5. Cross-Nordic Policy Review: National Tourism Policy Analyses from the basis of the academic literature review

For the review of the Nordic national tourism policies the most relevant policy documents at the state level were analysed. These documents are not in all ways comparable since they are not equally detailed. Some are developed within ministries but others by institutions or public tourism bodies. There is also some difference since the policy documents sometimes contain strict overall tourism policies while others also include action plans to implement those policies, either in the same plan or as a separate document. In those instances, both documents were included in the analyses. Some of the national tourism policies set out broad overall goals for the tourism industry, regions and municipalities and other actors on how tourism should ideally develop over the coming years while other national tourism policies go further and operationalise some of the topics they address in a more detailed way. Either way, the overview and analyses of these policies provides a good general overview of themes and objectives that the Nordic countries, on a national level, present as priorities when it comes to tourism development.

The policies were analysed with reference to the 16 social components of socially sustainable tourism that were identified in the academic literature review. While some policies address all of those topics, or very related topics, others do not. However, from a strict policy perspective, there are many shared common aspects among all the Nordic countries when it comes to tourism development. The Nordic countries mainly share priorities in sustainability and environmental stewardship, quality standards and safety, nature-based and outdoor tourism, and cultural preservation across the Nordic countries along with local community engagement, where each nation tailors its tourism policies to leverage its distinct strengths and address specific challenges. These differences underscore the rich diversity within the Nordic region while also highlighting their common vision for future development.

The Nordic countries’ tourism policies reflect this principle. For instance, the Danish tourism policy emphasises the importance of community involvement in tourism planning and development, ensuring that local voices are heard and considered (Erhvervsministeriet, 2022). Similarly, the Faroe Islands’ policy highlights the role of local communities in shaping tourism experiences, promoting community-led initiatives and capacity building (Visit Faroe Islands, 2023). Finland’s tourism strategy focuses on empowering local communities through participatory planning processes and decision-making opportunities (Ministry of Economic Affairs and Employment, 2020). This approach is echoed in Greenland’s policy, which underscores the significance of community engagement in tourism development, fostering local ownership and empowerment (Visit Greenland, 2021). Iceland’s tourism policies stress the need for community involvement in tourism governance, ensuring that local communities benefit from tourism activities (Menningar- og viðskiptaráðuneyti, 2024a; 2024b). This is in line with Norway’s tourism strategy, which promotes community engagement through collaborative planning and capacity-building initiatives (Visit Norway, 2021).

 The Swedish tourism policy advocates for community participation in tourism development, emphasising the importance of local input and empowerment (Näringsdepartementet, 2021). Similarly, Åland’s roadmap for sustainable tourism highlights the role of local communities in tourism planning and development, promoting community-led initiatives and decision-making (Ålands landskapsregering, 2023).

In essence, the Nordic national policies demonstrate a strong commitment to community engagement and empowerment, recognising that sustainable tourism is not just about attracting visitors, but also about ensuring that tourism development benefits the local communities and enhances their well-being. This approach is also considered crucial for achieving acceptance, legitimacy and thus fosters a more social sustainability in tourism development.

The Nordic countries place some emphasis on preserving cultural integrity and promoting heritage conservation in their tourism policies. For instance, Norway’s tourism policy promotes the integration of sustainable practices across the tourism value chain, fostering partnerships with environmental organisations to ensure that tourism development is both environmentally and socially responsible. The Norwegian tourism policy further highlights the importance of enhancing Sami tourism and cultural integration (Visit Norway, 2021). Similarly, the strategies of Iceland, Greenland, and Finland underscore the need for a tourism industry that respects and preserves local culture and heritage. They also stress the importance of managing visitor pressure to prevent over-tourism and community displacement, ensuring that tourism development is environmentally responsible and socially considerate (Menningar- og viðskiptaráðuneyti, 2024a; Ministry of Economic Affairs and Employment, 2020; Visit Greenland, 2021). Greenland’s policy also emphasises the significance of community engagement in tourism development, especially fostering local ownership and empowerment while preserving cultural heritage (Visit Greenland, 2021). Sweden’s tourism policy advocates for community participation and local empowerment to maintain cultural integrity and promote heritage conservation (Näringsdepartementet, 2021). Åland’s roadmap for sustainable tourism highlights the role of local communities in tourism planning and development as well. The policy promotes community-led initiatives and decision-making, and it is stated that should be done to ensure that tourism development aligns with local cultural and environmental values (Ålands landskapsregering, 2023). 

