Photo: Anne Katrine Ebbesen

Case 6. Greenland – Ilulissat

Government's Ambitions vs. Local Capacity Constraints

Introduction

Ilulissat is located in western Greenland, 300 km north of the Arctic Circle. The town has around 4.700 inhabitants and is part of the Avannaata municipality (Avannaata, 2025). The town’s name means “icebergs” in Greenlandic, reflecting its proximity to the Sermeq Kujalleq Glacier Fjord, a UNESCO World Heritage site (Visit Greenland, 2025). The town of Ilulissat is the third largest settlement in Greenland (Grønlands Statistik, 2024) and the surrounding areas are characterized by spectacular landscapes with icebergs, glaciers, glacial fjords, eroded rocks, and marine wildlife. The climate is Arctic, with long, cold winters and short, cool summers (Visit Greenland, 2025).

Background

Historically, fishing has been the primary economic activity in Ilulissat, contributing significantly to the local economy. However, tourism has rapidly grown. Early tourism began in the 1980s-1990s, with significant growth in the 21st century due to the UNESCO classification and the Arctic’s symbolism in climate change (Visit Greenland, 2025). The main attractions include icebergs, glaciers, wildlife, hiking trails, boat excursions, and cultural experiences. Overnight stays and cruise ship visits to Ilulissat have already surpassed the pre-pandemic numbers when almost every accommodation facility was fully book during the peak summer months (Grønlands Statistik, 2023). To accommodate the increasing number of tourists, new infrastructure, including an international airport has been developed and is under construction.

For such a small community to accommodate such a large influx of tourists demands different kinds of infrastructure, labour and investment and the high visitor numbers have already led to a labour shortage and inadequate facilities (interviewee 25). If the growth plans of the government of Greenland will come to a reality when the new international Airport in Ilulissat will be opened, the town will be able to welcome far more visitors. This also opens the possibility of far larger aircraft to land at the airport.

This growth in tourism, largely driven by the governmental level, will bring about various economic opportunities but also challenges at the more local levels related to social sustainability, environmental protection, and cultural preservation. The necessary infrastructure to accommodate more visitors in Ilulissat is already lacking while the influx of tourists has impacted local cultural identity as well and transformed the town centre to cater primarily to tourists (interviewee 27). Therefore, a gap between national policy and local and regional capacity seems to be emerging which can have negative effects for the local population.

Governance and Policy Framework

Tourism development in Greenland is guided at the national level through the state-owned Visit Greenland. The destination management office is responsible for publishing Greenland’s tourism plan, which after covid was published under the name “Towards More Tourism” and it concentrated itselfaround a tourism restart initiative. It contains 4 main goals; to attract adventure tourists, promote year-round tourism across all regions, enhance the skills and knowledge of tourism industry professionals, and create supportive conditions for tourism growth (Visit Greenland, 2021). The state is also the owner and operator of Air Greenland which again has within its group some sub-companies e.g. travel agencies and a hotel (Air Greenland, 2025).

The strategy places a strong emphasis on sustainability, addressing economic, social, and environmental aspects. Social sustainability is highlighted through community engagement, cultural sensitivity, and equitable economic benefits. The strategy aims to create job opportunities for local residents and ensure that tourism development respects and preserves Greenlandic culture (Visit Greenland, 2021). Environmental sustainability is addressed through measures to minimize the environmental impact of tourism, such as waste management and the preservation of natural landscapes. Economic sustainability is promoted in the strategy through supporting local businesses and creating a stable and resilient tourism industry that benefits the local economy (Visit Greenland, 2021).

The Greenlandic state, its institutions and companies therefore play a crucial role in shaping the industry. The national government sets the overarching tourism strategy and policies, ensuring alignment with national goals and priorities. It provides funding, regulatory oversight, and support for parts of the infrastructure development. Local municipalities, such as the municipality of Avannaatta, are responsible for implementing these policies at the regional level (interviewee 29). They manage local resources, infrastructure, and services to support tourism, while also engaging with local communities to try and ensure that tourism development aligns with their needs and aspirations. Tourism operators, both local and international, deliver experiences and essential services to tourists provide such as tours, accommodations, and transportation. Many stakeholders are therefore involved, but the state is the main policy actor in a rather top-down manner (interviewee 20, 22 & 32).

