Norwegian participation in the EU’s rapid reaction forces and the framework agreement for Norway’s participation in the EU’s crisis management operations

Defence Minister’s statement to the Storting, 30th November 2004

Mr President,

At the EU Defence Ministers meeting on 22 November it became clear that the member countries intend to establish 13 rapid reaction “battle groups” each with a strength of some 1,500 troops. The purpose of setting up these battle groups is to put the EU in a position to deploy agile and flexible rapid reaction forces in order to maintain or restore peace and security.

This could apply in connection with joint operations for the purpose of disarmament, conflict prevention or post-conflict stabilisation as well as operations to combat international terrorism in third countries.

On 4 October this year the Prime Ministers of Sweden and Finland requested Norway to contribute to the establishment of a joint Nordic Battle Group. The United Kingdom has offered headquarters support for such a Nordic group.

At the EU Defence Ministers meeting held in Brussels on 22 November, Finland, Sweden and Norway issued a political declaration of intent concerning the establishment of a Nordic Battle Group which would be offered to the EU for an initial standby period of six months from 1 January 2008.

Sweden intends to contribute 1,100 troops to this force while Finland will contribute about 200. From Norway’s side, we have indicated that we could, in principle, make a personnel contribution of up to about 150.

There are a number of foreign policy considerations underlying the government’s decision in principle to participate in a Nordic battle group together with Sweden and Finland.

Firstly, from Norway’s side we support the further development of the European Security and Defence Policy (ESDP) which is taking place with the full understanding of NATO. We express this support both politically and through the forces we make available. In line with this policy, the Stoltenberg government – after consultation with the Storting – declared a military force of 3,500 personnel as a contribution towards the EU’s overall force goals in November 2000.

The new battle groups are now absolutely central to the EU’s planning in this area. Norwegian participation in these forces will thus represent a natural extension of our active support for the ESDP and of our participation in the EU’s military and civil operations. Norwegian participation would, moreover, strengthen our own capacity for effective military cooperation with European partners – as well as within NATO.

Secondly, Norwegian participation in a Nordic Battle Group would represent a continuation of the traditional Nordic cooperation in peace operations. This will contribute to the strengthening of Nordic military cooperation and help to give it a new purpose.

Thirdly, by playing its part, Norway will be making a contribution towards strengthening the crisis management capability of the UN. This is important not least where improving the UN’s capacity for crisis management in Africa is concerned. The EU attaches great importance to the further development and strengthening of international law and the role of the UN in global crisis management. Regular meetings now take place between representatives of the EU and the UN Secretariat with the aim of finding the best way of realising cooperation in this area.

Mr President,

In recent days some doubt has been expressed as to whether Norway is free, on the basis of international law and an independent political assessment, to decide how far Norwegian forces may or may not be committed to participate in a joint Nordic force which is to be deployed in an EU operation.

Let me make it perfectly clear that Norway will retain fully its national right to make decisions as to which operations Norwegian forces will participate in. In line with the Nordic declaration of intent issued in Brussels on 22 November, participation will be subject to each country’s national decision-making procedures.

This means that we in Norway will decide for ourselves whether we shall take part in a particular operation or not. There will thus be no question of transferring, either formally or in reality, this right of decision regarding military participation to an organisation of which we are not a member.

We will, however, consult closely with Sweden and Finland from day one when any question arises of the possible use of the Nordic Battle Group. Parallel national discussions will take place in all three countries to enable individual national positions to be clarified and communicated to the Council of the European Union as a basis for a possible decision regarding the use of the Nordic force.

Similar parallel clarification discussions will also take place in the other EU countries in advance of a final decision by the Council. The initiation of an operation requires the unanimous backing of the Council of the European Union.

For the Government, it is important to make it quite plain that even though Norway has declared a force for possible deployment in EU operations, it is for Norway to make an independent decision as to how far Norwegian troops will take part in a particular operation or not, its decision being based on the purpose of the operation and the way in which the operational objectives are planned to be achieved.

This can only take place following a formal decision to participate in each individual case and then in a way which both satisfies the constitutional requirements and which has the necessary backing of the Government and the Storting. There is then the unalterable precondition for any Norwegian involvement that such an operation must have a firm foundation in international law, either in the form of a mandate from the UN Security Council or on some other clear basis of legality.