As such, the Nordic countries’ tourism policies collectively emphasise the importance of preserving cultural integrity and promoting heritage conservation. They advocate for strategies that uphold and promote local cultural heritage while ensuring authenticity in tourist experiences. In this way, the policies recognise that sustainable tourism is not just about attracting visitors but also about ensuring that tourism development benefits local communities and enhances their well-being, preserves cultural values and thereby contributing to a more meaningful and sustainable tourism industry.

The negative effects of over-tourism, such as increased visitor pressure and community displacement, can be significant challenges to sustainable tourism. The Nordic tourism policies offer insights into how various Nordic countries address these issues in their policies. For instance, the Swedish tourism policy discusses the potential erosion of natural and cultural values due to a large number of visitors. It emphasises the need for visitors to show care and responsibility for the destination so that it is not destroyed or impoverished. In addition, the policy mentions the problem of over-tourism in many other countries and advocates for planning for sustainable tourism at all levels to avoid such a development in Sweden (Näringsdepartementet, 2021).

Similarly, the policy from Åland highlights the issue of seasonal tourism, which can lead to high volumes of visitors during certain periods of the year. The policy advocates for the creation of new seasons and extension of existing ones to manage visitor pressure effectively (Ålands landskapsregering, 2023). The Faroe Islands’ tourism policy advocates for the creation of new seasons and extension of existing ones as well to distribute visitor numbers more evenly throughout the year.  This approach aims to mitigate the negative impacts of over-tourism and ensure the well-being of local communities and the policy also emphasises the need to manage visitor pressure effectively to prevent over-tourism (Visit Faroe Islands, 2023).

Norway’s tourism strategy discusses the challenges posed by rapid tourism growth in quite some detail. It highlights the need for improved management capabilities at destinations and stronger cooperation between public and private stakeholders. The strategy also acknowledges the growing pains experienced due to volume growth at iconic natural attractions, in harbours welcoming lots of cruise arrivals, and in charming districts visited by many people, especially during peak seasons. Norway emphasises the need for a balanced approach to tourism development to prevent community displacement and protect natural and cultural values (Visit Norway, 2021).

Iceland’s tourism policy stresses the importance of managing visitor pressure to prevent over-tourism in a similar way. The policies advocate for community involvement in tourism governance to ensure that local communities benefit from tourism activities while preserving their cultural heritage. This approach aims to balance tourism development with the well-being of residents and the cultural fabric of the region (Menningar- og viðskiptaráðuneyti, 2024a; 2024b).

Overall, the Nordic policies demonstrate a commitment to addressing the challenges posed by over-tourism and community displacement. They highlight the importance of conducting impact assessments, implementing measures to manage visitor pressure, and preventing displacement. Most often this is said to be safeguarding the well-being of residents and the cultural fabric of the region, thereby contributing to a more sustainable tourism industry in the long run.

Equity and accessibility can be said to be themes in many of the Nordic countries’ tourism policies. These policies discuss the importance of making tourism opportunities available to diverse community members and the discussion also addresses distributing benefits of tourism equitably across regions. For instance, the Finnish tourism strategy discusses the need for equitable distribution of tourism benefits. It mentions that improved round-the-year spread of tourism will have positive effects on other industries, regions, and host populations by providing host residents with employment and promoting sustainable development in the region (Ministry of Economic Affairs and Employment, 2020).

