1 Svalbard – the path ahead

1.1 Background for the new Report to the Storting on Svalbard

In order to lay the foundation for stable and predictable governance, the Government regularly presents white papers to the Storting, reviewing all aspects of the administration of Svalbard (Svalbard white papers). The first such comprehensive white paper was presented in 1975. Since then, the white papers have been presented every seven to ten years, with the fifth white paper being presented in 2016.

The Svalbard white papers signal the Government’s objectives and ambitions for the administration of Svalbard, which are anchored in the Storting via its consideration of the white papers. The practical follow-up takes place in the form of the implementation of specific measures and the Government’s continuous work on Svalbard-related matters. The Svalbard policy is composed of various policy domains, all of which are framed within the context of the five overriding Svalbard policy objectives. There is broad political support for these objectives, which were initially expressed in the Storting’s consideration of the 1985 white paper and which have remained a permanent fixture of policy ever since. All activities must be considered within the framework of these objectives.

The five overriding objectives of Svalbard policy are as follows:

• Consistent and firm enforcement of sovereignty

• Proper observance of the Svalbard Treaty and control to ensure compliance with the treaty

• Maintenance of peace and stability in the area

• Preservation of the area’s distinctive natural wilderness

• Maintenance of Norwegian communities on the archipelago

The white papers have contributed to establishing the frameworks for activities on the archipelago and have contributed to a harmonised development within the framework of these five overriding objectives. The objectives remained fixed. Consistent and predictable governance of Svalbard, in line with the objectives, contributes to security for the population and the maintenance of peace and stability in the region.

The developments since the presentation of the previous white paper in 2016 (Report Storting No. 32 (2015–2016) Svalbard) can be summarised as follows: As Longyearbyen has evolved from a coal-mining community to a more modern family community with a differentiated business sector, the composition of the population has changed. More people are residing in Svalbard than ever before. Svalbard is characterised by increased activity, not least in the form of ship-based tourism around the archipelago. There is growing interest in using Svalbard for research purposes, including from the international research community.

Climate change forms an important backdrop for the development and for several of the measures proposed in this white paper. Nowhere on the planet is warming faster than Svalbard, where temperatures are rising five to seven times faster than the global average. This is causing rapid changes in nature and increasing its vulnerability. With a warmer climate, Svalbard’s coastal areas have also become more accessible to cruise ships, fishing vessels and research vessels.

The security policy situation globally and in our immediate surroundings is characterised by greater precariousness and unpredictability compared to when the previous white paper was presented in 2016, and increased geopolitical tension originating outside the High North is now also being felt in our immediate surroundings. In the presentation of Report Storting No. 9 (2022–2023) National control and cyber resilience to safeguard national security, the Government laid out how the security policy situation necessitates forceful measures to safeguard national security throughout the country. The administration of Svalbard has always been associated with strong national interests. This is also reflected in this white paper, while at the same time proposing measures that further strengthen the degree of national control over activities in the archipelago.

In the formulation of Svalbard policy, as in all other policy domains, various considerations and interests must be assessed in context and weighed against one another. In Svalbard, this weighting of considerations and interests is carried out within the framework of the five overriding main objectives. For example, the objective of maintaining Norwegian communities on the archipelago must be met in a manner that is consistent with the objective of preserving the distinctive natural wilderness of the area.

Similarly, other considerations will also have to be weighed against one another. For example, the need for national control must be weighed against the need for value creation and social development. Risk acceptance and ongoing cost-benefit assessments will therefore be important elements in such assessments and in the formulation of Svalbard policy.

As in the previous white papers, this report will also describe objectives, challenges and possible measures for Svalbard and its territorial waters.

Illustrations: Norwegian Polar Institute

1.2 The way forward – the Government’s plans for Svalbard

The overriding objective of maintaining Norwegian communities on the archipelago is achieved through the local community in Longyearbyen. When the 2016 white paper was presented, it was clear that coal mining could no longer remain a cornerstone of Longyearbyen, and that the community was facing a necessary transition. Through the Storting’s consideration of this white paper, the continued development of existing activities such as tourism, research and higher education was facilitated, as well as broad and varied commercial activity, preferably involving year-round and stable jobs.

