculation
Ministry of Education
Method of calculation Education expenditure to total expenditure
Periodicity of measurement Finance year
Delivery date N/A, see comments
Baseline year 2013
Comments
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Known limits and bias -
Improvement in progress The distribution of public expenditure between the Government and the municipalities in the municipal charts of accounts is at present being clarified. This clarification might lead to changes of the baseline value. Any changes to the value will be duly explained by the Government.
Indicator EU14: Education level: 35 year olds with a qualifying education
Description
Measurement unit %
Definition Share of population aged 35 with a qualifying education. Qualifying education = ISCED 2011 no. 3.5 + 4 + 5 + 6 + 7 + 8
Composition -
Decomposition ISCED 2011 no. 3.5 + 4 + 5 + 6 + 7 + 8
Development and quality
Source Study grant database + population database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation The number of the population aged 35 with a VET or higher education exam to total number of population aged 35
Periodicity of measurement 31th of December
Delivery date December. Data lag one year due to data received from Denmark
Baseline year 2012
Comments
Known limits and bias The education level will fluctuate with migration patterns
Improvement in progress -
Indicator EU15: Job insertion
Description
Measurement unit %
Definition Share of graduates (graduates in further education or living abroad are deducted from the total) in job one year after completion. Only graduates after VET and Higher Education are included
Composition -
Decomposition Graduates: VET, Higher Education
Development and quality
Source Study grant database + income database + population database
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Share of graduates in job one year after completion to total number of graduates. Graduates in further education or living abroad are deducted from the total. In job is defined as having a salary corresponding at least 8 hours on the minimum wage in SIK (labour union) for unskilled workers during one month.
Periodicity of measurement Graduates: Finance year 20xx; In job: November 20xx+1; active students: 31/12 20xx+1; Permanent residents: 1/1 20xx+1 and 1/1 20xx+2
Delivery date Data lag one year
Baseline year 2012
Comments
Known limits and bias Graduates abroad are not included in the total number of graduates. These
83
graduates might have a job abroad without this being registered by Statistics Greenland.
Improvement in progress -
Indicator EU16: Percentage of trade balance in GDP
Description
Measurement unit %
Definition Percentage of trade balance in GDP
Composition -
Decomposition -
Development and quality
Source Annual national accounts
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation The trade balance to GDP
Periodicity of measurement Finance year
Delivery date Data lag one year
Baseline year 2012
Comments
Known limits and bias -
Improvement in progress -
Indicator EU17: Percentage of the fisheries sector in total exports
Description
Measurement unit %
Definition Percentage of the fisheries sector in total exports. Fisheries: SITC rev. 3 code 03 - Fish (not marine mammals), crustaceans, molluscs and aquatic invertebrates, and preparations thereof
Composition -
Decomposition -
Development and quality
Source Annual national accounts
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Amount of fish export to total export
Periodicity of measurement Finance year
Delivery date March
Baseline year 2013
Comments
Known limits and bias -
Improvement in progress -
Indicator EU18: Long term residents among civil servants
Description
Measurement unit %
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Definition Living for 5 years (finance years) in Greenland and having an administrative job (permanent staff) for the Government or the municipalities. See note from Statistics Greenland: En opgørelse over antal ansatte embedsmænd, der er ”long-term residents”, Arbejdsmarked 6. februar 2014
Composition -
Decomposition -
Development and quality
Source Population database and the payroll of the Government and municipalities
Responsible for collection and/or calculation
Statistics Greenland
Method of calculation Number of employees which are long-term residents (LTR) to total number of employees. LTR is defined at living in Greenland for 5 years. Furthermore, Greenlandic students studying abroad and returning to Greenland will be measured as long-term residents.
Periodicity of measurement Employees in 4th quarter
Delivery date Data lag one year
Baseline year 2012
Comments
Known limits and bias Indicator does not measure capacity and it does not capture employee turnover.
Improvement in progress -
Annex 6: Population projections for Greenland 2018
0
5000
10000
15000
20000
25000
30000
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Population Projections (All age groups)
0-6 7-16 17-24 25-59 60-69 70+
85
Table 4: Population projection by age groups38
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
0–6 5605 5594 5509 5508 5527 5543 5580 5640 5656 5674 5642
7–16 8141 8019 7784 7642 7635 7587 7665 7547 7518 7456 7431
17–24 7343 7142 7050 6835 6684 6531 6160 5992 5800 5658 5488
25-59 28704 28727 28620 28624 28544 28502 28390 28207 27963 27651 27418
60-69 4224 4341 4460 4609 4776 4984 5273 5597 5809 6108 6342
70+ 2352 2459 2560 2629 2694 2730 2771 2781 2932 3019 3111
Total 56369 56282 55983 55847 55860 55877 55839 55764 55678 55566 55432
38 Source: Population projections from Statistics Greenland
4000
5000
6000
7000
8000
9000
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Population Projections 0-24 years old
0-6 7-16 17-24
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Annex 7: Summary of “The Primary School of Greenland –
Evaluation 2015”39
This is an evaluation of the school reform launched as a parliamentary regulation in 2002, later changed to
the Primary School Act in 2012. The evaluation assesses, through a variety of points of impact, the extent to
which the law has been implemented in practice and offers reasons in areas it has not been implemented.
Including identifying the themes or issues, the actors in and around the primary school should pay
particular attention to in the further development of the school.
The Relevance, Context and Target Group of the Report
11 years have passed since the new Primary School Act came into force, and the first year group to go
through its entire schooling under the new act has finished, making it an excellent opportunity to evaluate
the reform. At the same time, a persistent problem with weak academic results and the fact that only an
estimated four out of ten students continue education after completing primary school are good reasons to
scrutinise the primary school.
The school reform was subjected to an interim evaluation in 2010 in the form of a conference where all the
key players discussed the school with each other. This report communicates the results of the first
independent, overall assessment of the school reform.
There are many target audiences for the report. As the evaluation looks into both the legislation and the
implementation thereof, including Inerisaavik’s40 role, the administration by the municipalities, the school
management, the school-home cooperation and on the teachers' training and cooperation, the actors at all
these levels are able to retrieve information and assessments that can inspire to improve practice.
Results
This is an evaluation of the Primary School Act – and thereby of the primary school. But the primary school
is not just an expression of what the act says. It is evident in the most general findings of the evaluation,
namely that none of the many interviewed at all levels have been critical of the act. No one suggests that
39 Full report is available in English at http://naalakkersuisut.gl/en/Naalakkersuisut/Departments/Uddannelse-Kultur-Forskning-og-Kirke/Publikationer/Evaluering 40 As of 2016, Inerisaavik is known as the Agency for Education
87
something is inappropriate, limiting or incorrectly conceived. However, when so many shortcomings can be
identified in the practice of the primary school, it is likely not due to the inappropriateness of the act, but
rather that the intentions of the act have not been respected.
The fact that explicit criticism of the act has not been formulated is obviously not an indication of a lack of
weak points that one might ascertain easier when being an outsider than if you yourself are working within
and with the system. At the overall administrative level, it is, for example, striking that municipalities are
very far from lifting the political, strategic and educational role in the primary school imposed on them by
the act. If law and practice must be consistent here, you have to either equip the municipal administrations
or move their tasks, i.e. gather some of them nationally and/or place some of them in the hands of the
schools. Given that this school system has less than 8,000 students in total, it may be a better use of
resources if the responsibility for the overall educational development and strategy is placed under one
roof for the whole country.
Other conclusions:
1. Essentially the school reform has been a completely new approach to teaching. According to the
Primary School Act, education must correspond to the individual student's needs, accommodate
challenges for all students and be organised taking into account the objectives and the teacher and
students must work together to determine the student's action plans. The evaluation shows that
this has not been the dominant way of working within the school. It is a minority of the teachers
who plan their lessons based on the students' action plans. The majority takes a starting point in
the learning objectives, but not as individual objectives of each student – rather, they are used
more traditionally as teaching plans. There are not many attempts at differentiated teaching in the
observed teaching except in its simple form, which consists of each student working with his/her
own math book. Effective Teaching Principles have only been implemented to a limited extent.
They have been introduced as a proposal as how to work specifically based on the clauses of the
Primary School Act regarding the base and organisation of the teaching. Thus, it is important to be
aware that the unsatisfactory academic results, which is the general consensus, delivered by the
primary school, cannot be ascribed as the result of the Effective Teaching Principles or the school
reform as such. The new approaches are simply used insufficiently in order to have any significance.
2. The school reform introduced many new tools for planning and evaluating the teaching – learning
objectives, action plans, evaluation of educational achievements etc. The evaluation shows that
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these tools have been put into use and have become a part of the work process – for a number of
the teachers. 40 % of the qualified teachers have for instance answered that they have altered their
teaching as a result of the findings of the evaluation of educational achievements. At the same
time, there are also teachers who do not use these results, in some cases due to technical/practical
obstacles. The on-going evaluation of the teaching as required by law is far from commonplace. The
overall impression is that an evaluation system has been built up that can work in practice, but in
most places yet to be systematically and generally widespread. An estimate of approximately one
third of the teachers do not take a systematic approach to evaluating.
3. More than half of the teachers, who gave their take on what the three biggest challenges of the
schools are in the questionnaire, mention the students. Especially in relation to inappropriate and
negative behaviour, lack of motivation, but also with the academic level that is hard to elevate and
social problems brought into the school making it difficult to carry out the teaching. It is clear that
social problems and lack of resources confront the schools with major challenges. Both teachers
and employees within the Pedagogical Psychological Counselling area (PPR) indicate that teachers
lack training when it comes to children with special needs. There is also a need for a clarification of
what the individual teacher should take care of, what the school should take care of and what the
tasks of the social services and PPR are. Teachers must be supported so they are not left in doubt.
But at the same time, the evaluation underlines that school leaders, teachers and policy makers
share a common task of creating appropriate learning environments that can accommodate and
motivate the children at hand. It is important that teachers do not regard children as problematic in
themselves, but acknowledges that even the school contributes to creating the children who cause
problems.
4. Teachers themselves tell that cooperation among the teachers in many places is a challenge. They
often point to lack of cooperation as an explanation of things that are not working properly – the
implementation of Effective Teaching Principles, the transitions between levels, interdisciplinary
teaching, etc. The fact that lessons are cancelled due to the absence of teachers is a problem the
parents are well aware of. It is very much an issue that school management should focus on
improving. To the extent, it is planned absences (e.g. in connection with training), you can use
flexible plans. But when it comes to sick leave, Danish experiences indicate that focusing on this in
itself can reduce absenteeism. In some cases, it may also be associated with poor psychosocial
working environment – which to a high degree relates to cooperation. The leaders have to take the
lead here, but teachers also have a great responsibility for contributing to this project.
