For centuries, the Arctic’s remoteness and harsh conditions limited access from outside the region, although it had long been home to Indigenous peoples with extensive knowledge of its lands and waters. Scientific exploration and international interest developed over time, but the region’s strategic importance increased considerably after the Second World War, driven by technological advances, military priorities and growing demand for natural resources.

During the Cold War, the Arctic became a major arena of strategic competition between East and West. For roughly four decades, military considerations shaped relations across much of the region. By the late 1980s, political reforms in the Soviet Union and improving relations between the two blocs created opportunities for broader circumpolar cooperation.

In September 1989, representatives of the eight Arctic countries—Canada, Denmark, Finland, Iceland, Norway, Sweden, the Soviet Union and the United States—met in Rovaniemi, Finland, to discuss joint measures to protect the Arctic environment. Initiated by Finland, the meeting marked the beginning of the Rovaniemi Process, which laid the foundations for a new framework for regional cooperation.

Following two years of preparatory work, the Arctic Environmental Protection Strategy (AEPS) was adopted in 1991. It promoted scientific cooperation, the exchange of information on pollution and its effects, and the assessment of environmental risks associated with development in the Arctic. Its work was organised around four programmes: the Arctic Monitoring and Assessment Programme (AMAP), Protection of the Arctic Marine Environment (PAME), Emergency Prevention, Preparedness and Response (EPPR), and Conservation of Arctic Flora and Fauna (CAFF).

The AEPS represented an important step in cooperation between countries previously divided by the Cold War. Indigenous peoples’ organisations were involved from the outset, helping to establish an approach that recognised the importance of their knowledge, interests and participation in Arctic affairs. 

As cooperation developed, the Arctic states sought a broader forum that could address sustainable development alongside environmental protection. This led to the establishment of the Arctic Council, building on the foundations laid by the AEPS.

On 19 September 1996, the Arctic Council was established through the Ottawa Declaration, bringing together all eight Arctic states and Arctic Indigenous peoples’ organisations as Permanent Participants. Its purpose was to promote cooperation, coordination and interaction on common Arctic issues, particularly sustainable development and environmental protection. The Permanent Participant category gave Indigenous peoples’ organisations full consultation rights and active involvement in the Council’s work. 

Three Indigenous organisations initially held Permanent Participant status: the Inuit Circumpolar Council, the Saami Council, and the Russian Association of Indigenous Peoples of the North (RAIPON). The Aleut International Association joined in 1998, followed by the Arctic Athabaskan Council and Gwich’in Council International in 2000.

Since the end of the Cold War, the Arctic has undergone profound environmental, economic and political change. Climate change, interest in natural resources, changing shipping conditions and infrastructure needs have created increasingly interconnected challenges. Their consequences extend beyond the region, while directly affecting the lives and livelihoods of Arctic communities.

These developments underline the need for effective governance and coordinated decision-making. Economic opportunities must be considered alongside environmental protection, community well-being and respect for Indigenous peoples’ rights. Infrastructure, emergency preparedness and meaningful participation in decisions about development are essential to a sustainable future.

Arctic governance involves national legislation, international agreements and regional cooperation. The Arctic Council plays an important role within this wider framework, but it is a cooperative forum rather than a regulatory authority. Its mandate covers environmental protection and sustainable development, while explicitly excluding military security. Arctic maritime activities are also subject to existing international law, including the legal framework reflected in the United Nations Convention on the Law of the Sea.

The continuing challenge is to ensure that these different elements of governance work effectively together. Strong scientific cooperation, sustained dialogue and the meaningful involvement of Indigenous peoples and other Arctic residents remain essential to addressing shared challenges and shaping the region’s future.

The Kingdom of Denmark's Chairship, 2025–2027

As Chair, the Kingdom of Denmark will work diligently to keep the Arctic Council vibrant and resilient, first and foremost for the Indigenous Peoples and inhabitants of the Arctic so that the Arctic remains a region of stability and constructive cooperation. An overall ambition is to have an inclusive Chairship and to bring the work of the Arctic Council close to the Peoples and citizens living in the region who must have an impact on the activities in the region, particularly on how sustainable development is interpreted and advanced. Recognizing that Indigenous Knowledge and perspectives are essential to understanding and managing changes in the Arctic, strong integration of Indigenous Knowledge alongside scientific insights in the work of the Arctic Council is a priority.

