JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL An integrated European Union policy for the Arctic
Date: 2016-04-27
Institutions: European Commission, European External Action Service
Subjects: Arctic, EU programme, European Region, climate change, environmental protection, international cooperation, management of resources, protection of minorities, regional cooperation, sustainable development

EN 

   EN 

   EUROPEAN COMMISSION HIGH REPRESENTATIVE OF THE UNION FOR FOREIGN AFFAIRS AND SECURITY POLICY Brussels, 27.4.2016  JOIN(2016) 21 final   JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL An integrated European Union policy for the Arctic  
 
 
JOINT COMMUNICATION TO 

THE EUROPEAN PARLIAMENT AND THE COUNCIL 

An integrated European Union policy for the Arctic 

INTRODUCTION 

A safe, stable, sustainable and prosperous Arctic is important not just for the region itself, but 
for the European Union (EU) and for the world. The EU has a strategic interest in playing a 
key role in the Arctic region. 

Eight  states  have  territories  in  the  Arctic:  Canada,  the  Kingdom  of  Denmark1,  Finland, 
Iceland,  Norway,  Russia,  Sweden  and  the  United  States.  Three  EU  Member  States  are 
therefore  also  Arctic  states,  while  Iceland  and  Norway  are  members  of  the  European 
Economic Area2. The Arctic is home to several indigenous peoples3. The Arctic region also 
includes  the  Arctic  Ocean  and  its  adjacent  seas.  While  the  Arctic  states  have  primary 
responsibility  for  tackling  issues  within  their  territories,  many  of  the  issues  affecting  the 
Arctic  region  that  are  discussed  in  this  Joint  Communication  can  be  more  effectively 
addressed  through  regional  or  multilateral  cooperation.  This  is  why  EU  engagement  is 
important. 

Building on previous initiatives4, this Joint Communication sets out the case for an EU policy 
that focuses on advancing international cooperation in responding to the impacts of climate 
change on the Arctic's fragile environment, and on promoting and contributing to sustainable 
development, particularly in the European part of the Arctic. 

In recent years, the Arctic's role in climate change has become much more prominent5. The 
Arctic  is  warming  at  almost  twice  the  global  average  rate.  Whereas  in  the  past  attention 
focused almost solely on the effects of climate change in the Arctic, more recently there has 
been  growing  awareness  that  feedback  loops  are  turning  the  Arctic  into  a  contributor  to 
climate change. Understanding these dynamics, and helping to develop specific strategies to 
mitigate and adapt to climate change in the Arctic, will form part of the EU’s wider efforts to 
combat climate change6.  

1 The Kingdom of Denmark consists of Denmark, Greenland and the Faroe Islands. 
2 Iceland and Norway are also associated countries in the EU's Horizon 2020 Framework Programme for 
Research and Innovation. 
3 The Saami and the Inuit are the only nationally recognised indigenous peoples living partly on the territory of 
EU Member States. Greenland has a close relationship with the EU based on its status as one of the Overseas 
Countries and Territories associated with the EU. 
4 In particular, (COM/2008/0763 final), (JOIN(2012) 19 final) and (SWD(2012) 182 final) and (SWD(2012) 183 
final). 
5 The Communication from the Commission "An EU Strategy on adaptation to climate change", (COM(2013) 
216 final), specifically refers to the Arctic's particular vulnerability to the impacts of climate change. 
6 In line with the EU's climate and energy framework for 2030 adopted by heads of state and government in the 
European Council of 23 and 24 October 2014 (EUCO 169/14).    

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Adaptation strategies are needed to help Arctic inhabitants respond to the serious challenges 
they face because of climate change. The EU’s Arctic policy will be an important element in 
implementing  the  global  agreement  reached  at  the  21st  Conference  of  the  Parties  under  the 
United Nations Framework Convention on Climate Change in December 2015, which sets out 
a global action plan to limit global warming to well below 2 °C. For the European Union, the 
Paris Agreement represents an ambitious, balanced, equitable and legally binding agreement 
and  marks  a  decisive  turning  point  towards  comprehensive  and  collective  global  action 
against climate change. When implemented, the Paris agreement will accelerate the transition 
to a climate resilient, climate neutral global economy. 

Given the important role of Arctic as a regulator for the climate of the planet and acting as a 
sink  for  long-range  pollution,  the  EU  has  a  duty  to  protect  the  Arctic  environment  and 
strengthen ecosystem resilience.  

The EU should also promote sustainable development in the Arctic, taking into account both 
the  traditional  livelihoods  of  those  living  in  the  region  and  the  impact  of  economic 
development on the Arctic's fragile environment. The EU should contribute to enhancing the 
economic, social and environmental resilience of societies in the Arctic. 

A number of EU activities and decisions are having an impact on economic developments in 
the  Arctic  region.7  For  example,  the  EU  is  a  major  consumer  of  products  coming  from  the 
Arctic states, such as fish products and energy8. Investment by European companies can help 
advance sustainable development in the region, possibly aided by the European Structural and 
Investment  Funds  (ESIF)  and  initiatives  under  the  Investment  Plan  for  Europe.  A  recent 
report estimated investment opportunities in the Barents region alone to be EUR 140 billion9. 
Regional  ‘smart  specialisation  strategies’,  combined  with  EU  funding,  can  help  to  develop 
local  models  of  sustainable  growth  and  job  creation  in  the  European  Arctic  with  potential 
benefits  across  the  EU.  The  forthcoming  Finnish  Presidency  of  the  Arctic  Council  (2017-
2019)  will  offer  an  opportunity  to  bring  European  ideas  and  initiatives  to  the  work  of  the 
Arctic Council. 

In recent years, the Arctic region has acquired a higher profile in international relations due 
to  its  increasing  environmental,  social,  economic  and  strategic  importance.  The  EU  already 
contributes substantially to Arctic research, satellite observation and regional development as 
well to the work of the Arctic Council10, wherein countries beyond the Arctic such as China, 
India, Japan, the Republic of Korea and Singapore now have observer status. 

