Foreign and Security Policy Strategy 2019-2020 - NOVEMBER 2018 - DSN
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Foreign and
Security Policy
Strategy
2019-2020
NOVEMBER 2018Foreign and Security Policy Strategy 3
Content
Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Rules-based international order . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Europe – a strong, streamlined and effective EU . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Refugees, migration and development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Economic diplomacy, strategic partnerships and the new digital world order . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
The Arctic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25Increased trade, communication, technology and transportation around the world are bringing more and better opportunities for people everywhere. We are progressing towards living conditions that our grandparents and those before them never could have imagined.
Foreign and Security Policy Strategy 5
Preface
The world today is in a much better place than The Government wants Denmark to maintain
ever before. its European and global engagement. We must
uphold the principle that binding international
Life expectancy is rising, infant mortality is declin- cooperation is in the interest of Denmark and
ing, and fewer and fewer people live in abject provides the best conditions for peace, prosperity
poverty. and sustainable development. We must lead the
fight against man-made climate change with
Increased trade, communication, technology and national climate and energy initiatives, ambitious
transportation around the world are bringing EU goals, and international efforts. At the same
more and better opportunities for people every- time, we must contribute to achieving the 17
where. We are progressing towards living condi- Sustainable Development Goals.
tions that our grandparents and those before them
never could have imagined. We must fight for our liberal values and pro-
tect principles of freedom: a world with more
This also goes for Denmark, which is one of the democracy and freedom, including more freedom
most free, prosperous and safe societies in the of expression, freedom of assembly, freedom of
world. religion and more public order. We must take
measures to counteract external influences and
Danish foreign policy aims to maintain this pro- insist on the right of countries to self-determi-
gress while upholding Denmark’s security, pros- nation. We must ensure that globalisation and
perity and values in a rapidly changing world. technological advances benefit as many people as
possible. And we must create the best framework
But this progress will not happen on its own, and for Danish businesses to seize the opportunities
we face many challenges along the way. arising from international changes.
The world is becoming increasingly unpredictable. The framework for Danish foreign and security
Global power relations are shifting. The value of policy requires constant prioritisation. However,
rules-based international cooperation – which foreign and security policy results also require
guarantees Denmark’s security, prosperity sustained efforts and strong continuity. The
and values – is increasingly being brought into Government’s Foreign and Security Policy Strategy
question. 2019-2020 does not propose a change of course,
but instead comprises a series of concrete initia-
With this Foreign and Security Policy Strategy tives and focus areas that align with the guiding
2019-2020, the Government presents its plans for principles and aims of the Government’s Foreign
protecting Denmark and pursuing Danish interests and Security Policy Strategy 2017-2018.
in a changing world order.6 Foreign and Security Policy Strategy
Introduction
Now and in the years to come, Denmark will have uphold and promote our liberal values. Therefore,
to navigate in an increasingly challenging foreign we will engage even more in binding international
and security policy environment. The world cooperation and work to reform the international
around us is changing faster and is becoming more institutions to bolster their strength and legitimacy.
unpredictable. Russia is threatening its neigh-
bouring countries and employing various means Our EU membership represents Denmark’s best
to undermine the European security architecture opportunity to influence the world around us and
and our democratic processes. China is stepping thus the framework conditions of importance for
forward on the global scene with ever greater self- pursuing Danish interests in Europe and globally.
confidence, economic strength and demands for The EU’s Free Trade Agreements create opportu-
more influence. The United States of America (US) nities for Danish companies that we would not be
is putting “America First”, raising doubts about its able to create on our own. At the same time, the EU
global leadership and its willingness to defend the is a community of countries that share the same
world order that it was instrumental in building. fundamental values, thereby giving Denmark a
The crises in Europe’s neighbouring regions have voice when it comes to addressing major interna-
taken a firm hold. The destabilising conduct of tional challenges. With Brexit, Denmark loses an
regional actors, including Iran, continues, and important ally in the EU. Denmark and The United
recent events clearly demonstrate its impact within Kingdom (UK) share many of the same interests
Europe and directly on Danish soil. Thanks to and values. The Government wants an agreement
targeted efforts, fewer asylum seekers and irregular that will enable us to compete on equal condi-
migrants are coming to Europe and Denmark. tions, and ensure as close and effective cooperation
Still, we need to take measures to address the root with the UK as possible after their exit. However,
causes of irregular migration; otherwise, migration we must also ensure that an exit agreement and
pressures – particularly from Africa and the Middle an agreement on the future relationship do not
East – will increase in the coming decades. undermine the single market and thereby Danish
interests.
These developments place great demands on
Denmark’s foreign and security policy. Small, The Government will continue targeted efforts to
highly developed countries like Denmark stand to reform the EU from within and ensure a strong,
lose the most if the strongest countries make deci- streamlined and effective EU that delivers tangible
sions without consulting or considering others. The results for the benefit of citizens, and which creates
international order that has shaped the world in growth, ensures free trade, fights climate change,
recent decades can no longer be taken for granted. increases citizens’ security, and effectively tackles
The common idea that human rights and democ- the challenges of migration. External pressures
racy must prevail because they are noble and good are causing the EU member states to draw closer
is being challenged. Denmark is deeply dependent together. Many aspects of the cooperation are rap-
on other countries when it comes to our economy idly developing, including in the areas of defence,
and security. We must strengthen the international law and the EMU. Due to the Danish opt-outs,
rules that protect our country and ensure that we Denmark is not participating in the development
can pursue Danish interests. And we must fight to of cooperation in these areas.Foreign and Security Policy Strategy 7
The international order the UN’s target of 0.7% of GNI in annual official
development assistance. We take care of Denmark
that has shaped the world in when we take care of the world, and we can help
many more people when we help them in their
recent decades can no longer
local regions.
