This is about an active player in the Arctic – Spain.
Authors: Pavel Tkach & Elena Kavanagh
Special thanks to Adrià Medina i Altarriba – Bluebook Trainee EEAS (EUROPE.1) for connecting the Arctic Youth Network with representatives of the Ministry of Foreign Affairs and Cooperation of Spain.
The Arctic region represents a vast territory intersecting the global interests of various Arctic and non-Arctic states. However, the contribution of non-Arctic states to Arctic development is frequently underestimated, overshadowed by the misconception that the Arctic is solely the domain of Arctic states. The Arctic Directions publication series aims to demonstrate that non-Arctic states are significant stakeholders in the region and to examine the influence of young individuals in shaping state efforts in the Arctic. Recently, the Arctic Youth Network, represented by Pavel Tkach – Acting Managing Director of the AYN and Elena Kavanagh – Advisory Board Member of the AYN, conducted interviews with Carlos Lopez Ortiz, the Senior Arctic Official of Spain and Deputy Director-General for Multilateral Economic Relations and Maritime, Air, and Terrestrial Cooperation at the Ministry of Foreign Affairs and Cooperation of Spain, alongside Patricia Sanabria González, Head of Area in the Subdirectorate General of Multilateral Economic Relations at the Ministry of Foreign Affairs and Cooperation of Spain, and found out the answer to question: what Arctic Directions of Spain are?
The series of publications has been curated to facilitate an engaging dialogue between state representatives and the Arctic Youth Network. It features comprehensive responses to pertinent inquiries, complemented by annotations from the AYN.
What is the history of Spain’s interests in the Arctic and Spanish cooperation in the Arctic? Could you provide a brief introductory overview of “Spain in the Arctic”
Carlos Lopez Ortiz: Spain’s presence in the Arctic region goes a long way back. For centuries, Basque and Cantabrian fishermen and whalers have crossed the Atlantic Ocean to the coast of Newfoundland and Iceland in search of more productive fishing grounds. While fishing has had a significant way in this regard, it has not been the only evidence of our presence in these latitudes. In the 16th century, the ships of the Spanish navigators, including Cabrillo (1542), Gali (1582) and Vizcaino (1596/1602), were part of various expeditions to find the mythical that time Northwest Passage and thus reached the waters of the Pacific from the Atlantic. In 1790, Salvador Fidalgo took possession of Alaska on behalf of the Spanish Crown in Orca Inlet near the town of Nanwalek, where they still celebrate this event present day. As a testimony to the Spanish past of Alaska, we can highlight the persistence of some Castilian place names, such as the city of Valdez and Cordova, the northernmost settlements with Castilian names that exist, and this brief period of time was also the framework for other historical feats of a more scientific nature, as demonstrated by the expedition of Alejandro Malaspina, a Tuscan explorer who worked for the Spanish crown. Malaspina’s venture, aimed primarily at studying the limits of the colonial empire, are fauna, flora and geography in the Arctic. As a reminder of this, of this feed of our science, we have the Malaspina glacier.
What narratives about the Arctic exist in Spain?
Patricia Sanabria González: It is changing right now, and traditionally, it had to do with this unknown land of explorers and adventurers. In some ways, people still have that image, like an adventure novel. But it has helped to grow scientific interest in Spain, which led us to be a very well-known and respected country for scientific research. And now it is changing. For instance, this year, there have been many Spanish documentaries on the scientific and also non-scientific activities in the Arctic. And people are becoming more and more aware of the Arctic. There is also a greater connection between the Arctic communities and Spanish citizens. This year also, we have opened an honorary consulate of Spain in Greenland, in Nuuk, because of the increasing interactions between our communities. So, I guess globalisation has also helped us to get a better image of the Arctic. And right now, with the current geopolitical situation, Spaniards are also starting to be concerned about challenges in the Arctic that, in the end, also affect us on a daily basis.
Notes from the Arctic Youth Network: The point about globalisation highlights a crucial aspect that unites non-Arctic states. Much of what we know or think about the Arctic is shaped by various media outputs, computer games, and even advertising campaigns. Globalisation ensures that these Arctic narratives reverberate worldwide. From the policy-making perspective, it is important to note that Arctic policies do not emerge in isolation. In this context, Nilsson and Christensen’s study (2019) emphasises the pivotal role of media in Arctic politics, revealing how the images and messages disseminated about the Arctic significantly influence political agendas and public perceptions. Thus, by addressing the way the Arctic is portrayed across non-Arctic states, we can foster more informed and nuanced Arctic policies on a global scale.
