Preface

In the quest for a "best plan" for Lancaster Sound criticisms. This feedback is discussed in detail in a and its abundant resources, this public discussion recently published report by the workshop chairman, paper seeks to stimulate a continued, wide-ranging, Professor Peter Jacobs, entitled People, Resources examination of the issues involved in the future use and the Environment: Perspectives on the Use and and management of this unique area of the Canadian Management of the Lancaster Sound Region. All the Arctic. input received during the public review phase has been taken into consideration in the preparation of the The green paper is the result of more than two years final green paper. of work by the Northern Affairs Program of the Department of Indian Affairs and Northern From the beginning of the study, it was expected that Development. in co-operation with the government of to arrive at an overall consensus of the optimum fu­ the Northwest Territories and the federal departments ture use and management of the Lancaster Sound of Energy, Mines and Resources, Environment, region would require intensive public discussion fol­ Fisheries and OCeans, and Transport. The working lowing the release of the green paper. Greatly diver­ group set up to conduct the study first assembled a gent views held by different sectors of the public will data base in the form of a data atlas and a series of have to be assessed and balanced during this final technical background papers. A synthesis of this infor­ stage. mation, together with an analysis of the issues, was presented to the public as a draft green paper, re­ To foster this discussion, the green paper presents a leased by the Minister of Indian Affairs and Northern series of specific resource use options for Lancaster Development, the Honourable John C. Munro, at Sound; it also outlines alternative approaches to a Frobisher Bay in February 1981. regional planning mechanism. The reaction of the public to these options will have a significant influence In the months that followed, an extensive public re­ on the decisions that the Minister of Indian Affairs and view of the issues involved open meetings in the four Northern Development and his Cabinet colleagues will Lancaster Sound communities and public workshops make on the region. in Resolute and Ottawa. These were well attended, and representatives of all interests in the Lancaster There is clearly a need to establish an ongoing Sound area - Inuit, government, industry, conser­ process of regional planning for Lancaster Sound that vationists, public interest groups and concerned indi­ will include meaningful participation by the Inuit resi­ viduals - provided valuable and necessary contri­ dents. The recent initiation by the department of a pro­ butions in the form of viewpoints, suggestions and gram for comprehensive land use planning north of

3 60' is expected to lead to the implementation of such a process in the Lancaster Sound region, and other areas of the North where decisions on resource devel­ opment activities are urgent. As the details of this pro­ gram have not yet been put into place, some interim steps are proposed to facilitate the early introduction of effective regional planning. Public awareness of the complex issues faced in Lancaster Sound and throughout the Arctic has been heightened by the Lancaster Sound Regional Study. Southern Canadians now are more familiar with the concerns of the region's Inuit residents, while the Inuit have had an opportunity to become more knowledge­ able of the broader national and international issues bearing on many decisions about the future of the re­ gion. The increased familiarity with each others' views and perspectives that this study has given to the dif­ ferent sectors of the concerned public has led to a greater willingness to seek solutions jointly. This greatly improved climate for planning and decision­ making should be considered a significant step in the evolution of a "best plan" for the future of this mag­ nificent arctic region.

Herman J. Dirschl, Allan H. Jones, Project Manager, A/Chairman, Lancaster Sound Steering Committee Regional Study

4 1"

Contents

Resource Use Option 5: Balanced Development 27 Preface 3 III. Options for Future Use 24 Basic Premise 27 Rationale 27 Description of Activities 27 Summary 5 Resource Use Option 1: No New Development 24 Implications 27 Basic Premise 24 Rationale 24 Resource Use Option 6: Non-renewable Resource I. Introduction 13 Description of Activities 24 Economy 27 Implications 24 Basic Premise 27 Rationale 27 The Area and Its Significance 13 Resource Use Option 2: Environmental Description of Activities 28 Protection 24 Implications 28 The Study 18 Basic Premise 24 Rationale 24 IV_ The Framework of Policies and Initiatives 30 II. Concerns and Issues 20 Description ofActivities 25 Implications 25 ------

Major Concerns 20 Resource Use Option 3: Renewable Resource Sovereignty 30 Protection of the Environment 20 Economy 25 Basic Premise 25 Major National Policies Affecting Northern Stable Regional Economy 20 Development 31 Non-renewable Resource Development 2t Rationale 25 Description of Activities 25 Major Objectives for the North (1972) 3t Issues 21 Implications 26 An Energy Strategy for Canada (1976) 3t Pace and Timing of Development 22 The National Energy Program (1980) 32 Participation and Control 22 Resource Use Option 4: Northwest Passage Statement by the Minister of Indian Affairs and Distribution of Costs and Benefits 23 Shipping 26 Northern Development, March 24. t98 t 32 Choice of Lifestyle 23 Basic Premise 26 Rationale 26 DescriptionofActi0ties 26 Implications 26

11 Policies of More Specific Application 32 Planning Process Option 2: A Planning Board 39 Appendix D: Study Organization and Basic Premise 39 Methodology 94 Current Policy Initiatives 33 Rationale 39 How It Would Work 39 Appendix E: Supporting Documents 97 Comprehensive Land Claim Negotiations 34 Relationship to the Northern Land Use Planning The Nunavut Claim and Political Development 34 Policy 40 Nature 01 the Claim 34 Implications 40

Planning Considerations 40 V. Regional Planning 36 Planning Region 40 Definition ofPlanning Objectives 4 t Conservation 42 Workshop Proposals for Planning 36 Expansion ofKnowledge Base 42 Northern Land Use Planning 37 Effective Co-ordination with Review and Regulatory Processes 43 Working Towards Northern Land Use Planning in the Lancaster Sound Region 38 VI. Beyond the Green Paper 44 Planning Process Option 1: An Interim Planning Advisory Committee 38 Basic Premise 38 May We Have Your Comments? 45 Rationale 38 How It Would Work 38 Appendix A: Lancaster Sound: The Present Relationship to the Northern Land Use Planning Picture 46 Policy 39 Implications 39 Appendix B: Lancaster Sound: Potential and Future Uses 72

Appendix C: Existing Projects and Current Proposals for Non-renewable Resource Exploitation and Transportation 91

12 - - - - - ~- - -

I. Introduction

Lancaster Sound , a magnificent part of C anada's high Barrow Strait and th e network o f straits and p assages bers th roughout these wa ters. Polar bears a Arctic, poses a great challenge for C anadians in pl an­ of th e Arctic Islands re f ound . in larg e numbers on th e ning l or the future us es of the North . Ecologically, the ice. Sound is on e of the richest, mo st productive a reas in The study area, as defined for this regional s tudy, i s all the Ar ctic. The long-term health of thi s s pecial . in­ shown in F igure 2. It is ce ntered on Lancaster Sound deed unique. environment should be o f concern t o all and Barrow Str ait. and includes th e adjo ining m arine Canadians. Lancaster Sound form s the e astern e n­ channels and inlets as well as the coastal z ones a nd trance to the Northwest Passage, and thu s is part o f a uplands of Bylot , Cornwallis and Little C ornwallis is­ potential transit route for in creased shipping if indu s­ lands, portions o f D evon a nd Som erset is lands and trial development o f any k ind proceeds in th e Arctic. Baffin Island's Brod eur a nd Bord en peninsulas. The Since the Sound also holds a h ydrocarbon potential, total ex tent of the stud y a rea is 260 000 k m' . The important deci sions have to be m ade a bout th e impli­ communities of Pond Inl et, Arctic Bay a nd R es cations of po ssible olute oil and ga s ex ploration and d evel­ and th e mining c omplex of N anisivik a opment h re situated ere as Canada pursu es its national o bjective within the region. of energy self-sufficiency . Weighing heavily i n th e bal­ ance of con siderations for th e future use o f L ancaster Lancaster Sound and th e contiguous channels a nd in ­ Sound are th e interests of th e Inuit who live in th e lets have bee n r ecognized by s cientists as c ritical to area and continue to depend on it s biolog ical re­ the reproduction and survival of th e sea bird population sources. Thoughtful comment r eceived from th e read­ in the Canadian high Ar ctic; the Sound i s c onsidered ers will a ssist government in r eaching sound decisions to be one of th e most important marine mammal hab­ in regard to the future of th e Lancaster Sound region. itats in the eastern Ar ctic a s well. Several million seabirds nest, reproduce a nd f eed in t he Sound du ring The Area and Its Significance the s ummer month s. Species co ncentrations are unri ­ Lancaster Sound is situated appro ximately 3 00 0 km valled anywhere in the high Ar ctic a nd include north ­ north of Montreal. A deep marin e c hannel on th e north ern fulmar, glaucous g ull, black-legged ki ttiwake, side of Baffin Island, i t is an important geographi cal thick-billed murre a nd bl ack guillemot. Marine mam­ feature of the c ircumpolar Arc tic ( Figure 1). Four hun­ mals include 85 per cent of North Am erica's narwhals dred k ilometres long and 75 to 120 km w ide. with a and 40 per cent of th e white (beluga) whales in add i­ flaring mouth open to Baffin Ba y on th e east. the tion to large populations of r inged, harp and be arded Sound fo rms a major pa ssage into the Can adian Arctic seals. There are small colonies of walrus, and th e Archipelago. On the west, the Sound i s connected to endangered bowh ead whale still occurs in small nurn -

