European Green Deal and the EU Arctic Policy Aligned

The EU Arctic policy has been a work in evolution, with a clear definition in the Treaty of Lisbon as a value of the European Union. It has become even more coherent, credible and cohesive since then. A new EU Arctic policy was expected by the end of 2021. Regarding the European Green Deal, presented by the European Commission in 2019 under President Ursula von der Leyen and reinforced by the European Climate Law – and after analysing the Joint Communications from 2008 up to the present, including speeches by Presidents Juncker and von der Leyen as well as Josep Borrell – we consider this environmental policy to be aligned with the new Joint Communication, which will continue to focus on climate change and what can be done to reduce the rapid changes occurring in the Arctic region that affect us all. This policy positions the European Union as a global leader on environmental issues.

The suggestion of a lack of coherence and cohesion in the EU Arctic policy seems to stem from a misunderstanding of how the EU functions – as both an intergovernmental organisation and a supranational entity. Issues of the environment and climate change are clearly defined in the Treaty of Lisbon, with shared competences in environmental policy. This will be reflected in the EU Arctic policy, which must be revised regularly and remain flexible to respond to the rapid changes observed in the Arctic region and globally. EU climate policy, embodied in the European Green Deal, will be more aligned, clear, coherent and credible within the EU Arctic policy – making the EU a model in achieving goals and, consequently, a global leader in this domain.

The Arctic, located in the northern part of the globe with 4 million people and 20 million km², is 4.5 times the size of the European Union (EU) (Koivurova et al., 2021). It is a region with three delimitations: geographic (above the Arctic Circle, 66º 32” North), biological (tree line), and climatological (isotherm where the average daily summer temperature does not rise above 10ºC). Since Pytheas, it has been a both forgotten and cherished place on Earth at different moments in history.

The image of a harsh, remote place is becoming increasingly real due to growing accessibility. This is the coldest region on Earth, where European explorers once sought new routes, as depicted in the works of authors such as Edgar Allan Poe and Jules Verne, who described in detail the ice, the frigid seas, the weather, the land, the light, the animals, the wilderness, and the populations. It is a place that once seemed imaginary and inaccessible, despite the presence of indigenous populations like the Thule, Inuits and Sami. Yet Europeans have long sought to understand it better, even as a means of self-affirmation during the 16th century. Today, this region is no longer just a distant fantasy, particularly as access becomes less difficult.

The Arctic, once perceived as unreachable, is now at the centre of global attention. It is the world’s sentinel, offering both new opportunities and new challenges. These changes are the consequences of climate change. What happens in the Arctic no longer stays there (1). Climate change is globalised.

Climate change is the greatest threat the Arctic faces (Borrell, 2021). The European Union recognises its responsibility for environmental damage impacting the Arctic. It is now undeniable that the Arctic is undergoing rapid changes. Temperatures are rising three times faster than the global average, accelerating ice melt, increasing the albedo effect – the absorption of sunlight by water – and thawing permafrost. These changes are felt across Europe and the world, not only by coastal countries but by all nations. The world is experiencing floods, high temperatures and wildfires. The EU acknowledges its responsibility and has been actively engaged in environmental matters, including Arctic research. It is also acutely aware of the geopolitical and geo-economic implications of these changes.

European attention to this region has grown within the European community, particularly since Finland and Sweden joined the EU in 1995. Although Greenland, part of Denmark, was a member until 1985, the needs and lifestyles of its populations were not a major focus. The first reference to the Arctic in EU documents appeared in 1989 (2). With the accession of Arctic countries like Finland and Sweden, importance increased, supported by Finland’s initiative of the Northern Dimension. While initially vague in 1999, this initiative later became a “fenêtre arctique” (Jacquot, 2019), helping the EU define an Arctic policy in 2007 – prompted partly by the warming that year and Russia’s planting of a flag during the “Arktika 2007” expedition.

Climate change has been part of EU policy since the 1970s, when society began to realise the effects of unchecked development. However, it was not until the Paris Agreement – and now the European Green Deal – that the EU positioned itself as a leader in this field. This issue concerns humanity and our way of life. The EU understands that change depends on all of us. The 2020 public consultation confirms broad awareness of this critical turning point. Urgent action is required.