Similarly, the policy from Åland focuses on social, economic, and ecological dimensions of sustainable tourism. It aims to engage local communities in policy development and promote slow tourism for authentic cultural immersion. The strategy also discusses the development of the accessibility of tourism services and the importance of communicating about accessibility (Ålands landskapsregering, 2023). In Norway, public and private businesses that work with the general public, including outdoor areas, commercial buildings, public buildings, and transport, are obliged by law to ensure universal design. The aim is to ensure that services can be used by everyone, including people with disabilities, visual impairments or hearing impairments, and people with various diseases such as asthma and allergies, as well as the elderly, pregnant women, and people with temporary injuries. This is translated directly into the tourism policy as basis to create equitable tourism (Visit Norway, 2021).

The Nordic countries’ tourism policies collectively contribute to the concept of equity and accessibility in tourism. They address various aspects, including community engagement, cultural preservation, equity, health, and stable employment.

Balancing tradition and innovation in tourism practices is essential for preserving cultural heritage while embracing new and sustainable tourism trends. This balance ensures that communities can benefit from tourism development without compromising their cultural identities. By preserving cultural heritage amidst technological advancements, destinations can offer unique and authentic experiences to visitors.

The Nordic countries’ tourism policies highlight the importance of this balance. For instance, the Finnish tourism strategy emphasises the need for the tourism industry to be aware of gradual developments due to changes in customer behaviour, consumption, digitalisation, or other new technologies. This proactive approach ensures that the industry can adapt to new trends while preserving cultural heritage (Ministry of Economic Affairs and Employment, 2020). In the Faroe Islands, the tourism policy integrates the preservation of cultural heritage with innovative tourism practices. The policy advocates for the promotion of local traditions and culture while encouraging the use of digital tools and sustainable technologies to enhance the visitor experience. This approach ensures that the cultural identity of the Faroe Islands is maintained while embracing modern tourism trends (Visit Faroe Islands, 2023). Greenland’s tourism policy also reflects this balance by emphasising the importance of community engagement in tourism development that can attract visitors and benefit the local economy. This dual focus is meant to ensure that tourism development in Greenland is both culturally sensitive and forward-looking (Visit Greenland, 2021).

Norway’s tourism strategy underscores the significance of integrating sustainable practices across the tourism value chain. The strategy promotes the use of cutting-edge technologies in traditional tourism offerings to enhance visitor experiences while preserving cultural authenticity (Visit Norway, 2021). Denmark’s tourism policy discusses a strategic focus on digitalisation and the green transition in the tourism sector. The policy advocates for the electrification of transportation for tourists and the incorporation of technologies in traditional tourism offerings. (Erhvervsministeriet, 2022).

In summary, the Nordic countries’ tourism policies collectively address the importance of balancing tradition and innovation. They recognise the value of preserving cultural heritage while embracing new trends and technologies so communities can benefit from tourism development without compromising their cultural identities.

Collaboration among various stakeholders, including government entities, local communities, and industry partners, is a common theme in the Nordic tourism policies. The Finnish tourism strategy highlights the role of multi-stakeholder partnerships in achieving sustainable tourism development. It emphasises the need for interaction on a national, regional, and local level, and in all sectors and stakeholder groups in the tourist industry, as well as from corporate level to ministry level. Interaction is needed among commercial stakeholders, fully and semi-public enterprises and the voluntary sector. Public-private partnerships should be encouraged, along with increased use of networks, clusters and measures to promote innovation and interaction within the tourist industry, but also with other sectors and industries (Ministry of Economic Affairs and Employment, 2020).

