General briefing on nordic-Baltic cooperation

This document provides an overview of Nordic-Baltic defence and security cooperation, highlighting its evolution, institutional frameworks, key areas, and strategic significance, particularly after Finland and Sweden's NATO accession. It examines how the eight nations, now united within NATO, are working together to enhance regional deterrence against Russia and strengthen the Alliance's northeastern flank. The text details the roles of NORDEFCO and NB8, the importance of joint military exercises, and cooperation in areas such as critical infrastructure protection and countering hybrid threats. Finally, the document addresses the challenges and future prospects of this collaboration, including balancing regional and NATO frameworks, managing resource constraints, and improving military mobility.

# Nordic-Baltic Defense and Security Cooperation: A Regional Framework for Collective Security

The Nordic-Baltic region has emerged as a crucial security node in European and transatlantic security architecture, particularly in the wake of Finland and Sweden's NATO accession. With all eight Nordic and Baltic countries now united under the same military alliance for the first time in history, the region is witnessing unprecedented opportunities for enhanced defense cooperation. This remarkable transformation has positioned the Nordic-Baltic countries to assume greater responsibility as constructive leaders in transatlantic security, working in concert with the United States, NATO, and the European Union. The current security environment, characterized by Russia's aggressive posture and hybrid warfare capabilities, has accelerated regional integration efforts across multiple domains including military defense, critical infrastructure protection, cyber security, and support for Ukraine.

## Historical Evolution of Nordic-Baltic Security Cooperation

The history of Nordic-Baltic security cooperation reflects the complex geopolitical dynamics that have shaped Northern Europe since World War II. In the post-war era, the Nordic states pursued divergent security paths, with Norway, Denmark, and Iceland becoming founding members of NATO in 1949, while Sweden and Finland opted for policies of neutrality[14]. A previous attempt to form a Nordic defense union in 1948 had faltered amid these strategic divisions[14]. Throughout much of the Cold War period, defense and security remained notably absent from formal Nordic cooperation frameworks, despite significant informal collaboration occurring between the countries.

The Baltic states' regained independence in the early 1990s opened a new chapter in regional cooperation. In December 1990, the first Nordic-Baltic Foreign Ministers' meeting was held in Copenhagen, establishing what was initially called the "5+3" format (five Nordic countries plus three Baltic states)[13]. This collaboration was formalized in 2000 as the Nordic-Baltic Eight (NB8), an informal regional cooperation format encompassing Denmark, Estonia, Finland, Iceland, Latvia, Lithuania, Norway, and Sweden[13]. Initially, this cooperation featured active Nordic support to help the Baltic states consolidate their newly regained independence, but gradually evolved into a partnership among equals, becoming an exemplary model of regional integration[13].

The Russian annexation of Crimea in 2014 marked a pivotal turning point, triggering intensified security cooperation across the region. The previously established Nordic Defence Cooperation (NORDEFCO), formalized in 2008, received a significant boost as focus shifted decisively toward regional security[10]. The Nordic defense ministers agreed to cooperate in "peace, crisis and conflict," launching numerous initiatives aimed at improving shared regional situational awareness, facilitating military mobility, and increasing joint exercises[10].

The most transformative development came with Finland and Sweden's historic decisions to join NATO following Russia's full-scale invasion of Ukraine. By 2024, all eight Nordic-Baltic countries had become members of the same military alliance, creating unprecedented opportunities for integrated defense planning and cooperation[1][2][5].

## Institutional Frameworks for Regional Defense Cooperation

The Nordic-Baltic region benefits from several complementary institutional frameworks that facilitate defense and security cooperation at different levels and configurations.

### NORDEFCO: The Backbone of Nordic Military Cooperation

The Nordic Defence Cooperation (NORDEFCO), established in 2008, serves as the primary institutional framework for defense collaboration among Denmark, Finland, Iceland, Norway, and Sweden[11]. Its overall purpose is to strengthen the participating nations' national defense, explore common synergies, and facilitate efficient common solutions[11]. Unlike a command structure, NORDEFCO functions as a cooperation structure where activities are facilitated and agreed upon within the framework, but actual realization and participation remain national decisions[11].