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5. School leaders expressed a fairly high degree of satisfaction with their working conditions, with
management support and with their own skills though many of them work many hours, and several
also suggested that with more routine and experience, they would have more energy to look into
educational management as opposed to today where they are extremely busy with administration.
However, approximately one third of the teachers in the survey are quite critical of their leaders'
ability to communicate, show direction, be inspiring, etc. It is a challenge that leaders have to deal
with. Thus, from the interviews it also appears that some leaders and employees misunderstand
each other. The leaders want the teachers to take responsibility and would like to give them
flexibility and participation in the decision-making, while teachers see it as a lack of leadership and
demand more clarity and direction.
6. Local education authorities in the municipalities function as indicated in the introduction
predominantly as administrative units that handle the economy, employment law and other
formalities. And apparently, they do this very well. The problem is that the Primary School Act has
assigned them a much larger task of working educationally-strategically with the schools. This task
is not handled today. The statutory supervision is also very infrequent. This is hardly ill will or
indifference from any party but a natural consequence of the fact that, at least in three of the
municipalities, only two employees have been assigned to the task. It is obvious that it puts a limit
on how much they can reach beyond the more administrative tasks they – as the area is organised
today – have to undertake.
7. Parents play an important role in the life of the schoolchild, and it is a big issue for the teachers
who feel that parental involvement in their children's schooling in general is problematically low.
65 out of 203 teachers mention it in the survey as one of the three biggest challenges of the school.
At the same time, there are committed parents who are extremely critical of what the school has to
offer their children. The evaluation points to the necessity of a much more clarified reconciliation
of expectations between school, teacher and home. Parent meetings must have a genuine and
meaningful content so that parents will find it worthwhile coming. If they have a negative view of
the school, one must be aware of showing them something positive – not reinforce it by berating
them. Many teachers have good ideas about this, but it should be broadened and made widely
practiced. Inerisaavik has long since produced manuals to support this work, and information
concerning these can with advantage be disseminated.
The Data
The report is based on these data sources:
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• Questionnaire survey among all school leaders
• Questionnaire survey among all teachers
• Written submissions from school administrations in the four municipalities
• Visits at twelve schools across the country, in towns and villages, including interviews with leaders
and teachers and observations of the teaching.
• Interviews with the school governors in the four municipalities
• Interviews with PPR in the four municipalities
• Interviews with parents in the four municipalities
• Interviews with leaders and teachers from three high schools and two vocational training
programmes.
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Annex 8: Overall Recommendation and Assessment of “The
Teacher Education Programme – Evaluation of Greenland’s
teacher education programme at Ilinniarfissuaq”41
The teacher education programme at Ilinniarfissuaq at Ilisimatusarfik (Greenland's University) is the largest
higher education in Greenland with an average annual intake of 66 new students over the past six years.
The programme has a long history and is shaped by a college tradition with a focus on general education
and development of the students. Ilisimatusarfik has initiated an evaluation of the teacher education
programme with the establishment of an expert panel and data collection and assessment that highlights
the quality of the education. The evaluation is based on input from many different sources, including a
review from Ilinniarfissuaq, questionnaire surveys among the educators of the programme and newly
graduated teachers, an external assessment of bachelor projects and examination statements, observations
of teaching lessons and the expert panel's visit to the programme with interviews with management,
educators, students, head of teaching practice, school leaders and newly graduated teachers.
The evaluation shows that the education programme currently has a number of serious quality challenges
and does not satisfactorily meet the need for qualified teachers in the primary school. The appointed
expert panel recommends that the university takes the initiative of a comprehensive further development
of the programme towards a modern profession-oriented teacher education with much better link to
practice in primary schools and with the focus on gaining solid academic knowledge, didactic skills and
profession-oriented skills among the students. The nature of the challenges and the great importance of
the teacher education programme for the Greenlandic community mean that comprehensive quality
development should be initiated quickly. The panel believes that it is necessary to do a so-called
turnaround to reverse negative trends and give a new impetus to the programme. The goal is for the
teacher education programme to build an ambitious culture with a sustained effort that all students end up
with strong and relevant skills for the job as a teacher. Only in this way will the teacher education
programme contribute to lifting students in the primary school.
The expert panel strongly recommends that Ilisimatusarfik's management makes it its first priority for a
number of years to elevate the quality of the programme. So far, the teacher education programme has not
benefited from becoming a part of the university, as Ilinniarfissuaq has remained an independent unit in 41 Full report is available in English at http://naalakkersuisut.gl/en/Naalakkersuisut/Departments/Uddannelse-Kultur-Forskning-og-Kirke/Publikationer/Evaluering
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terms of management, academically and physically. The panel estimates that first of all there is a need for
the university to put a special management focus on the teacher education for a five-year period. During
this period, the management of the education programme and the educators have to find and implement
lasting solutions to the conditions of the programme that currently work poorly and contribute to a low
quality of the education.
The development work must be based on an overall vision for a structured teacher education programme
and can, e.g., address topics such as internal organisation and quality assurance at Ilinniarfissuaq,
internship, didactics, research basing, quality of curricula, feedback and evaluation, admission system,
study environment and culture, etc. The expert panel recommends that the university allocates some extra
funding for the teacher education programme for a certain period of time if it deems necessary with funds
for coordinating and implementing the development work, for example, for reference groups for the
individual sub-projects and the management of the entire work.
In this connection, the expert panel recommends that the many academic resources at the university and
around the teacher education be activated and involved to the maximum extent possible for the benefit of
the students. For example, researchers from the university can teach research and analysis methodology
and supervise in connection with project assignments; Teachers from primary schools can be employed in
shared positions focusing on practical exercises in differentiated teaching, classroom management and
other professional skills; And teachers and others with relevant skills can take part of the ordinary teaching
in main subjects with vacancies highly difficult to occupy. School leaders, primary school teachers and other
stakeholders can also be involved in reference groups to ensure that there is an academic content in the
main subjects that corresponds to the needs of the primary school.
The expert panel also recommends that the teacher education programme initiates an annual conference
for the education programme's stakeholders so that development work on the education can be supported
by input from stakeholders and collaborators.
The expert panel builds its overall recommendations on an analysis and assessment of the competences of
the graduates of the teacher education, the quality of the programme and internship, admissions, the
knowledge base of the programme and finally the management and organisation of the programme. Below
is a summary of the panel's analyses and assessments.
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Newly Graduated Teachers with Insufficient Competences
The challenges of the teacher education programme are expressed by the fact that many graduates are not
adequately dressed to function as teachers in the primary school. Firstly, too many students do not achieve
a high academic level in their main subjects. The evaluation thus shows that in many major subjects there is
a low grade average at the final examinations and that relatively many students either fail or achieve a low
grade, although there are also students who achieve good grades. In some language subjects, the academic
level seems to be disastrously low. An external assessment of 15 bachelor assignments indicates that the
challenges of giving students a high academic level are greater than what a review of the graduation grades
immediately shows. The grades of the external assessment were generally lower than the grades given at
the exam at the teacher education programme. 7 out of the 15 bachelor assignments were, based on the
written work, to fail if they had been assessed according to the requirements of a Danish teacher
education. It appeared from the external assessment that the students often find it difficult to relate
analytically to a problem and to link theories to pedagogical practice.
Secondly, students do not gain sufficient skills to handle the many different tasks that accompany the
profession as a teacher in the primary school. This picture is drawn by both school leaders and a
questionnaire survey among graduates from the teacher education. Many graduates have not been
adequately equipped for tasks such as managing a class, teaching different types of students,
differentiating teaching, working with Effective Teaching Principles, learning objectives, action plans and
evaluation as well as participating in the school-home collaboration.
Thirdly, the newly graduated teachers from Ilinniarfissuaq often come with combinations of main subjects
that do not correspond to the needs of the primary schools. Too many have chosen Greenlandic with a
practical or creative subject, and the number of graduates in both small and large subjects varies
considerably from year to year.
Teaching at too Low a Level and with too Little Didactic Content
The teacher education, as described in the curriculum, has a sound structure with three main subjects and
integration of didactics in the main subjects. The content descriptions of the subjects seem reasonable,
although the descriptions of the individual subjects have not been completed, and the objectives of the
subjects are not always formulated as learning objectives. An external assessment of the examination
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statements and observations of teaching lessons, however, indicates that the requirements for the
academic content of the curriculum are not always met in the teaching.
The teaching in the main subjects has a very varied didactic content, and the observations of the teaching
indicate that the students in most subjects are not presented with specific teaching methods that they can
use in primary school. The students are thus poorly helped to translate theoretical teaching into concrete
teaching practices. The teaching often also seems to aim at the students being able to understand and to
reproduce the presented theory, rather than to work critically with the usefulness of theory in primary
school teaching. However, there is also exemplary teaching at the teacher education programme, which
succeeds in all these things.
A wide range of professional skills that the students will need as newly graduated teachers is not practiced
at the teacher-training programme. Interviews with students, teachers and school leaders as well as the
questionnaire survey among newly graduated teachers clearly show that the teaching has a very small
focus on topics such as differentiated teaching, classroom management, students with special needs,
student plans, learning objectives, Effective Teaching Principles, evaluation, school-home collaboration, etc.
The internship is well structured with five intern periods with different focus. The students are happy about
the internships, but there is a big difference between how well the internship is prepared and how well it is
followed up in the teaching. There is very limited contact between the teacher education and the
internship schools, and there are insufficient mechanisms to ensure that the quality of the internship is in
order. The teaching practice educators have often not been prepared for their role, and the teacher
education has completely left it to the internship schools to assess the student's benefit from the
internship.
Admission of too Many Students with Weak Prerequisites
The teacher education programme has difficulty attracting the most talented students from high school,
and there is therefore a need to strengthen the reputation of the teacher education. The entrance
requirements among many of the students are at a low level, which is due, among other things, to the fact
that a large group of students are admitted with a lower grade average than what the education actually
considers necessary. Some students therefore choose main subjects that are reputable to be easy, e.g. arts,
crafts and Greenlandic. In several main subjects, such as English and mathematics, the specific entry
prerequisites among some students are so weak that the level and content of the education are affected
95
and the students are struggling to achieve the expected level of graduation. There is therefore a need to
immediately strengthen the academic entry level in the core teaching subjects of the teacher education.
