A National Marine Conservation Area Proposal for Lancaster Sound Feasibility Assessment Report Submitted by the Lancaster Sound National Marine Conservation Area Feasibility Assessment Steering Committee February 2017 Ce document est aussi disponible en français Cover page photo: © Mario Cyr
i A Study to Assess the Feasibility of Establishing a National Marine Conservation Area to Represent the Lancaster Sound Marine Region
Honourable Catherine McKenna Minister of Environment and Climate Change Government of Canada
Honourable Joe Savikataaq Minister of Environment Government of Nunavut
Mr. P.J. Akeeagok President Qikiqtani Inuit Association
The Lancaster Sound National Marine Conservation Area Feasibility Assessment Steering Committee respectfully submits its report entitled A National Marine Conservation Area Proposal for Lancaster Sound – Feasibility As- sessment Report in fulfillment of the Memorandum of Understanding signed by the Parties in December 2009.
Essentially, our report concludes that the establishment of a national marine conservation area in the Lancaster Sound region is feasible as the consultations we undertook found strong support within local Inuit communities and no reasons not to proceed. Furthermore, during our study, Shell Canada Ltd., the one company that possessed exploratory hydrocarbon licenses in Lancaster Sound voluntarily relinquished them. In the end, our Steering Com- mittee is recommending the establishment of a national marine conservation area approximately 109,000 square kilometres in size.
In the course of our work, we were struck by the strong support by Inuit for the conservation and protection of Lancaster Sound. We came to learn both the ecological importance of the Lancaster Sound area to marine wildlife that resides and migrates through this area, as well as the very direct reliance of Inuit communities on this region for sustaining life and culture.
We encourage each of you to work together to reach a decision on a boundary that hopefully can be announced to Canadians and the world in celebration of Canada’s 150 anniversary.
On behalf of the Steering Committee:
For the Government of Canada For the Government of Nunavut For the Qikiqtani Inuit Association
______Kevin McNamee David Monteith Joel Fortier Director, Protected Areas Director, Parks and A/Director, Lands Establishment Special Places and Resources Parks Canada Department of Environment
ii Acknowledgements
The members of the Lancaster Sound NMCA Feasibility Assessment Steering Committee have varied over the course of the feasibility assessment for a national marine conservation area in Lancaster Sound, but all had an important role to play. We therefore wish to recognize the dedication and support of all those who par- ticipated on the commitee: John Amagoalik, Nancy Anilniliak, Solomon Awa, Stephen Williamson Bathory, Jenna Boon, Nicholas Burnaby, Sarah Carriere, Rosanne D’Orazio, Niore Iqalukjuak, Steven Lonsdale, David Mablick, Bernie MacIssac, Tabitha Mullin, Jerry Natanine and Nigel Qaumariaq. The Steering Committee was very ably supported in its ongoing work by Diane Blanchard, Carey Elverum and Francine Mercier. The Steering Committee also gratefully acknowledges the following individuals for their invaluable contri- butions to the study and this report: Sam Arreak, Malachi Arreak, Ross Elgin, Garry Enns, Ron Hallman, Enookie Inuarak, Niko Inuarak, Nicholas Irving, Megumi Johns, Alan Latourelle, Ed McLean, Margaret Nowdlak, Leesee Papatsie, Ryan Parker, Christopher Pierce, Krista Royle, Pauline Scott, David Scott, Linda Vaillancourt, Daniel Watson, Danny Wright and Doug Yurick.
iii Table of Contents
Executive Summary...... 3 Introduction...... 7 Lancaster Sound – A Globally Significant Marine Area 8 National Marine Conservation Areas...... 10 The NMCA Program...... 10 Management of NMCAs...... 15 A Feasibility Assessment for the Lancaster Sound Area 17 Lancaster Sound NMCA Steering Committee...... 19 A Federal Government Boundary Proposal...... 19 Ecological Values and Traditional Knowledge...... 22 Ecological Values...... 22 Traditional Knowledge (Inuit Qaujimajatuqangit). 25 Economic Considerations...... 29 Tourism...... 29 Fisheries...... 32 Marine Transportation...... 34 Hydrocarbon Resources...... 36 Consultations...... 41 Comments Received...... 42 Conclusion...... 47 The Boundary...... 50 Recommendations...... 55 References...... 58 Annex 1...... 60
1 L. Narraway © Parks Canada/ 4
Photo : Luc Miousse © Parks Canada/ Wayne Lynch
Introduction
EXECUTIVE SUMMARY © Parks Canada/ Francine Mercier Lancaster Sound is a natural and the effect of its geography which with adjacent Inuit communities cultural seascape that is one of the makes it a natural migratory and key stakeholders, and the most significant ecological areas corridor for numerous species, completion of various studies. This in the world. It is the “ecological and of physical processes such report summarizes the results of engine” for much of the Eastern as currents, tides and upwelling the feasibility assessment and of Arctic, exploding with life in the which result in polynyas and high the Steering Committee’s work and spring and summer with the return biological productivity. Regardless recommendations. of the sun and warm weather. of climate change, Lancaster Hundreds of thousands of seabirds Sound will remain an ecologically Established under the Canada and marine mammals migrate to important area as the processes National Marine Conservation the area to feed and reproduce. It which are responsible for its Areas Act, national marine is critical habitat for species such productivity will remain, though conservation areas (NMCAs) are as the polar bear, bowhead whale, species composition might change a type of marine protected area narwhal and beluga whale. over time. administered by Parks Canada. Their goal is to protect and For Inuit living in the Lancaster The idea of protecting the conserve areas representative Sound region -- Tallurutiup international, national and of Canada’s diverse marine Tariunga as it is known locally – regional values of Lancaster Sound environments for the benefit, it is a home rich in culture and has been a recurring theme since education and enjoyment of wildlife. Tallurutiup Tariunga has the late 1970s. In 2009, work Canadians. NMCAs are multi-use given food, shelter, materials and began in earnest as a federal – areas which balance protection tools in such abundance that Inuit territorial – Inuit agreement and sustainable use through have been able to thrive in one launched a joint study to determine management as well as zoning, of the harshest environments on the desirability and feasibility of in cooperation with local people. Earth. It is the heart of High Arctic establishing a national marine Mineral and hydrocarbon Inuit existence and its bounty conservation area in Lancaster exploration and development and supports a traditional way of life, Sound. This work was led by a ocean dumping are prohibited. one that is strong in language, Steering Committee composed of Sustainable commercial uses, culture, and customs. Parks Canada, the Government of notably fishing and shipping, Nunavut and the Qikiqtani Inuit are permitted and continue to Lancaster Sound’s influence Association (QIA). There followed be regulated by Fisheries and extends far beyond its boundaries, several years of consultations Oceans Canada and Transport 3 Canada respectively, in keeping illustrating the Inuit perspective ecosystem facing climate with the purpose and conservation of the region, leading to a more change; and objectives of the NMCA. universal ecological and social outlook on the proposed NMCA. • encouraging ecologically Under the terms of the Nunavut sustainable economic Land Claims Agreement, The Steering Committee opportunities in the region. traditional harvesting rights of concluded that the establishment, Inuit will continue to be upheld development and operation of a With the announcement by within the proposed NMCA. In national marine conservation area Shell Canada Limited on June 8 addition, the establishment of in Lancaster Sound can provide (Oceans Day) 2016 that it an NMCA in Lancaster Sound a number of ecological and social voluntarily relinquished 8,600 will require an Inuit Impact benefits, including: square kilometres of hydrocarbon and Benefit Agreement to be exploration permits in offshore negotiated between Inuit and • conserving the rich biodiversity Lancaster Sound, there are government. This agreement will and maintaining ecological presently no hydrocarbon cover the implementation of the processes and life support exploratory permits in either financial, employment, training systems of the Lancaster Lancaster Sound or the Canadian and educational requirements, the Sound marine ecosystem for portion of Baffin Bay. Nor are economic benefits, as well as the the benefit of marine species, there any indications that industry cooperative management of the Nunavummiut and Canadians; is ready to proceed with any NMCA. hydrocarbon developments in • establishing a collaborative the Canadian Arctic offshore, Over the course of the feasibility relationship between Canada given significant environmental assessment, the Steering and Inuit that would guide challenges and low oil prices. Committee gathered information current and future activities Nonetheless, prior to governments on ecological values, tourism in Lancaster Sound to ensure making a final decision on a opportunities, fisheries, marine the ecological and cultural boundary, additional study of transportation and potential viability of the area for future the hydrocarbon potential of hydrocarbon resources. It used generations; the proposed Lancaster Sound Inuit Qaujimajatuqangit (Inuit • protecting and conserving NMCA is needed to provide traditional knowledge) alongside species at risk and their governments and QIA with the scientific knowledge to get a habitats; necessary information to make an more complete understanding informed decision with respect to of the use and value of the area. • protecting the Inuit way of life a final boundary. The Geological Consultations were conducted in and Inuit traditions through Survey of Canada is to complete its the five communities adjacent to protection of the marine assessment by March 31, 2017. the NMCA proposal (Pond Inlet, environment and marine Arctic Bay, Grise Fiord, Resolute wildlife food sources; The Steering Committee considered the following when Bay and Clyde River), with 32 • allowing all activities within the community meetings attended delineating a boundary for an NMCA, including fisheries and NMCA in Lancaster Sound: by over 430 people. Input was marine transportation activities, solicited from regional and to be managed in a more • the views of local Inuit national stakeholders including ecologically holistic manner; communities; industry and non-government organizations. • protecting historical resources, • the ecological values identified such as shipwrecks and through contemporary science During the consultations, all five archaeological sites; and Inuit Qaujimajatuqangit; communities expressed significant support for the protection of • providing opportunities for • Inuit traditional use of the the entire Lancaster Sound visitors to experience and Lancaster Sound region; region and the establishment of appreciate this environment; • cultural values; an NMCA, and no substantive reasons to abandon or not pursue • encouraging ecological research • hydrocarbon resource the proposal were raised. Inuit and monitoring; assessments Qaujimajatuqangit proved to be • providing a level of resilience • the only industrial hydrocarbon fundamental in understanding and to the fragile Arctic marine 4 permit holder in the area communities over the prospect of • narwhal, beluga and bowhead voluntarily relinquished its future oil and gas development, it whale aggregations; exploration permits; does not bring certainty nor the potential environmental, social • the largest polar bear • the views of stakeholders; and and economic benefits that would subpopulation in the Arctic; and • government priorities and accrue to the Lancaster Sound • Inuit cultural sites, as well as commitments, in particular, to region through its protection under heritage sites associated with protect representative marine the Canada National Marine the history of the search for the regions within a system of Conservation Areas Act. Northwest Passage. national marine conservation The Steering Committee concluded The establishment of a national areas and to achieve the that a Lancaster Sound NMCA protection of 10 percent of marine conservation area in is feasible and recommends a Lancaster Sound is an investment Canada’s coastal and marine boundary approximately 109,000 areas by 2020. worth pursuing for the benefit of square kilometres in size which present and future generations, Just as the Steering Committee would result in the protection of: and one that would produce a new was completing its work, the • a highly interconnected relationship between Canada and Government of Canada announced ecosystem that includes Inuit that is in the national interest on December 20, 2016, that it was important migratory, feeding, and of international significance. designating all Arctic Canadian nursery and breeding areas for a An expeditious decision by waters as indefinitely off limits to variety of species; future offshore Arctic oil and gas governments and QIA in response licensing, to be reviewed every • polynyas, which are depended to the Steering Committee’s five years through a climate and on by wildlife for survival and recommendations would allow marine science-based assessment. by Inuit for harvesting; the parties to announce a final Although this indefinite boundary as part of the Canada moratorium applies to the • various sites that support Inuit 150 celebrations in 2017 and Lancaster Sound area, it does not traditional land use and Inuit allow negotiations on an Inuit diminish the need nor the value of way of life; Impact and Benefit Agreement to commence in a timely fashion. designating Lancaster Sound as an • essential migratory habitat NMCA. And while the moratorium for the majority of the world’s could be viewed as a temporary narwhal population; response to the concerns of local