Man-made climate change is one of the greatest
be taken for granted. challenges facing the world. But it is a challenge
that we can manage – not by stopping growth and
development, but by ensuring more sustainable
growth and development, including through new
technologies and innovation.
The Sustainable Development Goals are key
to Denmark’s foreign and development policy,
providing an ambitious and global framework
NATO and the strong transatlantic ties between between now and 2030. If the goals are not met,
Denmark and the US are crucial for our security. many young people in developing countries will
We must therefore work actively to maintain become part of the challenge rather than part of
American engagement in Europe through NATO. the solution. Meeting these goals will require inno-
This requires that we intensify our cooperation vative efforts, new partnerships, and an engaged
across Europe and that we invest more in our business community. Therefore, Denmark has
common security. Strengthening the EU’s ability taken the lead with the new global initiative, P4G
to handle security challenges in Europe’s neigh- – “Partnering for Green Growth and the Global
bouring region will be a significant contribution Goals 2030”. Denmark has also made significant
to transatlantic burden-sharing. In this respect, contributions towards reforming the UN’s devel-
Denmark’s opt-out concerning the Common opment system.
Security and Defence Policy is a significant obstacle
to our contribution. With the ambitious Danish Global development offers many opportunities
Defence Agreement, we increase our defence that we should seize. Important tools in this
expenditures by 20%. Among other measures, respect include execution of the Government’s
we will strengthen our contribution to NATO’s strategy for economic diplomacy, continued
collective deterrence of Russia, we will establish a strengthening and development of strategic part-
division headquarters in the Baltics, we will inten- nerships, and strategic sector cooperation.
sify our international efforts, and we will provide
offensive cyber capabilities for use by NATO. Given The new digital world order is rapidly developing.
the continuously changing landscape of threats, Denmark has a strong foundation for becoming
we must expect sustained pressure to further one of the most innovative societies in the world.
increase defence expenditures. The Danish innovation centres and TechPlomacy
initiative provide Denmark with a unique basis for
The Government has implemented a strict immi- participating in defining the norms of the digital
gration policy, which, combined with measures world order.
through the EU and other bodies, has reduced
refugee and migration pressures. Based on a quid A key priority for the Kingdom of Denmark is
pro quo principle, the Government will prioritise ensuring peaceful and sustainable economic
additional resources for efforts in the countries development in the Arctic. Climate change and
of transit and origin that strengthen their border melting sea ice present serious challenges but also
management and increase return and readmission introduce economic opportunities. The situation
of irregular migrants. Concurrent efforts will be entails security policy risks as well. We must con-
made to address the root causes of irregular migra- tinue to develop the international cooperation in
tion. To diminish the desire of a growing popula- the Arctic based on the Danish Realm, the Arctic
tion of young Africans to move towards Europe, Council, and the cooperation between the Arctic
concrete opportunities and hope for the future is coastal states. Both Greenland and the Faroe
needed in their own countries. These opportuni- Islands desire greater insight into and involvement
ties can only be created through economic growth in the foreign and security policy. This places new
and jobs, free trade, liberty and political influence. demands on our cooperation within the Danish
Denmark is a significant player in the field of Realm, and the Government emphasises the
international development cooperation, and is importance of good dialogue with Greenland and
one of just five countries in the world that meet the Faroe Islands in this respect.8 Foreign and Security Policy Strategy
Rules-based
international
order
The Government believes that it is clearly in Global leadership
The US is increasingly questioning the value of the
Denmark’s national interest to strengthen international organisations and agreements that it
rules-based international cooperation. has been instrumental in establishing since World
War II. The US is withdrawing from its position of
Therefore, Denmark must continue to engage in global leadership in more and more respects. This
international efforts and fight for human rights, includes withdrawals from the Paris Agreement,
the Iran Nuclear Agreement, and the UN Human
the basic rule of law, and international solutions. Rights Council, the introduction of US tariffs on
steel and aluminium from the EU, and the termi-
nation of funding to international organisations
that provide information about or work directly
The Government believes that as a small, open with abortion (the Global Gag Rule).
and globally-oriented democracy, Denmark has
an obvious self-interest in further developing and The Government has expressed Denmark’s dis-
strengthening the rules-based international order agreement with these decisions. But at the same
and multilateral cooperation. The international time, the Government fully supports continued US
rules of the game ensure that small and large leadership in a number of other areas, including in
countries can peacefully co-exist – and that each the fight against ISIL.
country is free to choose its own future. These
rules create a better framework for international American global leadership is in Denmark’s
trade, and they oblige countries to respect human national interest and crucial to rules-based inter-
rights and democratic principles. national cooperation. We must therefore intensify
our commitment to maintaining US global leader-
Binding cooperation in international organisa- ship and to promoting an American understand-
tions, such as the EU, NATO, the UN, the WTO, the ing that the international rules-based order is also
Council of Europe, the OECD and the OSCE, is cru- in the interest of the US. In the vital area of trade,
cial to the world’s ability to find common answers the Government will initiate a process, primarily
to international challenges like migration, climate driven by the private sector and with the involve-
change and terrorism. The Government wants to ment of transatlantic stakeholders, to explore the
further develop this cooperation, for example by possibility of drafting an international set of rules
reforming the organisations where necessary, in specifically governing e-commerce.
