Report No. 15 (2008–2009) to the Storting Interests, Responsibilities and Opportunities The main features of Norwegian foreign policy Table of contents Introduction. 7 5 The High North will continue Norwegian interests and globalisation . 8 to be of special importance The structure of the white paper . 9 to Norway . 49 5.1 Major changes in the High North Summary. 10 since the end of the Cold War. .. 49 5.2 The High North will continue to be Part I Challenges to Norwegian a major security policy challenge . 51 interests . .15 5.3 A greater role for the EU and the Northern Dimension . 52 1 Globalisation is broadening 5.4 International law issues . 53 Norwegian interests . 17 5.5 Cross-border and innovative 1.1 Globalisation and the state . 18 cooperation in the High North . 54 1.2 Globalisation is a challenge to 5.6 Increasing interest in the polar Norway . 18 areas and the Arctic Council . 55 1.3 Norway is becoming more closely involved in the global economy. 20 6 Europeanisation and Nordic 1.4 Norway’s broader interests . 22 cooperation . 57 6.1 The importance of the EU . 57 2 The downsides and 6.2 Further development of the EU . 59 counterforces of globalisation . 24 6.3 Europeanisation defines the 2.1 Globalisation includes and excludes 24 framework . 60 2.2 The new uncertainty of globalisation 6.4 Agreements and cooperation . 60 – new security policy challenges. 26 6.5 Fisheries policy. 63 2.3 Threats to Norway from global 6.6 Broad Nordic cooperation . 63 instability . 27 6.7 The Council of Europe and the OSCE . 65 3 The geopolitical balance of power and the consequences 7 Challenges facing an for security policy . 30 environmentally aware energy 3.1 Towards a multipolar world. 30 nation . 67 3.2 Challenges and direct threats to 7.1 International trends . 67 Norwegian security interests . 39 7.2 Challenges for Norway . 69 4 The vulnerability of the UN and 8 Increasing migration entails global organisations, and both opportunities and Norway’s dependence on an challenges . 73 international legal order . 43 8.1 Global migration. 73 4.1 Globalisation and geopolitical change 8.2 Immigration to Norway . 75 are a challenge . 43 8.3 The national and international 4.2 The response of the multilateral value of migration. 77 system . 43 4.3 Finding the right balance between 9 The communication revolution legitimacy and effectiveness . 45 poses new demands . 79 4.4 The international community’s 9.1 The communication revolution norms and rules . 46 and foreign policy. 79 4.5 Norway’s great dependence on an 9.2 Reputation-building and the need international legal order. 47 for public diplomacy. 81 10 Diversity of actors brings new 14.2 The EU/EEA as a key economic opportunities but also new framework condition. 126 challenges . 83 14.3 The importance of trade policy for 10.1 Role of the state tested . 83 Norway. 129 10.2 The new foreign policy actors . 84 14.4 The state’s role as an investor and 10.3 How can we best exploit the new investment manager . 130 political potential? . 89 14.5 An integrated Norwegian maritime policy . 132 Part II Foreign policy priorities for 14.6 The Norwegian/Nordic model as safeguarding Norwegian a resource . 134 interests . 91 14.7 A positive image . 135 14.8 The need for tolerance and 11 Focus on interests . 93 multicultural understanding . 136 11.1 Globalisation and interest-based policy . 93 15 Safeguarding Norwegian energy 11.2 Interests . 94 interests . 137 11.3 Values . 94 15.1 Norway will be a climate- 11.4 Norway’s broader interests . 94 conscious energy nation. 137 11.5 Norway as a foreign policy actor . 95 15.2 Norway – a stable and predictable 11.6 The need for priorities . 96 oil and gas supplier . 139 15.3 Norway does not wish the oil and 12 Promoting Norwegian security gas market to become politicised . 140 in our neighbouring areas and 15.4 The EU and Norwegian energy globally . 98 policy . 141 12.1 Security policy to safeguard 15.5 The importance of energy Norway’s security interests . 98 security is growing . 142 12.2 Norway’s security policy aims . 99 15.6 Transparency, cooperation and 12.3 Security policy priorities. 100 dialogue . 143 12.4 The pillars of Norwegian security – 15.7 Better governance of the energy a security network. 103 sector in developing countries. 144 12.5 A policy of engagement towards Russia . 109 16 Giving priority to Norway’s 12.6 Focus on China and Asia in environmental, climate and Norwegian security policy . 110 natural resource interests . 147 12.7 The armed forces as a security 16.1 The international dimension of policy tool – the need for a Norway’s environmental interests. 147 coherent approach . 111 16.2 Global environmental threats that affect Norway. 148 13 Exercising global responsibility 16.3 How much pressure does Norway through our policy of put on the environment abroad? . 154 engagement . 