Melting Boundaries: Rethinking Arctic Governance

244 Pages·2011·3.18 MB·English

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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.‖
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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.
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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
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 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

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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.
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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.
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