5 © Parks Canada/ Diane Blanchard 6 Francine Mercier © Parks Canada/
INTRODUCTION
What makes a place special? both in the Circumpolar Arctic growth and employment in an area Posing this question to people who and globally. Rich in nutrients where few economic opportunities intimately know the Lancaster as a result of the interactions presently exist. For some, the Sound region elicits an immediate between bathymetry, currents and prospect that the ice will retreat and heartfelt response which varies environmental conditions, the with climate change means the depending on your perspective. Lancaster Sound region supports Sound will open up to more traffic, significant populations of a number prompting greater opportunities. For Inuit living in the Lancaster of Arctic marine species. Sound region, it is home. For these reasons, the idea of Tallurutiup Tariunga (Tall-lo- Tourists view Lancaster Sound as a protecting Lancaster Sound has ro-tee-oop Taa-ree-o-nga), as it unique destination that gives them been a recurring theme since the is known locally, is a home rich an opportunity to see large seabird late 1970s. In 2009, work began in in culture and rich in wildlife. So colonies, polar bears, beluga earnest as a federal – territorial- plentiful are the animals that it has whales, walrus, narwhal, icebergs, Inuit agreement launched an been able to provide sustenance and spectacular glacier and fjord assessment of the feasibility of to Inuit for thousands of years scenery, as well as an opportunity protecting Lancaster Sound as and to this day it still provides. to discover and learn about Inuit part of Canada’s national marine Tallurutiup Tariunga has given culture and the quest for the conservation areas system, led by food, shelter, materials and tools Northwest Passage. a Steering Committee composed in such abundance that Inuit have of Parks Canada, the Government been able to thrive in one of the If you ask historians what makes of Nunavut and the Qikiqtani Inuit harshest environments on earth. Lancaster Sound special, they will Association. It is the heart of High Arctic Inuit recount stories of early human existence and its bounty supports settlement, exploration and This report presents the results a traditional way of life, strong in discovery where multiple layers of the feasibility assessment language, culture, and customs. of human drama and tragedy and the Steering Committee’s Inuit share a special relationship unfolded over time, including recommendations. with this exceptional place. the European quest to discover a northern trade route to the Orient Tallurutiup Tariunga, refers to the snow streaked mountains Scientists see the Lancaster Sound through the Northwest Passage. rising from the Arctic waters region as an engine of ecological of Lancaster Sound which productivity and recognize it as one Industry and small business see the Lancaster Sound region as resemble the “tattooed chin of of the most important marine areas a woman”. an exciting prospect to generate
7 ©Parks Canada/ L. Narraway
LANCASTER SOUND: A GLOBALLY SIGNIFICANT MARINE AREA
The Canadian Arctic is in a productivity has far reaching Above the waters and ice, the frozen state for the majority of consequences for the Eastern area is dominated by 300 to 400 the year and has only a few well Arctic as a whole. The currents in meter high cliffs, cut by numerous adapted species remain there in Lancaster Sound convey food over inlets, bays and spectacular fjords. all seasons. However the waters of a much wider area, leading to large Beneath the surface, the seabed the eastern entrance to Lancaster aggregations of a broad range of deepens progressively from Sound remain open most of the marine mammals, seabirds and 300 meters in the west to 800 year, the result of the interaction other species which depend on the meters at the mouth of Lancaster of several major currents, along area for their survival. Sound, with strong currents and with winds and bathymetry, which tides of up to 2 metres in height. bring an abundance of nutrients As a result, this area is the Approximately 3600 people live in to the surface and support the “ecological engine” for much of the close proximity to this area, spread food chain from the bottom up. Eastern Arctic, exploding with life out among the communities of In winter, these currents help for a brief period in the spring and Pond Inlet, Arctic Bay, Resolute create polynyas, shore leads and summer with the return of the sun Bay, Grise Fiord and Clyde River. floe edges (Figure 1); in the spring and warm weather. It is the reason The population is primarily Inuit. and summer, they enhance that hundreds of thousands of seabirds They use the area extensively and productivity and export it to a and marine mammals migrate to travel in some cases hundreds of wider region. the area to feed and reproduce. It kilometres by boat or snowmobile is critical habitat for iconic species to harvest fish, birds, seals and The area proposed as a national such as the polar bear, bowhead other marine mammals for food marine conservation area (NMCA) whale, narwhal and beluga whale. and clothing, according to the includes much of Lancaster Sound The importance and influence of seasons. itself -- a long, 100 kilometre this nutrient-rich area extends out wide passage in the heart of the for thousands of kilometres and in The importance of the Lancaster Canadian Arctic Archipelago turn ensures the survival of Inuit Sound region to Inuit extends in Nunavut. This area is one of culture and the ability of Inuit to beyond subsistence. The region is the most productive areas in the sustain their traditional ways of life well known for traditional travel Circumpolar Arctic. The abundant in the High Arctic. routes and archaeological sites that
8 demonstrate the importance of the area to Inuit and their ancestors. The area has historically been used as a travel route to Greenland by early Inuit who eventually settled there. Inuit oral history shows bilateral travel of Inuit from coast to coast between Canada and Greenland (Denmark) long before the countries were founded. The natural wealth of the area also offers Inuit families an opportunity to generate income as guides and outfitters for tourism and sport- hunting. POLYNYAS AND SHORE LEADS
Ice is the predominant feature of the Arctic marine environment, and ice related habitats are prevalent during most of the year. Recurring polynyas and shore leads – areas of open water surrounded by sea ice – play a crucial role in Arctic marine ecosystems. The result of various combinations of currents, tides, upwelling and winds, polynyas permit ice edge ecosystems to Figure 1. Satellite image of the Lancaster Sound and North Water polynyas develop based on intense primary in 2015. (MODIS imagery from earthdata.nasa.gov/labs/worldview) production by algae within the ice itself and of phytoplankton (microscopic marine plants) stimulated by the greater intake INTERNATIONAL RECOGNITION of light energy in the spring in the adjacent open waters. These ice or Lancaster Sound is a natural and cultural seascape internationally floe edges are biological ‘hotspots’, recognized as one of the most significant ecological areas in the world: attracting fish, birds and marine mammals, and serving as hunting • Recognized as a natural site worthy of World Heritage Site platforms for both animals and status by the International Union for the Conservation of humans. Nature (IUCN) in the 1980s.
The most important polynyas • Identified as a Super Ecologically and Biologically Significant occur each year (know as Area for the Arctic by the IUCN and the Natural Resource “recurrent polynyas”) and marine Defense Fund in 2010. mammals and birds rely on these • Identified as an area of heightened ecological importance by areas as overwintering sites, the Arctic Council in 2013. migratory stop-overs and spring feeding areas. The Inuit have • Identified as a potential Arctic marine World Heritage Site by for millennia depended on these the IUCN, Natural Resource Defense Fund and the Marine polynyas for their open water in World Heritage Program of UNESCO in 2016. winter and their abundance of wildlife.
9 © Mario Cyr
NATIONAL MARINE CONSERVATION AREAS
THE NMCA PROGRAM
National marine conservation • consider implications for Act states: areas (NMCAs) are marine ecosystems in the planning and • Marine conservation areas are protected areas established by management of NMCAs; Parliament under the Canada established for the purpose National Marine Conservation • provide opportunities for the of protecting and conserving Areas Act and administered by people of Canada and the representative marine areas Parks Canada. When the Act was world to appreciate and enjoy for the benefit, education and proclaimed in 2002, Parliament Canada’s natural and cultural enjoyment of the people of affirmed that it was in the national marine heritage; Canada and the world. interest to pursue a system of • consider traditional ecological • Marine conservation areas national marine conservation knowledge in the planning shall be managed and areas that are representative of the and management of marine used in an ecologically Atlantic, Arctic and Pacific Oceans conservation areas; and sustainable manner that and the Great Lakes. meets the needs of present • provide opportunities, Parliament also affirmed a need to: and future generations through the zoning of marine without compromising the • ensure that Canada contributes conservation areas, for the structure and function of the to international efforts for the ecologically sustainable use ecosystems, including the establishment of a worldwide of marine resources for the submerged lands and water network of representative lasting benefit of coastal column, with which they are marine protected areas; communities. associated. • recognize that the marine The Canada National Marine • Each marine conservation environment is fundamental Conservation Areas Act sets some area shall be divided into to the social, cultural and clear guidance on the purpose, zones, which must include economic well-being of people management and use, and zoning at least one zone that fosters living in coastal communities; of NMCAs. More specifically the and encourages ecologically 10 sustainable use of marine a portion of each region as an resources and at least one NMCA. The resulting system of NMCAS AND CANADA’S zone that fully protects special NMCAs will collectively protect NATIONAL NETWORK OF features or sensitive elements examples of Canada’s marine MARINE PROTECTED AREAS of ecosystems, and may heritage for present and future include other types of zones. generations. NMCAs are part of a larger commitment to establish a comprehensive network In keeping with Parliament’s There are presently four sites that of marine protected areas in Canada’s direction, the long-term goal of the represent five regions in Canada’s oceans. In addition to NMCAs, two other NMCA program is to protect and NMCA system totaling 15,740 complementary federal programs form conserve areas representative of square kilometres: the backbone of this national marine protected area network: the diversity of Canada’s marine • Gwaii Haanas NMCA Reserve environments within a system of • Marine National Wildlife Areas NMCAs and to offer Canadians the and Haida Heritage Site in established by Environment Canada opportunity to visit, meaningfully British Columbia; primarily to protect critical seabird habitat; and experience and personally connect • Fathom Five National Marine with these marine areas. The Park in Ontario; • Marine Protected Areas established notion of protecting representative by Fisheries and Oceans Canada areas is affirmed as part of national • Lake Superior NMCA in to protect and conserve specific or marine protected area planning Ontario; and threatened marine resources and habitats. and biodiversity goals. • Saguenay- St. Lawrence Marine Park in Quebec. • These two types of MPAs are single To achieve this goal, Canada’s purpose designations while Parks waters have been divided into 29 Canada’s NMCA program has a marine regions based on biological broader purpose that includes and oceanographic characteristics protecting and conserving a (Figure 2). The objective of the representative sampling of Canada’s natural and cultural marine heritage NMCA program is to set aside and providing opportunities for public education and enjoyment. © Mario Cyr 11 Figure 2: National marine conservation areas system map showing the 29 mae regions, with location of existing sites and proposals.
12 NMCAs are established using the following process, depicted in Figure 3 with the proposed Lancaster Sound NMCA as an example: • Identify and Select Area: Parks Canada works to identify a number of marine areas which are representative of the biological, geological, oceanographic and cultural features of the marine region and that could merit protection as NMCAs. Working with other partners, Parks Canada then selects a potential NMCA from this list. • Assess Feasibility: Should there be support from implicated provincial and territorial governments and Indigenous governments and organizations, an assessment of the feasibility and desirability of protecting a specific site as an NMCA is undertaken, including consultations. • Decision on Feasibility: Based on the results of the feasibility assessment, the relevant Parties determine whether establishment of an NMCA should proceed. • Negotiate Agreements and Develop Interim Management Plan: Should the Parties agree that protecting a specific site is feasible, the next step is to negotiate an establishment agreement or agreements that sets out the terms and conditions under which the area will be administered and managed. At the same time, an interim management plan is developed through consultations to guide management during the first five years of operations. • Establish in Legislation: The final step is formal designation of the area under the Canada Figure 3: Steps towards the establishment of an NMCA, National Marine Conservation using the proposed Lancaster Sound NMCA as an example. Areas Act. The step currently being completed for the proposal is outlined in red.