7 Report on ‘EU Arctic Footprint and Policy Assessment’, EcoLogic, Berlin, 2010 (http://arctic-
footprint.eu/sites/default/files/AFPA_Final_Report.pdf). 
8 24 % of the fish products imported by the EU in 2014 originated from Norway, i.e. 1.5 million tonnes to a 
value of EUR 4.8 billion EUR. (Source: Eurostat/EUMOFA). A third of the EU’s oil imports and two thirds of 
gas stem from Norway and Russia (Source: Eurostat). 
9 A Strategic Vision for the North, Paavo Lipponen, May 2015. 
10 Three EU Member States (Finland, the Kingdom of Denmark and Sweden) are full members of the Arctic 
Council, seven EU Member States (France, Germany, Italy, the Netherlands, Poland, Spain, the United 
Kingdom) are observers to the Arctic Council. 

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While the changes affecting the Arctic present opportunities for local communities, they also 
have  the  potential  to  increase  tensions  in  the  region,  for  example  through  competition  for 
resources  and  increasing  economic  activity.  International  legal  frameworks,  such  as  the 
United  Nations  Convention  on  the  Law  of  the  Sea  (UNCLOS)  and  the  United  Nations 
Framework Convention on Climate Change, also cover the Arctic. It is now more important 
than  ever  to  ensure  that  the  Arctic  remains  a  zone  of  peace,  prosperity  and  constructive 
international cooperation. 

The world’s oceans are important resources but are coming under increasing pressure and risk 
further damage if increased activity is not properly managed. It is in this context that the EU 
is  seeking to advance the agenda on ocean  governance. The need  for a solid framework for 
sound stewardship is particularly high in the Arctic: large parts of the high seas areas beyond 
national  jurisdiction  are  currently  not  covered  by  specific  arrangements  for  managing 
economic  activities,  nor  is  there  sufficient  scientific  knowledge  about  the  sea  basin.  Much 
work  therefore  lies  ahead  to  protect  the  Arctic  high  seas  in  view  of  climatic  changes  and 
increasing human activity in the region. 

Against  this  background,  several  Member  States  have  issued  national  Arctic  policy 
frameworks  in  recent  years11.  In  2014,  the  Council  and  European  Parliament  asked  the 
Commission and the High Representative for Foreign Affairs and Security Policy to develop 
an  integrated  policy  on  Arctic  matters,  and  to  develop  a  more  coherent  framework  for  EU 
action  and  funding  programmes.  In  response,  an  integrated  EU  Arctic  policy  is  therefore 
proposed in three priority areas: 

1.  Climate Change and Safeguarding the Arctic Environment; 

2.  Sustainable Development in and around the Arctic; 

3.  International Cooperation on Arctic Issues. 

The  EU  should  attach  particular  importance  to  research,  science  and  innovation  which  will 
play a key role across all three priority areas. Action in the priority areas should contribute to 
the  implementation  of  Agenda  2030  and  be  in  line  with  the  17  Sustainable  Development 
Goals adopted by the United Nations in September 2015. 

11 The Kingdom of Denmark, Finland, Germany, Italy, Poland, Sweden and the United Kingdom. The 
Netherlands, France and Spain are issuing  Arctic or Polar policy papers in 2016. Non-EU countries that have 
issued an Arctic strategy or policy paper include Canada, Iceland, India, Japan, Norway, the Russian Federation 
and the United States of America. 

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1.  CLIMATE CHANGE AND SAFEGUARDING THE ARCTIC ENVIRONMENT 

The issues 

Climate change poses a significant risk. Its effects are tangible in the Arctic, with the summer 
sea  ice  having  decreased  by  more  than  40 %  since  197912.  Delicate  Arctic  ecosystems  are 
under threat and the livelihoods of indigenous peoples are being directly affected by climate 
change.  In  one  of  the  coldest  parts  of  the  world,  the  thawing  permafrost  is  causing  land  to 
subside,  depleting  habitats  and  damaging  infrastructure  as  it  does  so,  with  potential  losses 
estimated in hundreds of billions of euros13. Rising temperatures contribute to the melting of 
the Greenlandic ice sheet, adding to rising sea levels, and play a role in changing precipitation 
patterns in the northern hemisphere. 

Managing  these  developments  requires  closer  and  more  integrated  cooperation  on  climate 
adaptation in the Arctic as well as reducing greenhouse gases. 

According  to  the  International  Panel  on  Climate  Change’s  Fifth  Assessment  Report, 
permafrost temperatures have increased in most regions since the early 1980s14. Greenhouse 
gases  are  escaping  the  permafrost  and  entering  the  atmosphere  at  an  increasing  rate.  The 
thawing  permafrost  has  the  potential  to  release  carbon  dioxide  and  methane  -  equivalent  to 
several times today’s annual greenhouse gas emissions from man-made sources such as fossil 
fuel use. This could change the Arctic as well as the global climate. 

The Arctic is home to several sensitive ecosystems which in turn are home to many endemic 
species. More than half of the world’s wetlands, crucial for water purification, flood control 
and  shoreline  stability,  are  in  Arctic  and  sub-Arctic  regions.  Arctic  marine  ecosystems  are 
crucial  for  fisheries  given  the  role  of  fish  at  the  bottom  of  important  food  chains.  These 
ecosystems are not only affected by climate change, but also by pollution and invasive alien 
species.  The  preservation  of  biodiversity  and  the  viability  of  ecosystems  in  the  Arctic  will 
remain a global challenge.  