Priorities

• Indigenous Peoples and Communities of the Arctic
• Sustainable Economic Development and Energy Transition Solutions
• Oceans
• Climate change in the Arctic
• Biodiversity

Indigenous Peoples and Communities of the Arctic

Interest in Arctic sustainable development, regardless of the interpretation of the concept, has been a major area for growth in the Council’s activities. The Chairship will continue to focus on the human dimension of the Arctic Council with a particular focus on strengthening the participation of Indigenous Peoples and the inclusion of Indigenous Knowledge.

Sustainable Economic Development and Energy Transition Solutions

People living in the Arctic have a natural and particular interest in activities occurring in the Arctic and how sustainable economic development is advanced in a balanced manner with respect for different Arctic ways of life. The Chairship will dedicate efforts and attention towards sustainable economic development, with a goal of ensuring that initiatives in this field are being led by the Peoples of the Arctic for the benefit of all Arctic inhabitants with a particular focus on Indigenous Peoples.

Oceans

The Arctic is predominantly covered by oceans. The Arctic seas are of immense importance for the people in the Arctic and in particular Indigenous Peoples and their communities who depend on the health of the sea for their livelihoods and way of life. Ongoing warming and the reduction of sea ice call upon us to step up monitoring developments and to identify the drivers of change, thereby enhancing predictability and effective management of the changing marine environment.

Climate Change in the Arctic

Climate change in the Arctic is happening at an unprecedented rate, with the estimated average temperature increase now three times higher than the global average. As a result, the Arctic inhabitants are among the first to experience the profound impacts of climate change firsthand. Climate change significantly impacts Indigenous Peoples and their communities in the Arctic, affecting their environment, livelihoods, cultural practices, and overall well-being. Our youth will inherit the state of our planet. This places a crucial responsibility on all generations past and present. Arctic climate change affects all spheres of work being undertaken by the Arctic Council with huge cross-cutting consequences for Arctic biodiversity, ecosystems and societies. The Chairship will highlight climate change trends and address the impacts of climate change on sustainable development in the Arctic.

Biodiversity

Biodiversity has been a key priority for the Arctic Council since its establishment. The Chairship will continue this commitment in line with the Arctic Council Strategic Plan 2021-2030’s 2nd goal: We will emphasize collaboration across the Arctic Region to monitor and assess the status and trends regarding Arctic biodiversity and ecosystems, enabling us to continue to detect and predict changes and provide the best available scientific data and Indigenous Knowledge for governance.

Out of a total of 4 million inhabitants of the Arctic, approximately 500,000 belong to indigenous peoples. Indigenous peoples' organizations have been granted Permanent Participant status in the Arctic Council.

The Permanent Participants have full consultation rights in connection with the Council's negotiations and decisions.

The Permanent Participants represent a unique feature of the Arctic Council, and they make valuable contributions to its activities in all areas. The following organizations are Permanent Participants of the Arctic Council:

• Aleut International Association (AIA)
• Arctic Athabaskan Council (AAC)
• Gwich'in Council International (GCI)
• Inuit Circumpolar Council (ICC)
• Russian Association of Indigenous Peoples of the North (RAIPON)
• Saami Council (SC)

The Council's activities are conducted in six working groups. The working groups are composed of representatives at expert level from sectoral ministries, government agencies and researchers. Their work covers a broad field of subjects. The working groups are:

Arctic Contaminants Action Program (ACAP)

ACAP supports practical action to prevent pollution and reduce the release of contaminants into the Arctic environment. Its projects help address environmental and human health risks by promoting cleaner technologies, sharing experience, and demonstrating ways to reduce pollution.See more on ACAP

Arctic Monitoring and Assessment Programme (AMAP)