13 © Parks Canada/ Diane Blanchard 14 As noted above, Parliament fisheries and marine transportation affirmed a need in passing MANAGEMENT OF NMCAs within NMCAs, these activities are the Canada National Marine to be managed in collaboration Conservation Areas Act for Canada NMCAs are composed of the with Parks Canada in keeping with to contribute to international seabed and water column and may the purpose of NMCAs, the Canada efforts to establish a worldwide include wetlands, estuaries, islands National Marine Conservation network of marine protected and other coastal lands. Parliament Areas Act (CNMCA Act) and the areas. In that context, in 2010, made it clear that in order to long term conservation objectives Canada joined with other nations protect marine ecosystems and of the specific NMCA. in adopting a target to protect at maintain biodiversity, the primary least 10 percent of coastal and considerations in the development NMCAs are managed through a marine areas by 2020. In 2015, the and modification of management management plan with the goal federal, provincial and territorial plans shall be the principles of of providing for sustainable uses governments adopted the 10 ecosystem management and the within these areas consistent with percent target as one of 19 targets precautionary principle. the need to maintain the structure under the “2020 Biodiversity Goals and function of their marine NMCAs are multi-use marine and Targets for Canada”. And in ecosystems. The plan provides areas containing zones of high 2016, the Prime Minister directed guidance to managers and users protection. Activities such as the federal Minister of Fisheries, about the day-to-day management commercial and recreational Oceans and the Canadian Coast and use of the area. Parliament fishing, marine transportation Guard and the Minister of requires that the first management and a range of recreation and Environment and Climate Change plan be tabled in Parliament five tourism activities may continue to work with others to protect 5 years after the area has been legally in an NMCA, managed in an percent of Canada’s coastal and established under the Act. ecologically sustainable manner. marine waters by 2017, and 10 However, undersea mining and Zoning is an essential part of the percent by 2020. exploration and development of oil NMCA management plan. Its main National marine conservation and gas resources, as well as ocean purposes are to define and map the areas are a major component of dumping, are prohibited. Marine different levels of protection and how Canada will achieve these transportation continues to be use that will occur in the NMCA international and domestic targets administered under the Canada as well as to separate potentially goals. The establishment of a Shipping Act and fishing under the conflicting human activities. national marine conservation area Fisheries Act. Regular consultation and direct in Lancaster Sound would be a involvement of resource users and Although Fisheries and Oceans major contributor, protecting up residents of the surrounding region Canada and Transport Canada to 1.9% of Canada’s marine estate is essential to the preparation retain their responsibilities for depending on the final boundary. and implementation of the © Parks Canada/ Francine Mercier 15 management plan. The creation of a management advisory committee is therefore required for each ECOLOGICAL SUSTAINABILITY OF NMCAS NMCA under the CNMCA Act. These would be in addition to any NMCAs are to be “managed and used in a sustainable manner cooperative management boards that meets the needs of present and future generations without required under a land claim compromising the structure and function of the ecosystems […] with agreement or NMCA establishment which they are associated.” arrangements with Indigenous CNMCA Act organizations. NMCAs are managed in a way that In other words: respects traditional Indigenous An NMCA aims to harmonize conservation with human activities cultural uses, including continued consistent with the values of the NMCA. traditional harvesting, and responds to the needs of local communities. In Nunavut, NMCAs are to be established and managed in accordance with the Nunavut KEY FEATURES OF NMCAS Land Claims Agreement, which • A type of marine protected area with conservation and economic requires the negotiation of an Inuit benefits administered by Parks Canada under the Canada National Impact and Benefit Agreement Marine Conservation Areas Act and managed collaboratively with (IIBA) providing Inuit with an others. opportunity to secure benefits from the establishment, planning and • Protect and conserve areas representative of Canada’s marine and management of protected areas Great Lakes environments for the benefit, education and enjoyment in the Nunavut Settlement Area. of Canadians. Inuit will also participate directly in the management of any NMCAs • Multi-use areas which balance protection and sustainable use created in Nunavut. through management as well as zoning.
• Mineral and hydrocarbon exploration and development are prohibited.
• Ocean dumping (i.e. disposal of any substance in the waters of an NMCA) is prohibited under the Canada National Marine Conservation Areas Act except in special circumstances.
• Traditional harvesting rights are not affected.
• Must be zoned, including zones which fully protect special features and sensitive elements of ecosystems and zones where the ecologically sustainable use of renewable marine resources may occur.
• Commercial uses are permitted, so long as they are ecologically sustainable, including fishing and shipping but they may be prohibited in the special protection zones which must be put into place in each NMCA.
• Fisheries and Oceans Canada and Transport Canada continue to regulate fishing and marine transportation activities, in keeping with the purpose of NMCAs and the specific conservation objectives of each NMCA.
• Local support and continued involvement in management is © Parks Canada/ Diane Blanchard essential.
16 © Mario Cyr
A FEASIBILITY ASSESSMENT FOR THE LANCASTER SOUND AREA
Lancaster Sound was first proposed In its 2007 budget, the Government Thus, in December 2009, the federal by Parks Canada as a marine of Canada indicated its intention to and Nunavut governments and protected area during the 1980s but create additional marine protected QIA announced the signing of a work on the proposal was postponed areas in Canada. It provided $5 Memorandum of Understanding as Inuit and Government moved million to assess the feasibility (MOU) (see Annex 1) to examine to complete the Nunavut Land of establishing a national marine the desirability and feasibility of Claims Agreement. Communities conservation area in Lancaster establishing a national marine also wished to first focus on the Sound, which would conserve a conservation area in Lancaster establishment of terrestrial national significant representative component Sound. The MOU specified that parks in the eastern Arctic, most of of Canada’s marine environment the study would consider social, which were completed in the early and serve as a clear demonstration environmental and economic 2000s, including Sirmilik National of Canadian sovereignty in the benefits of establishing an NMCA Park which is located immediately Northwest Passage. and included a general description of adjacent to Lancaster Sound. In a study area for the NMCA proposal, addition, the initial National Marine Through the process prescribed but also stated that boundary Park Policy prohibited sports by the Nunavut Land Claims options were to be considered as hunting, which was a major concern Agreement, the Qikiqtani Inuit part of the feasibility assessment. for northern communities, given the Association (QIA) was identified as It provided for funding to enable economic importance of this activity. the Designated Inuit Organization the full participation of QIA and to The revised NMCA Policy released in responsible for ensuring that Inuit undertake a traditional knowledge 1994 allowed for this activity, in the concerns and wishes would be voiced study which would inform boundary same way it allowed for commercial and heard throughout the process decisions. The MOU also created fisheries. Sport hunting in an NMCA to establish an NMCA in Lancaster a Steering Committee to guide the would continue to be administered Sound. process. under existing legislation and regulations.
17 © Mario Cyr 18 and key stakeholders, including LANCASTER SOUND industry. The concerns and opinions A SHORT HISTORY OF NMCA STEERING respecting the Lancaster Sound AN NMCA PROPOSAL COMMITTEE NMCA proposal expressed during IN LANCASTER SOUND the consultations informed Steering Established pursuant to the Committee discussions and their 2007 – Federal budget provides 2009 MOU, the Lancaster Sound recommendations to governments and direction and funding for the National Marine Conservation Area QIA. feasibility assessment of an NMCA Feasibility Assessment Steering in Lancaster Sound. Committee (“Steering Committee”) A FEDERAL 2009 – Governments of Canada has equal representation from each GOVERNMENT and Nunavut and Qikiqtani of the three signatory Parties. The BOUNDARY PROPOSAL Inuit Association (QIA) sign a Steering Committee was mandated Memorandum of Understanding to guide the feasibility assessment to launch a feasibility assessment process, bearing in mind the social, In December 2010, the Government on a proposed Lancaster Sound environmental and economic of Canada announced for consultation NMCA and establish the Steering benefits and impacts of establishing purposes its position on a potential Committee. future boundary for an NMCA in an NMCA. At the end of the process, 2010 – Government of Canada the MOU directed that the Steering Lancaster Sound. The proposal totaled 44,300 km2 (see Figure announces its position on a Committee submit a report to the potential future boundary of 4) and was put forth as a basis for Environment Ministers of Canada 44,300 km2 for an NMCA in and Nunavut and to the President discussions, with final decisions Lancaster Sound. of QIA, concluding whether the regarding a boundary to be NMCA was feasible and under what informed by consultations and by 2011-2016 – The Steering conditions and recommending a an assessment of the area’s energy Committee, established under the 2009 MOU, conducts community boundary. resources and its ecological values, based on both contemporary science consultations, key stakeholder Between 2011 and 2016, the and traditional knowledge. The consultations and completes Steering Committee supervised federal government also made it clear ecological and traditional knowledge studies. A resource the completion of various studies that while the feasibility assessment assessment was also completed by (traditional knowledge, ecological was underway, exploration or Natural Resources Canada. values, energy resource assessment development of petroleum resources and tourism opportunities) within the proposed boundary would 2016 – Federal budget announces and undertook consultations not be permitted, nor would they be funding to establish an NMCA in with local Inuit communities allowed in an established NMCA. Lancaster Sound. © Mario Cyr 19 BENEFITS OF AN NMCA IN LANCASTER SOUND
An NMCA in Lancaster Sound can provide a number of ecological and social benefits, including:
• conserving the rich biodiversity and maintaining the ecological processes and life support systems of the Lancaster Sound marine ecosystem for the benefit of marine species, Nunavummiut (“people of Nunavut”) and Canadians;
• establishing a collaborative relationship between Canada and Inuit, formalized through an Inuit Impact and Benefit Agreement and implemented through a Joint National Marine Conservation Area Management Board, that would guide current and future activities in Lancaster Sound to ensure the ecological and cultural viability of the area for future generations;
• protecting and conserving species at risk and their habitats, like the bowhead and beluga whales, narwhal, walrus and polar bear;
• helping to preserve the Inuit way of life and Inuit traditions through protection of the marine environment and marine wildlife food sources;
• allowing all activities within the NMCA to be managed in a more ecologically holistic manner;
• protecting historical resources, such as shipwrecks and archaeological sites;
• providing opportunities for visitors to experience and appreciate this environment;
• encouraging ecological research and monitoring;
• providing a level of resilience to the fragile Arctic marine ecosystem facing climate change;
• encouraging ecologically sustainable economic opportunities in the region;
• supporting the traditional use of five Inuit communities adjacent to the NMCA: Pond Inlet, Arctic Bay, Resolute Bay, Grise Fiord and Clyde River; and
• representing the diversity of the Lancaster Sound marine region.
The establishment of an NMCA will require an Inuit Impact and Benefit Agreement to be negotiated with Inuit which will see the implementation of the financial, employment, training and educational requirements, the economic benefits, as well as the cooperative management of the NMCA as outlined in the Nunavut Land Claims Agreement.
The intrinsic value of protecting wildlife, harvesting rights and Inuit knowledge cannot be underestimated – these generate benefits on a much wider scale, including providing benefits for local communities, encouraging responsible management, and providing valuable ecosystem services over the longterm. © Parks Canada/ Francine Mercier 20 Figure 4: 2010 Government of Canada position on a potential boundary for an NMCA in Lancaster Sound. The map also shows the location of the Shell Canada exploration permits which were subsequently contributed to the Nature Conservancy of Canada in 2016.
DRAWING THE FEDERAL BOUNDARY PROPOSAL
The 2010 federal boundary proposal was based on the general study area description provided in the MOU. Discussions amongst the federal departments with interests in the seabed of a potential NMCA in Lancaster Sound (Indigenous Affairs and Northern Development, Natural Resources Canada and Parks Canada) led to the eastern limit being drawn to exclude known potential petroleum structures and the then existing petroleum exploration permits held by Shell Canada Ltd.
The Government of Nunavut and the Qikiqtani Inuit Association were not involved in determining the federal boundary. The boundary served as a starting point for consultations and did not preclude considering other boundary options for the NMCA as stipulated in the Lancaster Sound NMCA Feasibility Study Memorandum of Understanding signed in 2009 by the governments of Canada and Nunavut and the Qikiqtani Inuit Association.