In this article, we focus on the role of climate change in EU policy and explore how the European Green Deal aligns with the EU Arctic policy – with the new policy released in October 2021 – and how this environmental strategy enhances the EU’s global leadership, particularly through its work and investments in the Arctic.

We will divide our analysis into two parts. First, we examine the evolution of the EU Arctic policy from 2008 to 2021, highlighting communication challenges across different periods. In the second part, we analyse the European Green Deal as a path to greater coherence and credibility for the EU Arctic policy. We conclude by affirming Europe’s awareness of the importance of environmental protection and how it can lead by example through a normative political approach in a region increasingly marked by realpolitik (3). The EU’s attitude is its unique strength.

EU Arctic Policy: Historic Evolution – 2008–2021

Here, we present the evolution of the EU Arctic policy, beginning with its emergence in 2007–2008 as the EU began developing its “own Arcticness” (Stepien and Raspotnik, 2019). The Treaty of Lisbon emphasised sustainable development as a core objective in the EU’s external relations. Climate change was also added as a concern of international scope. Environmental competences are shared between the EU and member states.

2008

The EU took a significant step forward in defining Arctic policy in response to rising temperatures and the resulting navigability in summer 2007, alongside Russia’s symbolic flag-planting. These developments prompted EU institutions to act, though with varying perspectives on governance. The European Commission and European Parliament viewed the issue differently. The Parliament called on the Commission to analyse negotiations for an Arctic treaty, as stated in point 15 of its 9 October 2008 resolution on Arctic governance (4).

That same year, the European Commission issued a Communication proposing three main policy objectives: protecting and preserving the Arctic in partnership with its population; promoting sustainable resource use; and contributing to enhanced multilateral Arctic governance. This communication acknowledged the urgent need to prevent and mitigate the negative impacts of climate change. In contrast to Parliament’s treaty ambitions, the Commission’s May 2008 Communication reaffirmed the Ilulissat Declaration (5) and the Arctic Council’s emphasis on cooperation among Arctic states.

2012

In 2012, the European Commission and the High Representative for Foreign Affairs and Security Policy released a Joint Communication to Parliament and Council, following 2011 Resolutions and 2009 Conclusions. Titled “Developing a European Policy towards the Arctic Region: progress since 2008 and next steps,” it aimed to present a “pathway towards a coherent approach” (Stepien and Koivurova, 2017).

Notably, this Joint Communication omitted any reference to Arctic governance. Its focus appeared to be securing observer status at the Arctic Council, though the EU had not yet received formal approval. Despite this, EU representatives continued to participate in Council meetings as “observers-in-principle” (Hossain, 2015). Scholars such as Østhagen (2013) and Koivurova (2017) considered the 2012 Joint Communication to lack clarity regarding EU Arctic policy.

2016

The 2016 Joint Communication defined the three pillars of EU Arctic policy: 1) climate change and environmental protection; 2) sustainable development in and around the Arctic; and 3) international cooperation on Arctic issues. It addressed the dangers of thawing permafrost, warning that “this could change the Arctic as well as the global climate” (6). While still somewhat vague, the communication aligned with Treaty of Lisbon objectives. However, more specificity was needed for others to understand the EU’s intended climate actions. This level of detail was achieved with the 2019 European Green Deal.

The communication also emphasised the EU’s longstanding role as a major contributor to Arctic research and technology, including space and navigation systems. It confirmed EU alignment with the Paris Agreement and reiterated a commitment to reducing greenhouse gas emissions by 40% by 2030. It also underlined the importance of continuous dialogue with indigenous peoples and local communities to ensure respect for their rights.

2021

The new Joint Communication was issued on 13 October 2021, following a public consultation held in July. Titled “A stronger EU engagement for a peaceful, sustainable and prosperous Arctic,” it is more than a policy update – it enhances previous strategies while reinforcing multilateralism and cooperation among Arctic actors for sustainable ocean governance. It also anticipates potential instability, adjusting the EU’s role in response to swift geopolitical changes in the region.