Similarly, the Swedish tourism policy discusses the need for strategic collaboration as well as risk analyses. It also takes into account the needs of tourism businesses within existing support structures. With this strategy, the Government shows the desired situation for Swedish tourism and the hospitality industry in ten years’ time. This can help to establish a consensus that can facilitate sustainable development throughout the tourism industry’s stakeholder system (Näringsdepartementet, 2021). In Denmark, tourism policy outlines an approach for developing socially sustainable tourism, with a clear focus on community engagement, cultural integrity, accessibility, and environmental sustainability. The strategy highlights the importance of collaborative initiatives between government, local communities, and the industry, including public-private partnerships to bolster socially responsible tourism practices (Erhvervsministeriet, 2022). Often, this however seems rather directed towards the visitors rather than the host community.

In summary, all the Nordic policies demonstrate a strong commitment to stakeholder collaboration and references to this can be found in all countries.

Establishing monitoring and evaluation mechanisms is needed for assessing social sustainability and community well-being in tourism destinations. Some of the Nordic tourism policies address this. The Finnish tourism strategy highlights the role of key quantitative indicators such as tourism employment, registered overnight stays, accommodation sales, and the number of visits to protected areas. It also discusses the development of indicators for the assessment of sustainability at regional, national, and international levels. This approach is meant to contribute to continuous monitoring and evaluation so that the impacts of tourism on local communities are leading to adaptive policy improvements (Ministry of Economic Affairs and Employment, 2020).

The Norwegian tourism policy addresses this to some extent highlighting the overall importance of metrics to evaluate social sustainability and community well-being, incorporating various indicators to complement existing ones like tourism employment, registered overnight stays, accommodation sales, and the number of visits to protected areas. Continuous feedback systems are discussed as essential to enable adaptive policy improvements, ensuring tourism practices remain aligned with community needs and expectations. Socio-economic impacts on local residents are mentioned as vital as well through indicators like quality of life and well-being, assessing the adequacy of public services and infrastructure to support tourism development. The strategy highlights the importance of developing infrastructure that meets the needs of both tourists and local communities, ensuring adequate public services to support tourism growth (Visit Norway, 2021).

To translate strategic objectives into actions, the Norwegian strategy recommends the formulation of concrete action plans. These plans, produced every two years and valid for two years at a time, shall clearly outline implementation details, financial measures, and responsibilities. A coordination group is tasked with drawing up these action plans, while the implementation responsibility is shared among the concerned parties. The use of key quantitative indicators shall be used in assessing the progress of these strategies and the overall impact of tourism on local communities (Visit Norway, 2021).

Norway’s tourism strategy emphasises the importance of increasing the creation of value and jobs across the country in a way that enriches local communities. The strategy highlights that all types of visitors, including cabin owners, bring significant purchasing power to towns or communities, beyond what is generated by the local population. This influx strengthens the economic base for suppliers of goods and services in various sectors, including trade, cultural offerings, activity facilities, building and construction, cleaning, advertising, tradesmen, safety/security, health services, voluntary organisations, and food producers. At the same time, it can put increased pressure on public infrastructure and services. The strategy aims to ensure that tourism contributes to attractive local communities and satisfied residents, with employment and settlement increasing in areas where tourism activity grows and where infrastructure development can also grow accordingly (Visit Norway, 2021).

Similarly, the Finnish tourism strategy underscores the positive impacts of tourism on local communities and overall well-being. It aims for sustainable and prosperous societies by promoting tourism that supports local and regional development, investment, services, and the conservation and development of natural and cultural environments. The strategy also highlights the importance of high-quality health care and well-being holidays for visitors, indicating a focus on enhancing the quality of life for both tourists and residents (Ministry of Economic Affairs and Employment, 2020).

Therefore, the Nordic countries’ tourism policies highlight the importance of understanding the socio-economic impacts of tourism on local residents and investing in public services and infrastructure to support tourism development. However, the tourism policies mainly focus on the possible positive outcomes but do to a lesser extend address the possible negative impacts. The Norwegian strategy does however address that the economic impacts of tourism can lead to income disparities, with some benefiting more than others, exacerbating social inequalities within communities. Additionally, the rising cost of living in popular tourist destinations can strain the financial resources of local residents. Job quality in the tourism sector may be low, marked by seasonal employment and lack of benefits, contributing to job insecurity for many (Visit Norway, 2021). The Norwegian policy also discusses tolerance towards tourists as something that needs to be monitored in popular destinations and that is also briefly mentioned in the Icelandic policy (Menningar- og viðskiptaráðuneyti, 2024a; 2024b).