The restructuring of Longyearbyen has been successful in many ways. Today, Longyearbyen is a modern family community with a diverse business sector. In particular, the Longyearbyen-based tourism industry has developed in the direction of increasingly year-round activity. The Government will work to ensure that tourism continues to be a key pillar of the Longyearbyen community. This development shall be based on increased quality, rather than quantity, and in line with the environmental objectives set for the archipelago. Other industries, such as communications, the service industry and construction, also contribute to making Longyearbyen a community with a variety of enterprises. Furthermore, since its establishment in 1993, the University Centre in Svalbard (UNIS) has become an important actor in the development of the Longyearbyen community, and today it represents a significant contribution to the local community. The Government wants UNIS to be the sole provider of higher education in Svalbard. There have also been other valuable additions to Longyearbyen since the presentation of the previous white paper, including Svalbard Folk High School.

While activity in Longyearbyen has become more differentiated, the population has also grown and its composition has changed. There are currently just under 2,600 inhabitants in Longyearbyen, around 930 of whom (i.e. approximately 36 per cent) are foreign nationals from more than 50 different countries. Both services and infrastructure are under pressure.

The Government’s objective is for Longyearbyen to remain a viable family community, thereby contributing to meeting the objective of Norwegian communities on the archipelago. Although the number of children in school and kindergarten has increased in recent years, the average length of residence has somewhat decreased. The Government is concerned with ensuring that Norwegians regard Svalbard as an attractive place to live, and will introduce incentives to facilitate this aim.

Living in Longyearbyen offers access to unique nature and excellent opportunities for outdoor recreational activities. Permanent residents therefore have greater opportunities for travel and hunting than visitors. For example, permanent residents are permitted to drive snowmobiles in a broader range of areas than visitors, as the use of snowmobiles is important both for recreational activities and to be able to travel outside the local communities. It is also important that the inhabitants of Svalbard enjoy broad and diverse access to high-quality culture, as is the case in the rest of the country. A well-functioning cultural life contributes to residential quality and desirability. Longyearbyen-based tourism contributes to this aim.

Facilitating a family community with a diverse business sector is expensive, and the growth in population and activity entails an increase in costs. The Government will continue to facilitate a low tax rate. However, it is not desirable for Longyearbyen to grow beyond its current level, meaning that no development should be facilitated that would result in the need for major investments in infrastructure or expansion of services. Nor should the housing stock be expanded beyond the level prior to the avalanches of 2015 and 2017.

People from various countries have always been drawn to Svalbard, as evidenced by its rich history. Today, this contributes to making Longyearbyen a vibrant and diverse community, where foreign residents contribute valuable activity and labour, while gaining access to certain welfare and other services offered by Longyearbyen. Longyearbyen fulfils the main objective of Norwegian communities on the archipelago, and it is therefore important to strike a good balance between Norwegian and foreign residents. A good balance is also important for national control purposes, and it is important to monitor developments. National control is also one of the considerations underlying the Government’s decision in the spring of 2022 to introduce identity control and control of the movement of goods to and from Svalbard.

The Immigration Act does not apply to Svalbard. Thus, there is a distinction between residents who move directly to Svalbard from abroad and those who have a connection to the mainland, a distinction that, for example, impacts elections to Longyearbyen Community Council. Following amendments to the Regulations relating to Longyearbyen Community Council elections in 2022, persons who are not Norwegian nationals have the right to vote if they have been registered in the National Population Register as residents in a Norwegian municipality for the last three years before they were entered in the Population Register of Svalbard as resident in Longyearbyen.

Furthermore, residents with a connection to the mainland usually have insurance under the National Insurance Scheme, which is continued during their stay in Longyearbyen. Persons who are not insured under the National Insurance Scheme prior to their stay in Longyearbyen can only become insured if they are employed by a Norwegian employer, which entitles this group to full coverage for the duration of their employment.