The communication outlines three main priorities (7), each detailed in subsections (8): 1) a region of peaceful cooperation in a new geopolitical setting; 2) enhancing Arctic resilience to climate change and environmental degradation; and 3) promoting a green, blue and digital transition.

in this recent document, several important new initiatives by the European Union are worth highlighting. These include the establishment of a European Commission office in Nuuk, Greenland, to strengthen EU–Greenland cooperation; the potential creation of a Copernicus Arctic thematic hub to monitor both land and sea at the poles; and leadership in promoting zero-emission, zero-pollution shipping in the Arctic Ocean. Additionally, the EU aims to support All-Atlantic Ocean research from Pole to Pole.

Through these actions, the EU signals its commitment to addressing this global challenge and expects other actors to follow its lead.

European Green Deal and EU Arctic Policy

The environment has not only become a 21st-century concern for the EU—it has been a priority since the 1992 Earth Summit in Rio (UNCED), where the EU began to shape its global environmental role (Vogler and Stephan, 2009). Through international agreements, the EU has sought to lead by example and become a global environmental leader, aiming to “tackle climate change,” as President Juncker highlighted in his 2017 State of the Union address.

As noted earlier, the 2016 Joint Communication placed climate change as the first pillar of Arctic policy. This is not a local or regional issue alone – it is a global challenge requiring international cooperation for the sake of humanity’s survival.

The European Green Deal was introduced in December 2019 by Commission President Ursula von der Leyen, with Frans Timmermans as Executive Vice-President. The Deal aims to make the EU the world’s first “climate-neutral continent” by 2050 (9). It outlines fifty specific actions to achieve this goal. The Deal spans multiple areas: biodiversity, sustainable industry, building renovation, sustainable mobility, food systems, and clean energy. The overarching objective is zero emissions and “carbon neutrality,” in line with the Paris Agreement (10). President von der Leyen described it as a triple win: “a win for the climate, a win for biodiversity, and a win for jobs” (11).

The awareness and sense of urgency surrounding climate change and environmental protection are longstanding in the EU. The Green Deal highlights the interconnectedness of people (men, women, indigenous and local communities) and the environment. It underlines that environmental policy is also about human security. Everything is connected: environment, biodiversity and ecosystems (12).

This context helps explain why, in 2019, the European Council invited the Commission to focus on updating the EU Arctic policy. Given the rapid transformations in the region due to climate change, the EU needed to respond more proactively. The European Green Deal, along with the European Climate Law (13), now forms the foundation of the 2021 Joint Communication – particularly its second key point: making the Arctic more resilient to climate change and environmental degradation.

A public consultation launched in July 2020, in cooperation with the European External Action Service (EEAS), gathered input from stakeholders across sectors: academia, public and private institutions, NGOs, and citizens (14). Closed in November 2020, the consultation revealed broad awareness of climate change and its Arctic impact. Its purpose was threefold: i) to reassess the EU’s role in Arctic affairs; ii) to revise the three priorities of the current Arctic policy; and iii) to identify new policy areas for development (15).

This process reinforced the EU’s direction on environmental and Arctic issues. As Michael Mann, the EU’s Special Envoy for Arctic Matters at the EEAS, stated: “the Arctic is a living region.” Thus, environmental policy must address both ecosystems and the security of local and indigenous populations. The Green Deal provides this integrated approach and is likely to shape the next iteration of the Arctic policy.

The Arctic is already part of the European Green Deal, as the EU is physically present there through member states like Denmark, Finland and Sweden, and through the European Economic Area (EEA) with Norway and Iceland. What happens outside the Arctic affects it – and vice versa. Climate change is globalised. As Josep Borrell remarked, “we must build bridges” in this unique and vulnerable region.

Policies around environmental issues are enacted on many levels: local, regional, and global. No single actor can act alone (16). Local action refers to what can be done in towns or villages; regional to national or European-level initiatives; and global to international cooperation for maximum effect (17).

The European Green Deal has the potential to become a “Global Green Deal” (18). While climate change cannot be its only focus – just as the Arctic policy must not rely solely on environmental issues – the narrative it offers is compelling. It aligns the EU Arctic policy with broader security and development concerns.