The NORDEFCO structure encompasses both political and military cooperation levels. At the political level, Nordic defense ministers meet twice annually, with day-to-day work carried out by the Political Steering Committee (PSC) consisting of subcommittees on policy, operations, capabilities, and armaments[11]. At the military level, Chiefs of Defense also meet biannually, coordinating their efforts through the Military Coordination Committee (MCC)[11].

In recent years, NORDEFCO has gained momentum, particularly in air force cooperation. In March 2023, Nordic air chiefs signed a letter of intent agreeing to develop an integrated command and control structure within NATO, utilize each other's infrastructure for flexible deployment, conduct joint airspace surveillance, share logistics, and coordinate education, training, and exercises[10]. This integration has been facilitated by the nature of air forces and their broad geographical ranges, as well as the harmonization of equipment, with Denmark, Finland, and Norway all purchasing F-35 fighter aircraft[10].

### NB8: Bridging Nordic and Baltic Perspectives

The Nordic-Baltic Eight (NB8) provides a broader framework that includes all three Baltic states alongside the five Nordic countries[13]. Though less formalized than NORDEFCO, this cooperation format has evolved significantly since its inception. Following the 2004 EU and NATO enlargements that saw the Baltic states join both organizations, NB8 cooperation deepened considerably[13].

In 2010, at the initiative of the Baltic states, the Nordic and Baltic foreign ministers established a "wise-men" group to explore ways to strengthen Nordic-Baltic cooperation[13]. The resulting Birkavs-Gade report, approved in 2011, provided practical guidelines for regional development across multiple domains, including foreign policy dialogue, cooperation on EU matters, cooperation with neighboring countries, security issues, the United States and NATO, economic growth and prosperity, and energy[13].

### NORDEFCO-Baltic Cooperation: Building Regional Synergies

The Nordic countries have increasingly strengthened cooperation with their Baltic counterparts in the defense domain. By 2020, all NORDEFCO Cooperation Areas had established some degree of collaboration with Baltic colleagues, and Baltic representatives were integrated into several Working Groups[7]. A notable achievement of this cooperation was an agreement on exercise coordination between the Nordic and Baltic states in connection with NATO exercise planning[7].

To facilitate increased Nordic-Baltic defense cooperation, an additional annual meeting was added to the schedule, ensuring quick consultation on decisions made at the Nordic and Baltic Chiefs of Defense meetings[7]. This expanded framework has enabled more streamlined coordination across the entire Nordic-Baltic region.

## Key Areas of Defense Cooperation

Nordic-Baltic defense cooperation spans multiple domains and continues to evolve in response to changing security dynamics and emerging threats.

### Military Integration and Joint Exercises

Joint military exercises form a cornerstone of Nordic-Baltic defense cooperation, enhancing interoperability and building trust between armed forces. NATO exercises such as Steadfast Jazz and Norway's annual Cold Response provide opportunities for multinational training in the region[8]. The exercise Baltops, conducted by the United States since 1971, has been another important venue for naval cooperation in the Baltic Sea[10].

The integration of command structures represents another crucial aspect of military cooperation. Finland's request to establish a Forward Land Forces (FLF) formation and a Multi Corps Land Component Command under JFC Norfolk on Finnish territory has been approved by NATO allies, with Sweden agreeing to lead the Finnish FLF[10]. As NATO's Joint Force Command Norfolk achieves full operational capacity by the end of 2025, Finland and Sweden will be incorporated into defense plan North-West together with Denmark, Iceland, and Norway[10].

### Air Defense Coordination and Baltic Air Policing

Air defense coordination has emerged as a particularly promising area for Nordic-Baltic cooperation. Since 2004, NATO has conducted Baltic Air Policing missions to safeguard the airspace over Estonia, Latvia, and Lithuania, with allied nations rotating responsibility for this mission[8]. Deepening this cooperation, plans are now underway to potentially integrate Swedish and Finnish air forces into this framework[8].

