Report

INTRODUCTION

Ryan Leef, M.P., led a Canadian delegation of two to the meeting of the Standing Committee of Parliamentarians of the Arctic Region (the Standing Committee) held in Washington, D.C. on 12-13 March 2013. The delegation also included Mr. Dennis Bevington, M.P. Ms. Shauna Troniak from the Parliamentary Information and Research Service of the Library of Parliament attended as advisor to the delegation.

The Conference of Parliamentarians of the Arctic Region (the Conference) is a parliamentary body comprising delegations appointed by the national parliaments of the eight Arctic states (Canada, Denmark, Finland, Iceland, Norway, Russia, Sweden, the United States of America) and the European Parliament. The Conference also includes Permanent Participants representing Indigenous peoples, as well as observers. The Conference meets every two years. The Tenth Conference was held in Akureyri, Iceland, 5-7 September 2012. The Eleventh Conference will be held in Whitehorse, Yukon, 9-11 September 2014.

The Conference adopts a statement with recommendations to the Arctic Council (the Council) and to the governments of the Arctic states and the European Commission. The Standing Committee closely monitors how governments implement the Conference Statement, and take new initiatives to further Arctic cooperation.^[1]

Between conferences, Arctic parliamentary cooperation is facilitated by the Standing Committee,^[2] which began its activities in 1994. The Conference and Standing Committee take initiatives to further Arctic cooperation, and act, in particular, as a parliamentary forum for issues relevant to the work of the Council. The Standing Committee takes part in the work of the Council as an observer.^[3]

MEETING SUMMARY

The agenda for the meeting and the minutes from the previous Standing Committee meeting held 13 November 2012 in Inari, Finland, were adopted.

A.   U.S. Arctic Policy

Mr. Evan Bloom, Director of the Office of Ocean and Polar Affairs in the Bureau of Oceans and Environment and Science at the U.S. Department of State, provided the Standing Committee with an overview of Arctic policy of the United States.

Mr. Bloom first emphasized the multilateral aspect of U.S. policy in relation to the Arctic, stating that the U.S. is active in several important intergovernmental forums and organizations that deal with international Arctic issues. In addition to the Arctic Council, which it is preparing to chair in 2015, the U.S. is an active member of, for example, the International Maritime Organization, International Civil Aviation Organization, World Meteorological Organization, and the United Nations Framework Convention on Climate Change. While the U.S. is not a signatory to the United Nations Convention on the Law of the Sea (UNCLOS), Mr. Bloom stated that the U.S. does follow the provisions of the treaty.^[4]

The U.S. issued its Arctic Region Policy in January 2009 in the concluding weeks of the Bush Administration; the policy has been carried forth and remains relevant to the Obama Administration.^[5] Mr. Bloom stated that the policy is a compass that guides several interagency working groups on a variety of priority objectives, including facilitating scientific cooperation, expanding icebreaking capability, and contributing to the development of an International Polar Code on Arctic shipping.

Mr. Bloom highlighted several key Arctic Council initiatives in advance of the May 2013 Ministerial meeting in Kiruna, Sweden. In particular, Mr. Bloom noted that ministers are expected to sign an agreement on Arctic marine oil pollution preparedness and response, which will represent the second binding agreement negotiated under the auspices of the Council. Mr. Bloom also highlighted several of the Council’s other ongoing initiatives, including research on ecosystem-based management (EBM), the Arctic Maritime and Aviation Transportation Infrastructure Initiative (AMATII), and assessment on ocean acidification.

Mr. Bloom noted that Canada has emphasized the overarching theme Development for the People of the North for its term as chair of the Council from 2013-2015, thereby demonstrating its commitment to developing the work of the Council as it relates to the human dimension. Mr. Bloom also noted that Canada has been working with Arctic states to develop concrete initiatives in preparation for its chairmanship. In addition, Canadian and American representatives met last month to discuss how they might develop their respective chairmanships in ways that are mutually reinforcing.