The EU, as a sui generis organisation, has managed to unite 27 member states in cooperative action – most recently seen in its coordinated pandemic and Ukraine war responses. Though a difficult process, the strength of the Union lies in its unity through diversity. This collaborative ethos is the narrative the EU should promote in the Arctic, much like the Arctic Council and Northern Dimension, both of which emphasise cooperation and environmental stewardship.

“We [EU] are not hard security providers,” said Michael Mann at the Wilson Center’s “The European Union and the Arctic” event on 30 July 2020. However, that view is evolving. Josep Borrell, at the 2021 Arctic Frontiers conference, outlined three future aims for the next Arctic policy: 1) preserve the Arctic as a region of peaceful cooperation; 2) slow the effects of climate change; and 3) support sustainable development for future generations. These are reaffirmed in the 2021 Joint Communication.

The EU’s normative power (Manners, 2004) (19) and investments in Arctic research across maritime, climate and space sectors demonstrate its strategic intent. To ignore this would be to misunderstand how the EU functions. The Treaty of Lisbon is clear: the EU is committed to “preserving, protecting and improving the quality of the environment; protecting human health; promoting prudent and rational utilisation of natural resources; [and] promoting measures at international level to deal with regional or worldwide environmental problems” (20).

The EU Arctic policy is, like all things, in progress (Koivurova, 2017). The region is changing – geographically, economically and politically – and the EU must remain alert. Climate diplomacy (21) has become a core European strategy for engaging both internally and globally, using dialogue, partnerships and investment to find a balance between jobs (green and blue) and sustainable economic activity in Arctic regions.

Access to climate data is crucial, as noted by Samantha Burgess, Deputy Director of the EU-funded Copernicus Climate Change Service (C3S). The 2021 Joint Communication reflects this priority, offering greater coherence and cohesion to Arctic policy. Ultimately, the EU (22) acts according to values of cooperation and security, and through its environmental leadership aims to prevent climate-induced instability both regionally and globally.

The European Green Deal delivers “credibility and coherence” (Vogler and Stephan, 2009; Østhagen, 2013). As affirmed in the 2021 Joint Communication, this alignment with Arctic policy strengthens the EU’s application for official Observer Status in the Arctic Council. This integration signals a mature, strategic and responsible global actor, grounded in both values and action.

Notes

¹ As said by Vidar Helgesen, Norwegian Minister of Climate and Environment at the seminar organized by the NATO Parliamentary Assembly and the Norwegian Parliament in Svalbard, Norway, on 9th and 10th May 2017

² In 1999, the European Parliament presented a resolution with the name “A new strategy for agriculture in Arctic regions” as it was considered that the costs were high and it is asked to the Commission to prepare measures for Sami population regarding education, health and social issues.

³ See A Balanced Arctic Policy for the EU (2020) Policy Department for External Relations, Directorate General for External Policies of the Union,  july 2020, p.43 https://www.europarl.europa.eu/RegData/etudes/IDAN/2020/603498/EXPO_IDA(2020)603498_EN.pdf

⁴ Arctic Governance European Parliament resolution of 9 October 2008 on Arctic governance https://www.europarl.europa.eu/doceo/document/TA-6-2008-0474_EN.pdf

⁵  We add the declaration of Reykjavik signed 20^th may 2021 in order to keep maintaining peace and cooperation.

⁶ Joint Communication to the European Parliament and the Council an integrated European Union policy for the Arctic 2016  https://eeas.europa.eu/archives/docs/arctic_region/docs/160427_joint-communication-an-integrated-european-union-policy-for-the-arctic_en.pdf

⁷  As it was stated by Josep Borrell, in his speech at the Arctic Frontiers conference this year 2021. Available in https://www.youtube.com/watch?v=n5DUI3Up8m0

⁸ Joint Communication to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2021

https://eeas.europa.eu/sites/default/files/2_en_act_part1_v7.pdf

⁹ Press remarks by President von der Leyen on the occasion of the adoption pf the European Green Deal Communication, Brussels, 11 december 2019 https://ec.europa.eu/commission/presscorner/detail/en/speech_19_6749