21 © Mario Cyr
ECOLOGICAL VALUES AND TRADITIONAL KNOWLEDGE
ECOLOGICAL VALUES
An ecological values study as concentration areas (feeding, • Wind and current-driven was prepared to address the breeding, moulting), migration upwelling bring nutrients to requirements of the MOU and as routes, shore leads and polynyas. the surface, leading to high part of the necessary considerations Simple overlay techniques were used productivity along the floe for the federal boundary proposal. to identify areas of high conservation edges of polynya and during the The results were published in a value. As the number of layers open water season. Currents at report entitled Updated Assessment which overlap increases, “biological the mouth of Lancaster Sound of the Ecological Values of Lancaster hotspots” are revealed (see Figure 5). move nutrients east, west, Sound in the Eastern Canadian north and south, nourishing Arctic (Yurick and Mercier, 2013). The updated ecological assessment the entire region. This study provided a summary of confirmed many things about the the scientific information gathered Lancaster Sound region that had • Lancaster Sound is a major with respect to the Lancaster Sound been known since the 1980s and east-west migratory corridor region since the 1970s and updated it provided greater insight into others, leading from Baffin Bay with more current information about specifically: into the Arctic Archipelago and linking wintering and the area’s species and ecosystems. • Lancaster Sound is a globally- It was completed primarily within summering areas – most significant ecological treasure species present are migratory the limits of the 2010 federal that is the ecological engine of boundary but includes data which and they all depend on the entire eastern Canadian Lancaster Sound as they move extends beyond. It also complements Arctic marine ecosystem. the traditional knowledge study from one essential habitat to undertaken by the Qikiqtani Inuit • Part of its importance is linked another (see Figure 5). Association. to the presence of polynyas – • Lancaster Sound provides large open water winter oases The information gathered was essential habitat for narwhal in the Arctic – which allow (up to 75% of global analysed using geographic early productivity and attract information system (GIS) methods. population); beluga (20% of large numbers of marine birds Canadian population); polar Eighteen layers of data were and mammals. These are also used in this analysis, related to bears (largest subpopulation in areas where Inuit undertake Canada); and several seabird the importance of the area for many traditional activities. species or groups of species, such species (some of the largest 22 colonies in the Canadian full width of eastern Lancaster Baffin Bay narwhal population: Arctic) (see Figure 5). Sound and of the coastal waters • Canadian High Arctic total: along the entire length of the 142,000 • Eastern Lancaster Sound and sound and north and south into the coasts of Lancaster Sound Baffin Bay. • Jones Sound: 12,500 and Baffin Bay have been identified as the areas with Subsequent to the publication of • Smith Sound: 16,000 the highest conservation value the Parks Canada ecological values as a result of the number and study, Fisheries and Oceans Canada • Somerset Island: 50,000 abundance of species which conducted a cetacean survey in • Admiralty Inlet: 35,000 depend on them. August 2013, which for the first time surveyed most of the main narwhal • Eclipse Sound: 10,500 • Regardless of climate change and bowhead whale aggregation • East Baffin Island: 17,500 and potential change in areas in the Canadian High Arctic ice cover, Lancaster Sound during one summer (DFO 2015a; Eastern-Canada West-Greenland will remain an ecologically 2015b). This survey reinforced bowhead whale population: important area as the the importance of the Lancaster physical processes which are Sound region for both narwhal and • Canadian High Arctic total: responsible for productivity bowhead whales and provided the 6,500 remain, though species following estimates for the Canadian • Admiralty Inlet: 100 composition may change over High Arctic and more specifically for time. areas in, or adjacent to, the Lancaster • Prince Regent Inlet: 900 Sound region (see Figure 5): • This study confirms the critical • Eclipse Sound: 30 ecological importance of the • East Baffin Island: 2,100 © Mario Cyr 23 Ecological values within the Lancaster Sound region, based on contemporary science. The map shows major marine mammal Figure 5: migration routes in the region, known walrus haulouts, areas where beluga regularly aggregate, as well concentrations densities for seabirds and narwhal bowhead whales. The map also shows the relative conservation values for region, based on a simple overlay of 18 layers information related to the importance of area for species or groups species. Where 8 more layers overlap, these areas were classified as high or very high, making them “biological hotspots. Based on available information. Polynyas are considered critical in and of themselves.
24 sustaining populations of the High IQ is a holistic approach to gathering TRADITIONAL Arctic through subsistence hunting and understanding information and KNOWLEDGE (INUIT that supports all facets of traditional relates to Inuit traditional land use. QAUJIMAJATUQANGIT) activities. Through the practice of IQ is the basis for survival in the traditional activities, people are able Arctic. It is the passing of traditional In 2012, the Qikiqtani Inuit to provide for themselves and their knowledge and proven best practices Association (QIA) published families while fostering a healthy amongst a people. It has occurred Tallurutiup Tariunga Inulik sense of cultural strength and for hundreds of generations and the (QIA, 2012) to provide Nunavut identity amongst a people. result is a collective knowledge bank Land Claims Beneficiaries with of oral history that has allowed Inuit an introduction to the proposed “Inuit have a very strong emotional to gain an insightful understanding national marine conservation area link to the land and wildlife. The of their environment. in Lancaster Sound, and to inform establishment of an NMCA is Parks Canada, the Government of important for our traditional lifestyle “Money comes and goes, but when Nunavut and other interested parties and country food - the ocean is like the animals are gone, they are gone: about Inuit perspectives on marine a forest to us and we feed on the culture trumps economics every time conservation. In 2014, based on animals in the ocean.” for Inuit.” community consultations with Inuit, the QIA Board of Directors brought Community Consultations Community Consultations forward a boundary proposal to December, 2013 December, 2013 inform further discussions with governments. Traditional knowledge, also referred to as Inuit Qaujimajatuqangit Tallurutiup Tariunga is the Inuit (Khao-yee-muh-yah-tut-khanggeet) place name for Lancaster Sound. (IQ), is a source of information The high productivity of the area based on historical and/or current provides an abundant food source observations by Inuit which has of a variety of species and Inuit are been passed on orally over several dependent on this unique ecosystem lifetimes. A large portion of IQ is tied for both physical and cultural to harvesting and the environment, sustenance. This is an important but it is also directly linked to area to Inuit and has served as a local socio-economics and cultural rich natural resource for millennia, practices of Inuit. © Parks Canada/ Diane Blanchard © Parks Canada/ Micheline Manseau 25 to the proposed Lancaster Sound the territory by Inuit and the “We have to work together, all of us NMCA. The results of this study importance of maintaining on the same page.” show the importance of each their traditional way of life. community’s marine food source Community Consultations • Floe edges are particularly July, 2012 and overlays them on a colour-coded map, taking into account several important for Inuit as a As part of the Lancaster Sound different factors, including migration platform for hunting activities. feasibility assessment, IQ was routes of marine mammals, rich • The mouth of Lancaster collected from all the adjacent hunting areas, and important travel Sound is considered very communities of Grise Fiord, routes associated with the harvesting important for the balance of the Resolute Bay, Pond Inlet, Clyde of wildlife. The map is a visual aid ecosystem. River, and Arctic Bay. Each that helps to highlight areas that community was visited three times are important for Inuit use and USE OF INUIT between July 2012 and August areas with high concentrations of QAUJIMAJATUQANGIT 2013, and the public consultations marine mammals (Figure 6). It also included community meetings shows how the areas surrounding AN INNOVATIVE APPROACH and discussions, written surveys Lancaster Sound are all connected, and mapping sessions. The not only at an ecosystem level, but The incorporation of IQ is a participants were informed of by interconnecting areas of Inuit use fundamental premise of the Canada why this information was being and importance. As shown in Figure National Marine Conservation Areas Act, the Nunavut Wildlife gathered and signed a consent form 6, the areas of importance stretch Act and the Nunavut Land Claim to use their knowledge. In addition beyond Lancaster Sound itself into Agreement. to being used for the feasibility the surrounding inlets and fiords. assessment, the information IQ and contemporary science are gathered will be included in QIA’s IQ confirms the importance of information bases that complement Inuit Qaujimajatuqangit database. the Lancaster Sound region to each other. IQ can be used alongside In providing this information, it Inuit communities from an Inuit scientific knowledge to get a more was made clear that communities perspective: complete understanding of the use and value of an area. wanted feedback from the • Narwhal concentrations are Steering Committee as to how this very important in Eclipse Using IQ alongside scientific information was used, and how it Sound (Milne Inlet) and in knowledge: did or did not influence the decision Admiralty Inlet. on feasibility. Hence, there will be • helps identify community values a need to revisit communities to • The coast of the Lancaster and sense of connection to inform them of the decision and Sound region includes a large place; number of cultural sites. rationale and how their information • provides relevant current and was used. • The region of Lancaster Sound historical data that is not readily QIA developed a method to map includes very important polar available to scientists (baseline data); IQ from communities in a way bears denning sites, and the that highlights areas of relative western part of Lancaster • allows for community members importance to Inuit with respect Sound (toward Resolute Bay) to be involved in decision- is known as a very important making through the use of IQ; “We are always trying to protect polar bear feeding ground. and wildlife and environment. Trying to balance modern ways of living and • Abundance of seabirds and • empowers community based our past. [It is] very important to their use of the polynyas and monitoring to identify parts of protect Lancaster Sound because floe edges during the winter. the ecosystem that are stressed or undergoing change. of this area being very important to • Bowhead, which is listed as large numbers of marine mammals, a species at risk under the In the Lancaster Sound NMCA but also shorebirds and polar bears. Species at Risk Act, beluga and feasibility assessment, IQ was We need to protect them for future walrus are also very abundant fundamental in understanding and generations.” in the region illustrating the Inuit perspective of the region, leading to a more Community Consultations • The inventory of hunting sites ecologically and socially holistic July, 2012 show the extensive use of boundary recommendation.
26 Relative importance values for conservation based on community IQ within Lancaster Sound. Figure 6.
27 © Parks Canada/ Micheline Manseau 28 D. Andrews
ECONOMIC © Parks Canada/ CONSIDERATIONS
TOURISM ______Tourism Opportunities
The Study of Existing and cruise and yacht excursions, Site status, are also strengths that Potential Marine-based Tourism kayaking, sport hunting, floe attract a certain visitor segment. Opportunities in Lancaster Sound edge tours, wildlife viewing, Strategies that could be employed (Dawson, 2013) was commissioned dogsledding, snowmobiling, and to enhance conditions for marine by the Steering Committee. The cultural education. In addition, the tourism development in the report integrates findings from proposed NMCA may act as both Lancaster Sound area include: a thorough review of published an additional draw for tourists, and • developing a tourism planning information on tourism in the a means to coordinate and augment process that involves local circumpolar Arctic and an analysis regional tourism. communities and ensures of interviews with key stakeholders Although tourism is seen as a that communities share in the in the region. key component to economic economic opportunities (i.e. The Lancaster Sound region diversification in the Arctic cruise expeditions); has a number of key tourism via increased employment • investing in small to medium attractions, such as the Northwest and business development scale multi-use tourism Passage, the stunning natural opportunities, and marine-based infrastructures, such as landscapes of Sirmilik National tourism in the Lancaster Sound docking facilities, passenger Park, Nirjutiqarvik National region offers the potential for vessels and a system of Wildlife Area on Coburg Island, growth and contribution to the seasonal use huts; Prince Leopold Island Migratory local economy, barriers to its • developing guidelines to Bird Sanctuary, Beechey Island development exist. For the most improve visitor experience Sites National Historic Site and part, the industry is limited by and ensure that sensitive Cunningham Inlet. There are also seasonality, high costs to get to sites and cultural heritage are many opportunities for world the region, limited infrastructure protected; class wildlife viewing and to learn and complex permitting processes. about Inuit culture, history and However, the region’s remoteness, • simplifying government Arctic marine natural heritage. ruggedness and wilderness quality, permitting processes; Specific tourism activities include and potential World Heritage 29 © Parks Canada/ Wayne Lynch
• developing means to reduce and local Inuit knowledge and more than $40 million in travel costs to the region; and cultural traditions to create an revenue, representing 3.2% • promoting Sirmilik National educational tourism offer. of the territory‘s overall Gross Park and a national ______Domestic Product (GDP) in marine conservation area CURRENT CONTEXT 2011; and in Lancaster Sound and The 2012 Government of Nunavut • the tourism industry in other protected areas as a report Tunngasaiji: A Tourism Nunavut remains relatively potential World Heritage Site Strategy for Nunavummiut underdeveloped. designation. mentions that: However, in terms of numbers of The report concluded that marine • a third of travellers to tourists coming to protected areas based tourism offers the potential Nunavut visit parks or in the Eastern Arctic, visitation for growth and contribution to heritage rivers, generating a by cruise ships is generally more the local economy if appropriate significant amount of visitor significant than tourists arriving mitigation strategies are employed revenue; by land. For example, 136 people and key barriers are addressed. • total spending by visitors to visited national parks in Nunavut It also suggests that the proposed national and territorial parks in 2014-15 (Outspan Group, Lancaster Sound NMCA has the in Nunavut was $7.2 million 2011), while about 600 cruise ship potential to become a world leader in 2009; passengers visited Ninginganiq in protected area management by (Isabella Bay) National Wildlife combining contemporary science • tourism-related businesses Area along eastern Baffin Island, in Nunavut generated
POTENTIAL ICONIC EXPERIENCES IN A LANCASTER SOUND NMCA
The following are some of the highlights that visitors could experience in a Lancaster Sound NMCA:
• some of the most spectacular natural scenery and polar wildlife viewing opportunities including icebergs, floe edges, dramatic cliffs and spectacular fjords, large seabird colonies, a diversity of marine mammals such as polar bears, beluga and bowhead whales, ringed and harp seals, walrus and a chance to see the “unicorn of the sea”, the narwhal;
• the 3000 year old Inuit culture of Canada’s High Arctic, including stories, drum dancing, throat singing, Arctic sports and archeological sites;
• the stories behind the exploration for the Northwest Passage; and
• incredible protected areas including Sirmilik National Park, Beechey Island Sites National Historic Site, Prince Leopold Island Migratory Bird Sanctuary and Nirjutiqarvik (Coburg Island) National Wildlife Area.