Elena Kavanagh: I suppose, just going back to the debate that Ireland has, what Ireland is: is it a near-Arctic state, a bit like China claims, or is it an Arctic-facing state? So, to include in the Irish strategy, we don’t know what to write. But for you, how do you consider Spain? What term can you relate to Spain in the Arctic?
Patricia Sanabria González: Well, I do not like very much that countries need to be put into a box that they’re either Arctic or non-Arctic. And if they’re non-Arctic, what are they, and how can they be more Arctic? I think the Arctic has common challenges that concern us all, regardless of whether we are Arctic or non-Actic. And so, in our Strategy, we will identify that Spain is a country with great interest in Polar issues. And as I said before, legitimacy and presence will define how much you are actively participating in shaping the Polar or Arctic reality. So, for us, the future must be a future of peace, security and prosperity for all, regardless of whether they are Arctic states or not. As a result, I do not think it is important to define us in any way. We are not even debating that for our Polar Strategy.
Note from the Arctic Youth Network: This vision aligns with a broader global perspective, as non-Arctic states like Spain increasingly play a vital role in Arctic affairs. Spain, as a non-Arctic state, has a vested interest in understanding the processes behind climate change in the Arctic. The rapid warming of the Arctic region has far-reaching implications, impacting global sea levels, biodiversity, and weather patterns (Coates and Holroyd, 2017, p. 207). Moreover, with the melting of the ice, formerly inaccessible natural resources are becoming more attainable, prompting interest from non-Arctic nations (Kieval, 2022, p. 46). Non-Arctic states, including Spain, are increasingly identifying themselves as stakeholders in Arctic affairs and are emphasising the importance of biodiversity conservation and mapping protected areas (Barry et al., 2023). Furthermore, the focus on scientific research and security in the Arctic region is gaining prominence among non-Arctic states (Heininen et al., 2020; Varik, 2023).
How would you explain the importance of the Arctic to the Spanish youth in a few words?
Carlos Lopez Ortiz: Well, that’s a really good question. In very few words, we think that the Arctic is, for us, the ultimate geopolitical scenario. We believe that the Arctic has all the challenges that humanity needs to tackle in the short, medium and long terms—environmental issues, food security, Indigenous People relations, gender balance, equality, inclusion and many other topics. I feel like almost all the SDGs that the Agenda 2030 has are really big issues in the Arctic in the present and future. And that’s why we think that is an opportunity for us to do things better.
What can you consider the main achievement of Spanish science, research and diplomacy in the Arctic?
Patricia Sanabria González: Spain’s observer status since 2006 is a key to the development of Spanish research and science in the Arctic. And then I think it is important to note the good reputation that Spanish scientists have and how we have contributed especially with the Spanish polar committee, which is our natural partner. It is the institution that gives the green light to all science and research projects that are going to take place both in the Arctic and the Antarctic. And because of the continuity that scientists have within the polar committee, we have been able to be more active also in the working groups of the Arctic Council. For instance, it is important to note our participation in the Arctic Migratory Birds Initiative (AMBI), as well as the Spanish expertise that we have in fighting against natural disasters, wildfires, and different climate-related issues. And the investigations, we have also been doing in the Antarctic, although they’re very different. But the science-based approach that we have within our Ministry of Science and our scientists has been very important in order to show, first of all, that we have very good scientists. And lastly, I would also like to mention that for Spain, because we do not have bases in the Arctic, it is important to cooperate with other states. We think that it’s very important to sign memorandums of understanding with different states in order to have joint polar efforts and to have common joint research programs with other states.
Pavel Tkach: I really like Poland’s example. They are also observer states, and they are very concentrated on research on Svalbard and have stations there. Potentially, it would be very profitable for two observer states to cooperate in the Arctic Council. Was it worth it that Spain joined the Arctic Council as an observer state? States like Ireland, Estonia, and the Czech Republic should continue to make efforts to join the Arctic Council as observer states. So, how can you evaluate your experience in the Arctic Council?