13 Significance of the Lancaster Sound Region In the Context ofthe Circumpolar North • ~ l» ~ C ")PC~ ~l» l> jlo-~C I>....-.... -~p~c:::>c-~ AI"Li.JJ • Importance de la region du detroit de Lancaster dans I'ensemble du Nord circumpolalre

Km~ '- 14 1 The Study Area • c;l»l>~~l\I>~ c; • La region d'etude

1::'"...::=:=:.•. _ ____e-_.-._ ==-=_,.__... ~ . ______~;....: =II-oI =_ Ioo.oI -= ;."",r ~ '__!I ~ _ =-""";"",,:,=~,,=::,'C;:.-===,, _ _ _~ .;.. J __ '___'_ '___'~~__ Ex--==-=-~"'C::- --..,...::=....'"""l;..... =====~- -- ~ _!=:::.:::::r.-=.:. '=~-=.:=- J_~_ '___' =" ..... - . _ .._ ':. __I...... l._==o1 _ _ ~.:=."=-'"":':-..:='=-- ___. ..-,e-e-_ . .-. "'-'__" _ =a: <-' 0 :.:c=.=.=:- ---...... ~_------~- -- -- 2 15 The abundance of biological resources, particularly extremely important for attracting marine mammals trance to Lancaster Sound and Prince Leopold Island. the marine mammals, which are so important to the back to Lancaster Sound and for the arrival of Finally, the International Union for the Conservation of Inuit way of life, is best understood by considering the seabirds. Nature and Natural Resources (IUCN) has identified marine region surrounding Lancaster Sound. Figure 3 as a high priority in its recent World Conservation places the study area within the context of the eastern The coastal zones, mountains and upland plateaus of Strategy the establishment of protected areas in the arctic marine region centered on northern Baffin Bay the islands also contribute to the region's biological Canadian "tundra and barren arctic desert," including and including the west coast of Greenland, the North richness with populations of snow geese, caribou, the Lancaster Sound region. Water, Jones Sound, and the coast of Baffin Island. muskoxen, and other species. This abundance of ma­ The predominant areas of open water, including poly­ rine and terrestrial animal life has provided food and In addition to concerns about the protection of its nyas and shorelands, are illustrated on this map along shelter for the Inuit for several thousand years. Wildlife magnificent scenery and abundant animal life, the with the generalized pattern of surface currents. continues to be important to the Inuit residents of Lancaster Sound region has become significant in Arctic Bay, Pond Inlet, Resolute and the small settle­ ways that may well affect the lives of all Canadians. A polynya is a recurring area of open water sur­ ment of Grise Fiord on southern Ellesmere Island, pro­ The Sound forms the eastern entrance to the rounded by ice, which is caused by various combina­ viding them with food as well as cash income. A more Northwest Passage, a corridor of naVigable water con­ tions of currents, tides, upwellings and winds. The detailed description of the character of the Lancaster necting the Atlantic and Pacific oceans, which was North Water is the most famous polynya because of Sound region is provided in Appendix A. first explored by Europeans during the nineteenth cen­ its size, persistence and northerly location. A smaller, tury. Ships have used the Sound for more than 150 less persistent polynya opens early in the arctic sum­ Strategies to protect at least part of this unique area years, beginning with the European explorers, fol­ mer near the mouth of Lancaster Sound. Important are being considered by Canadian and international lowed by whalers and traders and, more recently, by shoreleads develop along the west coast of conservation agencies. Parks Canada has identified supply ships, scientific vessels, and ore carriers. Greenland, the south coast of Devon Island, and in various natural areas of Canadian significance, at However, all these vessels have been forced to limit the vicinity of Bylot Island. least one of which will likely be proposed for national operations to the short open-water season, extending park status. A number of locations of particular eco­ from mid-July to late October. Now, with the current The upwelling and mixing associated with ice edges logical importance have also been proposed for pro­ crisis in the world energy situation and Canada's de­ and open-water areas contributes to the production of tected status by the International Biological termination to regain self-sufficiency in oil supplies, an abundant source of food for marine mammals and Programme (IBP). On the international scene also, two this situation may change radically. migrant seabirds and provides them with refuge. Many sites in the Sound are possible candidate areas for of the marine mammals are not permanent residents inclusion on the list of world heritage sites, which are An industry proposal calling for the year-round ship­ of Lancaster Sound, but spend a portion of each year selected by the United Nations Educational, Scientific ping of liquefied natural gas (LNG) in powerful ice­ in other polynyas or shoreleads in the Baffin region. and Cultural Organization (UNESCO) from nomina­ breaking tankers from Melville Island through The occurrence of open water early in the summer is tions by member countries. They are the eastern en- Lancaster Sound to eastern Canada is under review.

16 p Northern Baffin Bay and the Study Area . AL..,)~ 'ibl>~~&\I>~ 'i..,) . Partie nord de la Baie Baffin et la region d'etude

~ General Direct ion of Surf ace Flow . A Ltl-< "LC .6.,(, Gr~ • Direct ion generale del ~ courant. de surface MOOlan Amou nt of all Ice: June 4 . ""J'i ~.."t.1 -.l.. 4 • Quantile moyenne de toules glaces: Ie 4 1ulo CJ Open Water. Cl"U-';O ,.JJ'i ,,' rcy. Eaux IIbrea '" Y• . 'Y. lce Cover. Y. - 'Y.. ,.J¥'''~ r'''' • Y.. - 'Y.. Couverture de glace 00 Y... · '"I.. Ice Cover . Y..- "Y...... I',,"; ..'\" • Y. - '"I.. Couverture de gl ace

______0:-_ ... _ . _.,., ~ -.... _-...... v""...... _ _._---.-­ --~~--_ ­... . .-- ioo --­ '00 '00 "'" ----...-..-.-~.:==-...... :=:.- -.r"' ~ "'_ 3 17 - u;z;·