Currently, the rate of employer’s National Insurance contributions in Svalbard is set to zero. The Government will continue this rate, but will consider whether the rate should be increased for Norwegian employers who employ persons who become insured under the National Insurance Scheme as a result of their employment in Svalbard. The Government will also consider increasing the rate for contributions from this group of employees. Furthermore, the Government is committed to ensuring orderly pay and working conditions for all employees in Longyearbyen, and will, by the end of 2024, present a proposal to make the Act relating to general application of collective agreements (the General Application Act) applicable to Svalbard.

In an Arctic context, Longyearbyen has a well-developed infrastructure. However, there is a significant maintenance backlog. The infrastructure is designed to serve a mining community, not today’s community or the significant number of tourists who have visited Longyearbyen since the early 1990s. A well-functioning infrastructure has been a fundamental prerequisite for the emergence of tourism activity, and thus also an asset. Therefore, the Government will draft legislation to introduce visitor fees for visitors to Longyearbyen. The revenue from the contributions will be earmarked for infrastructure and other public service expenses that are essential for tourism activity in Longyearbyen. Part of the revenue will be allocated to Longyearbyen Community Council.

Electricity and heating are of fundamental importance for the population and business development in Longyearbyen. The vast distances to the mainland underscore the importance of a stable security of supply. Until October 2023, the power supply in Longyearbyen was based on a coal-fired power station from 1983, supplied with coal from Mine 7. Today, power is supplied by diesel generators, although renewable energy is to be phased in as soon as possible.

Longyearbyen Community Council owns and operates the power supply in Longyearbyen, and is responsible for the energy transition. At the same time, the Norwegian company Store Norske is continuously working to develop its activities within the framework of Svalbard policy objectives and the State’s objectives as the owner of the company. The Government’s intention is for the State to take greater responsibility for power supply in Longyearbyen, e.g., through Store Norske, and to clarify responsibility for power supply as soon as possible.

The Government has commissioned Store Norske to carry out a concept study of the various alternatives for future power supply in Longyearbyen and a condition assessment of existing infrastructure.

This work is taking place in dialogue with Longyearbyen Community Council and other local actors. A tripartite collaboration has also been established between the Community Council, Store Norske and the University Centre in Svalbard (UNIS) with the aim of accelerating the development of renewable solutions for power supply in Longyearbyen while also facilitating new knowledge and business development. It is desirable that this collaboration continues and that the efforts relating to energy transition contribute to developing local competence and value-creating activity. Thereby, the transition work can provide valuable synergies for the local community.

As a result of the transition from coal to diesel, energy production costs have increased. In the updated 2023 budget, the Storting increased the allocation to Longyearbyen Community Council by NOK 50 million, based on a proposal from the Government. This increase is intended to contribute to reduced electricity prices in Longyearbyen. In the Revised National Budget for 2024, the Government proposed allocating an additional NOK 125 million for the same purpose, as well as NOK 42 million for investments in infrastructure that strengthen redundancy and security of supply for energy in Longyearbyen.

There have always been strong state interests related to infrastructure in Svalbard. In the white paper, the Government provides instructions for the use of publicly owned infrastructure to contribute to ensuring that it is used for purposes that support the objectives of Svalbard policy. The Government will also review the responsibility for critical infrastructure in Longyearbyen.

Business development is not an objective of Svalbard policy, but it is one of the means of achieving the overall objective of Norwegian communities on the archipelago. The current frameworks for the further development of Longyearbyen entail that the continued development of the business sector cannot occur in the form of increased volume, but rather as increased value creation.

A ban on heavy fuel oil has been introduced for all ships in Svalbard’s territorial waters, and the current Government has also amended environmental legislation to ensure that traffic occurs in line with the frameworks for the high environmental objectives for Svalbard. Among other things, restrictions have been imposed on where tourists are permitted to go ashore within the protected areas, as well as the number of passengers permitted on board ships that call at the protected areas. The Government has also held a public consultation on safety rules during field operations, which aim to make travel in Svalbard safer and more secure. In this white paper, the Government signals further measures to address the trend of increasing traffic on and around the archipelago. The Government will introduce a limit on the number of passengers on board cruise ships sailing in Svalbard’s territorial waters, and will also consider a limit on the number of cruise ships sailing in these waters.

