# EUR-Lex - 52012JC0019 - EN

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# 52012JC0019

**JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Developing a European Union Policy towards the Arctic Region: progress since 2008 and next steps /* JOIN/2012/019 final */**

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JOINT COMMUNICATION TO THE EUROPEAN
PARLIAMENT AND THE COUNCIL

Developing a European Union Policy towards
the Arctic Region: progress since 2008 and next steps

Executive Summary

As climate change and economic development
accelerate in the Arctic region, the European Union should step up its
engagement with its Arctic partners to jointly meet the challenge of
safeguarding the environment while ensuring the sustainable development of the
Arctic region. Nowhere is climate change more visible than in the Arctic, which
is a vital and vulnerable component of the Earth's environment and climate
system. The melting of the Arctic sea ice is progressing rapidly, resulting in
self-accelerating global warming[1],
and affecting ecosystems as well as the traditional livelihoods of indigenous peoples.

This joint Communication of the Commission
and the High Representative sets out the case for increased EU engagement in
Arctic issues. It follows an application by the European Commission on behalf
of the EU for permanent observer status on the Arctic Council co-signed by Vice
President Ashton and Commissioner Damanaki as well as a visit by High
Representative / Vice President Ashton to the Arctic (Rovaniemi, Kiruna and
Svalbard) in March 2012. Since 2008, when the Commission adopted its first
Communication on the Arctic, the EU has established itself as a key supporter
of the Arctic region. It has raised awareness of the impact it is having on the
Arctic environment and of the potential for sustainable development in the Arctic
region for the benefit of both the local Arctic population and the EU.

Indeed, the rapidity of change in the
Arctic provides a strong rationale for the EU's commitment to environmental
protection and the fight against climate change. It also calls for increased EU
investment in climate change research in the Arctic, as a basis for further
global and regional action.

· 2005-2010 has been the warmest period ever recorded in the Arctic. · The Arctic Ocean is projected to become nearly ice-free summer within the next 30 to 40 years. · Arctic glaciers, ice caps and the Greenland Ice Sheet contributed over 40% of the global sea level rise observed between 2003 and 2008. (Source: Arctic Monitoring and Assessment Programme, 2011 assessment of the impacts of climate change on Snow, Water, Ice and Permafrost in the Arctic (SWIPA))

The changing Arctic landscape is now
opening up to new transport lanes and the exploitation of both natural and
mineral resources. While this will be of benefit for the regional and global
economy, it will also have repercussions on the Arctic's fragile environment if
not managed with the utmost care. New technology and an extensive knowledge
base will be required to ensure economic opportunities do not come at the
expense of the highest environmental standards and the preservation of the
unique Arctic environment.

· According to the US Geological Survey (2009), the Arctic holds 13% of undiscovered oil and 30% of undiscovered gas supplies. · Extending from Europe to Asia, the Northern Sea Route could shorten the time taken by cargo vessels to travel between the Pacific and the Atlantic by about one third. For instance, the Yokohama-London route via the Suez Canal is 11,447 nautical miles and would be around 7,474 nautical miles via the Northern Sea Route. · 88% of the EU’s total output of iron ore is produced in the Barents Region. · There are approximately 4 million people living in the Arctic. Indigenous peoples make up about 10% of the total Arctic population.

The Arctic is
an area of growing strategic importance. It is an example of successful
international co-operation contributing to peace and security in the region.
The recent conclusion of the Treaty between the Kingdom of Norway and the
Russian Federation concerning Maritime Delimitation and Cooperation in the
Barents Sea and the Arctic Ocean is a positive example of such cooperation.
Arctic states co-operate on the basis of the existing international legal
order, notably the UN Convention on the Law of the Seas. The Arctic Council is
emerging as the leading regional body, in which all Arctic states, as well as
indigenous peoples, are represented.

The European Union has an important role to
play in supporting this successful co-operation and in helping to meet the
challenges that now confront the region. The European Union is the world’s
strongest proponent of greater international efforts to fight climate change,
through the development of alternative energy sources, resource efficiency and
climate change research. It has three (and with Iceland potentially four)
Arctic Council states amongst its members. The European Union is also a major
destination of resources and goods from the Arctic region. Many of its policies
and regulations therefore have implications for Arctic stakeholders. The
European Union wants to engage more with Arctic partners to increase its
awareness of their concerns and to address common challenges in a collaborative
manner.

Elements of the EU’s Arctic contribution : – Fighting climate change: The EU is on track to meet its Kyoto target, has incorporated its 20% greenhouse gas reduction commitment into law and is committed to the long-term target of 80-95% reduction of its emissions by 2050. – Research on the Arctic environment: The Commission has carried out a pioneering assessment of the EU’s current and future Arctic footprint which shows that the EU has a significant impact on the socio-economic and environmental aspects of the Arctic region. – Investing in sustainable development in the North: The EU is providing over €1.14 billion to develop the economic, social and environmental potential of the Arctic regions of the EU and neighbouring areas for 2007-2013. – Reducing future uncertainties and monitoring changes in the Arctic region: The EU, through the Seventh Framework Programme (FP7), has contributed around €200 million of EU funds to international research activities in the Arctic. – Shipping and maritime safety: As almost 90% of EU external trade is carried out at sea, the EU has significant experience in shipping, ship-building, satellite navigation, search and rescue as well as port infrastructure development.