Public services and infrastructure are understandably much discussed in Nordic tourism policies. These topics are viewed as essential for supporting tourism development, possible growth in tourism development as well as crucial for regional and local development in relation to tourism. The adequacy of public services is generally discussed in the Nordic policies as necessary and a vital part of enriching visitor experience at the same time as maintaining the well-being of local communities. Norway’s strategy discusses the need for the trade and service offerings in municipalities with tourism and many second-home cabins to be greater than what is implied solely by the number of residents (Visit Norway, 2021). Iceland’s policy in a similar way discusses that infrastructure must be able to support both tourists and local residents, enhancing the overall quality of life in the destination for locals (Menningar- og viðskiptaráðuneyti, 2024a; 2024b). In Åland, the tourism strategy emphasises the development of infrastructure to meet the needs of both tourists and local communities. The strategy advocates for the creation of new seasons and the extension of existing ones to manage visitor pressure effectively. Åland further addresses infrastructure development to support tourism growth and at the same time being able to offer better service provision and public infrastructure for local residents (Ålands landskapsregering, 2023).

Generally, the Nordic policies discuss the need for adequate infrastructure development and public services along with a growing tourism development. Thus, including transportation systems, healthcare facilities, waste management, public safety services and health is highlighted in many of the policies and deemed as critical to accommodating the needs of both tourists and residents alike. Pressure on infrastructure and public services is quite prominent in both the policies for Norway, Finland and Iceland (Ministry of Economic Affairs and Employment, 2020; Visit Norway, 2021; Menningar- og viðskiptaráðuneyti, 2024a; 2024b) while also being mentioned in the policies of other countries.

While the effects of tourism on housing for local populations is a widely discussed issue in popular tourism areas this is not addressed to any extent in the Nordic tourism policies. Housing affordability and accessibility can emerge as a critical issue affecting local populations, and this has been a discussion especially in Iceland and some parts of Denmark, Norway and Sweden. The Norwegian policy elucidates how the expansion of tourism can exert pressure on housing markets, leading to soaring prices and a scarcity of affordable housing options for residents. This dilemma is particularly pronounced in regions witnessing a surge in tourism activity, where the escalating housing demand fuelled by tourism development exacerbates challenges for local inhabitants seeking affordable housing solutions. The discourse surrounding land use and cabins in Norway underscores the intricacies of balancing tourism development aspirations with the imperative of preserving local landscapes and community interests. Attractive areas in many locations in Norway are under pressure due to tourism development. This affects development opportunities for tourism and leads to discussions about the use of land for the construction of holiday homes and activity facilities in the mountains and at the seaside. These discussions often involve conflicts between local business interests and the priorities of the wider community, such as conservation measures and infrastructure developments (Visit Norway, 2021).

While all the Nordic tourism policies discuss sustainable development of the industry as a whole the responsibility for such a development is not necessarily addressed in great detail. General sustainable development of tourism is most often said to be the responsibility of the whole industry. The Finnish tourism strategy highlights the importance of reducing climate emissions in line with international agreements and reducing resource utilisation. This extensive task is said to require a holistic approach with a commitment from all players in the tourism industry (Ministry of Economic Affairs and Employment, 2020). Private companies are therefore said to play a pivotal role in promoting social sustainability within tourism development by balancing profit motives with social and environmental responsibility. As such, a sustainable tourism industry must take responsibility for the current and future economic, social, and environmental impacts of tourism. This involves addressing the needs of visitors, businesses, employees, destinations, and the environment (ibid).

