Denmark, as other Arctic countries before it, in August 2011 published a strategy in which it set out its long-term goals and objectives in the Arctic. Designed primarily to provide the protection of its national interests, the strategy contains provisions that are in many ways consonant with the Russian vision of the situation in the region.
This opens up new prospects for mutually beneficial cooperation between the two countries enabling a civilized resolution of potential disputes over the continental shelf borders, exploitation of natural resources, use of maritime transport routes and protection of vulnerable environment.
Denmark, as other Arctic countries before it, in August 2011 published a strategy in which it set out its long-term goals and objectives in the Arctic. Designed primarily to provide the protection of its national interests, the strategy contains provisions that are in many ways consonant with the Russian vision of the situation in the region. This opens up new prospects for mutually beneficial cooperation between the two countries enabling a civilized resolution of potential disputes over the continental shelf borders, exploitation of natural resources, use of maritime transport routes and protection of vulnerable environment.
Denmark's Arctic Strategy
In September 2008, Russia adopted the "Principles of State Policy of the Russian Federation in the Arctic for the Period up to 2020 and beyond" and was the first Arctic state to develop a long-term strategy for the Arctic region. Russia's example was followed by other Arctic countries. One of the last countries to join this group was Denmark whose government in coordination with local authorities in Greenland and the Faeroe Islands approved in August 2011 the “Strategy for the Kingdom of Denmark with Regard to the Arctic for 2011-2020.”
This unusual trilateral format of Danish strategy is the result of a significant level of autonomy of Greenland and the Faeroe Islands in addressing many issues including the exploration and development of mineral resources. One of the objectives of the document was to formalize common goals and ensure coordinated action by all the three constituents of the Kingdom. So it is not surprising that the main mechanisms for implementing the strategy should be the establishment of a tripartite steering committee and joint development of foreign and security policy in the Arctic.
It should be noted that the main vector of the Danish Arctic strategy, the object of declared steps is Greenland: safeguarding its economic growth, protection of its environment and surrounding waters, promotion of the socio-economic development of indigenous population. Such an approach seems to be justified because it is Greenland that is the "window" of Denmark to the Arctic, a factor that makes it possible to rank the Kingdom as an Arctic state.
Denmark’s strategy covers the following main areas of its activities:
- Ensuring a peaceful, secure and safe Arctic (supremacy of international law, strengthening of maritime safety, exercise of sovereign rights);
- achieving self-sustained growth and development (using the highest standards in mining, renewable energy sources, sustainable exploitation of biological resources, knowledge-based growth and development, active involvement in international trade);
- promoting the development while preserving the Arctic climate, environment and nature (deep insight into the consequences of climate change, protection of the environment and biodiversity);
- fostering international cooperation with foreign partners (search for global solutions to global challenges, enhanced regional cooperation, safeguarding national interests on a bilateral basis).
Denmark intends to achieve strategy objectives both nationally (closer cooperation on the Arctic issues with Greenland and the Faeroe Islands, continued scientific research in the Arctic, strengthening its sovereignty and control in national maritime and continental areas), through active promotion of its positions in international organizations (the UN, European Union and the Arctic Council (AC), the International Maritime Organization, the Nordic Council of Ministers), and in the context of bilateral relations - with the United States, Canada, Norway, Iceland and Russia.
What does this mean for Russia?
From the point of view of Russian interests in the Arctic the Danish strategy contains many positive elements creating the basis for enhanced interaction between the two countries, both within the framework of international organizations and bilaterally. It is noteworthy, however, that the Danish vision of specific areas of bilateral cooperation, as set out in the strategy, is quite modest. It implies safe navigation in the Arctic waters, confidence building, cooperation in scientific research and exchange of data on sustainable development.
Given that Denmark is one of Russia’s competitors in extending the boundaries of the continental Arctic shelf beyond the 200-mile zone, of great importance is the confirmation of adherence to the provisions of the Ilulissat Declaration (adopted May 28, 2008 at the meeting of foreign ministers of the “Arctic Five “- five coastal Arctic nations: Russia, Denmark, Canada, the USA and Norway). According to this declaration, any possible overlapping claims over the continental shelf will be addressed solely on the basis of the 1982 UN Convention on the Law of the Sea.