This Communication reviews the EU's
contribution to the Arctic since 2008, and sets a path for future engagement
with Arctic partners. Taking a comprehensive approach to Arctic issues, this
new Joint Communication underlines the need for a coherent, targeted EU
approach towards the Arctic, building on the EU’s strengths, promoting
responsible development while engaging more extensively in dialogue and
cooperation with all Arctic stakeholders.

The Commission and High Representative are proposing to further develop the EU’s policy towards the Arctic. The EU will – Support research and channel knowledge to address the challenges of environmental and climate changes in the Arctic; – Act with responsibility to contribute to ensuring economic development in the Arctic is based on sustainable use of resources and environmental expertise; – Intensify its constructive engagement and dialogue with Arctic States, indigenous peoples and other partners.

In the first part of this Joint
Communication, the Commission and High Representative propose a set of building
blocks for the EU's constructive engagement in the Arctic to tackle the
challenge of sustainable development and to promote the effective stewardship
of the ecosystem.

The second part of the Communication
responds to the Council’s request for follow-up to its Conclusions on Arctic
issues[2]
and the European Parliament's Resolution on a sustainable EU policy for the
High North[3].
It highlights the increasing range of activities the EU is undertaking in the
region and reviews the issues outlined in the Commission Communication on
"The EU and the Arctic Region", published in November 2008[4]. Further detailed information
on the progress made in the policy areas mentioned in this Communication is
included in two accompanying documents:

1. Staff Working Document 'Inventory of
activities in the framework of developing a European Union Arctic Policy';

2. Staff Working Document 'Space and the
Arctic'.

The Commission
and High Representative will moreover engage in a broad dialogue and
consultation process with Arctic states, indigenous peoples and other relevant
stakeholders. This will assist the EU in further refining its policy stance and
ensure that the EU's future contribution to the Arctic has the support of
regional stakeholders and is supportive of the common actions of Arctic states.

The Commission and High Representative look
forward to discussions with the Council and European Parliament on this
Communication.

Part 1 Meeting the challenge: the Way Forward

In 2008, the Commission set out three main
policy objectives:

–
protecting and preserving the Arctic in unison
with its population;

–
promoting the sustainable use of resources;

–
international cooperation.

EU action since 2008 has led to tangible
results[5]
in the fields of environmental protection, research, and economic development,
and the particular emphasis on the protection of the Arctic environment remains
the cornerstone of the EU’s policy towards the Arctic. However, given the
evident speed of change in the Arctic, the time is now ripe to refine the EU's
policy stance towards the region, take a broader approach, and link it with the
Europe 2020 Agenda for smart, sustainable and inclusive growth while continuing
to support every effort to ensure the effective stewardship of the fragile
Arctic environment. In addition, the EU's contribution on Arctic issues should
be supportive of the efforts of Arctic states and take account of the needs of
indigenous and local communities.

This document therefore briefly sets out a
way forward that can be summarised in three words: knowledge, responsibility
and engagement.

1.           KNOWLEDGE

Faced with
potential global temperature rises, robust scientific understanding is needed
of the scale and speed of climate change in the Arctic and how this is
affecting the rest of the world. Sustainable development in the Arctic will
rely heavily on continuous measurement of how increasing human activity is
affecting the region's fragile environment. The EU will therefore target its
actions on knowledge: to further our understanding of the Arctic by investing
in Arctic research, developing Arctic monitoring from space, supporting
information and observation networks, while building know-how and technical
expertise.

1.1         Developing environmental
expertise and dialogue and enhancing the protection of the Arctic environment

The EU is
committed to protecting the global environment and will support every effort to
ensure the effective stewardship of the fragile Arctic environment.

·
The EU will work with others to combat global
climate change, to safeguard the Arctic environment, and to improve scientific
knowledge to meet these challenges.

·
For instance, in April 2012 the European
Commission joined the Climate and Clean Air Coalition to Reduce Short-Lived
Climate Pollutants. This initiative should complement the necessary UN efforts
to reduce global greenhouse gas emissions.

·
The EU is committed to establishing a legally
binding global instrument to cover the life-cycle of mercury use under the
auspices of the United Nations Environment Programme (UNEP), which is of
particular importance to the Arctic region.

1.2         Meeting tomorrow's
challenges through research

Under the Europe 2020 flagship initiative
"Innovation Union"[6]
and Horizon 2020[7],
the proposed investment programme for research and innovation for 2014-2020,
the Commission is refocusing the EU's research and innovation policy on the
challenges facing our society. These include climate change, energy and
resource scarcity, health and demographic change, as well as water and food
security. Policy-relevant results will be sought in order to inform economic
and political decision-making. The proposed funding for Horizon 2020 (€80
billion) represents a significant increase on previous EU research programmes,
and will allow the EU to make an even more significant contribution to Arctic
research. The Commission will also:

·
continue its outreach to other parts of the
world, including Arctic Council members, in pursuit of international solutions
to societal challenges that transcend Europe;

·
step up cooperation with Arctic partners on the
roll-out of research infrastructures which need to be developed on an
international scale.