Carlos Lopez Ortiz: We think that is an invaluable experience. We believe we all agree in the Ministry that for us, it’s an honour and a privilege to be in this club, not only now with this special situation but also in general. We think that, as a science country and an economic country, and also because our priorities are social inclusion and gender equality, protection of the biodiversity. That is really interesting for us and has added value for us as a country to be in this forum. I imagine that for the Baltic countries, it should be even more interesting to be here because now, in this area, we can talk about shared interests, and if they are not shared, we can talk about why and about the solutions.
Pavel Tkach: Yeah. For example, in the case of Latvia and Estonia. They are very interested in joining the Arctic Council because, as their biggest achievement and advantage, they are claiming climate change research in the Baltic Sea, and they want to transfer this experience to the Arctic Ocean waters. And they would like to have more collaborative research on climate change in marine areas. Plus, Estonia and Latvia are members of Nordic – Baltic Eight. So they have huge ties with Sweden, Finland, Norway, Denmark and Iceland. But with given circumstances, it is unfortunately not possible right now.
Note from the Arctic Youth Network: Spain actively participates in numerous Arctic-related science and research initiatives, including the EU-PolarNet project. This European research endeavour, backed by the Horizon 2020 Programme (2015-2020), aimed at facilitating cooperation among European nations in the field of polar research. Spain continues to allocate funds to Arctic-related projects that are of collective interest to the regions. Also, it is worth emphasising that since 2009, Spain has been a member of the International Arctic Science Committee (IASC). Through these collaborative endeavours, Spain has established its credibility as a research partner and has a vested interest in participating in and providing financial support to Arctic-related projects.
What are the top 3 common interests in science and research Spain has with the other Arctic States?
Carlos Lopez Ortiz: Regarding Spain’s focus areas in the Arctic. Like other countries in our vicinity, Spain’s interests affect sectors such as fishing, security, access to raw materials, energy, economy, environment, and social inclusion. Of course, the business opportunities that arise are from our companies in the area.
How do you see the role of Spain in restoring and (or) continuing the Arctic cooperation? Do you think that observers states in the Arctic Council can prove to the world that the Arctic Council is not an exclusive “Nordic Club”?
Patricia Sanabria González: We do think that it’s important to take into account, first of all, that a great part of cooperation in the Arctic takes place within the Arctic Council. So, 95% of the collaboration takes place within the Arctic Council. It’s the preeminent body where states need to talk, but not only Arctic states. It is important to see also the current geopolitical reality and the fact that right now it is not feasible for new observers, as things stand now, to join this closed club. But it cannot be considered a closed club, because the debates we are engaging in are issues of common interest for international cooperation and also local communities. So observer states are there also to raise their voice and to make people aware that the debate needs to take place among all stakeholders, meaning Arctic and non-Arctic states, local communities and Indigenous People. And it is important to show that the Arctic reality has changed. There is a new Arctic reality right now, and new challenges need to be taken into account, especially maybe security issues, which does not mean that other challenges will be left apart and will not be a priority to all. It is important to talk about them, also, with non-Arctic states that have legitimacy and presence in the Arctic. And I think those would be the two factors that need to be taken into account when addressing each other in debate. It’s not only about the Arctic states – it goes beyond that, something global because it’s the future of us all.
Pavel Tkach: And examples of other non-Arctic states are relevant. Thus, Germany is financially contributing a lot to the Arctic research, also with human and technological resources. Furthermore, one of the biggest research institutions doing research in the Arctic is a German institution – the Alfred Wegener Institute for Polar and Marine Research.
What directions/goals declared in the Spanish Polar Strategy do you think are achievable for 100% in the short-term perspective, and what directions/goals declared in the Strategy are of the biggest interest to you as Senior Arctic Official? What can you consider an “innovative component” of the Strategy?
Carlos Lopez Ortiz: We are beginning the process of designing and drafting the first Spanish Polar Strategy that is going to be Ambipolar – both Poles. It is going to be short because we don’t want to have a really extended version to cover everything. It needs to be efficient, targeted, and polar-oriented. It’s going to be a common effort by all the Ministries. And we are going to be ambitious because the document should be ambitious. Obviously, we will consult the academics and scholars in the development process – they should have a voice, and we really need to draft their interest in this strategy.