In discussion with members of the committee, Mr. Bloom stated that the U.S. has welcomed the new role of the Arctic Council in facilitating negotiations on binding agreements among the eight member states, and remains open to new legal instruments, where warranted. He noted in particular the positive interest generated at the last meeting of Arctic Environment Ministers on short-term climate forcers (e.g. black carbon).

A member from Canada noted that the statement adopted at the last Conference in Akureyri contained specific items on Arctic governance, including the potential for annual ministerial meetings. Mr. Bloom expressed interest in the evolving governance role of the Council and noted, as positive developments, the recent decisions to hold Deputy Ministerial meetings in the interim years and to establish a permanent secretariat in Tromsø. In addition, Mr. Bloom noted that a decision may be taken on new state and non-governmental observers to the Council at the Kiruna Ministerial Meeting in May 2013. 

The U.S. delegation inquired as to what Arctic parliamentarians can do to advance the work of the Arctic Council. Mr. Bloom replied that the Conference statements provide helpful signals to the eight member states as they develop policy by consensus through the Senior Arctic Officials; and the U.S. remains open to such signals as it develops the themes for its Council chairmanship.

On a question from the Canadian delegation regarding international cooperation on Arctic fisheries, Mr. Bloom stated that the U.S. is promoting talks among the five Arctic coastal states toward greater regulation of commercial fisheries beyond their respective Exclusive Economic Zones (EEZs), and has reached out to Canada on this initiative.

B.   Alaskan Perspective

Mr. Mead Treadwell, Lieutenant Governor of the State of Alaska, updated the Standing Committee on key Arctic policy issues in Alaska.  Mr. Treadwell highlighted two current needs common to all Arctic states: greater economic investment and marine safety in the Arctic region. He noted that the Arctic might be, as it was recently described, the world’s final and possibly most attractive emerging market.^[6] Arctic states can ensure the safety and prosperity of the region by working together on these issues.

At present, Mr. Treadwell noted, the Arctic is attracting an unprecedented level of interest from global capital. By way of example, he highlighted several recent developments in Alaska’s North Slope, including oil exploration activities conducted by the Spanish company Repsol, and an agreement between Exxon Mobil and Russian firm Rosneft over natural gas development in the Point Thomson field. He stated that Arctic states must develop competitive tax structures, basic infrastructure and other measures to improve the investment climate in the region.

Mr. Treadwell noted efforts underway in Alaska to develop national policy around Arctic shipping and marine safety. These include the recent launch of a $200,000 study at the University of Alaska at Fairbanks on identifying needs related to the development of shipping in the state, including infrastructure development and measures to improve marine safety. Other recent developments include the creation of a body within the U.S. Department of Transportation that will coordinate the development of a national Arctic shipping policy, and which has recently released  a study on this issue.^[7] At the state level, the Alaska Arctic Policy Commission will hold its first meeting later this month.

Mr. Treadwell pointed to a need for greater cooperation in managing marine transportation in the Bering Strait. In this regard, he highlighted the Saint Lawrence Seaway between the U.S. and Canada as a possible model for international cooperation.

In discussion with members of the committee, Mr. Treadwell noted that, with an estimated 13% of the world’s oil and 30% of its natural gas, the Arctic economy is based on the exploitation of natural resources. Arctic states and oil and gas companies in these states are competing for this investment; and, in the process, these actors are also collaborating and building confidence with investors. He further stated that Arctic states must focus less on direct incentives through mechanisms such as tax credits and focus more on developing a more certain and secure overall investment climate in the region.

A member from Canada asked whether more international cooperation is needed in the Arctic to help deal with the effects of marine transportation on, for example, ecosystems and the livelihoods of the region’s population, and what form this cooperation should take. Mr. Treadwell replied that now is the right time to set the rules in place, based on sound science, and to support greater coordination among shipping authorities to build awareness among those in the shipping industry as to the effects of their activities.

The U.S. delegation noted the current U.S. moratorium on commercial fishing in the Beaufort Sea above Alaska, and inquired as to the particular role of parliamentarians in protecting and ensuring sustainable fisheries across the Arctic region. In response, Mr. Treadwell stated that Arctic parliamentarians have a key role in ensuring scientific research is properly resourced, and in forging partnerships to do this research and promote reciprocal access. He also emphasized a need for further research in the law of the sea, which he described as a precursor for good practice and the application of good science in the Arctic.