In July 2024, the Nordic countries entered into an agreement to promote access to Denmark, Finland, Iceland, Norway, and Sweden's airspace for NATO's air operations, further enhancing regional air defense integration[15]. This cooperation is being facilitated by harmonized equipment procurement, with several Nordic countries operating or planning to operate the same fighter aircraft models[10].

### Critical Infrastructure Protection

The security of critical infrastructure, particularly undersea assets, has gained prominence in Nordic-Baltic defense cooperation. In January 2025, NATO launched the 'Baltic Sentry' initiative to strengthen the protection of critical infrastructure in the Baltic Sea region[3]. This initiative will enhance NATO's military presence in the Baltic Sea and improve allies' ability to respond to destabilizing acts targeting underwater infrastructure[3].

Baltic Sentry involves a range of assets, including frigates and maritime patrol aircraft, alongside the deployment of new technologies such as naval drones[3]. The program aims to integrate national surveillance assets to improve the capability to protect critical undersea infrastructure and respond effectively if required[3]. This initiative reflects growing concern about the vulnerability of underwater energy and communication cables to sabotage or other hostile actions.

### Countering Hybrid Threats

The Nordic-Baltic region has become increasingly focused on countering hybrid threats, including Russian sabotage and disinformation campaigns. The Nordic states have developed unique "total defense" and "comprehensive security" initiatives aimed at enhancing societal resilience against hostile measures and hybrid warfare[4]. These approaches are seen as complementary to a regional denial-based deterrence strategy[4].

Nordic countries are well-positioned to coordinate with their Baltic neighbors on defense technology, regional information sharing, and best practices for implementing total defense concepts[4]. By strengthening participation in European Union energy and infrastructure projects with the Baltic states, the Nordic countries can help "export" resilience to the greater Baltic Sea region, connecting infrastructure links among allies while decoupling from adversaries[4].

### Support for Ukraine

The Nordic-Baltic countries have been at the forefront of international support for Ukraine following Russia's full-scale invasion. In a joint statement issued in February 2025, Nordic-Baltic leaders described their countries as "some of the largest per-capita contributors of military assistance to Ukraine" and pledged to further bolster this support[9]. The statement emphasized that "Ukraine must be able to prevail against Russia's war of aggression, to ensure a just and lasting peace" and that "the outcome of the war will have fundamental and long-lasting effects on European and transatlantic security"[9].

In a sign of growing regional coordination in support of Ukraine, the Stoltenberg report commissioned in January 2025 specifically includes "unified effort in support of Ukraine" as one of its thematic areas[6]. This reflects a recognition that coordinated Nordic-Baltic assistance can maximize impact and efficiency in helping Ukraine defend its sovereignty.

## Recent Developments in Nordic-Baltic Security Cooperation

Recent months have seen significant advances in Nordic-Baltic defense cooperation, reflecting the rapidly evolving security environment in Northern Europe.

### The Stoltenberg Report Initiative

In January 2025, the Heads of State and Government of the Nordic and Baltic countries appointed former NATO Secretary General Jens Stoltenberg to prepare an independent report with policy recommendations aimed at advancing Nordic-Baltic security and defense cooperation[1][2][5]. This high-profile initiative underscores the region's commitment to deepening integration following Finland and Sweden's NATO accession.

The report will analyze and present recommendations on enhancing regional cooperation to strengthen deterrence and defense capabilities[1]. While focusing primarily on military defense, it will also address measures to counter Russian sabotage and other hybrid threats[1][2]. Scheduled for presentation ahead of the NATO Summit in The Hague in June 2025, the report is expected to provide a strategic roadmap for future Nordic-Baltic defense cooperation[1].

Swedish Prime Minister Ulf Kristersson emphasized the significance of this initiative, stating: "With the Nordic-Baltic region now fully integrated in NATO, we have an opportunity to advance our collaboration even further. Fully harnessing the new Nordic-Baltic potential for enhanced regional cooperation strengthens both the region and NATO as a whole"[1]. Jens Stoltenberg himself noted the historic nature of the current situation: "For the first time in history, all the Nordic and Baltic countries are members of the same military alliance. That brings new opportunities, and this report is an important initiative in order to deepen defence and security cooperation in our region"[1][2].