30 350 visited Nirjutiqarvik (Coburg no less important to the local manage tourism. Cooperatively Island) National Wildlife Area economy. Northern protected managed by Parks Canada and in Jones Sound and 950 visited heritage areas provide sustainable Inuit under the terms of the IIBA, Prince Leopold Island Migratory employment, and help to diversify with links to Fisheries and Oceans Bird Sanctuary in Lancaster Sound local economies, providing greater Canada and Transport Canada, in 2015 (Environment Canada, stability during the periods of this partnership could assist in the pers. comm.). fluctuation common to resource- development and management based economies. of tourism by bringing about Protected heritage areas are measures to manage tourism important economic drivers in The number of cruise ships and opportunities, tourism routes, key small communities across Canada, yachts coming to the Arctic and messages, etc. A well-developed attracting 23 million visitors in specifically to the Lancaster Sound tourism strategy, one created 2015 (Parks Canada, 2016) and – Northwest Passage area increases collaboratively with Inuit, the significantly contributing to small every year, just as the size of the Nunavut government, the tourism and rural communities where ships arriving is getting larger. For industry and federal departments, they attract spin-off economic example, the Crystal Serenity, with could increase visitation, enhance and employment growth for 1000 passengers and 600 crew, the capacity of Inuit communities small businesses, including sailed the full Northwest Passage to influence the tourism experience local ecotourism industries and in 2016 and plans to do it again and product, while managing Indigenous enterprises. Most in 2017 due to the “tremendous potential conflicts with traditional economic benefits stem from older, response”. activities. A tourism strategy would more developed and visited parks An NMCA in Lancaster Sound also be a way to address existing in the south. In remote regions barriers to tourism. and the north, the contributions would be a means to attract new are comparatively modest but visitors, but also a means to © Parks Canada/ Micheline Manseau 31 While the industry as a whole Across Nunavut fisheries are FISHERIES has made significant gains, it improving food security, providing Inuit have long depended upon is still challenged by a lack of employment, and increasing marine resources for their survival. marine infrastructure, funding the socio-economic wellbeing of Throughout history, Inuit have for education and training, the Nunavummiut. More communities developed specialized tools, cost and time it takes to grow are realizing the potential of harvesting practices and values and expand arctic fisheries, the developing fisheries and the related that have significantly influenced remoteness of the territory, benefits. Communities are also the development of modern and transportation costs, competition very proactive in expressing their sustainable fisheries in Nunavut. with aquaculture fish, and the concerns about the protection of The fishing industry, including lack of Nunavut-specific fisheries marine resources and frequently both subsistence and commercial regulations. and openly state the importance fisheries, has continued this rich of protecting Nunavut’s resources heritage into the modern era as a The total landed value (i.e. market for current and future generations. fundamental aspect of the health value of the goods when they are The focus is often on important and well-being of the people of offloaded from the ship) in 2015 of issues such as food security, fish Nunavut (Nunavummiut). the three main commercial species health, contaminants, the impacts harvested in Nunavut (turbot, shrimp of shipping, climate change and Nunavut’s fishing industry has and Arctic char) was $86.3 million. the threat of oil spills and lack of made significant progress. Through response capabilities in the north. increased quotas and allocations Since the inception of the original to Nunavut interests, improved Nunavut Fisheries Strategy in Achieving long-term, sustainable industry collaboration, the 2005, increasing numbers of growth in Nunavut’s fishing creation of the Nunavut Offshore Nunavummiut are participating in industry requires commitment Allocation Holders Association in commercial fisheries inshore and and strategic investments, the 2011, strong brand development offshore, often using the income fostering of an overall conservation and quality products, expanded to afford other fishing and hunting and stewardship ethic, and the research programs and capabilities, activities, or combining part-time inclusion of IQ in the decision- and focused training programs, work in fisheries with other forms making process. It also depends Nunavut’s fisheries have become of employment. The inshore fishery on having access to sufficient more significant and are considered is dominated by the harvest of fish stocks to ensure economic growing contributors to the Arctic char, some dried whale meat feasibility while respecting Inuit territory’s economy. products, and, less commonly, rights and the Nunavut Land whitefish. Claims Agreement. © Parks Canada/ Diane Blanchard 32 © Parks Canada/ Diane Blanchard
The char fishery remains a critical management of an NMCA in • 2015: a Stage 2 Exploratory food source and important Lancaster Sound. Fishing licence2 issued for commercial element of Nunavut’s ______Grise Fiord/Resolute Bay/ economy. Due to the remote Arctic Bay areas for Greenland locations and associated economics CURRENT CONTEXT halibut, cold water shrimp of development, char fisheries are and whelks; no fishing in Fisheries and Oceans (DFO, currently only utilizing a small Jones Sound due to ice, but personal communication, August percentage of available quotas. fishing did occur in other 2016) reported that in the last few Inshore exploratory fisheries for locations. years the following fishing licences turbot and shrimp have also not were issued for the Lancaster • 2016: Licence to Fish for been fully realized and face similar Sound area, and the actual fishing Scientific Purposes issued to challenges to char fisheries. Access which occurred: Marine Institute for Jones and allocation of offshore resources Sound, using longlines, • 2013-14: a stage 1 Emerging in Nunavut has been an ongoing shrimp pots and whelk pots. challenge for decision-makers and Fishery1 licence issued for fishery-dependent communities. Jones Sound/Grise Fiord/ • All fishing in these years done Starnes Fiord for Greenland from the vessel Kiviuq 1, An NMCA in Lancaster Sound halibut, cold water shrimp owned and operated by Arctic would be a means to holistically and whelks; fishing did occur Fishery Alliance. manage the introduction of using longlines and whelk commercial fisheries in this area, pots. in partnership with Inuit and ______Fisheries and Oceans Canada, 1 which maintains its jurisdiction Stage 1 licence: tests the feasibility of a fishery by determining 1) if harvestable quantities are present; 2) if the species/stock can be captured by a particular gear over fisheries in NMCAs. Done type; 3) if there are any multi-species or environmental impacts; and 4) if markets in an ecologically sustainable exist. manner, locally based commercial 2 Stage 2 licence: an exploratory fishery used to determine whether a species/stock and recreational fisheries could can sustain a commercially viable operation and to collect biological data in order be compatible with the overall to build a preliminary database on stock abundance and distribution.
33 to and from the few sites with in collaboration with Inuit and MARINE operating mines (e.g. Nanisivik Transport Canada. The latter TRANSPORTATION Mine near Arctic Bay from 1976- continues to regulate shipping in 2002) or oil fields (e.g. Bent Horn NMCAs. Lancaster Sound has long been on Cameron Island in 1980s-90s). an area where Inuit have travelled ______by sea and over ice. Winter travel More recently, with summer sea routes have been a means of ice retreating as a result of climate CURRENT CONTEXT reaching favourite hunting sites, as change, more vessels are coming Because sea ice conditions in the well as keeping contact with family to the region. Excluding local Northwest Passage are not likely and friends in other communities. pleasure craft traffic originating to change significantly in the The open water season is the from communities, 49 individual next several decades, presenting chance to travel by boat for hunting vessels (with a total of 58 voyages) considerable navigational and and fishing. were present in Lancaster Sound logistical difficulties for most in 2013: 25 of these were small vessels, it is not likely to become Within the last two centuries, cruise ships and adventurers; a major shipping route in the Lancaster Sound has been part 11 were sealift and community foreseeable future. More large of numerous explorations by resupply ships; 5 were government ships have transited the Arctic Europeans intent on finding vessels (Coast Guard icebreakers via the Northern Sea Route along the Northwest Passage to the and research vessels); 6 were bulk the Russian coast (supported Orient and has seen an increase carriers serving the Baffinland by Russian ice breakers) but the in commercial transportation, Mary River mine site; 1 was a amount of cargo on that route has though all have been limited by the non-government research vessel decreased from 1.3 million tons seasonal presence of significant sea and the last was the Nordic Orion in 2013, to 100,000 tons in 2015 ice. which became the first bulk carrier (Vidal, 2016). to complete a full transit of the Given these ice conditions, marine Northwest Passage (Vard Marine, Nevertheless, more vessels are transportation in the Lancaster 2016). coming to the Lancaster Sound Sound region in the last 50 years region every year, most of these had mostly been restricted to An NMCA in Lancaster Sound related to tourism, community community resupply ships, Coast would be a mechanism allowing resupply or affiliated with the Guard icebreaker activity, research for greater management of Baffinland mining operation. vessels and a few cargo ships marine transportation activities During the 2015 open water transporting goods and products in certain locations, through season, Baffinland’s Mary River zoning of the NMCA and working © Parks Canada/ Francine Mercier 34 © Parks Canada/ Micheline Manseau
Mine project shipped almost 1 Shipping in Canadian Arctic Furthermore, Transport Canada, million tons of ore on 13 bulk waters is covered by some of in collaboration with Northern carrier trips out of its port facility the world’s strictest legislation, and Indigenous partners, is in Milne Inlet and through Eclipse in particular the Arctic Waters working on the identification of Sound and Pond Inlet to Baffin Bay Pollution Prevention Act. In low impact shipping corridors in (Vard Marine, 2016) addition, the International the Arctic as announced in the Maritime Organization (IMO) has joint statement on climate, energy Although Baffinland submitted and Arctic leadership by Prime a request to the Nunavut Impact adopted the International Code for Ships Operating in Polar Waters Minister Trudeau and President Review Board (NIRB) in 2014 Obama in March 2016. The to modify its existing permit to (Polar Code) which is expected to come into force on January 1, implementation of the Northern allow for shipping from June to Marine Transportation Corridors March (including icebreaking), it 2017 and which will make several environmental safety measures initiative will take into account recently advised NIRB that it would important ecological and cultural drop its request to seek approval mandatory for all ships in Arctic and Antarctic waters, particularly areas, vessel traffic patterns and for 10-month shipping, citing input from local communities, and community concerns, and will with respect to pollution and waste management. will determine what infrastructure, focus on shipping between June and navigational and emergency and December as ice conditions response services are needed. permit (Baffinland, 2016). 35 HYDROCARBON seismic and geological data exploratory drilling has identified acquired in the 1970s and 1980s, non-commercial petroleum RESOURCES including a 1989 assessment accumulations in a similar setting ______(Smith et al. 1989) that considered in offshore Western Greenland. RESOURCE ASSESSMENTS a larger area. This quantitative The assessment indicates that assessment provided a range of potential petroleum resources of As part of the necessary possible volumes for conventional the proposed Lancaster Sound considerations for the federal crude oil and natural gas. NMCA are comparable in volume boundary proposal, an assessment Established and accepted methods to those of the Jeanne d’Arc Basin of possible petroleum resources including computer models were of offshore Newfoundland. The was conducted by the Geological used to calculate the resource average in-place crude oil resource Survey of Canada (GSC) within potential. The assessment used is estimated to be 4.5 billion barrels the limits of the 2010 federal knowledge of petroleum systems and the average in-place natural boundary proposal. The results are in similar geological settings from gas resource is estimated to be 13.0 detailed in the report Assessment established petroleum provinces trillion cubic feet. Because there is of the Conventional Petroleum in the Gulf of Mexico and the a scarcity of modern data and a lack Resource Potential of Mesozoic and Beaufort Sea. It concluded that of exploratory wells drilled in the Younger Structural Plays Within there are potential petroleum Lancaster Sound NMCA area, the the Proposed National Marine generating source rocks within the assessment data indicates a wide Conservation Area, Lancaster study area and that seafloor and range for potential resources, with Sound, Nunavut (GSC, 2013). seismic survey features confirm an a 90% probability that the area The assessment analysed existing active petroleum system. Recent contains 0.6 billion barrels of oil
