The future of Nordic cooperation on alcohol policy: where do we stand?

In his 1999 paper The idea of alcohol policy, Professor Robin Room highlighted the origins of the term “alcohol policy” in Nordic languages. He explained that in the Nordic context, the concept encompassed not only systems for controlling the production, distribution and sale of alcoholic beverages, but also efforts to prevent and control alcohol-related harm. This broad scope also included considerations like whether alcohol prices should be included in cost-of-living calculations.

This focus on mitigating alcohol problems was also included in the “constitution” of the Nordic Council, the Helsinki Treaty of 1962 (Article 16), which explicitly mentioned temperance work as part of the joint commitment to public health.

Historically, Nordic alcohol policy has defined the region’s distinctive approach, both to alcohol as a business and to alcohol-related problems. However, with national alcohol policies increasingly diverging and Nordic collaboration becoming less prominent, one must ask: What is the health of the Nordic model today?

Nordic cooperation: fading commitment?

What does “temperance work” mean in today’s context? And how can we imbue it with substance beyond historical references? In 2012, the Nordic Council’s welfare committee proposed a joint alcohol policy strategy for 2014–2020. This 12-point strategy aimed to define the region’s alcohol and tobacco policy goals. It emphasized Nordic cooperation, asserting that the region would benefit from working together on these issues.

The initiative was ultimately rejected by the Nordic Council of Ministers, with the justification that strong national policies were already in place and that the European Union had its own alcohol strategy. However, the EU alcohol strategy, introduced in 2006, was effectively discontinued after 2012, as the European Commission chose not to renew it, shifting alcohol policy under broader health initiatives instead. This left a policy gap at the EU- level. Now, at the national level, we are witnessing Nordic countries reconsidering and, in some cases, weakening their own alcohol policies.

This shift reflects the principle of national sovereignty—the right of each state to amend its laws as it sees fit. Interestingly, the rejection of the joint strategy also revealed a belief among Nordic parliament representatives that their countries might still be better served by a unified approach to alcohol policy. However, for now, this remains the last serious attempt at formal Nordic cooperation on this front.

Missed opportunities and a way forward

Following the rejection of the Nordic alcohol policy strategy, the Council of Ministers commissioned Swedish politician Bo Könberg to explore future cooperation in health policy. Könberg’s  report The future of Nordic health co-operation recommended enhancing the exchange of experiences on public health issues, also regarding alcohol and tobacco. This led to the creation of the Nordic Public Health Arena.

For many years, “Nordic alcohol policy” represented a structured, collective approach. In 2011, the region’s alcohol monopolies published The Nordic Way, a document outlining shared principles and strategies. But with shifting political priorities and increasing fragmentation, this common ground appears to be eroding. The critical question now is: can Nordic cooperation on alcohol policy be revitalized ?

What role for Nordic collaboration today?

In recent years, there has been a noticeable shift in how Nordic countries approach both alcohol policy and regional cooperation. While some continue to uphold traditional control measures, others are moving toward deregulation, aligning more closely with broader European trends.

The Finnish government’s coalition agreement explicitly states that

The government is responsibly reforming alcohol policy in a European direction.

Traditionally, Finland’s alcohol policy has aligned with the Nordic model, but this statement suggests a move away from Nordic cooperation. This change can be attributed to the growing influence of right-wing governments in the region. Nordic countries are seeing more right-leaning governments than perhaps ever before.

AP News reports: “Political analysts said the new Cabinet was Finland’s most right-wing government since World War II.”

Le Monde notes: “Three Swedish right-wing parties have agreed to form a government with the unprecedented support of the far-right Sweden Democrats.”

Reuters states: “The new [Danish] coalition… she [Mette Frederiksen] has negotiated with opposition parties to form a government across the traditional left-right divide for the first time in more than four decades.”

This shift reflects the ideological divide in the region. Let’s be candid: the WHO alcohol policy best-buys—raising taxes, restricting ads, and limiting sales—along with traditional Nordic alcohol policies, align more closely with left-leaning views. As right-wing governments gain strength, state monopolies, are increasingly subject to scrutiny.

To draw a comparison: if a temperance organization acquired a building housing a successful bar, the bar would likely be closed, regardless of the bar’s profitability, history, or local popularity due to differing ideological worldviews. Similarly, with new political ownership comes new policy directions.

The challenges facing the “new” Nordic region is how to preserve and adapt the highly effective, evidence-based political model in an evolving political environment. For alcohol policy advocates, this means finding ways to defend and promote evidence-based policies while navigating different ideological viewpoints.

Balancing progress and tradition

Despite these challenges, the Nordic monopoly countries remain in a much stronger position regarding alcohol policies compared to the rest of Europe. However, the concerning trend is that while many European countries are slowly making progress in strengthening alcohol policies, Nordic countries are considering or taking steps to weaken them. Hopefully, as the Nordic region works towards becoming the most sustainable and integrated area in the world by 2030, it will recognize its role in reminding us why strong, evidence-based Nordic alcohol policies matter.

The article is written by

Lauri Beekmann, Executive director, NordAN

On the request of PopNAD