Discussion

The UNESCO classification of the Sermeq Kujalleq glacier has played a significant role in promoting tourism while protecting the site. The classification has attracted investors and facilitated the implementation of projects such as the construction of a visitor centre (interviewee 29 & 31). The goal is to find the right balance between protection and tourism, involving locals in tourism and connecting their world to the UNESCO site with a focus on sustainable tourism. The municipality faces challenges in managing the increasing number of tourists and the need for clear regulations and policies to ensure sustainable tourism development.

Tourism in Greenland is to a greater extent becoming more integrated into the local society, influencing various aspects of social, economic, and environmental life. In Ilulissat, economic activities are still mainly are related to fishing while the economic integration of tourism is becoming more important as it provides job opportunities in sectors such as hospitality, transportation, and tour guiding. However, there is a need to ensure that these opportunities can to a greater extent benefit local residents rather than being mainly carried out by foreign-born individuals (interviewee 21 & 25). The Greenlandic tourism strategy emphasizes the importance of training and education to enhance local involvement in the tourism industry (Visit Greenland, 2021) while locals point out that despite will, both at national and local level, to further include locals in the tourism sector, Ilulissat is already heavily reliant on foreign labour (interviewee 29). During peak tourism seasons there is a lack of labour within the tourism sector and therefore many young and seasonal workers, mainly from Denmark, fill those positions (interviewee 22).

This again effects the social integration of tourism into the Ilulissat community. While certain opportunities for cultural exchange and interaction between tourists, seasonal workers and local residents come with this, it mainly creates a divide. The influx of tourists and seasonal workers can create tensions, particularly since there seems to be a lack of integration which poses challenges related to cultural preservation and social cohesion (interviewee 28 & 29).

The environmental impact of tourism is also a concern, and in the case of Ilulissat this is particularly relevant in terms of waste management and the preservation of natural landscapes. The Greenland policy includes measures to promote sustainable tourism practices and minimize the negative effects of tourism on the environment (Visit Greenland, 2021). This is however not operationalised in any way in the policy beyond stating that its essential to protect important nature sights, like the Ilulissat fjord and its glacier, at the same time as tourism grows and is promoted (Visit Greenland, 2021).

Tourism in Greenland, and especially in Ilulissat where the bulk of foreign visitors come, therefore has significant effects on both the society, economy and environment. While opportunities are highlighted in national policy, mainly in reference to economic possibilities, increased tourism also presents challenges that need to be addressed through coordinated efforts and more effective policies (interviewee 22 & 30). The development of tourism infrastructure, such as hotels and airports, is seen as crucial for the industry's growth, but there are challenges related to funding and the capacity to accommodate increasing numbers of tourists (interviewee 25). The coexistence between the fishing industry and tourist activities is also complicated and the increasing number of tourists puts pressure on local infrastructure, such as transportation, accommodation, and healthcare services (interviewee 23 & 29).

Tourism has a complex relationship with the local economy. There have been conflicts between parts of the local population and tourism operators related to this. Many locals feel that operators, especially foreign ones, do not contribute sufficiently to the local economy, as seasonal foreign workers do not have to change their tax addresses and often pay limited or no taxes in Greenland. This has led to demonstrations and a push for more local control over tourism (interviewee 22 & 25). The economic benefits of tourism are substantial, providing job opportunities and stimulating local businesses. However, these benefits are not always equitably distributed according to some locals (interviewee 29). Larger companies, sometime based outside Greenland, tend to reap the most significant profits, leaving local businesses at a disadvantage. Additionally, the seasonal nature of tourism means that many jobs are temporary, leading to economic instability for local workers. One interviewee mentioned that foreign operators often take up valuable space in the harbour without contributing at the same rate as fishers or local tour operators to local taxes, causing frustration (interviewee 24).

