REGIONAL COUNCIL OF LAPLAND NPP 2020 the gateway to the Arctic? Arctic Dimension in the Northern Periphery Cooperation Paula Mikkola 26.3.2014 Arctic Dimension in the Northern periphery cooperation, preparatory project, 1.10.2012-8.7.2013, final content report
Executive Summary Northern Periphery cooperation can add a regional level to EU Arctic policy. The programme area covers the Arctic areas of the European Union. At the beginning of a new EU programme period, it will be necessary to envisage how the new NP programme can contribute to the EU Arctic policy and where the Northern Periphery Programme wants to be in 2020. This paper is the content report of the NPP preparatory project Arctic Dimension in the Northern Periphery Cooperation which was implemented during 14.9.2012-8.7.2013. The project included partners from the programme s Arctic states Finland, Sweden, Norway, Iceland, and Greenland as well as from Scotland who also covered the programme s regions in Northern Ireland and Ireland. The project aimed to get an overview of present level of Arctic cooperation in the NPP area and to identify opportunities for improving and enhancing regional impact in future Arctic cooperation. The project sought answers to three specific questions: 1) how should the Arctic dimension be included in the future NP cooperation programme; 2) should Arctic cooperation be promoted by choosing the EU theme Institutional capacity building and efficient public administration as one of future priorities in the NP programme; and more specifically, 3) does the idea of establishing an Arctic Think Tank win support and could it develop into a main project proposal in the future NP programme under priority Institutional capacity building and efficient public administration. This report summarizes the reported findings from different project areas. It reveals that the list of Arctic actors is constantly increasing as new actors emerge all the time. The project also concludes that partner countries have different approaches to Arctic cooperation and to the roles of national and regional actors in this context. However, the common challenges of Northern periphery cooperation, sparse population, peripherality, insularity and harsh conditions also apply to Arctic cooperation. On the regional level, considerable experience in relation to Arctic cooperation has already been established but some partners are under- used, and there are regions that would benefit from capacity building activities. Northern periphery programme 2006-2013 has already focussed on cooperation themes which are also relevant in the context of Arctic cooperation, such as the strengthening of regional competence and expertise, the promotion of region- specific industries, the concern for vulnerable environment and for the effects of climate change. The project also clearly points out the need to ensure that the new programme does not become too overly focused on securing an Arctic imprint on the cooperation and thus risk becoming exclusive to some areas. The project s findings also conclude that a more collaborative approach between territorial cooperation programmes that cover the Arctic region would benefit the NP activities and strategic objectives. During the implementation, the preparatory project has provided regular input to the NPP Programme Planning Group in the process of drafting the contents of the new transnational programme for the period of 2014-2020. 1
Contents 1. Introduction 3 2. Definition of the Arctic 4 3. Mapping Arctic actors 5 3.1 Conclusions 6 4. Reviewing Arctic strategies 7 4.1 Background 7 4.2 EU Arctic Strategy 8 4.3 Finland 9 4.4 Greenland 11 4.5 Iceland 13 4.6 Norway 16 4.7 Scotland, Northern Ireland and Ireland 16 4.8 Sweden 18 4.9 Other relevant Arctic countries 20 4.9.1 Russia 20 4.9.2 Canada 21 4.9.3 Faroe Islands 22 4.10 Conclusions 23 5 Expectations and interest for Arctic cooperation 24 5.1 Background 24 5.1.2 Finland 24 5.1.3 Greenland 25 5.1.4 Iceland 26 5.1.5 Norway 27 5.1.6 Scotland, Northern Ireland and Ireland 28 5.1.7 Sweden 31 5.2 Conclusions 32 6 An Arctic Think Tank 33 6.1 An Arctic Think Tank in the NP programme? 33 6.1.2 Finland 33 6.1.3 Iceland 34 6.1.4 Norway 36 6.1.5 Scotland, Northern Ireland and Ireland 37 6.1.6 Sweden 38 6.2 Conclusions 39 2
1. Introduction The Northern Periphery Programme (NPP) aims to help peripheral and remote communities on the northern margins of Europe to develop their economic, social and environmental potential. The diverse regions of the programme area (map below) share common features such as harsh climate conditions, sparse population and remoteness. Transnational cooperation provides opportunities for finding new ways to address shared challenges and explore new opportunities. Picture 1. Map of NPP regions. The NPP covers large areas of the European Arctic region which is regarded as a strategically important area in the future, especially with regard to the supply of raw- materials. The NPP has built strong partnerships and networks in this area during the previous programmes, and they form a strong base for future cooperation. A next step could be an orientation towards a larger geographic dimension (e.g. Russia, Canada, China) under the Arctic umbrella. This paper is the content report of the NPP preparatory project Arctic Dimension in the Northern Periphery Cooperation which was implemented during 14.9.2012-8.7.2013. The Lead partner of the project was Regional council of Lapland, and other partners were Region Västerbotten from Sweden, Nordland County Council from Norway, The Icelandic Regional Development Institute, Greenland Businessa, and Highlands and Islands Enterprise 1 from Scotland who also secured contribution from the programme regions in Northern Ireland and Ireland. The purpose of the project was to get an overview of on- going Arctic cooperation in the NPP area and to build basis 1 the research was carried out by the European Policy Research Centre at the University of Strathclyde 3
