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Melting Boundaries: Rethinking Arctic Governance PDF

244 Pages·2011·3.18 MB·English
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xs2XoxJ5 x[5gyms†5 srs3bgu xsM5yAy3u4 xyxÅ3ty?9oxi6 Melting Boundaries: Rethinking Arctic Governance A G T F 2011 RCTIC OVERNANCE ASK ORCE H M. J ENRY ACKSON S I S CHOOL OF NTERN ATIONAL TUDIES U W NIVERSITY OF ASHINGTON University of Washington International and Canadian Studies Programs THE HENRY M. JACKSON SCHOOL OF INTERNATIONAL STUDIES Melting Boundaries: Rethinking Arctic Governance Winter 2011 Faculty Advisors: Professor Vincent Gallucci, Aquatic and Fishery Sciences and Nadine Fabbi, Associate Director of Canadian Studies Task Force Members: Kelsey Barrett (editor) John Bryan Monica Chahary Jeung Hwa (Victoria) Choe (coordinator) Griffith Couser Kitty Gordon (Makivik Corporation) Jennifer Grosman Scott Halliday (editor) Zeina Hamed (Ottawa editor) Ahnalee Herke Lauren Hruska Colleen Kennedy (advisor editor) Lisa Koperqualuk (Makivik Corporation) Dominic Maltais Kelly Miller Kim Selling (photographer) Evaluator: Julia Gourley, Senior Arctic Official of the United States, U.S. representative to the Arctic Council, Bureau of Oceans and International Environmental and Scientific Affairs, U.S. Department of State The 2011 Task Force on Arctic Governance is a joint program between the Canadian and Global Studies Centers in the Henry M. Jackson School of International Studies at the University of Washington (UW) and the Makivik Corporation, Nunavik, Province of Québec, Canada as part of the UW and Makivik Corporation Educational Agreement Initiative. The vision of the program is to bring UW students together with their Inuit colleagues in Canada to address effective ways to govern the international Arctic region. Cover photo:Arctic Portal http://www.arcticportal.org/climate-and-sea/295 TABLE OF CONTENTS Preface 2 Acknowledgements 4 Executive Summary 7 Introduction to Arctic Governance By Kelsey Barrett 9 Chapter One: Stewardship of the Arctic Environment By John Bryan and Jennifer Grosman 15 Chapter Two: Shipping and Commercial Maritime Activity By Ahnalee Herke 51 Chapter Three: The Northwest Passage By Zeina Hamed and Lauren Hruska 69 Chapter Four: Delimitation of the Lomonosov Ridge By Jeung Hwa (Victoria) Choe 85 Chapter Five: Reevaluating the Role of Arctic Security By Griffith Couser 97 Chapter Six: Food Security in the Arctic By Monica Chahary 115 Chapter Seven: Health and Education in Indigenous Communities By Kim Selling 129 Chapter Eight: Maqaittiit as a Profession By Lisa Koperqualuk 141 Chapter Nine: Aboriginal Rights as Property Rights By Kelly Miller 157 Chapter Ten: Québec and Nunavik: A Governance Model By Dominic Maltais 173 Chapter Eleven: The EU: Non-Arctic Participation in the Arctic Council By Colleen Kennedy 187 Conclusion By Scott Halliday 201 Afterword By Kitty Gordon 207 Reference List 211 PREFACE Note from the Faculty Advisors The Task Force that led to the writing of this document is part of an effort to prepare International Studies majors to effectively deal with Arctic issues, and to ensure that Canada‘s voice, including the voice of the Inuit of Canada, is included in future negotiations regarding the region. The Task Force program in the Jackson School has an over 25-year history impacting the research and professional development of hundreds of International Studies majors. The Task Force Program The Task Force is a 10-week, 5-credit seminar held in winter quarter. This capstone experience is required for International Studies majors in the Henry M. Jackson School of International Studies at the University of Washington (UW). Recognizing that many International Studies students may be preparing for careers in multi-faceted non-governmental and governmental organizations, the Task Force offers students the opportunity to address policy questions in a ―real world‖ setting. The seminar operates much like a Presidential or Royal Commission – the students research a current and relevant policy issue, prepare a written report, and present their policy recommendations to an outside expert in the field. First Canada-Based Task Force, 2009 – http://jsis.washington.edu/canada/file/archive/taskforce09/ In Winter Quarter 2009 we led the first Task