Indian Council of World Affairs

Norway took over as the Chair of the Arctic Council from Russia in May 2023. Since then, Oslo has worked towards resuming Council activities which had paused following the onset of Ukraine crisis in February 2022.  This Viewpoint assesses one year of Norway's Chairship of the Arctic Council. It highlights the achievements as well as challenges ahead for Norway as it works towards fulfilling its goals with the Council. 

Background 

The Arctic Council was established in 1996 under the ‘Ottawa Resolution’ signed by eight member countries[i]. The countries include Russia, USA, Iceland, Norway, Finland, Sweden, Greenland, and Canada, and with thirteen more Observer member States including India, the Council serves as an intergovernmental organization that promotes collaboration, interaction in joint research projects and agreements. Since its inception, three binding treaties have been signed: Aviation and Maritime Search and Rescue in the Arctic (2011), Preparedness and Response to Marine oil pollution in the Arctic (2013) and Strengthening International Arctic Scientific Cooperation (2017)[ii]. Consequently, the Council has become the primary multilateral forum for emerging international concerns pertinent to the Arctic region. Nonetheless, the Ukraine crisis impacted the Council’s functioning and hampered cooperation. Due to differences between Russia and other Arctic Council member States, joint projects and scientific collaboration involving Russia are on hold. 

Norway’s Chairship 

For its two-year Chairship, Norway has prioritised four themes. First, Norway aims to develop a digital environmental atlas to safeguard the oceans amidst rising commercial activity and promote marine ecosystem protection. Second, combating climate change, with efforts to reduce black carbon emissions by 2025 and contribute to international initiatives like the Paris Agreement. Third, balancing economic growth with environmental responsibility which is a key aspect of sustainable development. And for this theme, Norway emphasises: the green transition, the blue economy, sustainable shipping practices, and Arctic food systems. And fourth, Norway prioritizes the well-being of Arctic communities, focusing on gender equality, public health, employment opportunities, and cultural heritage preservation[iii]. 

In order to achieve these goals, Norway along with all member countries and in deliberations with Indigenous permanent participant organizations decided to initiate functioning of official working group meetings. The project level work is being held through virtual format on issues ranging from climate change and to emergency response[iv].  An example of the same is the virtual modeled training exercise for a large oil spill organized in May 2024. The virtual exercise, attended by all Arctic members, including Russia projected a rare sign of cooperation[v]. This collaboration demonstrates a willingness to engage in constructive dialogue on matters of shared concern, despite divergences on other issues. 

Norway has also taken initiatives such as organizing of the Arctic Youth Conference (Tromso, January 2025) to prioritize opportunities for Arctic youth engagement and will host the first International Arctic Emergency Management Conference (Bodo, March 2025) to discuss effective response to emerging risks of ecological disasters. The strengthening of Council’s role in multilateral forums and events like COP29[vi] will further elevate the forum’s work. 

Norway continued with the priorities set by the Russian Chairship: (The people of the Arctic, Environmental protection, Socio-economic development and strengthening Arctic cooperation) demonstrating Council’s focus areas. Russia kept up with its planned program as the Western member states paused all official activities due to Russia’s special military operation in 2022. Furthermore, Russia responsibly completed its obligations to the Council as it held over 90 events supporting the Arctic region’s development. Its cross-cutting priorities were the Arctic governance and development of Arctic Sea routes[vii]. As the current chair, Norway is also moving in the way that was paved by prior Chairs 

Challenges 

Despite its achievements, Norway continues to face challenges owing to the ongoing crisis in Ukraine which has hindered cooperation on core Council issues pertaining to the environment. 

Research projects that required Russian involvement like polar bear conservation and climate change have paused. In addition, in its working scientists have faced loss of the sharing of data and essential facilities for research in the Russian Arctic which further hampers the Council’s functioning,[viii] and may lead to adverse global consequences in terms of climate research and mitigation. 

