This project combined broad stakeholder engagement with rigorous analytical work in a structured and systematic process. It integrated preparatory desk analysis, national and regional dialogue, written and oral feedback rounds, and international peer learning. This ensured that the diagnosis and recommendations for transition strategies were evidence-based, regionally grounded, nationally co‑ordinated, and aligned with EU policy priorities. The next paragraphs outline the methodological approach taken as well as the various stages of stakeholder consultation.
Preparatory phase and inception
The project was formally launched at a kick-off meeting on 28 August 2024, during which the draft Inception Report was presented. Based on feedback from the European Commission and the Finnish authorities, the report was revised and approved in December 2024. It set out the analytical framework, key deliverables, and workplan.
Analytical deskwork
Throughout the project, in parallel to the stakeholder consultation process, a considerable amount of analytical work was carried out by OECD analysts and external consultants. This involved analysing statistical data, reviewing reports and documents on regional development in Finland’s eastern and southeastern border regions, examining international case examples, and drawing on OECD and EU policy recommendations. This evidence base informed the diagnostic work and the recommendations, ensuring that stakeholder perspectives were complemented by robust comparative analysis.
National-level consultations
The first OECD mission to Finland (Helsinki, 9-13 September 2024) gathered national perspectives through meetings with ministries, parliament, business organisations, utilities, and research institutions. Discussions covered connectivity, energy supply, security, EU support, multilevel governance, private investment, and tourism. The mission also included participation in the Advisory Board meeting for the Eastern Finland Programme. This stage provided a comprehensive understanding of the institutional and fiscal framework for regional development in Finland and of ongoing reforms relevant to the eastern border regions.
Joint workshop in Joensuu
A joint workshop (14 November 2024) gathered 28 representatives from the eight border regions, as well as participants from the Ministry of Economic Affairs and Employment, the European Commission, and the OECD. Participants validated and refined the pre-identified development themes, prioritised the most pressing issues, and proposed concrete measures by the national government and the EU to support the eastern and southeastern border regions, with indicative timelines and responsible actors. The interactive format ensured that regional voices were consolidated into a common framework.
Regional workshops
Eight regional workshops were organised between mid-November and early December 2024 in Salla (Lapland), Kuusamo/Ruka (North Ostrobothnia), Kajaani (Kainuu), Kuopio (North Savo), Joensuu (North Karelia), Imatra (South Karelia), Mikkeli (South Savo), and Kouvola (Kymenlaakso). Each three‑hour session gathered municipal leaders, regional councils, ELY Centres, businesses, third-sector actors, universities, and in some cases youth and security representatives. Participants assessed the regional situation, analysed the impacts of the border closure and sanctions, and identified challenges, investment needs, and proposals.
Diagnostic analysis
The diagnostic stage was carried out between November 2024 and January 2025. It included data analysis, a review of reports and documents, and the examination of information collected during missions and workshops (including a workshop with the Youth organisations), as well as responses to the questionnaire sent to regions and the central government at the start of the project. In addition, the OECD Regional Attractiveness Compass methodology was applied (see Annex for details). This approach structured the analysis of the eastern and southeastern border regions by combining quantitative indicators with qualitative evidence from stakeholders.
Recommendations and feedback
The draft recommendations were developed following the diagnostic work and then refined through an iterative process of written and oral feedback. Two dedicated feedback sessions in Helsinki in April 2025 gathered regional representatives and national ministries. These discussions ensured that the recommendations were both grounded in regional realities and aligned with national priorities, while remaining feasible to implement.
International webinar
To place the Finnish case in a broader European context, an international webinar was organised in June 2025. Policymakers and experts from Finland, Poland, Latvia, Lithuania, Estonia, and the EU exchanged experiences on regional attractiveness strategies in light of geopolitical and economic shocks. The event enabled mutual learning and situated Finland’s experience within a wider comparative perspective.
Action Plans and Piloting Proposals
Draft Action Plans (for the national government, the area formed by the eight regions, and each individual region) and proposals for pilot experiments were developed and circulated in July 2025. Following written feedback from regions and ministries, these were revised and discussed in online meetings with each of the eight regions in September 2025. The exchanges provided regionally grounded input on feasibility, governance, and financing needs.
Finalisation
The Final Report consolidated the diagnostic analysis, recommendations, action plans, and pilot proposals. It incorporated extensive feedback from regional and national stakeholders, as well as insights from the European Commission, ensuring both ownership and alignment with broader EU policy objectives.