Very large ice-breaking tankers are also being consid­ newable resource developments would also bring eco­ Northern Development in collaboration with the federal ered for carrying crude oil and liquefied natural gas nomic benefits to the residents of the region, the departments of Energy, Mines and Resources, from the Beaufort Sea through the Northwest Passage Northwest Territories, and to Canada as a whole. Environment, Fisheries and Oceans, and Transport, to refineries on the east coast of Canada. It has been However, the implications of such development can­ and with the government of the Northwest Territories. estimated that before the end of the century, ship not be fully assessed until a detailed examination of all The organization of the study is described in Appen­ traffic in the Sound could increase from the present the regional, territorial and national costs and benefits dix D. At the outset it was decided that a green paper' level of about one ship per day during the short open­ is carried out. would be prepared to serve as a tool to bring about water season to three ships per day year-round. organized and thorough discussion by the residents of The StUdy the Lancaster Sound region, interested organizations, As well as being a possible route for the transport of The present study evolved from the public hearings and concerned members of the public on the complex oil and gas from points farther west, Lancaster Sound held in 1978 to examine an application by Norlands issues of determining the optimum future uses of the has a hydrocarbon potential of its own. A number of Petroleums Ltd. for permission to drill an exploratory region's marine and land areas. promising geological structures have been identified in well in Lancaster Sound. The panel of officials set up the Sound and in the adjacent part of Baffin Bay. under the federal Environmental Assessment and In a message to the Baffin Regional Council, dated Although the government has withheld approval of the Review Process (EARP) to conduct the hearings con­ OCtober 17, 1979, the Minister of Indian Affairs and initial application for permission to drill an exploratory cluded that a meaningful assessment of the environ­ Northern Development explained that the green paper well, further proposals are under preparation. mental and socio-economic impacts of exploratory was not intended as a "blueprint for development" of Exploration and subsequent development of the reser­ drilling in Lancaster Sound could not be made in isola­ the Lancaster Sound region, but rather, as a means of voirs that may be discovered would have a significant tion from the broader issues that affect all uses of the initiating public discussion on how the region should influence on the Lancaster Sound region and its Inuit area. The panel therefore recommended that a com­ be managed in future. He spoke of the variety of uses communities through the construction of onshore in­ prehensive review of the complex resource use prob­ the region might accommodate and noted that some stallations and ports, the presence of a relatively large lems in the Lancaster Sound region should be done might be incompatible with each other or with the en­ work force, and the threat of a blowout or large oil by the Department of Indian Affairs and Northern vironment. He also referred to the importance of pre­ spill. Further detail on potential and future uses of Development as the principal federal co-ordinating and serving the traditional culture and way of life of the Lancaster Sound is given in Appendices Band C. planning body for the North. This recommendation was accepted by the Minister of Indian Aflairs and Clearly, each of these potential developments would Northern Development. bring definite impacts to the natural environment of 'The term green paper is generally used to refer to a paper pre­ the region and would affect the lives of the Inuit resi­ Accordingly, in the fall of 1979 the Lancaster Sound pared by government for the purpose of fostering fun public discus­ sion of a specific issue or policy question. Thus, a green paper is dents whose lifestyle has already undergone rapid Regional StUdy was initiated by the Northern Affairs intended to provide a clear description of the issue in question and changes during the past half century. These non-re- Program of the Department of Indian Affairs and to outline a range of possible alternatives or options available for its resolution.

18 ••

Inuit who live there and stated that factors such as The Lancaster Sound Regional Study comprises three environmental protection and oil and gas must be con­ main phases, the first of which involved the compila­ sidered. The minister stressed that a clear perception tion of all relevant available information on the region of the issues involved was needed so that informed and the preparation of a preliminary data atlas and decisions could be made on the use and management background reports (see AppendiX E). A summary of of Lancaster Sound. the data base, analysis of interactions, and key ques­ tions about future directions that the region may take, The paper, therefore, does not provide a regional plan were incorporated into a draft green paper. This docu­ for Lancaster Sound; rather, it lays a foundation for a ment then served as the primary vehicle for the sec­ regional planning process. It strives to facilitate land ond phase of the study, the public review phase. and marine use planning and decision-making by the appropriate organizations, whether federal, territorial The second phase consisted of public meetings in the or local. Neither is it an environmental impact assess­ region's four communities, followed by two workshops ment - such assessments are being completed on a in Resolute and Ottawa. The public review phase pro­ project-by-project basis under the existing duced much valuable input from all interested sectors Environmental Assessment Review Process. The pa­ of society - perspectives, viewpoints and insights that per does, however, provide the background necessary will help to build a strong foundation for planning and to gain a regional perspective on alternative uses and decision-making on the future of the reqion.> an insight into their cumulative effects. The third phase consisted of updating the data base As the foundation for a comprehensive regional plan­ and drafting the final green paper, taking into consid­ ning process for Lancaster Sound, the green paper eration all input from the public review phase. It is and associated study reports provide a summary of hoped that the green paper will provide the informa­ existing knowledge on the physical and biological en­ tion needed to make decisions now and in the future vironment, the current socio-economic situation, and concerning the use and management of the Lancaster the range of current and potential uses of the study Sound region and will be the foundation upon which to area. The paper also puts forward, for discussion, build further knowledge of this area. some alternative strategies or options that appear to be available for the use, development and manage­ mentof the region for the remainder of the century. 2P. Jacobs. 1981. People, Resources and the Environment: Perspectives on the Use and Management of the Lancaster Sound Region. Department of Indian Affairs and Northern Development.

19 II. Concerns and Issues

The Canadian public has had an opportunity to con­ it unique and that some areas, important for wildlife or needed for all habitats in the region, independent of sider potential and future uses for the Lancaster for historical or cultural significance, require immediate present conservation interests and proposals. The Sound region, as outlined in the draft green paper. protection. Some proposed that because Lancaster appropriate mechanisms for ensuring that these re­ (These uses are included in the present paper as Ap­ Sound has much more than just a regional or national sources be given adequate protection could then be pendix B.) Industry, government, Inuit, special-interest environmental significance, a global perspective is implemented. groups and individual citizens considered these poten­ needed on the protection of the region. tial and future uses and the possible directions that The Arctic is seen by many as an important compo­ development might take, and expressed their opinions All sectors of the public support the establishment of a nent of the global physical system in which only "no­ and concerns at public meetings in the four communi­ national park in the region, although some industry risk development" should be permitted. A recommen­ ties of the region, at two formal workshops (one in representatives, recognizing that non-renewable re­ dation was made to follow a tenet of the World Resolute, one in Ottawa) and by letter. Comments source extraction activities are not permitted within a Conservation Strategy' in planning for Lancaster thus provided concerned the draft green paper itself, national park, feel that areas having exploitable min­ Sound, specifically that "conservation is a process ­ the background materials and the study approach in erai or hydrocarbon resources should not be included to be applied cross-sectorally - not an activity sector general. The input from the public covered a wide in a park. Industry is of the opinion, therefore, that all in its own right." range of perspectives and values, with each sector interested parties should participate in the determina­ expressing its own interests and concerns. A synthe­ tion of boundaries for any national park. Inuit support Stable Regional Economy sis and analysis of these views is included in the re­ the establishment of a national park reserve, with the Those residing in the region are concerned about pre­ port prepared by Professor Peter Jacobs, who chaired reserve becoming a park after land claims are settled. mature industrial development causing a "boom-bust" both the Resolute and Ottawa workshops.' Tourism would increase and the types of employment effect on the regional economy and would like to have opportunities available would be more compatible with the opportunity to examine alternative activities before Major Concerns their preferred lifestyle. embarking on new industrial development.

Protection of the Environment Environmental interest groups maintain that protection The Inuit are interested in making tourism a major ac­ The public has expressed consensus that Lancaster of the region's environment should not be limited to tivity in the region. They recognize that tourism busi­ Sound has special biological characteristics that make the boundaries of a national park and express concern nesses require much less capital investment than do about the small size of the area currently proposed for non-renewable resource development activities, and protection under the National Parks Act, namely the Bylot Island-Eclipse Sound area. A comprehensive strategy for conservation in the region was seen by 'P. Jacobs, 1981. People, Resources and the Environment: some as a means of ensuring protection of the wildlife slnternational Union for the Conservation of Nature. 1980. World Perspectives on the Use and Management of the Lancaster Sound of the region. This comprehensive strategy would con­ Conservation Strategy: Living Resource Conservation for Region. Department of Indian Affairs and Northern Development. centrate initially on identifying the levels of protection Sustainable Development.