for improving and enhancing regional impact in future Arctic cooperation. The project sought answers to three specific questions: 1) how could the Arctic dimension be included in the future NP cooperation programme; 2) should Arctic cooperation be promoted by choosing the EU theme Institutional capacity building and efficient public administration as one of future priorities in the NP programme; and more specifically, 3) does the idea of establishing an Arctic Think Tank win support and could it develop into a main project proposal in the future NP programme under priority Institutional capacity building and efficient public administration. To operationalize the work, the preparatory project was divided into workpackages with concrete goals, such as a) to make lists of Arctic actors in respective countries; b) through desk research find out strategies which have an Arctic dimension in different countries; c) to examine the specific expectations and interests that actors have in the Arctic cooperation in order to clarify where and how the new NP programme could contribute; d) to investigate whether an Arctic think tank idea would win support among the actors and advocate the inclusion of thematic objective 11 institutional capacity building and efficient public administration as a specific priority in the new programme. 2. Definition of the Arctic Arctic is a term that is widely used but variously understood. There are numerous definitions of the Arctic region. Arctic is often related to geographical regions with natural resources, traditional ways of living and indigenous people. See some of the definitions below. 1) Geography: Arctic area consists of eight countries which are on the Arctic Circle or lie north of it. The southern limit of the arctic region is the Arctic Circle 66 33'N and north of 62 N in Asia and 60 N in North America, modified to include the marine areas north of the Aleutian chain, Hudson Bay, and parts of the North Atlantic Ocean including the Labrador Sea (AMAP). Other definitions include a wider Circumpolar region, taking the 55 N circle as the diving line. This definition covers most of the NPP area with the exception of Ireland and Northern Ireland (EPRC final report, p. 9). 2 2 van der Zwet, A. et al (2013) The Arctic Dimension in the Northern Periphery: Perspectives from Scotland, Ireland and Northern Ireland, final report, European Policies Research Centre and Integritas Liaison, July 2013 4
2) The population of indigenous peoples (some 40 different ethnic groups) living in the circumpolar north. 3) Scientific definitions based on climatic conditions (e.g. the warmest month s average temperature does not exceed +10 C), soil types or vegetation (northern tree line), the extent of permafrost on land and the extent of sea ice in the ocean. 4) Environmental definitions based on the Circumpolar Protected Areas Network (CPAN) reflect the region s biodiversity, ecological and conservation issues. 5) Jurisdictional or administrative boundaries defined in political agreements (e.g. Arctic council, Northern Dimension). 6) Descriptive meaning: icy, cold, snowy, windy; Synonyms: High North, Northern Dimension, Global North. Arctic has gained more prominence in the Northern Periphery cooperation and it should somehow engage every region of the program. Therefore it will be necessary to find the common interests that unite the program area. A definition of the Arctic in the context of the future NP programme refers to the people living under harsh climatic conditions in remote and peripheral areas, and finding innovative solutions to the challenges that are caused by the circumstances. An Arctic dimension in the programme will also open opportunities for the regions to cooperate with similar areas outside the European region. Cooperation with Canadian and Russian territories which are closest to the NPP, the nearest neighboring regions, would seem most relevant in the future. These regions share the common challenges and many of them already have established contacts to the NPP area which will facilitate cooperation in the future. On the Russian side, the main interest lies in developing future NPP cooperation within the Euro- Arctic area of the Russian Federation, which refers to the regions which are nearest to the Northern European area. 3. Mapping Arctic actors For future Arctic cooperation in the NP programme, it will be necessary to locate and identify actors who are either already involved in Arctic activities or have a vested interest in developing cooperation in the Arctic. Each preparatory partner area compiled their own list of actors which were shared among the partners. Some partners registered the actors by relevant sectors which include public administration, research and education, business (broken down by sectors when necessary), civic organizations, 5
previous NPP project partners, etc. The mapping became a particularly extensive exercise in Greenland and in Iceland, where one can label any actor Arctic. On the other hand, the Arctic Centre in Lapland had recently published a survey of Arctic actors in Finland as part of the development of Finland s Arctic Strategy, and the project could add to this material. In Scotland, Ireland and Northern Ireland a snowballing methodology was used, meaning that identified organisations were asked whether they knew other organisations in their region that are interested or have a potential interest in Arctic cooperation issues. 3 3.1 Conclusions New actors are coming along all the time and therefore it is nearly impossible to compile an exhaustive list. The project plan was to publish the actors lists on the NPP web site but as permission to do this will be required from the actors, the project decided to keep the lists for internal use only. They will provide a good overview of potential project partners for the Regional Contact Points in the future programme when organizing partner search or targeted marketing activities, for example. This exercise increased partners awareness of the fact that different Arctic actors roles were not clear. It became evident that many important decisions concerning development issues in the Arctic are made outside the NP area, often on a national or transnational level. It will be an additional challenge to get the regional and local levels, and especially the private sector, involved and engaged in the Arctic cooperation. This also requires that coordination and awareness of activities between the different actor levels is improved. The exercise also raised some concerns about how much difference the future NP programme could make. The lists of Arctic actors were utilized by the project partners to carry out targeted questionnaire surveys and focus group discussions in respective areas, in order to capture a range of views on future Arctic cooperation. These results are reported in chapters 5 and 6. 3 van der Zwet, A. et al (2013) 6