Weak Research Basing and Poor Contact to the Profession
The research based teaching of the teacher education is too weak, and the students are to a limited extent
presented to relevant new research. The research and development activities of the education are too few
and random to truly ensure a dynamic development environment and a satisfactory approach to new
knowledge for the teacher education. It is a smaller group of educators who account for the majority of the
activity. There have been no clear expectations from the management to the extent to which the educators
are to engage in research and development activities, but the education programme has worked on
developing a research strategy that can put the future work into clearer frameworks.
The university has already sought to strengthen the research basing on the teacher education through both
the appointment of a professor and the appointment of PhD students, but the dividend for the educators
and the students has been too limited to place any significance on the initiatives. It has been a problem
that not all research workers are living in Greenland, as it limits their ability to help strengthen the teaching
and study environment in everyday life.
Ilinniarfissuaq as an institution also has too little contact with practice and too little knowledge of the
development of the Greenlandic primary school, and the questionnaire survey among the educators shows
that the educators' contact with the schools is also limited. Students' internship periods only give rise to
limited contact between the education programme and the schools, and only a few of the educators are
involved in development projects with the schools. The lack of contact means that the educators find it
difficult to relate the teaching at the teacher education to the reality that the students have to act in as
graduated teachers.
Unclear Management and Non-Committal Culture
A significant part of the teacher education challenges is linked to a pronounced lack of pedagogical
management. It is expressed in several areas. Overall, there is a lack of strategic management that
determines guidelines for the development of the education, and a professional management in terms of
content that ensures the quality of the teaching. Both the questionnaire survey and the interviews with the
educators point out that too low a degree of coordination and collaboration among the teaching staff
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means that the educators are left to themselves and not necessarily pull in the same direction. At the
organisational level, there is the problem of unattended positions in the management and that there is no
effective evaluation or quality assurance practice, so the management must rely on the quality being fine
without actually knowing.
The teacher education is characterised by a culture that does not set clear goals and guidelines, and does
not follow up or give feedback, for example explicit limits for absence, feedback from the management to
the educators on their examination statements, results of the students' evaluation of the teaching, etc. This
makes it difficult to maintain the expected level of the teaching, and the students are sent to primary
school without being prepared for the obligatory community that a school should be.
Many Detailed Recommendations with Quick Effect and Simple Implementation
The expert panel has formulated a number of more detailed recommendations on how the teacher
education can overcome the identified challenges and develop the quality of education. The
recommendations are summarised in Table 1 on the next page, where they are divided according to how
complex they will be to implement and how quickly an effect they bring.
The recommendations are elucidated in the chapters of the report – often with proposals for how the
development task can be addressed. It is thus the opinion of the expert panel that it is by no means an
impossible task, even though the challenges are extensive. First of all, as shown in Table 1, many
recommendations have a quick effect, as it will be relatively simple for the teacher education to complete.
Secondly, during the visit, the expert panel gained a clear impression that at and around the teacher
education, there are many resources and positive experiences that are possible to build on and involve in
the work of elevating the level of the teacher education into a modern profession-oriented and research-
based education in line with the needs of the primary school.
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Table 1: The expert panel’s detailed recommendations to the teacher education
Recommendations with a quick effect Recommendations with effect in a slightly
longer term
Recommendations,
which are relatively
easy to implement
The teacher education is recommended to:
• Revise the curriculum and formulate clear
learning objectives (4.1)
• Prioritise the subject didactic and
profession-oriented elements of the teaching
rather than abstract pedagogical theory (4.3)
• Develop a plan to gain professional skills,
such as classroom management and
differentiated teaching (4.3)
• Ensure coherence between preparation,
implementation and post processing of
the internship (4.4)
• Guide more on written academic
presentation and analysis (4.5)
• Support students with language challenges
better (4.5)
• Include school leaders and experienced
teachers as resource persons in the teaching
at the teacher education college, e.g. in
connection with professional competences
such as classroom management and
differentiated teaching (6.2)
• Ensure that PhD fellows with their research
contribute to the development of
the teacher education's research profile
and level through, among other things,
attendance and participation in the teaching
staff (6.3)
• Ensure that professors contribute to the
research development of the teacher
education through attendance and
participation in the teaching staff (6.3)
The teacher education is recommended to:
• Reintroduce visits of the main subject
educators at the internship schools (4.4)
• More stringent admission requirements
for the education programme (5.2)
• Appoint subject responsible coordinators
and co-ordinators of cohorts (7.7)
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Recommendations,
which are more
complex
to implement
The teacher education is recommended to:
• Take responsibility for evaluating and
approving the internship (4.4)
• Exercise clearer educational management in
everyday life (7.7)
• Establish an evaluation culture and a
quality system (7.7)
• Create an ambitious teacher culture (7.7)
The teacher education is recommended to:
• Expand recruitment efforts (5.1)
• Ensure better consistency between the
students' choice of main subjects and the
needs of the schools (5.3)
• Obtain systematic knowledge of
developments in the field of practice (6.2)
• Set clear requirements and expectations for
the educators' participation in research and
development (6.3)
• Monitor the involvement of research and
development activities in the teaching (6.3)
• Consider co-location with the university's
other programmes at Ilimmarfik (6.4)
• Exercise management with a far greater
strategic perspective (7.7)
Note: The numbers in parentheses refer to the sections in the report where the recommendations are given
and elaborated.
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Annex 9: High School Reform
The high school area was the last of the educational areas to be repatriated. The repatriation took place in
2009, but the first Greenlandic legislation did not come into effect until 2011, and the first students started
the new education in 2012. The vision was to ensure a greater degree of adaptation of the education
programme to a Greenlandic context while maintaining international standards and academic levels. The
context is characterised by the fact that the majority of the students move far away from home and live in
colleges in order to take the education and often have to take it using their second or a foreign language.
Language of instruction in high schools is primarily Danish and carried out by Danish teachers, as there is
not yet sufficient recruitment of teachers from Greenland. Therefore, it is a special challenge to ensure the
anchoring of the students and their cultures. In addition, the students come with very different
backgrounds, both geographically, culturally and socially. There are major differences in the level of
primary education that has been possible for the students to receive resulting in great divergence in their
academic prerequisites. At some of the small places, it has not always been possible to provide qualified
education in specific subjects, and depending on where in the country you come from, the linguistic
differences can make English the 4th language to be learned e.g. by students from the east coast. However,
the requirements in English are still the same as for students with English as their 2nd language. To many
students, it is a major cultural change to come from a small-scale society to the cities where the high
schools are located, and the change from primary school to secondary school may also hold the challenges
of learning to navigate in a new educational culture with new work habits, skills and requirements –
especially for the large proportion of first-generation high school students, who, to some extent, can be
characterised as having a foreign educational background compared to Western education systems. In
addition, a large proportion of the students have children they have to provide care for if the child is ill and
in other ways provide for their needs, which may affect how much time they can dedicate their schooling.
Several have experienced abuse or neglect, giving trauma and a need for psychological support in order to
complete their education. In this context, however, it should also be added that there are, of course, also
very well-functioning and academically well-established students with high demands on their educational
opportunities. The context therefore implies that the requirements for the students to obtain an high
school certificate do not simply correspond to what students in a more homogeneous cultural, social and
economic context should be able to; the students in this country must be capable of much more
linguistically, personally and academically to achieve their educational goals. The adaptation was therefore
deemed necessary for the education to take the context into account as much as possible to offset the
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challenges of the individual in relation to the content, structure and flexibility of the education in order to
realise the wish for more students to complete the education.
High School – Development and Quality Assurance
Reform 2012
The High school Reform of 2012 introduced a new education focusing on the development of the person as
a whole and giving each student the best possible conditions for academic and social development. With
the new high school programme being implemented, the goal is for more people – including younger
students – to graduate high school and preferably start directly after primary school. The aim of the reform
is for more young people to be attracted by, included and maintained in strong academic developmental
environments, so that they are ready and motivated for a higher education after three years. The reform
has 20 overall initiatives, but emphasis mainly lies within three areas:
Pedagogy: Including, but not limited to, secondary language training, and culture based teaching
Academic competence: Including, but not limited to, fields of study, new subjects (culture, science,
study technique), and team work with a focus on both social and academic wellbeing
Guidance: Including, but not limited to, more professionalised guidance and extended study-,
career-, and personal counselling.
Evaluation 2012–2017
Since 2013 there has been an on-going external evaluation of the implementation and impact of the
reform. The final evaluation was conducted in the school year 2016/17. The evaluations have focused on
the implementation of the reform and to determine the needs for adjustments in relation to the
implementation.
Method
The evaluations were based on a mixed-method approach where register data, questionnaires, participant
observation and interviews were included. Empirical data were collected from management, teachers and
students as well as other relevant staff.
On the meta-level, the intention was for the evaluations to act as tools for the individual school's own
planning of implementation to gain an overview of where efforts were needed and the effect of their
efforts. Each school received their individual report, which was partly based on data gathered across
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schools, but also with room for focusing on the specific needs of their schools. In addition to the individual
school reports, a cross-sectional report was made comparing schools to key parameters such as
implementation, level of implementation, and absence. Data collection took place during autumn, after
which IKIIN went to visit the schools in the early spring to discuss the results with each school. During the
visits, the effort plans were discussed on the basis of the evaluation results, and each school then handed in
a revised implementation plan to be realised in the coming school year. IKIIN had provided a model for the
schools' implementation plan supporting a more systematic and transparent planning.
The Results of the Evaluations
One of the main objectives of the reform was for more young people to finish upper secondary education.
So the challenge for the high schools was and is to be able to accommodate a broader group of students
with more young students than previously. The consequence of the reform and a decade of declining
cohorts of adolescents was that the high schools had to embrace students with very different skills
academically, socially and personally. In addition to the fact that the group of first generation high school
students grew, more students with academic challenges were admitted. At the same time, the second main
purpose of the reform was for more students to achieve better results academically and complete more
high-level subjects. Therefore, the reform included a major focus on pedagogical flexibility and demands for
new competencies and strategies, both didactically and academically. As expected, the student group has
become much more divers with the reform and the group of education-induced students has grown. It
places particular pressure on implementing the educational efforts in order to maintain an improvement in,
among other things, implementation rates and transition to further education, because for many students
it is a big step in itself to complete high school.