The purpose of these amendments is the consideration for preparedness, as well as protection of the environment and fauna. At the same time, these changes will entail changes to the framework conditions for tourism and other business sectors, while also contributing to the protection of the unique nature on which the tourism industry bases its products. The Government is therefore seeking to ensure that future activities and development take place in line with the framework of the environmental objectives.

For many years, research and higher education have been an important focus in Svalbard. There is considerable interest in research on Svalbard within both Norwegian and international environments. Currently, Svalbard represents a successful platform for high-quality Norwegian and international research and is therefore an important part of national knowledge policy. At the same time, research and education are important components of Svalbard policy and contribute to fulfilling the overriding Svalbard policy objective, such as maintaining Norwegian communities on the archipelago.

As a follow-up to the 2016 white paper, a strategy for research and higher education in Svalbard has been prepared, which describes objectives and ambitions and sets the frameworks and general principles for research and higher education activities in Svalbard. Within the framework of this strategy, a separate research strategy has also been prepared for the Ny-Ålesund Research Station. The strategies are working as intended and will be continued.

In this white paper, the Government will describe the main principles applicable to research in Svalbard, based on the lines that have been drawn in these two strategies. The Government will also strengthen research management in Svalbard by establishing a Svalbard research office run by the Research Council of Norway and the Norwegian Polar Institute. While this will contribute to providing further good assistance to actors interested in conducting research in Svalbard, it will also strengthen national control of research activities.

Research in Svalbard makes very valuable contributions to the overall research frontier. However, research activity, in conjunction with other activities, also contributes to the overall strain on Svalbard’s vulnerable nature and fauna. Therefore, it is necessary to align such activities with the high environmental objectives for Svalbard. The Government will therefore continue the principle that research shall primarily be based in established local communities and research stations. Permits to establish new research stations or other major, permanent research infrastructure outside the land use planning areas should not be expected.

1.3 General information about Svalbard and the local communities

Svalbard has been part of the Kingdom of Norway since the Svalbard Act entered into force on 14 August 1925.

Svalbard is the northernmost part of Norway. The archipelago consists of Spitsbergen, Prins Karls Forland, Nordaustlandet, Kong Karls Land, Barentsøya, Edgeøya, Hopen, Bjørnøya and all islets and skerries within the coordinates 10 and 35° east longitude and 74 and 81° north latitude. With a land area covering 61,022 km², Svalbard accounts for approximately 16 per cent of the Kingdom of Norway’s total land area. Spitsbergen is the largest island in Norway and is about the size of Nordland and Troms counties, combined.

Map: Anders Skoglund, Norwegian Polar Institute

A contiguous continental shelf extends north from mainland Norway past Svalbard. Svalbard has a high-arctic climate, albeit relatively mild compared to other areas at the same latitude due to the Gulf Stream current. For the same reason, the archipelago has a very rich bird and animal life compared to other High Arctic areas.

Most of Svalbard consists of vast and pristine wilderness areas. Only seven locations are inhabited or have permanent activity or operations. As of 1 January 2024, the population of Svalbard was 2,993. This represents a decrease from 2023, primarily due to a decline in the population in Barentsburg and Pyramiden. Approx. 82 per cent of the population lives in Longyearbyen. There are no roads between the communities in Svalbard. Ny-Ålesund has an airport for short take-off and landing operations with flights to and from Longyearbyen.

Longyearbyen

As the administrative centre and hub for most of the activity on the archipelago, Longyearbyen is the largest community in Svalbard. Administration is discussed in more detail in Chapter 2 and activities are discussed in Chapter 4.

Today, Longyearbyen has a greater variety of enterprises and a different demographic composition in terms of age, gender and country of origin than a few years ago. The population fluctuates throughout the year. However, population growth has been the trend for the past 20 years. See Chapter 4 on community development and business activities in Longyearbyen.

Ny-Ålesund

Ny-Ålesund is the most northerly community in Svalbard and is located approximately 100 km north of Longyearbyen. As of 1 September 2023, there were 44 year-round residents in Ny-Ålesund, 29 of whom are employed by Kings Bay and 7 by the Norwegian Polar Institute.