4. Reviewing Arctic strategies 4.1 Background The Ottawa Declaration of 1996 formally established the Arctic Council as a high level intergovernmental forum to provide a means for promoting cooperation, coordination and interaction among the Arctic States, with the involvement of the Arctic Indigenous communities and other Arctic inhabitants on common Arctic issues, in particular issues of sustainable development and environmental protection in the Arctic. The council is a forum for soft issues, thus security policy related issues are not discussed there. 4 An area analysis of major political, economic, social, technology and environmental trends in the Arctic was prepared by the University of Turku as background material for a foresight study in the SMARCTIC project 5, and it gives a good introduction to the main driving forces in the Arctic development. Many of these same trends feature also in the national strategies with different accentuations: Political trends Growing interests for the Arctic from Russia and countries outside the traditional Arctic area Increasing importance of the Northern dimension and the Arctic area in the EU Globalization and shift towards a multipolar economy Importance of global governance incl. the Arctic Council and the UN Economic trends Growth in global economy Rising prices in the world market especially for exhaustible raw- materials Internationalization and development of the network economy Mobility in labor market and in tourism Social trends Increase in world population Demographic change towards the majority of elderly in the society Development of service economy, rapidly growing demand for welfare services 4 www.arctic- council.org 5 SMARCTIC in a Nutshell: The SMARCTIC project formulates a roadmap toward maintaining and further developing the Finnish Arctic expertise. The project will evaluate how the principles of sustainable development and human well- being shall be realized in future natural resource exploitation projects and when taking advantage of new transportation routes. It will also evaluate the capacity for industrial renewal and assess new business potential. (source: http://www.taloustieteet.oulu.fi/tiedekunta tutkimus/yksikot/markkinointi/logistiikka/smarctic) 7
Development of multi- cultural societies Social imbalances become more common Growing importance of social media, web- based e- democracy Technological trends Growing importance of resource- and eco- efficient technologies and systems Demand for special technologies applied to the Arctic environment Growing importance of bio- economy and bio- technologies Digital evolution and transition of ubiquitous technology Technology convergence Environmental and sustainable development trends The development of new global transportation corridors and increasing logistics in the North Climate change poses challenges to energy supply, economical structures, and consumption patterns Environmental awareness is growing More focus on the rights of the indigenous peoples. During the preparatory project, the partners mapped relevant strategies, policies, and agendas that relate to Arctic development issues in their own countries. The purpose of this exercise was to find themes which seem to appear most often in national and regional strategies, and establish the areas of activity which seemed most relevant for NP cooperation. The reports from the different partners are accounted in the following chapters. 4.2 EU Arctic strategy The European commission adopted its first communication on the Arctic in November 2008. The European Union and the Arctic Region proposed actions based on three main policy objectives: protecting and preserving the Arctic in unison with its population; promoting sustainable use of natural resources; and contributing to enhanced governance in the Arctic through implementation of relevant agreements, frameworks and arrangements, and their further development. In 2012, the European Commission and the High representative of the European Union for Foreign Affairs and Security Policy issued a joint communication about Developing a European Union Policy towards the Arctic Region: progress since 2008 and next steps 6. This communication highlights three key policy areas: 6 available at http://eeas.europa.eu/arctic_region/docs/join_2012_19.pdf 8
1. EU should support research and channel knowledge to address the challenges of environmental and climate changes in the Arctic. The communication emphasizes close cooperation with main research institutions, such as Norsk Polarinstitutt in Tromsö and Arctic Centre in Rovaniemi. Research should investigate how the Arctic is adapting to the societal and economic consequences of climate change. It presents also an Arctic Research Initiative which should secure that in all EU Research programs which are implemented during 2014-2020, there is sufficient funding available for this. 2. EU should act with responsibility to contribute to ensuring economic development in the Arctic is based on sustainable use of resources and environmental expertise. EU should invest in Arctic cooperation programs and partnerships. Entrepreneurship and Arctic start- ups should be encouraged, investments promoted and sufficient education provided. One should also invest in developing technology which is suitable for Arctic conditions, developing Arctic competence in sectors such as mining and marine industry, machine industry, port and transport technology, and navigation and surveillance systems along Arctic transport routes. International standards of sustainability must be applied and environmental impact assessments utilized in Arctic megaprojects. 3. EU should intensify constructive engagement and dialogue with Arctic States, indigenous peoples and other partners. Regular dialogues with indigenous peoples in the Arctic have already started. Another goal is to secure a wider civil society engagement in Arctic cooperation. EU s Northern Dimension policy involves Norway, Iceland, and the Russian Federation as well as a number of other actors, and with Canada and US as observers. Many priorities in the Northern Dimension policy have similar ambitions as the Arctic policy, e.g. environmental protection, social well- being but it also has a specific focus on cross- border and transnational cooperation with Russia. 4.3 Finland Finland is currently reviewing her Arctic strategy, and a revised strategy will be published in summer 2013. 7 The project has had access to strategy drafts and attended the public hearing which was arranged in Rovaniemi on March 15, 2013. The main statement of the new strategy is that whole Finland is an Arctic area. The overall aim is that Finland will be an active Arctic actor, who can in a sustainable way combine the prerequisites of the Arctic environment and Arctic business opportunities by capitalizing from international cooperation. One of the leading ideas in the strategy is to ensure a good life for the people in the northern societies. When promoting the development in the Arctic, special attention should be 7 The strategy was ratified by the Finnish Parliament on 23 August 2013 and can be found from: http://valtioneuvosto.fi/tiedostot/julkinen/arktinen_strategia/suomen_arktinen_strategia_fi.pdf 9