Notes from the Arctic Youth Network: Spain’s activities in the polar regions have been subject to criticism due to the notable focus on the Antarctic over the Arctic. Currently, Spain is actively seeking long-term land-based cooperation in the Arctic. At the same time, Spain has made significant advancements in establishing the first land-based Spanish Antarctic facilities, including the Spanish Antarctic Bases Juan Carlos I and Gabriel de Castilla, as well as the remodelled Las Palmas Navy support vessel for polar areas and the fully operational R/V Hespérides, providing substantial land- and sea-based platforms in Antarctica.
Another point of criticism can be found if to pay attention to the developed in 2016 by the Ministry of Science, Innovation and Universities / Spanish Polar Committee – Guidelines for a Spanish Polar Strategy. There are no mentions of youth and universities in the text. The aforementioned guidelines fail to acknowledge the potential of young individuals as catalysts for change. Nevertheless, since 2016, when the guidelines were published, Spain, as a stakeholder in Arctic cooperation, has demonstrated an increased focus on engaging young Spaniards in Arctic-related discourse and recognising their capacity to promote awareness of Arctic issues among their peers. Consequently, the Arctic Youth Network is optimistic that forthcoming strategies will underscore the significance of youth and academic institutions.
Spain is neighbouring with another observer state of the Arctic Council – France, can we say that the Arctic can be the topic of bilateral relations of neighbouring states? And does your other neighbouring state – Portugal, express interest in the Arctic?
Carlos Lopez Ortiz: We share with both of our neighbouring countries – France and Portugal interests in Polar and other related matters as well. Both Arctic and Antarctic continuous interaction is key to fostering common efforts to guarantee a secure, prosperous and peaceful Arctic for all. France and Spain are both of service to the Arctic Council and consultative to the Antarctic Treaty System, where we support each other’s science and research efforts. Portugal is showing an increasing interest in Polar matters. We have a Memorandum of Understanding of 2009 between our two countries for joint scientific cooperation and have been actively cooperating in the Antarctic campaigns since the year 2000.
Note from the Arctic Youth Network: It is noteworthy to consider the case of the French National Roadmap for the Arctic in comparison to the Spanish Arctic strategic framework. France acknowledges the importance of local universities in shaping the country’s science and research capacities. Despite the established eminence of French science and research in the Arctic, there is a recognised need to enhance the coordination of research activities among educational, research, and scientific institutions in France (CLICK TO READ MORE). Concurrently, it is essential to highlight that Spain’s focus is not on developing an extensive strategy document but rather an action-oriented and targeted policy document. The Arctic Youth Network underscores the value of the experience of the neighbouring state in employing the network of universities and research institutions in Arctic science and emphasises the relevance of taking the conclusions France made in its roadmap into account during the strategic development.
What lessons/ideas/actions should Spain take from Indigenous communities for further domestic implementation?
Carlos Lopez Ortiz: We think that Spain and national communities often share similar cultural traits. For instance, our local fishing communities and local Arctic fishing communities. This year, at the Arctic Circle Assembly, we are organising a panel discussion on gender equality for more sustainable communities in the Arctic. Gender equality is an important policy priority for Spain, both domestically and in our foreign policy. The geopolitical and global economic significance of the Arctic region has been growing fast as a consequence of climate change as well as economic development. The changes we are witnessing in the Arctic are affecting both men and women, sometimes in different ways. This panel discussion aims to examine the increasingly significant role that a gender equality approach can have in the Arctic, particularly in light of the environmental, social and economic challenges. The discussion will focus on the integration and strategic contribution of gender experts, evaluating how their diverse capabilities can enhance a gender equality objective that helps promote the sustainable development of the region. Particular emphasis will be placed on shared gender equality views from a local perspective, from the communities in Spain and the various Indigenous and local communities in the Arctic region. A female representative from the Northwest Fisheries community (Burela Fishing Guild) in Spain will also attend the panel as we aim to organise an open and constructive panel debate of shared experiences, pending challenges and future outcomes among different local communities on an equal basis.