20 ------_.~----_._.~--_._--,. --, .. _------'- -,,--~.. ~ ...-

that tourism will therefore provide many opportunities claims should be settled before more industrial pro­ Government and all sectors of the public recognize for small businesses and increased wage-employment jects are approved. that Inuit in the region feel threatened by the immedi­ in activities compatible with the Inuit traditional life­ acy of development initiatives, and agree that regional style. There is much support for this view. Many think Representatives of industry, on the other hand, think planning must consider the social effects of industrial that tourism, through the provision of more jobs in that exploratory drilling, mining and year-round ship­ activities and the desire of the Inuit to participate at all businesses controlled by Inuit, will complement the ping are all compatible uses of the region. Theyem­ levels in developments that take place. present lifestyle and provide long-term economic ben­ phasize that not all industrial activities require the efits. Others believe that consciously promoting tour­ same services or level of support, or have the same 01 the various industrial proposals, the Arctic Pilot ism in the region within the context of strengthening effects on the environment. Industry maintains that Project, which would involve the shipping of liquefied the renewable-resource-based economy could provide adequate legislative controls are already in place to natural gas through the Northwest Passage, is of the improved economic base desired by the Inuit. The ensure that acceptable environmental conditions are most immediate concern to the people of the region. government of the Northwest Territories feels that maintained and that proper planning now will prevent Inuit, particularly those of Resolute, are worried about tourism can enhance the economy of the region with­ the social disruption feared by many. Industry's posi­ the safety of such year-round shipping and the effect out depleting its natural resources. tion is that it would not be in the national interest to that the ships' tracks through the ice will have on their unduly delay industrial development of the region. hunting patterns. Of greater concern than the effects Concerns have been expressed, however, over the of the APP, is the year-round shipping of oil, a poten­ effects that poorly controlled tourism may have on the Government stresses that it has never been its policy tial pollutant. Inuit fear such shipping will follow the wildlife of the region, as well as on archaeological and to pursue exploration for oil and gas at any cost. The commencement of the APP, before that project can be historic sites. Some hold the opinion that tourism plan­ Department of Energy, Mines and Resources has clar­ properly assessed. Inuit, environmental-interest ning and parks planning must be done simultaneously. ified its "need-to-know" policy as it reiates to groups and others want assurances that experience in The current seasonality of tourism in the region is also Lancaster Sound to state that "we would like to know year-round shipping will be gained first from a pilot of concern, with most activities being concentrated in whether it contains commercial fields of oil and gas project that is properly evaluated before approvals for July and August. High transportation costs to the re­ but we do not need to know immediately." This is transportation of a pollutant cargo such as oil will be gion have been mentioned as an inhibiting factor. clearly contrary to the positions expressed by some in considered. industry who feel it is imperative that major industrial Non-renewable Resource Development development in Lancaster Sound proceed soon. Issues Most Inuit oppose further industrial activity in the re­ The public directs much of its attention, not to the gion at this time. They say that they have not had time specific project proposals, but to the much broader to preparefor such large-scale developments and that issues underlying northern development and political adequate environmental safety measures have not 3J.P. Hea. Submission on Behalf of the Department of Energy. evolution in the North. In view of the ongoing land Mines and Resources. Lancaster Sound Regional Study Workshop. been proven. Also they believe strongly that land Ottawa, May 1981; 4 P (LSRS Open File No. 5-05). claim negotiations, the pace and timing of industrial

21 ~======...... c====-=---'-~~~~======~_-======---===

development is a major issue. Local participation in claims will not be subject to the terms of a land claim Most people in the region feel they do not have edu­ decision-making and in controlling the tuture of the agreement when such is made; thus Inuit will be in no cational levels necessary to derive maximum benefits region is also an issue of importance, as is the distri­ position to exert effective control over those projects from the opportunities that will be presented when in­ bution of costs and benefits that would accrue from or to receive maximum benefits from them. Their posi­ dustrial projects eventually go ahead. Future job op­ any developments taking place in the region. Freedom tion is, therefore, that no new industrial projects portunities need to be identified and training programs to choose a lifestyle is also a fundamental issue. should be approved until land claims are settled. offered to prepare residents; considerable lead-time is needed for this. The Inuit want to see new industrial These issues are not new, nor are they unique to The government position on this issue is that the set­ development in the region postponed to enable this Lancaster Sound; they have been raised in relation to tlement of land claims in a just and equitable fashion preparation; however, industry believes that appropri­ proposals elsewhere in the North. Nonetheless their is already a priority of the government of Canada. ate training programs can be designed in conjunction consideration at this time is made urgent by the nature (See Chapter IV for further detail on the land claims with development. and scope of the proposals for Lancaster Sound and process.) Because the government also has a number the speed with which industry is hoping to initiate spe­ of other priorities, however, it has proceeded to make Participation and Control cific projects. decisions on certain activities in Lancaster Sound Inuit express a desire to participate actively and mean­ while land claim negotiations are still in progress. ingfully in the making of decisions affecting their tu­ Opinions on these issues are varied. Different seg­ ture. Accordingly, they state that membership on ad­ ments of the public consider the issues from different Industry reacts to suggestions that there should be no visory committees is not sufficient to allow them to perspectives, from global, through national and re­ new industrial activities approved before land claims achieve their goals, and they demand a role in all gional, to local. Balancing these various perspectives, are settled with pragmatic statements of its own con­ structures having authority to make decisions on the although difficult, is crucial if a consensus on develop­ cerns, specifically that scheduling for such large-scale future of the region. They want input into the formula­ ment in the region is to be arrived at. projects demands tangible, realistic time frames to al­ tion of government policies for the North, representa­ low for proper planning, and that nebulous time indica­ tion on any planning and management boards that Pace and Timing of Development tors such as "when land claims are settled" are of no may be established to control development in the re­ Inuit are concerned that industrial projects have been value to them in their project planning. All sectors of gion and, in particular, a strong regional voice in any and continue to be approved before the settlement of the public express the hope that land claims will be body set up to regulate year-round shipping through land claims. Objections to this have been expressed settled in a just manner and that development in the Lancaster Sound. by individuals, community councils, and the regional region will then be able to proceed at a pace accepta­ and national Inuit organizations, the Baffin Region Inuit ble to all parties. However, in the opinion of various The public generally supports the demand tor effective Association and the Inuit Tapirisat of Canada. The spokespeople, it is not possible or desirable to post­ participation by the people of the region, although in­ Inuit recognize that non-renewable resource develop­ pone the initiation of planning for the region's future dustry and government are concerned lest Inuit think ment projects initiated prior to the settlement of land until a final agreement on land claims is reached. they will be allowed the right to veto proposed pro-