order for us to continue to solve global challenges
together. Therefore, Denmark is also significantly China’s power, economic strength and ambitions
involved in the current process of reforming the are growing. The country is gaining ever greater
UN system. influence on global norms and values, and it
will make a major impact on the future of the
But the rules-based international order is under world. On the one hand, Denmark and Danish
pressure. companies have an interest in engaging with the
growing Chinese market. On the other hand, weForeign and Security Policy Strategy 9
Binding cooperation in international
organisations is crucial to the world’s ability
to find common answers to international
challenges like migration, climate change
and terrorism.
must remain aware that our societal models and and popular support, giving it a clearer line for the
approaches to international cooperation and free defence of human rights.
trade are very different, and that we must continue
the dialogue on human rights and other issues. Green multilateralism
Fighting climate change requires clear interna-
While Russia has maintained its aggressive con- tional frameworks and common solutions. The
duct, we have witnessed a divided UN Security Government firmly supports the implementation
Council that has proven unable to take action as of the Paris Agreement. And we are doing even
the conflicts in Syria and Yemen continue with more. In October 2018, Denmark hosted the first
massive humanitarian consequences. Prioritising P4G Summit – “Partnering for Green Growth and
efforts to ensure that Denmark lifts its share of the Global Goals 2030”. The P4G initiative brings
the responsibility, the Government will increase together representatives from the public sector, the
support for the UN’s security policy and conflict business community, international organisations
prevention efforts. and civil society to discuss and adopt innovative,
market-driven solutions within circular economy,
Defence of liberal values water, energy, and food and agriculture. We must
Democratic principles are being challenged continue to catalyse the sustainable development
around the world, and in many countries, the of the global economy through technology and
divide between democracy and dictatorship is innovative solutions. Therefore, the Government
moving in the wrong direction. Human rights, will appoint a special envoy for climate and energy
civil society, religious minorities, journalists and to support Denmark’s efforts in connection with
human rights advocates are under increasing pres- the UN Secretary-General’s Climate Summit in
sure. Women’s rights are being suppressed, and September 2019 by showcasing Danish solutions,
people are being persecuted for their sexuality. public-private partnerships and Denmark’s high
A growing number of countries are questioning profile on the investment agenda. This special
whether basic human rights are universal or envoy will also perform a similar role in con-
simply a “western project”. The fundamental rule nection with follow-up activities relating to the
of law is also being challenged within the EU. Climate Summit and P4G.
We must fight to protect and advance our liberal
values. Therefore, the Government will strengthen
efforts to secure Danish influence in international
organisations by improving efforts on behalf of
Danish candidatures. Denmark’s membership of
the UN Human Rights Council during the period
2019-2021 will be used to actively promote our
values. The Council does not always function opti-
mally. However, the Government wants Denmark
to enter the Council with the clear ambition of
influencing, changing and reforming the Council
in order to strengthen its legitimacy, credibility10 Foreign and Security Policy Strategy
Initiatives and areas of focus
in 2019-2020
• The Government will establish a process driven • The Government will increase the spread of
primarily by the private sector, including trans sustainable solutions through the P4G initiative,
atlantic stakeholders, to explore the potential including the allocation of DKK 55 million annu-
for drafting an international set of rules for ally in the 2019 Finance Bill to promote concrete
e-commerce. This initiative will be marked with public-private partnerships and contribute to a
an international conference. gradual expansion of the group of P4G partners.
• The Government will strengthen the interna • The Government also allocates an additional
tional community’s capacity to respond to DKK 60 million in the 2019 Finance Bill to
armed conflicts by increasing the Danish promote reforms proposed by UN Secretary-
contribution to the UN’s peacekeeping and General Guterres to strengthen and improve
conflict prevention efforts. the efficiency of the UN.
• The Government will achieve greater Danish • The Government will appoint a special envoy
influence in international organisations through for climate and energy, who will support
a coordinated effort for Danish candidatures, Denmark’s engagement in connection with
including the establishment of a clearinghouse the UN Secretary-General’s Climate Summit in
and a digital platform that support inter- September 2019 and related follow-up activities.
ministerial coordination and targeted efforts.
• Based on Denmark’s membership of the UN
Human Rights Council, the Government will
defend liberal values – such as basic rule of law,
freedom of religion and beliefs, women’s rights,
and freedom of expression – and promote
political freedoms for human rights advocates.Foreign and Security Policy Strategy 11
Security
The Government is deeply concerned about the security interests, and it is essential to maintain
the American engagement in Europe through
increasing threats posed by an aggressive Russia, NATO. This requires that Europeans invest more
the ongoing threat of terror, instability in the in their own security and intensify cooperation
across Europe, and we must reach out to the US
Middle East, and recent cyber-attacks. Therefore, to create a closer dialogue on matters relating
the Government intends to strengthen security to Danish and European security policy. NATO
contributions from European allies are increasing.
policy engagement with Denmark’s close allies So is Denmark’s contribution. Our actions show
across the Atlantic and in Europe. that we are prepared to defend ourselves and our
allies. The ambitious Defence Agreement increases
defence spending by 20%.
The complex threats have taken root. In our The Wales Declaration from the 2014 NATO
neighbourhood region, Russia continues its Summit obliges member states to work towards
aggressive behaviour. Terror and instability allocating 2% of GDP to defence by 2024. A large
continue to spring from large parts of the Middle number of allies will do so by 2024. Furthermore,
East, Afghanistan, North Africa and the Sahel. Iran like-minded countries, whose spending has
remains a destabilising regional actor, exhibiting been similar to Danish levels, will increase their
unacceptable conduct in Europa and Denmark. defence spending. Therefore, we should expect
Meanwhile, the cyber threat remains extremely that pressure to increase our defence spending
high, and as one of the world’s most digitised will continue.
countries, Denmark is particularly vulnerable.
