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Russia-Norway Relations

Russia is the main security threat for all of Europe and will remain so for a long time, Norway's Defense Minister Bjørn Arild Gram said 14 November 2023 after receiving the annual threat assessments from the country's three security services: the domestic and the foreign intelligence agencies and the Norwegian National Security Authority, or NSM. “Russia today poses the biggest threat to Norwegian and European security, and the confrontation with the West will be long-lasting,” he added. The deputy head of the foreign Norwegian Intelligence Service Lars Nordrum said that Norway’s oil and gas installations could be targeted by Russian sabotage. NSM head Sofie Nystrøm warned that “all of Europe will suffer” if Norwegian gas and oil installations were hit. “Norway is now Europe’s most important energy supplier after Russia ended its gas exports to the West," said Nordrum. But PST assessed that it's unlikely Russia would carry out any sabotage operation on Norwegian soil this year.

‘Norway condemns Russia’s military attack on Ukraine in the strongest possible terms. This attack was a serious violation of international law and will have dramatic consequences for the people of Ukraine,’ Prime Minister Jonas Gahr Støre said 24 February 2022. ‘Norway stands together with its Allies and the UN in demanding that Russia immediately ceases its military operations and seeks a peaceful solution. The Russian authorities bear full responsibility for the current situation, which represents a watershed for Europe and a new era in European security.’

In the early 1990s, Norway had hope. As foreign minister, Thorvald Stoltenberg fathered the Barents cooperation. Built on much the same thinking that underpinned European integration after world war two. Norway hoped that a reborn Russia would become like Norway. This hope was dashed within a few years. But it happened gradually. There were bright spots along the way. And Norway worked for a long time to engage Russia in broad international cooperation. In the belief that this would contribute positively to a democratic, prosperous Russia.

Norway’s view has been shaped by our NATO membership. But also by close ties with Russia in the North. By pragmatic and practical cooperation with Russia. And by history, in particular the liberation of Eastern Finnmark during the Second World War. But this experience was different from that of partners who suffered from decades of Soviet occupation.

Norway reduced its contact with the Russian authorities to a minimum as a result of Russia’s invasion of Ukraine. This was in line with the actions of other European countries and allies. Cooperation that was essential to ensure Norway’s safety and security will be maintained.

People-to-people cross-border cooperation in the north has long been constrained due to the increasingly authoritarian regime in Russia. The situation for civil society was now extremely difficult, and the uncertainty arising from Russia’s military attacks makes effective cross-border cooperation even more challenging. Unfortunately, the impacts of this will be felt at the local level, particularly by people living in the north. Norway will continue to support people-to-people cooperation and contact.

The Nordic Council of Ministers suspended all cooperation with Russia and Belarus. Denmark, Estonia, Finland, Germany, Iceland, Latvia, Lithuania, Norway, Poland, Sweden and the EU decided to suspend Russia from the Council of the Baltic Sea States (CBSS). Belarus has been suspended from its role as an observer in the Council.

Norway and Russia have enjoyed a thousand years of peaceful coexistence. Relations between the two countries have been based on understanding and respect, mutual assistance and a pragmatic approach to solving problems. However, Norway’s relations with Russia will never be completely straightforward. Russia was a major power and for this reason the relationship between the two neighbouring countries was asymmetrical.

The divide in values continued to be a challenge. There was a long way to go before Russia was a fully democratic society in which human rights are respected. For Norwegian companies the greatest obstacle to a further expansion of cooperation was the lack of protection for investments. A bureaucratic culture, corruption and unpredictable law enforcement create problems in areas such as company registration, the purchase of property, and customs and visas. In the long term the aim was for relations with Russia to be like relations with other neighboring countries in the High North, characterised by unhindered contact at all levels and in all areas of society.

Economic cooperation between Norway and Russia was strong and has been gradually developing since the collapse of the Soviet Union. The most important forum for cooperation was the Norwegian-Russian Governmental Commission on Economic, Industrial and Scientific-Technical Cooperation headed by the Norwegian Minister of Trade and Industry and the Russian Deputy Prime Minister. Cross-border cooperation was one of the commission’s highest priorities. In 2010, trade between Norway and Russia amounted to approximately NOK 17 billion, only 1.37 % of Norway’s foreign trade. Nevertheless, Russia was an important market for Norway, in particular for Norwegian seafood, and was one of the Government’s priorities in free trade negotiations.