The integration of foreign workers and tourists into the local community is also minimal. The seasonal workers are often referred to by locals as “butterflies”, in the sense that they come for the summer and leave as soon as the fall come (interviewee 21). Since these seasonal workers will leave at the end of the main tourism season, locals will often not bother interacting much with them. Likewise, the seasonal workers often have more in common with each other than with locals and therefore they often interact more among each other than with locals (interviewee 23 & 24). Both therefore lead to minimal interactions and true integration into the local society. This creates a divide between locals and foreigners, which can sometimes lead to social tensions and a lack of cohesion within the community. The interviewees for this case study highlight that the presence of foreign workers and tourists can also lead to cultural insensitivity, such as taking photos without permission or climbing on icebergs, which frustrates local residents. The competition for resources, such as housing, can also exacerbate these tensions (interviewee 24 & 25).

Governance and policy issues further complicate the situation. There is some lack of coordination and communication between local authorities and tourism operators. However, interviewees mainly say that there is lack of consensus and cooperation between the governmental and local levels (interviewee 21, 25 & 29). Local authoroties feel that there is insufficient support from the government to manage the increasing number of tourists. The interviews reveal that the lack of clear guidelines and regulations has led to confusion and frustration among both locals and tourists. For instance, authorities and tourism operators often do not communicate effectively, leading to misunderstandings and inefficiencies.

The current infrastructure in Greenland is for example inadequate to handle the growing number of tourists (interviewee 20). There is a need for more hotels and better facilities to accommodate both tourists and local patients who need to travel for medical care. The healthcare system in Greenland faces some challenges due to the remote and vast geographical area. Transport problems are common, and the healthcare system must manage expectations differently compared to many other regions. Tourists, especially older ones which make up a large proportion of the cruise ship tourists, regularly require medical attention, which can strain local resources. Local patients from different parts of the Ilulissat region sometimes also have to stay in the town of Ilulissat for a few days or even longer when being treated and for that, they need hotel rooms. However, during peak seasons these rooms are occupied by visitors. One interviewee highlighted that the healthcare system is not equipped to handle the influx of tourists, leading to delays and inadequate care for both tourists and locals. The lack of sufficient medical facilities and personnel exacerbates these issues, highlighting the need for better healthcare infrastructure to support the growing tourism industry. For example, tourists often do not bring enough medication for extended stays, leading to complications when transport delays occur (interview 23 & 25).

The construction of a new airport in Ilulissat is then expected to increase tourism substantially which can increase problems like the one mentioned earlier. The aim for substantial tourism growth poses certain challenges, as it is driven mainly by the government of Greenland and Visit Greenland with limited consultation with the region in question. As there is a lack of sufficient accommodation during peak seasons increase in visitors raises concerns about where these additional tourists will stay and that it will also increase pressure on the housing situations of locals.

The locals feel that while the initiatives of the government can serve good purposes, the necessary funds and investments do not go hand in hand with the simultaneous plans to welcome more visitors. The interviews reveal that some locals fear the city will become overcrowded, losing its unique charm and tranquillity (interviewee 27 & 24). For example, the new airport may bring more tourists, but without adequate infrastructure, it could lead to overcrowding and strain on local resources. It has also been pointed out that in a small community like Ilulissat, a major construction like an international airport, takes up a great deal of labour and available machinery. While all construction is focused on one large project, there is little room to start other necessary construction projects, like housing and other transport infrastructure (interviewee 25).

Suggested changes in laws about tourism and ownership of tourism operations have been discussed and are expected to impact the involvement of foreign, especially Danish companies, in the tourism sector. The laws suggest that local ownership must be 50% in specific companies which is also very debated among locals. While the aim is to secure better local involvement and secure more that economic gains stay behind in Greenland it will also hamper necessary investments and therefore this suggestion is very debated. Already, economic disparities are a concern in relation to the tourism development. The economic benefits of tourism are not evenly distributed, and many local businesses struggle to compete with larger, often foreign-owned companies. There is also a concern that the local workforce is not benefiting as much as it should from the tourism industry. The interviews highlight that the presence of foreign workers and companies can lead to a sense of economic disenfranchisement among locals (interviewee 21, 25 & 29). For instance, larger companies often dominate the market, leaving smaller local businesses struggling to compete but at the same time larger companies that can bring about much needed investments (interviewee 32).