112 16.4 Strengthening global 13.1 The rationale behind Norway’s environmental cooperation . 156 policy of engagement . 113 16.5 Norway’s environmental interests 13.2 Aid and the fight against poverty. 113 within the framework of the EEA 13.3 Human rights – obligations and Agreement and in cooperation challenges . 116 with the EU . 157 13.4 Peace and reconciliation. 118 13.5 Humanitarian aid and policy in 17 Promoting a global order to the face of new challenges . 121 deal with current and future challenges . 160 14 Safeguarding economic and 17.1 International cooperation since social interests in a globalised 1990 – a complex picture . 160 world . 124 17.2 Prerequisites for a better global 14.1 Promoting the interests of order . 161 Norwegian economic actors. 124 17.3 Reforming the global order: 20 Improving the Norwegian Norway’s main priorities . 162 authorities’ overall 17.4 The central role of the UN in administration of foreign Norwegian foreign policy . 162 policy . 180 17.5 Norway’s policy for reform of the 20.1 Foreign policy coordination . 180 UN . 163 20.2 Globalisation increases the need 17.6 Security . 165 for and poses challenges in terms 17.7 The financial crisis and the global of coordination . 181 economic order. 166 17.8 Global health and foreign policy . 169 21 Further developing the foreign 17.9 Challenging and supporting the service in response to the system. The EU’s role as a global challenges of globalisation . 183 actor . 170 21.1 Ongoing changes and reforms . 184 17.10 Diversity, complexity and the 21.2 Managing growth . 185 need for transparency . 171 21.3 Services for Norwegian citizens abroad . 186 Part III A coherent approach to the 21.4 Security and emergency promotion of Norwegian foreign preparedness. 187 policy interests . .173 21.5 Strengthening foreign policy expertise . 187 18 Coherence in the public administration . 175 22 Making active use of public diplomacy to take advantage 19 The impact of globalisation on of the freedom of manoeuvre the public administration . 176 offered by globalisation . 190 19.1 Increasing diversity of 22.1 Systematic public diplomacy international tasks . 176 efforts as part of Norwegian 19.2 Increasing number of foreign policy . 190 government bodies involved in 22.2 International cultural cooperation international matters . 177 in public diplomacy . 192 19.3 The Norwegian public 22.3 Public diplomacy at the national administration well equipped to level – the Refleks project . 193 deal with the challenges of globalisation . 178 2008– 2009 Report No. 15 to the Storting 7 Interests, Responsibilities and Opportunities Ministry of Foreign Affairs Interests, Responsibilities and Opportunities The main features of Norwegian foreign policy Recommendation from the Ministry of Foreign Affairs, dated 13 March 2009, approved by the Council of State on the same date. (Stoltenberg II Government) Introduction Almost 20 years have passed since the last time a well as European issues when required, budget white paper on the main features of Norwegian for­ proposals and other reports, propositions and spe­ eign policy was submitted to the Storting. Early in cific matters in various connections. the current parliamentary term, the Government The aim of the Refleks project has been to announced its intention to present a white paper on encourage public debate and analysis of Norwe­ how globalisation and geopolitical change are gian foreign policy. The need for an open debate on posing challenges to Norway’s interests in the the international challenges facing Norwegian world and the main features of our foreign policy. society and foreign policy dilemmas, and the This white paper ushers in the last stage of a series desire to involve and engage new groups in this of studies, publications and meetings throughout debate, have been at the core of the project. Norway under the auspices of the project “Refleks Since 1990, globalisation and geopolitical – globalisation and national interests” (the Refleks change have posed new, difficult challenges to project). The white paper draws on analyses and Norwegian interests and the implementation of conclusions set out in the report prepared by the Norwegian foreign policy. The main purpose of project, National Interest. Foreign policy for a global- this white paper is to examine these challenges. ised world – the case of Norway, which was pub­ The white paper is also an indication of the value lished in September 2008. the Government attaches to openness, analysis There is great interest in foreign policy in Nor­ and debate on foreign policy issues. The greater way. There is an ongoing broad, lively debate on the global complexity and the magnitude of global foreign policy issues between the media, research change, the greater the need to secure support for institutions, private individuals and various politi­ and legitimise foreign policy in the public domain.