paid not only to material prosperity but also to social sustainability. Especially, one should respect the rights and traditions of Finland s indigenous people, the Sámi. Finland emphasizes the central role of the Arctic Council as the political coordinator of development in the Arctic. Finland will participate actively in the work within the Arctic Council, develop cooperation with Arctic institutions, and take part in other international negotiations about legislation issues. Two sectors of cooperation receive special attention in the new strategy. The following gives brief descriptions of these objectives: Education and research Finland recognizes the need to set up new multi- scale, multidisciplinary and international networks in Arctic research in order to secure reliable and sufficient data supply about the development in the Arctic areas. There are several strong thematic centers of excellence and networks which are interesting in the Arctic context such as the wood research pilot center of Eastern Finland, the NorNet network the Oulu University, the Future mines program in Northern Finland (NorMin), and the EU Arctic Information Centre initiative at the Arctic Centre in Lapland. The role of the universities of applied sciences should be clarified in the Arctic research networks. It is also important to invest in education and training in order to strengthen Finland s contribution to Arctic competence. Universities and other education institutions will offer Arctic research programs and Arctic research projects. Arctic research conveys an important societal dimension. Finland can excel in research dealing with monitoring the state of the environment, the utilization of natural resources, or collecting long- term environmental research data. Business opportunities in the Arctic Finnish versatile competence in managing Arctic conditions and developing solutions to them is well- known. Special attention should be paid to transferring competence and experience into businesses, and to seizing the opportunities which are emerging in the Arctic. The utilization of natural resources and the areal planning should protect the biodiversity of the area, and to secure the eco- system services. The strategy lists more than 30 potential sectors which are relevant for Arctic business development. Many of them are common to other Northern or North Atlantic countries and the strategic objectives of these sectors include the following: Over the years, Finland has obtained structure and material competences which are attractive for construction schemes in the Arctic. Thus, Finnish interest is more on the infrastructure investments in logistics and port services, as well as in maintenance and support services than in actual oil and gas extraction. In addition, Finland has expertise in 10
energy efficiency, district heating networks, renewables, combined heat and electricity production, building and maintaining electricity grids, and distributed systems. Finland s objective is to become a global leader in eco- efficient mineral industry by 2020, and has adopted a specific Green Mining program to implement this. In order to secure the eco- efficiency of operations, there is also need for long- term monitoring and research of the environmental impacts caused by excavating operations. Increasing economic activities put additional strain on the environment and therefore waste management, resource efficiency, and environmental technology become important challenges especially for small communities in the Arctic. Global climate change opens new opportunities for tourism. The competitiveness of Arctic tourism is built upon the unique nature, sustainable use of the environment, respect for the local culture and tradition, security and risk prevention. Long distances and sparse settlements bring challenges to the security and risk management in tourism. These challenges are common to all Arctic areas, and in order to meet the increasing demand from foreign markets, joint solutions and security procedures should be developed. Finland is a world leader in Arctic shipbuilding, marine and offshore technology, and winter navigation. Finnish ice- breakers, special offshore vessels, and engineering companies specialized in designing and developing marine logistics and offshore industrial solutions in the Arctic areas are well- known. The exports of these sectors should be promoted. Finland s objectives include also the development of preparedness to act in Arctic conditions and the quick response in S&R operations, the development of better safety and environmental measures for shipping as well as the prevention of environmental hazards in the Arctic. 4.4 Greenland Greenlanders live in the Arctic, and therefore do not have an explicit Arctic strategy as such. But in all national strategies (labor market, business, ICT, education, development etc.) it is emphasized that they shall prepare for and be ready to benefit from the increased focus on the Arctic and the new possibilities they are facing in a not so distant future. In 2011 the Foreign Minister of Denmark presented the Arctic strategy 2011-2020 of the Kingdom of Denmark. It had been prepared by the Danish government and the governments of the Faroe Islands and Greenland. The main goals of the Arctic strategy are to ensure a peaceful, secure and safe Arctic, with sustained economic growth and development, with respect for the vulnerable Arctic climate, environment and nature, and in close cooperation with their international partners. A press announcement released along with the strategy stated: The Arctic strategy will make it possible for the three parts of the Kingdom to address the challenges in a coordinated way. It will be to the benefit of the entire Kingdom, to the peoples in the Arctic and to our businesses. We 11