These extensive threats place great demands The security situation in the Baltic Sea region
on Denmark. and in the North Atlantic plays a central role in
the security of Denmark. The Danish Defence
We cannot solve the challenges alone, and we Agreement provides for the establishment of a
cannot expect assistance without also contribut- deployable brigade, regional air defence, and
ing and taking responsibility in NATO, the UN, anti-submarine weapons, all of which serve to
or international coalitions – be it in the Baltics, establish credible deterrence. The Government has
Iraq, Afghanistan or Mali. We must do our part to resolved to send a renewed Danish contribution in
ensure that NATO remains the strongest defence 2020 to NATO’s Enhanced Forward Presence in the
alliance in the world, as unity and solidarity across Baltics, and we will collaborate with close allies
the Atlantic remains essential to our security. to establish a new NATO Division Headquarters
in Latvia. The Government also supports NATO’s
NATO and the transatlantic cooperation intensified focus on the North Atlantic.
The US is Denmark’s most important security
policy ally, and the guarantor of our security
through NATO. The transatlantic ties form
the cornerstone of efforts to protect Danish12 Foreign and Security Policy Strategy
The transatlantic ties form the cornerstone
of efforts to protect Danish security interests,
and it is essential to maintain the American
engagement in Europe through NATO.
This requires that Europeans invest more in
their own security and intensify cooperation
across Europe.
New challenges require a strong in Europe’s neighbouring regions is seen as a
European commitment significant contribution towards transatlantic
NATO is not alone in reacting to the intensified burden-sharing. The Government supports this
threats. In response to the more unpredictable ambition. We must be prepared to participate in
security situation in and around Europe, the EU the debate on the challenges caused by our opt-out
has significantly strengthened its security and concerning the Common Security and Defence
defence cooperation in recent years. The EU plays Policy, and about how we can ensure Danish influ-
an important role when it comes to preventive ence and benefit from the ongoing developments.
and stabilising efforts in regions such as the Middle This debate should be conducted on an informed
East and Africa. Denmark’s opt-out concerning the basis. Therefore, the Government will commission
Common Security and Defence Policy prevents us an external report on developments in the EU’s
from contributing to the EU’s military stabilisation security and defence policy cooperation and what
efforts, and, as a general rule, efforts involving these developments mean for Denmark. We must
military and civilian elements within the same also strengthen the alliances across Europe, such as
framework. This complicates Denmark’s ability through our active participation in the French-led
to make effective contributions to long-term European Intervention Initiative (EI2).
stabilisation efforts in areas of great importance to
Denmark’s security. Denmark participates in the Our neighbouring region to the east
EU’s new Defence Fund, which ensures funding The assessment continues to be that Russia has no
for research and development, enabling Europe interest in risking a military confrontation with
to keep up with technological developments and NATO, but more than four years after the illegal
to get more from these investments. However, annexation of Crimea, the country continues
Denmark is outside of the more binding PESCO its aggression in eastern Ukraine. Russia has not
cooperation, in which a number of EU countries changed its aggressive conduct in the Baltic Sea
jointly develop and trade defence equipment – region, and it is clear that the political leadership
this is not in Denmark’s interests. in Russia wants a different Europe than the Europe
built through cooperation after the fall of the
In Europe and across the Atlantic, strengthening Berlin Wall.
the EU’s ability to handle the security challengesForeign and Security Policy Strategy 13
The list of unacceptable actions is long: the ille- regarding responsible state behaviour in cyber-
gal annexation of Crimea, aggression in eastern space. This increases the risk of misunderstandings
Ukraine, the nerve agent attack in Salisbury, and escalation.
cyber-attacks against public authorities and com-
panies, threatening rhetoric and military exercises, As one of the world’s most digitised countries,
resistance to arms control, interference in elec- Denmark is particularly vulnerable. We have a
tions and campaigns of influence that threaten clear interest in a secure, free and open global
our democratic processes. All means are being IT infrastructure based on common rules and
deployed to undermine the European security cooperation, with the involvement of both states
architecture and the democratic principles. This and tech companies. Therefore, in connection with
is a serious situation. the Danish Defence Agreement and the Danish
Cyber and Information Security Strategy, the
At the global level, Russia stands in opposition Government has allocated approximately DKK 1.5
to the rules-based world order. Multilateral billion to a wide range of initiatives. Key elements
organisations and bodies are used by Russia more of this effort include improving the ability of the
for obstructive purposes than for constructive Centre for Cyber Security to monitor threats and
cooperation. The questionable Russian compli- advise on countermeasures, and to strengthen
ance with the ban on land-based intermediate Denmark’s involvement in the international
missiles (the INF Treaty) is a matter of significant cooperation for cyber security. There will be a
concern. The potential collapse of this treaty can continuous focus on threat assessments in order
have far-reaching consequences for European and to determine the need for new measures.