Note from the Arctic Youth Network: The Statement by the High Representative on behalf of the European Union (8 August 2023) declared that the Indigenous youth stand at the frontline of some of the most pressing crises humanity faces today, such as the loss of biodiversity and climate change. At the same time, they lack avenues for full participation in political and public life, to address challenges such as loss of territories, livelihoods, and resources, or to advocate for self-determination and defend their rights. The EU continues to promote the participation of Indigenous leaders and Indigenous human rights defenders, including Indigenous youth, in development processes and key global decision-making fora (CLICK TO READ MORE). In line with this initiative, Spain is actively promoting Arctic-related subjects to facilitate the exchange of knowledge and experience between the Arctic and non-Arctic communities. Gender equality, particularly pertinent to Indigenous communities across the Arctic, is among the focal areas. At this year’s Arctic Circle Assembly, the Ministry of Foreign Affairs, European Union and Cooperation of the Government of Spain, in collaboration with the Icelandic Arctic Cooperation Network (IACN) and the Arctic Council’s Sustainable Development Working Group (SDWG), is convening a session entitled “Gender Equality for More Sustainable Communities in the Arctic.” During this session, representatives from Spanish and Arctic communities will convene to deliberate on this shared pertinent topic. The session is scheduled to take place on October 17 (Thursday) from 11:20-12:15 (GMT) at Björtuloft, Harpa Fifth Level.
How can you evaluate the role of Spanish Universities in promoting and developing Arctic research among young people?
Carlos Lopez Ortiz: We think that Spanish universities and scholars are showing increasing interest in Arctic matters. The University of Barcelona has launched in 2022 a research campaign in the Arctic within the framework of the NEOARCTIC project, and the Complutense University of Madrid provides Polar studies programmes to students. That is really like we are feeling that has a really big interest or bigger interest than in the previous years. Among other things, we can mention the work of the Spanish Polar Committee assigned to the Ministry of Science, Innovation and Universities through the General Secretariat for Research, which holds the Committee Chair as the National Polar Authority, and here in the Spanish Ministry of Foreign Affairs. Also, we are exploring new ways of cooperation with the Arctic universities, such as the University of Akureyri (Iceland), and the University of the Arctic network, to promote Spain’s academic contribution and to attract youth talents.
Pavel Tkach: Very interesting. At the Arctic Centre University of Lapland, we have a visiting researchers programme, and we have a lot of people coming from Spain and Portugal for visiting research semesters. I was very surprised, and the AYN has been approached by Spanish and Portuguese youth about writing articles about the interests of Spain and Portugal in the Arctic. So, interest in the topic of the Arctic exists among young people in the region.
Note from the Arctic Youth Network: Except for the research campaigns realising at the Autonomous University of Barcelona, the university is home to the interdisciplinary Arctic Research Centre (CER ARCTIC), the first of its kind in Spain, established in 2018. The primary objective of CER Arctic is not only to bolster the university’s collaborative projects with the Arctic organisations but also to provide guidance to students interested in Arctic studies towards the successful completion of their degree theses. As of 2024, the Centre has facilitated the completion of degree theses on Arctic-related topics for 4 students. Furthermore, it has forged robust collaborative relationships with the Stefansson Arctic Institute (SAI) and has jointly undertaken numerous research initiatives over the years (CLICK TO READ MORE).
How can Spanish youth activism around climate change and environmental issues be aligned with the Spanish Polar Strategy?
Patricia Sanabria González: I think, first of all, the image or the perception that our youth has of the Arctic has evolved because the main interest among youngsters in Spain has been related to science. Young people want to do science and research on the Arctic topics because they see the Arctic in line with our historical presence in the Arctic, as a land of exploration, adventure, science and research. But now we are seeing a shift, and climate change is one of the issues that is a priority for Spanish youth. We see a lot of activism on climate issues in Spain. This will also be reflected in how Spanish youth interact with the Arctic and the interest they show in the Arctic. So, for sure, climate issues are key factors in our Polar strategy that we are drafting right now and that we expect to have by the end of the year, as well as the social involvement of youth in Arctic issues. I think youth Spain will also have a growing interest in all Arctic matters, including geopolitical, political, economic, and social, and therefore, it is also important that we see that youth can speak up and be there in an open dialogue with Arctic youth in order to express their concerns to common challenges.
Elena Kavanagh: To follow up on that, I’d like to come back to the fact that the Arctic Council’s work is limited and not on a full scale at the moment. Do you think there should be more cooperation between non-Arctic states?