In order to make it quite clear that Norway’s freedom of action is safeguarded, the above conditions will be embodied in the agreement that Norway will conclude with Sweden and Finland. The terms of the agreement will thus specifically clarify the principal framework conditions and the practical aspects of Norway’s participation. The EU will thus be fully aware of the conditions for Norwegian participation. Once this agreement is in place, we will take a final view regarding Norway’s contribution to the Nordic Battle Group. The Government will submit a pre-negotiated agreement with Sweden and Finland to the Storting for its consideration.

The decision process that is being prepared, and the conditions that we have set for Norwegian participation in a Nordic Battle Group, will thus be in full compliance with the provisions of the Constitution.

Norway will contribute officers both to the operational headquarters and to the force headquarters in the area of operations in order to perform relevant command and control functions. This arrangement will ensure that the use of Norwegian forces is in line with national guidelines.

This makes it quite plain that the forces are under national control. Long experience, including that gained during operations in Iraq, Afghanistan and the Balkans, has demonstrated that such an arrangement works well.

Mr President,

In addition to Norway’s support for the EU’s ambitions with regard to its common security and defence policy, the Government is intent on helping to strengthen allied cooperation within NATO. We therefore regard it as extremely positive that in both NATO and the EU there is a political wish to see the EU’s security and defence policy developed openly and in concert with the Alliance and the United States, so strengthening the transatlantic relationship.

A number of the central European NATO allies have encouraged Norway to participate in the EU’s rapid reaction forces. NATO also stated in the communiqué issued following the Istanbul Summit earlier this year that it looked forward to further strengthening the Euro-Atlantic partnership.

The United States has on numerous occasions emphasised the importance of Europe building up its resources and making a stronger contribution to the common security of the Alliance as a whole.

This is important not least in the context of the NATO Response Force (NRF). I am convinced that NATO and the EU will manage to agree good arrangements regarding the relationship between the NRF and the EU’s rapid reaction forces.

Mr President,

Let me deal with Nordic military cooperation in a little more detail. This takes place mainly within the framework of the NORDCAPS agreement which was established in 1997 and which provides a forum for the coordination of Nordic participation in international peace operations. The aim of this cooperation is to enable the Nordic countries jointly to provide up to a brigade for international operations under the auspices of the UN, NATO or the EU.

The establishment of a Nordic Battle Group, with the need that it creates for joint instruction, training and exercising, will undoubtedly contribute to the revitalisation of this cooperation.

It is equally important, however, that we should be able to build on the joint operational capability already established with Sweden and Finland through their active involvement in NATO’s partnership arrangements and their contributions to the NATO led crisis management operations in the Balkans and in Afghanistan.

Mr President,

Allow me also to give a brief account of the general framework agreement which we envisage concluding with the EU and which defines the arrangements and guidelines for participation in the EU’s crisis management operations.

The background to the conclusion of such a framework agreement is the fact that, until now, we have had to enter into a new technical agreement with the EU for each operation in which we have taken part. This was the case in such instances as the military operation in the former Yugoslav Republic of Macedonia in 2003 and in this year’s civil operation in the same area.

In order to simplify the process associated with the participation of third countries in EU led operations, the EU has taken an initiative for the conclusion of framework agreements with allied countries which are not members of the EU. The EU is now in the process of negotiating such agreements with eight countries including the NATO members Canada, Iceland and Turkey.

From the Norwegian side, we have completed negotiations with the EU concerning such an agreement. It is mainly an administrative agreement which describes the guidelines and procedures for Norwegian participation in the EU’s crisis management operations.

The agreement regulates principles for participation and command arrangements as well as administrative and financial aspects of the EU’s crisis management operations. The agreement will contribute towards ensuring Norway’s influence on the conduct of operations in which we participate.

The agreement does not address the question of whether Norwegian personnel will participate in the EU’s future operations. Norwegian participation in such operations will be decided nationally on a case by case basis as it has been in the past. The framework agreement will, however, simplify matters and enhance the effectiveness of our contribution once the decision has been taken.

Let me also make it quite clear that the agreement in no way prejudges the question of Norwegian participation in the EU’s rapid reaction forces which, as mentioned earlier in my statement, remains conditional on the conclusion of particular agreements.

The Government would like this agreement to be signed in the very near future. The first occasion on which the agreement will come into play is in connection with the planned participation of a small number of Norwegian personnel in the EU’s operation ALTHEA in Bosnia-Herzegovina which is due to commence in December this year.

The framework agreement will be put before the Storting in the annual report of conventions and treaties concluded with foreign powers.