22 jects. Petro-Canada, in a statement representative ot prepare communities for the advent of industrial devel­ the residents of the region are to be able to participate industry's position on this issue, asserts that local opment. These include designing and implementing in the wage-earning economy at levels concomitant people need to be involved to the degree that reflects training courses, counselling workers and students, with their aspirations. their interest in and dependence on the study area. providing incentives and assistance to local busi­ nesses, and making a determined effort to understand Industry believes that it is possible to have major in­ Many of the demands that Inuit are making for control the aspirations of the region's residents. Despite the dustrial projects in the region with minimal disruption will de dealt with in the land claim negotiations. In the apparent good intentions of industry and government of wildlife populations and Inuit hunting patterns. In interim, there is general agreement that a framework in this regard, Inuit remain skeptical that the results of responding to the expressed desire for training pro­ must be devised through which legitimate demands industrial development in the region will be anything grams to better prepare Inuit to participate in the wage can be met. but what they fear - economic benefits flowing economy, industry says that there should be extensive southward, with social costs being borne by the re­ consultation with the communities in order that appro­ Distribution of Costs and Benefits gion's residents. priate training programs may be offered. Industry reit­ Industry maintains that development of the non-renew­ erates, though, that to postpone hydrocarbon projects able resources of the Lancaster Sound region is in the Choice of Lifestyle would not be in the national interest and that develop­ national interest, because it is one step in achieving Hunting, tishing and trapping continue to be important ment and training can proceed simultaneously. In the energy self-sufficiency for the nation. Inuit accept the sources of income and food in all communities in the opinion of spokespeople for industry, work schedules importance of the national interest, but at the same region. Although many Inuit are employed as wage for employees can be designed in ways that allow time point out that there are major inequities in the earners, almost all engage to some extent in hunting, Inuit workers to combine wage employment with hunt­ distribution of the costs and benefits accruing from fishing and trapping, which they consider important for ing, fishing and trapping. these activities in the North. They assume that south­ their survival as Inuit. The maintenance of a "country­ ern Canadians will derive most of the economic bene­ food" diet is also deemed essential for their well­ fit from industrial activities in the region - profits will being. For these reasons they oppose projects that flow to southern-based companies and skilled, tran­ could cause changes in migration patterns and popu­ sient workers will come North to take temporary, high­ lation sizes of the animals they harvest - changes wage jobs for which local residents are untrained. that may threaten or restrict their ability to follow their Although residents of the region will derive minimum preferred lifestyle. Though not advocating a return to economic benefits from these projects, the social the land for everyone, they want the option to choose costs are likely to be borne almost entirely by them. between a wage-earning lifestyle and one dependent on hunting, or a combination of the two. An appropri­ Industry and government respond to these obser­ ate educational system including opportunities for vations by outlining the steps they intend to take to technical or managerial training will be necessary if

23

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III. Options for Future Use

The draft green paper asked Canadians: "What do (ITC), Baffin Region Inuit Association (BRIA) and the Resource Use Option 2: Environmental Protection you believe would be our best plan for the Lancaster communities have called for a moratorium on both Sound region?" The public review of the draft green renewable and non-renewable resource development Basic Premise paper revealed a wide range of views and perspec­ activities until land claims are settled. Protection of the environment and the biological re­ tives on the future of the region, in keeping with the sources of the Lancaster Sound region should be as­ varied interests of the different sectors of the public. Description ofActivities sured before any resource use projects are permitted. This chapter presents a delineation of six possible al­ According to this scenario, no new development activ­ ternatives based on this public expression. These op­ ities would be permitted for the region. Project propos­ Rationale tions need not be the only ones to be considered at als, including those involving year-round shipping by Lancaster Sound is characterized by an abundance of this time; however, it is believed that they do encom­ Canadian carriers, would not be considered. No new marine life that makes it unique in North America and pass the full range of public opinion expressed during resource exploration would be permitted and existing probably the circumpolar Arctic. The reasons for this the public review phase. The options, outlined below, resource extraction and harvesting projects would not high biological productivity remain poorly understood. range from strict environmental protection of the re­ be allowed to expand. New park or conservation ar­ As detailed in Appendix A. the marine birds and mam­ gion to full-tilt economic development. They have not eas would not be established. mals inhabiting the Sound comprise major portions of yet received endorsement from the public, government the North American and world populations of species or industry, and are presented here solely to stimulate Implications such as narwhal, white (beluga) whale, northern ful­ discussion. In this way, it is hoped to involve all par­ The "nothing-new" option would ensure that land mar, kittiwake and the endangered bowhead whale. ties in a meaningful process of narrowing down the claims negotiations were not adversely affected by The eastern entrance to Lancaster Sound acts as a choices for the future of the Lancaster Sound region. new developments and would give the Inuit some time funnel that concentrates migrating seals, walrus, to clarify their goals for the future. This option proba­ whales and marine birds. The native people of the Resource Use Option 1: No New Development bly could not be effective for an extended period of Lancaster Sound region, the west Greenland coast, time and would have to be periodically re-evaluated in and the Baffin and Labrador coasts depend on the Basic Premise terms of the growth of the human population and fu­ marine resources of Lancaster Sound to support their No new development of any kind should be enter­ ture socio-economic and conservation requirements. way of life and their "country-food" diet. tained for the Lancaster Sound region. The interests of the National Energy Program and the non-renewable resource industry, both domestic and There are a number of particularly important or biolog­ Rationale foreign, would not be well served by this option. As ically sensitive sites within the region, which are un­ The Inuit have stated that resource development activ­ well, the Canadian government has previously indi­ protected at this time. Parks Canada is interested in ities have placed a strain on the social fabric of their cated that foreign shipping would not be denied ac­ establishing a national park reserve within the region, communities and that they need time to adjust to re­ cess to the Northwest Passage. and the entire Lancaster Sound area appears to sat­ cent developments. The Inuit Tapirisat of Canada isfy the criteria for world heritage designation under

24 UNESCO's Convention for the Protection of the tection, such as world heritage site, marine sanctuary, some Inuit may see this option as a permanent restric­ World's Cultural and Natural Heritage. The Sound national park reserve, national landmark, national wild­ tion on resource development following the settlement also lies within a "high priority" zone for protection as life area, migratory bird sanctuary, or territorial wildlife of land claims and a possible restriction on hunting outlined in the World Conservation Strategy.' If petro­ preserve. The proposed comprehensive conservation (which may have to increase as the human population leum exploration and production is permitted in the strategy would be subject to pubnc review and com­ increases). The environmental protection option would Sound and if the shipment of oil through the ment before being submitted to government for ap­ not be in keeping with the goals of the National Northwest Passage takes place, then the potential for proval. Finally, the required legislative action would be Energy Program and the non-renewable resource oil spills will exist: the environmental consequences of taken to conserve and protect the biological resources industry. a large spill could be catastrophic. It may be argued of Lancaster Sound. that the government of Canada has a moral responsi­ Resource Use Option 3: Renewable Resource bility to the Inuit, to the nation, and to the world to According to this scenario, no new resource use activ­ Economy ensure that an environmental catastrophe does not ities would be permitted until the comprehensive con­ occur. A country as resource-rich as Canada should servation strategy was implemented. Subsequently, Basic Premise be able to assure the protection of this biologically resource use activities that demonstrated their com­ The renewable resources of the Lancaster Sound re­ important marine region. patibility with the conservation strategy would be con­ gion should be developed to support the longer term sidered. Exploratory drilling in the Sound and the ship­ economic requirements of the Inuit. Description ofActivities ment of oil through the Sound in year-round ice­ The initial step in this option would be the design of a breaking tankers would be unacceptable for the Rationale comprehensive conservation strategy for the region. forseeable future. An LNG shipment project of a lim­ Inuit have depended upon the renewable resources of All habitats would be evaluated, and individual re­ ited scale and along closely monitored routes might Lancaster Sound throughout their history. The intro­ quirements for environmental protection examined. be permitted. duction of non-renewable resource projects in recent The entire marine ecosystem would also be evalu­ years leaves them with little control over the pace of ated, including the linkage between Lancaster Sound Implications development, and now appears to threaten the re­ and the North Water polynya. The strategy would in­ The environmental protection option would greatly gion's renewable-resource-based economy as well. clude implementation proposals matching conser­ enhance Canada's international stature as a protector Strengthening of this renewable-resource-based econ­ vation requirements with the appropriate type of pro- of the arctic environment. It would increase the gov­ omy could supply the Inuit with an improved economic ernment's morai and environmental credibility with a base, thus aiding them to regain control over their large proportion of the Canadian population and mini­ own destinies. mize negative impacts on the preferred lifestyle of the 'international Union for the Conservation of Nature 1980 World Conservation Strategy: Living Resource Conservationfor Inuit while safeguarding their future opportunity to Description of Activities Sustainable Development. choose among lifestyle options. On the other hand, Many aspects of the environmental protection option 2