Figure 7: Map illustrating areas of hydrocarbon potential within the 2010 federal boundary proposal for an NMCA in Lancaster Sound. From Assessment of the Conventional Petroleum Resource Potential of Mesozoic and Younger Structural Plays within the Proposed National Marine Conservation Area, Lancaster Sound, Nunavut. Produced by the Geological Survey of Canada, 2013. 36 Figure 8: Petroleum and Environmental Management Tool – Eastern Arctic Study Area. Nunami Stantec. 2010. Prepared for Indian and Northern Affairs Canada. Based on data from the 2008 US Geological Survey study, Assessment of Undiscovered Oil and Gas Resources of the West Greenland-East Canada Province. Fact Sheet 2008-3014. and 2.1 trillion cubic feet of natural The potential resources identified meetings held by the Steering gas and a 10% probability that it are a portion of the petroleum Committee with industry, Shell contains as much as 10.1 billion resource attributed to the larger Canada Ltd indicated it thought barrels of oil and 28.5 trillion cubic area examined in 1989. The 1989 the GSC assessment was overly feet of natural gas. The Dundas assessment extended into Baffin optimistic and that its own structure, illustrated in Figure 7, Bay, and it also indicated a large estimates were more conservative. is prospective for potentially large potential in Lancaster Sound and Shell Canada then directed the accumulations. suggested that the Hope Structure Steering Committee to a 2008 Because it is possible to extract could potentially contain up to regional Eastern Arctic assessment only a portion of the in-place 9.4 billion barrels of crude oil or completed by the US Geological resources (less than 45%), there is equivalent natural gas. Survey (USGS) which concluded a further reduction in the amount All of these figures are potential that the Lancaster Sound region of resources that are recoverable. resources, not proven reserves has less petroleum potential than The GSC assessment suggests the since no exploratory wells have the Baffin Bay/Davis Strait area average recoverable crude oil is been drilled in the Lancaster Sound (see Figure 8 (USGS, 2008). about 2 billion barrels and the area. Although CAPP also had the average recoverable natural gas is The GSC assessment report was GSC assessment in hand, in a about 8.8 trillion cubic feet (i.e. 90% provided to stakeholders in 2014, presentation to the 2015 Maritime probability of ≤ 0.2 billion barrels including Shell Canada Ltd and Arctic Security and Safety of oil and 1.3 trillion cubic feet of the Canadian Association of Conference St. John’s, NL, CAPP natural gas and 10% probability of Petroleum Producers (CAPP). provided a map showing that ≥ 4.6 billion barrels of oil and 19.5 During subsequent consultation the recoverable potential for the trillion cubic feet of natural gas). 37 Eastern Arctic (including Lancaster was put in place following an “The Nature Conservancy of Sound) is 10 times less than the environmental review in 1978 and Canada is pleased to be able to work potential for either the Beaufort has been in effect since then. constructively with government and Sea or Sverdrup Basin areas (see business to take meaningful steps Figure 9). The map was derived In the 1970’s, various companies towards achieving Canada’s global from information provided in a held exploration rights to more conservation commitments. We are 2009 report of published estimates than 6,000,000 hectares in grateful for Shell’s contribution. of oil and gas resources for Canada Lancaster Sound and Baffin Bay. Together we are supporting the North of 60 (Drummond, 2009). By 1989, that figure was down conservation of an area of uncommon to 3,400,000 hectares held by beauty, incredible biodiversity and rich ______three main groups – Consolidex- ecological importance for the benefit of HISTORY OF Magnorth-Oakwood (CMO), Canadians and future generations.” HYDROCARBON PetroCan and Shell (Smith et al. 1989). By 2001, PetroCan had John Lounds, President and CEO, RESOURCES Nature Conservancy of Canada, abandoned its permits, leaving June 8, 2016 Exploration for oil and gas in the some 1,790,000 hectares under Lancaster Sound region has been exploratory permits to CMO and On June 8, 2016, Shell Canada limited to seismic operations and Shell. By 2010, only Shell still announced it had voluntarily geological field work. Although retained a block of exploratory contributed all of its permits to the drilling in Lancaster Sound was permits totalling more than Nature Conservancy of Canada, approved in principle in 1974, no 860,000 hectares in offshore which subsequently released them well has ever been drilled, a result Lancaster Sound. to the Government of Canada. As of strong opposition by local Inuit a result, there are presently no communities and the Canadian hydrocarbon exploratory leases public. A moratorium on drilling in either Lancaster Sound or the Canadian portion of Baffin Bay.
Figure 9: From: Industry Perspectives on Offshore Oil and Gas Development and R&D in Canada’s Arctic by Paul Barnes, Manager - Atlantic Canada & Arctic. Presentation to: Maritime Arctic Security and Safety Conference, St. John’s, NL October 15, 2015.
38 ______States, Canada or Greenland. • Given the level of technical CURRENT CONTEXT Several companies, including expertise needed for offshore Chevron, ExxonMobil and petroleum exploration or A review of numerous information BP have shelved exploration development (in the Arctic sources presents the following in Canadian waters of the or elsewhere), these projects picture of the current situation with Beaufort Sea. Norway and rarely lead to the hoped for respect to hydrocarbon exploration Russia have also backed off regional benefits and local and development in the Arctic: many of their Arctic offshore community involvement. drilling programs (Hoag, Training and education takes • Despite billions of dollars 2016). decades and assumes that the spent on exploration of oil and industry will be a long-term gas reserves in the Canadian • Speaking of its prospects in stable employer. Beaufort Sea – where oil and the Chukchi Sea off Alaska gas reserves are estimated to in 2015, Shell indicated that • The Government of Canada be substantially more than in order to be profitable, a announced on December 20, in the Eastern Arctic – and venture in the Arctic would 2016, that it was designating with petroleum companies require a large reserve of at all Arctic Canadian waters as currently holding rights to least 10 billion barrels. Even indefinitely off limits to future 48 significant discoveries then, world oil prices would offshore Arctic oil and gas covering over 220,000 need to be well over $100/ licensing, to be reviewed every hectares (INAC, 2016), none barrel on a long term basis to five years through a climate of those discoveries has led to cover costs of production and and marine science-based life- production as of March 30, to make a profit (Mathiesen, cycle assessment. 2016. 2015).
• There are an additional • In 2015, CAPP stated that the “I am delighted that Shell is 20 significant discovery Canadian Arctic offshore is licences in the Sverdrup Basin making this major contribution not a focus area for industry to supporting marine protection in the Arctic Islands, totalling in the near term and that over 325,000 hectares (INAC, in the Lancaster Sound region. hydrocarbon development in Contributing our offshore rights 2016). Bent Horn on Cameron the Arctic presents significant to the Nature Conservancy of Island (now abandoned) challenges (CAPP, 2015). Canada builds on 30 years of produced and shipped oil joint conservation efforts between between 1985 and the late • The Arctic Institute lists our organizations. Through 1990s. None of the other a number of important collaboration across sectors, we discoveries have yet led to concerns about hydrocarbon can achieve greater conservation production. exploration and development outcomes together. in the Arctic, notably: • By 2013, 142 offshore wells environmental sensitivity (The region) is adjacent to where had been drilled in the and risks to Arctic marine the government has already said it would like to establish a Canadian Arctic, 92 of those ecosystems such as the impact in the Beaufort Sea and conservancy, so our hope is that of seismic surveys and oil it will contribute to a much larger the remainder in Sverdrup spills on the health of marine Basin, with the last drilled marine conservation area in the wildlife; lack of science with North.” in 2005-06 in the Beaufort respect to the effects of oil Sea. The deepest drilling spills in Arctic ecosystems; Michael Crothers, Shell to date in the Arctic has inherent safety risk of deep- Canada President and been in less than 70m of water drilling in an Arctic Country Chair, June 8, 2016 water (LTLC Consulting and environment; logistical Salmo Consulting Inc, 2013). problems of cleanup in Arctic (Lancaster Sound ranges from conditions; and inadequate oil 300 m to 800 m in depth.) spill response capacity in the Arctic (The Arctic Institute, • As of January 2016, there 2012). are no active oil exploration projects in Arctic waters offshore of the United 39 © Parks Canada/ Diane Blanchard 40 © Parks Canada/ Diane Blanchard CONSULTATIONS
The following section provides a summary of the consultation activities undertaken and the To achieve this, the Steering and values associated with the concerns and issues raised during Committee ensured that all studies proposal; (iv) identifying issues, local, regional and national and documents were shared opportunities and challenges consultations conducted in support with all the target groups. For faced (and how they could be of the proposed national marine community consultations and addressed). Should an NMCA be conservation area proposal in meetings, all documents were established, this information can Lancaster Sound. translated into Inuktitut and also inform subsequent phases of The consultation process was provided in hard copy as well as the establishment process, such as developed under the direction electronic format. content for the Inuit Impact and of the Lancaster Sound Steering A variety of techniques were used Benefit Agreement and framing Committee and formally vetted to provide information to, and out issues to address as part of and endorsed by the QIA Executive solicit input from, community management planning. Board and senior officials from the members, including public Between 2012 and 2016, the Government of Nunavut and Parks meetings, radio, newsletters, and Lancaster Sound Steering Canada. targeted meetings with Hunters Committee: The overall objective of the and Trappers organizations and • Conducted two consultation consultations was to inform and Hamlet councils. Translation tours in the five communities generate interest by providing services were provided during adjacent to the proposed opportunities for broad all community consultations NMCA – Pond Inlet, Grise involvement in a process that and meetings. Representatives Fjord, Arctic Bay, Resolute would gather input from the of all three parties to the MOU Bay and Clyde River – Inuit of Nunavut, affected Inuit participated in all consultation including 32 community communities in the Qikiqtaaluk efforts. meetings (with Hunters Region, relevant government Views and comments were sought and Trapper Organizations, departments and agencies, key on a variety of elements including: Hamlet Councils and the stakeholders and interested (i) desirability of the proposal; (ii) public), attended by 434 Canadians. the NMCA boundary; (iii) needs people in total. 41 • Held information sessions organizations (HTOs) all stressed in Iqaluit for the public, COMMENTS RECEIVED the importance of food security and Government departments ______protection of Inuit traditions. and local non-government COMMUNITIES organizations. A number of questions and con- • Solicited input from the five As part of the overall consultation cerns were raised with regard to affected Inuit communities process, the five communities most the possible impact of oil and gas and 33 regional and national adjacent to the Lancaster Sound development, seismic exploration stakeholders – Institutions NMCA proposal were visited twice and increased marine traffic on of Public Government, third by the Steering Committee mem- Inuit traditional land use. Answers party interests (including bers, once in summer 2012 and to a number of these were provided petroleum, mining, shipping again in fall 2013. During these in newsletters (available in English, and tourism businesses and consultations, all five communi- Inuktitut and French) which were outfitters), academics, and ties expressed significant support distributed to all community mem- conservation organisations for the protection of the entire bers via the post office and during – resulting in seven written Lancaster Sound region and the community meetings (included in submissions. establishment of an NMCA. Fur- Parks Canada, 2017). thermore, based on the results of • Held bilateral meetings the consultations, a QIA resolution with key industry and non- supporting a larger boundary was “People are a functional part of a government organization passed unanimously by the QIA dynamic biophysical environment, stakeholders. Board of Directors in June 2014. and land use cannot be planned and • Organised briefing sessions managed without reference to the human community; accordingly, for concerned federal In addition to the long-term government departments. social, cultural, and economic protection of the marine environ- endeavours of the human community Results of these consultations ment, the NMCA is also seen as an must be central to land use planning and meetings are presented in the investment in healthy communities and implementation.” following pages and more detailed through economic development NLCA 11.2.1(a) submissions and meeting notes are opportunities like ecotourism, included in a consultation overview the protection of essential marine “Recognize that the marine (Parks Canada, 2017). food sources, and fostering of Inuit environment is fundamental to the traditional land use. social, cultural and economic well- being of people living in coastal Local leaders, community mem- communities.” CNMCA Act Preamble bers and hunters and trappers © Parks Canada/ Micheline Manseau 42 Table 1: Specific community concerns identified from consultations respecting the designation of a Lancaster Sound NMCA. Pond Inlet: • Lancaster Sound is vitally important, “like a farm where Inuit get their resources”. The NMCA will help protect marine life as well as culture. • It is important to protect narwhal, as they prefer quiet places. Milne Inlet is a narwhal sanctuary for the people of Pond Inlet. • The NMCA designation should include the oil and gas lease areas, if not it seems to defeat the purpose of a protected area.
Clyde River: • The marine ecosystem is where Inuit get resources. There is a very strong cultural link to the lands, waters, and wildlife. • Inuit depend heavily on marine mammals for food. • Calving areas for Greenland sharks and narwhal in the area need protection. • The community wants an NMCA since any oil spill would affect Clyde River due to prevailing currents.
