Arctic Connections: policy framework evaluation

Arctic Connection Policy Framework: Achievements

Introduction

A key objective of the Arctic Connections Policy Framework (ACPF) was to increase understanding of Arctic issues in Scotland and, alongside this, increase understanding of Scottish issues in the Arctic and amongst Arctic stakeholders. It also aimed to shape and influence the work of the Scottish Government’s international network in Arctic and Sub-Arctic regions.

This chapter examines the extent to which this was achieved. The findings are largely drawn from interviews with Scottish Government staff in Scotland and in international offices. The research scope did not include interviews with stakeholders in the Arctic, and so it relies heavily on the views and evidence provided by Scottish organisations that received funding from the ACF and Scottish Government staff. However, it is important to note that whilst the cohort may be quite narrow, the findings from each interview were closely aligned and backed up where relevant with examples to illustrate key points.

Influence in Arctic nations and regions

There is consensus that the ACPF was very successful in raising Scotland’s profile amongst stakeholders in Arctic and Sub-Arctic nations and regions. The ACPF gave Scotland a platform and an opportunity to attend and have a profile at international events. The Arctic Team which was part of the European Relations Unit under the Directorate for Culture and External Affairs ensured that, as well as attending, Scottish representatives gave speeches and participated in discussion panels. In one year, 25 people from Scottish-based organisations attended the Arctic Circle Assembly which demonstrated the level of interest in, and connection to Arctic issues and to discuss joint solutions to shared challenges.

These events, and other networking through the ACPF, demonstrated what Scotland could bring to the conversations around issues and themes relevant to Arctic regions. It provided a route for Scotland and Scottish organisations to demonstrate their expertise in key issues, for example: depopulation, remote healthcare, energy, and language and culture. As one Scottish Government interviewee commented:

“The ACPF helped present a cohesive collaboration of Scottish organisations and researchers and drive the establishment of the Scottish Arctic Network.”

Interviewees from the Scottish Government including in international offices reported that Scotland’s credibility on climate exchange was initially strong, providing a foundation for effective engagement through the ACPF. However, some external stakeholders observed that this credibility has diminished as progress on domestic climate action has slowed. This has implications for Scotland’s influence in multilateral discussions, as partners may perceive Scottish contributions on climate as less authoritative. It was, however, reported in the interviews with external funding recipients that Scotland’s credibility around climate exchange was initially strong, but this has decreased as, in their view, our progress in addressing climate change has slowed.

This suggests that the effectiveness of frameworks like the ACPF can be influenced not only by the structures and activities they enable, but also by domestic policy delivery and external perceptions of Scotland’s ability to lead on key issues. Maintaining credibility in core policy areas is therefore important for sustaining Scotland’s influence and soft power in Arctic and international forums.

Attendance at key events, in particular the Arctic Circle Assembly and Arctic Frontiers, enabled new opportunities to engage with senior politicians and stakeholders. As a devolved nation, it is unlikely that this level of access would have been possible without the ACPF. It enabled soft, para-diplomacy that could then be built on to share knowledge, develop working relationships and liaise around shared issues. Interviewees agreed that these engagements were instrumental in building relationships and were particularly valuable post-Brexit, providing alternative channels for diplomacy and reinforcing Scotland’s distinct voice on international affairs. This was paricularly highlighted by two Scottish Government interviewees, one who commented that post-Brexit, ‘soft-diplomacy in a non-hierarchical setting was very effective’ and the other noted that sub-national diplomacy was ‘a huge benefit’ which was ‘particularly important’ post-Brexit.

Despite some initial scepticism of Scotland’s legitimacy as an Arctic partner, the ACPF and the ACF and the activities it enabled led Arctic partners to become aware of issues that Scotland has in common with other Arctic regions and welcomed Scotland’s ‘seat at the table.’ The following comment illustrates this:

"If you ask someone from Lapland if the UK is Arctic, they say no, but if you ask if Scotland has Arctic connections, then they say yes.”

Scotland hosted the Assembly of Arctic Nations and a variety of other events and visits through the ACF and the ACPF. Work carried out through ACPF and ACF-funded projects was pivotal in promoting Arctic issues at COP26, which was hosted in Glasgow in 2022. For example, a university student presented on food sovereignty, which was a project undertaken through ACF-funding between the University of Aberdeen and Athabasca University.

To maintain Scotland’s profile and influence during Covid-19, the Arctic Team delivered a series of thematic webinars, which were aimed at a diverse audience of policymakers, academics, business leaders, researchers, community organisations, and other stakeholders in both Scotland and Arctic nations and regions. The webinars were very positively received by audiences. Topics included: climate change; rural healthcare; energy; culture and language; and depopulation.

Summary

Impact on Scotland’s profile and engagement: Interviews and evidence from attendance at international events show that the ACPF helped raise Scotland’s profile in Arctic and Sub-Arctic regions. Participation in events, speeches, panels, and hosting initiatives such as the Assembly of Arctic Nations allowed Scottish organisations to showcase expertise on issues including depopulation, remote healthcare, energy, and language and culture. This demonstrates the Framework’s role in strengthening Scotland’s relationships and visibility with Arctic stakeholders.