Cultural preservation is another critical issue. There is a tension between preserving local culture and catering to tourists. Some locals feel that tourism can help preserve culture by providing a market for traditional crafts and performances (interviewee 26 & 27). However, there is also a concern that tourism can lead to the commercialization and loss of cultural authenticity (interview X). The interviews reveal that some locals feel their culture is being overshadowed by the demands of the tourism industry. The presence of tourists can sometimes lead to the commercialization of local traditions, reducing their authenticity and significance. For example, traditional crafts and performances may be altered to cater to tourist expectations, losing their original meaning and value (interviewee 26).

Cruise tourism presents specific challenges for Greenland. While cruise ships bring large numbers of tourists, these visitors often spend little money locally and contribute to overcrowding and environmental degradation. The interviews reveal that cruise tourism leaves a significant environmental footprint and often negatively affects the social life in Ilulissat since the cruise tourists often do not spend much money locally, leading to minimal economic benefits while still contributing to environmental and social issues (interviewee 21 & 25). The new airport may not necessarily minimize the negative effects of cruise ship tourism. Instead, it could add to the crowding problem, as more tourists arrive by air and sea. However, the tourist that come by air and stay longer are much preferred to those that come by sea and might only stop off for the day. The main problem of an increase in long-term guests is however accommodation. Effective management and regulation of both cruise ship and air travel are essential to ensure sustainable tourism development in Greenland.

In conclusion, tourism in Greenland involves a great deal of stakeholders that effect and area effected by tourism. While tourism brings both benefits and challenges, the economic, environmental, and social costs of tourism must be carefully managed to ensure sustainable development. Greater local involvement, effective regulation, and educational initiatives for tourists are essential to address these challenges and promote a tourism industry that benefits both tourists and the local community. The interviews highlight the need for better coordination and communication among stakeholders to create a more sustainable and inclusive tourism industry as well as much more focused infrastructure and investment at the local level to be able to accommodate the expected larger visitors’ numbers in the coming years.

Conclusions and recommendations

Tourism in Ilulissat presents a multifaceted scenario with both opportunities and challenges. The town's unique Arctic environment and cultural heritage have made it a significant tourist destination, particularly following the UNESCO classification of the Sermeq Kujalleq Glacier Fjord. However, the rapid growth in tourism, that is planned to increase even further in the next few years, has brought about several socio-economic, environmental, and infrastructural issues.

The economic benefits of tourism are evident, providing job opportunities and stimulating local businesses. However, many locals feel that these benefits are not evenly distributed, with larger, often foreign-owned companies reaping the most significant profits. This has led to economic disparities and a sense of disenfranchisement among local businesses and workers. The seasonal nature of tourism further exacerbates economic instability for local workers.

Socially, the influx of tourists and foreign seasonal workers has created tensions within the local community. The lack of integration and cultural sensitivity among tourists and foreign workers has led to social divides and sometimes cultural insensitivity. The competition for resources, such as housing and employment, has also been known to further strain relations between locals and foreigners.

Environmentally, the increased number of tourists has put significant pressure on local infrastructure and natural landscapes. Waste management and the preservation of natural sites like the Ilulissat fjord are critical concerns. The construction of new infrastructure, such as the international airport, aims to accommodate more tourists but also poses challenges related to funding, capacity, and environmental impact.

Governance and policy issues also play a crucial role in shaping the tourism industry in Greenland. The top-down approach from the national government, with limited consultation with local communities, has led to a lack of coordination and communication between stakeholders. This has resulted in confusion and frustration among some of the locals that feel that plans for increase of visitors are not met with necessary investments in the infrastructure needed.