AMAP monitors and assesses pollution and climate change in the Arctic, including their effects on ecosystems and human health. It produces independent, science-based assessments that document changes, identify emerging risks, and provide advice to support national and international policymaking. See more on AMAP

Conservation of Arctic Flora and Fauna (CAFF)

CAFF focuses on conserving Arctic biodiversity, including species, habitats, and ecosystems. Through monitoring and assessments, it provides information to governments and Arctic communities, helping them make informed decisions about conservation and the sustainable use of living resources. Its work involves cooperation among Arctic states, Indigenous organizations, scientists, and other partners. See more on CAFF

Emergency Prevention, Preparedness and Response (EPPR)

EPPR strengthens cooperation on preventing, preparing for, and responding to emergencies in the Arctic. Its work covers environmental incidents, accidents, and search and rescue. It shares knowledge, develops guidance, and supports exercises to improve preparedness and coordination. EPPR is not an operational emergency response organization. See more on EPPR 

Protection of the Arctic Marine Environment (PAME)

PAME promotes the protection and sustainable use of the Arctic marine environment. Its work addresses pressures on Arctic seas and coasts, including shipping, pollution, and other human activities. It develops policy recommendations, guidelines, and coordinated approaches that support marine conservation and complement existing international legal frameworks. See more on PAME

Sustainable Development Working Group (SDWG)

SDWG addresses the human dimensions of the Arctic, promoting initiatives that improve the health, well-being, and living conditions of Indigenous Peoples and other Arctic residents. Its work connects environmental protection with economic and social development, supporting resilient communities and sustainable livelihoods. See more on SDWG

Observer status in the Arctic Council is open to non-Arctic states, intergovernmental and interparliamentary organizations, global and regional and non-governmental organizations.

Thirteen non-Arctic countries have been admitted as Observer States to the Arctic Council:

• People´s Republic of China
• France
• Germany
• Republic of India
• Italian Republic
• Japan
• Republic of Korea
• The Netherlands
• Poland
• Republic of Singapore
• Spain
• Switzerland
• United Kingdom

The European Union may observe Arctic Council proceedings pending a final decision on its application for observer status.

Thirteen Intergovernmental and Interparliamentary Organizations have been given observer status:

• International Council for the Exploration of the Sea (ICES)
• International Federation of Red Cross & Red Crescent Societies (IFRC)
• International Union for the Conservation of Nature (IUCN)
• International Maritime Organization (IMO)
• Nordic Council of Ministers (NCM)
• Nordic Environment Finance Corporation (NEFCO)
• North Atlantic Marine Mammal Commission (NAMMCO)
• OSPAR Commission
• Standing Committee of the Parliamentarians of the Arctic Region (SCPAR)
• United Nations Development Programme (UNDP)
• United Nations Environment Programme (UNEP)
• World Meteorological Organization (WMO)
• West Nordic Council (WNC)

Twelve non-governmental organizations are observers in the Arctic Council:

• Advisory Committee on Protection of the Sea (ACOPS)
• Arctic Institute of North America (AINA)
• Association of World Reindeer Herders (AWRH)
• Circumpolar Conservation Union (CCU)
• International Arctic Science Committee (IASC)
• International Arctic Social Sciences Association (IASSA)
• International Union for Circumpolar Health (IUCH)
• International Work Group for Indigenous Affairs (IWGIA)
• Northern Forum (NF)
• Oceana
• University of the Arctic (UArctic)
• World Wide Fund for Nature, Arctic Programme (WWF)

• Agreement on Cooperation on Aeronautical and Maritime Search and Rescue in the Arctic—2011
• Agreement on Cooperation on Marine Oil Pollution Preparedness and Response in the Arctic—2013
• Agreement on Enhancing International Arctic Scientific Cooperation—2017

Morten Høglund, Chair of the senior Arctic Official

Norway Chairship, 2023-2025

The overall objective for Norway’s Chairship of the Arctic Council was to promote stability and constructive cooperation in the Arctic. Norway focused on the core issues the Council deals with, including impacts of climate change, sustainable development, and efforts to enhance the well-being of people living in the region. Through four priority topics: the oceans; climate and environment; sustainable economic development; and people in the North, Norway will continue to pursue the long-term approach taken by the Council in its important efforts to ensure a vibrant and sustainable Arctic region. Arctic youth and Arctic Indigenous Peoples are cross-cutting priorities of the Norwegian Chairship.