Soft diplomacy and relationship building: The ACPF enabled sub-national and informal diplomatic engagement that would not have been possible otherwise, particularly after Brexit. Interviewees highlighted that these opportunities allowed Scottish ministers and representatives to engage with senior politicians and stakeholders, helping to build lasting networks and collaborations.

Credibility and challenges: Some external interviewees noted that Scotland’s credibility on climate issues has declined due to, in their view, slower progress on climate initiatives. While the Framework enhanced visibility and influence, ongoing policy delivery is important for sustaining this credibility.

Awareness of Arctic Issues in Scotland

The ACPF aimed to increase awareness of Arctic issues, partners, and alignment among Scottish stakeholders. The Framework itself did not explicitly define who these stakeholders were, but they are assumed to include universities, voluntary organisations, relevant Scottish Government departments, industry representatives, local authorities, and organisations such as Highlands and Islands Enterprise and South of Scotland Enterprise.

The evidence shows that the ACPF has been successful in growing and organising interest and work around Arctic issues within Scotland. It helped to corral stakeholders and allowed them to organise themselves in a more coherent and coordinated way. Through the ACPF, organisations had a route to demonstrate their expertise within Scotland and define learning and relationship-building opportunities between Scotland and other Arctic partners. This ensured that in Scotland, there was a greater understanding of the stakeholders they could work with and share learning with in other Arctic regions. It also allowed them to have a more accurate and nuanced understanding of the different regions in the Arctic and sub-Arctic. This greater awareness and cultural understanding have made collaboration more effective and targeted around common issues and how Scottish organisations approach learning from elsewhere. This understanding is very valuable and could be harnessed to promote future joint working and potentially trade.

Before the ACPF, much of the Arctic-related work in Scotland was concentrated in the north, for example, through UHI and the University of Aberdeen. Stakeholders in other parts of the country did not necessarily see a rationale for Arctic engagement. However, this has been turned around through the ACPF and there has been a much greater geographic spread of organisations in Scotland participating in Arctic projects and activities, as well as having an interest in the Arctic overall. For example, thirteen Scottish Universities are now members of the University of the Arctic (UArctic), and before the ACPF, that number was two. This is a good example of a lasting relationship between Higher Education and research in Scotland, with counterparts in Arctic and Sub-Arctic regions. Through this, students from universities in the Arctic can benefit from the north2north mobility scheme and study in Scottish Universities. This was reported as a key benefit by interviewees and is summed up by the following comment:

“An impression has been made across Scotland more widely… This has become more of a general Scottish profile with the Scottish Government taking ownership of this.”

The ACPF has successfully corralled stakeholders to organise in a more coherent and coordinated way, allowing them to demonstrate and use their expertise to develop and deliver Arctic projects. There has been a lasting interest amongst some Scottish stakeholders in maintaining the links and knowledge sharing with partners in the Arctic and on Arctic issues. As an example, in January 2024, the CEO of Aberdeen ports attended the Arctic Frontiers conference with a focus on critical infrastructure. This attendance was self-funded and, without the networking and visibility facilitated by the ACPF, is unlikely to have occurred previously.

Summary

Coordination and stakeholder engagement: The ACPF increased awareness of Arctic issues among Scottish stakeholders, including universities, government departments, voluntary organisations, and industry. It helped these groups organise more coherently, demonstrate expertise, and strengthen networks, contributing to a better understanding of Arctic issues and potential for collaboration.

Geographic and institutional spread: The Framework expanded engagement beyond northern Scotland. For example, membership of Scottish universities in UArctic increased from two to thirteen. This shows a lasting effect on Scotland’s domestic networks and capacity for Arctic-focused work.

Influence on Scotland’s network of offices

During the research, representatives from two Scottish Government international offices were interviewed along with other Scottish Government team members. During all of these interviews, the research team explored any influence that the ACPF has had on the work of these offices. There was broad agreement that the ACPF had some positive impact on the work of these offices, and one interviewee reported that:

“ACPF was a tool that linked and supported Scotland’s international hubs, e.g. Scottish Offices in Ottawa, Washington and Copenhagen.”

The main driver for the influence the ACPF had on these offices was reported to be through attendance at the two major Arctic events. This drove engagement with the ACPF and the international stakeholders.

It was also noted by interviewees that the ACPF enabled access to senior politicians, such as U.S. senators from Alaska. In particular, the Framework allowed the development of a relationship at the ministerial-political level, and then operationally between respective offices, exploring issues such as energy, rural communities, rural connectivity and poverty – policy issues that are seen as shared challenges between Alaska and parts of Scotland.

Summary

Facilitating Connections: The ACPF supported Scottish Government international offices in building links with Arctic stakeholders, including access to senior politicians and ministers. It enabled operational and strategic engagement on shared issues, such as energy, rural communities, and poverty, strengthening Scotland’s international networks.