Arctic Bay: • Elders only eat country food and an NMCA designation ensures protection of the food source. • Creswell Bay has a high concentration of belugas. • Economic benefits from an NMCA welcomed. • The creation of an NMCA would see marine traffic more closely monitored; there’s a longstanding concern that cruise ship activities have been disrupting harvesting. Resolute Bay: • Locals have seen an increase in marine traffic and the disruption of walrus in their calving areas. • Tourists are scaring marine mammals. • Somerset Island has sandy areas where narwhal come to shed their skin. • There is a narwhal and beluga area off Cornwallis Island with high concentrations. • People would like to see additional protection of Prince Leopold Island Migratory Bird Sanctuary.
Grise Fiord: • An NMCA would support traditional lifestyles and protect marine food sources. • Polynyas, as high productivity areas, support marine mammals and need to be protected. • The Coburg Island National Wildlife Area has walrus haul out areas and bird colonies. Protection should extend beyond the island to surrounding areas.
______Steering Committee, which took INDUSTRY was overly optimistic and place in May 2014. During that that Shell’s estimates were Industry was consulted as part of meeting, Shell commented that: far more conservative. Shell a general consultation effort for • It was neither opposed to nor suggested Parks Canada look key regional and national stake- did it specifically support an at other sources for oil and gas holders during summer 2014. The NMCA in the area. information, notably a U.S. following companies and industry • It had no short-term nor me- Geological Survey (USGS) associations either provided written dium-term plans to undertake study (USGS, 2008) which submissions and/or asked for, and any exploration or develop- indicates that on broader were given, bilateral meetings: ment there, nor did it have a regional scale, Davis Strait has mandate to consider giving up significantly more potential, Shell Canada its permits which were then with Lancaster Sound being At the time Shell Canada Ltd was inactive as oil and gas explo- on the low end of the scale consulted in 2014, it had a block ration in the region had been (see Figure 8). under a de facto moratorium of 30 exploratory permits at the ______entrance to Lancaster Sound which since the 1980s3. 3 it had held since 1971, though no • The 2013 Geological Sur- Two years after these meetings, on June 8, 2016, Shell Canada Ltd actual exploratory work had ever vey of Canada report on the voluntarily contributed its permits petroleum potential within been authorized or undertaken. in the Lancaster Sound area to the Shell requested a meeting with the the 2010 federal boundary Nature Conservancy of Canada. 43 ______2017). The Steering Committee also Canadian Association ENVIRONMENTAL NON- met with Baffinland in September of Petroleum Producers GOVERNMENT ORGANI- 2015 to reconfirm understandings (CAPP) and NWT and ZATIONS (ENGOs) Nunavut Chamber of based on the Minister’s response. Mines ______As part of the regional and national INSTITUTIONS OF consultation effort in 2014, submis- Both associations sent in submis- PUBLIC GOVERNMENT sions were received from the World sions and requested meetings Wildlife Fund (WWF), Oceans which were held with CAPP in Nunavut Wildlife North, and the Canadian Parks and May 2014 and with the NWT and Management Board Wilderness Society (CPAWS). In Nunavut Chamber of Mines (via (NWMB) these submissions, all expressed teleconference) in August 2014. support for the NMCA proposal The associations’ main points The NWMB – the main instru- and recommended that the 2010 were to suggest looking at other ment of wildlife management in the boundary be expanded to include marine protected area options and Nunavut Settlement Area – pro- areas of high conservation value not wanting potential energy and vided a submission as part of the adjacent to the boundary. More mineral resources to be locked up general consultation conducted particularly: in an NMCA. in 2014. In their submission, the NWMB indicated it supports the • WWF and Oceans North both Baffinland Iron Mines Ltd NMCA proposal and sought clari- indicated an interest in mov- fication on the timeline and next ing forward with the existing Baffinland, which operates within steps towards the establishment of 2010 federal boundary as the area and ships its product the NMCA. soon as possible and commit- through the proposed NMCA, sent ting to a process for potential in a submission in 2014 and want- Nunavut Planning Com- expansion. ed to ensure that the NMCA would mission (NPC) not affect them unreasonably --par- • Oceans North noted that the ticularly with respect to shipping. Though NPC did not provide a resource assessment process The Steering Committee and the specific submission, it has been would benefit from a broader Government of Canada provided involved in the process and in- assessment so that industry assurances in this regard in the cluded the 2010 federal boundary concerns could be balanced form of a letter from the Minister as input to the Nunavut land use against strong oil potential of Environment for Canada sent planning as a protected area to be elsewhere. They also recom- in April 2015 (see Parks Canada, established. mended that the Steering
© Parks Canada/ Micheline Manseau 44 © Parks Canada/ Francine Mercier
Committee begin discussions the Canadian Northern Economic and Sustainable Development, with Shell with respect to the Development Agency) to briefing as well as an email from a lease area, reminding that sessions on the Lancaster Sound Vancouver Aquarium re- they had voluntarily relin- NMCA proposal. searcher. quished their leases off Gwaii In general, departments supported • Request to include Beechey Haanas National Marine Con- the proposal. Bilateral meet- Island given it is a National servation Area Reserve and ings were subsequently held with Historic Site associated with Haida Heritage Site in 1997. a number of these departments the Franklin expedition and • CPAWS included specific in the spring of 2016 to discuss the subsequent searches and information about where the specific concerns with respect to because it currently receives boundary could be expanded their activities and/or the boundary little protection. and why it should be. It also (e.g. National Defence, Environ- • Several letters/emails of gen- included comments on the ment Canada, Natural Resources eral support from individuals high risk to this particular Canada). and organisations. environment from any petro- ______leum exploration or develop- GENERAL ment. Comments and boundary consider- ______ations were also received through FEDERAL DEPARTMENTS petitions, letters and emails sent to In March 2016, the Steering Com- the Lancaster Sound email address, mittee invited concerned federal notably: departments (Natural Resources • Request to add Cunningham L. Narraway Canada, Fisheries and Oceans Can- Inlet to the proposal because ada, Environment Canada, Trans- of its importance to beluga port Canada, National Defence, whales through an environ- Global Affairs Canada, Indigenous mental petition to the Com-
and Northern Affairs Canada and missioner of the Environment © Parks Canada/ 45 © Parks Canada/ Micheline Manseau 46 © Mario Cyr
CONCLUSION
The idea of protecting Lancaster Sound within a national marine park, and more recently a national reinforced as there is emerging The importance of protecting this marine conservation area, interest in nominating the site as a area was reinforced by Ms. Mary dates back to the early 1980s. potential World Heritage Site. Simon who was appointed by the Substantive progress on the Early boundary proposals from federal Minister of Indigenous and proposal has only been made in Northern Affairs to recommend an the last few years, particularly as a the 1980s were based solely on scientific studies. However, the Arctic leadership model and new, result of the Nunavut Land Claims ambitious Arctic conservation goals Agreement providing a framework work of the Steering Committee built on this scientific knowledge as called for by the Prime Minister for assessing and negotiating this in March 2016. In her October 31, project. The submission of this by fully embracing and complementing its work with 2016, interim report, Ms. Simon, feasibility assessment report to the citing preliminary engagement federal and territorial ministers of the traditional Inuit knowledge study, resulting in a boundary with a broad spectrum of leaders Environment, and the president and specialists in Canada’s Arctic, of the Qikiqtani Inuit Association, recommendation that reflects the ecological and cultural values and the fact that the Qikiqtani brings to a close a critical part of Inuit Association had proposed the establishment process. of the Lancaster Sound region and ecosystem, an ecosystem an expanded boundary of some In undertaking its work to that supports and sustain Inuit 109,000 square kilometres, made assess the potential to designate communities and culture. A the following recommendation: Lancaster Sound a national marine hallmark element of the Steering “The Government of Canada conservation area, including a Committee’s work is that Parks should expedite the process of range of studies and consultations, Canada brought a range of completing Lancaster Sound as the Steering Committee was scientific studies to the table a National Marine Conservation continually reminded of the while Inuit produced a traditional Area using the expanded Qikiqtani regional, national and global knowledge study. Developed Inuit Association boundary.” In significance of this ecological and independently, the results of both making her recommendation, cultural treasure. The international studies were used to produce a she observed: “Lancaster Sound, significance of the area is being single boundary recommendation. Tallurutiup Tariunga, is one of the most culturally and ecologically 47 © Parks Canada/ Diane Blanchard
significant areas in the Canadian communities who depend on this marine conservation areas and to Arctic. It is commonly referred to ecosystem. achieve the protection of 5 percent as the Arctic Serengeti.” In reaching this conclusion, the of Canada’s coastal and marine Thus, after due consideration, Steering Committee considered areas by 2017 and 10 percent by the Lancaster Sound Steering the following when delineating a 2020. Committee concluded that a boundary for a potential NMCA: During consultations, no national marine conservation area (1) the concerns and wishes substantive reasons to abandon in Lancaster Sound is feasible. expressed during consultations or not pursue the proposal were Furthermore, the Steering by Inuit from local communities; raised. Industry suggested that Committee concluded that the (2) the ecological values based on other types of marine protected establishment of a national marine contemporary science and Inuit areas should be pursued rather conservation area would enable a Qaujimajatuqangit; (3) Inuit than an NMCA, presumably joint Canada – Inuit cooperative traditional use of the Lancaster because the latter prohibits management framework that, Sound region; (4) cultural values; exploration and development in the spirit of the Nunavut (5) the QIA Board of Directors’ for oil, gas and minerals. The Land Claims Agreement, would passage of a unanimous resolution federal government provided result in the conservation and in June 2014 supporting a funds through Budget 2007 for a ecological sustainability of boundary of some 109,000 square Lancaster Sound National Marine Lancaster Sound while integrating kilometres, based on community Conservation Area feasibility environmental, economic and concerns from consultations to assessment, and the Steering social considerations. further protect the area from Committee’s terms of reference, as The Steering Committee concluded oil and gas development; (6) per the MOU, approved by Canada, that a boundary encompassing hydrocarbon resource assessments; Nunavut and the QIA, were approximately 109,000 square (7) the only industrial hydrocarbon specifically to consider an NMCA. kilometres, illustrated on Figure permit holder in the area While community concerns about 10, is the area needed to adequately voluntarily relinquished its the future of Lancaster Sound did represent this natural region, to exploratory permits; (8) the include concerns over the potential protect the natural and cultural views of stakeholders; and impact of oil and gas development, values of the area as an intact (9) government priorities and the Steering Committee was not ecosystem, and to respond to the commitments, in particular, to solely motivated to recommend views and aspirations of Inuit protect representative marine its proposed boundary for an regions within a system of national 48 NMCA in Lancaster Sound to Lancaster Sound area, it does not response to the concerns of local end the prospect of oil and gas diminish the need nor the value of communities over the prospect of development. Change is coming to designating Lancaster Sound as an future oil and gas development, it Lancaster Sound. The prospects NMCA under the Canada National does not bring certainty nor the of diminishing ice cover, both Marine Conservation Areas Act. potential environmental, social geographically and seasonally, A moratorium does not convey and economic benefits that would will accelerate this change. nor guarantee any prospect of accrue to the Lancaster Sound Transportation, tourism, fisheries long-term protection nor a clear region through its protection under and other marine-based activities indication of which areas are or the Canada National Marine are expected to increase over are not off limits permanently to Conservation Areas Act. the years and as noted earlier, development, while the NMCA Therefore, the Lancaster Sound the NMCA is a mechanism that designation makes it clear that Steering Committee has concluded could play a key role in helping to Lancaster Sound will be protected that the establishment of a national manage and mitigate the impact forever, and business decisions marine conservation area in of this change by establishing a can be made accordingly. In Lancaster Sound is an investment collaborative management board to addition, a moratorium does worth pursuing for the benefit of both develop a management plan not bring with it the long-term present and future generations, for the NMCA that recommends investments that an NMCA will, and one that would produce in special protection zones, and to put including funding for capital this region a new relationship in place a collaborative governance development, various management between Canada and Inuit that model to ensure a sustainable programs, and ongoing funds is in the national interest and of future for Lancaster Sound and its for cooperative management. international significance. dependent communities. Nor will a moratorium result Just as the Steering Committee in the collaborative governance was completing its work, the framework that an NMCA would Government of Canada announced bring to Lancaster Sound that on December 20, 2016, that it was would enable future decisions designating all Arctic Canadian about access and use of the region waters as indefinitely off limits to to be taken in a manner that places future offshore Arctic oil and gas priority on ecological sustainability licensing, to be reviewed every and ensuring the future of Inuit use five years through a climate and of the area’s resources. marine science-based life-cycle In short, while the moratorium assessment. While this indefinite could be viewed as a temporary moratorium applies to the © Parks Canada/ Micheline Manseau © Parks Canada/ Wayne Lynch 49 the search for the Northwest Arctic, including the March THE BOUNDARY Passage, including Beechey 2016 reaffirmation of these Island Sites National Historic commitments by Prime The boundary recommended by the Site and Breadalbane National Minister Trudeau and former Steering Committee will result in Historic Site. President Obama to surpass the protection of: • Important sites that support the goals of protecting at least • A highly interconnected Inuit traditional land use and 17% of land areas and 10% of ecosystem that includes Inuit way of life of the five marine areas by 2020. important migratory, feeding, affected Inuit communities. • Completion of the NMCA nursery and breeding areas • Seven ecologically and system by representing the for a variety of species biologically significant areas Lancaster Sound marine (narwhal, beluga, bowhead, (EBSAs) identified in 2015, region. walrus, seals, seabirds). including eight key migratory • Federal, provincial and • Polynyas – Arctic oases bird habitats identified by territorial government of open water where Canadian Wildlife Service. commitments under the 2020 concentrations of various • The waters around Prince Biodiversity Goals and Targets species occur – which are Leopold Island Migratory Bird for Canada (2016). depended on by wildlife for Sanctuary and Nirjutiqarvik • Achieving the federal survivial and by Inuit for (Coburg Island) National government’s target of harvesting. Wildlife Area. protecting 5 percent of • Several Community Priorities The boundary recommended by Canada’s marine environment and Values for Marine Areas4 the Steering Committee will also by 2017 and 10 percent by and one Community Area support: 2020. of Interest5 identified in the • International commitments 2016 draft Nunavut Land Use • Mitigation of climate change such as the “Because of Plan by Pond Inlet, Arctic Bay, impacts, as a larger MPA Ocean” declaration, signed Grise Fiord, Resolute Bay and is more resilient to stress, by Canada at the COP 21 Clyde River. particularly one in continuity with several terrestrial Climate Change conference in • Essential migratory habitat protected areas including November 2015. for the majority of the world’s Sirmilik National Park. • The recommendation by narwhal population, as well as Ms. Mary Simon, the federal summering aggregations for • Involvement of the five Minister of Indigenous and over 40% of the population adjacent communities Northern Affairs special and a nursery area in Eclipse in the management and representative on Arctic Sound. development of the NMCA. issues, that Canada should • Beluga aggregations near • Connecting Canadians and the expedite the establishment Somerset Island. world with one of the Arctic’s of a national marine greatest treasures. • The largest polar bear conservation area in Lancaster subpopulation in the Arctic. • International commitments Sound with a boundary for the protection of the that is similar in size to that • Important heritage sites marine environment and the recommended by the Steering associated with the history of Committee.