must now make certain that the strategy is implemented and consistently followed up. We will achieve this by pursuing the constructive cooperation between all three parts of the Kingdom. The reason is the rapid change in the Arctic, primarily climate change and the melting ice. The Arctic is opening up to the world. This means new challenges and new opportunities: How we handle the consequences of the melting ice? How can we use the resources in the Arctic - oil, gas and minerals? How do we at the same time protect the fragile Arctic nature and environment? How do we ensure the best possible safety of shipping in Arctic waters, which is increasing as the ice melts? And how do we secure the living conditions of the Arctic peoples? That is what the strategy seeks to answer 8. In June 2012, Greenland and the EU signed an agreement on Raw materials. At that occasion European Commission Vice President Antonio Tajani, Commissioner for Industry and Entrepreneurship, said: "... We now should be able to move quickly ahead to ensure better access to minerals for EU industry with the signing of further agreements on concrete projects. This co- operation offers a win- win solution for both parties. For Europe this means, that we can make sure that Europe s industry will be able to continue to play a leading role in new technologies and innovation.'' 9 At an international level Greenland discuss most Arctic related issues in the framework of the Arctic Council. 4.4.1 Recent development Minerals, oil and gas are very hot topics in Greenland these years. An iron ore mine project with Chinese investors will most likely start up within the next couple of years. Canadian investors are planning to open a ruby mine. Australian companies are only a couple of months away from submitting a proposal for opening up a Rare Earth Elements mine (REE). Approximately 40 % of all known REE are in Greenland. Other projects with Molybdenom, diamonds, zinc, gold and uranium are also at an advanced stage. Many of the well- known oil companies have obtained licenses to drill for oil. So far only the Scottish company Cairn Energy has conducted test drillings, spending almost 1 billion euros in 2010-2011. The tests showed traces of oil, but so far not enough to be commercially viable. All experts are certain that there are huge deposits of oil and gas around Greenland, but it can be difficult to find. So far around 10 test drillings have been conducted. In Comparison it took 50 test drillings in the North Sea, before the right spot was hit. Greenland is now mostly concerned how they in the best possible way can benefit from the presence of huge multinational companies extracting minerals and in the future oil and gas from the Greenlandic subsoil. Greenland does not want to be are merely onlookers to the 8 (Source: http://um.dk/en/news/newsdisplaypage/?newsid=f721f2cb- AFF1-4CF7- A3E7-14FDA508690A). 9 (source: http://europa.eu/rapid/press- release_ip- 12-600_en.htm). 12
development, so the top priority at the moment is education. Around 20 % of our GDP is currently allocated towards education. 4.5 Iceland In September 2009, the report Iceland in the High North was published by the Icelandic Ministry of Foreign Affairs (Utanríkisráðuneytið, 2009). It defined Iceland s position and status in the Arctic. The document s six key headings included international cooperation; resource development and environmental protection; transportation; people and cultures; and international cooperation in research and monitoring. The emphasis was on international, multilateral Arctic and northern cooperation, mostly referring to neighboring countries Greenland and Faroe Islands, but also including the Barents Euro- Arctic Region (BEAR) and the Arctic Council. Furthermore, the Report clearly indicates that there is a strong focus on the High North (Arctic) in Iceland s foreign policy and that has become one of the key priority areas. A Parliamentary Resolution on Iceland s Arctic Policy was approved by the Icelandic Parliament in March 2011. Overarching policy of the Arctic aimed at securing Icelandic interests with regard to the effects of climate change, environmental issues, natural resources, navigation and social development, as well as strengthening relations and cooperation with other states and stakeholders in the issues facing the region. The main principles of the Parliamentary Resolution 10 can be summarized as follows: 1. strengthen cooperation with other states, particularly with the Faroe Islands and Greenland, promote and strengthen the Arctic Council, and resolve differences on the basis of United Nations Convention on the Law of the Sea (UNCLOS). 2. secure Iceland s position as a coastal State within the Arctic region, and promote understanding that the Arctic region extends both to the North Pole area and to the Northern part of the Atlantic Ocean. 3. prevent human- induced climate change and its effects in order to improve the wellbeing of Arctic residents and their communities, and preserve the unique cultures, life and rights of Northern indigenous peoples. 4. safeguard broadly security interests in the Arctic region through civilian means and by working against any kind of militarization of the Arctic. 10 (source http://www.mfa.is/media/nordurlandaskrifstofa/a- Parliamentary- Resolution- on- ICE- Arctic- Policy- approved- by- Althingi.pdf) 13
5. increase consultations and cooperation at the domestic level in Arctic issues to ensure increased knowledge, democratic discussion and solidarity in the implementation of the Government s Arctic policy. Considerable progress has been made in Arctic affairs since Althingi's agreement on Iceland's Arctic policy. Bilateral communications with other Arctic countries have improved and the foundations for scientific research in the Arctic have been strengthened. The Arctic Council has become a more effective decision- making forum in matters concerning the Arctic region, and its permanent secretariat has now been established in Tromsö, Norway. Two Arctic council working groups, Conservation of the Arctic flora and fauna CAFF, and Protection of Arctic marine environment PAME, are hosted by Akureyri in Northern Iceland. Iceland will open a diplomatic mission in Nuuk Greenland in 2013. The Greenland- Icelandic Chamber of Commerce has been founded and the Faroese- Icelandic Chamber of Commerce was founded last autumn. The opening of an international rescue coordination