The EU will therefore seek broad
cooperation with states that are active in the field of multidisciplinary
Arctic research and in establishing research infrastructures. The alignment of
Arctic research programmes will be an important contibution to knowledge and
will increase the efficiency of research programmes while maximising their
impact.

Due consideration will be given to the
social and economic dimensions of the challenges, such as climate and
environmental change and its impact on local populations and economic
activity.

1.3         Harnessing information

Bringing together existing information
sources is the best way of making sure that policymakers are well informed and
that the development of the Arctic can proceed in a manner that is responsible
and brings benefits to Arctic states and local communities:

·
Building further on its landmark ‘EU Arctic
Footprint and Policy Assessment’[8],
the Commission will further promote the sharing of information with Arctic
states and other interested parties to support policymaking. This would also
include information from operational monitoring and observation, remote
sensing, research as well as community-based monitoring and traditional
knowledge.

·
The Commission will implement a preparatory
action, approved by the Budgetary Authority with a budget of €1 million, for a
strategic assessment of the impact of development in the Arctic. The project
will also follow up the suggestion in the 2008 Communication to explore
possibilities for creating a European Arctic Information Centre and, for this purpose, will test the feasibility of an Arctic
information platform based on a network of leading Arctic research centres and
universities within and outside the EU.

The EU will
work with Arctic states on enhancing monitoring and surveillance capabilities,
including the use of satellites.

·
Earth-orbiting satellites are essential tools
for communication, navigation and observation in the Arctic. EU satellite
programmes are already providing considerable support to those living and
working in the region. This will be enhanced with the planned deployment of Galileo and the new Sentinel satellites under
the Global Monitoring for Environment and Security (GMES) Programme. The
Sentinel satellites will enable the thickness and extent of sea ice to be
monitored. In addition, they could contribute to the implementation of the
recent agreement between the Member States of the Arctic Council on Search and
Rescue.

·
The EU is developing, in cooperation with Member
States, a platform to pool data on the state of the seas in and around Europe
and high-resolution sea-bed mapping, by 2020. The sea-bed maps could provide
assistance in establishing safe transport routes in Arctic waters.

·
The EU will support the Shared Environmental
Information System initiative (SEIS), and put in place a network providing
online access to environmental data, as well as the
recent establishment of the Sustained Arctic Observing Network (SAON), designed
to strengthen international engagement on coordinated pan-Arctic observing and
data sharing systems that serve societal needs, particularly related to
environmental, social, health, economic and cultural issues.

2.           RESPONSIBILITY

The EU has strong links with the Arctic:
not only from historical, economic and geographical perspectives, but also as
an importer of natural resources and through its wider concern and
responsibility of the global environment. The Arctic offers both challenges as
well as opportunities that will significantly affect the life of European
citizens in future generations. With these challenges and opportunities come
responsibilities. The EU believes it should contribute responsibly to the
Arctic, through its funding programmes as well as promoting safe and
sustainable management and use of resources in the region.

2.1         EU funding for sustainable
development

Over recent years EU regional funding and
other cooperation programmes and agreements have invested substantially in the
development of the Arctic region. The geographic scope of some programmes
covers not only EU Member States, but also includes Greenland, Iceland, Norway
and the Russian Federation.

·
By reinforcing and interlinking the various
funding initiatives at its disposal (European Regional Development Fund (ERDF),
European Social Fund, Cohesion Fund, European Agricultural Fund for Rural
Development, European Maritime and Fisheries Fund and the Instrument for
Pre-Accession Assistance) the EU can have a positive impact on the development
of the Arctic for the benefit of local communities and indigenous peoples. In
the spirit of the Europe 2020 strategy, the Commission would be willing to
discuss with relevant Member States on how the funding opportunities under the
2014-2020 multi-annual financial framework could contribute to this objective.
It will be important to ensure that the programmes financed by the EU are
effective, accessible, and meet the development needs of local populations.

·
As its largest contributor the EU is committed
to the Support Fund of the Northern Dimension Environmental Partnership (NDEP),
which provides grants to projects in the Barents region of the Arctic for
environmental and nuclear clean-up activities. Work is continuing on the
Archangelsk Municipal Water and Wastewater Services project with an €8.2
million grant. The project will reduce direct dis­charges of waste water and
improve energy efficiency.

·
The geographic scope and priorities of future
external action, regional and cross-border cooperation programmes (e.g.
Northern Periphery) could be broadened to allow more circumpolar cooperation
and ensure that the EU's contribution to development across the Arctic region
is maximised.

2.2         Promoting the sustainable
management and use of resources

The Arctic states and the EU have a shared
interest in ensuring that the Arctic's natural resources both on land, at sea,
and at or below the sea-bed are utilised in a sustainable manner that does not
compromise the Arctic environment and benefits local communities.

·
In view of increasing mining and oil extraction
activities in the Arctic region, the EU will work with Arctic partners and the
private sector to develop environmentally friendly, low-risk technologies that
could be used by extractive industries. For example, Nordic-based mining
companies as well as universities and researchers are crucial partners in
related FP7 projects such as ProMine[9]
and I2Mine[10].
A proposal for a Regulation on the safety of offshore oil and gas prospection,
exploration and production activities[11]
was presented by the Commission on 27 October 2011.