______
4 Those priorities and values of importance identified by the communities, such as polar bear, seabirds, fish, marine mammals, etc. taken into account in the 2016 draft Nunavut Land Use Plan. 5 Moffatt Inlet identified by Arctic Bay and assigned a Protected Area Land Use Designation in the 2016 draft Nunavut Land Use Plan. © Parks Canada
50 Boundary recommended by the Steering Committee for designation as an NMCA. Figure 10:
51 ______SPECIAL BOUNDARY • Consideration of whether to national marine conservation area CONSIDERATIONS include land areas, notably status. This is because the Canada important seabird nesting National Marine Conservation Several specific considerations still cliffs and important polar Areas Act prohibits exploration need to be finalized with respect bear denning areas on Devon for and extraction of minerals to the boundary legal description, Island. and hydrocarbon resources from including, but not necessarily NMCAs. limited to the following: • Consideration of whether to include Beechey Island Sites In the case of Lancaster Sound, a • Exclusion of specific areas National Historic Site, Prince quantitative petroleum resources around the communities to Leopold Island Migratory assessment report was completed, allow for future development, Bird Sanctuary and other such published in 2013, and available including options for ports designations in the NMCA. for public consultation for the and small craft harbours, as 2010 proposed federal boundary requested by communities. Many of these, and other potential boundary questions will be of 44,300 square kilometres. It • Exclusion of a portion of considered during negotiations did not include the areas proposed southern Milne Inlet for for the Inuit Impact and Benefits to be added to that boundary, Baffinland’s Mary River mine Agreement, a requirement to the west, east and south. A operations, as agreed to with under the Nunavut Land Claims further assessment of these areas Baffinland. Agreement. is needed to provide governments • Exclusion of an area for and QIA with the necessary Prior to governments the DND Nanisivik port information to decide on a making a final decision on a operations. final boundary. Parks Canada boundary, additional study is working with the Geological • Addressing how boundaries of the hydrocarbon potential Survey of Canada to ensure this around migratory bird of the Steering Committee’s information will be available in a sanctuaries and national recommended boundary is timely manner. wildlife areas (Prince Leopold required. Federal policy requires Island MBS, Bylot Island that mineral and energy resources In recommending the larger MBS, and Nirjutiqarvik be assessed for areas under federal boundary, the Steering Committee (Coburg Island) NWA) would jurisdiction north of 60 that are considered a number of factors intersect with the NMCA. proposed for national park or © Parks Canada/ Wayne Lynch 52 © Mario Cyr with respect to hydrocarbon • Shell Canada Limited also for exploratory work in the resources as a result of its suggested the Steering Arctic. consultations: Committee consider the • Finally, on June 8th, World • While the existing petroleum results of the 2008 report by Oceans Day, Shell Canada resource assessment the United States Geological Limited announced that it concluded that there was the Survey which clearly indicated had voluntarily donated to potential for a Hibernia-like that on a qualitative basis, the Nature Conservancy of find within Lancaster Sound, the Lancaster Sound area, Canada its 30 exploratory it also indicated that only half in comparison to the rest of permits covering 8,600 of this resource, if confirmed, the Baffin Bay area, had the km2 located in the eastern would be extractable. least amount of potential on a mouth of Lancaster Sound regional scale. • Shell Canada Limited, which and within the boundary of was the only company with • As part of a public the Steering Committee’s exploratory permits and presentation in 2015, the proposal. The Conservancy, history in the area, informed Canadian Association in turn, confirmed that it had the Steering Committee that of Petroleum Producers transferred the permits to its review of the petroleum provided data showing that the federal government and resource assessment report the Baffin Bay Basin area INAC has confirmed that they found that the report (including Lancaster Sound) received the permits and had overestimated the likely size had the least potential of three taken them off the books. of hydrocarbon resources northern basins, indicating Combined, all of these elements, within Lancaster Sound. that the other two had at least plus the ecological and Inuit Shell Canada has also agreed ten times the potential of the Qaujimajatuqangit results, to supply the data it has Baffin Bay area. provided the Steering Committee from its former leases to the • Both Shell Canada Limited with the confidence it required to Geological Survey of Canada and the Canadian Association recommend the boundary. for use in determining the of Petroleum Producers hydrocarbon potential of the indicated during the time of proposed NMCA. this study that industry did not have any short term plans 53 © Parks Canada/ Diane Blanchard 54 © Parks Canada/ Francine Mercier
RECOMMENDATIONS
The Steering Committee Cape Hunter along Baffin the consultations undertaken recommendations to the Island. to date – be considered Governments of Canada and • Governments and QIA for discussion during a Nunavut and the Qikiqtani Inuit endorse this boundary and final community tour to Association are as follows: announced it during the be undertaken following • Lancaster Sound be Canada 150 celebrations in approval of the feasibility established as a national 2017. report: marine conservation area • Governments and QIA ◊ Protect within the under the Canada National provide a mandate for Canada’s national Marine Conservation Areas negotiation of an Inuit Impact marine conservation Act. and Benefit Agreement and area system a • The boundary for the national that negotiations be launched representative seascape marine conservation area in a timely manner. in the Lancaster Sound marine region. encompass an area of • An Inuktitut name be given approximately 109,000 to the national marine ◊ Protect important square kilometres, as conservation area, taking into marine mammal and illustrated in Figure 10. The account existing traditional seabird habitat (nursery boundary to include waters to place names, to be chosen and calving areas, the low water mark along the as part of IIBA negotiations feeding areas) and coast and take in the mouth and confirmed through key migratory routes of Lancaster Sound, the area community participation. through the region. previously covered by the • The following draft ◊ Enable Canada Shell leases and Admiralty and Inuit to work Inlet, extending west to conservation objectives for the national marine collaboratively to Cornwallis Island, north to conserve and present Jones Sound and south to conservation area – based on
55 the natural and cultural of the national marine responds positively to the strongly values of the Lancaster conservation area until its first expressed desire of local Inuit Sound region. formal management plan is to include all of the important ◊ Contribute to food approved, within five years elements of this area in the security and the of its establishment under national marine conservation maintenance of Inuit the Canada National Marine area, including the highly traditional cultural Conservation Areas Act. vulnerable mouth of Lancaster activities, including • The Steering Committee Sound. harvesting. remain in place for the An expeditious decision by • The conservation objectives purpose of ensuring governments and QIA supporting which come out of the coordinated discussions the Steering Committee’s community discussions serve between the parties during recommendations would allow as the basis for an interim IIBA negotiations and interim the parties to announce a final management plan for the management planning for the boundary in 2017 as part of the national marine conservation NMCA. Canada 150 celebrations and area, including a zoning plan, Protection of this ecologically allow negotiations on an Inuit to guide the management and culturally significant area Impact and Benefit Agreement to commence in a timely fashion. © Parks Canada/ Francine Mercier 56 © Mario Cyr 57 REFERENCES
Baffinland. 2016. Mary River Project Update. Final Report. November 30, 2016. Baffinland Iron Mines Corporation. www.nirb.ca/portal/pdash/pdash.php?lang=en&appid=123910# (located under Documents and Project Cer- tificate – search for document 161130-08MN053-Project Update-IA2E.pdf)
Brent, T.A., Chen, Z., Currie, L.D., and Osadetz, K., 2013. Assessment of the conventional petroleum resource potential of Mesozoic and younger structural plays within the proposed National Marine Conservation Area, Lancaster Sound, Nunavut; Geological Survey of Canada, Open File 6954. doi:10.4095/289615
CAPP. 2015. Canadian Association of Petroleum Producers. Presentation to the Maritime Arctic Security and Safety Conference, 2015 (www.capp.ca)
Dawson, J. 2013. Study of Existing and Potential Marine-based Tourism Opportunities in Lancaster Sound. Report prepared for Parks Canada. 50 pp.
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Drummond, K.J. 2009. Northern Canada Distribution of Ultimate Oil and Gas Resources. Prepared for Indian and Northern Affairs Canada by Drummond Consulting.
Hoag, Hannah. 2016. Arctic Development Stalls With Tumbling Oil Prices. January 22, 2016 article in the Huffington Post. www.huffingtonpost.com/entry/arctic-development-stalls_us_56a2b40be4b076aadcc6c444.
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Mathiesen, Karl. 2012. Can Shell Afford Arctic Oil? August 12, 2015 article in The Guardian. www.theguardian.com/ environment/2015/aug/12/can-shell-afford-to-drill-for-oil-in-the-arctic.
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Parks Canada. 2017. Lancaster Sound National Marine Conservation Area proposal -- Consultation Overview.
QIA, 2012. Tallurutiup Tariunga Inulik – Inuit Participation in Determining the Future of Lancaster Sound. Qikiqtani Inuit Association. 56 pp.
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The Arctic Institute. 2012. Offshore Drilling in the U.S. Arctic, 2012. www.thearcticinstitute.org.
USGS. 2008. Assessment of Undiscovered Oil and Gas Resources of the West Greenland-East Canada Province, Fact Sheet 2008-3014, May 2008. United States Geological Survey.
58 Vard Marine. 2016. Protection of critically sensitive Nunavut marine habitats – Final report. Report 333-000-05 Rev 1 prepared for WWF Canada by Vard Marine Inc.
Vidal, John. 2016. Arctic Shipping ‘still decades away’. February 9, 2016 article in The Guardian. www.theguardian. com/environment/2016/feb/09/arctic-shipping-passage-still-decades-away.
Yurick, D. and F. Mercier. 2013. An Updated Assessment of the Ecological Values of Lancaster Sound in the Eastern Canadian Arctic. Parks Canada. 33 pp + annex
59 ANNEX 1
60 61 62 63 © Parks Canada/ L. Narraway 64