• Research
  • Emissary
  • About
  • Experts
Carnegie Global logoCarnegie lettermark logo
DemocracyIran
  • Donate
{
  "authors": [
    "Sophia Besch",
    "Dan Baer"
  ],
  "type": "commentary",
  "blog": "Emissary",
  "centerAffiliationAll": "",
  "centers": [
    "Carnegie Endowment for International Peace"
  ],
  "englishNewsletterAll": "",
  "nonEnglishNewsletterAll": "",
  "primaryCenter": "Carnegie Endowment for International Peace",
  "programAffiliation": "",
  "programs": [],
  "projects": [
    "Baltic Sea Region Security Initiative"
  ],
  "regions": [
    "Europe",
    "United States"
  ],
  "topics": [
    "Security",
    "Foreign Policy",
    "NATO",
    "Defense"
  ]
}
Attribution logo

U.S., Swedish, and Finnish leaders at the White House in 2022. (Photo by Mandel Ngan/AFP via Getty Images)

Commentary
Emissary

Rather Than Scrapping a U.S.-Northern Europe Forum, Leaders Should Expand It

Critics claim E-PINE is redundant now that Finland and Sweden have joined NATO. Instead, it's a chance to show U.S. flexible multilateralism in action.

Link Copied
By Sophia Besch and Dan Baer
Published on May 20, 2024
Emissary

Blog

Emissary

Emissary harnesses Carnegie’s global scholarship to deliver incisive, nuanced analysis on the most pressing international affairs challenges.

Learn More
 Baltic Sea Region Security Initiative

Project

Baltic Sea Region Security Initiative

The Baltic Sea Region is a key pillar in Europe’s emerging security architecture. The potential for cooperation and innovation is substantial. This project examines the region’s approach to a broad array of security challenges, from maritime security to defense industrial cooperation, critical infrastructure protection, energy security and civil defense.

Learn More

This week, the Nordic countries, the Baltic countries, and the United States are meeting in Sweden for the Enhanced Partnership in Northern Europe, or E-PINE. In recent years, E-PINE has served as a forum for Washington to engage with countries in Northeast Europe, but now that Sweden and Finland have joined NATO, all members of E-PINE have access to Washington in Brussels.

Some might say E-PINE is now redundant. But rather than scrapping it, leaders should reinvigorate it. U.S. President Joe Biden and his administration have touted flexible multilateralism, which should be understood not only as inventing new constellations of countries to cooperate on shared issues but also as renovating old ones to make them more effective and energetic at tackling today’s problems. In this vein, E-PINE should bring Poland and Germany on board.

Since 2003, the E-PINE format has brought together officials from the U.S. State Department and political directors of the Ministries of Foreign Affairs of the Baltic states and Nordic countries. Before E-PINE, Washington was engaged in the region through the Northern Europe Initiative (NEI), founded in 1997 to integrate the Baltic states into Euro-Atlantic circles and strengthen regional cooperation. When Estonia, Latvia, and Lithuania joined NATO and the EU twenty years ago, there were questions over whether to sustain NEI. The United States decided then to maintain its engagement via E-PINE. NATO’s northern enlargement now signifies a similar turning point.

Security in Europe’s northeast is heavily dependent on regional and transatlantic cooperation. The European Baltic Sea states have traditionally been connected through various political, security, and defense collaborations. The Nordic defense ministers meet regularly in the Nordic Defense Cooperation format, and the Nordics and Baltics meet in the Nordic-Baltic Eight grouping. Defense ministers from the five Nordics, the Baltics, Germany, Poland, the Netherlands, and the UK also meet in the Northern Group twice a year. And the Council of Baltic Sea States—recently reinvigorated after suspending Russian membership—brings together the foreign ministers of all Baltic Sea littoral states and the EU.

Many of these groupings have existed for years, but the Russian war on Ukraine is now ramping up the pressure to turn talking shops into productive cooperation formats. This means critically examining what each of them contributes concretely, and, if necessary, revising their substance and membership.

Invalid video URL

In the past, E-PINE often has been limited in its ambition to coordinating political positions, but it is well-placed to address crucial challenges facing the region and wider Europe. The broader focus on foreign policy, as well as the participation of foreign ministries, allow for a wider view of the region’s security concerns. Take Ukraine: many of its neighbors can draw on their own histories to support its integration into the European economic and security architecture. Or consider Europe’s energy transition: the Baltic Sea region’s offshore wind potential is pivotal to strengthening energy security, new liquified natural gas terminals are central to addressing near- and medium-term needs, and an aggressive Russia that is seeing fewer direct economic benefits from European energy consumption means that those countries will need to work together to improve the resilience of energy infrastructure.