·
The Commission proposal for a strengthened
partnership between EU and Greenland also provides for the possibility to
cooperate regarding the protection of Greenland's environment, while ensuring
the development and diversification of its economy. The
partnership would also allow for an enhanced dialogue on natural resources in
order to share know-how and experience. In the
framework of the EU-Greenland partnership, a letter of
intent on co-operation in the area of mineral resources was signed on 13 June.

·
Arctic shipping should also be developed
sustainably. While there is no immediate prospect of year-round shipping in
Arctic waters, the EU is prepared to assist in the development of sustainable
shipping, for example in the Northern Sea Route. Safety and environmental impacts
are major concerns in this regard. The Commission and EU Member States are
following developments in Arctic sea transport closely, including the traffic
and frequency of merchant ships and cruise passenger vessels on the Northern
Sea Route, the North-West Passage or Arctic waters in general, as well as any
practices or requirements of coastal states with effects on international
navigation. The EU, through the Commission and Member States, supports the
development of a mandatory "Polar Code" by the IMO. The Galileo
satellite system for global navigation and positioning, when operational from
2014, should in conjunction with similar systems also support increased safety
and Search and Rescue (SAR) capability in the Arctic.

·
As shipping accidents could cause significant
damage to the environment, the Commission, with the assistance of the European
Maritime Safety Agency, is therefore supporting the work of the Arctic Council
on emergency preparedness, prevention and response measures as well as
following up on the recommendations on maritime safety from the 2009 Arctic
Marine Shipping Assessment.

·
As a major consumer, importer and technology
provider of energy and raw materials, the EU has an interest in the resource
policy developments in the Arctic states. The EU will look to build stable and long-term partnerships
with suppliers such as Canada, Norway, the Russian Federation, the US and other
relevant partners. As a priority, within the scope of
the external pillar of the Raw Materials Strategy[12], the EU will actively pursue a
raw materials diplomacy with relevant Arctic states with a view to securing
access to raw materials notably through strategic partnerships and policy
dialogues. Moreover, sustainable management of resources would provide a
significant contribution to the social and economic development of, for
example, the Barents Region.

·
One third of fish caught in the Arctic are sold
on the European market. Studies show that this figure could increase as fish
stocks may move north as a result of warming seas. The EU is keen to ensure
good cooperation with Arctic states in the sustainable management of marine
biological resources. The EU supports the exploitation of Arctic
fisheries resources at sustainable levels based on sound scientific advice,
while respecting the rights of local coastal communities. In doing so, the EU
continues to advocate a pre­cautionary approach whereby, prior to the
exploitation of any new fishing opportunities, a regulatory framework for the
conservation and management of fish stocks should be established for those
parts of the Arctic high seas not yet covered by an international conservation
and management system. Indeed, the need for joint management of high seas fish stocks has been raised by the Commission at meetings of the North Atlantic
Fisheries Ministers Conference. Regional Fisheries
Management Organisations (RFMOs) could in principle extend their geographical
scope for this purpose.

·
As regards the issue of sealing, the Commission
will report before the end of 2012 on the implementation of Regulation
1007/2009 in EU Member States, including the application of the exemption
allowing for trade in seal products from hunts conducted by Inuit and other
indigenous communities that contribute to their subsistence. The EU will respect
the outcome of on-going procedures regarding this Regulation in the WTO and
before the Court of Justice of the EU.

·
The EU will explore further potential for
innovative economic activities, such as the further development of the
sustainable tourism, including eco-tourism, and renewable energy sectors.
Indeed, Arctic tourism, in particular involving cruise ships, is increasing.
The Commission supports and participates in the reviews and discussions taking
place in the IMO, the Arctic Council and elsewhere on increasing cruise
passenger ship safety the Arctic, especially in areas with limited search and
rescue capability. EU regional as well as cross-border and transnational
programmes for covering the Arctic regions of the EU support several projects developing
new approaches to tourism in the Arctic[13],
such as the project Tourist Guide for Northern Periphery,[14] which is developing innovative
information services for tourists.

3. ENGAGEMENT

The EU intends to refine its developing
Arctic policy in close cooperation with its Member States, the five non-EU
Arctic states as well as local inhabitants, including indigenous peoples.
Arctic states play a primary role in the region, both individually as well as
in regional bodies. The EU acknowledges that an extensive legal framework
applies to the Arctic Ocean, including the UN Convention on the Law of the Sea
(UNCLOS) and other relevant international instruments[15], and considers UNCLOS as a key
basis for the management of the Arctic Ocean. It also recognises the remarkable
international cooperation already established between Arctic states and within
the different Arctic regional fora. Maintaining good international cooperation
in the Arctic region and supporting the region’s stability is a key interest of
the European Union.

