The Norwegian Government’s Arctic Policy – People, opportunities and Norwegian interests in the Arctic

1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 4. Climate and environment in the Arctic . . . . . . . . . . . 24 1.1 Overarching goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6 4.1 Climate change is creating new challenges in the 1.2 Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Arctic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 1.3 The main features of Norway’s Arctic policy 4.2 Warmer and more acidic oceans . . . . . . . . . . . . . . . . . 25 in the years ahead . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 4.3 Loss of biodiversity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 4.4 Marine litter and the spread of microplastics . . . . 26

2. The international legal framework . . . . . . . . . . . . . . . . 11 4.5 Global agreements on hazardous substances 2.1 The Law of the Sea . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 have had a positive effect in the Arctic . . . . . . . . . . . 26 2.2 Norway’s sea areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 4.6 Integrated approach to management of the 2.3 Norway’s land borders in the north . . . . . . . . . . . . . . 14 natural environment in North Norway . . . . . . . . . . . 26 4.7 Integrated ocean management in Norwegian

3. Norwegian foreign and security policy waters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 in the Arctic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 3.1 The strategic importance of the Arctic . . . . . . . . . . . 15 5. Social development in the north . . . . . . . . . . . . . . . . . . . 29 3.2 Norwegian security policy . . . . . . . . . . . . . . . . . . . . . . . . 17 3.3 NATO . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 6. Value creation and competence development . . . 32 3.4 The US . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 3.5 Russia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 7. Infrastructure, transport and communications . . 35 3.6 The Nordic region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

8. Civil protection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 3.7 The Barents cooperation . . . . . . . . . . . . . . . . . . . . . . . . . 20 3.8 Arctic Council . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 3.9 The EU . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 3.10 China . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 3.11 Indigenous peoples . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 04 / The Norwegian Government’s Arctic Policy People, opportunities and Norwegian interests in the Arctic \ 05

1. Introduction 1.1 Overarching goals THE OVERARCHING GOALS OF THE Norway’s Arctic policy focuses on the international picture, GOVERNMENT’S POLICY IN THE ARCTIC ARE: relations with neighbouring countries in the Barents region, „ Peace, stability and predictability the northernmost regions of Finland, Norway and Sweden „ International cooperation and the (known in Nordic countries as the North Calotte), and international legal order the development of North Norway. Further developing „ Integrated, ecosystem-based management North Norway as a strong, dynamic and highly competent region is the best way to safeguard Norwegian interests „ Increased job creation and value creation in the Arctic. The region is rich in natural resources that „ Closer cooperation between the business contribute to economic growth for the country as a whole, sector and knowledge institutions and the economy and social development of this region „ Effective welfare schemes and ensuring that are therefore a matter of national importance. North Norway is an attractive place to live 06 / The Norwegian Government’s Arctic Policy Norway’s Arctic policy is based on a long tradition of safeguarding Norway’s interests in the north through ‘It is important to broad-based international cooperation. The Arctic will draw attention to continue to be Norway’s most important area of strategic the great potential responsibility. The Government will maintain its engage- of North Norway – ment in broad-based, proactive international coopera- its innovation, research and tion in the north and in global arenas where the Arctic is creativity.’ discussed. This includes facilitating cross-border local and – Youth panel for the white paper regional cooperation in the north. on Arctic policy Some 9 % of Norway’s population lives north of the Arctic Circle, a greater proportion than in any other country in the world. North Norway accounts for 35 % of Norway’s mainland (for practical reasons, we have chosen to follow the county territory. The region is home to some of Norway’s leading boundary and have included the whole of Nordland county academic and research institutions in areas such as marine in our definition). Within the Arctic, there are large differ- research, fisheries and natural resource management, climate ences in terms of population density, business activities, change and environmental research, Arctic innovation and and access to the open sea. sustainable ocean-based industries. For many Norwegians, The High North: The term ‘High North’ has its origins in the Arctic provides both a home and a livelihood. the policy initiatives that were implemented under the The white paper does not provide a list of all political two previous white papers on this region and a number initiatives or measures that could conceivably be relevant of related strategy documents. In geographical terms, for or in the Arctic. The Government’s aims and ambitions the ‘High North’ refers to the land and sea areas between in the white paper will therefore also be followed up in southern Helgeland in the south to the Greenland Sea in future sectoral and budgetary processes. the west and the Pechora Sea (the southeastern corner The input on which the white paper is based has largely of the Barents Sea) in the east. This term has mainly been been obtained through dialogue with counties, municipali- used in a geopolitical context and is closely associated ties, the Sámediggi (Sami parliament) and key stakeholders with efforts to safeguard Norwegian interests through from the business sector, and various organisations and various initiatives and cross-border cooperation in the knowledge institutions in the north. A dedicated youth North Calotte region and the Barents region as a whole. panel, set up in connection with the preparation of the North Norway: Traditionally, Norway’s northernmost white paper, has provided a report with recommendations. region has not been referred to as the Arctic, but it is now All these partners have given their perspectives on key established practice to refer to North Norway as part of challenges and opportunities in the north. both the Arctic and the High North. Due to the Gulf Stream, the climatic conditions in the Norwegian part of the Arctic, including temperature and ice cover, differ widely from 1.2 Definitions those in other parts of the region. The Arctic: In the white paper, ‘the Arctic’ refers to the sea and land areas between the North Pole and the Arctic In the white paper, Svalbard is mentioned in cases where Circle. This is the most common definition of the Arctic this has relevance for our capabilities on the mainland, People, opportunities and Norwegian interests in the Arctic \ 07 for example in the areas of polar and ocean research, meteorology and emergency preparedness. The Govern- ment’s Svalbard policy is set out in a separate white paper. 1.3 The main features of Norway’s Arctic policy in the years ahead Maintaining a consistent and predictable approach: In light of the increasingly complex foreign and security policy situation in the north, it is essential for us to maintain a Arctic Frontiers is one of the most important international platforms consistent and predictable approach and a strong and cred- for promoting Norway’s positions on Arctic issues. Foreign Minister Ine ible defence in cooperation with our allies and partners. Eriksen Søreide in discussion with US Senator for Alaska Lisa Murkowski, BBC journalist Stephen Sackur, President of the Sámediggi Aili Keskitalo, The significance of security and defence in the Arctic is former Finnish Finance Minister Katri Kulmuni and Director of the increasing, and strengthening Norway’s defence capability Bjerknes Centre for Climate Research Tore Furevik. in the north is a priority for the Government. A substantial PHOTO: ARCTIC FRONTIERS part of the Norwegian Armed Forces’ operational structure is located in the region. Norway has a long tradition of non-Arctic states vary depending on what they are seeking successfully balancing its various interests in the north. to achieve in the different areas of jurisdiction. There is Highlighting the benefits of cooperation: The growing inter- consensus among the members of the Arctic Council that national interest in the Arctic has led to a greater tendency international law applies in the Arctic. to focus predominantly on the various competing interests, Taking a broad-based approach to climate change and the while cooperation forums that have functioned well for environment in the Arctic: The rapid warming of the Arctic decades are being overlooked or described as outdated. is endangering Arctic species and ecosystems that are The Government will encourage Norwegian knowledge dependent on ice and snow, and also poses a threat to local institutions to continue to play a part in ensuring that the communities and the way of life and culture of indigenous international debate about the Arctic is based on facts peoples. The rising temperature in the Arctic is primarily and sound analyses, not on myths. In this way, Norwegian due to the increase in global greenhouse gas emissions, research and knowledge communities can participate in not to human activity in the region. This underscores the efforts to promote Norwegian interests in the north. the importance of the Paris Agreement and the need for Promoting respect for international law: The Arctic is some- follow-up and implementation. The Government will take times portrayed as an unregulated or even lawless region. steps to restructure the Norwegian economy and facilitate The impacts of the melting of the Arctic ice on countries Norway’s transformation into a low-carbon society by the outside the region are cited by some as a reason to view middle of this century, and will continue to assist other developments in the Arctic as a shared global concern countries in their efforts to cut emissions. (‘what happens in the Arctic doesn’t stay in the Arctic’). Working towards the UN Sustainable Development Goals: This is being used as an argument for giving non-Arctic The SDGs provide the overall direction for Norway’s Arctic states a general right to participate in the management policy. In addition, North Norway has both resources and of the Arctic. The rights, interests and options available to expertise of relevance to the EU’s European Green Deal, 08 / The Norwegian Government’s Arctic Policy including in the areas of blue-green technology and green ‘It is essential for the transformation. This will be important for businesses and nation to recognise that employment levels both in Norway and in other European North Norway, with its countries in the years ahead. The Government’s ocean vast array of resources, policy focuses on global leadership, clean and productive is of great value to Norway as a whole.’ oceans, business development, knowledge and technology, and sound management. Promoting job creation and value creation are overarching goals of Norway’s domestic Arctic policy. However, this white paper is being presented in the midst of a global – Youth panel for the white paper on Arctic policy health and economic crisis caused by the coronavirus pandemic. The crisis is putting pressure on public finances, but has also highlighted the need to accelerate the process Europe is a major market for the Norwegian aquaculture of restructuring the economy. and fisheries sector, and virtually the entire industry in The Government will promote closer cooperation North Norway has stressed the vital importance of the between the business community and the higher edu- EEA Agreement for ensuring food security and access to cation sector, with a view to creating attractive jobs the European market for Norwegian seafood. in the north. In this context, it is important to expand Norway must address fundamental challenges relating cooperation with the other Nordic countries, which rank to continuing population decline in North Norway. New high internationally in research and innovation-based solutions are needed, as is a strong focus on fostering viable business development. communities in the north. The Government will promote the development of environmentally-friendly towns and cities across the country that provide a good quality of life for people and good conditions for businesses. With this in mind, the Government has initiated work on a national strategy for small cities and urban centres. Promoting and supporting the development of a diverse cultural and sports sector has always been a key element of the efforts to ensure that North Norway is an attractive place to live. Raising awareness of the history of North Norway as part of our national cultural heritage, from antiquity to thousand-year-old, coastal trading routes to the Second World War and the post-war reconstruction years, is an important part of this work. The Norwegian Coast Guard has tasks relating to acute pollution Being at the forefront of technological development: preparedness and response, and search and rescue. The Coast Guard Technological development continues to be a key goal of also plays an important role in exercising Norwegian sovereignty and authority both in coastal areas and in Norway’s large Arctic sea areas. Norway’s Arctic policy, and is vital for reaching all our goals PHOTO: NORWEGIAN COAST GUARD in the north. Norway is well placed to make use of new People, opportunities and Norwegian interests in the Arctic \ 09 the sustainable use of natural resources and increasing value creation. Preserving the identity and culture of national indigenous communities: Indigenous issues are a priority in Norway’s Arctic policy. Sami culture is a valuable part of our national historical heritage. In recent years, Sami art and culture have received growing attention and recognition both nationally and internationally. The Government will explore new ways of strengthening Sami culture, cultural industries and tourism, in consultation with the Sámediggi. This may have positive spin-off effects on job creation and value creation across the country. As an indigenous people, the Sami have a right to be consulted in matters that could affect them directly. Sami culture is a valuable part of our national historical heritage. In this Promoting Kven/Norwegian Finn identity and culture: The picture prime minister Erna Solberg meets representatives of indig- enous peoples at the High North Dialogue conference in Bodø. Kvens/Norwegian Finns have long ties to Norway and PHOTO: HIGH NORTH NEWS have left their mark on the historical development of the Arctic. Today, Kven organisations and communities technologies in areas where we already have cutting-edge are working to revitalise Kven language and culture. The expertise, such as health, energy, petroleum, maritime and Kven language is recognised as a minority language in marine industries, and the public sector. In North Norway, Norway. The Government will facilitate the preservation better access to data on the oceans, space, climate change of the Kven language and Kven/Norwegian Finn culture and health will open up new opportunities for promoting and society. 010 / The Norwegian Government’s Arctic Policy

2. The international legal framework International law applies in the Arctic just as it does else- 2.1 The Law of the Sea where in the world. The 1982 United Nations Convention The Ilulissat Declaration adopted in 2008 by the five coastal on the Law of the Sea constitutes the basic international states around the central Arctic Ocean – Canada, Denmark, legal framework for all maritime activity, including in the Norway, Russia and the US – confirmed that the Law of Arctic. In order to achieve the Arctic states’ common goal the Sea provides the framework for managing activities of maintaining stability and predictability in the region, it in the Arctic Ocean. This ministerial declaration played an is essential that all states respect international law. important role in clarifying the international legal frame- Most global treaties and instruments apply in the Arctic. work in the Arctic, for instance as regards environmental National sovreignty is undisputed in almost all areas of the protection, research, the delimitation of the outer limits Arctic. Only a few sea areas are beyond national jurisdiction. of the continental shelf, and shipping. The coastal states The Arctic is a peaceful region in which states display a reaffirmed their commitment to the orderly settlement willingness to cooperate and to resolve contentious issues of possible overlapping claims to maritime areas. The in accordance with the principles of international law. fact that the Law of the Sea applies in the central Arctic People, opportunities and Norwegian interests in the Arctic \ 011 Ocean provides a basis for orderly, predictable relations between the coastal states. In the decades ahead, a reduction in the ice cover may make fishing activities possible in the central Arctic Ocean. In October 2018, the Agreement to prevent unregulated high seas fisheries in the Central Arctic Ocean was signed by the five coastal states surrounding the central Arctic Ocean and five distant water fishing nations and entities – the EU, China, Iceland, Japan and South Korea. The agreement does not prohibit fishing in the international part of the Arctic Ocean, but the parties undertake not to permit their vessels to fish in that area until international conservation and management measures have been established. A number of global agreements relating to fisheries, shipping and the A number of global agreements relating to fisheries, marine environment specify rights and duties in all maritime areas. shipping and the marine environment specify rights and These also apply in the Arctic, where coast guard cooperation is an duties in all maritime areas. These also apply in the Arctic. important factor. PHOTO: THOMAS NILSEN, THE BARENTS OBSERVER The 1995 United Nations Fish Stocks Agreement sets out detailed rules on fisheries management beyond the 200- on the existing Law of the Sea architecture, and that it mile zones. It also sets out principles for the conservation complements other sectorial and regional mechanisms and management of fish stocks, such as the precaution- such as those of the international Maritime Organiza- ary approach. The agreement attaches importance to tion (IMO), the North East Atlantic Fisheries Commission subregional and regional mechanisms for cooperation on (NEAFC), the OSPAR Commission, the North Atlantic Marine fisheries management in international waters. Mammal Commission (NAMMCO) and the Arctic Council. The Convention for the Protection of the Marine Environ- ment of the North-East Atlantic (the OSPAR Convention), which was adopted in 1992, provides a comprehensive 2.2 Norway’s sea areas framework for protection of the marine environment, including in parts of the Arctic. Norway’s 200-mile zones Negotiations are ongoing in the UN on a new interna- Under the UN Convention on the Law of the Sea, Norway tional legally binding instrument under the UN Convention has sovereign rights to explore, exploit, conserve and on the Law of the Sea on the conservation and sustain- manage living and non-living natural resources in a zone able use of marine biodiversity of areas beyond national extending up to 200 nautical miles from its baselines. jurisdiction. This agreement will also be relevant for the Norway established a 200-nautical-mile exclusive eco- Arctic. The process aims to strengthen the framework for nomic zone off the mainland coast in 1976. In 1977, in international marine management by establishing rules for accordance with the Act of 17 December 1976 relating the use of area-based management tools, including marine to the Economic Zone of Norway, a fisheries protection protected areas and environmental impact assessments. zone was established around Svalbard. The fisheries zone Norway is working to ensure that the agreement is based around Jan Mayen was established in 1980. 012 / The Norwegian Government’s Arctic Policy The Norwegian continental shelf Norway exercises sovereign rights over its continental shelf for the purposes of exploring and exploiting natural resources. No one may exploit petroleum or mineral deposits or sedentary species on the Norwegian conti- nental shelf without Norway’s consent. The Norwegian continental shelf extends at least as far as 200 nautical miles from the mainland, Svalbard and Jan Mayen. In the Banana Hole, the Loophole and the area north of Svalbard, the Norwegian continental shelf extends beyond 200 nautical miles. The Commission on the Limits of the Continental Shelf in New York confirmed this in its recommendation in 2009. Maritime delimitation In cases where a state’s exclusive economic zone and/ or the continental shelf overlaps with those of another Andøya Space provides a wide variety of services and technologies, state, delimitation agreements are needed. In the Arctic, including launch service for sounding rockets, long duration bal- loons, payload engineering services and scientific and ground-based Norway has entered into delimitation agreements with instrumentation. Iceland, Denmark (Greenland) and Russia. Norway has PHOTO: TROND ABRAHAMSEN, ANDØYA SPACE also signed agreements with Iceland and Denmark (the Faroe Islands) on the delimitation of the continental shelf subsequent agreement on maritime delimitation was in the Banana Hole. signed in 1995. In 1980, following extensive negotiations, an agree- In 1997, the delimitation of a small sea area between ment was concluded with Iceland on the establishment Jan Mayen, Greenland and Iceland was agreed, following of a Conciliation Commission on the Continental Shelf negotiations between the parties. With this, the entire area between Iceland and Jan Mayen. The subsequent extent of the fisheries zone around Jan Mayen was