C.   U.S. Arctic Research Goals and Objectives

Mr. John Farrell, Executive Director of the U.S. Arctic Research Commission (USARC),^[8] provided an overview of U.S. Arctic policy research. Research is important to parliamentarians, he stated, because we operate in a knowledge economy where good information supports sound decision-making. To this end, parliamentarians should do what they can to help achieve efficiencies and promote investment in the knowledge economy. More research is needed in, for example, mapping (only 11% of Arctic land and sea is mapped to modern standards), assessing the impacts of resource development, and determining the best approaches to sustainable development in the region.

Mr. Farrell presented the U.S. government’s interagency five-year Arctic research plan, which was released in February 2013.^[9] The plan identifies seven overlapping research themes that “will inform national policy and benefit significantly from close interagency coordination”:^[10]

1.    Sea ice and marine ecosystems

2.    Terrestrial ice and ecosystems

3.    Atmospheric studies of surface heat, energy, and mass balances

4.    Observing systems

5.    Regional climate models

6.    Adaptation tools for sustaining communities

7.    Human health

Mr. Farrell emphasized the need to promote greater international cooperation and coordination in advancing scientific research in the Arctic. Mr. Farrell highlighted the Integrated Ocean Drilling Program as a successful example of such international cooperation.^[11] There is a particular need, he stated, for an internationally coordinated observing system to obtain scientific data and information in a number of research areas (e.g. climate). This has been discussed within the Arctic Council but scientists have not to date seen an integrated program developed.

In addition, Mr. Farrell drew attention to USARC’s daily newsletter^[12] and a recent compilation of research on oil spills in Arctic waters that includes recommendations for further research.^[13]

In discussion with members of the committee, Mr. Farrell noted that the melting of Arctic sea ice likely affects weather systems in the Arctic and elsewhere; however, current research is in its early stages and results are not yet conclusive. USARC’s latest annual “Goals” report explores the climate implications of the loss of Arctic sea ice.^[14]

D.   Institute of the North

Mr. Nils Andreassen, Executive Director of the Institute of the North, provided an overview of the work of the institute on Arctic issues in Alaska, nationally and internationally.

Mr. Andreassen indicated that the institute is an Alaska-based non-governmental organization that is focused on the human dimension of sustainable development in the Arctic, and in particular on the building of healthy, prosperous and resilient Arctic communities. The institute works to sustain national and international networks, conduct public outreach and education activities, and promote the development and application of U.S. Arctic research.

Mr. Andreassen highlighted recent work, coordinated by the institute, of the Arctic Maritime and Transportation Infrastructure Initiative (AMATII).^[15] This multi-stakeholder initiative builds on the work of the Arctic Council on Arctic infrastructure development, including the 2009 Arctic Marine Shipping Assessment. Work undertaken to date is viewable at AMATII’s website;^[16] other proposed activities are scheduled to be reviewed by ministers at the Arctic Council’s Ministerial Meeting in May 2013.

Mr. Andreasson also noted the role of the institute in supporting the development of Alaska’s Arctic policy and international policy at the Arctic Council. For example, the institute is involved in developing an awareness campaign in Alaska on the Arctic Council. He cited a recent public opinion survey published by the Munk-Gordon Arctic Security Program which found that a minority of people in the U.S. are aware of the Arctic Council and its work.^[17]

Members of the committee discussed the role of the institute in facilitating networks and exchanges among international stakeholders. The institute’s Circumpolar Policy Tours were noted as an effective means of exchanging information and strengthening cooperation among business, policy and community leaders.

E.   Topics for the Standing Committee until the Conference in 2014

Members of the committee considered possible topics for discussion in advance of the next Conference in 2014. One topic in particular may be the focus of a paper to be drafted to present at the 2014 Conference.