The EU considers the Arctic Council to be
the primary forum for international cooperation in the region. The Commission
services, the European External Action Service (EEAS) and EU agencies have
participated as ad hoc observers in Arctic Council meetings and engaged
actively in its working groups. The Commission applied, on behalf of the EU, to
become a permanent observer to the Arctic Council on 1 December 2008. Since criteria for the admission of observers were adopted in
May 2011, updated information was submitted by the Commission in a
letter co-signed by Vice President Ashton and Commissioner Damanaki to the
Chair of the Arctic Council, Swedish Foreign Minister Carl Bildt in December
2011. Observer status, as defined by the
Arctic Council itself, would allow the EU to intensify cooperation and make a
positive contribution to the work of the Council. It would allow the European
Union to gain detailed understanding of the concerns of Arctic partners, which
will be important when developing its own internal policies. Observer status
would complement the EU's Arctic engagement through the Barents Euro-Arctic
Council and the Northern Dimension. The EU’s engagement will include the
following:

·
The EU will seek to step up its cooperation on
Arctic matters in its bilateral dialogues with all its Arctic partners -
Canada, Iceland, Norway, the Russian Federation and the United States.

·
The EU’s engagement in Arctic matters will be
further enhanced by Iceland's prospective EU membership (Iceland applied to become
a member of the EU in June 2009) and contribute to addressing common concerns.
The ongoing accession negotiations provide an additional framework to discuss certain
policies relating to the Artic.

·
As regards Greenland, relations with the EU are
defined by the Overseas Association Decision and the comprehensive EU-Greenland
partnership. On 7 December 2011, the Commission submitted a legislative
proposal to renew the partnership for the period 2014-2020[16]. As part of the future
partnership, the Commission has proposed an enhanced dialogue on Arctic issues
that would not only allow the EU to gain additional understanding of remote
Arctic societies, but also allow for the sharing of valuable know-how on issues
of mutual concern.

·
It is critically important that the views of
Arctic inhabitants are taken into account on issues of economic development.
The EU will look at appropriate ways of ensuring that the representatives of
Arctic indigenous peoples are informed and consulted on the EU policies that
affect them, and are given appropriate platforms to present their particular
concerns to EU institutions and audiences. With this aim, the Commission and
the EEAS will step up their efforts to hold regular dialogues with indigenous
peoples.

·
The EU will pursue its involvement within
relevant international frameworks on Arctic issues such as biodiversity,
ecosystem-based management, persistent organic pollutants, marine protected
areas, international navigation, environmental and maritime safety standards.
This should be based on existing international law, international conventions
and agreements, and in cooperation with international bodies, such as the UN,
the Arctic Council and the International Maritime Organization (IMO). The EU
will also consider ways in which it can support the effective implementation of
agreements adopted by the Arctic Council.

·
The Commission will continue to cooperate with
international partners on reporting and assessments of the state of the marine
environment. It will also continue to promote the use of strategic
environmental impact assessments in a transboundary context through compliance
with the Espoo Convention[17]. For example, the Commission has continued its dialogue on the Espoo
Convention with the Russian Federation, which, in July 2011, launched internal
procedures to ratify that convention. In addition, cooperation has been
intensified on environmental monitoring under the EU-Russia Partnership for
Modernisation.

·
On ecosystem management, the EU will continue
working through the Oslo and Paris Conventions for the protection of the marine
environment of the North-East Atlantic (OSPAR) to establish a network of marine
protected areas in the Arctic and to assess the suitability of existing
measures to manage oil and gas extraction activities in extreme climatic
conditions given their potential environmental impact. The Commission and EU
agencies also contribute to work on this issue under the Arctic Council's
Protection of the Arctic Marine Environment Working Group. At the same time, the
EU continues to suggest within competent UN bodies that biodiversity in areas
beyond the reach of national jurisdictions should be protected, possibly under
UNCLOS.

·
The EU will also enhance its outreach to Arctic
non-governmental organisations. The Commission has also intensified dialogue
with stakeholders on environmental policy. A project for the establishment of
an NGO dialogue on Arctic environmental issues was launched in July 2011. An
NGO forum convened for the first time in January 2012, with the aim of meeting
twice a year.

Part 2 Summary of the EU's contribution to the Arctic
since 2008

Responding to
the Council Conclusions of December 2009, this second part of the Joint
Communication highlights the increasing range of activities the EU is already
undertaking in the region and reviews the issues outlined in the Commission
Communication on "The EU and the Arctic Region", published in
November 2008. The EU has an important and growing contribution to make to
address the challenge of effective environmental protection while developing
the Arctic's economic potential in a sustainable manner. This commitment is
evidenced by a wide range of activities in the Arctic region focussing on
issues such as climate change, environmental degradation, the sustainable
management and exploitation of energy, raw materials and fishing resources as
well as new economic activities such as tourism and new routes for maritime
transport. The importance of dialogue with the Arctic States and the indigenous
peoples in the region is emphasised.

1.           Protecting and preserving the Arctic in
unison with its population

Climate change and environment

Progress is being made to ensure the
necessary global reduction of greenhouse gas (GHG) emissions by all major
emitters. The EU is on track to meet its Kyoto climate change commitments, and
has incorporated its 20% greenhouse gas reduction commitment into law. The
Commission has published a "Roadmap for moving to a competitive low carbon
economy in 2050"[18].
EU action in the area of Key Enabling Technologies, in particular a
contribution of high technologies to clean energy production is another
element. Taken together, these will have a major impact in reducing Arctic
pollution impacts from climate change. The EU also helped to forge the Durban
Platform for Enhanced Action in December 2011[19],
calling for a new comprehensive legal instrument to be agreed by 2015. The EU
has also continued to play a prominent role in international efforts to reduce
pollution from Persistent Organic Pollutants through both the Stockholm
Convention and the Convention on Long-range Transboundary Air Pollution of the
United Nations Economic Commission for Europe.

