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Breaking the Ice: Prospects for Canadian-American Clemson University TigerPrints All Dissertations Dissertations 12-2010 BREAKING THE ICE: PROSPECTS FOR CANADIAN-AMERICAN INSTITUTIONAL CHANGE IN THE GOVERNANCE OF THE NORTHWEST PASSAGE Jeffrey Parkey Clemson University, [email protected] Follow this and additional works at: https://tigerprints.clemson.edu/all_dissertations Part of the Public Affairs, Public Policy and Public Administration Commons Recommended Citation Parkey, Jeffrey, "BREAKING THE ICE: PROSPECTS FOR CANADIAN-AMERICAN INSTITUTIONAL CHANGE IN THE GOVERNANCE OF THE NORTHWEST PASSAGE" (2010). All Dissertations. 623. https://tigerprints.clemson.edu/all_dissertations/623 This Dissertation is brought to you for free and open access by the Dissertations at TigerPrints. It has been accepted for inclusion in All Dissertations by an authorized administrator of TigerPrints. For more information, please contact [email protected]. BREAKING THE ICE: PROSPECTS FOR CANADIAN-AMERICAN INSTITUTIONAL CHANGE IN THE GOVERNANCE OF THE NORTHWEST PASSAGE __________________________________________________ A Dissertation Presented to the Graduate School of Clemson University __________________________________________________ In Partial Fulfillment of the Requirements for the Degree Doctor of Philosophy Policy Studies __________________________________________________ by Jeffrey Randall Parkey December 2010 __________________________________________________ Dr. Robert Becker, Committee Chair Dr. Bruce Yandle Dr. Michael Morris Dr. James London ABSTRACT This study assesses four institutional approaches to governing the use of the Northwest Passage, including the current rules in use. The assessment is conducted through the use of expert interviews, a review of the theoretical literature, and an examination of comparative cases. Because of significant environmental changes underway in the Arctic region, institutional change for Northwest Passage management is receiving increased attention. Due to the potential environmental and security impacts of regularized ship transits through the Northwest Passage, a number of informed observers have discussed the need for considering alternative means of governing the waterway. The advantages and disadvantages of institutional alternatives are investigated here. The analysis suggests maintenance of the status quo institution appears to be the most likely outcome in this case. ii DEDICATION For my wife Maleena, and parents Linda and David. iii ACKNOWLEDGEMENTS This work was supported by a doctoral student research award from the International Council for Canadian Studies and the Government of Canada. The author is grateful to Ms. Judith Costello, Prof. Lloyd Ash, Dr. Rob Huebert, Mr. John Falkingham, Mr. David Jackson, Dr. Heather Nicol, Prof. Ian Townsend-Gault, Dr. David VanderZwaag, Dr. Richard Hodgson, Mr. Mead Treadwell, CDR James Kraska, Dr. Christopher Kirkey, and the Honorable David Wilkins. He would also like to thank the United States Arctic Research Commission, the Association for Canadian Studies in the United States, and CONNECT for their support. Great thanks are due the dissertation committee for their guidance and patience: Dr. Robert Becker, chair; Dr. Michael Morris; Dr. Bruce Yandle; and Dr. James London, all of Clemson University. Thanks also to Dr. Heather Nicol of Trent University in Ontario who served as an adjunct reader. Thanks are also due the Policy Studies doctoral program at the Strom Thurmond Institute, directed by Dr. Bruce Ransom, with administrative assistance from Mrs. Kathy Skinner and Mrs. Carolyn Benson. And finally, an enormous debt of gratitude is owed the Strom Thurmond Institute itself, including all of its staff and its director, Dr. Robert Becker. The many opportunities it has provided are deeply appreciated. iv TABLE OF CONTENTS Page TITLE PAGE .................................................................................................................... i ABSTRACT ..................................................................................................................... ii DEDICATION ................................................................................................................ iii ACKNOWLEDGMENTS .............................................................................................. iv LIST OF TABLES ......................................................................................................... vii LIST OF FIGURES ...................................................................................................... viii CHAPTER 1. INTRODUCTION ......................................................................................... 1 The Northwest Passage Governance Dispute .......................................... 3 Institutions................................................................................................ 6 Competing Claims ................................................................................... 8 Institutional Change ............................................................................... 12 The Plan of this Study ............................................................................ 15 Resource Disputes and the Canadian-American Relationship ............... 16 2. THE CHANGING ARCTIC AND THE NORTHWEST PASSAGE .............................................................................................. 22 Environmental Change in the Arctic...................................................... 22 Arctic Resources and the Law of the Sea .............................................. 28 Resources Becoming .............................................................................. 35 The Northwest Passage in a Changing Arctic........................................ 37 Policy Directions .................................................................................... 49 The Arctic Cooperation Agreement ....................................................... 60 3. INTERVIEWS WITH CANADIAN AND AMERICAN NORTHWEST PASSAGE EXPERTS .................................................. 66 Interview Format .................................................................................... 67 Interview Summaries ............................................................................. 68 Discussion .............................................................................................. 79 v Table of Contents (Continued) Page 4. THE BENEFITS OF INSTITUTIONS AND THE COSTS OF THEIR CHANGE ............................................................................ 85 Concepts of Institutions ......................................................................... 87 Institutional Models ............................................................................... 89 Beneficial Features................................................................................. 98 Problems and Preferences .................................................................... 102 Costs of Institutional Change ............................................................... 113 5. CONCLUSION .......................................................................................... 123 Issue Linkage ....................................................................................... 123 Resources and Institutions ................................................................... 127 Other Actors ......................................................................................... 135 Other Models ....................................................................................... 138 A ―Dynamic Quo‖? .............................................................................. 142 APPENDICES ............................................................................................................. 146 A: Transits of the Northwest Passage 1906-2004 ........................................... 147 B: The Arctic Cooperation Agreement of 1988 ............................................. 151 C: Interview Data: Canadian Experts ............................................................. 153 D: Interview Data: American Experts ............................................................. 162 REFERENCES ............................................................................................................ 170 vi LIST OF TABLES Table Page 2.1 Recent Northern Strategy Commitments, Projected Costs and Revenues ......................................................................................... 55 2.2 Recent Northern Strategy Commitments, Costs Undetermined .................. 56 3.1 Benefits and Costs of the Northwest Passage as Internal Waters ................ 80 3.2 Benefits and Costs of the Northwest Passage as International Strait ....................................................................................................... 81 4.1 Members and Permanent Participants of the Arctic Council ..................... 108 4.2 Observing States and Organizations of the Arctic Council ....................... 108 4.3 Alternatives and Preferences...................................................................... 112 5.1 Benefits and Costs of Institutional Models ................................................ 129 5.2 Benefits and Costs of the Arctic Cooperation Agreement ........................ 130 vii LIST OF FIGURES Figure Page 1.1 The Northwest Passage .................................................................................. 2 1.2 The Northwest Passage ―Open‖ August 29, 2007 ......................................
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