settled. delimitation agreement was signed in 1981. In 2006, an agreement was concluded between Norway Negotiations with Denmark on delimitation of the area and Denmark together with the Home Rule Government between Jan Mayen and Greenland were conducted from of Greenland on the delimitation of the continental shelf 1980 to 1988, when Denmark brought the case before and the fisheries zones in the area between Greenland the International Court of Justice. The Court began the and Svalbard. process of delimitation by drawing a provisional median In October 2019, Norway signed two agreements, with line that basically divided the disputed area down the mid- Iceland and Denmark/the Faroe Islands respectively, on dle, but then adjusted this to take account of the marked delimitation of the continental shelf beyond 200 nautical difference in the lengths of the coasts of Greenland and miles in the southern part of the Banana Hole. Jan Mayen. The result was that Norway received 57 % of The maritime boundary with Russia in the Varangerfjord the disputed area, while Denmark received 43 %. The area was agreed between Norway and the Soviet Union People, opportunities and Norwegian interests in the Arctic \ 013 in 1957. With effect from 2004, the breadth of Norway’s Cross-border reindeer husbandry territorial sea was extended from 4 to 12 nautical miles When the 1972 Reindeer Grazing Convention between and a contiguous zone extending to 24 nautical miles Norway and Sweden expired in 2005, a codicil to the was established. In 2007, Norway and Russia reached 1751 border treaty with Sweden once again provided agreement on a 73 kilometre-long delimitation line in the the legal basis for regulating cross-border reindeer hus- Varangerfjord area. bandry. A new reindeer grazing convention was negotiated In 2010, after extensive negotiations over a period of 40 between Norway and Sweden in 2009, and was signed years, Norway and Russia signed the Treaty on Maritime by the relevant ministers. Since then, ratification of the Delimitation and Cooperation in the Barents Sea and the convention has been under consideration. A new reindeer Arctic Ocean. The Treaty entered into force in July 2011. In fence convention between Norway and Finland entered addition to establishing the delimitation line, the agreement into force on 1 January 2017. contains provisions that ensure the continuation of the close Norwegian-Russian fisheries cooperation, as well as Nordic Sami Convention provisions concerning cooperation on the exploitation of Sweden, Finland and Norway reached agreement on a any transboundary hydrocarbon deposits. text for a Nordic Sami Convention in 2016. The overall objective of the convention is to strengthen the rights of the Sami people so that they can safeguard and develop 2.3 Norway’s land borders in the north their culture, language and way of life, unhindered as far as possible by national borders. The Sami parliaments New border agreement with Russia in the three countries provided input and were involved The Norwegian-Russian land border extends from the throughout the process right up until the negotiations Varangerfjord to the Krokfjellet border point, where were concluded. The Sami Parliamentary Council has the Norwegian-Russian, the Norwegian-Finnish and the since expressed a desire to make certain revisions to the Finnish-Russian borders meet. The border was reviewed text. The Government’s view is that the convention text is in the period 2009–2018, and a new border agreement satisfactory as it stands. The Government is therefore not that provides a detailed and updated description of the proposing to reopen the negotiations. The Government border based on modern technology entered into force is ready to work to move this matter forwards towards on 8 February 2019. signing and ratification, and has invited the Sámediggi to give its support to the draft, countersigned convention text, so that this work can begin. 014 / The Norwegian Government’s Arctic Policy

3. Norwegian foreign and security policy in the Arctic 3.1 The strategic importance of the Arctic are also playing a part. Nor can the possibility be ruled The stability of the Arctic has long remained relatively unaf- out that increased tensions in other places will affect the fected by conflicts in other areas of the world. However, situation in the Arctic. current global trends are leading to growing international Cooperation in the Arctic functions smoothly in many interest in the region and a greater focus on Norway’s important areas. However, there have been some chal- strategic location. The changing security policy landscape in lenging developments relating to the defence and security recent years and the melting of the ice in the Arctic Ocean policy situation. This is primarily due to Russia’s military People, opportunities and Norwegian interests in the Arctic \ 015 modernisation and increased activity in the north. The general deterioration in Russia’s relationship with NATO and Western countries as a result of Russia’s annexation of Crimea and involvement in eastern Ukraine is also a contributing factor. Russia has expanded its civilian and military infrastruc- ture in the Arctic. It has developed new military capabilities that strengthen its response capacity and enhanced its ability to strike targets over longer distances and with greater precision. In addition, Russia is demonstrating an ability to make use of a broader range of instruments. In particular, the new generation of strategic submarines, new missile programmes and the revival of the bastion On the left: The AlaskaNor project seeks to increase knowledge about opportunities for blue growth in Alaska and North Norway. It is funded by defence concept aimed at protecting Russia’s strategic the Norwegian Ministry of Foreign Affairs and Nordland County Council. capabilities as far as the Greenland-Iceland-UK (GIUK) On the right: Nordnorsk Kunstmuseum has collaborated with the Anchor- age Museum in Alaska for years. Here from the opening of the exhibition Gap could have major implications for NATO’s ability to ‘View From Up Here’, which focuses on the lives of people in the Arctic. keep the sea routes over the North Atlantic open. This is PHOTO: HIGH NORTH CENTER, NORD UNIVERSITY (PHOTO ON THE LEFT), NORDNORSK KUNSTMUSEUM important to allow for Allied reinforcement of Europe in (PHOTO ON THE RIGHT) the event of a crisis. therefore considers it important to do its part to reduce Russia’s military build-up and military modernisation tensions by ensuring predictability and transparency with pose a challenge to the security of Norway and other Allied regard to such activity. countries. As a result, the US and other Allies are showing As a result of climate change and the melting of the a growing interest in increasing their presence in the north ice in the Arctic Ocean, the northern coastlines of Rus- in order to monitor developments in the Russian part of sia, Canada and the US are gradually losing some of the the region. Recently, US strategic bomber aircraft have natural protection provided until recently by year-round been carrying out regular flights over the Barents Sea, ice. This could lead to changes in threat assessments and and in 2020, US Navy and UK Royal Navy surface vessels thus military-strategic thinking. The melting of the ice also conducted operations in the area for the first time since paves the way for an increase in commercial activity in the the 1980s. Allied activity and presence, including in the Arctic. The extent and implications of this activity will have Arctic, is welcomed by Norway. Norway’s security and to be assessed on an ongoing basis. A significant increase defence policy is based on the guarantee of support from in commercial activity will not necessarily in itself have a Allied countries in the event of war or crisis. This support negative impact on the security and military situation in requires knowledge of the region and of what is needed the region. to operate here. It is therefore essential that Norwegian When it comes to shipping in the Arctic, the picture that is and Allied forces train and conduct exercises both in emerging is twofold: the volume of transit traffic between and outside Norway. At the same time, it is important to Asia and Europe along the Northeast Passage will remain ensure that any military activity is carried out in a way low for the foreseeable future, whereas destination traffic that promotes security and stability in the region. Norway will rise. Russian and Chinese ambitions to transport more 016 / The Norwegian Government’s Arctic Policy The role played by the Norwegian Armed Forces in exercising sovereignty and authority and providing situ- ational awareness in the north is an important element of the Government’s Arctic policy. We are strengthening our presence in the Arctic by investing in strategic capabilities, most notably F-35 fighter jets, P-8 maritime patrol aircraft and new submarines. These capabilities will enhance our ability to achieve situational awareness and exercise sovereignty in peacetime and will strengthen our defence in times of war. Allied exercises and training activity in the north are a sign of solidarity between the Allied countries. Norway The Government will maintain investments in the Norwegian Armed attaches importance to enhancing the ability of the Norwe- Forces and is strengthening emergency preparedness and Norway’s defence capability in the north. Joint military exercises with Allies are gian Armed Forces to plan and carry out joint operations important for our security. with Allied forces in the north, while at the same time PHOTO: NORWEGIAN ARMED FORCES maintaining and strengthening Norway’s national pres- goods through the Northeast Passage have led to renewed ence and activity in the region. Important elements of this international attention to the potential advantages and work include ensuring that Allied countries have access disadvantages of using this route as opposed to traditional to suitable areas for carrying out training and exercises trade routes. Russia has also taken steps to regulate foreign in the north, promoting cooperation between Allied and shipping traffic. Any discussion of the development of the Norwegian forces, and providing other support to visiting Northeast Passage will need to consider the political, legal, Allied forces. At the same time, it is important to seek to set economic and environmental aspects. clear parameters for Allied military activity in areas close to Norway in order to avoid any escalation in tensions. Continuous assessments are needed to balance these two 3.2 Norwegian security policy considerations, and our approach will have to be adapted Maintaining a balance between deterrence and reassur- to the changing security environment. ance vis-à-vis the Soviet Union, and subsequently Russia, In the increasingly complex security threat landscape has been a key component of Norwegian security policy that is emerging, state and non-state actors alike are for decades. Norway’s defence and deterrence policy is using a wide array of instruments to carry out targeted, based on the maintenance of an effective national defence hostile campaigns, which involve both military and civilian and the guarantee of Allied reinforcements in the event actions. Our ability to withstand complex threats depends of war or crisis. Our guidelines for foreign military activity on good coordination and exchange of information across on Norwegian territory and other policies of reassurance sectors. In addition to maintaining a good understanding vis-à-vis Russia serve to enhance predictability and reduce of international factors that affect Norway, it is important tensions. These well-established principles of our security to monitor how these factors are manifesting themselves policy will remain unchanged, but are adjusted as needed in Norway, including in the north. The Norwegian Police to take account of developments in the security situation. Security Service has primary responsibility for following People, opportunities and Norwegian interests in the Arctic \ 017 structure. This further enhances cooperation and coordina- ‘International cooperation between tion and strengthens the ability of the command structure young people in the Arctic is vital. to fulfil its tasks. The development of NATO Graduated There needs to be more focus on this.’ Response Plans for the reinforcement of Iceland, Norway – Youth panel for the white paper on Arctic policy and the northern sea areas is also an important element in safeguarding Norway’s security in the north. up threats at the national level, focusing on actors that may pose a threat in Norway. The Norwegian National 3.4 The US Security Authority plays a particularly important role in The US is Norway’s closest ally. In recent years, the US has developing measures to safeguard Norway’s national shown a growing interest in the security policy aspects security interests. Norway makes use of a wide range of of developments in the Arctic. This is illustrated by US instruments in its efforts to safeguard national security. participation in various types of exercises. It is therefore important that Norway facilitates US participation in rel- evant activities. 3.3 NATO Multilateral cooperation under the Arctic Council with NATO is the cornerstone of Norway’s security, and the Alli- the US and other permanent members will continue to be ance’s area of responsibility extends right up to the North crucial. It is encouraging that the US clearly gives priority Pole. Good situational awareness in the Arctic is vital for to this arena, as indicated by its active participation in NATO to fulfil its responsibility for collective defence in this the Council’s working groups. Norway cooperates closely area too, in the event of a crisis or war. The Alliance’s new with the US on current maritime issues in the Arctic, for Concept for Deterrence and Defence of the Euro-Atlantic example the process under the International Maritime Area provides a constructive framework for this. Norway Organization (IMO) to introduce a ban on the use of heavy has worked for many years to increase NATO’s focus on fuel oil in the Arctic. the North Atlantic and to highlight the importance of the Norway has regular dialogue at senior official level with maritime dimension and transatlantic reinforcements various parts of the US administration. There are frequent for Allied security. This will continue to be a priority in exchanges of visits between our two countries and study the years ahead. trips to Norway by key US Arctic stakeholder groups. In addition, Norway has been at the forefront of efforts Several delegations from the US Congress have visited to strengthen NATO’s command structure and enhance the Norwegian part of the Arctic in recent years. the Alliance’s capacity to plan and lead collective defence A number of universities and research institutions in operations, including in our neighbouring areas. Particularly Norway have long-term, dynamic collaborative projects important in this context is NATO’s new Atlantic Command, with US research institutions and administrative agencies. established on the US east coast in Norfolk, Virginia, which Norway and the US also cooperate at the local level in the among other things will have responsibility for protecting Arctic Mayors’ Forum, which brings together mayors from the sea lanes across the North Atlantic. The Joint Force Arctic municipalities. There is close bilateral cooperation Command Norfolk (JFCNF) is closely integrated with the between indigenous communities in Norway and the US. US Second Fleet and shares the same command and staff 018 / The Norwegian Government’s Arctic Policy 3.5 Russia Over the past 30 years, Norway has developed broad-based cooperation with Russia in the north in areas such as fisheries, research, the environment, search and rescue, nuclear safety and security, health, education, business, energy and not least culture, people-to-people contacts and indigenous issues. The four bilateral commissions in the areas of economic cooperation, fisheries management, nuclear safety, and environmental protection deal with many issues relating to the Arctic. However, as a result of Russia’s violations of interna- tional law in Ukraine, Norway has suspended bilateral military cooperation, with the exception of cooperation Relations with Russia are an important element of Norwegian foreign in areas of particular importance to maritime safety, policy. Practical bilateral cooperation with Russia is being continued in airspace security and stability in the north. The direct areas of common interest. The commemoration of the 75th anniversary of the liberation of Eastern Finnmark in Kirkenes on 25 October 2019. lines of communication between the Norwegian Joint PHOTO: NORWEGIAN BARENTS SECRETARIAT Headquarters and Russia’s Northern Fleet, coopera- tion between Norwegian and Russian coast guards and environmental protection. The most important framework border guards, search-and-rescue cooperation, and the for this is the Joint Norwegian-Russian Commission on mechanisms under the Incidents at Sea (INCSEA) Agree- Environmental Protection. ment have been maintained. In recent years, Norway and In 2018, as a follow-up to the maritime delimitation Russia have carried out negotiations on an additional treaty between Norway and Russia, an agreement was protocol to the INCSEA Agreement. Since 2019 there signed as part of the energy dialogue between the two has been a channel of communication in place between countries on the collection of seismic data up to and along senior defence officials in Oslo and Moscow to help the delimitation line on the continental shelf in the Barents prevent misunderstandings and undesirable incidents in Sea and the Arctic Ocean. The agreement entered into connection with military activity. In the current situation, force on 21 August 2019. it is particularly important to further develop contact of this kind in the area of defence. Fisheries cooperation in the Barents Sea is perhaps the 3.6 The Nordic region best example of practical, mutually beneficial Norwegian- Our Nordic neighbours play an active and constructive Russian cooperation and has been critical in ensuring role in regional cooperation forums such as the Nordic sustainable management of the fish stocks in our northern Council of Ministers, the Arctic Council, the Barents Euro- sea areas. Norwegian-Russian cooperation on nuclear Arctic Council, the Council of Baltic Sea States, and the safety and security, which takes place under the Norwegian- Northern Dimension. Even though there may be differ- Russian Commission for Nuclear Safety, has helped to ing approaches and priorities, all the Nordic countries make our part of the world safer for over 25 years. Norway consider it important to pursue a knowledge-based Arctic attaches great importance to cooperation with Russia on policy. People, opportunities and Norwegian interests in the Arctic \ 019 Increasing knowledge development and expanding The agreement is intended to facilitate cooperation on exchange of experience with our closest neighbours in operations planning between the three countries with the north will promote development throughout the a view to coordinating operations in the North Calotte. northernmost regions of Finland, Norway and Sweden (known in Nordic countries as the North Calotte). There 3.7 The Barents cooperation are more cross-border services encompassing three or The Barents cooperation occupies a central place in Nor- more countries in the Nordic region than in any other way’s Arctic policy in light of the role it plays for Norway’s area of Europe. The European Commission has presented northernmost counties, the Sámediggi (Sami parliament) recommendations for easing border obstacles between and a range of stakeholders in various fields and sec- the northern regions of Sweden, Finland and Norway. tors. What makes the Barents cooperation effective is Top priority will be given to improving transport along the the combination of intergovernmental and interregional east-west axis, strengthening labour market integration cooperation, under the Barents Euro-Arctic Council and and further developing common digital public services. the Barents Regional Council respectively. The value of the Barents cooperation lies to a large extent in its stable focus Nordic defence and security policy on relatively uncontroversial issues, which ensures predict- cooperation in the north ability and promotes good relations between stakeholders Due to the geographical proximity to Russia, developments in a number of fields. The members of the Barents Euro- in the Arctic and the Baltic Sea should be viewed in a com- Arctic Council – Norway, Russia, Sweden, Finland, Denmark, mon strategic context. In 2018, under Norway’s chairman- Iceland and the EU – have maintained the constructive ship of the Nordic Defence Cooperation (NORDEFCO), a atmosphere in the Council in recent years as well. new ambitious vision, Vision 2025, was adopted setting Norway’s Chairmanship of the Barents Euro-Arctic Coun- out 16 specific targets for 2025. This was followed up by cil in the period 2019–2021 has provided an opportunity for the subsequent Danish and Finnish chairmanships. Vision Norway to revitalise the cooperation and set the agenda for 2025 sets out the Nordic countries’ intention to enhance issues relating to the Barents region. Norway has identified defence cooperation ‘in peace, crisis and conflict’. health, people-to-people contact, and knowledge as priority Nordic participation in the NATO exercise Trident areas for its Chairmanship, and has helped to strengthen Juncture in 2018 was substantial. The Norwegian Army’s the cooperation through its work in these areas. Brigade Nord took part in the Northern Wind exercise in northern Sweden in 2019, and as part of a cross-border training scheme, Norwegian fighter jets carry out regular 3.8 Arctic Council training missions with Swedish and Finnish planes over the Close, constructive cooperation has been established in the North Calotte from bases in Bodø, Luleå and Rovaniemi. Arctic Council between the eight member states (Canada, This joint training activity has been further developed Denmark, Finland, Iceland, Norway, Russia, Sweden and the into the major Arctic Challenge Exercise (ACE), which has US) and the six indigenous peoples’ organisations that are become one of Europe’s largest air power