### NATO's Baltic Sentry Initiative

Another significant development came in January 2025 with NATO's launch of the 'Baltic Sentry' initiative to increase critical infrastructure security in the Baltic Sea region[3]. Announced by NATO Secretary General Mark Rutte at a Summit of Baltic Sea Allies in Helsinki, this initiative represents a concrete response to the growing threat to undersea infrastructure[3].

Baltic Sentry aims to enhance NATO's military presence in the Baltic Sea and improve allies' capacity to respond to destabilizing acts targeting critical infrastructure[3]. The initiative involves deploying frigates, maritime patrol aircraft, and new technologies including naval drones[3]. By integrating national surveillance assets, NATO seeks to build a more cohesive approach to protecting underwater energy and communication cables that are vital to regional security and prosperity.

### Bilateral and Multilateral Agreements

The Nordic-Baltic security architecture continues to be strengthened through bilateral and multilateral agreements. In November 2024, Sweden signed bilateral agreements on deepening defense cooperation with Lithuania and Poland, reflecting the expanding web of security partnerships in the region[12]. Similarly, in November 2024, Nordic defense ministers signed a joint Letter of Intent on expanded cooperation to develop strategic corridors for military transport in the Nordic region, addressing the critical need to improve military mobility[15].

The United States and the United Kingdom have also increased their footprints in the Nordic-Baltic region through bilateral Defense Cooperation Agreements (DCAs)[10]. These agreements enable investments in military facilities across the region and facilitate the rapid movement of equipment and personnel between allies, enhancing deterrence and responsiveness[10]. Regular deployments of U.S. strategic bombers to Europe, including missions over the Nordic-Baltic space often involving Nordic fighter jets, further demonstrate the integrated nature of deterrence in the region[10].

## Strategic Significance of Nordic-Baltic Cooperation

The deepening of Nordic-Baltic defense cooperation carries substantial strategic significance for European and transatlantic security, particularly in the context of an increasingly assertive Russia.

### Enhanced Regional Deterrence and Defense

The coordination of defense capabilities across the Nordic-Baltic region contributes significantly to deterrence against potential Russian aggression. By presenting a united front and integrating their military planning, the eight countries can maximize the effectiveness of their collective defense resources[6]. The tasking document for the Stoltenberg report explicitly states that recommendations should "contribute to increasing the threshold against an armed attack, strengthen deterrence and defence, counter Russian sabotage and other hybrid acts and operations"[6].

This enhanced regional deterrence is particularly important given Russia's significant military presence in its Western Military District and in the Kaliningrad exclave, which borders Lithuania and Poland. The Nordic-Baltic countries' coordinated approach to defense planning, exercises, and capabilities development serves to counterbalance this Russian military posture.

### Strengthening NATO's Northeastern Flank

With all Nordic and Baltic countries now NATO members, their cooperation strengthens the Alliance's northeastern flank substantially. As specified in the Stoltenberg report tasking, all recommendations should "aim to further NATO objectives and capabilities, making the Alliance stronger by increasing operational effect in the short to medium term"[6]. By integrating their defense planning within NATO structures, the Nordic-Baltic countries contribute to a more cohesive Alliance posture in Northern Europe.

The unique geographic position of the Nordic-Baltic region—spanning from the High North to the Baltic Sea—makes it a critical component of NATO's strategic calculus. Enhanced cooperation in the region helps address potential vulnerabilities and strengthens NATO's ability to respond to crises across this vast and strategically important area.

### Resilience Against Hybrid Threats

The Nordic-Baltic region has been at the forefront of efforts to counter hybrid threats, drawing on the Nordic tradition of "total defense" and comprehensive security approaches[4][10]. These concepts, which integrate military and civilian capabilities to enhance societal resilience, are particularly relevant in an era of multifaceted security challenges below the threshold of conventional warfare.