The “EU Arctic Footprint and Policy
Assessment”[20]
report was published in January 2011. It provides an overview until 2030 of the
impact which the EU can have in nine areas including bio­diversity, transport,
energy, fisheries and climate change. Other research projects benefitting from
EU funds (e.g. CLEAR and ArcRisk) are filling critical knowledge gaps on the
impact of trans-boundary pollution on the health of Arctic populations. The EU
has also promoted use of impact assessments through compliance with the Espoo
Convention on environmental impact assessment in a transboundary context and
its protocol on strategic environmental assessment. The Commission has
continued its dialogue on the Espoo Convention with the Russian Federation,
which, in July 2011, launched internal procedures to ratify that convention. In
addition, as a priority under the EU-Russia Partnership for Modernisation,
cooperation has been intensified on environmental monitoring. The European
Environment Agency (EEA) has agreed with its Russian partners on a number of
initiatives on joint environmental monitoring, particularly in the Arctic,
including the creation of a system to collect and share pollution data from
water and air, long range transport of pollutants and improved management of
waste and hazardous chemicals.

An agreement on emergency prevention and
response in the Barents region, negotiated in the framework of the Barents
Euro-Arctic Council (BEAC), was signed by the relevant states in 2008 and
ratified by the parties.

Support to indigenous peoples and
local populations

The EU has been actively involved in
working towards the adoption of the United Nations Declaration on the Rights of
Indigenous Peoples. The EU seeks to integrate human rights and indigenous
issues into all aspects of its internal and external policies, including its
political dialogues with third countries and in regional and multilateral
organisations. The EU also provides financial support to civil society
organisations working on indigenous issues, in particular through the European
Instrument for Democracy and Human Rights (EIDHR).

The Commission has entered into a regular
dialogue with the indigenous communities of the Arctic. On 9 March 2010, the Commission hosted an “Arctic Dialogue” workshop[21]. The initiative was well received by participants who underlined the
importance of involving indigenous peoples' representatives in decision making.
The Commission met again with representatives of Arctic indigenous peoples in
Tromsø, Norway, in January 2011. The EEA also invited Arctic
indigenous peoples’ groups to a workshop in June 2011 to discuss use of lay,
local and traditional knowledge in monitoring the Arctic environment and
assessing trends and changes affecting the Arctic population.

The EU provides a significant amount of
funding through various initiatives to indigenous groups and local populations.
Funding programmes during the 2007-2013 co-financing period amount to €1.14
billion, or €1.98 billion including EU Member States co-financing:

·
The 2007-2013 European Regional Development Fund
(ERDF) set aside €4.3 million in the cross-border Sápmi sub-programme to
support the Sami population in developing its cultural life and industry in a
sustainable manner[22].
Additionally, Interreg IVA North[23],
the programme of which Sápmi is a part, with EU funding of €34 million (total
€57 million) has the objective of strengthening the attractiveness and
competitiveness of the northernmost regions of Finland, Sweden and Norway.

·
Similar objectives govern the Botnia-Atlantica[24] programme in covering northern
regions of Finland, Sweden and Norway (EU funding of €34.4 million out of a
total of €60.9 million) and the Sweden-Norway Interreg
IVA programme[25]
(EU funding of €37 million out of a total of €68
million).

·
The Northern Periphery Programme[26] involving Ireland, Finland,
Sweden and the United Kingdom as well as the Faroe Islands, Greenland, Iceland
and Norway (with possible participation of the Russian Federation and Canada),
has a budget of €59 million, of which EU funding amounts to €35 million. The
Programme aims to help remote communities in northern Europe develop their economic,
social and environmental potential;

·
The transnational Baltic Sea
Region Programme[27]
(of which EU funding amounts to €217 million out of €278 million), finances the
Bothnian 'Green Logistic Corridor' to connect northern Scandinavia and the
Barents with end markets in the Baltic Sea region and central Europe;

·
In the 2007-2013 period ERDF
invests € 243 million in the North Sweden programme and € 177 million in the
Mid-North Sweden programme to increase the competitiveness of the regions.[28] Sami issues are integrated into the different
priority areas;

·
The Northern Finland ERDF
Programme[29]
is operating with an overall budget of €1.1 billion, of which €311.3 million
comes from the EU budget. The programme's priorities include measures specifically
designed for the Sami, supporting entrepreneurship and business based on the
Sami culture;

·
The Kolarctic programme[30] is one of 13 cross-border
cooperation programmes currently co-funded under the European Neighbourhood and
Partnership Instrument (ENPI) and ERDF. The 2007-2013 budget of the programme
amounts to €70.48 million, of which €28.24 million is EU funding. Northern
regions of Finland, Sweden, Norway and the Russian Federation participate in
the programme.

·
In the sub-Arctic part of the Barents region, another
cross-border cooperation programme – the Karelia programme[31] - is operating with an overall
budget of €46.5 million, of which €23.2 comes from the EU budget and the
remaining part consists of contributions from Member States and the Russian
Federation;

The Northern Dimension Partnership in Public Health and Social
Well-being (NDPHS) has developed a work plan to improve mental health, prevent
addiction and promote child development and community health among indigenous
peoples. The work plan is to be implemented by 2013.