Force on Arctic Sovereignty including a one-week research trip to Ottawa. Thirteen students produced the report, Towards Arctic Resolution: Issues of Sovereignty and Governance in the Circumpolar North including chapters on the Canada-U.S. dispute over the Northwest Passage, shipping issues, and the role of Canada‘s Inuit in Arctic sovereignty. The students presented their findings to Rob Huebert, Centre for Military and Strategic Studies, University of Calgary. The report was also presented at the 12th Annual UW Undergraduate Research Symposium, and won Honorable Mention at the UW Libraries Research Award for Undergraduates. Second Canada-Based Task Force, 2011 – http://jsis.washington.edu/canada/courses/arctic.shtml This year, in an effort to create a truly international educational experience, Canadian Studies and the Makivik Corporation, Nunavik, created a partnership to involve Canadian Inuit participants in the program. This came to reality as 14 UW students and two Makivik participants formed the 2011 Arctic Governance team. The international team spent a week in Ottawa visiting Foreign Affairs and International Trade and Indian and Northern Affairs Canada; six Arctic country embassies; scholars with the Faculty of Law at the University of Ottawa; ministers of parliament; and Canada‘s offices for the national and international Inuit associations. In the words of one student participant, ―My experiences conducting field research in Ottawa as a part of our Arctic Task force were incredible and invaluable. I have never before had the opportunity to visit so many embassies and speak with diplomats and dignitaries about important, contemporary issues … our visits in Ottawa have given me a more enlightened, hopeful, and realistic direction regarding my personal aspirations and professional development.‖ 2 The Student Team We wish to express our appreciation for the Arctic Governance Team. Each of the team members – Kelsey, John, Monica, Victoria, Griffith, Kitty, Jennifer, Scott, Zeina, Ahna, Lauren, Colleen, Lisa, Dominic, Kelly, and Kim – conducted extensive research for their chapters and contributed to a strong and supportive team. A special recognition goes to Victoria for putting together a beautiful program poster; to Colleen, Griffith and John for extensive work on the bibliography; to Zeina for writing and designing the Ottawa report; and to Kim, our photographer. We also want to acknowledge Lisa and Kitty for making the extra effort to work with the team from afar – Québec City and Montréal! Finally, our thanks and appreciation goes out to the editors, Kelsey and Scott, who not only produced a superb introduction and conclusion, but put in endless hours editing and compiling the report, and making it a very impressive document. The success of this program would not have been possible without the interest and dedication of our colleagues, Jean-François Arteau, Legal Counsel, Makivik Corporation, Nunavik and Donat Savoie, President, Inuit, Arctic and Circumpolar Affairs Consulting Firm and Knight (Chevalier) of the National Order of Québec (2010). Donat also provided advisory assistance throughout the entire visit that contributed to a dynamic Ottawa experience. We extend special gratitude to Sophie Thériault, University of Ottawa, Luke Henderson, Foreign Affairs and International Trade Canada, and Cecilia Sithembile Silundika, Indian and Northern Affairs Canada who each put together half-day programs for the team. Nadine C. Fabbi, Canadian Studies Center, Henry M. Jackson School of International Studies Vincent Gallucci, Aquatic and Fishery Sciences, College of the Environment Nadine Fabbi is Associate Director of the Canadian Studies Center. Her research focuses on the relationship between emerging concepts of territory and mapping in international relations, and foreign policy formation particularly educational policy. In 2009-10 her research project, ―Arctic Educational Policies and their Impact on Canada‘s Leadership Role in the Circumpolar World,‖ received Fellowship funding by University of the Arctic and Foreign Affairs and International Trade Canada. She was just invited by the International Centre for Northern Development and Governance at the University of Saskatchewan to present her research on Arctic educational strategies to policy