Ny-Ålesund is a Norwegian research station with facilities for international scientific research collaboration. The Norwegian Polar Institute is in charge of the Ny-Ålesund Research Station and hosts the station. The Norwegian Polar Institute is also responsible for implementing and following up the research strategy for Ny-Ålesund.

Kings Bay AS, which is wholly owned by the Norwegian State, owns the land and most of the buildings. Kings Bay AS is responsible for power supply, water and sewage, harbour, airport, air transport, accommodation and catering, as well as various services to the research institutions. Kings Bay AS rents out accommodation capacity and access to research buildings and laboratories. Research institutions from ten different countries are present in Ny-Ålesund with fixed rental agreements. In addition, there are visiting researchers from all over the world throughout the year. Every year, universities and research institutions from around 20 countries conduct research projects in Ny-Ålesund.

Barentsburg

Barentsburg is located in Grønfjorden. The mining company Trust Arktikugol owns most of the land in the planning area and operates a coal mine at the site. As of January 2024, 354 residents were registered in Barentsburg. Barentsburg and Pyramiden are structured according to a company-town model.

In recent years, tourism and research have been added as new activities in addition to mining. The Russian Academy of Sciences has long had a research centre at the site.

Russia has a consulate general in Barentsburg.

Pyramiden

The former mining town of Pyramiden is located in Billefjorden. The site is operated by Trust Arktikugol, which is also the landowner of the site. Pyramiden was abandoned as a mining town in 1998. Trust Arktikugol has upgraded the site for use in tourism, among other things. A hotel is currently staffed and open during parts of the year. At the start of 2024, 12 people were registered as living in Pyramiden.

Hornsund

Hornsund is a fjord in South Spitsbergen National Park, and in the 1950s a research station was built in Isbjørnhamna on the north side of the fjord. There has been year-round activity at the station since 1978 under the auspices of the Institute of Geophysics of the Polish Academy of Sciences. The number of researchers at the site varies, but there are ten permanent staff members year-round.

Bjørnøya and Hopen

Geographically, Bjørnøya is located almost exactly halfway between the mainland and the southern tip of the island of Spitsbergen. The meteorological station on the island has nine permanent staff members year-round. Hopen is an island approximately 100 km southeast of Edgeøya. The meteorological station on the island has four year-round staff members. Both Bjørnøya and Hopen and their adjacent territorial waters are protected as nature reserves.

Sveagruva

Sveagruva (hereinafter referred to as Svea), located at the innermost part of Van Mijenfjorden, was originally built by the Swedish company AB Spetsbergens Svenska Kolfält in 1917. In 1934, the property and mining facilities were acquired by Store Norske Spitsbergen Kullkompani (Store Norske). In the summer of 2015, the Norwegian State acquired both the land and buildings in Svea from Store Norske.

From 2002 to 2016, the Svea Nord mine, the largest mine in Svalbard, was in regular operation. The plan was to continue operations in Lunckefjell, however, due to low coal prices, operations at Lunckefjell and the rest of the mining facility in Svea were initially suspended. In connection with the Storting’s consideration of the National Budget for 2018, the decision was made to discontinue mining operations at Svea and Lunckefjell, and that the area would be cleaned up for the future.

Photo: Store Norske Spitsbergen Kulkompani

The work of cleaning up Svea and Lunckefjell is one of the most ambitious environmental projects in Norway. All infrastructure and waste have been removed, including roads and buildings, with the exception of four protected buildings. Materials are deposited so that the glacier surface and mountainside appear unaffected. The protected buildings owned by the Norwegian State represented by the Ministry of Trade, Industry and Fisheries will be used by UNIS for research and teaching. Store Norske has been the responsible client for the cleanup project. The last part of the project was completed in the autumn of 2023, and the project will be handed over in August 2024.

Hunting stations

Some hunting stations are or have recently been in operation in Svalbard: Akseløya in Van Mijenfjorden, Kapp Wijk in Isfjorden and Farmhamna in Forlandsundet.