thereby Danish security. Therefore, all options
must be pursued to ensure Russia’s compliance Terrorism and instability
and the survival of the treaty. At the same time, Despite significant progress in recent years, the
the Government understands that it can be threat of terror against Denmark and Europe
difficult for the US to be part of a treaty that remains serious. This threat is especially associated
is not respected by the counterparty. In Syria, with ISIL in Syria and Iraq, but it also has ties to
Russia supports a regime that has rejected the conflict and instability in the Middle East, North
laws of war and uses chemical weapons against Africa, the Horn of Africa, the Sahel, Afghanistan
its own population. and parts of Southeast Asia. Thanks to the effective
efforts of the Coalition, including extensive civilian
Russia must not succeed in splitting the interna- and military contributions from Denmark, ISIL
tional unity in Europe and across the Atlantic. has lost almost all physical control of areas in Syria
The EU and NATO must continue to play an and Iraq. But ISIL and other terrorist organisations
important role in this respect. We maintain maintain the ability to inspire, support and plan
Denmark’s strong support for the EU’s economic terrorist attacks. Therefore, the Government will
sanctions against Russia, which are tied to a continue its efforts against terrorism and the insta-
peaceful resolution of the conflict in Ukraine in bility that provides fertile ground for terrorists,
accordance with the Minsk Protocol. At the same including military contributions, as well as inte-
time, the Government maintains its dual-track grated and preventive initiatives under the aus-
approach to Russia, on the one hand building pices of NATO, the UN or international coalitions.
a credible capacity to deter and defend against
unacceptable actions, and on the other hand Investment screening
advocating dialogue when it is in our interests – Denmark is dependent on both exports and
for instance, in relation to maintaining the Arctic investments. Therefore, we welcome foreign
as a low-tension area. investments. But we must not be naive. In certain
cases, foreign investments may be problematic
Cyber security in terms of security and public order. Examples
The cyber threat is very high and constantly include investments in critical infrastructure by an
evolving. The threat derives especially from for- investor with close ties to a foreign state. We need
eign states, but also stems from criminal groups to make sure we have the tools in place to handle
and other non-state actors with growing access these situations. Within the EU, we are involved in
to advanced hacking tools. Many countries seek the work to establish a joint framework for screen-
to achieve political objectives through the use of ing of foreign direct investments (FDI) that may
cyber tools, such as cyber attacks, disinformation constitute a risk. The Government is also further
and cyber espionage. According to the Danish exploring the possibilities for national screening of
Defence Intelligence Service, Russia, China, Iran foreign investments in Denmark. The Faroe Islands
and North Korea are among the most active and Greenland are taking part in these efforts.
states. There is a lack of common understanding14 Foreign and Security Policy Strategy
Initiatives and areas of focus
in 2019-2020
• The Government will commission an external • The Government will, based on the Danish
report on developments in EU security and Defence Agreement and the Danish Cyber and
defence policy, and what these developments Information Security Strategy, significantly
mean for Denmark. strengthen Denmark’s digital security and
increase Denmark’s engagement in the interna-
• The Government will, in accordance with the tional cooperation for cyber security.
Danish Defence Agreement, promote security
policy cooperation with the countries around • The Government will strengthen efforts against
the Baltic Sea, and strengthen Denmark’s focus foreign influence campaigns that threaten
on security in the Baltic Sea region through Danish values and interests through the
increased contributions to collective defence implementation of the Inter-ministerial Action
in NATO. Plan, Danish membership of the NATO Strategic
Communications Centre of Excellence, and
• The Government will, through the Danish collaboration with tech companies.
Defence Agreement, improve Denmark’s ability
to participate in international operations with • The Government will establish a defence policy
new and strengthened capacities, as well as advisory group that will contribute to advancing
a 50% increase in funding for international Denmark’s commercial and research interests
operations. relating to the EU’s new Defence Fund.
• The Government will, through the Peace and • The Government will investigate the possibility
Stabilisation Fund, allocate an additional DKK of establishing a screening mechanism for
118 million to strengthen peace and stabili- strengthening controls on foreign investments
sation efforts, including measures to prevent that may pose a risk to national security and
radicalisation, terrorism and irregular migration. public order.
Furthermore, the Government will launch new
peace and stabilisation programmes for Syria-
Iraq, the Sahel, Ukraine, Afghanistan, the Horn of
Africa, and the Gulf of Guinea.Foreign and Security Policy Strategy 15
Europe – a strong,
streamlined and
effective EU
The Government wants a strong, streamlined, DKK 100 billion higher than if we were not part
of the single market. Through the EU’s free trade
and effective EU that delivers tangible results for agreements, Denmark has privileged access to a
the benefit of its citizens. A modern EU budget wide range of markets around the world.
must focus on the areas where the EU provides Denmark benefits greatly from the European coop-
the greatest added value, e.g. migration, research, eration. But in some areas, EU rules, interpretation
of conventions, and court practices go too far. For
climate and energy. We must further develop the instance, when the freedom of movement is abused,
single market and maintain an ambitious free and when access to Danish welfare benefits seems
unfairly easy. This risks undermining support of the
trade agenda. At the same time, there must be European cooperation among the Danish people.
fairness in the access to welfare benefits.