Policy response 

1.1 Research 

Fundamental  to  our  response  is  a  better  understanding  of  the  developments  the  region  is 
facing,  and  for  this  reason  the  EU  is  a  major  contributor  to  Arctic  research.  Over  the  past 
decades efforts have been devoted to Arctic observation and monitoring programmes as well 
as  numerous  research  projects,  but  yet  understanding  of  the  Arctic  systems,  their  functions 
and possible responses to various drivers are still largely unknown.  

12 For example: http://climate.nasa.gov/vital-signs/arctic-sea-ice/ 
13 For example through decreased sea ice thickness and extent, less predictable weather, severe storms, sea level 
rise, changing seasonal melt/freeze-up of rivers and lakes, changes in snow type and timing, increasing shrub 
growth, permafrost thaw, and storm-related erosion which, in turn, are causing severe loss of land in some 
regions so that, in some coastal areas, entire communities have to be relocated . 
14 By the end of the 21st century, the area of permafrost near the surface could decrease by 37-81%. 

. 

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The  EU  is  expected  to  maintain  its  current  funding  levels  for  Arctic  research  (around  EUR 
200 million in the past decade) under the Horizon 2020 programme (2014-2020). The EU has 
already  committed  EUR  40 million  under  the  2016-2017  work  programme  to  Arctic-
related research. This programme will focus on an integrated observation system, studying the 
impact  of  Arctic  changes  on  the  weather  and  climate  of  the  northern  hemisphere,  and  the 
effect of climate change on the Arctic permafrost and its socio-economic impact. In addition, 
the European Structural and Investment Funds (ESIF) also provide funding for research and 
innovation activities in the fields of Climate change and environment in the Arctic. 

A central plank of the EU’s Arctic research efforts will be the EU-PolarNet initiative, which 
supports  an  EU-wide  consortium  of  expertise  and  infrastructure  for  polar  research  to  better 
assimilate  Europe’s  scientific  and  operational  capabilities  in  the  Polar  regions.  22  European 
research  institutions  will  develop  and  deliver  an  integrated  European  polar  research 
involves  working  with  research 
programme  under  EU-PolarNet.  The  project  also 
organisations from Canada, Russia and the USA.     

EU  research  on  climate  change  in  the  Arctic  will  also  be  supported  by  EU  space 
programmes. The operational infrastructure and services of Copernicus will provide input to 
Arctic research activities, including weather monitoring, monitoring of climate variables and 
ice  thickness,  and  improved  ocean  modelling.  In  addition,  the  European  Commission  will 
support  the  implementation  of  the  Svalbard  Integrated Arctic  Earth  Observing  System  —  a 
multidisciplinary  and  multinational  research  infrastructure  that  is  geographically  distributed 
across Svalbard which will contribute to future pan-Arctic monitoring. 

The EU should continue to promote and facilitate effective international scientific cooperation 
through  supporting  transnational  access  to  research  infrastructure  and  open  data 
resources  to  improve  political  and  economic  links  and  maintain  good  relations  with  key 
countries in the region. Moreover, the EU should continue to support the work of the Group 
of Senior Officials15 on international research infrastructure.  

Finally, the EU contributes through Horizon 2020 to pan-Arctic observing initiatives such as 
those promoted by the Arctic Council with SAON16 or the GEO Cold Region Initiative17, with 
the  view  of  preparing  through  research  the  establishment  of  operational  long-standing 
systems.  

1.2 Climate mitigation and adaptation strategies 

In responding to the challenge posed by climate change in the Arctic, the EU’s objective is in 
line with the Paris agreement to limit global average temperature increases to well below 
2 °C  and  make  an  effort  to  limit  the  temperature  increase  to  1.5 °C.  The  EU  has  already 
committed to reducing its total greenhouse gas emissions by 40 % by 2030 and by 80 % by 

15 The Carnegie Group of G8 +5 Science Advisers established a Group of Senior Officials (GSO) on global 
research infrastructure to reach a common understanding on matters such as governance, funding and 
management of large-scale research infrastructure. The European Commission is member of the GSO group. 
16 Sustaining Arctic Observing Networks: http://www.arcticobserving.org/ 
17 https://www.earthobservations.org/index.php 

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2050  compared  with  1990  levels.  The  2030  commitment  will  be  achieved  by  implementing 
the EU’s intended nationally determined contribution according to the Paris agreement. The 
EU has also committed itself to spend 20 % of the EU budget on climate-related objectives. 

As climate change is a circumpolar challenge, the EU is ready to work with the Arctic states, 
indigenous  peoples  and  relevant  Arctic  regional  and  multilateral  fora  to  share  experience, 
expertise  and  information  on  climate  change,  impacts,  adaptation  and  resilience,  with  a 
view to developing an ambitious climate adaptation agenda for the Arctic region.   

The  EU  should  work  with  regions  in  the  Arctic  to  draw  up  appropriate  adaptation  and 
mitigation  measures  that  take  account  of  the  local  circumstances  and  special  nature  of  the 
Arctic regions. It can do this partly through the European Structural and Investment Funds 
(ESIF)18, which mainstream climate action. 

Alongside  its  CO2  commitments  for  2030  and  2050,  the  EU  should  contribute  to 
international  efforts  to  limit  emissions  of  short-lived  climate  pollutants  such  as  black 
carbon  and  methane  that  further  accelerate  climactic  changes  in  the  Arctic.  Coming  from 
soot and up to 1500 times more powerful than CO2, black carbon increases the melting rate of 
ice and snow.  Methane is another greenhouse gas, 20 times more potent than CO2, with vast 
reserves  projected  to  be  stored  under  the  Arctic  permafrost.  The  EU  could  limit  emissions 
through:  the  Convention  on  Long-Range  Transboundary  Air  Pollution  (UNECE  CLRTAP); 
the  amended  Gothenburg  Protocol,  the  Commission’s  Air  Quality  Package  proposal;  the 
Climate and Clean Air Coalition; and engagement with Arctic Council initiatives such as the 
Task Force on Black Carbon and Methane.  