centre in Iceland is being prepared. The preparation for the cooperation of Iceland, Norway and Greenland in providing services to the energy triangle (area from North- Eastern Greenland to the Jan Mayen Island and south of Iceland) is well on its way. The Icelandic Arctic Cooperation Network (IACN) was officially launched on the 7th of February 2013 with the signing of an agreement between the Icelandic Ministry for Foreign Affairs and the IACN at the research center Borgir, Akureyri. The main aim of the IACN is to increase the visibility and understanding of Arctic issues and create a link between the institutes and individuals working on those issues in Iceland. The founders of the IACN are University of Akureyri, Stefansson Arctic Institute, Polar Law Institute, University of Akureyri Research Center, Northern Research Forum, Icelandic Centre for Research (RANNIS), Icelandic Tourism Research Centre, Arctic Portal and the two Arctic council s Working Groups hosted by Iceland; CAFF and PAME. The Network constitutes a link between private enterprises and institutes from all over Iceland with the common cause of working on arctic matters 11. A new professorship in the field of Arctic studies at the University of Akureyri has been established, named after the Norwegian explorer Fridtjof Nansen. The professorship is based on an agreement between Iceland and Norway on co- operation in Arctic scientific research. The agreement furthermore includes setting up funds for student exchange and workshops for Icelandic and Norwegian experts. Icelandic institutions take part in the multinational project which is assessing transportation infrastructure in the High North on behalf of the Arctic Council's Sustainable Development 11 (source: http://www.mfa.is/news- and- publications/nr/7535) 14
Working Group. A meeting in Reykjavik, 3-6 December 2012 gathered some 70 arctic transportation experts representing aviation-, marine- and harbor authorities from the Arctic Council member states. The focus was on response capacity and sustainable development in the Arctic. Arctic ports and airports serve as an important base for response, acting as a gateway to support SAR, resource extraction and development activities, pollution prevention and environmental safety, and community health and security. The development of transportation infrastructures in the Arctic will continue after the results of the Reykjavik meeting have been presented to the Arctic ministers in Kiruna 2013. France and Iceland have agreed to reinforce their cooperation on arctic matters. The cooperation entails that Icelandic scientists will be invited to French research stations in Svalbard and Antarctica, while French experts will be welcomed as guest lecturers at the University of Akureyri, as part of an extended collaboration between the University of Akureyri and the Institute Curie in Paris. Furthermore, Icelandic scientists will be invited to participate in projects on economic and social effects of climate change in the high north, and a joint symposium on the governance of the Arctic will be organized in the autumn 2013 in Paris. The Foreign Minister has ratified an agreement of cooperation in Arctic affairs between Iceland and Russia. The countries will continue to monitor the development of sea and air traffic in the region, with specific focus on Trans- Arctic sailing routes and the development of port infrastructure. The agreement also outlines the development of academic links between institutions and universities in Iceland and Russia. Both nations declare their intention to further develop cooperation within the Arctic Council, and the need of the Council to ensure the safety of sailors when sea traffic in the Arctic increases. Both nations will encourage further international cooperation in environmental protection and pollution issues in the Arctic region. The declaration highlights the shared national interests of Iceland and the Russian Federation in the Arctic. It also calls for a greater cooperation through other forums such as the Arctic Council and the Barents Euro- Arctic Council, as well as through bilateral meetings and agreements. The main sectors implementing the Arctic strategy include service companies; transports, hospitals, contractors and harbors. One of the current Arctic hot issues is that Iceland could play an important role in the opening of a Trans- Arctic Shipping Route and serve as hub for container traffic, because of its location in the middle of the Northern Atlantic. 12 Arctic Services is a joint initiative of companies and institutions in the Akureyri region. It was founded as a common platform for industrial and technical service providers, research facilities, engineering companies, aviation services and public utilities in the area. The main objective of Arctic Services is to promote 12 (source: http://www.mfa.is/media/utgafa/breaking_the_ice_conference_report.pdf.) 15
the high service level and infrastructure available for those involved in exploration, oil search and mining in the Arctic region. 4.6 Norway The Norwegian High North strategy was delivered in 2006 and it is the oldest of its kind. An additional document has been presented, including a white paper in 2011. It is stated that the High North is Norway s number one foreign policy priority. However, it should be noted that the strategy also have a function in domestic politics and a substantial part of the funds for implementing the strategy are to be found, not in the Ministry of Foreign Affairs but on other ministries budgets. The Norwegian strategy has been active for six years and a lot of initiatives, sub- themes etc. have been added. However, the main strategy is still in place. Cooperation is a vital part of the Norwegian strategy and is traceable on international, national and regional level. This includes cooperation with NATO, UN bodies and Arctic Council on one hand, and Barents cooperation, Nordic council of Ministers and Arctic Dimension on the other. Cooperation with Russia holds a special position. The basic strategy, which still is in operation, states three overarching principles for Norway in the High North; presence, activity, and knowledge. The main objectives are: 1. To exercise authority in a credible, consistent and predictable manner. 2. To be at the international forefront in developing knowledge in and about the High North. 3. To be the best steward of the environment and natural resources in the High North. 4. To provide a framework for further development of the petroleum industry in the Barents Sea and national and regional effects of this. 5. To safeguard indigenous peoples livelihood, history and culture. 6. To develop further the people- to- people relations in the north. 7. To strengthen the cooperation with Russia. 4.7 Scotland/Northern Ireland/ Ireland In the UK several high- level meetings and conferences have taken place to discuss Arctic issues. The UK Government considers that it would be inappropriate for the UK to develop an Arctic strategy because the UK does not have Arctic jurisdiction. Furthermore, by developing a formal Arctic strategy the UK would be obliged to commit itself to the actions and goals set out, potentially leaving it open for criticism if these are not met. Instead, the UK regards itself as the 16