The Baltic and Nordic nations have demonstrated exemplary leadership on European foreign, security, and defense policy in their commitments to Ukraine and to strengthening their national defenses. They have also understood that, when dealing with an overstretched and distracted Washington, there is strength in numbers. They regularly coordinate their positions before meeting U.S. counterparts. E-PINE, as the only regional cooperation format that includes the United States as an active participant, is an important vehicle for keeping Washington engaged.

Bringing military heavyweight Poland and economic heavyweight Germany into E-PINE would add significant resources and clout. It could, for instance, create opportunities for transatlantic defense industrial or energy cooperation at scale. It would also help Berlin and Warsaw in their missions to strengthen their own credibility as security providers in the region: Germany has an interest in putting meat on the bones of its Zeitenwende policy, and Poland can translate the pro-European momentum of its new government into stronger relations with its neighbors and a greater responsibility for regional security.

The United States would win, too. After all, the Biden administration’s focus on flexible multilateralism is more than a feel-good fad: it is a reflection that as Beijing rises and Moscow rages, Washington cannot manage burdens of global governance alone. It needs more “boards of directors” for regional and specific topics. Moreover, a format like E-PINE offers an opportunity for Washington to engage the region on subjects that are more difficult to bring up inside NATO, such as the region’s approach to economic security and engagement with the Indo-Pacific.

The future of European security lies in regional cooperation. The future of transatlantic security cooperation depends on energized, credible, and coordinated European engagement with the United States. An enlarged E-PINE+2 could support both objectives.

Get more news and analysis from
Carnegie This Week

Understand the world with the latest from our scholars around the world.

About the Authors

Sophia Besch

Former Senior Fellow, Europe Program

Sophia Besch was a senior fellow in the Europe Program at the Carnegie Endowment for International Peace. Her research focuses on European foreign and defense policy.

Dan Baer

Senior Vice President; Director, Europe Program

Dan Baer is a senior vice president of the Carnegie Endowment for International Peace and director of the Europe Program. Under President Obama, he was U.S. ambassador to the Organization for Security and Cooperation in Europe (OSCE)  and he also served deputy assistant secretary of state for the Bureau of Democracy, Human Rights, and Labor.

Authors

Sophia Besch
Former Senior Fellow, Europe Program
Sophia Besch
Dan Baer
Senior Vice President; Director, Europe Program
Dan Baer
SecurityForeign PolicyNATODefenseEuropeUnited States

Carnegie does not take institutional positions on public policy issues; the views represented herein are those of the author(s) and do not necessarily reflect the views of Carnegie, its staff, or its trustees.

More Work from Emissary

  • leaders sitting in chairs speaking
    Commentary
    Emissary
    As Rubio Lands in India, the U.S.-India Relationship Is Stronger Than It Looks

    Despite public disputes over trade and immigration, the strategic partnership’s foundations remain sturdy.

      • Sameer Lalwani

      Sameer Lalwani

  • big military plane sitting out in the open
    Commentary
    Emissary
    Why the Pentagon Was So Spooked About the B–1 Bombers in England

    It signals a new era of tech diffusion and warfare.

      • Steve Feldstein

      Steve Feldstein

  • Two men wave and point to the sky against a dark background
    Commentary
    Emissary
    "Digger" May Be the Most Influential Climate Movie Yet

    Despite its flop at the box office, the film raises important questions for the climate community to answer.

      Leonardo Martinez-Diaz

  • Satellite in space
    Commentary
    Emissary
    The U.S. Has Weapons in Space. Now What?

    The acknowledgment has sparked fears of a new arms race with China and Russia.

      • Chris  O'Meara ​​​​

      Chris O’Meara

  • Trump holding a glass of champagne up in a toast, with a table of guests in the foreground
    Commentary
    Emissary
    Trump Had the Chance to Address U.S.-China AI Safety. He Threw Xi a Party Instead.

    The summit may be remembered as a fatal blunder, when Washington, Beijing, and the AI industry collectively chose ceremony over action.

      • Jeffrey Prescott

      Jeffrey Prescott

Get more news and analysis from
Carnegie Endowment for International Peace
Carnegie global logo, stacked
1779 Massachusetts Avenue NWWashington, DC, 20036-2103Phone: 202 483 7600
  • Research
  • Emissary
  • About
  • Experts
  • Donate
  • Programs
  • Events
  • Blogs
  • Podcasts
  • Contact
  • Annual Reports
  • Careers
  • Privacy
  • For Media
  • Government Resources
Get more news and analysis from
Carnegie Endowment for International Peace
© 2026 Carnegie Endowment for International Peace. All rights reserved.