1.3 Protecting the Environment 

The EU aims to protect, preserve and improve the environment, including in the wider region, 
for  present  and  future  generations.  The  EU  should  continue  its  engagement  in  multilateral 
environmental agreements that also have particular relevance to the Arctic, and encourage 
their implementation19. The EU should encourage full respect for the provisions of UNCLOS, 
which  is  considered  customary  international  law,  including  the  obligation  to  protect  and 
preserve the marine environment. 

The EU should also work with partners to promote a high level of biodiversity protection 
with  a  view  to  halting  the  loss  of  biodiversity  and  achieving  the  global  biodiversity  2020 
targets.  The  EU  should  promote  establishing  marine  protected  areas  in  the Arctic,  these 
areas  being  an  important  element  in  the  effort  to  preserve  biodiversity.  The  EU  should  also 
work  with  Arctic  states  and  other  international  partners  to  develop  an  instrument  under 

18 ESIF (2014-20) allocates 25% of its funds to support climate change objectives. 
19 These include the Convention for Biological Diversity, the Convention on International Trade in Endangered 
Species of Wild Fauna and Flora, the Convention on Migratory Species and Wild Animals, the African Eurasian 
Waterbirds Agreement, the Bern Convention, the International Convention for the Regulation of Whaling, the 
Stockholm Convention on Persistent Organic Pollutants and the Convention for the Protection of the Marine 
Environment of the North-East Atlantic (OSPAR). 

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UNCLOS  for  the  conservation  and  sustainable  use  of  marine  biodiversity  in  areas  beyond 
national jurisdiction.   

Arctic inhabitants increasingly suffer from high  levels of  pollutants and heavy metals that 
end up in the Arctic’s food web  20. The EU should continue to support work at international 
level  to  prohibit  or  phase  out  the  use  of  persistent  organic  pollutants  in  the  environment 
between  now  and  202021.  Effective  implementation  of  the  Stockholm  Convention  by  all 
Arctic states will be important in this regard. The EU should encourage swift ratification of 
the  Minamata  Convention  with  a  view  to  preventing  and  reducing  emissions  of  mercury.  
Taking into account its comprehensive waste legislation, the EU could share experience and 
best practices on the circular economy with Arctic states. 

As regards the risk of invasive alien species, action should include voluntary measures, such 
as those proposed by the International Maritime Organisation's Guidelines for the Control and 
Management of Ships' Biofouling, as well as mandatory measures. Action could build on the 
experience gained in the EU and its Member States in managing certain pathways, including 
measures established through the International Convention for the Control and Management 
of Ships Ballast Water and Sediments adopted in 2004. Accordingly, the EU should take all 
appropriate steps to encourage all signatories to ratify the Convention.  

The EU should be committed to working closely with Member States, the OSPAR Convention 
and  other  stakeholders  on  oil  and  gas  activities  to  promote  the  adoption  of  the  highest 
standards of major accident prevention and environmental control. The EU should be ready to 
share  regulatory22  and  technological  best  practice  with  international  partners  to  support  the 
safety and preservation of the environment in the region. The EU should therefore welcome 
the  Arctic  Council  Agreement  on  Cooperation  on  Marine  Oil  Pollution,  Preparedness  and 
Response in the Arctic. 

2.    SUSTAINABLE DEVELOPMENT IN AND AROUND THE ARCTIC 

The issues 

Sustainable economic development faces specific challenges in the Arctic region. Compared 
with  other  parts  of  Europe,  the  European  part  of  the  Arctic  has  a  sparse  population  spread 
over a wide area and is characterised by a lack of transport links, such as road, rail or east-
west  flight  connections.  The  wider  Arctic  region  is  rich  in  natural  resources  such  as  fish, 
minerals, oil and gas.23 The lack of terrestrial communications means that space infrastructure 

20 See for example the AMAP 2009 Assessment: Human health in the Arctic, 
http://www.amap.no/documents/doc/amap-assessment-2009-human-health-in-the-arctic/98 
21 Particularly persistent organic pollutants, very persistent and very bioaccumulative substances as well as 
persistent, bioaccumulative and toxic substances. 
22 Such as the Offshore Safety Directive (2013/30/EU). 
23 A 2008 assessment of the US Geological Survey estimated that the area north of the Arctic circle contains 
about 13% of the world’s undiscovered technically recoverable oil resources and 30% of the world’s 
undiscovered natural gas resources. 

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has an increasingly important role to play in connecting people and businesses, and meeting 
the educational, health, linguistic and cultural needs of Arctic communities.   

The European part of the Arctic also has significant potential to support growth in the rest of 
Europe.  However,  as  the  EU  does  not  currently  have  a  complete  north-south  traffic 
connection,  it  could  explore  the  merits  of  strengthening  links  to  the  Arctic  through  trans-
European  networks,  for  example  from  Finland  to  Norway,  providing  access  to  the  Arctic 
Ocean. 

Through  its  Member  States  and  its  close  ties  with  Iceland  and  Norway  (as  members  of  the 
European Economic Area), as well as with Greenland24, the EU can play an influential role in 
shaping the future development of the European part of the Arctic through the application of 
EU  rules  relevant  for  the  EEA25  and  the  deployment  of  financial  instruments.  Cooperation 
between  countries  and  regions  in  the  European  Arctic  has  been  good,  for  example  in  the 
context of the Barents-Euro Arctic Council and the Northern Dimension policy framework. 