25 I..J _ ¢:;; .--&& -_. ------""""'""'=...... ====:=::::....-=

would also be included in this option. The Bylot opportunity for Inuit to pursue a traditional lifestyle full development. Island-Eclipse Sound national park reserve would be would be maintained. In addition, an economy based established, and a conservation strategy implemented on what already exists in the region could be built. On Description of Activities to preserve important species and sites. the other hand, exploitation of hydrocarbon resources According to this option, the Arctic Pilot Project (APP) in support of the National Energy Program would not would be approved as proposed, and its implementa­ Hunting, fishing and trapping activities would continue, be possible with this option. tion and operation closely monitored over several and improved resource management practices would years. The Department of Transport would proceed to be introduced where feasible to increase potential Resource Use Option 4: Northwest Passage develop the necessary services to support year-round yields. Renewable resources would be exploited on a Shipping shipping, including navigational aids, a vessel traffic sustainable basis to provide country food as well as management system, pollution control and clean-up products to be marketed for economic gain. The na­ Basic Premise systems, and ice-breaking support services. tional park and the wilderness resources throughout Non-renewable resource development in the the region would be used to promote tourism, and Lancaster Sound region should be limited to local ac­ An advisory committee with representation from the appropriate community services would be developed tions necessary to support the development of the Inuit, the APP, relevant federal departments and the to support the tourism industry. Northwest Passage as year-round shipping route. territorial government would be established to monitor and assess environmental impacts. Procedures would Exploratory drilling for oil and gas in Lancaster Sound Rationale be established to test the feasibility, reliability and and the year-round shipment of oil through the Sound Some believe the biological resources of the safety of expanding the route farther west and north. in ice-breaking tankers would not be acceptable. LNG Lancaster Sound region are too important to endanger Research and development on technologies to trans­ shipments might be permitted, but only on an experi­ them by exploratory drilling; others that the Inuit way port oil through the passage would continue, but no mental basis along closely monitored routes. Mining of life should not be endangered through non-renew­ commitment would be made to this activity until the exploration and development would generally not be able resource development projects within the region. feasibility of year-round shipping had been estab­ permitted, but might be considered for areas identified However, it is also clear that the national energy re­ lished. Oil, gas and mineral exploration within the re­ as having low biological productivity. quirements cannot be ignored, and accordingly some gion would not be acceptable under this option. propose that Canada must develop the Northwest Implications Passage as a year-round shipping route in order to Implications The renewable resource economy would take some move urgently needed oil and gas from the Beaufort The Northwest Passage shipping option is one way to time to develop. Such development would, however, Sea and the high Arctic to east coast markets. realize national interests while at the same time meet­ have the combined advantage of preserving important Development of the sea route can be initiated on a ing regional needs. The national energy interests components of the environment and of using more phased experimental basis until shipping technologies could be substantially served by developing a route to fully the biologicai resources of Lancaster Sound. The and environmental controls are deemed adequate for ship hydrocarbon resources from the Beaufort Sea

26 4¥

and the high Arctic to the east coast, even though On the other hand, development of the abundant non­ lIies could be introduced into the region until the plan exploitation of the potential petroleum resources of renewable resources of the North is important if was prepared. It may be that certain activities would Lancaster Sound would be foregone. Some of the Canada is to meet its national energy objectives. not be permitted in the region at all, while others concerns about the environment would be alleviated, While this does not mean that all non-renewable re­ would only be permitted in certain zones. as would most of those about social impacts on the sources are to be exploited with disregard for impact Inuit from non-renewable resource development in the on the Inuit society and the environment, it does mean Implications region. However, all the problems associated with that non-renewable resource development in the Past experience indicates that the non-renewable re­ year-round shipping would remain, with the eventual North must proceed. With careful planning, and with source sector could impact heavily on the renewable approval of oil shipments presenting the possibility of due regard for social and environmental impacts, non­ sector despite the best intentions of all officials. In seriousenvironmental pollution. renewable resources can be developed hand in hand implementing option 5, the primary concern would be with sustained use of the region's renewable to avoid detrimental effects on the biological re­ Resource Use Option 5: Balanced Development resources. sources of the region.

Basic Premise Description of Activities Resource Use Option 6: Non-renewable Resource A reasonable balance can be maintained between the The balanced development option, probably more Economy development of renewable and non-renewable re­ than any other, would require a rigorous planning sources in the Lancaster Sound region. process. The goals and objectives of the different seg­ Basic Premise ments of society involved would have to be carefully The non-renewable resources of the Lancaster Sound Rationale evaluated for conflict situations. This would require region should be developed. The Inuit have a strong preference for continuing to the evolution of a comprehensive regional plan that base their lifestyle on a renewable resource economy. would protect the important interests of all sectors, Rationale Hunting, trapping and fishing provide a way of life, a possibly through a zoning system or through proce­ Seismic surveys indicate that Lancaster Sound con­ country-food diet and an income - while at the same dures for mediation on issues as they arise. New de­ tains a number of geological structures that may con­ time preserving the social fabric and sense of commu­ velopment proposals would have to conform to the tain sizeable oil and gas deposits. None of these nity. Tourism and native craft production provide addi­ regional plan and would thus be subject to careful re­ structures has been drilled and so it is impossible to tional income and opportunities. The renewable re­ view for compatibility with existing resource uses. assess the potential size of the petroleum fields. sourceeconomy depends upon a healthy environment, and the Inuit see non-renewable re­ Whether particular activities would be acceptable Canada is attempting to become self-sufficient in the source development as a threat to their environment would depend upon compromises reached during the use of petroleum resources through the National and the biological resources on which their preferred planning process and upon the specifications of the Energy Program; the potential resources of Lancaster lifestyle depends. comprehensive regional plan. Therefore, no new activ- Sound could be important in reaching that goal. The

27 government's "need-to-know" policy (see Chapter IV Beaufort Sea, Lancaster Sound, and other parts of the Three types of shipments would take place: seasonal for a description of this policy and the National Energy high Arctic available to east coast markets. shipping of minerals or concentrates during the open­ Program) lends support to an exploratory drilling pro­ water period; year-round loading and shipment of pe­ gram through which the resources can be assessed in Description ofActivities troleum resources from the Lancaster Sound region; comparison to potential commercial fields in other re­ Exploration for petroleum and mineral resources in the and year-round transshipment of petroleum resources gions. Oil companies have invested a large amount of region would be encouraged. Although each project (both oil and liquefied natural gas) from Beaufort Sea money in seismic surveys, environmental studies and would have to obtain approvals within the existing reg­ and high arctic fields to the east coast. The support technological research and have indicated a desire to ulatory framework, and every effort would be made to and supervision of the Northwest Passage shipping commence exploratory drilling in the near future. minimize environmental and social impacts, the em­ route would require the installation and maintenance Discovery of commercial deposits of oil would lead to phasis of government and the planning authorities of navigational aids; increased ice-breaker support; production for the import-dependent east coast market would be placed on proceeding rapidly with resource search and rescue facilities; a vessel traffic manage­ with year-round delivery by ice-breaking tankers. exploration and development. ment system; pilotage; and external service activities such as hydrographic, oceanographic, meteorological, Mining is an important industry in Canada and the at­ Exploratory drilling for oil and gas and, if successful, ice information, and dredging facilities. tention of this industry has been shifting to the Arctic subsequent development of the discovered hydrocar­ in recent years. Within the Lancaster Sound region, bon reserves would bring considerable activity to the All proposed activities would be permitted, providing the Nanisivik lead-zinc mine entered production in area. This would include the operation of drill and sup­ that the projects obtain approval pursuant to the exist­ 1976, and the Arvik (Polaris) lead-zinc mine is due to port ships and aircraft, the setting up of onshore ba­ ing regulatory processes. However, parks and conser­ begin production in 1982. The Mary River iron ore ses, support services and the transportation and vation areas would not be established until the petro­ deposits contain large reserves, but await more fa­ housing of work crews. (For a more detailed descrip­ leum and mineral resources had been assessed. vourable economic conditions before development can tion, refer to Appendix B.) begin. In general, the Lancaster Sound region has not Implications been explored intensively for minerals and the mining Exploration for base metals is non-intensive until a There are strong economic arguments to be made in industry is confident that there are more commercial deposit of potential economic significance is discov­ support of this option. The national economy would deposits awaiting discovery. ered; at that point, activities increase significantly. benefit, not only by the development of the resources These include construction of storage and operating of Lancaster Sound, but also by the use of the The Northwest Passage, including Lancaster Sound at facilities, a townsite, and associated facilities such as Northwest Passage as a major shipping route. its eastern gateway, should also be developed as a shipping docks, roads, airstrips, and areas for tailings year-round shipping route for ice-breaking tankers. disposal. Production is year-round with the product This would contribute to the National Energy Program being stockpiled for shipment during the open-water by making oil and liquefied natural gas from the season.