This approach of Denmark greatly contributes to the strengthening of the atmosphere of stability, transparency and good-neighborly cooperation in the Arctic. It disavows the apocalyptic predictions and concerns about possible conflicts in connection with the establishment of the outer limits of the continental shelf and the exploitation of Arctic resources, as well as statements about the need to involve other international organizations including military and political ones, such as NATO, in the solution of Arctic affairs.
Besides, this approach opens up the possibility of scientific substantiation as well as promotion in the UN Commission on the Limits of the Continental Shelf of national applications for the establishment of its outer limits beyond 200 nautical miles. Already ideas have been put forward of parallel submission of applications (both Russia and Denmark plan to submit them in 2014) and close cooperation at the stage of their preparation.
No less important from the Russian point of view is the declared intention of Denmark to fully contribute to the strengthening of the Arctic Council as the only political structure for cooperation in the Arctic, which represents the interests of member states as well as indigenous peoples organizations. The transformation of the AC into a full- fledged international organization capable both of coordinating priority areas of interaction and developing mandatory international agreements in the Arctic for all member countries is advantageous to our two countries. Due to such political modernization of the Council it is only the Arctic states that will define on the basis of consensus of interests the main parameters of the situation in the region without any outside interference. The first steps in this direction have already been made. At the ministerial session of the AC in Nuuk (Greenland) on May 12, 2011 was signed the first-ever Agreement on Cooperation on Aeronautical and Maritime Search and Rescue in the Arctic. Currently a similar international instrument for coping with marine oil spills in the Arctic is being prepared. Russia and Denmark whose bilateral relations have not been overshadowed by geopolitical ambitions can, on the basis of balanced interests, initiate the development in the AC of new multilateral measures to protect the Arctic and elaborate conditions for the exploitation of its resources.
Speaking about the prospects for expanding bilateral economic cooperation, of special mention are the provisions of the Danish strategy for its readiness to examine the need for the creation of new transport routes. With regard to Russia this may mean the participation of the Danish side in the implementation of plans to use the Northern Sea Route (NSR) as the shortest water route between Europe and the Asian-Pacific region turning it into an East-West international transport corridor.
Denmark, one of ten largest shipping states, is interested in such a development. This is evidenced by the fact that the first foreign vessel to pass along the NSR was the Danish bulk carrier “Nordic Barents” which in September 2010 transported 41,000 tons of iron ore from Norway to China.
As far as progress in this area is concerned the ball is now in the Russian court. First, it is necessary without delay to legally regulate all aspects of navigation in the NSR, to form a single governing body - the Administration of the Northern Sea Route. Only after the clear "rules of the game" are established, it will be possible to discuss specific aspects of turning the NSR into an international transport corridor as well as the issues of cooperation in building a proper port and navigation infrastructure.
There seem to be good prospects of cooperation between Russian and Danish companies in the offshore oil and gas exploration and a number of related areas (drilling wells in Arctic conditions with special vessels, construction and maintenance of energy and transport infrastructure). The first steps have already been taken: meetings of representatives of the Danish group “AP Moller-Maersk” and its subsidiary company “Maersk Drilling" with specialists from Russian companies “Gazprom”, “Gazflot”, “Gazprom dobycha shelf”, “Gazprom neft shelf”, “Burovaya tekhnika”.
Another area of bilateral cooperation under the approved strategy is the environment, the assessment of climate change in the Arctic and ways to overcome their adverse effects. Such an interaction would complement the multi-faceted work done by the AC and could be carried out on the platform of the Russian-proposed International Polar Decade Program.
Conclusions
The above potential areas of cooperation between Russia and Denmark in the Arctic are only a small fraction of the whole gamut of opportunities. The political will expressed in Denmark’s Arctic Strategy - to promote sustainable and conflict-free development of the situation in the Arctic - creates a favorable backdrop for stepping up the bilateral Russian-Danish cooperation in many areas, from economic to political, social and scientific. The task is to proactively use the available opportunities in the interests of the two countries and for their mutual benefit, to translate them into practical steps and concrete agreement. A proposal could be made to hold Danish-Russian bilateral consultations of experts and representatives of relevant agencies on collection and exchange of scientific data for the preparation of applications for an extended continental shelf in the central Arctic Ocean. In terms of networking between business communities of the two countries, a conference on the development of natural resources in the Arctic could be useful. As to mandatory steps (after the adoption of relevant Russian laws) a special meeting on the international use of the NSR should be considered.