Many policies mention various quality assurance and monitoring initiatives, such as certifications and labels, to guide visitors towards more sustainable choices and so on without further operationalisation of responsibility for a socially sustainable tourism development. Initiatives like certifications indirectly stimulate more efforts by companies and destinations to develop their products and services in a sustainable direction. In Greenland, the tourism industry is encouraged to work in various ways to account for the situation of local residents and landowners, ensuring that tourism development does not negatively impact local communities (Visit Greenland, 2021). In the Norwegian policy, different sectors are directly addressed and said to be responsible to participate in turning the tourism sector green. Transport, accommodation and food services, attractions and retail are among the sectors that the strategy mentions specifically (Visit Norway, 2021).

The discussion on responsibility in sustainable tourism development is closely linked with effective tourism governance frameworks. While all countries have sustainable development of their tourism industry as an overarching goal, the responsibility for insuring that the social dimension of sustainability is considered in balance with the economic and environmental is nearly never operationalised. As mentioned earlier, all Nordic policies highlight the importance of stakeholder participation in governing tourism development. Most of the policies put forward are a general guideline for a sustainable tourism development that are then to be implemented at regional or local levels while some policies include strategies and specific actions at national level. All polices do however share the view that collaboration between government bodies, local communities, industry partners, organisations and the public is vital.

Finally, the Nordic policies do to a limited extent discuss impacts of tourism on local health outcomes and well-being. Some policies address the implementation of health promotion initiatives within tourism development strategies to safeguard the health and safety of both tourists and local residents. For instance, the Finnish tourism strategy highlights the importance of high-quality health care and well-being holidays for visitors, indicating a focus on enhancing the quality of life for both tourists and residents (Ministry of Economic Affairs and Employment, 2020). Moreover, some of the policies emphasise the need for environmental impact assessments to monitor tourism’s effects on human health, living conditions, and community structure to ensure that tourism development does not negatively impact the health and well-being of local people (Visit Norway, 2021).

Providing educational opportunities and initiatives within the tourism sector is however quite widely discussed as a goal in the tourism policies of all the Nordic countries. That is generally said to enhance the knowledge and skills of individuals working in or affected by tourism activities. The policies share a discussion on the importance of community education programs in promoting sustainable tourism practices and fostering a deeper understanding of the importance of tourism for local communities and economies. For example, the Norwegian tourism strategy highlights the need for a nationally coordinated, program-based skills boost for further and higher education in the tourism industry (Visit Norway, 2021). In a similar way, Iceland and Norway address the lack of labour and skilled staff with relevant and up-to-date skills within different sectors in the tourism industry to be better addressed, meeting the needs of both workers and companies while creating new opportunities for work in e.g. rural regions (Menningar- og viðskiptaráðuneyti, 2024a).

The Finnish tourism strategy also emphasises the importance of lifelong learning and higher education in tourism related sectors. It discusses the need for mobility between forms of education and the ability to switch between education and work or combine the two. This flexibility is crucial for developing the range of training programs aimed at the hospitality industry and improving the match between the supply of education and labour market demands (Ministry of Economic Affairs and Employment, 2020).

All policies then generally address the seasonality of tourism work, the dilemma and challenge of making tourism related work a less seasonal occupation, enhance job quality and thus foster social equity and contribute to the well-being of tourism workers and their communities. For instance, the Finnish tourism strategy highlights the need for good working conditions and a good working environment, which are crucial for retaining and developing staff. It also discusses the importance of skills development, clearer career paths, and opportunities for career change, indicating a commitment to promoting decent work in the tourism sector (Ministry of Economic Affairs and Employment, 2020). Similarly, the Swedish tourism policy underscores the need for easily understandable and appropriate rules, good treatment and service from authorities, and regulations that promote innovation and capitalise on technological and digital developments. These measures aim to improve the conditions for entrepreneurship and ensure that tourism development benefits both local communities and the broader environment (Näringsdepartementet, 2021).