The EU's cohesion policy supports investments as well as capacity building in the European 
Arctic,  with  an  emphasis  on  research  and  innovation,  SME  competitiveness  and  supporting 
the shift towards a low-carbon economy26. Other important sources of project financing in the 
region are the EU territorial cooperation programmes such as: the Interreg North Programme; 
the  Botnia-Atlantica  Programme;  the  Baltic  Sea  Region  Programme;  and  the  Northern 
Periphery  and  Arctic  Programme;  as  well  as  the  Karelia  and  Kolarctic  cross-border 
cooperation  programmes  under  the  European  Neighbourhood  Instrument.  The  EU  should 
work to strengthen collaboration, synergies and complementarity between these programmes 
and other funding sources in the region. Infrastructure projects have so far proved difficult to 
develop, and national and regional authorities have made clear that they see a need for more 
coordinated and effective EU funding in this area27. 

The  climate  of  the  Arctic  region  also  makes  it  an  ideal  innovation  site  for  cold  climate 
technologies  and  services.  Harsh  climatic  conditions  and  the  fragile  environment  require 
specialised technology and know-how to meet high environmental standards. Opportunities in 
the ‘Green Economy’, such as sustainable multi-source energy systems, eco-tourism and low-
emission food production, could be developed further. The European Commission will help to 
monitor  potential  opportunities  for  sustainable  economic  activities,  including  in  ‘Blue 
Economy’ sectors such as aquaculture, fisheries, offshore renewable energy, maritime tourism 
and marine biotechnology. With wide variations across this vast region, energy is expected to 
be a growth sector, and may include on- and off-shore wind power, ocean energy, geothermal 
energy and hydropower. 

24 Greenland is not a member of the European Union. The long-standing relations with Greenland were 
confirmed by the signing of the Joint Declaration by the European Union, on the one hand, and the Government 
of Greenland and the Government of Denmark, on the other, on relations between the European Union and 
Greenland in 2015. 
25 In line with Article 102(1) of the EEA Agreement. 
26 For the 2014-2020 period, over EUR 1 billion has been allocated to investments in northern Finland and 
Sweden under the Investment for Jobs and Growth objective, which will be complemented by national public 
and private co-financing. 
27 http://ec.europa.eu/dgs/maritimeaffairs_fisheries/consultations/arctic-eu-funding/doc/results_en.pdf . 

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Policy Response 

2.1 Support for sustainable innovation 

The  EU  should  support  the  deployment  of  innovative  technologies  in  the  Arctic.  These 
technologies  could  be  applied  to  a  wide  range  of  activities  such  as  the  development  of 
advanced materials capable of working in extreme conditions in the Arctic winter that could 
  investments  in  energy  efficiency  and  renewable  energy  solutions.  Such 
stimulate 
technologies  have  the  potential  to  bring  broad  social  and  economic  benefits  within  and 
beyond  the  Arctic.  In  addition  to  Horizon  2020,  the  ESIF  programmes  provide  funding  for 
research and innovation activities in the European part of the Arctic. 

The European Commission will explore how Horizon 2020 could speed up the translation of 
research  outcomes  into  cold-climate  technologies  and  services  with  commercial  potential. 
These outcomes should embed the assessments of sustainability of processes and technologies 
to  ensure  social  and  environmental  protection  and  could  contribute  to  the  development  of 
‘Arctic  standards’.  Close  links  between  research,  science  and  technology,  while  taking 
account of traditional knowledge, will as well ensure that development is taken forward in a 
sustainable way. 

The  InnovFin28  programme  under  Horizon  2020,  in  particular  its  Finance  for  Innovators 
initiative by the European Investment Bank Group and the European Commission, can help 
Arctic-related research and innovation projects29 get access to the market. Innovfin consists of 
a series of integrated and complementary financing tools and advisory services, covering the 
entire value chain of research and innovation to support investments from the smallest to the 
largest enterprise. 

Finally, many companies — especially small and medium sized businesses — located in the 
northernmost  part  of  the  EU  thrive  on  innovative  business  models  and  innovative 
technologies, namely information technology, data processing and services, industrial design, 
the collaborative economy and the circular economy. Effective access to the Single Market 
is often critical for bringing innovations from the development stage to the market stage. The 
Commission  will  therefore  make  a  special  effort  to  promote  the  conditions  for  Arctic 
innovation  and  business  opportunities  as  it  implements  its  strategies  for  a  Digital  Single 
Market30  and in  upgrading  the  Single  Market31.  The  European Enterprise Network  has  been 
particular successful in ‘coaching’ Arctic SMEs at their request; it is driven by strong demand 
in the region. The Commission will continue to support this activity. 

28 InnovFin consists of a series of financing tools and advisory services. It covers the entire value chain of 
research and innovation in order to support investments from the smallest to the largest enterprise. More 
information: http://www.eib.org/products/blending/innovfin/. 
29 For instance the automotive winter testing facility of the Arctic Arc project is already funded under Innovfin 
(http://spga.eu/). 
30 COM (2015)192 final. 
31 COM (2015)550 final.  

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2.2 European Arctic stakeholder forum 

Consultations by the Commission and the European External Action Service suggest that the 
European  Arctic  is  suffering  from  underinvestment.  Recognising  the  need  to  work  closely 
with national, regional and local authorities in the European Arctic, the Commission will set 
up  a  European  Arctic  stakeholder  forum  with  the  aim  of  enhancing  collaboration  and 
coordination between different EU funding programmes. 

This temporary forum should bring together EU institutions, Member States, and regional and 
local authorities to contribute to identifying key investment and research priorities for EU 
funds in the region. The process will also be open to Norway and Iceland under the European 
Economic  Area  Agreement,  as  well  as  to  Greenland  under  the  EU-Greenland  Joint 
Declaration. This work, chaired by the European Commission, is to be completed before the 
end of 2017. 

Complementary  to  the  forum,  the  Interreg  Northern  Periphery  and  Arctic  Programme  will 
lead  a  pilot  activity  aiming  at  bringing  together  a  network  of  managing  authorities  and 
stakeholders  from  various  regional  development  programmes  in  the  European  part  of  the 
Arctic. It is to facilitate the exchange of information, plan and coordinate calls for proposals 
and monitor the impact of programmes on the region. The new collaborative network will also 
be open to participation by relevant national and international financing instruments. Based on 
the extensive work and experience of the programmes, the network feeds into the work of the 
stakeholder forum in identifying the research and investment priorities.    