Arctic s closest neighbour. As such, the UK Government recognises the importance of making its Arctic policies more accessible and aims to publish a policy framework for the Arctic in 2013. The policy framework will bring together the Government's views and actions on the UK's main Arctic policy interests, including: oil and gas extraction; Marine Protected Areas; sustainable fishing; shipping; and Arctic governance. A range of UK Government actors have interests in the Arctic, and therefore, the need for coordination and collaboration is apparent. The Scottish Government s interest in the Arctic is part of its broader internationalisation strategy, which aims to assert Scotland s position in the world. Scotland s geographical location in the North Atlantic gives it a shared interest with the Nordic nations and others. The Scottish Government has called on the UK Government to develop a more comprehensive strategy for the High North. Scotland shares historical and cultural links through, for example, Viking connections, Scottish emigrant populations in Canada, and 19th and 20th century polar explorers. Some scholars have argued that there may be an opportunity for a Scottish Arctic Strategy which pursues Scotland s distinct historical, social, economic and political interests in the Arctic. The challenges facing Scotland are often similar to those experienced by others in the Arctic and near- Arctic - such as sparse population, remoteness, inaccessibility and harsh climatic conditions and Scotland has Arctic- related interests in areas such as fishing, renewables, oil exploration, outdoor, adventure and cruise tourism. In the 2012 Arctic Yearbook published by the University of the Arctic 13, professor Rachael Lorna Johnstone proposes several strategic themes on which a Scottish Arctic strategy could be based: governance and cooperation: More intensive Scottish involvement in international Arctic fora (Arctic Council, Barents Euro Arctic Council (BEAC) and Nordic Atlantic Cooperation (NORA)); economic development: in the areas of hydrocarbons, renewable energy, living marine resources, shipping transport; and environmental and scientific cooperation, Neither Ireland nor Northern Ireland have policies or strategies that address Arctic issues directly. However, many Irish and Northern Irish governmental policies are closely linked to Arctic issues. Environmental strategies, climate change adaptation and mitigation frameworks, flood prevention measures and fishing stocks measures. New shipping routes through the Arctic could have a strategic impact. Concerns about the long- term peace and stability in the Arctic and North Atlantic region are shared with partners in the High North As EU members, an Arctic engagement with Arctic partners in Scotland, Ireland, and Northern Ireland requires to be placed within the framework of the EU and its emerging Arctic policy. 13 available at http://www.arcticyearbook.com/index.php/articles 17
However, this can be problematic as the EU has been slow to develop a comprehensive approach and attitudes in some Arctic states towards the EU s Arctic strategy are hostile. In the case for Scotland and Northern Ireland an engagement strategy also needs to take into account the UK dimension where there has again been a lack of activity. Finally, in the case of Scotland it is worth noting that the results of the upcoming independence referendum may have an important impact on Scotland s engagement in Arctic development. 14 4.8 Sweden In the Government s statement of Foreign Policy made by the Minister of Foreign Affairs, mr. Carl Bildt, Arctic was described as a prioritized area of Swedish interests in the future. 15 Sweden has a national strategy for the Arctic region. The strategy has focus on three broad thematic areas: 1. Climate and environment, where focus is on decreasing greenhouse gases globally, improving knowledge and actions to prepare adaption to changing environment, promoting biodiversity through environmental impact description and by establishing a network of protected areas for wildlife, pursuing leading research on climate, environment and human impacts. A separate Climate and energy policy sets also out national targets for mitigation of carbon dioxide and actions to handle the consequences of climate change. 2. Economic development promoting free trade and working proactively to overcome trade barriers; developing - sustainable methods for extraction of oil, gas, and other natural resources; engaging in trans- boundary search and rescue co- operation in maritime and aviation; improving maritime safety regulation and building green- tech know- how; developing sustainable tourism with regard to the environment and indigenous people; promoting Sweden s commercial interests through Swedish export councils in the Arctic countries. Swedish government has also adopted a mineral strategy which emphasizes that mining Is operated in a sustainable way. It also proposes actions whereby Swedish companies can contribute to sustainable mining abroad. 3. Human and gender dimension in Arctic cooperation, but also focusing on health- related and social effects from climate and environmental changes, and maintaining special emphasis on indigenous people (including Sami) and the use of relevant EU- cooperation programs Sweden shall enforce measures which aim to keep Arctic a low- tension region of the world. A wide definition of security and civil instruments is therefore required for the purpose. The Swedish government underlines the importance of international law and a common safeguarding of vulnerability perspectives among the arctic countries and other stakeholders. The Swedish government points out Arctic council as the main forum for multilateral dialogue in Arctic issues. A clear connection between the Arctic council and other closely related cooperation, such as Barents 14 van der Zwet, A. et al (2013) 15 source: http://www.regeringen.se/content/1/c6/20/90/51/8a1e5f3c.pdf 18