The Government will continue the focused efforts
to ensure a strong, streamlined and effective EU that
A secure and stable Europe is crucial for a secure delivers tangible results for the benefit of citizens
and prosperous Denmark. For better and for worse, and businesses. We must maintain that the EU’s
our situation is closely tied to developments in the core task is to deal with cross-border matters that
other European countries around us. EU member- the member states cannot solve on their own. The
ship remains the best opportunity for Denmark Government will work for fairness in the rules and
to pursue Danish interests internationally – not to prevent abuse of the freedom of movement.
least in a time when the global order is changing. We must strengthen the cooperation in areas that
Therefore, Denmark has a clear self-interest in provide added value, e.g. by further developing the
actively contributing to ensuring a dynamic EU single market – not least in areas where future jobs
with global clout and the ability to deliver credible are created – such as the green and digital economy.
solutions to migration challenges and trade con-
flicts, and which can form a common front when We must secure Europe’s external borders to
foreign powers attempt to exert influence on our prevent a new migrant crisis. And we must take
democracies. And although we do not always agree the lead as a united EU to protect and advance
with every EU member state on everything, it is liberal values in a time of uncertainty about global
within the EU and the Nordic region that Denmark leadership. The EU is the best way to ensure that
finds its closest community of shared values. Denmark and Europe have a voice when challenges
to free trade and human rights arise, or when global
The EU is the world’s largest economy, and the answers to major international challenges such
single market is the world’s most advanced free as air and climate issues and circular economy are
trade area, where goods and services are freely formulated. These are areas of strong Danish exper-
exchanged according to one set of rules instead tise, and where a common EU approach and a level
of 28. We benefit greatly from this market – more playing field form the foundation for Denmark’s
than a half-million Danish jobs are directly linked ability to realise our own ambitious goals and to
to it, and Denmark’s GDP is estimated to be up to attain the UN’s 17 Sustainable Development Goals.16 Foreign and Security Policy Strategy
EU membership remains the partner in dealing with migration challenges, a key
regional player, and a member of NATO.
best opportunity for Denmark The Government will also increase the political
to pursue Danish interests
focus on ensuring that the EU does not create
expectations of admitting new member states
before they and the EU are ready for such
internationally – not least in admission. At the same time, we will stand with
like-minded countries in insisting that basic
a time when the global order democratic rule of law must be respected and
upheld by all member states.
is changing. The future of the EU
To future-proof the EU cooperation and to
meet our common goals, the EU budget must
The EU must continue to serve as a global be modernised and more focused. This must be
example, e.g. by continuing the successful efforts achieved within a responsible fiscal framework
of recent years to reach ambitious free trade with fair burden sharing between Member States.
agreements with countries from all parts of the Therefore, spending in traditional policy areas
world. This creates growth and jobs in Europe and must be reduced so resources can be used where
Denmark – and it increases our influence globally. they make a real difference, and where the EU
But the EU must also avoid naivety and ensure an offers the greatest added value, e.g. on areas such
appropriate balance between open markets and as migration, research, climate and energy. The
equal trade conditions. This also applies in relation Government will strengthen its efforts to ensure a
to the negotiations on the UK’s future relations responsible and fair EU budget for 2021-2027.
to the EU, where the Government will continue
its dedicated efforts to ensure a fair and balanced As a follow-up to the most recent financial crisis,
solution that best serves Danish interests. the EU has implemented stronger financial
regulation to prevent and be better prepared for
European unity future crises. Stricter requirements have been put
Europe is under pressure on many fronts. There is in place in relation to capital and liquidity, and
continued pressure at the southern borders. Our financial businesses are now subject to increased
neighbouring regions are marked by instability, supervision. These stricter policies apply for all EU
and the actions of Russia in particular are cause countries. At the same time, a stronger bank coop-
for growing concern. Recently, the EU has also eration (the banking union) has been established.
faced challenges relating to the waning support Only Eurozone countries are presently members
of the US for multilateral organisations and free of this cooperation, but non-Eurozone countries
trade. Meanwhile, the EU is experiencing a range are also able to participate. The Government has
of internal disagreements on important issues appointed a working group and intends to make a
such as migration, economic policy and basic rule decision in the autumn of 2019 regarding Danish
of law. And although Brexit has not resulted in participation in the stronger bank cooperation.
the collapse of the EU that many had feared, it has
demonstrated that we cannot take EU cooperation Denmark’s voice is heard in Europe, but not
for granted. We must work to keep the EU united without effort. Therefore, we must do more to
and to avoid harmful tensions so that we are able actively seek influence and move the cooperation
to deal with cross-border issues. in our direction. With the exit of the UK, we lose
a close political ally. Therefore, the Government
It is important that we protect and uphold the EU’s will intensify active efforts to build new alliances.
cohesion. The EU has made important and positive This applies in relation to the other member states,
contributions to stability in Europe by admitting where the Government has already strengthened
new members. However, we do not want further a number of key embassies. It will also apply
expansions if they risk undermining the Union. in relation to the representatives elected to the
There must be no doubt that democracy, the rule of European Parliament in May 2019, and among the
law, fundamental freedoms and a well-functioning new commissioners in the European Commission.
market economy are essential prerequisites for At the same time, based on the Government’s
membership. Therefore, the Government has clearly action plan of December 2017, we will strengthen
stated that there are no grounds for continuing efforts to increase the number of Danes employed
accession negotiations with Turkey. This does not in EU institutions.
change the fact that Turkey remains an importantForeign and Security Policy Strategy 17
Initiatives and areas of focus
in 2019-2020
• The Government will continue the strength- • The Government will continue to make it a high
ened efforts to protect and pursue Denmark’s priority to ensure fairness in the EU’s rules on
interests in the decisive phase of negotiations social benefits.
with the UK on its exit from the EU, and in the
negotiations on the future relations between • Through targeted efforts, the Government
the EU and the UK. will work to maintain the ambitious free trade
agenda in the EU, with the aim of achieving new
• The Government will strengthen its efforts to free trade agreements and ensuring open and
ensure a responsible expenditure level of the equal trading conditions.