For more than 25 years, the Arctic Council has played a central role in Arctic cooperation. The Working Groups produce crucial knowledge on the state of the Arctic, including climate change, which feeds into national and international management regimes.

Priorities

The four thematic priorities of Norway’s Chairship reflected long-term Norwegian priorities for the Arctic and for Norway’s Arctic policy, which are founded on knowledge and the principles of responsible and sustainable management.

The Oceans

A combination of increasing activity, rapid climate change and loss of sea ice is putting growing pressure on the Arctic marine environment. To promote healthy and productive oceans and enhance the sustainability of Arctic Ocean industries, Norway will continue to focus on integrated ocean management.

The chairship continued the efforts to support and strengthen international ocean research collaboration and increase joint action to combat marine litter. The coastal areas play a vital role in maintaining dynamic local communities in the north. Strengthening cooperation on emergency preparedness and safe shipping in the Arctic is therefore a priority for Norway.

Climate and Environment

Climate change is particularly rapid in the Arctic. Changes in the Arctic have impacts at a global level. Climate change is by far the most serious threat to Arctic biodiversity. During the Norwegian Chairship, the focus was on the impacts of climate change in the Arctic, the need to adapt the management regime to climate change, and the environmental problems associated with expanding human activity. A shared, robust knowledge base is vital to dealing with these challenges.

Sustainable Economic Development

The rich natural resources of the Arctic are already playing a role in economic development and supporting dynamic communities in the Arctic. At the same time, the region has considerable potential for economic development in connection with the green transition. During its Chairship, Norway will highlight sustainable economic development as an essential basis for social development in the Arctic. The green transition, the blue economy, sustainable shipping, and Arctic food systems will be special thematic priorities.

People in the North

Global climate change is altering the framework for livelihoods, settlement patterns and living conditions for people living in the Arctic, often in new and different ways. Through its Chairship of the Arctic Council, Norway will seek to develop resilient, diverse, and inclusive Arctic communities that are attractive places to live in, for everyone.

To this end, Norway sought to strengthen Arctic health cooperation, including cooperation on enhanced medical preparedness in the region. Norway also worked to enhance Arctic cooperation in the cultural field.

Nikolay Korchunov SAO Chair

Russia Chairship, 2021-2023

Responsible Governance for a Sustainable Arctic

A cross-cutting priority of the Russian Chairship in the Arctic Council was "Responsible Governance for Sustainable Arctic" through promoting collective approaches to the sustainable development of the Arctic, environmentally, socially and economically balanced, enhancing synergy and cooperation and coordination with other regional structures, as well as implementation of the Council's Strategic Plan, while respecting the rule of law.

The Comprehensive Program of the Russian Chairship Involved Multilateral Cooperation in the Following Priority Areas:

1. People of the Arctic, including Indigenous Peoples

The sustainable development of the Arctic is largely determined by the quality of human capital. The Russian Chairship’s main focus was on enhancing sustainability, resilience, and viability of Arctic communities, climate change adaptation measures, improving the well-being, health, education, and quality of life of Arctic inhabitants, as well as ensuring sustainable socio-economic development in the region. Promotion of scientific, educational and cultural exchanges, tourism and contacts between peoples and regions was also high on its agenda. Special attention was given to the preservation of the linguistic and cultural heritage of Indigenous peoples of the Arctic, and to youth cooperation across borders.