Moreover, political level meetings among member states have yet to be initiated. Russia’s new Arctic Strategy 2023 with its intent to expand its national interests and form individual alliances with non-Arctic states like China, has significantly widened the gap for cooperation[ix].Additionally, Russia’s exit from the Barents Euro-Arctic Council and its decision to halt annual payments until the Council resumes real work[x] also minimizes the opportunities for cooperation. This has further widened existing differences, posing a substantial challenge for the Council. 

Lastly rising temperatures and melting ice are opening the Northern Sea Route, fostering resource exploration and potentially escalating territorial disputes among member states. This surge in human activity directly threatens Arctic biodiversity and raises concerns about oil spills and shipping accidents amid limited interaction. 

Conclusion 

With the first year of Norway’s Chairship completed, the ongoing conflict in Ukraine is impeding the progress on its agenda, as official political-level meetings remain stalled. Despite the tense geopolitical backdrop, Norway has ensured some resumption of working groups on climate change and sustainable development issues. This demonstrates Norway’s attempts to prioritize constructive cooperation and regional stability to focus on building a resilient Arctic Council. As the Chairship transitions to the Kingdom of Denmark in 2025, the success of these efforts will hinge on fostering the renewal of diplomatic dialogue with Russia. Minimizing long-term friction and paving the way for regional stability are crucial steps toward a sustainable and prosperous Arctic future.

***** 

*Kanishka Ajmera, Research Intern, Indian Council of World Affairs, New Delhi
Disclaimer: Views expressed are personal.

Endnotes

[i]The eight member countries that signed the ‘Ottawa agreement’ are Russia, USA, Iceland, Norway, Finland, Sweden, Greenland, and Canada.

[ii]Arctic Council. (n.a., n.a. n.a.). Agreements and cooperation. Arctic Council. https://arctic-council.org/explore/work/cooperation/

[iii]Norwegian Ministry of Foreign Affairs. (2023, march n.a.). Norway's Chairship Arctic Council 2023-2025. Regjeringen.no. https://www.regjeringen.no/contentassets/034e4c4d49a44684b5fb59568103702e/230322_ud_ac_programbrosjyre_en_web.pdf

[iv]Arctic council. (2024, February 28). Arctic Council advances resumption of project-level work. Arctic Council. Retrieved June 19, 2024, from https://arctic-council.org/news/arctic-council-advances-resumption-of-project-level-work/

[v]Fouche, G., & Dickie, G. (2024, May 13). West, Russia manage limited cooperation in Arctic despite chill in ties. Reuters. https://www.reuters.com/world/west-russia-manage-limited-cooperation-arctic-despite-chill-ties-2024-05-14/

[vi] the arctic council. (2024, May 16). One year into the 2023-2025 Norwegian Chairship: A Q&A with SAO Chair Morten Høglund. Arctic Council. https://arctic-council.org/news/one-year-norwegian-chairship/

[vii] Arcticportal.org. (2023, May 16). Russia Concludes Its Chairmanship of the Arctic Council. Arctic Portal. https://arcticportal.org/ap-library/news/3220-russia-concludes-its-chairmanship-of-the-arctic-council

[viii]Digges, C. (2024, February 5). Bellona meets with Arctic Council officials on black carbon and alternative energy in the polar region. Bellona.org. https://bellona.org/news/arctic/arctic-transport-and-shipping/2024-02-bellona-meets-with-arctic-council-officials-on-black-carbon-and-alternative-energy-in-the-polar-region

[ix]Simpson, B. (2023, May 31). The Rise and Sudden Fall of the Arctic Council. Foreign Policy. https://foreignpolicy.com/2023/05/31/arctic-council-russia-norway/

[x]Kelly, L., Wong, J., & Coates, S. (2024, February 13). Russia suspends annual payments to Arctic Council, RIA agency reports. Reuters. https://www.reuters.com/world/russia-suspends-annual-payments-arctic-council-ria-agency-reports-2024-02-14/