makers from Foreign Affairs Canada. Nadine also serves on the Executive Council for the Association for Canadian Studies in the U.S. and is the UW Council Representative for University of the Arctic. Vincent Gallucci is a Professor in the School of Aquatic and Fishery Sciences, College of the Environment; affiliated faculty in Canadian Studies; and director of the Center for Quantitative Sciences in Forestry, Fisheries and Wildlife. His research focuses on the policy dimensions and management of fishery resources in developing countries and on coldwater fisheries in the Bering/Arctic seas, including Arctic marine mammals. Gallucci has a long-term research association with the Department of Fisheries and Oceans Canada carrying out joint projects on commercial and endangered species. He also serves on an Arctic Council sub-committee with a special focus on marine species and ecosystems biodiversity in the Arctic region. 3 ACKNOWLEDGEMENTS This Task Force report would never have been achieved by its sixteen writers alone. It is due to the generosity of a wide variety of individuals and organizations that such an undertaking has been possible. We would like to extend our sincerest gratitude to all those who donated their time, energy, funds, and passion to assist us in this extraordinary learning and writing experience. UNIVERSITY OF WASHINGTON  Sara Curran, Associate Professor of International Studies and Public Affairs  Tamara Leonard, Associate Director, Center for Global Studies  Sion Romaine, Canadian Studies Librarian  Louise Richards, Fisheries and Oceanography Librarian  Mark Di Virgilio, Exchange Program Coordinator, Center for West European Studies  Sandy Bui, Canadian Studies Center  Monick Keo, Canadian Studies Center Our week-long fact finding mission in Ottawa was the highlight of our research process. It would not have been possible without the following people and organizations, all of whom took the time to sit down and share their knowledge and perspectives with us: PRESENTERS  Jean-François Arteau, Legal Counsel and Executive Assistant to the President of Makivik, Makivik Corporation, Nunavik  Evgeny A. Avdoshin, Third Secretary, Russian Embassy, Ottawa  Claude Bachand, Député de la circonscription de Saint-Jean Porte-parole du Bloc Québécois, matière de Défense nationale  Matthew Berry, Senior Policy Officer, Foreign Affairs and International Trade Canada  Catherine Boucher, Deputy Director, Foreign Affairs and International Trade Canada  Peter Fawcett, Deputy Director, Foreign Affairs and International Trade Canada  Terry Fenge, Independent Consultant on Aboriginal, Environmental, Northern and Circumpolar Issues, Ottawa  Harald Finkler, Director, Circumpolar Liaison Directorate, Indian and Northern Affairs Canada  Robert Fortin, Director, International Polar Year International Polar Year, Indian and Northern Affairs Canada  Giovanni Di Girolamo, First Counselor and Head of Political and Public Affairs Section, European Union Delegation to Canada  Sébastien Grammond, Dean of the Faculty of Law, Civil Law Section, University of Ottawa  Udloriak Hanson, Special Advisor to the President, Inuit Tapiriit Kanatami, Ottawa  Luke Henderson, Program Manager, North American, Foreign Affairs and International Trade Canada  Stephen Hendrie, Director of Communications, Inuit Tapiriit Kanatami, Ottawa 4  Jakob Henningsen, Counsellor and Deputy Head of Mission, Royal Danish Embassy, Ottawa  Kari Hoel, First Secretary, Royal Norwegian Embassy, Ottawa  Eric Hopkins, Senior Environmental Policy Analyst, Indian and Northern Affairs Canada  Doug Klassen, Senior Policy Analyst, Inuit Relations Secretariat, Indian and Northern Affairs Canada  John Kozij, Assistant Director General, Indian and Northern Affairs Canada  Danielle Labonté, Acting Assistant Deputy Minister, Indian and Northern Affairs Canada  Danielle Leclair, Parliamentary Assistant, Bloc Québécois  Bud Locklear, Energy and Environment Specialist, United States Embassy, Ottawa  Ghislain Otis, Professor and Canada Chair, Legal Diversity and Indigenous Peoples, University of Ottawa  Joël Plouffe, Research Fellow, Center of Geopolitical Studies, l‘Université du Québec à Montréal  Chester Reimer, Consultant, Inuit Circumpolar Council (Canada), Ottawa  Donat Savoie, President, Inuit, Arctic, and Circumpolar