¹⁰ Arctic: Speech by High Representative /Vice-President Josep Borrell at the Arctic Frontiers conference, Brussels, 02/02/2021 https://www.youtube.com/watch?v=n5DUI3Up8m0

¹¹ Speech by President von der Leyen at the closing session of the EU Green Week 2020, Brussels, 22 october 2020 https://ec.europa.eu/commission/presscorner/detail/en/SPEECH_20_1973

¹² We recommend the lecture of the article of the Secretary General of the United Nations, António Guterres, entitled “Os três grandes testes do G20” available in  https://leitor.expresso.pt/semanario/semanario2541/html/primeiro-caderno/opiniao/o-tres-grandes-testes-do-g20

¹³ With the European Climate Law the Commission proposes a legally binding target of net zero greenhouse gas emissions by 2050. The EU Institutions and the Member States are bound to take the necessary measures at EU and national level to meet the target, taking into account the importance of promoting fairness and solidarity among Member States. The Climate Law includes measures to keep track of progress and adjust our actions accordingly, based on existing systems such as the governance process for Member States’ national energy and climate plans, regular reports by the European Environment Agency, and the latest scientific evidence on climate change and its impacts. Progress will be reviewed every five years, in line with the global stocktake exercise under the Paris Agreement. https://ec.europa.eu/clima/policies/eu-climate-action/law_en#:~:text=Key%20elements,greenhouse%20gas%20emissions%20by%202050.&text=Based%20on%20a%20comprehensive%20impact,compared%20to%20levels%20in%201990.

¹⁴ Summary of the results of the public consultation on the EU Arctic policy https://op.europa.eu/en/publication-detail/-/publication/497bfd35-5f8a-11eb-b487-01aa75ed71a1

¹⁵ Press release, 20 July 2020 European Commission, Arctic policy: EU opens consultation on the future approach https://ec.europa.eu/commission/presscorner/detail/en/IP_20_1318

¹⁶ “(23) Climate change is by definition a trans-boundary challenge and a coordinated action at Union level is needed to effectively supplement and reinforce national policies. Since the objectives of this Regulation, namely to achieve climate neutrality in the Union by 2050, cannot be sufficiently achieved by the Member States alone, but can rather, by reason of the scale and effects, be better achieved at Union level, the Union may adopt measures, in accordance with the principle of subsidiarity as set out in Article 5 of the Treaty on European Union. In accordance with the principle of proportionality, as set out in that Article, this Regulation does not go beyond what is necessary to achieve those objectives”. Proposal for a Regulation of the European Parliament and of the Council establishing the framework for achieving climate neutrality and amending Regulation (EU) 2018/1999 (European Climate Law) https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52020PC0080&from=EN

¹⁷ Vogler affirms that the problem with it was its timing, above all. In principle, the “global deal” should have been an attractive package for developing countries, offering better access to northern markets and increased ODA, and demanding an explicit commitment to the Rio Declaration coupled with implementation in return. (Vogler, 2009) p,11

¹⁸ A Global Green Deal, op-ed article by Ursula von der Leyen, President of the European Commission, and Werner Hoyer, President of the European Investment Bank, Brussels, 22 march 2021, https://ec.europa.eu/commission/presscorner/detail/en/AC_21_1322

¹⁹ We can add soft power knowing that Joseph Nye (2017): “I made clear that soft power is not a normative concept, and it is not necessarily better to twist minds than to twist arms”. p.2   Soft power: the origins and political progress of a concept. Palgrave Communications. 3:17008 doi: 10.1057/palcomms.2017.8.

²⁰ Explaining the Treaty of Lisbon MEMO/09/531, Brussels, 1 December 2009, https://ec.europa.eu/commission/presscorner/detail/en/MEMO_09_531

²¹ Council conclusions on Climate Diplomacy https://data.consilium.europa.eu/doc/document/ST-6153-2019-INIT/en/pdf

²² “ La contribution qu’une Europe organisée et vivante peut apporter à la civilisation est indispensable au maintien des relations pacifiques ”. Monnet, Jean (1976), Mémoires, Fayard, p.427

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