Results of the evaluations show that the schools are very different, and that for some schools it has been
easier to implement than others. In general, the results show that areas where schools have come the
longest with the implementation and impact of this are in relation to the more structural and
organisational efforts, where efforts in relation to changing practice in the classrooms and close to the
students are lagging behind. Below an illustration of the degree of implementation of the various elements
as a whole:
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Figure 1. Interdisciplinary assessment of the implementation status of 2016/2017
Some data reductions indicate that special efforts must still be made for individual or groups of students.
The proportion of students experiencing difficulties with the teaching when conducted in Greenlandic and
Danish or either in one language or another has not changed significantly during the evaluation period. This
may, for example, indicate that the effort made in relation to second language pedagogy is not strong
enough or lacks implementation. Likewise, the qualitative data point out that, for example, of the 3 new
subjects, the implementation and the students' acceptance of the science and culture subjects are good,
but none of the schools have yet found an acceptable practice for the subject of study methodology. The
students indicate that when the subject did function, it made a lot of sense to them and gave them good
tools for other subjects, but often the subject is not linked to other subjects, and they find it hard to see the
significance of the subject. Likewise, students call for more involvement in the teaching, and clear
frameworks for what they are supposed to do and how they can achieve it. This indicates that the on-going
evaluation is not yet fully implemented. Teachers call for more time and tools to accommodate the wide
spread of students' linguistic and academic prerequisites and find it challenging to help students achieve
the levels required in the curricula.
On the Meta plan, the evaluations indicate that there is a need for refreshment and clarity about the
purpose and intentions of the individual elements of the education as there is a relatively large
replacement of the teachers and the management, and the memory in the institutions is therefore fragile.
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Thus, the common work regarding similar goals risks getting lost and becoming indistinct in everyday life.
The intention that each school should have their own report as a tool for more systematic and transparent
planning of their own development process does not appear to work optimally. The schools experience the
reports as something external and do not use them actively in the institution over time. Thus, ownership of
the tool has not been obtained, and it is more perceived as an end result rather than part of the individual
institution's on-going development process.
Strategy 2017–2022
The overall evaluation plan for the first period 2012–2017 was to carry out annual external evaluations
primarily to function as implementing tools for the individual school, while collecting data across schools in
relation to the overall development of the high school. After the first two passages – i.e. two years with
students from the new scheme in 2017 – the plan was to revise and adjust the education. In part, because
the expectation was that during the first period, it would not be possible to completely hit the mark with all
the new initiatives and experience would be gained with the new initiatives that could lead to adjustments
and improvements. In 2017, IKIIN therefore gathered the results and conducted workshops at each school
to get input for actions based on the results. In these workshops, management, teachers, students and
other relevant staff participated. As a presentation to the workshops and in the light of recommendations
for a repeated clarity about the purpose and visions of each initiative, IKIIN prepared an information
package that describes all intentions and legislation within the various areas of effort. A revision of all
curricula was initiated, and on the basis of the input from the schools, 15 commissions were drawn up for
areas of the education programmes in need of development in general. The idea is that the schools must
carry out development projects within the different areas, and based on their experience, further changes
can, if needed, be made in the legislation, economics and other relevant governance documents. Thus, in
the 2017/18 school year, various development projects have been initiated, however, in prioritised order.
IKIIN has set a framework for all schools to focus on pedagogical development, including pedagogical
management, development of methods and principles, as well as on-going evaluation and involvement of
the students. The compulsory development areas can change over the years, but the educational focus has
been chosen on the basis of the challenges seen in the education programme with a larger dissemination in
the student group, as well as the results of the evaluation reports in relation to areas where more efforts
still need to be made. Below is a list of the development areas that are granted support for development:
1. Pedagogical management
2. Pedagogical and didactic development
3. Internal quality assurance practice
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4. External quality assurance practice
5. Basic programme
6. Fields of study (referring to particularly spacious and ambitious)
7. Screening and special courses
8. Basic language (development of language-enhancing courses in Greenlandic, Danish and English)
9. Length of education
10. Student welfare
11. Team-cooperation
12. Study methodology
13. Admission procedure (more transparency for users)
14. Revision of all curricula
15. Professional consultancy
The evaluation strategy for the next 5 years until 2022, by when a major audit work and experience
gathering will be undertaken, is to build up a higher degree of development and evaluation skills in the
institutions. In order to achieve a higher degree of ownership, the idea is to anchor development focus and
culture in the local community so as to allow these experiences to influence the management tools. Thus,
the strategy should provide greater efficiency in relation to the development of improved practices through
the bottom-up mechanisms. IKIIN has allocated a pool of funds that can be activated by the institutions for
their projects, and requirements for action research principles have been set in all projects to ensure the
quality of these. IKIIN systematically collects the results and ensures that these experiences are shared
across schools. Among other things, one of the projects is that the schools' managements compile both
their internal quality assurance practices and practices in terms of how cooperation with external parties
can provide a greater degree of systematics and transparency in their own development project. For
example, the principals have decided that the 4 schools are going to evaluate each other each year on the
basis of certain principles that support the overall objectives of the upper secondary area. IKIIN will
continue to visit the schools every year giving development support and supervision. Furthermore, a major
external evaluation is planned in 2022, in addition to focusing on data development and greater
systematics in the on-going evaluation practice at the schools and at IKIIN in shared efforts.
All in all, it has to be concluded that since the schools have been successful in admitting more and more
students, but have not yet reached a high degree of implementation, it cannot be seen that the
implementation rate or percentage showing how many continue education is increasing. However, it must
be acknowledged that the schools have actually managed to lift a much larger group of students, here both
in terms of numbers and representation in background, and maintain approximately the same level as
before regarding implementation. The percentage of students continuing in education must also be seen in
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the light of the fact that there are currently many more students for whom the high school degree in itself
has been a major journey. The results within the two areas are expected to increase in step with the further
implementation rate, and the focus is on local anchoring in relation to development culture, so the schools
gain more common practice with a high degree of adaptability and which is adaptable to divergent student
needs continuously.
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Annex 10: Survey of the day-care sector
”Survey of the Day Care Sector” will contribute to the creation of a knowledge foundation prior to the work
on a strategy and action plan for the day care sector. The intention of the plan is to find ways in which the
needs for recruitment, training, upgrading and retention of staff at the day care centres can be met in the
future.
In recent years, the day care sector has increasingly become the subject of attention. With the attention,
the need for systematic knowledge of the area has emerged on the political agenda. The purpose of this
survey is to give the Government a detailed up-to-the-minute account of the preschool area that can advise
the political process. At the same time, the survey also points forward and draws a picture of how the
preschool area can develop in the future.
To provide a broad and in-depth mapping of the day care area, the survey draws on a wide range of both
qualitative and quantitative data sources. The survey has been conducted with questionnaire surveys
among managers, staff and parents, in-depth interviews with staff and functional managers and relevant
register data collected. More precisely, the survey builds on the following data sources:
In-depth interviews with the four municipal functional managers within the field
In-depth interviews with 10 managers, day care teachers and pedagogical trained employees who have resigned within the last year
Questionnaire survey of 184 parents with children in day care centres
Questionnaire survey of 118 employees at day care centres
Questionnaire survey of 54 centre managers
Register data from Statistics Greenland, the register of the Administration of Education Grants (USF)
Personnel counts reported by the municipal functional managers The data sources are integrated into analysis and presented continuously.
Conclusions
Education and Experience of the Staff
The employees in the day care area can be described based on a number of characteristics. Half of the
childcare employees in the day care centres are unskilled day care assistant teachers. About one-fifth are
day care teachers, while one-third are people with another educational training, typically a 2-year assistant
education. On average, the employees have been employed in their current position for 7 years, while the
managers in average have 9 years seniority. Most of the staff knows about the decentralised day care
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teacher-training programme and half are considering following the decentralised day care teacher-training
programme.
Further Education and Skill Development
Employees are trained to a different extent after being recruited. The managers most frequently receive
further training, where three quarters of the managers have been in training within the last year. 15 % of
other staffs at the day care centres have been on a further training or skill development course in the past
year. Among this employee group, it is most often day care teachers and the pedagogical staff who take
further education.
Even though the need for skill development according to the centre managers is greatest among the
unskilled day care assistant teachers, it is in fact other employee groups that receive further training. Since
2007, a total of 3,200 participants have received pedagogical further training or followed skill development
courses at SPS. Since 2015, however, the number of participants has been halved. Interviews with the
functional managers point out that the physical distance to the programmes is a challenge for the centres.
Several emphasise that it would be beneficial for the further education if the courses were held at the
centres.
Employee Retention
The day care centres generally experience retention issues. Thus, 28 % of the employees have terminated
their position in the last year. Only approx. one-tenth of the day care staff say that they do not expect to be
in their position in two years, but many are in doubt (33 %). Of these, three quarters wish to continue
within the pedagogical field for the next two years. The interviews with the childcare employees who have
changed work in recent years show that the manager is central to retention. The manager must thus
balance the employee's autonomy and the managerial framework so that the employee can bring his/her
competencies into play and at the same time recognise the expectations of the manager.
Many terminations and sick leave may also contribute to making the daily work so busy for the rest of the
staff that motivation for working decreases. This especially holds true for managers when they find that
they need to cover for the staff rather than spend time on leadership. Day care teachers consider changing
work when they lack opportunities to use their professional skills in an appropriate manner or there are
bad working conditions in the form of, for example, heavy lifting. The municipalities' retention efforts are
central as the day care centres find it difficult to recruit and retain staff. The municipalities have not
prepared actual retention strategies. The main retention tool that all municipalities apply is the use of
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further education; particularly the use of education and counselling of centre managers. The rationale
being that the municipalities feel that the management of the day care centres is central to whether
employees choose to stay or look for new grounds. Further training of the rest of the staff is also applied
because the functional managers find that professional development is important for the employees. A
small selection of relevant courses and a – for some centres – long distance to the educational institutions
are, however, challenging.
Wage levels and structures in the day care area are factors in relation to the difficulties of retaining the
staff. Firstly, because the day care teachers can get higher salaries when working for the primary school and
residential facilities. Secondly, because it is not worth paying for experienced day care assistant teachers to
follow the decentralised social worker training programme. However, it is not only the salary that matters
but also whether the work is perceived as physically and mentally hard compared to working at schools and
residential facilities.
Work Tasks
Most of the time spent by the managers of the centres and other staff members goes with tasks that relate
to their function. The questionnaire survey indicates that the centre managers use 61 % of their time on
management-related tasks such as managerial and administrative tasks, while other staffs use 89 % of their
time on tasks such as time with the children, as well as practical and parent-related tasks. 4 % of the centre
managers indicate that all or almost all of their administrative tasks could be handled by office staff.