To bring the results of the forum and network together after 2017, the Commission will fund 
and  facilitate  an  annual  Arctic  stakeholder  conference  in  the  European  Arctic  region  to 
strengthen collaboration and networking between stakeholders to improve capacity building, 
international project development and awareness of financing sources.   

2.3 Investment 

The  Investment  Plan  for  Europe  is  operational,  and  could  potentially  be  used  to  support 
infrastructure projects in the European part of the Arctic, including Greenland. Through this 
instrument and its existing lending operations, the European Investment Bank (EIB) could not 
only help to finance projects to improve transport connections over land, sea and air, but also 
telecommunications,  energy  efficiency  projects  and  low-carbon  technology.  In  line  with  its 
mandates,  the  EIB  could  invest  in  cross-border  projects  between  Sweden,  Finland,  the 
Kingdom of Denmark, Norway and Iceland, which have significant development potential. 

The  preparation  of  these  projects  could  also  be  facilitated  by  involving  the  European 
Investment Advisory Hub and Project Portal. This could help to attract new financing sources 
by  maximising  the  involvement  of  the  private  sector  and  bycomplementing  the  European 
Structural  and  Investment  Funds.  Dedicated  platforms  could  be  developed  to  bring  together 
different  investors  in  the  Arctic  region.  The  European  Bank  for  Reconstruction  and 
Development has also been an important investor in the Arctic region. 

11 

 
 
The EU's integrated Arctic policy is therefore consistent with the Investment Plan for Europe, 
which offers a range of ways to encourage investment in the Arctic region to benefit citizens 
and businesses both above and below the Arctic Circle. 

In view of transport links, the northern part of Finland, Sweden and Norway belongs to the 
trans-European Network for Transport (TEN-T). This network facilitates investments in order 
to optimise network benefits. It focuses on cross-border sections and the removal of 
bottlenecks, and pushes forward sustainable transport modes. Lulea, Kemi, Oulu, Narvik and 
Hammerfest have been defined as TEN-T ports. They form important interlinks between 
maritime and land transport.  

In order to enhance both the modal shift and the capacity for rail transport between Narvik, 
the Bothnian Corridor and southern Scandinavia, works and studies have been co-financed by 
the EU.  

Creating an optimal, sustainable mix between the different transport modes - for both long 
and short distance, passenger and freight traffic - should be done in cooperation between the 
EU institutions, Member States, third countries and industry. In order to obtain the optimal 
use of the network, a coordinated financing strategy should also be considered. 

2.4 Space technology 

Given  its  vast  size  and  sparse  population,  the  Arctic  region  can  benefit  greatly  from  space-
based services. The Arctic region however needs dedicated solutions as it is not covered by 
geostationary satellites.  

The  Copernicus  programme  already  provides  for  surveillance  and  monitoring  services  with 
satellites in polar orbits, thereby contributing to key environmental, safety and security needs. 
Once deployed, the European Global Navigation System (Galileo) will offer coverage of the 
Arctic region providing safe and reliable navigation capabilities for air, maritime and ground 
applications.  Telecommunication  needs  however  cannot  be  adequately  met  with  the  present 
mainly equatorial orbit satellites. The Commission will explore whether a suitable solution for 
the Artic could be considered as part of a possible proposal to support the next generation of 
Government  satellite  communications  in  the  context  of  the  upcoming  Space  Strategy  or 
European Defence Action Plan. The EU will also promote an integrated pan-Arctic observing 
system  through  the  GEO  Cold  Region  Initiative  as  an  essential  tool  to  study,  forecast  and 
assess changes that support the region’s sustainable development.   

2.5 Safe and secure maritime activities 

In  view  of  increasing  vessel  traffic  in  the  Arctic,  including  some  carrying  flags  from  EU 
Member States, the EU should contribute to enhance the safety of navigation in the Arctic 
through  innovative  technologies  and  the  development  of  tools  for  the  monitoring  of  spatial 
and  temporal  developments  of  the  increasing  maritime  activities  in  the  Arctic;  such 
knowledge  is  essential  to  assess the  consequent  risks  and make  better  decisions  on  possible 
mitigating measures. As a first response, the European Commission is to launch a call in 2016 
under Horizon 2020 that is to prepare a network for the Arctic and the Atlantic that is to cope 

12 

 
 
with maritime security threats resulting from the opening of the North East passage32. The EU 
should also support international efforts to implement the International Polar Code  covering 
shipping-related  matters  relevant  to  navigation  in  Arctic  waters,  including  enhanced  Search 
and Rescue. The Polar Code is expected to enter into force on 1 January 2017.  

While Satellite AIS (Automatic Identification System)  provides coverage for the Artic, there 
are challenges in ensuring and directing Search and Rescue units in case of a ship in need of 
assistance, due to the remoteness, difficult navigation due to ice and the less dense maritime 
traffic in the area. The European Coast Guard Functions Forum (ECGFF) should collaborate 
closely with the newly established Arctic Coast Guard Forum (ACGF), which could play an 
important role in fostering safe, secure and environmentally responsible maritime activity in 
the Arctic.  

3.  INTERNATIONAL COOPERATION ON ARCTIC ISSUES 

The issues 

The  challenges  affecting  the  Arctic,  and  the  solutions  required  to  address  them,  require  a 
joined-up response at regional and international level. Wider geopolitical dynamics may add 
further complexity to the changes affecting the region. The EU has a strong interest in seeing 
that the Arctic remains a zone of constructive international cooperation where complex issues 
are addressed through negotiated solutions, and where common platforms can be established 
in  response  to  emerging  risks.  Science,  in  particular,  can  be  used  as  a  catalyst  to  support  a 
common  understanding,  enabling  jointly  agreed  solutions  to  be  reached  and  foster  peaceful 
cooperation.  As  a  global  leader  in  science,  the  European  Union  should  be  ready  to  engage 
more  in  large  scale  global  scientific  collaboration.  The  EU's  Horizon  2020  research  and 
innovation  programme  is  open  to  the  world  and  enables  partnerships  between  regions  and 
countries to tackle global societal challenges.  