and Nordic councils, and the territorial co- operation programs of the European Union is needed to fulfill the aims of the strategy. The economic development that is expected in the Arctic region must pay attention to environmental and human dimensions. The planned activities, promotion of trade and transport as well as exploitation of natural resources must be done in an environmentally sustainable way, safeguarding wildlife and flora. The social/human dimension is closely related to how new industries and transports will develop in the region, and efforts must be made to protect cultural heritage and traditional business. Swedish industry pays implicit interest in the Arctic area. There are few explicit business plans or prospects in Swedish companies concerning possibilities in the Arctic area outside Sweden, but there is a growing curiosity about the future Arctic possibilities. The Chambers of Commerce are important interlocutors when promoting Swedish interests in the Arctic area. Swedish mining industry is a sector where a major part of production comes from areas north of the Arctic Circle. As a consequence, transport and infrastructure are vital for future investments and development. In the oil and gas industry, Swedish companies are mainly active as subcontractors for products and services. Swedish companies have a specific focus on the environmental perspectives of production and this should render them a competitive advantage. The abundance of natural resources such as ore, minerals and forests in the higher North, makes these production sectors the back- bone of Swedish economy. There is an ongoing discussion though, especially on the regional level in the north, concerning innovations in natural resources branches, and how these industries could produce higher added- value from the regional resources in the future. Research and higher education should have focus on future investments. There ought to be a growing demand for both staff and facilities in the field of research and scientific when the international presence strengthens in future. Infrastructure is a growing business, as well as materials and vehicles developed for cold climate conditions. Good examples of that are the car/vehicle companies which run their test activities in the Northern inland municipalities of Sweden. Long experience from shipping industry and icebreaking in the cool and dark conditions of a subarctic area such as the Gulf of Bothnia are other strong sectors from the Arctic point of view. Reindeer herding, hunting and fishing, combined with better opportunities for developed eco- tourism are smaller but still important elements in pursuits for a more sustainable economic development in vulnerable Arctic ecosystems. These sectors are also affected by the social and human dimensions of economic activities. The demographic challenges in the Northern parts of Sweden include out- migration of young people seeking educational opportunities, which often results in permanent out- migration. Losing young and well- trained persons has forced the communities to think in new ways when arranging 19
public services for their inhabitants. World- leading concepts of health care for sparsely populated areas (rural medicine) with a large elderly population have been developed. Parallel to the introduction of distance spanning technologies, it has been recognized that the health care professionals need special skills when working in these areas. A wide range of activities are announced under the three headings in the strategy; climate and environment; economic development; human dimension. Most of the activities formulate intents rather than sharp measures and methods. There are some more material actions mentioned; one example is to strengthen Arctic- competence at the Swedish council of export - offices in Arctic countries. Another example is to improve routines of Sami- organizations participation and/or consultation when preparing Swedish positions in the Arctic Council. The Arctic and Barents dimensions are explicitly pronounced in the counties of Norrbotten and Västerbotten (two most Northern regions). Measures highlighting national minorities and especially the Sámi people are common for the northern and northeastern regions of Sweden. A joint regional communication concludes that the Sami culture should be considered as one of the most unknown fortunes in Europe. It contains an unbroken chain of culture and traditions connecting the past with the present and the future. Better knowledge and a higher level of understanding are therefore valuable both for the Sámi society and for indigenous people in other regions of the Arctic. The regional development strategies very much correspond to the priorities and measures in national strategies and plans. The Swedish Arctic dimension is more or less exhaustively formulated at national level and takes in to consideration many of the regional varieties and specificities at the regional and local socio- economical context, such as the structure of labor markets, employment sectors, and the need of welfare services. 4.9 Other Arctic countries relevant for future NP cooperation 4.9.1Russia The Russian Arctic policy was published in March 2009 outlining Russia s interests and priorities in the Arctic region. The final goal is to transform the Arctic Zone into a leading strategic resource base that can largely satisfy Russia s need in hydrocarbon resources, water bio- resources and other types of strategic raw materials. Russia aims to maintain the Arctic as a zone of peace and cooperation. This will include active interaction between the Russian Federation and the Arctic countries in defining maritime borders on the basis of the international law and mutual agreements. This will also mean ensuring a regime of a mutually beneficial bilateral and multilateral cooperation between the Russian Federation and the Arctic countries on the basis of international treaties and agreements to which the Russian Federation is a party. Russian government institutions and non- governmental organizations will participate in international forums dealing with Arctic issues, including inter- 20