EU budget, with a fair burden-sharing between
member states, and in which cross-border
issues such as migration, climate and growth-
generating initiatives are prioritised within a
frugal framework. The Government will work
actively to increase the number of Danes
employed in EU institutions to ensure Danish
insight and influence.18 Foreign and Security Policy Strategy
Refugees, migration
and development
The Government wants to help more refugees include the readmission of countries’ own citizens,
which with the migration compact is now interna-
in their local regions and minimise the number tionally recognised as an obligation of the state.
of irregular migrants to Europe as much as
Refugees must be helped in their local regions
possible. We will do this with national initiatives, We are able to help considerably more refugees
cooperation within the EU to secure external and displaced persons when we assist in the areas
and countries neighbouring conflict and crisis.
borders and develop a new asylum system, And we can avoid secondary refugee flows, as
and with an intensified effort to address the those in 2015 from Syria’s neighbouring countries,
by ensuring that refugees and internally displaced
root causes of irregular migration. persons can live safe and dignified lives in the
areas and countries neighbouring the conflict or
crisis, based on a combination of humanitarian
Refugees and migration assistance, peacebuilding, and more long-term
Irregular migration and the challenge of providing development initiatives. With the Finance Bill for
sustainable solutions for the world’s refugees serve 2019, the Government proposes a historically high
as a reminder that no country is isolated from level of humanitarian assistance, putting Denmark
developments in the surrounding world. We saw at the global forefront.
this first-hand in the autumn of 2015, when the
world was on our doorstep. Organised human trafficking must be combated
Organised human trafficking plays a significant
Since the Government’s first Foreign and Security role in the number of irregular migrants that make
Policy Strategy, great progress has been made in their way towards Europe. Therefore, and in the
reducing the influx of asylum seekers and irregular context of the new Global Compact on Migration,
migrants to Denmark. This was achieved through the Government will make targeted contributions
a combination of national efforts and joint EU to strengthen the ability of countries of origin and
initiatives focusing on increased border controls, transit – particularly in Africa – to control their
and through stronger cooperation with the EU’s own borders and combat the trafficking and trade
neighbouring countries and regions close to of human beings.
conflict and crisis including cooperation relating
to the return and readmission of rejected asylum Return and readmission
seekers and irregular migrants. The reduced influx The Government has adopted a quid pro quo
has also resulted in lower expenses relating to approach. This approach – combined with the
in-donor refugee costs. This has freed up funding appointment of an ambassador for migration
for initiatives in developing countries, enabling us with a special focus on promoting cooperation
to further strengthen our efforts in areas and coun- on return and reintegration, development funds
tries neighbouring conflict and crisis, where these dedicated to facilitating cooperation on return
resources can benefit far more people. and readmission, and migration counsellors at
Danish embassies – has contributed to an increase
Alongside national initiatives, the Government will in return and readmission of rejected asylum
actively utilise the cooperation in the EU and UN. seekers to a number of countries. The Government
Two new UN compacts – the Global Compact for will intensify these efforts and increase funding to
Safe, Orderly and Regular Migration and the Global facilitate cooperation on return and readmission
Compact on Refugees – are expected to be adopted to ensure that all countries of origin comply with
in 2018 and will strengthen the basis for interna- their obligation to readmit their own citizens,
tional cooperation in these areas. Issues addressed enabling the return of irregular migrants.Foreign and Security Policy Strategy 19
The Government has a vision The Government has a vision of an Africa where
young women and men are able to see opportu-
of an Africa where young nities for a future in their home countries. Danish
development assistance will contribute to realising
women and men are able to
this vision. The youth of Africa have enormous
potential. However, a failure to create better
opportunities for education, employment and
see opportunities for a future political influence may result in increased instabil-
ity, radicalisation and irregular migration towards
in their home countries. Europe. Development assistance in itself cannot
solve the immediate migration challenges, but it
is an essential part of the medium and long-term
The EU’s external borders must be strength- efforts to mitigate irregular migration.
ened and the asylum system must be updated
When the refugee and migration wave of 2015 Therefore, in the coming years, the Government
swept through Europe, it became clear that the EU’s will dedicate additional resources to long-term
external borders were not sufficiently enforced. efforts that address the root causes of irregular
In that context, Denmark and other countries migration and promote sustainable development.
chose to introduce temporary border controls. This is especially the case for some of the poor and
Since then, the EU and member states have fragile priority countries in Africa, with a particu-
launched a number of initiatives that have reduced lar focus on the Sahel and the Horn of Africa. These
arrivals to the level before 2015. But the work does efforts are not just about creating better economic
not stop here. We must continue to explore new opportunities, but political and social oppor-
approaches based on the efforts that have proven tunities and rights as well. This can be achieved
effective, e.g. the EU-Turkey agreement and the through support for education, stabilisation,
ongoing focus on stronger border control. The reduced vulnerability to climate change, ensuring
Government will maintain focus on new ways of legal rights, anti-corruption efforts, gender equal-
reducing arrivals and increasing EU funding for ity and women’s right to control their own bodies.
this purpose. In recognition of the important role
of the European Border and Coast Guard Agency Global gender equality and the rights of girls
(Frontex), the Government has announced a and women are central to realising the Sustainable
significant increase in Denmark’s contribution to Development Goals. Lack of access to education,
the Agency, including both staff and capacities. health services, contraceptives and sex education
undermines women’s fundamental right to decide
The Government wants a new asylum system in whether, with whom, when and how many
Europe – a system that eliminates the basis for children they want to have. The Government
human trafficking and reduces the pressure on will intensify its efforts for the rights of girls and
Europe’s external borders. Denmark will work women in developing countries, in humanitarian
with like-minded countries to develop new paths crises and conflict situations, and in international
to a more effective European asylum processing negotiations, where countries that previously
system, including continued efforts by the shared Danish views are now pushing strongly in
Government to explore options for establishing the opposite direction.
a joint return centre outside of the EU.