28 The question of regional economic gains can be ar­ gUed both ways. Although, as measured by standard economic indicators, the regional economy would be stimulated, it is not certain that the existing Inuit popu­ lation would benefit from a non-renewable resource economy. Both the petroleum and mining industries stress the large number of jobs that would be avail­ able to the Inuit. However, the Inuit point out that: (1) there already is an adequate number of jobs for unskilled workers in the Arctic; (2) not many Inuit are trained for technological positions; and (3) few Inuit have a desire to abandon their preferred lifestyle to take permanent jobs on oil rigs or in mining camps.

The social and environmental impacts of pursuing this option could be catastrophic. The wealth of the biolog­ ical resources of the Lancaster Sound region could be severely depleted despite the best efforts of regulatory authorities. The existing Inuit way of life could be rap­ idly eliminated. There is little doubt that this option would be the classic example of the local area paying the price for national economic gains.

29 IV. The Framework of Policies and Initiatives

The various views on the future use of the resources of control that Canada can exercise in the region; it, whereas these two concepts are governed by distinct of the Lancaster Sound region articulated during the therefore, has a direct bearing on the options avail­ legal regimes under international law. The waters study's public review phase have been outlined in able. The link between the Lancaster Sound Regional within the Arctic Archipelago, including those of the Chapter II. This spectrum of views and perspectives Study and the issue of sovereignty was underlined by Northwest Passage, are internal waters of Canada. was then converted into a series of options ranging many during the public review phase. Questions such Canadian sovereignty has been manifested over a from no new development to the concerted exploita­ as "To what extent can Canada control shipping, drill­ lengthy period of time by control over these waters tion and transportation of non-renewable resources. ing and mining activities in the Lancaster Sound re­ and by a series of administrative and legislative acts. gion?', need to be answered. Moreover, the Northwest Passage has never attained As one examines each of these options to determine the status of an international strait by customary us­ to what extent it would furnish a suitable basis for the With respect to land, Canada's sovereignty over its age, nor has it ever been defined as such by conven­ future use and management of the region, various arctic regions, including the islands of the Arctic tional international law. This is not surprising since the matters have to be considered. The most immediate Archipelago, is well established under international numerous sea channels running through the Canadian of these are the legal status of the land and waters law and unchallenged by the community of states. Arctic Archipelago are ice covered for most of the that constitute the Lancaster Sound region, and the Sovereignty over the Northwest Territories and the is­ year. From a legal viewpoint, all marine traffic in this national policies, priorities and objectives that have a lands of the archipelago was officially transferred from area, including Lancaster Sound, is therefore subject bearing on planning and decision-making for the re­ Great Britain to Canada on September 1, 1880. Since to national statutory and regulatory requirements, and gion. The evaluation of options for the use and man­ then, Canada has exercised sovereignty over these it is open to Canadian authorities to refuse entry to or agement of the region's resources, and the subse­ areas as an integral part of the country, and Canadian apply preconditions for the navigation of foreign ves­ quent formulation of any long-term regional strategy, laws and regulations apply to them as to any other sels through the Northwest Passage. This is not to will clearly be affected by policies and programs of part of Canadian territory. It follows that human activ­ say that Canada would, as a matter of policy, deny broad northern or national scope. For this reason, the ities on the islands of the Lancaster Sound region are passage to foreign vessels; in fact, some assurances following section provides a brief description of na­ subject to Canadian laws and regulations. have been given, in the past, on this matter to other tional policies and initiatives that have a bearing on governments. planning for resource development in the North gener­ Although the legal status of the Arctic Islands is clear, ally and the Lancaster Sound region specifically. the legal status of the waters surrounding the islands Beyond internal waters, Canada has a 12-mile territo­ has been frequently misinterpreted over the years. rial sea in the Arctic as elsewhere along its coast. The Sovereignty The confusion stems perhaps from the common use 12-mile territorial sea is now widely recognized as An understanding of the legal status of the waters and of the expression "Canadian waters," which accord­ customary under international law and is included in lands that constitute the Lancaster Sound region is ing to relevent legislation such as the Territorial Sea the draft convention under consideration by the Third essential to any consideration about its future use and and Fishing Zones Act and the Canadian Shipping Act, United Nations Conference on the Law of the Sea. management. This legal status determines the degree includes both territorial seas and internal waters, The territorial sea is subject to sovereignty of the

30 coastal state with the exception ot a "right of innocent nized in state practice, is part of the draft Convention The national objectives, outlined in the policy state­ passage" for foreign vessels. on the Law of the Sea, and can be considered as part ment, are comprehensive in scope and reflect a prior­ of customary international law. ity on social and environmental considerations. In the With respect to possible drilling activity in Lancaster 1970s the emphasis was placed on "people pro­ Sound and Baffin Bay, it should be noted that, under Major National Policies Affecting Northern grams" aimed at assisting northern residents to adjust international law, Canada exercises sovereign rights Development to the pace of economic change and to prepare them­ over the continental shelf and the resources contained selves for participating meaningfully in northern devel­ therein and has jurisdiction over installations and de­ National Objectives for the North (t972) opment. In response to this clear policy statement, vices necessary for the exploration and exploitation In response to the magnitude and speed of northern new pieces of legislation and requlatory systems were of these resources. These rights flow frorn Canada's development initiatives in the early 1970s, the federal designed to protect the northern environment; social sovereignty over the adjacent mainland and islands government prepared a policy statement on northern programs were introduced; and new national park re­ and are subiect to no dispute, no competing claim and development,' most of which still remains valid as serves were established. no challenge. Sovereign rights of the coastal state Canada enters the 1980s. In the words of the over its continental shelf are a principle of customary preamble: An Energy Strategy for Canada (1976) international law; they have also been codified in the When the availability of petroleum resources became 1958Geneva Convention on the Continental Shelf, to "People, resources and environment are the main ele­ a concern following the events of 1973 in the Middle which Canada is a party, and reiterated in the draft ments in any strategy for northern develop- East, the government re-evaluated its energy policies Convention on the Law of the Sea Conference. ment ... the needs of the people in the North are and embarked on a program aimed at energy self-reli­ more important than resource development and ance. The resulting energy policy statement of 1976,' In 1970, the Canadian Parliament enacted the Arctic ... the maintenance of ecological balance is essen­ commonly referred to as the "need-to-know" policy, Waters Pollution Prevention Act, which provides for tial. In the setting of objectives and priorities in the called for accelerated exploration to delimit the na­ pollution control jurisdiction within a zone of 100 miles North, in line with national policy goals, the essence of tion's oil and natural gas resources. In consequence, from the Arctic Islands. This once controversial legis­ choice for the Government is to maintain an appropri­ hydrocarbon exploration activities were stimulated in lation has now won international approval. The draft ate degree of balance among these three elements." the North's onshore and offshore areas; at the same Convention on the Law of the Sea incorporates an ar­ time mineral exploration and development were ticIe recognizing the right of coastal states to adopt accelerated. and enforce measures required for the protection of the environment in ice-covered waters within a 200­ 'Canada's North 1970-1980. Statement of the Government of Canada on Northern Development in the 1970's, Presented to the mile limit. Canada also exercises fisheries jurisdiction Standing Committee on Indian Affairs and Northern Development by as far as 200 miles from the coast under the Territorial the Honourable Jean Chretien, Minister of Indian Affairs and 2An Energy Strategy for Canada: Policies for Self-reliance. Supply Seaand Fishing Zones Act. This limit is widely recog- Northern Development, March 28, 1972 and Services Canada, Ottawa; 1976.