By sharing expertise and best practices in countering hybrid threats, the Nordic and Baltic countries can collectively strengthen their resilience against Russian information operations, cyber attacks, economic coercion, and sabotage[4]. This regional approach to resilience complements NATO's broader efforts to address hybrid threats and contributes to a more secure Euro-Atlantic area.

## Challenges and Future Prospects

Despite significant progress, Nordic-Baltic defense cooperation still faces several challenges that will need to be addressed to realize its full potential.

### Balancing Regional and NATO Frameworks

A key challenge lies in effectively aligning Nordic-Baltic cooperation with broader NATO structures and processes. While regional initiatives can enhance Alliance capabilities, care must be taken to ensure they complement rather than duplicate NATO efforts[10]. The Stoltenberg report is expected to address this challenge by recommending ways to integrate Nordic-Baltic cooperation within NATO's framework, ensuring that regional initiatives contribute to overall Alliance objectives[6].

As noted in the tasking document, all recommendations should "aim to further NATO objectives and capabilities, making the Alliance stronger by increasing operational effect in the short to medium term"[6]. This principle acknowledges the importance of maintaining coherence between regional and Alliance-wide defense planning.

### Resource Constraints and Prioritization

Despite increased defense spending across the region in recent years, resource constraints remain a challenge. The Nordic-Baltic countries must carefully prioritize their investments to maximize effectiveness within limited budgets. Joint procurement and shared capabilities offer potential solutions, allowing countries to pool resources and achieve greater collective impact[10][11].

The NORDEFCO framework, with its focus on exploring common synergies and facilitating efficient common solutions, provides a useful platform for addressing these resource challenges[11]. By identifying areas where cooperation can yield cost savings or capability improvements, the Nordic-Baltic countries can optimize their defense investments.

### Enhancing Infrastructure and Military Mobility

Improving military mobility across the Nordic-Baltic region remains a critical challenge. New or strengthened lines of communication—including harbors, railways, and roads—are needed between Norway, Sweden, and Finland to facilitate rapid reinforcement in crisis situations[10]. Addressing this challenge requires close coordination between countries, their militaries, civilian agencies, and the private sector.

The Nordic defense ministers' signing of a joint Letter of Intent on expanded cooperation to develop strategic corridors for military transport in November 2024 represents an important step toward addressing this challenge[15]. By enhancing infrastructure and streamlining cross-border procedures, the Nordic-Baltic countries can significantly improve their collective defense capabilities.

## Conclusion

Nordic-Baltic defense cooperation has entered a new and promising phase following Finland and Sweden's NATO accession, creating unprecedented opportunities for regional integration within the Alliance framework. The appointment of former NATO Secretary General Jens Stoltenberg to prepare recommendations for advancing this cooperation signals the region's commitment to harnessing these new possibilities[1][2][5].

The evolving security environment, characterized by Russia's aggressive actions and multifaceted threats, has accelerated cooperation across multiple domains, from joint military planning and exercises to critical infrastructure protection and countering hybrid warfare[3][4]. Through frameworks like NORDEFCO and NB8, alongside bilateral arrangements and NATO structures, the Nordic-Baltic countries are building a more cohesive regional security architecture[7][11][13].

Looking ahead, the Stoltenberg report expected in June 2025 will likely provide a strategic roadmap for deepening Nordic-Baltic defense cooperation[1][2]. By addressing challenges related to resource constraints, infrastructure limitations, and integration with NATO structures, the region can further enhance its collective deterrence and defense capabilities[6][10]. As Prime Minister Kristersson noted, "Fully harnessing the new Nordic-Baltic potential for enhanced regional cooperation strengthens both the region and NATO as a whole"[1].

In a world of increasing geopolitical competition and complex security challenges, the Nordic-Baltic region stands as an exemplar of effective regional cooperation. Through continued coordination and integration, these eight countries are positioning themselves not only to safeguard their own security but also to make a significant contribution to Euro-Atlantic stability and defense.

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