Topics under discussion included:

·Business and infrastructure development

·Cooperation in education and research

·Gender equality and gender-based analysis

·Integration of local knowledge in managing biodiversity (e.g. Article 8(j) of the Convention on Biological Diversity)

·Responsible Arctic resource development

·Development and security of infrastructure

 

Members generally agreed that issues of particular importance included business development, education and training opportunities (particularly for Northerners) and increasing the participation of local communities in decisions affecting the Arctic.

Members agreed to continue discussion with a view to identifying key issues and concrete measures and approaches to these issues. A representative of the University of the Arctic in attendance indicated that this institution would be prepared to assist in this process.

Members also discussed the need for continued follow-up with members’ respective governments on the Standing Committee’s 2012 Arctic governance paper^[18] and 2012 Conference statement.^[19]

F.    Election of new Vice-Chair of the Standing Committee

Members of the committee agreed to postpone the election of a new Vice-Chair to the next meeting of the Standing Committee in June 2013.

G.   Participation in meetings of the Standing Committee

Members of the committee discussed possibly expanding the number of participants from members’ delegations in meetings of the Standing Committee, including potential benefits and disadvantages. Some delegates noted that increasing participation in the meetings may inform more parliamentarians about Arctic issues. Others noted that such expansion may change the character of the Standing Committee by making it more formal and less efficient and flexible.

Other options to engage more parliamentarians in the Standing Committee’s work were also discussed. These included possible working groups, seminars and additional conferences. Members also discussed possibly extending a meeting of the Standing Committee in the year between Conferences to accommodate greater participation from members’ national parliaments.

It was generally agreed that options to increase participation in the Standing Committee’s work without formally expanding its membership should be explored. Members of the committee agreed to re-visit the issue at the next meeting of the Standing Committee in June 2013.

H.   Status of the work of the Standing Committee

Delegates provided updates on developments in their respective countries in relation to the Arctic. Further details on these presentations are provided in the minutes of the meeting (attached as Appendix 1).

The delegation from Canada provided the Standing Committee with an overview of Canada’s preparations to chair the Arctic Council from 2013 to 2015. The overarching theme for Canada’s term will be Development for the People of the North. There are three sub-themes: Responsible Arctic Resource Development, Safe Arctic Shipping and Sustainable Circumpolar Communities. The incoming Chair of the Arctic Council will be Leona Aglukkaq, Minister of Health and the Minister of the Canadian Northern Economic Development Agency, and the holder of a special ministerial portfolio created for the Arctic Council. The Chair of the Standing Committee, Mr. Morten Høglund, recently met with Minister Aglukkaq,^[20] and opportunities for parliamentary engagement will continue to present once Canada officially assumes the chair in May 2013.

I.      Next meeting of the Standing Committee

The next meeting of the Standing Committee will be held in the Svalbard Islands, Norway, on 3 to 5 June 2013.

Briefing from Administration Officials

Patricia Cogswell, Special Assistant to the President and Senior Director for the National Security Staff Transborder Directorate, briefed the Standing Committee on the Obama Administration’s strategic efforts in the Arctic region.

Ms. Cogswell stated that the Administration expects to release a national strategy for the Arctic in advance of the Ministerial Meeting in May, observing that such a strategy is needed to help coordinate and provide strategic guidance to the 20+ federal agencies currently engaged in some capacity on Arctic issues. It will also, she noted, serve to prioritize Arctic issues at the federal level.

In discussions with members of the Committee, Ms. Cogswell noted that the U.S. is increasingly looking to engage and partner with other nations on a variety of Arctic issues, and re-thinking how it engages with non-state actors (e.g. multinational entities).

Ms. Cogswell also stated that the Administration supports formal U.S. accession to the United Nations Convention on the Law of the Sea.^[21] In 2012, Secretary of State John Kerry, then the Chair of the Senate Foreign Relations Committee, presided over a series of hearings on issues surrounding the U.S. ratification of this treaty. While formal accession remains a divided issue in Congress, Ms. Cogswell noted that the U.S. has generally abided by the provisions of the treaty since the time of the Reagan Administration.

 

 

 

 

Respectfully submitted,

 

 

Mr. David Tilson,  M.P.
President, Canada-Europe Parliamentary Association