Work Environment
The satisfaction is generally high among the staff at day care centres. 91 % of the employees in the day care
centres are satisfied or very satisfied with their workplace. The proportion is slightly less among centre
managers than the other staffs. They are most satisfied with their work tasks and least satisfied with their
opportunities for professional development. In particular, the centre managers are less satisfied with their
opportunities for professional development.
Virtually all employees find that their work is meaningful, while 74 % experience having an impact on the
workload. This holds especially true among the other staffs. There is, however, an improvement potential
in relation to the work pace as well as the amount of support and recognition experienced by the
employees. Of critical factors related to the mental health and safety environment, it can be emphasised
that 23 % have experienced being exposed to bullying in the workplace in the past year, while 16 % have
constantly or often felt stressed over the past two weeks.
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In addition, 77 % indicate that there is too much noise in the day care centres, while 69 % indicate that they
have to work with a bent back and often have to lift. Approx. 50 % indicate that it causes discomfort such as
pain in the back and the shoulders. The other staffs more frequently meet ergonomically challenging
postures when working compared to the managers. The employees' abilities to meet the physical
challenges are greater than the mental ones.
Provision of Day Care Teachers Now and in the Future
The provision of trained day care teachers in the labour market was 477 in 2016. There were approx. 759
primary school teachers, 255 nurses, 412 social workers, 64 social- and health care assistants, 368 social-
and health care helpers and 41 with another pedagogical training. The number of senior day care teachers
close to pension age is low. This indicates that the provision of day care teachers will not fall drastically in
the coming years. The same holds true of the primary school teachers, so a large increase in the demand
for day care teachers to replace retired teachers is furthermore not forthcoming.
Since 2011, the annual number of people to complete a pedagogical education has increased. This is
because the annual admission to the day care teacher-training programme has increased, while the
implementation rate has risen. This is a positive development for Greenland to better meet the needs for
day care teachers in the labour market.
If looking toward the future provision, the most likely future scenario is that there will be between 24 and
27 day care teachers trained annually in the future. The number will be greatest in the coming years, but
will decrease towards year 2040 because the younger cohorts are smaller. Therefore, a likely scenario is
that the provision of day care teachers will increase in the future. Only if we calculate a large decline in the
admission or implementation rates compared to the current level, we will face a scenario where the
number of day care teachers will be smaller in the coming years than is the case today. The number of
primary school teachers will also grow in the coming years, which means that fewer day care teachers will
be needed working as teachers in primary schools in the future. The development is due to the fact that,
with the current admission, more people are being trained than going on retirement.
Demand for Day Care Teachers Now and in the Future
The day care centres do not have enough day care teachers to live up to the standards of the day care
centres according to the provision of the Government's regulation § 20. More than one day-care teacher is
missing %re on average – a total of approx. 120 day care teachers. 80 % of day care centres have a manager
who is trained as a day care teacher. As a compensation for day care teachers, the centres employ many
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unskilled day care assistant teachers. This shows that there is a great lack of day care teachers in the day
care centres.
The birth rate is important for the need of day care teachers in the future. Statistics Greenland's population
projections show that the number of children will be almost constant from year 2018 to 2040. That means
– all else being equal – that the need for day care services and pedagogically trained staff will be about the
same in 2040 as in 2017. For the last thirty years, more and more people have moved from settlements to
towns. If this trend continues, model calculations show that the number of children in the settlements will
fall by approx. 40 % from 2017 to 2040.
The demand for day care teachers and day care centres also depends on how many parents choose to have
their children in day care. 7 out of 10 children were in day care in 2017. In the towns, more children attend
day care, while the proportion of children in day care centres is smaller in the rural areas, where children
are more often taken care of by a day care mother or at home. From 2011 to 2017, the proportion of
children in a public day care centre has increased by 6 percentage points. If this trend continues and more
parents also choose day care centres in the future, the demand for day care teachers and day care centres
will increase in the future.
Balance between Provision and Demand
The future balance situation in the day care centres also depends on a variety of complex conditions. Even
though more day care teachers are trained in the future, the balance situation will depend, first of all, on
how many day care teachers will be employed in the day care centres in the future. Secondly, on how many
children will be enrolled in the day care centres in the future. Based on projections of the provision of day
care teachers and birth rates, a projection of coverage rates shows that if the same number of day care
teachers working in the day care centres today also will be working there in the future and the same
amount of 0–5 year olds will attend the day care centres, the coverage will approach the statutory 100 % by
year 2040. On the other hand, if the proportion of children in kindergartens and nurseries rises from the
present level (69 %) to 90 %, the degree of coverage in 2040 will continue to be too low. Finally, the
calculations show that if the proportion of day care teachers working in day care centres rises from 40 %
today to 60 % by 2040, there will be more than one and a half day care teachers per child group.
Pedagogical Practice in Day Care Services
The majority (78 %) of the staff and the managers primarily speak Greenlandic to the children, whereas 3 %
primarily speak Danish. A large proportion of the centre managers uses the educational tools TRAS (88 %),
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RABU (82 %) and SPU (71 %), and the majority of these believe they contribute positively to the
development of children and to better parenting. In addition, the majority of the centre managers believe
that special conditions affect the applied pedagogy. Their responses show that the Greenlandic culture,
language and local customs are of particular importance.
Parental Satisfaction
There is generally a high satisfaction among the parents with the day care centres. In addition, parents
believe that their children are happy with the centre. Similarly, there are high levels of satisfaction with
opening hours and the centre's efforts in most forms of development of the child's skills. Satisfaction with
the efforts in language development of Danish is, however, at a more moderate level, which may be due to
the fact that only a minority of the staff speak Danish with the children. Satisfaction with the physical
environment and the indoor climate is high as well as satisfaction with the involvement of the parents and
the cooperation with the employees and the centre managers. However, they experience a high staff
turnover.
IT-Support
IT is a tool that is increasingly demanded at the day care centres. 82 % and 76 % respectively of the parents
find that there is a great or some need for opportunities to find practical information about the day care
offer online, and that they can be informed of their children's everyday lives in the centre online or through
an app using pictures and text. At the same time, there is a need for better IT support to match the need
for IT. This applies to IT support to the staff in relation to sparring with colleagues (74 %), managerial and
administrative tasks (66 %), the dialogue with parents (66 %), and to the interaction with the children (59
%). The centre managers are increasingly experiencing a need for IT support in relation to sparring with
colleagues and for managerial and administrative tasks in comparison with other staffs.
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Annex 11: Strategy and Action Plan for Professionals in Day-care
Institutions
Introduction
1: Strategy and Action plan - Background and Objectives
In connection with Inatsisartut's autumn session 2016, Inatsisartut adopted a motion for Inatsisartut
resolution to impose on Naalakkersuisut to present a strategy and action plan, which will indicate the way
in which we, based on the needs, ensure employment, education, upgrading and retention of the
professional staff at day care institutions in the future.
Naalakkersuisut found that this is a good time for the many initiatives that have been launched to be
compiled and assessed in a comprehensive strategy and action plan. Such a plan will, according to
Naalakkersuisut's assessment, require a thorough involvement of the municipalities, professional staff and
other good forces. Naalakkersuisut wants to ensure that the preparation of the strategy and action plan will
take place with the appropriate user involvement.
The vision for the strategy and action plan is:
The Vision
To develop children and young people who are safe, confident and respectful, are mentally and physically
healthy and proud of their identity and culture.
Mission
The mission is to secure more qualified pedagogues as well as maintain and upgrade the existing staff at
day care institutions, which must form the basis for effective and coherent efforts that contribute to
ensuring a stable and well-educated staff in all the country's day care institutions.
The vision describes the overall direction, whereby Naalakkersuisut wants to develop children and young
people who are safe, confident and who show respect for each other, are mentally and physically healthy
and are proud of their identity and culture, so that the children develop social and personal skills and the
best prerequisites for learning during their school hours and subsequently in further education.
The strategy and action plan for the retention of skilled personnel at day care institutions must thus
contribute to realising the central vision.
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The mission is more concrete and implemented by formulating both short- and long-term goals and
initiatives, which are intended to create better opportunities for retaining the staff at day care institutions
by focusing on the staff's terms of employment, education and continuing education, working environment,
use of IT as a tool and evaluation of all efforts.
2: The Overall Objectives of the Strategy and Action Plan
The strategy and action plan for the retention of the staff at day care institutions must contribute to:
To retaining the pedagogical staff at day care institutions
To optimising the education, further and continuing education and the upgrading of the pedagogical staff in the country's day care institutions in terms of quality and content
To ensuring continued focus on the mental and physical working environment in day care institutions
To ensuring that the use of IT both administratively and pedagogically are modern and in accordance with Naalakkersuisut's other strategies in the area
To ensuring ongoing monitoring and evaluation of the efforts in the entire preschool area for continuous development work in the preschool area.
The vision, the mission and the overall policy objectives must guide the development of more operational
and concrete goals for the efforts in relation to the retention of the skilled personnel at the day care
institutions.
It is important to Naalakkersuisut that the strategy and action plan for the retention of the staff at day care
institutions is seen in the context of Naalakkersuisut's other efforts in the field of children and young
people, the social area, the education area, the labour market area and the health area.
The Strategy and Action Plan Must be used as a Priority Tool
Naalakkersuisut's Strategy and Action Plan for the Professional Staff at Day Care Institutions must be a tool
for the administration and the politicians to use actively to ensure prioritisation of initiatives and projects
that can support the desired overall development in the area.
3: The Work on the Strategy and Action Plan
The work on the preparation of the strategy and action plan has been managed and coordinated by the
Agency for Education with a steering committee consisting of the head of agency, the deputy director, the
education inspector and the head of department for the pedagogical area.
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In connection with the work, a two-day seminar was held in Nuuk January 16-17, 2018. To this end, a
number of different professionals from the Government, the municipalities, the educational institutions
and the organisations associated with the pedagogical staff at the day care institutions were invited and
represented the following: The Ministry of Finances and Taxes, the Ministry of Education, Culture,
Research and Church, the Agency for Education, the Ministry of Health, the National Board of Health,
Avannaata Municipality, Municipality of Qeqertalik, Qeqqata Municipality, Sermersooq Municipality,
Municipality of Kujalleq (the latter unfortunately did not arrive due to the weather), Perorsaanermik
Ilinniarfik (PI/CSE), Nunatsinni Perorsaasut Kattuffiat (NPK), Sulisitsisut-Greenland Business Association, SIK,
IMAK, Institute of Learning, MIO, the Ministry of Industry, Labour, Trade and Energy (PKU-funds).