exercises. Allied represented on the Council. The Arctic Council’s mandate countries also take part. primarily covers issues relating to climate change, the In autumn 2020, Norway, Sweden and Finland signed a environment and sustainable economic development. It statement of intent on enhanced operational cooperation. does not cover security policy. For this reason, the Arctic 020 / The Norwegian Government’s Arctic Policy 3.9 The EU Norway and the EU share a number of key interests in the Arctic such as maintaining peace and stability, and promoting sustainable development, research and respect for international law. The EU is an important partner for Norway in fisheries, research and environmental coop- eration in the Arctic. The EEA Agreement provides a vital framework for facilitating exports from North Norway and access to labour in important manufacturing and service industries, and is thus also of crucial importance for job and value creation in North Norway. Norway maintains a close dialogue with the EU on the Arctic and actively seeks to ensure that the EU’s policy is based as far as possible on knowledge and facts about Networking projects and visits by guest artists strengthen international conditions in the north. We also give priority to dialogue cooperation and open up opportunities for artists in the north. The Riddu with Finland, Denmark, Sweden, which as Arctic EU member Riððu Festival in Kåfjord is Europe’s leading cultural arena and meeting states are in a unique position to provide substantive input place for new voices in the area of indigenous arts and culture. The festival helps to build skills, increases the appeal of the region as a place for young to the EU’s Arctic policy. people to live, and has positive spin-off effects for the local business sector. The Government has decided that Norway will participate PHOTO: NORWEGIAN BARENTS SECRETARIAT in the EU’s programmes for regional territorial cooperation (Interreg) in the period 2021–2027. The Northern Periphery Council has been largely unaffected by the changing global and Arctic Programme encompasses the whole of the security landscape. Nordic Arctic, and representatives from northwestern The work of the Arctic Council has been strengthened Russia and parts of Canada participate as observers. The considerably over the years. The assessments produced programme is an important instrument in the EU’s Arctic by the Arctic Council’s working groups on climate change policy. Horizon Europe, the EU framework programme and pollutants in the Arctic in particular have gained broad for research and innovation, is one of the most important recognition and have been an important contribution funding mechanisms for Arctic research. Erasmus+, the to the efforts to develop international environmental EU programme for education, training, youth and sport, conventions. The emphasis on dialogue and openness provides a framework for much of the cooperation in the in the political contact between the members states of field of education in the Arctic. Norway will be participat- the Arctic Council is one of the Council’s key strengths. It ing in both these programmes in the period 2021–2027. is in the interests of the member states to maintain this dialogue, also in cases where opinions differ. The Northern Dimension The Council’s work is carried out under its working The Northern Dimension was established in 1999 at the groups. Indigenous peoples represent an important voice initiative of Finland to forge closer links between the EU and on the Arctic Council, through the participation of the six regional cooperation forums in the Arctic. The EU, Iceland, indigenous peoples’ organisations. Norway and Russia participate as four equal partners. People, opportunities and Norwegian interests in the Arctic \ 021 Practical cooperation takes place under four partnerships focusing on the following areas: environment; public health and social well-being; transport and logistics; and culture. The Northern Dimension Environmental Partnership has ‘We have to talk about yielded tangible results, and Norway has provided sub- Sami life and culture stantial funding for projects on nuclear safety. Since 2014, as a natural part of political dialogue under the Northern Dimension has our identity.’ been limited as a result of the deterioration in relations between the EU and Russia following the Ukraine crisis, but – Youth panel for the white paper on Arctic policy activities under the partnerships have been maintained. The Government will continue to promote dialogue and practical cooperation under the Northern Dimension. traditional Sami homelands, Sápmi, extend across areas in Norway, Sweden, Finland and Russia. As an indigenous people in all four nations, the Sami people’s activities, their 3.10 China parliaments, organisations and institutions extend across China has increased its focus on the Arctic in recent years the borders of Norway, Sweden, Finland and Russia. and published its first Arctic strategy in 2018. China was Indigenous groups participate actively in the Arctic Council, granted observer status in the Arctic Council in 2013. the Barents Euro-Arctic Council and the Barents Regional Norway supports cooperation with China and other non- Council. The Saami Council is one of six indigenous peoples’ Arctic states based on respect for international law and organisations that has been granted permanent participant within the framework of existing cooperation structures. status in the Arctic Council. In the Barents cooperation, Norway also supports Chinese participation in the Arctic Sami representatives play a key role in the Working Group Council’s working groups, particularly those dealing with of Indigenous Peoples. The Government maintains a close climate and environmental issues. It is important that major dialogue with the Sámediggi (Sami parliament) and with emitters such as China play a part in finding solutions Sami organisations and institutions on participation in the to these problems. There is a long tradition of dialogue Arctic Council, the Barents cooperation and other forums, between Norwegian and Chinese polar research groups. as well as at bilateral level. The Government considers it important to ensure that It is important that indigenous and local communities Norway pursues a clear and consistent policy towards are able to participate meaningfully in international climate China in the Arctic as elsewhere. It is important to ensure change efforts, to demonstrate what they have to contribute a nuanced, fact-based debate on China’s role in the Arctic. and highlight the importance of traditional knowledge and their own efforts to address climate change. The Sámediggi is consulted as part of the Norwegian preparations for the 3.11 Indigenous peoples international climate negotiations, and is often represented Four million people currently live in the circumpolar Arctic. on the Norwegian delegation. The Sámediggi played an Around 10 % are indigenous peoples. Between 40 and 90 active role in the establishment of the Local Communities indigenous languages are spoken in the Arctic, depending and Indigenous Peoples Platform under the United Nations on the method used to classify languages and dialects. The Framework Convention on Climate Change (UNFCCC). 022 / The Norwegian Government’s Arctic Policy POLICY MEASURES INCLUDE: „ work to ensure that the Arctic Council remains the most important intergovernmental body for coopera- „ continue to pursue a policy that promotes security, tion in the region, that the Council’s mandate remains stability and interest-based cooperation in the Arctic; unchanged and that the Norwegian Chairmanship in „ highlight the fact that North Norway is home to a the period 2023–2025 helps to strengthen the Council’s substantial part of Norway’s population and has an work; important role to play in terms of ensuring job and value „ within the framework of the Arctic Council, strengthen creation at the national level; Arctic cooperation on ocean issues and climate change, „ continue to promote a knowledge-based international and promote sustainable business development in the debate on the Arctic, for example through cooperation Arctic that combines conservation and sustainable use and dialogue with the other Arctic states; to the benefit of both individuals and local communities; „ maintain and develop cooperation with US military „ support the work of the Arctic Council’s working groups, forces and those of other Allied countries on carrying which produce in-depth knowledge about the natural out training and exercises in the north, as a crucial part environment and sustainable development in the Arctic; of the efforts to ensure the defence of Norway; „ maintain Norway’s dialogue with the EU and key mem- „ facilitate and seek to exercise influence on the Allied ber states on the EU’s Arctic policy; military activity carried out in the Arctic; „ follow up and participate in the efforts to implement the „ support cross-border bilateral cooperation with Russia European Green Deal – the EU’s plan to make the EU’s in the north; economy sustainable, which is also important for Nor- way. Highlight the relevance of the Arctic to the targets „ support cross-border cooperation and the easing of and measures set out in the European Green Deal and border obstacles in the North Calotte region through help increase the value of Norwegian exports; dialogue with the northernmost counties and munici- palities and the Sámediggi (Sami parliament); „ maintain Norway’s participation in the EU’s Interreg pro- gramme (Interreg VI 2021–2027), including the Kolarctic, „ continue to support the Barents cooperation and project the Interreg Nord (Sweden-Finland-Norway) and the activity together with regional stakeholders to ensure Northern Periphery and Arctic programmes; effective coordination of Norwegian efforts and partici- pation; „ promote and strengthen international cooperation on indigenous issues and put forward Norway’s views in „ continue efforts to further encourage international inter- relevant forums. est in the cultural scene in North Norway; People, opportunities and Norwegian interests in the Arctic \ 023