Affairs Consulting Firm, Ottawa  Cecilia Sithembile Silundika, Circumpolar Analyst, Indian and Northern Affairs Canada  Jo Sletbak, Minister Counsellor, Royal Norwegian Embassy, Ottawa  Keith Smith, Director, Indian and Northern Affairs Canada  Sophie Thériault, Civil Law, Faculty of Law, University of Ottawa  Sigridur Anna Thordardottir, Ambassador, Embassy of Iceland, Ottawa  Rick Upton, Senior Policy Specialist, Indian and Northern Affairs Canada  Marja Verloop, Counselor for Energy and Environment, United States Embassy, Ottawa  Michael Westlake, Environmental Analyst, Indian and Northern Affairs Canada ORGANIZATIONS  Arctic and Circumpolar Affairs Consulting Firm  Center of Geopolitical Studies, l‘Université du Québec à Montréal  Civil Law Section, University of Ottawa  Embassy of Iceland, Ottawa  European Union Delegation to Canada  Foreign Affairs and International Trade Canada  Indian and Northern Affairs Canada  Inuit Circumpolar Council (Canada), Ottawa  Inuit Tapiriit Kanatami, Canada  Makivik Corporation, Nunavik, Montréal  Royal Danish Embassy, Ottawa  Royal Norwegian Embassy, Ottawa  Russian Embassy, Ottawa  United States Embassy, Ottawa  University of Ottawa 5 SPONSORS The Ottawa Research trip is sponsored by the Canadian and Global Studies Title VI grants, International Education Programs Service, U.S. Department of Education; the Government of Canada; the Hellmann Fund for Innovation and Excellence; the Maxwell M. and Julia Fisher Endowment; the International Studies Program Discretionary Fund; the Henry M. Jackson School of International Studies; the Wilburforce Foundation, Seattle; and the Makivik Corporation. Merci beaucoup, Nakurmiik, and thank you! And lastly, to our own advisors Nadine Fabbi and Vince Gallucci for their tireless and everlasting support to the group throughout the ten week period. 6 Executive Summary Kelsey Barrett and Scott Halliday Global warming has triggered fundamental ecological changes to the Arctic landscape. As the sea ice melts, greater access to lucrative natural resources and new shipping lanes is intensifying economic and political interest in the region. Ownership and control over these resources has spurred debate at international, regional, national, and sub-national levels. State and non-state actors are seeking to position themselves to exploit these resources and benefit economically. If left unchecked, unsustainable resource extraction has the potential to seriously degrade the natural environment and threaten the human security of Arctic inhabitants. Existing governance frameworks in the Arctic require reassessment and alteration in light of these recent changes. The title of this report is ―Melting Boundaries: Rethinking Arctic Governance,‖ because both the policy issues and solutions discussed are transnational in scope and implementation. Collective action is required to confront these challenges and therefore they must be undertaken in the pursuit of common interests. These interests which underlie the report‘s recommendations include: maintenance of the peace and stability of the Arctic region, protection of the Arctic environment, preservation of cultural integrity, and a greater commitment to human security. The majority of the recommendations given in this report target the Arctic Council and its member states and participants, as it is the preeminent forum for discussing Arctic issues. The recommendations seek to advance comprehensive multilateral cooperation in the region. Inclusive dialogue and consensus building is the most effective way to approach Arctic governance decisions and encourage compliance. This rethinking of governance looks beyond the state-centric model of international relations towards the greater inclusion of non-traditional actors operating at multiple levels of governance. Using this multi-level approach is the best method in which to consider governance challenges and conceive of policy recommendations. Recommendations:  Strengthen the mandate and scope of the Arctic Council: o Establish a Permanent Secretariat. 7

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The 2011 Task Force on Arctic Governance is a joint program between the The Task Force is a 10-week, 5-credit seminar held in winter quarter.
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