Tasks and timetable in connection with the preparation of the strategy and action plan were as follows:
Mid December 2017:
a. Register analysis
Where do people with a pedagogical education work.
How is the personnel ratio at day care institutions across the country, description of staff composition in relation to education, calculation of coverage rates etc.
Mapping of the College of Social Education’s continuing education programmes and how many have received continuing education and within which subject areas.
Updating of projection (number and distribution) of children 0-6 years and possibly 7-16 years.
Updating of the supply of pedagogues and other relevant programmes at the same level or within the municipal area.
b. Interview with functional managers of the area
What strategies do the municipalities have for the day care area, including in relation to working environment, continuing education, retention and attraction of pedagogues as well as in relation to pedagogy?
Facts about the municipality's day care facilities, including institutional structure, etc.
c. Head of institution survey
A survey is sent out to heads of institutions regarding employee seniority, working environment, opportunities and needs for continuing education, digital support, application of pedagogical principles, etc.
The possibility of using office staff for some work tasks.
d. Employee survey
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A survey is sent out to employees in the Greenlandic day care area to examine the employees' views on working environment, opportunities and the need for continuing education, etc.
e. Cause analysis among former employees
Qualitative interviews with pedagogues who have changed jobs in the past year to identify reasons behind the change.
f. Parents survey
What is the parents' view of the municipality's day care offers, and what are the requests of the parents in relation to digital support.
Seminar on January 16 and 17, 2018:
Seminar for stakeholders and interested parties who discussed the terms of reference and contributed to
the content of the Strategy and Action Plan. Proposals from the seminar participants have been assembled
from the groups and edited so that proposals relating to the same topic have been merged. Most of the
participants' proposals have thus been placed in the various focus areas, but also compiled in Appendix 2,
and can be included in the more detailed work with this Strategy and Action Plan.
In this connection, it should be noted that issues of salaries and other employment conditions, which the
Government of Greenland will take into account, have also been discussed. This is however a contractual
agreement between the social partners and outside the scope of this Strategy and Action Plan, which must
therefore be discussed further in another forum. However, Naalakkersuisut will have salary statistics
prepared showing the salary level for different professional groups.
End of January 2018:
Draft of the Strategy and Action Plan has been submitted for consultation from 19 January 2018 to 19
February 2018. In this respect refer to the separate consultation report which is attached.
Mid-2018:
Draft of the Strategy and Action Plan must be submitted to Naalakkersuisut for approval with a view to
subsequent submission to Inatsisartut.
4: The Content of the Strategy and Action Plan
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Naalakkersuisut's Strategy and Action Plan for day care staff must act as a prioritisation tool first and
foremost to ensure recruitment, education, upgrading and retention of the professional staff at day care
institutions.
Based on the political reports, the Steering Committee therefore decided that the work on the Strategy and
Action Plan should focus on the following 5 areas:
The 5 Focus Areas of the Strategy and Action Plan:
1. Recruitment and retention of the staff
2. Education and upgrading of skills
3. Working environment
4. IT area
5. Evaluation, monitoring and adjustment of the Strategy and Action plan
The areas of intervention and focus in the Strategy and Action Plan are in many cases dependent on each
other. The numbering is therefore not an indicative of a prioritised order.
Within each area of intervention and focus, the initiatives that must be prioritised strategically are
described to ensure the desired development in the day care area. In addition, the expected effects of an
implementation of the proposed efforts are described.
For some of the areas of intervention and focus, further considerations, planning and thus time are
required before they can be implemented, while others can be implemented immediately. Some of the
efforts may require further processing in the individual municipalities, which for some have already
introduced initiatives that cover the focus areas of the Strategy and Action Plan.
5: From Strategy to Action
The further development of the present Strategy and Action Plan must be seen as a process in which the
experiences gained along the way may require an adjustment of the Strategy and Action Plan over time,
but where the vision and mission of the Strategy and Action Plan must guide the further work.
Interdisciplinary Co-operation
In order to implement Naalakkersuisut's Strategy and Action Plan for the staff at day care institutions, it is
necessary to ensure collaboration across the most important partners in this work: Ministries and agencies
under the Government, educational institutions, municipalities, organisations and others working with
children and young people.
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Implementation and Operationalisation
The strategy and action plan must be seen as a whole, but the efforts of the strategy and action plan cannot
be implemented simultaneously, because some efforts require development work or training efforts before
they can be implemented, while others can be implemented immediately. This means that an
implementation of the strategy and action plan must be planned carefully in time and effort.
The goals of the strategy and action plan are overall and must therefore be seen as benchmarks in the
forward-looking work in relation to the five focus areas.
6. Ensuring the Implementation
Responsibility for the implementation of the Strategy and Action Plan is embedded in the Agency for
Education and the Municipalities. The embedment is strengthened through interdisciplinary collaboration
both locally and centrally.
Overall Steering Committee
In order to ensure the overall management, prioritisation and coordination and to ensure coherence
between the political goals, a steering group is set up consisting of:
The Minister of the Ministry of Education, Culture Church, Head of the Agency for Education, the Head of
Department of the Pedagogical Area in the Agency for Education and representatives of the municipalities.
The Minister the Ministry of Education, Culture and Church is also a member of the steering committee for
the special educational effort in the social field. This will ensure the necessary coordination of initiatives
aimed at day care institutions and initiatives targeted at the social area.
Advisory Group
The representatives of the organisations, the educational institutions, the Government and the
municipalities, who contribute to making proposals for the content of the Strategy and Action Plan, also
constitute a planning advisory group to ensure:
The continuous control, monitoring and coordination of the implementation of the Strategy and Action Plan's areas of focus and intervention.
Input to the overall steering committee's meetings.
Regular status-oriented meetings.
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The advisory group conducts at least one meeting annually, which can be held in continuation of the annual
meeting between the functional managers and the Agency for Education.
Coordination
The day-to-day coordination of the implementation is handled by the Agency for Education, including the
Preschool Group in close cooperation with all parties involved, among other things through regular
telephone conferences with the municipalities, during which the municipalities are given the opportunity to
exchange ideas about their initiatives and ongoing efforts. The Agency is also responsible for systematic
reporting to Naalakkersuisut.
7: Economic and Practical Resources
The resource-intensive efforts that follow from the implementation of the Strategy and Action Plan are
discussed regularly during the process and will be sought incorporated into the Finance Act in the coming
years in connection with the other strategies and plans of Naalakkersuisut.
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8: Focus Area: Recruitment and Retention of the Staff
Description of current conditions regarding recruitment and retention of staff
Half of the day care staff at day care institutions are unskilled child-care workers. About one fifth are
pedagogues, while one third is made up of people with another pedagogical education. The staff has on
average been employed in their current position for 7 years, while the managers have on average 9 years of
seniority. Most of the staff are familiar with the decentralised pedagogue education programme and half
are considering taking the education.
The day care institutions find it difficult to retain the staff. Thus, 28 % of the total staff terminated their
position in the past year. Only about one-tenth of the day care staff express that they do not expect to be in
their current position in two years, but many are in doubt (33 %). Of these, three quarters want to continue
within the pedagogical area for the next two years. Interviews with the pedagogical staff who have changed
jobs in the past year show that a manager who allows the employee to use his / her competences is central
to retention. Many terminations and sick leaves can also make everyday life so busy for the staff that the
motivation for the work declines. This is especially true for the managers when they find that due to sick
leaves, they have to carry out general teaching work rather than spend time on management. For
pedagogues, changing job is taken into consideration when they lack opportunities to bring their
pedagogical skills into play in an appropriate manner, or when there are poor conditions in the form of, for
example, a lot of heavy lifting.
The interviews with the functional managers support the fact that the day care institutions find it difficult to
recruit and retain the staff. However, the municipalities have not prepared specific retention strategies. The
central retention tool that all municipalities use is continuing education. Special training and counselling for
institutional managers are in use. The reason for this is that the municipalities find that the day care
institutions' management is central to whether the employees choose to find other paths. Further training
of the other staff is also used, because the functional managers find that professional development is
important for the employees. A small selection of relevant courses and - for some institutions – the great
distances to the educational institutions are, however, challenging.
Interviews with the functional managers confirm that salary level and structures in the day care area
contribute to the problems of retaining staff. Firstly, because the pedagogues can get higher salaries by
working in the primary and lower secondary schools, secondly because it is not worth in relation to salaries
for experienced pedagogues to take the decentralised social pedagogue education. However, it is not only
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the salary that matters, but also that the work is experienced as physically and psychologically hard
compared to jobs in schools and residential institutions.
Area of Intervention I:
In order to support the municipalities' children's and youth policy and the work on pedagogical annual
plans for the individual day care facilities and their evaluation, cf. § 5 subs. 3 of the Preschool Act,
Naalakkersuisut recommends that local strategies be prepared for hiring, attracting and retaining
pedagogical staff, including in the settlements.
Why:
To support the municipalities' child and youth policy and the preparation of pedagogical annual plans that
contribute to the improvement of opportunities to live up to the vision of the strategy and action plan and
the provisions of the Preschool Act, and thus live up to the requirement of the Preschool Act to provide day
care for all children of preschool age.
Expected Effect:
Politically and administratively, a management tool is created in relation to children and young people and
the pedagogical work of the day care institutions and in relation to the recruitment, attraction and
retention of the staff who perform the daily work of implementing the municipality's political objectives.
Time Frame, Responsibility and Economy:
By March 2019 as a municipal responsibility. Not expected to produce additional expenses for the
Government or the municipalities, but is expected to reduce the municipal costs for advertising, training of
new staff, etc.
Area of Intervention II:
Naalakkersuisut establishes more detailed rules for the municipal council's general and pedagogical
supervision of all day care facilities.
Why:
In order to better evaluate the Strategy and Action Plan, follow up on this and adjust the Strategy and
Action Plan, and to facilitate the municipalities in their work to implement the legislation in relation to the
supervision of all day care facilities, Naalakkersuisut prepares more detailed rules for the supervision in
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accordance with § 5 subs. 4 of Inatsisartutlov no. 16 of 3 December 2012 on pedagogically developing
offers for children of preschool age.
Expected Effect:
Better basis for evaluation of the preschool area and of the Strategy and Action Plan. Improved
opportunities for municipalities to live up to their supervisory obligation.