Based on the Ilulissat case the following recommendations have been highlighted:

Enhance Local Involvement: While increasing local ownership and participation in the tourism industry is crucial, there are significant barriers to achieving this. Local businesses often struggle to compete with larger, foreign-owned companies, and incentives alone may not be sufficient to overcome these challenges. Additionally, promoting local entrepreneurship requires substantial support and resources, which may not be readily available.
Improve Infrastructure: Investing in infrastructure is essential, but the reality is that Greenland faces considerable difficulties in this area. Building more hotels, improving waste management systems, and enhancing healthcare facilities require substantial financial investment and long-term planning. The remote and harsh environment further complicates these efforts, making it challenging to provide adequate infrastructure for both tourists and local residents.
Promote Cultural Sensitivity: Implementing educational initiatives for tourists and foreign workers is important, but there are inherent challenges in ensuring that these initiatives are effective. Cultural sensitivity and respect for local customs and traditions can be difficult to instil, especially among short-term visitors. Creating clearer guidelines and informational materials is a step in the right direction, but it may not be enough to foster genuine understanding and must also be adopted by tourism operators.
Strengthen Governance and Coordination: Better coordination and communication between national and local authorities, as well as between tourism operators and local communities, is necessary. The local levels often point out that they do not receive the necessary resources and support to accommodate the policies and plans of the national level.
Sustainable Tourism Practices: Encouraging sustainable tourism practices is vital to minimize the environmental impact of tourism. However, promoting eco-friendly activities, implementing strict waste management protocols, and protecting natural landscapes are challenging tasks. There is often a lack of awareness and commitment to sustainability and enforcing these practices requires robust regulatory frameworks and continuous monitoring.
Regulate Cruise Tourism: Implementing better regulations to manage the impact of cruise tourism would be beneficial. Setting limits on the number of cruise ships and passengers allowed to visit at any given time can be met with resistance from the tourism industry. Additionally, ensuring that cruise tourism contributes positively to the local economy while minimizing environmental and social disruptions requires careful planning and enforcement.
Address Economic Disparities: Developing policies to address economic disparities within the tourism industry is something that is frequently mentioned in Greenland. Providing support and resources for local businesses to compete with larger, foreign-owned companies requires significant investment and long-term commitment.

Box 1. The 10 Commandments of culturism in North Greenland
The 10 Commandments of culturism in North Greenland were created to address the impacts of increased tourism and ensure respectful and responsible behavior among tourists. These commandments emphasize the importance of respecting local people, their privacy, and the environment. They aim to foster positive interactions between tourists and residents, and to preserve the natural beauty and cultural heritage of North Greenland, promoting a sustainable and harmonious tourism industry. 1. Show respect for the people whose country you are visiting. 2. Behave as you would want tourists to do in your own town. 3. Talk to and not about the people you meet, try it! 4. Respect privacy, keep your distance from houses, only walk on roads and paths. 5. Ask permission before taking photos - any hesitation means NO. 6. Cairns are signposts, do not alter them. 7. Do not leave litter in nature - burn toilet paper on a rock. 8. In towns and settlements only allow tents on campsites. 9. Participate in city life, but always give space to the city's own citizens. 10. Do not approach dogs, they are working animals - not pets.

Box 1. The 10 Commandments of culturism in North Greenland

The 10 Commandments of culturism in North Greenland were created to address the impacts of increased tourism and ensure respectful and responsible behavior among tourists. These commandments emphasize the importance of respecting local people, their privacy, and the environment. They aim to foster positive interactions between tourists and residents, and to preserve the natural beauty and cultural heritage of North Greenland, promoting a sustainable and harmonious tourism industry.

1. Show respect for the people whose country you are visiting.

2. Behave as you would want tourists to do in your own town.

3. Talk to and not about the people you meet, try it!

4. Respect privacy, keep your distance from houses, only walk on roads and paths.

5. Ask permission before taking photos - any hesitation means NO.

6. Cairns are signposts, do not alter them.

7. Do not leave litter in nature - burn toilet paper on a rock.

8. In towns and settlements only allow tents on campsites.

9. Participate in city life, but always give space to the city's own citizens.

10. Do not approach dogs, they are working animals - not pets.

Source. KNR, 2007