Norway’s cooperation with Russia in the fisheries sector provides a basis for a thriving fisheries industry and viable coastal communities in the north and illustrates how crucial it was to establish stable, bilateral management regimes and cooperation based on trust with neighbouring Russia. The Joint Norwegian-Russian Fisheries Commission was one of the most established forums for cooperation we have with Russia. From an international perspective Norwegian–Russian fisheries cooperation was unique and extremely successful.

Bilateral relations between Norway and post-Cold War Russia were good, and had been improving steadily. This cooperation was in continuous development and the network of contacts had grown. On the whole, relations between the two countries were based on a mutual willingness to engage in constructive dialogue. Both countries endeavoured to take a pragmatic approach to solving conflicts of interest and problems, which arose from time to time in different areas of cooperation. Important areas, such as fisheries, trade and economic affairs, the environment and nuclear safety, were coordinated by bilateral government commissions.

Strengthening Norway’s relations with Russia was one of the main pillars of the Government’s High North policy. Developing contacts and cooperation across the border had a clear security dimension. Defence cooperation played an important role both in terms of building trust and when it came to the establishment of joint emergency preparedness and response systems in the face of new threats and potential crises. Cooperation with Russia in areas such as natural resource management, new transport routes, the environment, health and quality of life was also vital to be able to take full advantage of the opportunities that exist in the region and achieve sustainable growth and development.

The land border between Norway and Russia was established in 1826. In 1924 the border between Norway and Finland was established on the basis of the agreement with Russia. The maritime boundary with Russia in the Varangerfjord area was agreed between Norway and the Soviet Union in 1957. Under the agreement the breadth of Norway’s sea territory was set at four nautical miles, while Russia’s was set at 12 miles. With effect from 2004, the breadth of Norway’s territorial sea was extended from four to 12 nautical miles and a contiguous zone extending to 24 nautical miles was established. The Treaty between the Kingdom of Norway and the Russian Federation concerning Maritime Delimitation and Cooperation in the Barents Sea and the Arctic Ocean was signed by the foreign ministers of the two countries in Murmansk on 15 September 2010.

Norway’s bilateral cooperation with Russia was in a class of its own. The counties in North Norway have long played an active role in the international arena, developing ties with Russian, Nordic and European partners. Norway’s northern counties first established links with partners in Russia towards the end of the Cold War. As early as 1987, Nordland county established cooperation with what was then Leningrad oblast.

Since 1990, Norway and Russia have held regular consultations based on the bilateral Incidents at Sea Agreement. The purpose of this agreement was to prevent dangerous situations from arising when Norwegian and Russian naval vessels and military aircraft are operating in the immediate vicinity of one another. The agreement applies outside territorial waters, and sets out prohibitions, requirements and communication procedures for vessels and aircraft. Both countries consider the agreement to be an important tool for preventing incidents from arising and for resolving shared challenges.

The international legal framework for the Arctic was clarified in May 2008 with the signing of a ministerial declaration by the five coastal states bordering the Arctic Ocean – Canada, Denmark, Russia, the US and Norway. The Ilulissat Declaration confirms that the Law of the Sea provides the legal framework for activity in the Arctic Ocean.

Norway’s border with Russia was not just a border between two states, it was also the external border of the Schengen area. The Norwegian Armed Forces are responsible for exercising sovereignty along the border, and the border guards assist the police, who are responsible for border control. Norway cooperated with Russia’s armed forces, border guards and coast guard, and both countries expressed an interest in further strengthening this cooperation.

Since 2001, Norway and Russia had drawn up an annual bilateral military activity plan. This plan helped to facilitate military cooperation between the Norwegian and Russian armed forces, and included high-level meetings between the Commander of the Northern Fleet and the head of Norwegian Joint Headquarters, vessel visits in Norway and Russia, meetings between junior officers and bilateral maritime exercises. Russian military activity in the High North had increased considerably in recent years from a low level in the period immediately following the Cold War. The increased level of activity was not considered to be directed at Norway, but was seen as a reflection of Russia’s strategic objectives in the region.