The EU is engaged in issues of direct relevance to the Arctic at international level via the UN 
and its specialised agencies (the United Nations Framework Convention on Climate Change, 
the  International  Maritime  Organisation  and  the  International  Civil  Aviation  Organisation) 
and  subsidiary  bodies  (the  United  Nations  Environmental  Programme).  A  number  of  Arctic 
cooperation fora have been set up in recent decades, the most important of which is the Arctic 
Council. The Arctic states have worked to foster peace and stability through cooperation and 
the  application  of  the  rule  of  law.  Given  the  importance  of  the  Arctic  region  and  the 
significant  changes  underway  there,  it  is  important  that  the  EU  continues  to  cooperate  with 
Arctic and non-Arctic partners to identify common positions and solutions on issues such as 
climate change, environmental protection and scientific research. 

32 Under SEC-21-GM-2016-2017 of Horizon 2020: Pan European Networks of practitioners and other actors in 
the field of security. 

13 

 
 
 
                                                            
It is also important to ensure that appropriate measures are in place for effective stewardship 
of  the  Arctic  Ocean  to  ensure  environmental  protection,  peaceful  cooperation  and  dispute 
settlement, respect for international law and the sustainable use of marine resources. Maritime 
security  is  also  of  increasing  importance.  In  June  2014,  the  European  Council  adopted  a 
Maritime  Security  Strategy  for  the  global  maritime  domain.33  The  strategy  and  associated 
action plan set out a number of challenges that impact on the maritime domain, and proposed 
responses at EU level. 

Policy response 

3.1 International organisations and fora 

The  EU  should  take  an  active  negotiating  position  in  relevant  UN  fora  to  encourage  all 
countries and regions to assume their responsibilities, notably with regard to climate change 
and environmental protection, but also in relation to emerging challenges such as safety at sea 
and the sustainable management of land- and sea-based resources.   

The EU recognises and supports existing legal instruments for managing the world’s seas. In 
particular, the UN Convention on the Law of the Sea (UNCLOS) provides a framework for 
managing  the  Arctic  Ocean,  including  the  peaceful  settlement  of  disputes.  The  EU  will 
support  these  efforts  by  engaging  in  a  strategic  dialogue  with  Arctic  stakeholders  and  third 
countries on security matters and by promoting continued rules-based governance at sea. 

The EU will continue its active participation in the Arctic Council — the primary forum for 
international cooperation in the region by, for example, participating in and contributing to the 
work  of  relevant  working  groups,  task  forces  and  expert  groups.  The  EU  looks  forward  to 
working  with  the  current  and  future  Chairmanships  of  the  Arctic  Council  and  to  the  early 
implementation of its observer status in line with the Kiruna Declaration of May 201334. The 
EU should also engage with the Arctic Council on issues relating to stewardship of the seas 
including by participating in the Arctic Council Task Force on Arctic Marine Cooperation.     

The EU will continue to support regional and sub-regional cooperation, including through 
its membership of the Barents Euro-Arctic Council, and the Northern Dimension policy. The 
EU is also engaged in regional cooperation within the UN Economic Commission for Europe 
and  in  particular  the  UNECE  Convention  on  Long-Range  Transboundary  Air  Pollution 
(CLRTAP).  The  Nordic  Council  and  the  Nordic  Council  of  Ministers  are  also  relevant 
partners for the European Union, not least given their longstanding engagement with EU and 
their Arctic cooperation programme.  

These cooperation frameworks address many important issues at regional level, and can have 
a substantial impact on the lives of indigenous peoples and local communities. 

33 Council of the European Union (11205/14) 

34 ‘The Arctic Council receives the application of the EU for observer status affirmatively, but defers a final 
decision on implementation until the concerns of Council members, addressed by the President of the European 
Commission in his letter of 8 May are resolved, with the understanding that the EU may observe Council 
proceedings until such time as the Council acts on the letter’s proposal.’. 

14 

 
 
                                                            
3.2 Bilateral cooperation 

The EU should cooperate with all Arctic partners, including Canada, Russia and the United 
States  with  a  view  to  identifying  further  areas  for  cooperation,  such  as  science  and 
investment.  The  EU  will  also  engage  with  all  states  that  take  an  increasing  interest  in  the 
Arctic such as China, India, Japan, the Republic of Korea and Singapore on issues of common 
interest and concern. 

The  EU  cooperates  with  Greenland  under  the  EU-Greenland  Partnership35.  The  partnership 
aims  to  support  Greenland  in  addressing  its  major  challenges,  in  particular  the  sustainable 
diversification of its economy and strengthening its administrative capacity. The EU provides 
budget support to Greenland with the aim of strengthening the education sector as a driver for 
sustainable  development.  The  EU  will  further  engage  in  policy  dialogue  at  the  appropriate 
political  and  technical  levels  on  issues  of  common  concern,  such  as  global  issues  (energy, 
climate change and the environment, and natural resources) and Arctic issues. 

Arctic policy and Arctic issues will continue to remain an important element of the EU’s close 
relations with Iceland and Norway. 

3.3 Dialogue with Arctic indigenous peoples 

The EU will continue to engage with Arctic indigenous peoples and local communities to 
ensure that their views and rights are respected and promoted in the ongoing development of 
EU policies affecting the Arctic. The European Commission hosts an annual dialogue meeting 
with  representatives of Arctic indigenous  peoples to exchange views and agree on areas for 
further  cooperation,  particularly  in  relation  to  business  and  human  rights.  The  EU  should 
continue  to  work  on  advancing  consistency  between  the  EU’s  internal  and  external  policy 
towards indigenous peoples.    