On the issue of sealing, there was
widespread public consultation[32],
including with indigenous peoples, prior to the adoption of EU Regulation
1007/2009 on trade in seal products. Challenges to the legislation have been
made by the Inuit community. One application was rejected in September 2011 by
the Court of Justice of the EU on the grounds of inadmissibility[33]; a second case is pending. A
World Trade Organisation panel has also been constituted to review the ban at
the request of Canada and Norway.

Research, monitoring and assessments

Collectively, the EU and its Member States
have made a leading contribution to Arctic research over the last 10 years. Around
€200 million of EU funds has been allocated to Arctic research. The EU promotes
research focussed on sustainable development and global environmental change
aimed at furthering the understanding of their co-relation with natural
processes affecting the Arctic, putting particular emphasis on climate change
and increasingly on its impact on local popula­tions and economic activity.

Twelve projects launched since 2008 under
the EU's Seventh Framework Programme for Research (FP7)
are helping to close gaps in the above fields and to enhance long-term
monitoring and data availability on natural and man-made processes in the
Arctic. A further eight projects support the creation of new leading research networks
and infrastructures in Europe, while strengthening existing ones. The EU's
research programmes harbour close relationships with all Arctic states. The
Faroe Islands, Norway and Iceland are countries formally associated to FP7 and
as such enjoy equivalent rights to EU Member States under this instrument. In
addition, the EU has Science and Technology cooperation agreements with Canada,
the Russian Federation and the US involving research programmes in the fields
of environment, health, fisheries, transport, energy and space. Research
partners from these countries regularly participate in FP7 actions.

The EU and projects supported through FP7
actively contribute to international efforts to promote polar research and
align international research agendas. Examples of this include the
International Polar Year 2007-2009.

In terms of enhancing monitoring and
surveillance capabilities, the EU supports the Shared Environmental Information
System initiative (SEIS), which aims to modernise current reporting systems and
put in place a network providing online access to data. The quality and
timeliness of Arctic environmental information should therefore improve and
eventually lead to better knowledge-based decision making. In addition, the EU
supports other programmes and initiatives with relevance to the Arctic region,
such as the Global Monitoring for Environment and Security (GMES), the Group on
Earth Observations (GEO) and the Global Earth Observation System of Systems
(GEOSS). The EEA has also been active in establishing
the Sustained Arctic Observing Network (SAON).

2.           Promoting sustainable use of natural
resources

Hydrocarbons and raw materials

Since access to
raw materials remains an important element in the EU's drive to move to a
high-technology and high value-added economy, the Commission has adopted a Communication
on Commodities and Raw Materials which reinforced the three pillar based
approach to achieving sustainable supply of raw materials: supply from global
markets (external pillar), sustainable supply from sources in the EU and
recycling and resource efficiency.

The Commission also recently adopted a
Communication entitled “EU Energy Policy: Engaging with Partners beyond Our
Borders"[34],
setting out a comprehensive strategy for the EU's external relations in energy
by improving transparency on energy agreements with third countries,
strengthening coordination between Member States and developing energy
partnerships with key countries.

Transport

A key EU policy objective remains full
compliance with international law and principles as defined in UNCLOS,
including the principles of freedom of navigation and the right of innocent
passage[35].
A study on "Legal Aspects of Arctic shipping" was completed in April
2010[36].

Efforts to establish multi-modal
trans-European connections are taking place through the development of
Trans-European Networks, which also cover Europe’s High North. These are of
direct benefit to the Arctic. In addition, Memorandum of understanding on the
Northern Dimension Partnership on Transport and Logistics (NDPTL) is now
entering in its operational phase, with the identification (for future
endorsement by the partners) of an infrastructure network and potential
priorities on transport related projects.

3.           International Cooperation

The EU's evolving policy on the Arctic aims
to establish a coherent and comprehensive approach on matters where the Arctic
region has an impact on the EU and vice versa. This is based on existing
international law (notably UNCLOS) and cooperation with international bodies,
such as the Arctic Council and IMO, as well as with Arctic states, autonomous
territories, indigenous peoples, local populations and other stakeholders.

Since 2008, the EU has substantially
increased its involvement in Arctic cooperation, notably through its engagement
with the Arctic Council and Arctic Council members. The Arctic Council remains
the most important forum for international cooperation in the region, and its
recent agreement on Cooperation in Aeronautical and Maritime Search and Rescue
in the Arctic is an important indicator of its development.

Regional cooperation also takes place
through the Barents Euro-Arctic Council, of which the Commission is a member,
and the Northern Dimension (ND), which is a common policy of the EU, Iceland,
Norway and the Russian Federation. The 2010 ND Ministerial meeting instructed
the ND Steering Group “to consider ways to develop the ND Arctic Window without
duplicating work within the mandates of the Arctic Council or the Barents
Euro-Arctic Council”. The ministers noted that consideration would be needed to
be given to how indigenous peoples could be included in deliberations. The
Steering Group has invited indigenous peoples’ representatives to participate
in meetings and requested that ND partnerships and initiatives consider further
actions regarding the Arctic.

