Norway's focused communication strategy.

• Author: Moore, Tim

Editor's Note:The author, an active duty American diplomat, wrote this paper for a course at the Navel War College prior to his assignment to Norway. He looks at Norway's diplomatic efforts, particularly its public diplomacy and sees a potential model for other small states. --Ed.

With 4.9 million people, Norway occupies the 116th place on the world population table, between Singapore and the United Arab Emirates. How then can it attract enough positive attention around the world to strengthen its security and enhance its influence? There are even smaller nations that have done well, such as Costa Rica, known for its beaches and for doing away with its army, and the Republic of Ireland, known for many things, but Norway has chosen to develop its "soft power" in the last twenty years by focusing on its ability to help antagonists in different nations pursue peace and reconciliation. This strategy, dubbed niche diplomacy by Australian Foreign Minister Gareth Evans, makes use of Norway's weaknesses and its strengths, as noted below. (1) It also deliberately emphasizes the public diplomacy side of the equation, since, as Jozef Batora points out, "For small and medium-sized states public diplomacy represents an opportunity to gain influence and shape [the] international agenda in ways that go beyond their limited hard power resources (related to size, military and economic strength)." (2) This paper will examine the origins of Norway's policy (the "Norway Model") and then compare its design with various ideal forms of effective strategic communication, as laid out by contemporary theorists.(3) The question is, does the Norway Model meet current guidelines for effective public diplomacy? The discussion will then turn to some of the problems Norway can expect in pursuing such a strategy, and an assessment of how the United States might emulate the Norwegian approach.

Background

Norway achieved its independence from Sweden in 1905, in a "dispute fought over Norway's demand for a separate foreign service." (4) According to Prof. Butenschon, since then,

Norway's foreign policy orientation has been formed by the interplay of three conflicting operation codes ... First, an assertive foreign policy ... based on a vigorous pursuit of Norwegian national interests, particularly maritime interests ... Second, a more defensive orientation based on the idea that the best foreign policy a country like Norway can have is not to have a foreign policy ... it should avoid conflicts and if possible contribute to building bridges to adversaries who otherwise would threaten Norway's security, and to the establishment of an international legal order that protects small states ... Third ... Norway's interests are best served if its policy contributes to peace and justice in the world, both within and outside its own region. (5)

Three major wars--World War I, World War II, and the Cold War--clarified that Norway needed to build and maintain a network of friends and allies to offset its vulnerability as a thinly populated country with a long coastline at the edge of Europe. It learned to balance carefully the sometimes-competing demands of neighbors, allies and antagonists, and it developed a keen understanding of asymmetric power relationships. It learned to listen and to cultivate relationships that didn't offer immediate advantages. All of these skills would come into play when it began to transform its foreign policy by closely coordinating its official diplomacy, its public diplomacy and the private-sector foreign affairs of Norway's population. Today, the Norwegian government says that

Norwegian peace and reconciliation efforts are characterised by a broad engagement ... Most efforts take place in close cooperation with other actors, particularly the UN. In addition, importance has been attached to developing strategic partnerships with both Norwegian and international organisations and research institutions ... It is rare for Norway to act alone, or in isolation. On the contrary, Norway's impact will depend to a great extent on our ability to influence others, work with others, and take responsibility in cooperation with others ... Furthermore, it is important to underline that Norway's peace and reconciliation efforts must not just be seen as a string of involvements in different peace processes. Rather, taken together, they constitute an integrated part of a long-term, cohesive security policy ... Norway's peace and reconciliation efforts are long-term and process-oriented in nature, and are very often initiated at the direct request of the parties to a conflict, in order to promote stable and durable peace settlements. (6)

Other elements of the policy include Norway's discipline in focusing on areas of the world in which leaders believe Norway can make a difference; considering environmental protection and religious tolerance as factors affecting Norway's ultimate security; a commitment to engage for the long term; acceptance of the need to embrace all elements of national power; and a willingness to use development funds generously in order to supplement communication and to protect fragile new relationships. Norway devoted 820 million kroner (about $130,000,000 on 14 June 2009) "in work for peace and reconciliation" in the 2008 budget, "7.9 per cent more than in 2007."(7)

Weakness is Strength

To some degree Norway's new strength as a peace facilitator derives directly from its weakness as a Great Power; it is simply not powerful enough to intimidate others. It has not had a military force able to instill fear or compel opponents since the time of the Vikings, so it has needed to emphasize patience and persuasion in its foreign relations. For facilitating negotiations it can be a plus to appear non-threatening, although it is also a plus to have defense links with more powerful allies, when the time comes to enforce agreements. In addition, Norway understands the resentment in being subject to a stronger power, since it was dominated by Sweden until 1905. Norway is a maritime nation, which means that its citizens are more aware of the outside world and many people in other countries have also encountered Norwegians before. Norwegians captained many of the fishing boats and freighters of the American Great Lakes, and Norwegian seamen built friendship halls and chapels in seaports all over the world. Missionary activity is another historical link: "Some of Norway's present peace activities originated long ago in the Lutheran Church's missionary work overseas in Africa and elsewhere around the world." (8) Former Foreign Minister Knut Volleback has pointed out by...