Patricia Sanabria González: I think, going back a bit to the previous question, the Arctic Council is the main body where Arctic cooperation takes place. But I think it is important to open up the debate to non-European, non-Arctic states and to have everybody on board because that is the international cooperation on things that are common to us all. Some challenges are growing in the Arctic, but they affect us all and need to be debated with everyone. So, the fact that, for instance, there is a close debate among only Arctic states on these issues will not lead to a common solution. And therefore, I do also think, for instance, Asian stakeholders should be there when we are debating on Arctic issues.
Carlos Lopez Ortiz: Yeah. As we expressed at the EU-Arctic Forum, we are totally in favour of open and efficient multilateralism. So, in this sense, every voice counts and needs to be heard.
Notes from the Arctic Youth Network: There has been an ongoing discussion on the cooperation on the Arctic issues outside the mechanisms of the Arctic Council. Some argue that it is a strategic miscalculation to “place it at the apex of a hierarchical pyramid” (Exner-Pirot, 2016), as the Arctic Council has its limitations and is not based on a binding treaty. Although Spain has already been granted Observer status, the geopolitical tensions surrounding the Council may limit the influence and engagement of non-Arctic states in future decisions and activities. Despite that most Arctic states are committed “to ensuring the Council’s survival” (Andreeva, 2024), this creates challenges for Spain in deepening its involvement and possibly searching for other fora to advance Arctic cooperation. Maintaining openness is essential for keeping the Council a central hub for global Arctic collaboration. To strengthen its role in Arctic affairs, Spain should continue advocating for inclusive cooperation that brings both Arctic and non-Arctic states together.
How can Spain collaborate with the Arctic Youth Network to foster a dialogue between Spanish and Arctic Youth?
Carlos Lopez Ortiz: We are very interested in Spanish youth joining the Arctic Youth Network. We think that is a fascinating and appealing adventure as well. I think that getting in touch with the AYN is also a key first step for us in order to identify young Spaniards interested in Arctic issues and promote their active participation in an open dialogue with Arctic youth. And this sense within this meeting, this interview, would be a real starting point for us.
Note from the Arctic Youth Network: The Arctic Leaders’ Youth Summit 2019 in Rovaniemi, Finland, underscored the notion that “Arctic youth is not only the future but also the present.” This assertion extends beyond the Arctic region to encompass young people globally. It is, therefore, imperative to recognize that the ongoing efforts to promote Arctic-related subjects to young individuals in non-Arctic states are geared toward shaping the interests of young scientists and researchers for both present changes and future outcomes.
Conclusion
Overall, Spain’s strategic line in the Arctic reflects its commitment to environmental sustainability, scientific research, and “open and efficient multilateralism” without putting “countries into boxes”. Despite its geographical distance from the Arctic, Spain has positioned itself as a key player in Arctic affairs through its role as an observer state in the Arctic Council, member of IASC and contributor to many science and research projects targeting the Arctic. Spain’s focus on climate change and its impacts on the Arctic’s fragile ecosystem underscores the country’s broader global environmental goals. The existing youth climate change activism in Spain can serve as a catalyst for further engagement in this topic within the country. There is a discernible intention of Spanish governance to initiate a dialogue with the youth from Arctic regions. It is acknowledged that the subject of the Arctic should be promoted among Spanish youth, affording them the opportunity to conduct research on this topic. The presence of the Arctic Research Centre in Barcelona, the availability of polar studies programmes in Madrid, and the efforts of the Spanish Polar Committee collectively contribute to the realisation of this intention. However, it is imperative to underscore that this aspiration emanates solely from established diplomats, scientists, and researchers in Spain who harbour an interest in the Arctic. To facilitate more effective initiatives, collaboration with young people and universities in the Arctic should be stipulated as one of the objectives of the future Spanish Polar Strategy.
In light of the recent Summit of the Future and the upcoming Arctic Circle Assembly 2024, Spain must advocate for peaceful cooperation in the region, recognising the importance of dialogue and shared governance in addressing the complex challenges faced by the Arctic. This holistic approach allows Spain to influence Arctic policy even from afar, reinforcing its role as a responsible global actor on environmental issues.
The contributions of Spain and its Arctic directions undoubtedly merit attention within and beyond the Arctic region.