4. Climate and environment in the Arctic 4.1 Climate change is creating All these processes are resulting in rapid change in Arctic new challenges in the Arctic ecosystems and the loss of suitable habitat for Arctic spe- The Arctic is warming at more than twice the global aver- cies. Some areas in the far north of mainland Norway may age rate, and major impacts are becoming apparent: the warm by more than 6 oC by 2100 relative to the period extent of the sea ice is shrinking, snow and glaciers are 1971–2000. The severity of the impacts of climate change melting, the permafrost is thawing, precipitation patterns on North Norway will depend on society’s adaptive capacity, are changing and wildfires are becoming more frequent. in other words its capacity to reduce vulnerability through 024 / The Norwegian Government’s Arctic Policy adaptation to climate change. Climate change adapta- Temperature anomalies in the period 1961–1990 (°C) tion and mitigation efforts will need to be carried out in 5°C parallel. To avoid losing the Arctic as we know it today, it is vitally important that the world succeeds in achieving 4°C the long-term temperature target of the Paris Agreement. The Government will take steps to ensure that Norway’s 3°C greenhouse gas emissions are reduced in line with national targets and international commitments. Norway’s target for 2°C 2030 under the Paris Agreement is to reduce greenhouse gas emissions by at least 50 % and towards 55 % by 2030 1°C compared with the 1990 level. Norway is cooperating with the EU to achieve this target. The Government intends to 0°C transform Norway into a low-emission society by 2050, where greenhouse gas emissions have been reduced by 90–95 %. -1°C The Arctic states account for 10 % of global emissions 1961 1970 1980 1990 2000 2010 2019 of black carbon, but these emissions are causing 30 % of Svalbard Arctic Globally the warming effect of black carbon in the Arctic. Norway Source: NASA/GISS (GISTEMP), NOAA/ESRL (NCEP Reanalysis), The Norwegian Meteorological Institute is cooperating with the other Arctic states on reducing black carbon emissions, and has played a leading role in phere. The northern seas are particularly vulnerable to the Arctic Council’s work on short-lived climate forcers. ocean acidification because water can absorb more CO2 at Norway has already implemented a number of measures lower temperatures. According to the Intergovernmental to reduce its own black carbon emissions, which are now Panel on Climate Change (IPCC), these changes pose a lower than those of the large Arctic states, both in total and threat to Arctic fisheries and may have implications both measured per capita. The Arctic Council’s collective goal for for economies and societies in the region and for global black carbon emissions does not specify national targets supplies of fish and seafood. for each country, but Norway is well on the way to reducing its black carbon emissions by more than 25 % by 2025. 4.3 Loss of biodiversity Human activity in combination with climate change is 4.2 Warmer and more acidic oceans putting growing pressure on the natural environment in There is hardly a habitat type on Earth that is changing North Norway. Unless emissions are cut rapidly, many as rapidly as the Arctic sea ice. The water temperature species and ecosystems may disappear from large parts has been rising particularly fast in the Barents Sea, and of the Arctic. Some Arctic species are at risk of extinction. the sea ice is retreating. Arctic species from ice algae to This applies particularly to ice-dependent species such as polar bears are being displaced northwards. Changes in the polar bear and ringed seal. As yet, few alien species the ocean environment are being intensified by ocean have been found in the Arctic, but the spread of alien acidification, which is caused by seawater becoming more species is expected to increase as the climate warms and acidic when it absorbs carbon dioxide from the atmos- human activity increases in the region. People, opportunities and Norwegian interests in the Arctic \ 025 4.5 Global agreements on hazardous substances have had a positive effect in the Arctic Local sources of pollution in the Arctic are small compared with those in other regions, but there are considerable inputs of long-range transboundary pollution from else- where with ocean currents, the atmosphere and rivers. One result has been the accumulation of pollutants such as mercury and PCBs in apex predators in food chains. Despite this, the Arctic is still one of the least polluted areas of the world. The Arctic Council’s assessments of pollution show that levels of many hazardous substances in the Arctic are declining, but in some cases there is cause for concern. The impacts of climate change are by far the greatest threat to There are still high levels of pollutants such as mercury biodiversity in the north. Without rapid cuts in emissions, many species and ecosystems may gradually disappear from large areas of the Arctic. and PCBs in species such as polar bear, beluga, orca and Here, a tern chick being fed. a number of seabird species. Moreover, new substances PHOTO: GEIR WING GABRIELSEN, NORWEGIAN POLAR INSTITUTE are constantly being developed and taken into use. Some 4.4 Marine litter and the spread of microplastics of them have properties that allow them to be transported Marine litter and the spread of microplastics is a growing over long distances in the atmosphere and with ocean environmental problem in the Arctic. Globally, the largest currents, so that they could potentially harm people and sources of marine litter are countries that do not have animals in the Arctic. satisfactory waste management systems, but ocean-based activities appear to be one of the main sources in the Arctic. Investigations have shown that fishing gear that 4.6 Integrated approach to management of drifts ashore in Svalbard originates from both Norwegian the natural environment in North Norway and foreign vessels in the Barents Sea. Plastic waste and An integrated approach to management of the natural microplastics are also transported to the Arctic from other environment in North Norway is a vital basis for maintaining parts of the world with ocean currents. satisfactory ecological status and trends and for combin- At regional level, Norway is playing a leading role in the ing sound environmental management with other public Arctic Council’s work on an action plan to combat marine interests and user interests. The Government will develop litter and microplastics in the Arctic. Following an initiative a framework for integrated environmental management by Norway, active Norwegian-Russian cooperation on plans for Norwegian nature. Area-based protection under marine litter has been established. Norway has provided the Nature Diversity Act is an important instrument for funding to establish cooperation between research and safeguarding the most valuable habitats and ecosystems. knowledge institutions, the business sector (including the Protected areas must be used in ways that both reinforce fishing industry) and the authorities. their conservation value and provide a basis for value creation. Establishing nature reserves, national parks and other protected areas safeguards the conservation 026 / The Norwegian Government’s Arctic Policy Efforts to combat marine litter are a high priority for the Government, and funding and activities in this area have increased significantly in recent years. PHOTO: ANN KRISTIN BALTO, NORWEGIAN POLAR INSTITUTE value of these areas at both national and international the Norwegian Sea; and the North Sea and Skagerrak (Meld. level. In all, 15 % of the land area of the two northernmost St. 20 (2019–2020)). The white paper redefines the way the counties, Nordland and Troms og Finnmark, is protected. boundary of the marginal ice zone as a particularly valuable There are 18 national parks in North Norway. In addition, and vulnerable area is delimited, which is also used in the national parks and large nature reserves cover 65 % of framework for petroleum activities in this area. Another the land area of Svalbard. They have been established to measure is that the areas where no exploration drilling safeguard the large areas of largely undisturbed Arctic will be permitted in the breeding season for seabirds have environment on the archipelago. been extended to 100 km from the baseline off the coast of Troms og Finnmark county. This change will be recon- sidered when the review of all the particularly valuable 4.7 Integrated ocean management and vulnerable areas has been completed. Restrictions on in Norwegian waters when exploration drilling is permitted in a zone between The purpose of Norway’s integrated ocean management 65 km and 100 km from the baseline around Bjørnøya plans is to provide a framework for value creation through were introduced in connection with the 24th licensing sustainable use while maintaining the high environmental round, and have been maintained in the white paper on value of Norway’s marine areas. In spring 2020, the Gov- the ocean management plans. The rest of the framework ernment presented the white paper Norway’s integrated for petroleum activities in the Barents Sea–Lofoten area ocean management plans for the Barents Sea–Lofoten area; and the Norwegian Sea has been retained. People, opportunities and Norwegian interests in the Arctic \ 027 Research and development institutions in North Norway provide strategically important knowledge about climate change and the environment in the Arctic. This knowledge plays a vital role in ensuring sound environmental and natural resource management, effective social development planning, adequate climate change adaptation and emergency preparedness in the north. PHOTO: AKVAPLAN-NIVA, NORWEGIAN INSTITUTE FOR AIR RESEARCH (NILU) AND HELGE M. MARKUSSEN, FRAM CENTRE. POLICY MEASURES INCLUDE: adaptation in ocean industries and ocean-dependent sectors of society; „ ensure sound, integrated management of all activity in the Norwegian part of the Arctic, in order to maximise „ as part of work on the ocean management plans, con- value creation within an environmentally sustainable duct a risk analysis for the management plan areas of framework; direct and indirect effects of climate change on marine ecosystems and other relevant factors under different „ reduce greenhouse gas emissions in accordance with emission scenarios; national targets and international commitments, and continue initiatives that play a part in reducing green- „ play a leading role in environmental cooperation house gas emissions in the Arctic; under the Arctic Council, in the bilateral environmental cooperation with Russia and in global efforts to limit „ develop a more integrated knowledge base for ecosys- greenhouse gas emissions and releases of hazardous tem-based management of the natural environment in substances that pose an environmental threat in the North Norway; Arctic; „ continue to monitor climate change and ocean acidifica- „ continue the Arctic cooperation on a network of tion in Arctic seas; protected areas and ecosystem-based management „ work to ensure climate-resilient management of living under the Arctic Council, and the Norwegian-Russian marine resources and marine biodiversity; cooperation on the scientific basis for ecosystem-based management of the Barents Sea; „ continue work on the establishment of marine protected areas; „ support the collective goal of the Arctic Council on reduction of black carbon emissions in the Arctic; „ improve weather forecasts, emergency preparedness and predictions of extreme weather events by establish- „ play a leading role in the Arctic Council’s work on an ing a radar station on the Finnmarksvidda plateau; action plan to combat marine litter and microplastics in the Arctic. „ further develop the knowledge base for climate change 028 / The Norwegian Government’s Arctic Policy