The  EU  provides  support  to  local  communities  through  several  of  its  funding  programmes, 
including  the  national  ESIF  programmes,  the  Territorial  Cooperation  programmes  and  the 
programmes under the European Neighbourhood Instrument.36  The Northern Periphery and 
Arctic  Programme  focuses  on  using  innovation  to  maintain  and  develop  robust  and 
competitive  communities,  promote  entrepreneurship,  foster  energy-secure  communities,  and 
promote and develop cultural and natural heritage. The programme is open to participation by 
partners  in  Canada  and  Russia,  in  addition  to  the  nine  programme  partner  countries  in  the 
European Arctic. 

35 Council Decision 2014/137/EU of 14 March 2014 on relations between the EU on the one hand, and 
Greenland and the Kingdom of Denmark on the other. 
36 Interreg IV A North, the Northern Periphery and Arctic programme and the Kolarctic Cross Border 
Cooperation programme for example. 

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3.4 Fisheries management 

The EU should welcome the recent declaration signed by five Arctic coastal states on Arctic 
fisheries37 and the need to obtain more information on ecosystems in the Arctic Ocean before 
opening  up  this  region  to  commercial  fishing.  However,  as  the  area  concerned  is  beyond 
national  jurisdiction,  it  will  be  necessary  for  all  interested  countries,  not  only  the  coastal 
states,  to  work  together  to  establish  the  appropriate  international  measures.  This  framework 
should  in  due  course  include  a  new  Regional  Fisheries  Management  Organisation  or 
Arrangement,  combined  with  a  new  Regional  Sea  Convention,  to  ensure  the  long-term 
conservation  and  sustainable  use  of  resources  in  the  Arctic  high  seas.  The  European 
Commission believes that such a framework can only be established in an open and inclusive 
manner, and welcomes the broadening of the negotiations to involve major fishing nations. 

3.5 Scientific cooperation 

The  EU  should  promote  and  facilitate  effective  international  scientific  cooperation  through 
supporting transnational access to research infrastructure and open data resources to improve 
political and economic links and maintain good relations with key countries in the region. It 
already  positions  itself  as  a  partner  for  global  cooperation,  complementary  to  its  Member 
States  in  the  Arctic  Council.  The  EU  should  take  forward  scientific  cooperation  at 
international  level  under  the  Transatlantic  Ocean  (and  Arctic)  Research  Alliance38, 
launched  by  the  Galway  declaration  in  May  2013,  which  involves  Canada,  the  EU  and  the 
United States. 

In  order  to  fill  gaps  in  the  available  marine  data  about  the  seabed  in  the  seas  and  oceans 
around  Europe  and  the  life  they  support,  the  European  Commission  has  set  out  a  target  to 
develop a multi-resolution map of the entire seabed and overlying water column by 2020. 
This project will include the Barents Sea from 2018. Over 100 organisations, including from 
Iceland,  Norway  and  Russia,  are  working  together  under  the  European  Marine  Observation 
and Data Network (EMODnet) to make their marine data more accessible, interoperable and 
useful to end-users. Data will be available through a single web portal. 

This initiative is important for driving sustainable growth in the Blue Economy. It is estimated 
that  making  the  high-quality  marine  data  held  by  public  bodies  in  the  EU  widely  available 
will improve productivity by over EUR 1 billion a year39: Private and public bodies, as well as 

37 https://www.regjeringen.no/globalassets/departementene/ud/vedlegg/folkerett/declaration-on-arctic-fisheries-
16-july-2015.pdf . 
38  The  EU,  Canada  and  the  US  try  to  foster  their  cooperation  concerning  marine  and  Arctic  research 
infrastructures. However, beyond these two partners, Horizon 2020 promotes the broadest transnational access to 
research infrastructures and supports an open data policy in order to improve political and economic links and 
maintain good relations with all countries in the region and those interested in Arctic research. More information 
on the Transatlantic Ocean (and Arctic) Research Alliance  
http://ec.europa.eu/research/iscp/index.cfm?lg=en&pg=transatlantic-alliance . 
39 Commission Staff Working Document Marine Knowledge 2020: Roadmap accompanying the Document 
Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social Committee and the Committee of the Regions, Innovation in the Blue Economy realising the potential of 
our seas and oceans for jobs and growth (SWD/2014/0149 Final). 

16 

 
 
                                                            
hydrographic offices, research institutions and civil society organisations, would not need to 
re-survey areas that had already been surveyed, but for which the data have up to now been 
inaccessible.  It  would  cost  them  less  to  process  existing  data.  Research  in  security  matters 
covering  Arctic  dual-use  resources  and  exchanges  of  best  practices  in  this  field  should  be 
strengthened.   

4. CONCLUSIONS AND NEXT STEPS 

1.  This  policy  document  should  guide  the  EU’s  actions  for  the  coming  years,  and  the 
European Commission  and the High  Representative for Foreign Affairs and Security Policy 
invite  the  views  of  the  European  Parliament  and  Council  of  the  EU.  The  EU  will  keep  this 
policy under review in light of developments. 

2. As part of its strategic commitment to the Arctic, the EU should engage with the region on 
these three priority areas: 

  climate change and safeguarding the Arctic environment; 

  promoting sustainable development in the region; 

  supporting international cooperation on Arctic issues. 

3. The EU needs to ensure that the necessary coordination structures are in place at EU level 
to  meet  the  challenges  ahead.  The  Council  could  consider  establishing  a  Working  Party  on 
Arctic  Matters  and  Northern  Cooperation  and  the  European  Parliament  could  similarly 
consider establishing a delegation on Arctic Matters and Northern Cooperation. 

17