2. Environmental protection, including Climate Change

Taking into account the rapid climate change in the Arctic, most notably accompanied by degradation of permafrost and icy gas hydrate emissions, the Russian Chairship continued supporting efforts to mitigate the negative effects of climate change, increase adaptation of life activities and ensure resilience to its consequences, preservation and restoration of the environment, sustainable use of natural resources, maintaining the health of the Arctic ecosystems, including the marine environment, preserving biodiversity, in particular, Arctic migratory birds. In the context of further development of the region, it was important to take into account not only the vulnerability of the Arctic to climate change, but also its long-term contribution – due to its natural, energy and transport resources and solutions – in facilitating the transition to a low-emission economy and, accordingly, to the implementation of the goals of the Paris Agreement. An equally topical task was to promote the introduction of advanced sustainable innovative technologies into the transport sector, industry, infrastructure and energy, including the use of renewable energy sources to improve the standards of living of the Arctic inhabitants.

3. Socio-Economic Development

A key condition for the well-being and prosperity of the Arctic was its sustainable economic development. The Russian Chairship further promoted constructive economic cooperation in the region, the development of reliable energy infrastructure, sustainable transport routes, including shipping, telecommunication systems, the food production sector, improving the conditions for sustainable investment flows, encouraging innovations and entrepreneurship, and business financing.

4. Strengthening of the Arctic Council

The Russian Chairship continued supporting the establishment of the Arctic Council as the leading format for international Arctic cooperation, improving its work, increasing the effectiveness of its Working and Expert groups, the Secretariat, as well as developing mechanisms for financing the Council's activities, including its projects and programs, implementing decisions and recommendations, as well as encouraging the dialogue and interaction with the Observers to provide their meaningful and balanced engagement in the Council’s activities. It intends to further intensify collaboration of the Arctic Council with the Arctic Economic Council, the Arctic Coast Guard Forum, and the University of the Arctic. Among the priorities of the Russian Chairmanship was promoting international scientific cooperation, in particular, exploring the possibility of conducting an Arctic Council scientific expedition to the Arctic Ocean.

Einar Gunnarsson SAO Chair

Iceland Chairship, 2019-2021

The theme of the Arctic Council Chairship program for 2019-2021 reflects Iceland’s commitment to the principle of sustainable development and refers to the necessity of close cooperation between the states and peoples of the region and beyond. With sustainable development as an overarching theme, Iceland will highlight four priorities: The Arctic Marine Environment, Climate and Green Energy Solutions, People and Communities of the Arctic, and a Stronger Arctic Council.

The Arctic marine environment

During its Chairship, Iceland will highlight plastic pollution in the Arctic marine environment, drawing on the findings of the first desktop study on marine litter in the Arctic. The Arctic Council will work on the development of a Regional Action Plan to reduce marine litter, including microplastics, along with other efforts to monitor and limit its impacts.

Innovative methods to improve the utilization of living marine resources may have considerable potential for driving sustainable economic growth in coastal communities. Iceland is leading the development of a project on the Blue Bioeconomy in the Arctic, exploring opportunities to increase the value of marine products.

Iceland will continue to promote safe and sustainable shipping in the Arctic. With increasing marine traffic and activities, it is essential to maintain close and effective cooperation among the Arctic States on search and rescue, as well as emergency prevention, preparedness and response. Circumpolar meteorological and oceanographic cooperation also serves to improve safety at sea and should be developed further, in collaboration with the World Meteorological Organization.

Climate and green energy solutions

on gender equality in the Arctic and strengthen a network of experts and stakeholders in the field.

Stronger Arctic Council

Iceland’s Chairmanship will strive to enhance the constructive cooperation that has always been a key strength of the Arctic Council. Close consultations between the Member States and the Permanent Participants must continue, and further opportunities for mutually beneficial collaboration with Observers should be explored.

Iceland wishes to strengthen cooperation between the Arctic Council and the Arctic Economic Council, on the basis of a new Memorandum of Understanding, with the shared objective of promoting responsible economic development.

Aleksi Härkönen SAO Chair

René Söderman Senior Arctic Official

Finland Chairship, 2017-2019

Finland built the 2017–2019 Chairship of the Arctic Council on strong Arctic traditions and expertise.

Finland wanted to highlight two recent milestones which had major relevance to the Arctic.