5. Social development in the north In order to promote sustainable communities in North panel’s report made it clear that, among other things, Norway, it is essential that young people and young adults young people want to be included more widely in inter- invest their futures in the region. In connection with the national cooperation in the Arctic and that steps must preparation of the white paper, the Government set up be taken to integrate the Sami people’s way of life as a youth panel to provide input and recommendations a natural part of Norwegian identity and culture. The for developing Norway’s Arctic policy for the future. The youth panel also highlighted the need to enhance the People, opportunities and Norwegian interests in the Arctic \ 029 regional centre can enhance access to labour throughout the region as a whole. ‘It is important to decentralise educational Sami language and culture programmes. People should The Sami language is part of Norway’s national cultural not have to choose between heritage. The Sami Act stipulates that the Sami and Nor- pursuing an education or wegian languages have equal status in Norway. Sami art continuing to live in their and culture encompass voices and experiences that are home districts.’ an important part of Norway’s national narrative. These cultural expressions are of great value to society as a whole and to the ongoing effort to revitalise Sami language and culture. Sami institutions, artists and cultural practitioners play a vital role in disseminating Sami art, culture, cultural heritage and history in Norway, across national borders – Youth panel for the white paper on Arctic policy in Sápmi (the homelands of the Sami people) and at the international level. Kven language and culture framework for education and skills development in the The Kven language is recognised as a minority language outlying districts and to improve conditions for young in Norway, and it is also protected under the European entrepreneurs in the north, including ensuring better Charter for Regional or Minority Languages, which Norway access to capital. ratified in 1993. Today, there are few active users of the The Government supports a number of international Kven language, and it is regarded as endangered. However, networks and programmes that facilitate cross-border steps are being taken to revitalise Kven as a language. In cooperation between young people in the north, for exam- January 2018, the Government presented a targeted plan ple within the framework of the Barents cooperation and for these efforts for the period 2017–2021. through EU programmes such as Interreg Europe and Erasmus+. History and identity The Government promotes the development of envi- The efforts of researchers and writers in recent years ronmentally friendly towns and cities across the country have helped to expand national understanding of the that provide a good quality of life for people and good important role that North Norway played during the five conditions for businesses. Viable cities and urban centres years of German occupation during the Second World have important functions, attract people and businesses War. In 1941, Germany attacked the Soviet Union across and promote regional balance. Compact cities and towns a broad front. The northern areas of Norway were a with pleasant physical surroundings, a vibrant centre, a priority in Hitler’s strategic planning. At the height of wide range of good housing options and access to a broad the German occupation, the occupying forces in North selection of goods and services and cultural and leisure Norway numbered around 150 000. For a short period activities are important for several reasons. An attractive during the German retreat, this number rose to approxi- 030 / The Norwegian Government’s Arctic Policy POLICY MEASURES INCLUDE: „ further develop opportunities for cross-border contact and cooperation between young people, for example within the framework of the Barents cooperation and EU programmes such as Interreg Europe and Erasmus+; „ provide up to NOK 100 million, over the period 2022– 2024, to Bodø, in its capacity as the European Capital of Culture in 2024; „ draw up a strategy for small cities and urban centres; „ support regional cooperation between the business sector, counties and municipalities and universities and university colleges to promote the development of flexible study programmes; „ assess the extent to which a lack of housing makes it difficult for employers in the outlying districts to recruit labour; „ support the efforts of the County Governors of Nordland and of Troms and Finnmark to facilitate more system- Tromsø is an important growth centre in the north. The city is Norway’s atic cooperation between the municipalities in North Arctic capital and is home to the Fram Centre, UiT - The Arctic University Norway, in order to provide high-quality services to the of Norway, the secretariats of the Arctic Council and the Arctic Economic population and promote business development; Council, Arctic Frontiers and the Arctic Mayors’ Forum. PHOTO: AUDUN RIKARDSEN „ engage in consultations with the Sámediggi (Sami parliament) with the aim of mapping existing expertise on Sami language and culture and assessing the need to mately 330 000. The youth panel set up in connection further develop knowledge in this area; with the preparation of the white paper on Arctic policy „ explore measures that can adequately provide reindeer highlighted in particular the importance of promoting herders with the assistance they need to deal with the deeper, more widespread knowledge about the impacts authorities and the interests of developers; of the war in the north, pointing out how crucial this is „ draw up new guidelines for development planning in to young people’s understanding of their history and reindeer husbandry areas, including the need to carry identity. out impact assessments to identify any impacts on reindeer husbandry; „ present a bill amending the Sami Act to incorporate a separate chapter on consultations, with the purpose of promoting more effective consultations between the public authorities and the Sámediggi or other affected Sami interest groups. People, opportunities and Norwegian interests in the Arctic \ 031

6. Value creation and competence development In the period 2008–2018, economic growth in the counties There is potential for substantial value creation, both in North Norway was higher than growth in the mainland onshore and offshore, and to increase positive spin-off economy as a whole. The Government will work to create effects by encouraging cooperation at various stages of a framework that enables companies in North Norway to the value chain. The EEA Agreement has played a crucial further realise their potential in the years ahead across role in terms of facilitating exports from North Norway a wide range of industries: ocean-based industries, the and thus also in terms of job creation and welfare. maritime sector, petroleum, green power-intensive manu- Oil and gas activities and development projects on the facturing, mineral extraction, agriculture, tourism, space continental shelf will open up major opportunities for infrastructure and the services sector. companies and the industry on the mainland. These activi- 032 / The Norwegian Government’s Arctic Policy ‘We have to create jobs and produce end-use goods locally, where the industries are located. The region’s resources must benefit those of us who live here.’ – Youth panel for the white paper on Arctic policy ties will also promote the development of a knowledge- based industrial structure in North Norway. The Johan Castberg field in the Barents Sea, which is currently under development, will further strengthen the industry in the A recently hatched salmon larva still carrying part of its yolk sac. This is region and lead to the creation of new jobs. The planning an important source of food in the early days of larval life, and remains phase for developing other discoveries in the Barents Sea, attached to the larva until the contents have been absorbed. From Sundsfjord Smolt AS, Gildeskål, Nordland. including the Wisting discovery, is well under way. Final PHOTO: ARNE SKLETT LARSEN investment decisions on these development projects will promote further growth in this sector. growth in the north, it will be important to forge closer North Norway has a long tradition of sound and sustain- links between the business sector, the research community able resource management and business activity. Promot- and knowledge institutions. ing climate-friendly, sustainable production of goods and The share of exports from North Norway is higher than services will be a key element of business development the national average. In the time ahead, the level of activity in all sectors. The Government will continue to facilitate in export-oriented industries in the north, such as the innovation, entrepreneurship and start-ups in the north seafood industry and the processing industry, will largely and will promote a well-functioning capital market. depend on developments in the global economy and the Ensuring access to labour with the necessary skills and supply and demand situation in various markets. In autumn expertise will be a key challenge in securing further growth 2020, the Government presented an export action plan in the business sector in North Norway. In order to realise that sets out measures to support the Norwegian business sector during and after the coronavirus crisis and aims to increase the number of competitive industries that are able to export goods and services in demand in global markets. ‘Young entrepreneurs need capital and access to innovative The coronavirus pandemic has entailed major setbacks start-up communities. and poses extra challenges for the business sector in North We should not have to move Norway as elsewhere in the country. However, this does to Oslo to turn our ideas into not affect the future potential for sustainable growth and business ventures.’ job creation in the region’s business sector. In the time – Youth panel for the white paper on Arctic policy ahead, it will be vital to learn, adapt and lay the foundation for continued green and sustainable growth. People, opportunities and Norwegian interests in the Arctic \ 033 POLICY MEASURES INCLUDE: „ promote the development of Sami industries, including ecologically, economically and culturally sustainable „ work to create a framework that enables the business reindeer husbandry ; sector in North Norway to further realise its potential for sustainable value creation in the years ahead; „ follow up the conditional pledge of funding for the establishment of Andøya Space Port, a launch site for „ work to ensure that the maritime industry in the north small satellites at Andøya Space Center; becomes an important hub for sustainable blue growth in North Norway; „ assess the need for better national and cross-sectoral facilitation for small satellites, in part to meet user needs „ promote increased value creation in the seafood indus- in the Arctic and at sea; try in North Norway; „ maintain Norway’s participation in the EU Space „ improve resource control as a key component in sustain- Programme for the coming 2021–2027 period, which able management of fish stocks and to ensure equal encompasses participation in all the flagship pro- conditions of competition in the fisheries sector; grammes: Galileo and EGNOS (satellite navigation), „ promote green innovation, entrepreneurship and new Copernicus (earth observation), GOVSATCOM (satellite start-ups in North Norway; communications) and Space Situational Awareness (SSA); „ continue to give priority to marine research because „ take steps to ensure that Norwegian actors can partici- research and knowledge are crucial for ensuring pate in, and compete for contracts under, the Coperni- sustainable management of fisheries and other marine cus programme, with a view to improving Arctic climate resources; and environmental modelling, and thus also the basis for decision-making to be used by the environmental „ facilitate profitable production of oil and gas, for exam- authorities; ple by maintaining predictable framework conditions for the petroleum industry and continuing the regular „ strengthen cooperation between the Norwegian Armed licensing rounds on the Norwegian continental shelf, Forces, the business sector and the research and in order to give the industry access to new exploration development institutions in North Norway, including areas; assessing the potential for a defence industry cluster; „ maintain petroleum-related research and competence „ encourage cooperation on recruitment and talent development in and focusing on the Arctic under the development across institutions and sectors with a view existing framework and instruments; to increasing access to relevant skills and knowledge in North Norway; „ consider opening new sea areas off the coast of Helgeland in Nordland county for offshore wind power „ set up an investment fund with both public and private development; capital to be managed from North Norway; the Govern- ment will determine the fund’s focus and budgetary „ carry out a thorough review of the Mineral Resources framework in the revised budget for 2021; Act with a view to strengthening the framework for sustainable and profitable mineral exploitation in the „ draw up a report on the early-stage capital market in future, including an assessment of issues relating to North Norway and evaluate the measures that have Sami rights and interests; been implemented to increase access to capital once the investment fund is in place and has begun to take effect; „ facilitate exploration and extraction of minerals from the seabed and carry out an opening process for mineral „ support the establishment of an Arctic Investment extraction on the Norwegian continental shelf under the Platform; Seabed Minerals Act; „ facilitate closer cooperation between employers, the „ promote increased value creation in the agricultural business sector and higher education to meet society’s sector in North Norway using production methods that need for skills and knowledge and to promote targeted are adapted to the natural conditions; student education programmes. 034 / The Norwegian Government’s Arctic Policy

7. Infrastructure, transport and communications There are long distances between communities and to business development and discourage people from set- economic centres in North Norway, and the region has tling in North Norway. Measures that aim to develop and a relatively small population. Despite this, the level of improve the quality of infrastructure must be prioritised, business activity is high, and there is a significant potential weighted and considered on the basis of a range of factors, for economic growth. However, high transport costs for not just the socio-economic benefits. the business sector and the population and unpredictable The Government gives priority to involving and maintain- weather conditions during the winter may pose obstacles ing a dialogue with the counties in North Norway, which People, opportunities and Norwegian interests in the Arctic \ 035 POLICY MEASURES INCLUDE: „ prepare a conceptual appraisal report on future transport solutions covering all aspects of the transport system in North Norway, including an assessment of the proposed new stretch of railway from Fauske to Tromsø (Nord-Norgebanen); „ continue to provide substantial funding for the develop- ment of the road network in North Norway, including the county road network; „ consider measures to support the testing and phasing in of low- and zero-emission aircraft; Bøkfjord Bridge between Kirkenes and Murmansk is the result of dec- „ in connection with the work on the National Transport ades of cooperation between the Norwegian and Russian road authori- Plan, consider appropriate projects, for example relating ties and is a good example of Norway’s Arctic policy in practice and of to fishing ports, in line with the state’s responsibility for successful collaboration between neighbours in the border areas. improvements in navigable waters under the new Act PHOTO: NORWEGIAN PUBLIC ROADS ADMINISTRATION relating to ports and navigable waters; are responsible for the county road network and for public „ continue efforts to strengthen preparedness and response to acute pollution in the Arctic; transport, for example in connection with processes such as the preparation of the National Transport Plan. The same „ further develop the Norwegian Centre for Oil Spill Pre- paredness and Marine Environment with facilities both applies vis-à-vis the Sámediggi (Sami parliament) in cases in Lofoten and Vesterålen, including the test centre for where transport infrastructure projects have implications oil spill response technology at Fiskebøl (Lofoten), and for traditional Sami areas and Sami living conditions. The consider measures to concentrate the centre’s activities on marine litter; Government will continue to work to limit any negative impacts on the environment or on Sami interests when „ in connection with the licensing process for wind power projects, work to increase local and regional involvement planning and implementing infrastructure projects. and give greater consideration to reindeer husbandry Reliable energy supplies are essential for maintaining interests; almost all critical societal functions. North Norway generally „ consider introducing a universal service obligation for has a reliable, secure energy supply and the region has broadband; abundant access to renewable energy resources. These „ ensure that all municipalities in Finnmark have a resources are spread over vast areas, and a long-distance designated area with more robust and secure electronic transmission grid is needed to deliver power to the places communications. where it is used. Due to the long distances and low population density in the region, access to adequate, secure electronic com- munications networks (broadband and mobile) is crucial for job creation in urban centres and outlying areas in North Norway. The Government’s efforts to improve digital infrastructure will help to enhance value creation and increase mobility for people and businesses in the north. 036 / The Norwegian Government’s Arctic Policy

8. Civil protection Long distances, difficult climatic conditions, and extended Today, most maritime traffic in the Arctic passes through periods of darkness present unique challenges when sea areas that fall under Norwegian search and rescue it comes to preventing and responding to undesirable (SAR) jurisdiction. The fishing fleet is operating further incidents in the north. The Government will facilitate north, cruise traffic has increased considerably, and new coordination and cooperation between different sectors shipping routes are being considered as the ice melts. In and levels of the government administration and across addition, expedition voyages with small and medium-sized borders in the north. passenger ships carrying from 12 to 300 passengers have People, opportunities and Norwegian interests in the Arctic \ 037 become more popular. The rise in maritime activity could where recovered oil and waste can be deposited. Varying increase the frequency of accidents. Against this backdrop, ice conditions also mean that material and vessels for the Government has appointed a committee to consider dealing with oil spills must satisfy special requirements. SAR-related challenges arising from the growth in cruise Greater attention is also being directed to North Norway traffic in Norwegian waters. in the efforts to promote food security. The extensive Helicopter search and rescue capacity in the Arctic will cross-border cooperation on public health preparedness also be strengthened through various temporary and per- and response will be maintained. manent measures. Coverage for communications services POLICY MEASURES INCLUDE: is poor in remote sea areas in the north where weather „ further expand Norway’s leading role in international conditions are severe. Satellite-based coverage decreases cooperation relating to maritime security and environ- north of 72°N (just south of Bjørnøya) and is limited and mental protection in the Arctic; unstable north of 75°N. Radio communications systems „ consider the need to improve the framework for the also have limited range in the sea areas in the far north. testing of maritime equipment and the need for joint Reliable, easy-to-use communications systems are crucial exercises in which vessels train for operations in Arctic waters, including SAR operations; when incidents occur. The governmental preparedness and response system „ improve emergency communications in northern waters by expanding high-frequency (HF) radio communications for acute pollution is designed to prevent and limit envi- coverage and monitoring call and distress channels from ronmental damage in the event of oil spills and other coastal radio stations, also using HF; pollution incidents. However, there are long distances „ establish broadband capacity for both civilian and between potential discharge points and resources such military users in the Arctic, starting in 2023; as depots, personnel, repair facilities, airports and sites „ phase in the new SAR helicopters, which will significantly strengthen SAR capacity; „ work towards the establishment of a new rescue heli- copter base in Tromsø that will enhance SAR helicopter capacity in the north; „ further develop cooperation on addressing common SAR challenges in the Arctic under agreements relating to international SAR cooperation in the northern sea areas; „ follow up Norway’s responsibility to organise the joint emergency response exercise Barents Rescue in 2022, involving the countries of the Barents region, in accord- ance with the agreement between Finland, Norway, Russia and Sweden; „ continue the annual SAR exercises between Norway and Russia in the outer parts of the Varanger Fjord in order Maintaining an effective preparedness and response system for acute to strengthen SAR preparedness and mutual assistance pollution such as oil spills is an important priority for the Government. in the event of an accident in the Barents Sea. Great importance is attached to international cooperation on emer- gency preparedness and response. From Exercise Barents 2019. PHOTO: THOMAS NILSEN 038 / The Norwegian Government’s Arctic Policy Published by: Norwegian Ministry of Foreign Affairs Public institutions may order additional copies from: Norwegian Government Security and Service Organisation www.publikasjoner.dep.no Telephone: + 47 22 24 00 00 Publications are also available on: www.government.no Publication number: E-1001 E Design and illustration: Melkeveien Designkontor as Print: Norwegian Government Security and Service Organisation 01/2020 – Impressions 300