THE NORDIC TURN OUTWARDS

The Nordic Co-operation and the Adjacent Areas Policy


REFLECTIONS ON FUTURE

The process that started the reorientation of the Nordic co-operation is not over, the European is field is on continuos change. The future direction of the Nordic co-operation is still open. Globalization and growing integration challenge the traditional forms of co-operation not least because of its effects on the nation state and its competence. The growing internationalization makes the regional co-operation between the countries sharing same values and interest even more important then when the aim is international influence and control of the national interests. The co-operation has to be adjusted to the prevailing conditions.


Working Group to revise the Strategy for the Co-operation with the Adjacent Area

On February 2000 a Working Group was appointed to revise the Council of Ministers' strategy for co-operation with the Adjacent Areas. The last occasion on which the strategic goals for this co-operation were subjected to review was in 1996. A new review was now required, mainly on account of a) changes in the external environment, in particular the enlargement of the EU following the accession to the Union of the Baltic states and Poland, and b) the steps taken to reinforce co-operation relations with Russia. Another reason for conducting the review was the extension of the scope of the programmes for co-operation with the Adjacent Areas being implemented both by the Council of Ministers and - bilaterally - by the single Nordic countries. Moreover, the national programmes have been - or are being - revised, against the background of developments since 1996. The EU's closer involvement in Northern Europe - inter alia, via the Northern Dimension - provides further justification for revising the role played by the Nordic Council of Ministers in co-operation with the Adjacent Areas. Against this background, the Working Group has proposed a number of adjustments to the design and implementation of the programme for Nordic co-operation with the Adjacent Areas.

The Working Group proposed no direct changes in the Council of Ministers' definition of the Adjacent Areas. However, the process focusing on enlargement of the EU means that the hub of co-operation activities is gradually moving closer to the Russian parts of the Adjacent Areas, in the Baltic and Barents regions. Cross-border co-operation along the borders with Russia and Belarus will assume a growing significance, with a special emphasis on Leningrad oblast (administrative region), Pskov and Kaliningrad. The nature of co-operation with the Baltic states is gradually undergoing change, assuming the status of normal co-operation between public authorities in the Nordic-Baltic region.

What comes to the on measures taken by Nordic Council and Ministerial Council the Working Group called for greater notice on their form. They should be concentrated on major projects that are capable of making a tangible impact in the host country and are of political relevance. This is seen to require a sharper focus on specific subjects, rather than a focus on the activities of the single administrative division. The measures should have the appropriate anchorage so as to correspond more closely with the wishes of the host countries. The Council of Ministers' Information Offices are given a central role in this process.

This connects to another note made by the Group concerning the working methods. As the goal is promoting regional co-operation, attention should be paid to differences in the needs of the countries covered by the term Adjacent Areas, by applying different methods in relation to Russia and the Baltic states. According to the Working Group this can be achieved by devising separate country-specific programmes. It emphasized the special role of the Baltic countries, they should be offered an opportunity to participate in ordinary Nordic projects and development work, in accordance with specific agreements, when such participation is appropriate.

The Eu and its Northern Dimension was also taken into account. When implementing the EU's action plan for the Northern Dimension and providing support for the accession of the Baltic states during the Union's enlargement process, the Nordic Council of Ministers should focus on co-operation areas of common interest, which promotes sustainable co-operation relations in the Baltic and Barents regions. In relation to other actors - including CBSS, the Barents co-operation structure and the Arctic Council - co-operation measures should be reinforced and given a higher profile.

The instruments applied today by the Council of Ministers - the Nordic Information Offices, the Nordic Grants Schemes and project activities - were critised by the Group as beeing deemed to be capable of meeting current needs. The activity profile of the Information Offices should be redefined, so that they achieve higher levels of efficiency in fulfilling their role as implementing partners in the programme for co-operation with the Adjacent Areas. During the forthcoming revision of the Grants Schemes, any overlapping with the EU's various programmes should be identified. The advantages and disadvantages of these Grants should also be considered. In the case of project activities the Group demanded a focus on addressing themes of greater political relevance. Issues pertaining to industry/trade and financing should be delegated to the Nordic funding agencies.Against the background of national bilateral programmes and - in particular - the EU's various programmes, the Working Group proposed that co-operation should continue with a special focus on the following themes: the Nordic welfare model (including health-care and gender equality); sustainable utilisation of resources (including environmental and energy issues); children and youth issues; culture mediation; consumer policy and food safety.


The Panel of the wise men

The notes made by the Working Group are not occasional. The current structure of co-operation that was formed after the events at the turn of the decade has been put on question by different opinions. It has been said that the present model, that divides the fields of action in three - Norden, Europe, Adjacent Areas - does not answer to the needs but a more flexible system is required. This is to make possible a more unite Nordic appearance and to ease the participation of the Adjacent Areas. The old goals, to stabilize the conditions of the Adjacent Areas and to secure the European integration process, are still seen as central, but the present nature of the co-operation between the Nordic countries and the Baltic states has been criticized. It has been seen as a patron-ward-relationship. This relationship has to be changed in order to achieve a functioning co-operation on equal terms. This is the view carried by the Wise men panel that was appointed 1999 to evaluate the Nordic co-operation. They suggested replacing of the present structure by a model with ten key areas of action.

The Eu-integration is also of continuous relevance to the Nordic co-operation and its future. The Baltic countries EU-process is proceeding. This is seen to be meaning that their need for Nordic support is growing. But the prospective EU-membership of these countries has also other implications, it speaks for greater participation of the Baltic countries in the Nordic co-operation organs but also changes the relationship between the countries. Within the EU the Baltic countries would be part of the EU policies, not part of the Adjacent Area policy like today. This development would move the emphasis of the Nordic Adjacent Area policy to northwest Russian and Arctic areas. For greater co-operation with these areas speaks many factors. The general aim of promoting of the democratic development does not restrict itself to the EU-membership candidates but requires co-operation also with those countries that are not candidates. In addition, the Northern Dimension of EU's policy, to which all the Nordic countries are committed to, is a significant combining factor, especially in the case of Russia. In these areas the environmental questions are of great interest and call for attention.


The Future?

The Nordic co-operation and especially it´s relationship to the world outside is still looking for it´s form as the context is continuously changing. The Nordic countries have tried to answer to the new conditions followed by these changes by reforming their co-operation and it's functions. The Adjacent Area policy has been a product of these processes. And as the processes are still in progress the future remains open. The picture changes all the time. The web sites of these organs and other actors provide a good view to this process.

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Created by Heidi Haggrén, University of Helsinki
E-mail: heidi.haggren@helsinki.fi

Last updated on May 21, 2001