The international community adopted a universal, legally binding climate agreement in Paris in 2015. Global warming is still expected to continue for decades with considerable impact on the Arctic. It is necessary to continue working to mitigate climate change and strengthen resilience and adaptation, and to raise awareness of Arctic issues in global climate talks.

The goals of the 2030 Agenda for Sustainable Development, adopted by the United Nations in 2015, are global in scope and apply also in the Arctic. Sustainable development is at the core of the Arctic Council mandate. Accordingly, Finland proposed to explore how the Agenda 2030 framework could be used in Arctic cooperation for the benefit of humans and nature.

The Arctic is developing into an important hub of the twenty-first century. The economic potential of the region should be harnessed in a way that brings prosperity to, and guarantees the livelihood and social progress of, Arctic inhabitants and communities. Sustainable economic development is the key to resilient communities.

Finland strived to increase the cooperation between the Arctic Council and the Arctic Economic Council to support the goal of facilitating business-to-business activities and responsible economic development. Common areas of interest include capacity building, risk management, connectivity, cold-climate technologies and services, maritime transport, energy, bioeconomy, tourism, housing and mining.

In 2017, Finland celebrated the 100th anniversary of its independence. Among the planned Arctic events are the international Rovaniemi Arctic Spirit conference and a scientific expedition in Arctic waters on board a Finnish icebreaker.

Environmental protection lies at the core of Arctic cooperation. The Arctic region is often equated with a clean environment and plentiful natural resources. Healthy ecosystems and human well-being in the Arctic require effective environmental protection measures. Finland invited the Arctic Council to further focus on biodiversity conservation and pollution prevention, as well as mitigation and adaptation to climate change.

The Arctic Council and its Working Groups have produced a wealth of top-quality assessments on the state of the Arctic environment, along with recommendations for action. Finland encourages Member States to put the recommendations into practice and to communicate the results also in global forums. Finland proposes intensified exchange of information on best practices and emerging technologies to promote sustainable and responsible development in the Arctic.

Further information

U.S. Secretary of State John Kerry, Chair of the Arctic Council

Ambassador David Balton, Chair of the Senior Arctic Officials

U.S. Chairship, 2015-2017

During the Arctic Council Ministerial Meeting held in Iqaluit (Nunavut, Canada) on 24 April 2015, the U.S. took over the Arctic Council Chairmanship, previously held by Canada.

The U.S. chairmanship theme, One Arctic: Shared Opportunities, Challenges, and Responsibilities, reflects the U.S. commitment to a well-managed Arctic, marked by international cooperation. In partnership with the other Arctic States and Permanent Participants, the United States was proud to initiate wide-ranging work to protect the marine environment, conserve Arctic biodiversity, improve conditions in Arctic communities, and address the rapidly changing climate in the Arctic.

U.S. Secretary of State John Kerry served as chair of the Arctic Council.

The program of the U.S. had three thematic pillars, with raising Arctic Awareness as a broader goal:

Arctic Ocean: With the increase in human and maritime activity in the Arctic, Arctic Council members are working together to promote Arctic Ocean safety, security and stewardship, including by exercising Arctic State agreements on search and rescue cooperation and oil pollution preparedness and response.

Arctic Communities: A rapidly warming Arctic is threatening Arctic communities through coastal erosion, thawing permafrost and changing ecosystems. The Arctic Council's work on energy and water security seeks to improve economic and living conditions in the region by pursuing innovative technologies to mitigate the significant challenges faced by remote Arctic communities.

Arctic Climate: The impacts of climate change in the Arctic, a region where people, animals and plants have thrived for thousands of years, threaten communities and their ways of life, as well as the ecosystems upon which these communities depend. The Arctic Council is addressing the impacts of climate change in the Arctic by targeting short-lived climate pollutants through reductions in black carbon and methane emissions.

Arctic Awareness: The Arctic is a socially vibrant and biologically diverse region that requires resources for sustainable development and environmental protection. By raising awareness of the Arctic and its role in the global ocean and climate systems, the Arctic Council seeks to educate and inform the public worldwide that the Arctic should matter to everyone.

Download the U.S. Chairship Highlights