With the contribution of Denmark and the other
The root causes of irregular migration must member states, the EU is the world’s largest
be addressed with sustainable development provider of development assistance. We must
A number of countries in Africa enjoy high leverage this position even more effectively. The
economic growth rates and improved living Government wants to significantly strengthen the
standards, while many other countries, particu- EU’s external efforts on issues such as irregular
larly in the sub-Saharan region, are struggling to migration from Africa. We will also seek to reform
ensure that economic and social development the EU’s development policy toolbox, inspired in
keep pace with population growth. part by Danish experiences with innovative financ-
ing. Danish development assistance is increasingly
Africa remains the continent with the highest used as a catalyst for new types of partnerships,
birth rates, and by 2050 the continent’s population particularly with private sector stakeholders, and
is expected to double to 2.5 billion. Population through innovative financing instruments such as
growth on the African continent, combined with the Danish SDG Investment Fund.
an absence of economic development, is expected
to fuel irregular migration in the coming decades.20 Foreign and Security Policy Strategy
Initiatives and areas of focus
in 2019-2020
• The Government will intensify its efforts to • The Government will work bilaterally and
promote return and readmission of foreigners through larger actors, such as the World Bank,
without legal residence in Denmark. In the to strengthen efforts to promote the right of
2019 Finance Bill, the Government proposes to women to control their own bodies – these
increase funding for efforts that promote quid efforts include the allocation of funding and
pro quo cooperation with countries of origin secondment of experts.
on the return and readmission of their own
citizens, bringing total funding in this area to • The Government will strengthen efforts to
DKK 110 million. generate economic growth, employment and
entrepreneurial opportunities for the many
• The Government will continue to work for a new young people in Africa, with a focus on creating
asylum system in Europe, including stronger opportunities for the largest generation of young
efforts to eradicate the foundation of the busi- people in history, and thereby establish alterna-
ness model of human traffickers, and to combat tives to irregular migration.
existing pull factors in cooperation with coun-
tries of origin and transit along migration routes. • In the 2019 Finance Bill, the Government has
The Government will also work with like-minded allocated DKK 540 million in development aid
countries to develop new paths to a more funding to the Climate Envelope for efforts
effective European asylum processing system. to promote sustainable growth and reduce
the impacts of climate change in developing
• The Government will strengthen the EU’s countries.
external borders and asylum processing in
frontline states through continued contributions • With a new regional stabilisation programme
to the EU’s asylum processing office, EASO, for Syria and Iraq, the Government will address
and increased contributions to the EU’s border immediate stabilisation needs in both countries,
agency, Frontex. thereby improving regional security, which in
turn will reduce migration pressures and the
• In the 2019 Finance Bill, the Government number of displaced persons, while also counter-
proposes an increase in humanitarian assistance acting radicalisation and terrorism.
from already historic levels to DKK 2.6 billion,
with objectives including the promotion of • The Government will explore the possibilities
long-term solutions in regions of conflict of contributing to innovative financing mecha-
and disaster. nisms in education, e.g. the International Finance
Facility for Education (IFFEd).
• The Government will prioritise international
cooperation on migration management as part
of its follow-up on the UN Global Compact on
Migration, including stronger involvement in the
EU’s Trust Fund for Africa.
• The Government will give greater priority to the
long-term bilateral efforts to combat poverty,
irregular migration, forced displacement and
instability, with a focus on the poorest and most
fragile priority countries and host societies for
large refugee populations, particularly in Africa,
including the Horn of Africa and the Sahel, where
Denmark will work with France and others in
relation to youth and gender equality.Foreign and Security Policy Strategy 21
Economic
diplomacy, strategic
partnerships and
the new digital
world order
The Government wants to strengthen increased the awareness of and opened the door
for Danish solutions, knowledge and skills. The
opportunities for Danish businesses around closer dialogue has also enabled improvements in
the world and increase foreign investment local framework conditions.
in Denmark. This will be achieved through In the coming years, the Government will
economic diplomacy, strategic partnerships, and strengthen the cooperation with local public
authorities and expand these efforts to include
a strengthening of Denmark’s position in terms of high-income countries, such as the US and Japan,
innovation and digital transition. where there is significant potential for selling
Danish solutions in life sciences, energy, environ-
ment and so on. We will post additional growth
advisors, strengthen the capacity in Denmark to
Economic diplomacy and strategic partnerships develop cooperation with local public authorities,
The global economy is growing and millions and establish a closer dialogue with the Danish
around the world have been lifted out of poverty business community on export opportunities and
and into the middle class. This opens the door to cooperation with local public authorities.
new opportunities for Denmark and Danish busi-
nesses. The Government’s economic diplomacy The Government will further develop Denmark’s
constitutes a key area of focus of Danish foreign five existing strategic partnerships with China,
policy, and serves as our foundation for seizing South Korea, Japan, Mexico and Indonesia – five
the opportunities presented by global growth and countries that are increasingly decisive in global
development. affairs. We will use these partnerships to promote
Danish interests, and to influence international
In recent years, Denmark has successfully culti- development in our direction. The Government
vated a closer dialogue with public authorities in will also explore opportunities to enter into new
developing countries in selected sectors by posting strategic partnerships.
growth advisors. This strategic initiative hasYou can also read