Time Frame and Responsibility:
By the end of 2018, the Ministry of Education, Culture and Church.
Area of Intervention III:
Preparation of a salary statistics showing the salary level for different groups of professional bachelors:
pedagogues, nurses, teachers, incl. preschool teachers and social workers showing initial salary, final
salary and average salary. For the pedagogues, they are divided into pedagogues in the day care and
residential institution area, respectively. In addition, the same salary statistics are prepared for social
helpers and social assistants.
Why:
Because the study suggests that salary levels contribute to retention problems and in order to compare the
salary levels of the different groups of professional bachelors as well as the other pedagogically trained
staff.
Expected Effect:
Overview of the actual salary conditions.
Time Frame and Responsibility:
At the end of 2018. The Agency for Education in collaboration with Statistics Greenland, Economy and
Human Resources and the National Board of Health and Welfare.
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Focus Area 2: Education and Upgrading of Skills42
Description of current conditions of importance for education and upgrading of skills:
Managers more often than other employees receive continuous training. Three-quarters of the managers have been on
a course within the last year. 15 % of the other staff at the day care institutions have been on a continuing education
or upgrading course within the last year. It is more often the pedagogues and pedagogical staff who carry out further
training compared with unskilled staff. Although the need for upgrading, according to the heads of the institutions, is
greatest among the unskilled childcare assistants, it is thus other employee groups that receive continuous training.
Since 2007, a total of 3,200 students have participated in pedagogical training or upgrading courses at CSE. However,
since 2015, the number of students has halved. Interviews with the functional managers indicate that the distance to
the programmes constitutes a challenge for the institutions. Several highlight the development program
Meeqqerivitsialak, where a travel team teaches at the institutions, as a possible solution.
In 2016, there were 477 qualified pedagogues in the labour market in Greenland. There were about 759 primary school
teachers, 255 nurses, 412 social workers, 64 social assistants, 368 social helpers and 41 with another pedagogical
education. The number of older pedagogues who are facing pension is low. This suggests that the supply of
pedagogues will not fall drastically in the coming years. The same holds true for primary school teachers, so a large
increase in demand for pedagogues to replace retired teachers is also not forthcoming.
The pedagogues work in a wide range of areas from administration to teaching. However, the majority (83%) work in
the public sector. The majority (83 %) work in traditional pedagogical areas. Either in the private or public education,
social and health area. About 17 % are not employed in the traditional pedagogical fields. They work either in the
public administration, as self-employed or are without employment.
Since 2011, the number of people who carry out an education every year has grown. This is due to the fact that the
annual admission to the pedagogue training programmes has increased, while a larger share of newcomers
simultaneously completes an education. This is a positive development that makes Greenland better able to meet the
need for pedagogues in the labour market.
The most likely future scenario is that between 24 and 27 pedagogues will be trained annually. The number is greatest
in the coming years, but falls towards 2040, because the younger cohorts are smaller.
The most likely scenario is a growing supply of pedagogues in Greenland in the future. Only when we calculate a large
decline in admission or implementation rates compared to the current level, we see a scenario where the number of
42 Work is ongoing, alongside this strategy and action plan, for pedagogical staff at day care institutions, with the purpose of describing education and upgrading initiatives for social workers and pedagogues in the residential institution area. There will be a lot of overlap between the efforts for the day care area and the residential institution area, respectively, requiring close coordination.
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pedagogues will be smaller in the coming years than today. The number of primary and lower secondary school
teachers will also grow in the coming years, which is why there will be a need for fewer pedagogues who work as
teachers in the elementary school in the future. The development is due to the fact that more people complete training
than people retire with the current admission rate.
Area of Intervention I:
Naalakkersuisut recommends an evaluation of Perorsaanermik Ilinniarfik / the College of Social
Education (PI / CSE), the decentralised pedagogue education programme and the supply of courses,
continuing and further education initiatives and their coordination.
Why:
Because the importance of the pedagogues' education and the upgrading of employees in general is
emphasised by research (including the Social Research Institute 2014, the Evaluation Institute's evaluation
of the teacher education and the elementary school, 2015), showing that the employees' competences are
of great importance for the children's development.
PI / CSE and the decentralised pedagogue education programme are primarily responsible for equipping
the future pedagogues professionally in order to carry out the task in the day care facilities. The mapping
that was done prior to the preparation of this Strategy and Action Plan (Epinion, 2017) shows that the staff
of the day care institutions participate to a limited extent in continuing education activities, and that the
extent of continuing education decreases with the level of education. At the same time, the proportion of
students since 2015 has halved at PI / CSE.
PI / CSE is in charge of a considerable part of the continuing education of the pedagogical staff in the day
care area, but at the same time the financial resources for continuing and further education of pedagogical
staff and upgrading of untrained staff are in the hands of different ministries, agencies and educational
institutions, as well as some municipalities and some institutions have their own funds for this activity,
which at present is not coordinated, which is why it is very difficult to get an overall overview of the
relevance, quality and, not least, the effect of the courses offered and continuing and further education
initiatives.
In order to create the best basis for education and upgrading of the pedagogical staff, respectively, there is
a need for further description, documentation and evaluation of PI / CSE, the decentralised pedagogue
education programme and the supply of courses, continuing education and the coordination of these.
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How:
The evaluation must at least contain the following parameters:
What education programmes and courses are available?
What is the content of the individual programmes and courses?
What is the quality of the programmes and the courses available?
How does the distance to the educational institution affect the young people's choice of education, and how does the distance affect the continuous education activities?
How does the content and quality of education and course offerings align with the goals of the strategy and action plan, and with the demands of the municipalities and day care facilities?
The importance of the language of instruction for the choice of education for young people
Admission requirements and credit transfer options
Links with other programmes
Curricula and study descriptions
An analysis of the relationship between and the conditions for the decentralised pedagogue education programme and the decentralised teacher education programme
Since a similar evaluation must be made in relation to the residential institution area and the pedagogical
staff's professionalism in relation to working with children with neglect, abuse etc., it is important that
these evaluations are coordinated. Coordination must be in relation to the evaluation itself but also the
future work of organising any changes in curricula.
Expected Effect:
The evaluation gives an insight into the outcome and effect of education programmes, courses and
continuing education and the coordination of these.
Time Frame:
Planning in 2019, implementation in 2020. The Ministry of Education, Culture and Church convenes an
initial meeting.
Area of Intervention II:
A plan must be prepared for the upgrading of non-qualified assistants, including support persons based
on an individual assessment of competence and through individually organised, Greenlandic speaking
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competence-giving courses, including examining the possibility of offering qualifying courses as e-
learning.
Why:
Because more than half of the total number of working hours in day care institutions is provided by
unskilled educators.
Expected Effect:
More trained staff in the day care institutions.
Time Frame and Responsibility:
The plan is prepared before the end of 2019. The Ministry of Education, Culture and Church, together with
PI / CSE, is responsible for the implementation of the plan.
Area of Intervention III:
A coordination group is set up to get a better overview of all the funds for courses as well as continuing
and further education within the Government and the municipalities, which at the same time must
ensure coordinated and coherent training courses for everyone working in the day care area.
Why:
Because there is currently no comprehensive overview of courses and continuing education for the day
care area funded by the Government and the municipalities, and because these are not coherent or
coordinated.
A similar work is underway to uncover funds targeted at the social area, which is why it is important that
these are coordinated.
Expected Effect:
More efficient and coordinated use of the Government's and municipalities' funds for courses and
continuing and further education in the day care area.
Time Frame and Responsibility:
By the end of 2018. The Agency for Education is responsible for convening the first meeting.
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Focus Area 3: Working Environment
Description of current conditions regarding working environment:
The heads of institutions use 61 % of their time on management-related tasks such as managerial and
administrative tasks. The rest of the staff use 89 % of their time with the children, as well as practical and
parent-related tasks. 4 % of the heads of institutions indicate that all or almost all their administrative tasks
can be handled by office staff.
91 % of the employees at day care institutions are satisfied or very satisfied with their jobs. The proportion is
slightly smaller among institutional leaders than with the other staff. There is the greatest satisfaction with
the tasks and the lowest satisfaction with the opportunities for professional development. The institution
leaders, in particular, are less satisfied with their opportunities for professional development.
Virtually everyone experiences that their work is meaningful, while 74 % experience having an influence on
the workload. This is especially true among the other staff. On the contrary, there is an improvement
potential in relation to the work pace and the support and recognition that the employees experience. Of
critical factors can be emphasised that 23 % experience having been subjected to bullying in the workplace
in the past year, while 16 % during the last two weeks constantly or often have felt stressed.
77 % emphasise that there is too much noise in day care institutions, while 69 % indicate that they must
work with bent back and often have to do lifts. About half indicate that it causes discomfort such as
shoulder and back pains. The other staff more often encounter the ergonomically challenging work positions
in their work than the leaders. The employees' opportunities to meet the physical challenges are greater
than the mental ones.
Area of Intervention I:
A working group is set up to prepare new and up-to-date rules regarding the establishment, furnishing,
management and operation of new day care institutions, who at the same time provides guidelines for
the use of older buildings as day care institutions.
Why:
Because there are no updated rules on the establishment and furnishing of day care institutions, cf. § 12,
subs. 3 of the Preschool Act.
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Expected Effect:
That the physical requirements for both outdoor and indoor areas based on educational criteria and
principles are regulated.
Time Frame and Responsibility:
The working group will be set up by the end of 2018 by the Ministry of Education, Culture and Church.
Area of Intervention II:
Establishment of management training programmes to ensure optimal conditions for the psychological
and physical working environment, as well as management coaching and supervision as well as teaching
in the UN Convention on the Rights of the Child.
Why:
Because it is a management task that the day care institution is operated properly and in accordance with
applicable rules, and because the management is responsible for the personnel matters, and that the
decisions or instructions of the user assembly or the board of directors are complied with, and it is a
management task to ensure that the institution meets the purpose of the law, among other things in
relation to the Children's Convention.
Expected Effect:
Happy, confident and motivated employees who can do targeted pedagogical activities with respect for the
rights of the child.
Time Frame, Responsibility and Economy:
Continuously. The Agency for Education pursuant to § 4, subs. 2, no. 4 of the Pre-school Act. This activity is
not expected to incur additional costs, as it is part of the continuing education activity in relation to the
implementation of the Preschool Act.
Area of Intervention III:
Naalakkersuisut stipulates more detailed rules on cooperation teams in accordance with §6, subs. 3 of
the Preschool Act.