Cooperation also takes place bilaterally
with Arctic States. Arctic cooperation is regularly
included in the agendas of bilateral meetings with the Arctic states, including
Canada, the Russian Federation and the US - strategic partners of the EU. The
visits of the High Representative / Vice President Ashton and Commissioner
Damanaki in the Arctic areas in Finland, Sweden, Norway, including Svalbard,
and Greenland underlined the importance of the region and provided opportunity
for firsthand assessment of the changes as well as possibility to discuss the
challenges with local populations, Saami and Inuit representatives and Arctic
experts.

In addition, the EU Delegations in Arctic states have a significant role in
communicating relevant EU policy to governments and the public as well as
informing EU on national Arctic activities of relevance in the Arctic states.

Regarding Greenland, the current partnership
allows for policy dialogue on areas of mutual interests, beyond targeted
financial aid, such as research, raw materials and energy. During the period
2007-2013, Greenland will receive EU financial support amounting to €25 million
per year in 2006 prices. The targeted sector for financial cooperation in the
period 2007-2013 is education and both Greenland and Denmark have expressed an
interest in maintaining that focal sector for the future financial period
(2014-2020). The EU-Greenland Partnership is complementary to the EU-Greenland
Fisheries Partnership Agreement (FPA), and defines the EU's financial
contribution for development beyond the area of fisheries. Given that the
current protocol to the FPA will expire end of 2012, a new three-year protocol
was succesfully initialled in February 2012. Under the terms of the new
protocol, the EU will annually provide a financial contribution, including
sectoral support, to Greenland, to a maximum amount of €17.8 million. In 2010, the EEA and Greenland signed a cooperation agreement to support sustainable development and to protect and improve the
environment through targeted, relevant and reliable information to policymakers
in Greenland and Europe. In January 2012, the EEA and the Greenland Ministry of
Health signed a cooperation agreement covering environment and health issues.

[1]               The ice melting enhances the dramatic effects of
climate change in the Arctic and in particular the acceleration of global temperature
increase through lower albedo.

[2]               Council
Conclusions on Arctic Issues, 2985th Foreign Affairs Council Meeting, Brussels,
8 December 2009.

[3]               P7_TA(2011)0024
of 20 January 2011

[4]               COM(2008)
763 of 20 November 2008.

[5]               An overview of key activities and results are set out
in the second part of this Communication as well as the Staff Working Paper
"Inventory of Activities in the framework of developing a European Union
Arctic Policy".

[6]               COM(2010) 546 of 6 October
2010

[7]               COM(2011) 808 and accompanying proposals COM(2011) 809, COM(2011) 810, COM(2011) 811 and COM(2011) 812 of 30
October 2011

[8]               http://arctic-footprint.eu

[9]               http://promine.gtk.fi/

[10]             http://www.i2mine.eu/

[11]             COM(2011) 688 of 27 October 2011

[12]             COM (2011) 25 of 2 February 2011

[13]             http://www.interregnord.com/en/projects/north/1-trade-and-industry-development.aspx

[14]             http://www.northernperiphery.eu/en/projects/show/&tid=82

[15]             The extensive overviews of the relevant instruments are
contained in reports produced within the ‘Arctic TRANSFORM’<www.arctic-transform.eu>
and ‘EU Arctic Footprint and Policy Assessment <
http://arctic-footprint.eu/sites/default/files/AFPA_Final_Report.pdf>.

[16]             COM(2011) 846, 7 December 2011

[17]             The Espoo Convention on
Environmental Impact Assessment in a Transboundary Context is a United Nations
Economic Commission for Europe (UNECE) Convention signed in Espoo, Finland, in
1991 that entered into force in 1997.

[18]             COM(2011) 112, 8 March 2011

[19]             United Nations Framework Convention on Climate Change
(COP 17 in Durban)

[20]             http://arctic-footprint.eu

[21]             https://webgate.ec.europa.eu/maritimeforum/content/1831

[22]             Total funding €6.7 million.
http://www.interregnord.com/en/projects/sapmi/4-sapmi-borderless-development.aspx

[23]             http://www.interregnord.com/en/projects.aspx

[24]             http://www.botnia-atlantica.eu

[25]             http://www.interreg-sverige-norge.com/

[26]             http://www.northernperiphery.eu/en/projects/main/

[27]             http://eu.baltic.net/Project_Database.5308.html?&&contentid=70&contentaction=single

[28]             http://www.tillvaxtverket.se/huvudmeny/euprogram/programomraden/ovrenorrland and http://www.tillvaxtverket.se/huvudmeny/euprogram/programomraden/mellerstanorrland

[29]             http://ec.europa.eu/regional_policy/atlas2007/finland/fi1a_en.htm?4

[30]             http://www.kolarcticenpi.info/ourprojects

[31]             http://www.kareliaenpi.eu/en

[32]             http://ec.europa.eu/environment/biodiversity/animal_welfare/seals/seal_hunting.htm

[33]             Order of the General Court, 6 September 2011, Case
T-18/10.

[34]             COM(2011) 539 of 7 September 2011

[35]             Transit passage also being stated in the Council
Conclusions

[36]             https://webgate.ec.europa.eu/maritimeforum/content/2396