Why:
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The municipalities have each drawn up various guidelines regarding the cooperation on the individual child.
There is a need for these to be coordinated and assembled under some common rules in relation to the
cooperation on the individual children.
Expected Effect:
That all municipalities receive uniform and good working conditions in relation to the cooperation
surrounding the individual child.
Time Frame and Responsibility:
2019. The Ministry of Education, Culture and Church.
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Focus Area: IT Area
Description of current situation in the IT area
82 % and 76 %, respectively, of the parents find that there is a great or some need to be able to find
practical information about the day care facility online, and that there is a need for them to be informed
about their child's everyday life in the institution online or through an app with pictures and text.
In general, there is a need for better IT support among the staff in relation to sparring with colleagues (74
%), for managerial and administrative tasks (66 %), in the dialogue with parents (66 %) and in the
relationship with the children (59 %). Compared to the rest of the staff, the institutional leaders experience a
greater need for IT support for sparring with colleagues and for managerial and administrative tasks.
The Digitalisation Board, together with the Ministry of Education, Culture and Church, is developing various
types of IT tools for the teaching area.
Area of Intervention I:
A working group is set up with representatives of the municipalities, the Government and the
organisations to investigate existing possibilities for involving the preschool area in the overall
digitisation process.
Why:
Because there is a need to implement IT in day care institutions at four levels:
IT in relation to a common administrative tool
o General administration, communication
IT as a pedagogical tool - incl. exchange of experience
o Ethical guidelines, exchange of experience
IT as a tool to follow the individual child
o Follow development, early intervention
IT as a tool for communicating with parents and profiling of the institution
Expected Effect:
The administrative work becomes more manageable.
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IT is involved in everyday life as a pedagogical tool and for the exchange of experience among the
pedagogical staff.
The development of the individual children can be followed over time, and thus contribute to assessing the
effect of the efforts initiated.
Quick contact with parents and profiling of the institution.
Time Frame and Responsibility:
The working group will be set up by the end of 2018 by the Agency for Education in collaboration with the
Digitisation Board.
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Focus Area 5: Evaluation, Monitoring and Adjustment of Initiatives in
the Preschool Area
Description of the current situation regarding evaluation and monitoring of interventions in the preschool
area
In the period 2009-2011, an annual survey of several areas has been carried out in relation to the
implementation of the preschool regulation of 2008 with the aim of being able to measure the effect of the
reform work and the implementation process in the long term.
In accordance with § 4, subs. 2 of Inatsisartutlov no. 16 of 3 December 2012 on pedagogically developing
offers for children of preschool age, it is the responsibility of Naalakkersuisut, among others, to develop
tools for statistical data collection (no. 6) and tools for screening children's health, development and school
readiness (no. 7), the latter being seen as a continuation of Naalakkersuisut's Education Strategy. The Act
clarifies that it is the responsibility of Naalakkersuisut to develop the tools to be used in relation to screening
preschool children and deals with the issue of securing tools for measuring the child's linguistic and
cognitive development and school readiness in a way that ensures that already used tools are made
operational and systematised for actual use.
Area of Intervention I:
Ongoing Evaluation from 2018-2022
An analysis and evaluation design will be set up running from 2018 to 2022. The purpose is to prepare an
annual report, which describes the implementation of the individual efforts and the results and effects
achieved in relation to the objective.
The ongoing evaluation can advantageously be coordinated with similar initiatives in the social area.
The evaluation design should primarily focus on the implementation of the Strategy and Action Plan in the
first part of the evaluation period, and the impact and effect of the efforts at the end of the period.
An analysis and evaluation design could include the following elements:
Baseline measurement (2018). Measurement of status on all indicators. Use of existing and
historical analyses and data to the extent possible.
Status note (2019). Status of some indicators. Focus on implementation of the Strategy and Action
plan.
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Mid-term evaluation (2020). Status of all indicators. Focus on implementation of the Strategy and
Action Plan. Collection of qualitative and quantitative data to illustrate status and development.
Status note (2021). Status of some indicators. Focus on impact and effects of the Strategy and
Action Plan.
Final evaluation (2022). Status of all indicators. Focus on impact and effects of the Strategy and
Action Plan. Collection of qualitative and quantitative data to illustrate status and development.
There can be great variation in how the individual efforts are implemented. Therefore, an evaluation design
should both capture the implementation and effect of the individual effort as well as the results across.
This suggests the use of an impact assessment. Impact assessment is frequently used as an evaluation tool
in the areas of early intervention and education and also goes under the name of programme theory or
intervention theory.
Based on impact assessment, a change theory is prepared for the entire Strategy and Action Plan
containing all the individual initiatives implemented.
The above evaluation design is suitable for complex evaluations where there is a common framework for
the Strategy and Action Plan, but different forms of implementation and varying efforts.
The theories of change can be based on six levels - the overall effort, input, context, steps on the road,
objectives and overall goals.
In addition to uncovering the achievement of the objectives of the efforts, it should also be a central
objective of the evaluation to investigate whether the respective goals have been achieved with the
combined Strategy and Action Plan. The focus thus shifts again from the input level to the total effort.
Why:
Provides an insight into the implementation, outcome and effect of Strategy and Action Plan.
Expected Effect:
The evaluation gives an insight into the implementation, outcome and effect of the Strategy and Action
Plan, the introduction of an evaluation culture where actions are based on the evaluation.
Time Frame and Responsibility:
2018-2022. The Agency for Education.
Area of Intervention II:
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Continuous adjustment of the Strategy and Action Plan. Each year, during the follow-up group meeting,
the status of implementation and preliminary results of the Strategy and Action Plan are discussed, and
whether there is a need for adjustments of efforts, objectives, etc. The discussion takes place based on
the annual status report, cf. Area of Intervention I.
Why:
Relevant parties are updated on the status of implementation of the efforts of the Strategy and Action Plan
as well as their impact and decide on possible changes. The continuous adjustment means that any errors,
malfunctions etc. can be adjusted as early as possible.
Expected Effect:
The Strategy and Action Plan is updated and adjusted as needed.
Time Frame and Responsibility:
Annual meeting. The Agency for Education.
Area of Intervention III:
An overall plan is prepared for data collection and evaluation of the implementation of the legislation as
well as the effect of all activities in connection with the implementation of the Preschool Act, including
the implementation of the APV, (workplace assessment) and ensuring that an evaluation culture is
established that, among other things, ensures that actions are based on the evaluations.
Why:
In order to be able to follow the evolution of the preschool area both in relation to the present Strategy
and Action Plan and in general, and particularly in order to assess the impact of initiated development
activities, the need for legislative adjustment and to ensure that the evaluations bring about the necessary
action.
Expected Effect:
The development within the preschool area and the effect of all the initiatives can be assessed over time,
and any need for adjusting the legal basis will be made visible, introducing an evaluation culture where
actions are based on evaluation.
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Time Frame and Responsibility:
This focus area is being developed together with the efforts in the IT area. The Agency for Education.
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Overview of Responsibility by Area of Intervention
RESPONSIBILITY
Focus area 1: Recruitment and retention of staff
Area of Intervention I: To support the municipalities' child and youth policy and
work with pedagogical annual plans for the individual day care facilities and their
evaluation, cf. Preschool Act's §5, subs. 3, Naalakkersuisut recommends that local
strategies be prepared for hiring, attracting and retaining pedagogical staff,
including in the settlements. The municipalities
Area of Intervention II: Naalakkersuisut lays down detailed rules for the municipal
council's general and pedagogical supervision of all day care facilities.
The Ministry of
Education
Area of Intervention III: Preparation of a salary statistics showing the salary level
for different groups of professional bachelors: pedagogues, nurses, teachers, incl.
preschool teachers and social workers showing initial salary, final salary and
average salary. As for the pedagogues, they are divided into pedagogues in the
day care and residential institution area, respectively. In addition, the same salary
statistics are prepared for social helpers and social assistants.
The Agency for
Education
Focus Area 2: Education and Upgrading of Skills
Area of Intervention I: Naalakkersuisut recommends an evaluation of
Perorsaanermik Ilinniarfik / the College of Social Education (PI / CSE), the
decentralised pedagogue education programme and the supply of courses,
continuing and further education initiatives and their coordination.
The Ministry of
Education convenes
an initial meeting
Area of Intervention II: A plan must be prepared for upgrading non-qualified
assistants, including support persons based on an individual assessment of
competence and through individually designed, Greenlandic speaking
competence-giving courses, including examining the possibility of offering
qualifying courses as e-learning.
The Ministry of
Education together
with PI/ CSE
Area of Intervention III: A coordination group is set up to create a better overview
of all funds for courses as well as continuing and further education within the
Government and the municipalities, which at the same time must ensure
coordinated and coherent training courses for everyone who works with people.
The Education Agency
is responsible for
convening the first
meeting
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Focus Area 3: The Working Environment
Area of Intervention I: A working group is set up to prepare new and up-to-date
rules regarding the creation, furnishing, management and operation of new day
care institutions, who at the same time provides guidelines for the use of older
buildings as day care institutions.
The Agency for
Education
Area of Intervention II: Establishment of management training programmes to
ensure optimal conditions for the psychological and physical working
environment, as well as management coaching and supervision and teaching in
the UN Convention on the Rights of the Child. The Agency for
Education
Area of Intervention III: Naalakkersuisut stipulates more detailed rules on
cooperation teams, cf. § 6, subs 3 of the Inatsisartut Act on pedagogically
developing day care facilities for preschool children.
The Ministry of
Education
Focus Area 4: IT Area
Area of Intervention I: A working group is set up with representatives of the
municipalities, the Government and the organisations to examine existing
possibilities for involving the preschool area in the overall digitisation process.
The Agency for
Education
Focus Area 5: Evaluation, Monitoring and Adjustment of the Strategy and Action
Plan
Area of Intervention I: Continuous evaluation from 2018-2022. The Agency for
Education
Area of Intervention II: Continuous adjustment of the Strategy and Action Plan.
Each year, during the follow-up group meeting, the status of implementation and
preliminary results of the Strategy and Action Plan are discussed, and whether
there is a need for adjustments of efforts, objectives, etc. The discussion takes
place based on the annual status report, cf. Area of Intervention I.
The Agency for
Education
Area of Intervention III: An overall plan for data collection and evaluation of the
implementation of the legislation and the effect of all activities in connection with
the implementation of the Preschool Act, including the implementation of the
APV, (workplace assessment) and ensuring that an evaluation culture is
introduced which includes actions based on the evaluations.
The Agency for
Education