31 ...

The National Energy Program (t980) is one of the prerequisites for the attainment of these an appropriate degree of balance between the people, The present world oil situation threatens the economic goals. With respect to national energy requirements, the resources, and the environment in any strategyfor growth and stability of the world and profoundly af­ the minister stated that resource development must resource development. The prime considerations in fects the nation. Canada's strategy, in response to this proceed in a way compatible with Canada's national planning for northern development are the needs and situation, is outlined in the National Energy Program> interest as well as the interest of northerners. aspirations of northerners and the maintenance of the and supported by the Canada Oil and Gas Act. This Adequate safeguards must be provided to protect the North's environmental quality. Secondly, the develop­ new program is needed from the standpoint of indus­ environment and cultural heritage of native northern­ ment of renewable and non-renewable resources will try (to establish certainty of tenure of oil and gas ers in conjunction with non-renewable resource devel­ proceed as technology and economics permit but rights) and of government (to provide for an effective opment activities. must remain in keeping with the above considerations. regime to funm the envisaged objectives). The Thirdly, the people of the North should have the ca­ National Energy Program sets three major objectives: pacity to participate effectively in decision-making con­ security of supply, fairness in pricing and sharing of To recapitulate, the increasing activity in the North cerning the North. revenues, and opportunity for Canadians to participate during the 1970s arising from non-renewable resource in energy industries. development programs resulted in concerns about the Policies of More Specific Application ability of the government's programs to maintain a Various policies of more specific application have a Statement by the Minister at Indian Affairs and balanced approach to northern development - the bearing on regional planning in the North, including Northern Development, March 24, t981 goal put forth in the "Statement on Northern policies on northern roads, airports, provision of arctic In a statement to the Standing Committee on Indian Development in the 1970s." However, the 1980 marine services and the establishment of national Affairs and Northern Development, the Honourable National Energy Program and the minister's statement parks. John C. Munro gave further elaboration on the gov­ before the standing committee have affirmed that non­ ernment's positions regarding native rights and the renewable resource development in the North must be Present government policy is to build roads to facili­ North. The "ultimate objective for all people 'north of environmentally sound and result in real net benefits tate the development of resources and to improve air­ 60' is ... greater political, social and economic self­ to northerners. The National Energy Program states ports to certain standards relative to population den­ sufficiency and full participation in Canada's future specifically that "the need for frontier resources, given sity, and to do so in a manner that is in keeping with development." Settlement of outstanding land claims other options that Canadians can proceed with, is not sound environmental practices. The Department of so great that it must override our social goals and Transport recently developed the Arctic Marine obligations. " Services Policy for the provision of an adequate level of services in support of marine transportation and re­ The basic elements of the government's northern de­ lated activities in the Canadian Arctic. The policy ap­ 30epartment of Energy, Mines and Resources. 1980. The National velopment policy thus have remained constant over plies to the entire Arctic and is intended to cover sea­ Energy Program. Supply and Services Canada, Ottawa. the last decade: In essence the government strives for sonal resupply, grain and mineral shipments, and

32 year-round hydrocarbon traffic. It provides for a policy use interests in the northern territories. oil and gas interests in "Canada lands" as provided and administrative framework for all elements of ma­ Implementation of this new policy is of material impor­ for under the Canada Oil and Gas Act, the Oil and rine transportation. Parks Canada's policy is to protect tance to further discussion on the future use and man­ Gas Production and Conservation Act, and other re­ for all time those places that are nationally significant agement of the Lancaster Sound region. It is therefore lated statutes in the respective areas of jurisdiction of examples of natural and cultural heritage and to en­ discussed in more detail in Chapter V. the two ministers. The main purpose for establishing courage Canadians to understand, appreciate and en­ this group is to streamline the evaluation, assessment, joy their heritage in ways that leave it unimpaired for Other relevant Indian and Northern Affairs initiatives approval (or denial), and regulation of oil and gas pro­ future generations. are the preparation of an environmental management jects in Canada lands. framework for the North, being developed in collab­ In addition to the above, the Federal Policy on Land oration with the departments of the Environment and Under the Canada Oil and Gas Act two revolving Use (Department of the Environment) is designed to Fisheries and Oceans, and a new policy for the exploi­ funds of $15 million each will be set up to cover the guide the internal activities of the federal government tation of gravel and other surficial materials on sub­ costs of environmental baseline research by assessing with respect to their effects on the use of private and merged lands beyond the 12-mile territorial limit. The oil and gas acreage holders. The Department of Indian public lands throughout the nation. It consists of a se­ government is also developing a northern hydrocar­ Affairs and Northern Development will direct the con­ 0 ries of internal policy statements and land use guide­ bon strategy that responds to the urgent need for ef­ duct of the research studies north of 60 , while the lines that will be applied to all federal government ac­ fective planning, management and regulation of major Department of Energy, Mines and Resources will be tivities to ensure that consideration is given to their hydrocarbon development proposals. The strategy responsible for all other frontier lands. These studies impact on land resources. recognizes the advantages of demonstration projects will be significant in assessing environmental impacts that enable the preliminary testing of environmental of proposed non-renewable resource development Current Policy Initiatives impacts and the development of innovative technology projects. Of direct significance to future decision-making with to deal with severe northern physical constraints. Full respect to resource use and management in the consideration will also be taken of the interests and The Department of the Environment implements na­ Lancaster Sound region are various specific policy concerns of northerners with respect to viable com­ tional policies for national and historic parks, environ­ thrusts and programs currently being developed by promises for the development of northern hydrocarbon mental research and data services, and environmental federal departments and the territorial government. potentials. The policy initiative of most direct application is the new policy on comprehensive northern land use plan­ An administrative group, the Canadian Oil and Gas v'Canada lands" are the lands making up Canada's frontiers: they ning which was announced by the Minister of Indian Lands Administration (COGLA), has recently been es­ cover a total area almost twice as large as that of the ten provinces combined - specifically those lands encompassing some 2.5 million Affairs and Northern Development on July 30, 1981. tablished by the departments of Energy, Mines and 2 square miles (6.5 million km ) of submarine area in the offshore re­ The policy is designed to improve management of Resources and Indian Affairs and Northern gion and 1.5 million square miles (3.9 million km2 ) in the Yukon and land and resources and to resolve conflicting resource Development. It will be reponsible for the regulation of the Northwest Territories.

33 ¥#

protection; a policy to guide its activities in the North The Nunavut Claim and Political Development to vote on this issue. is currently being reviewed by the department. The Discussion between the Inuit and the federal govern­ Department of Fisheries and Oceans is preparing a ment on the claim, entitled "Nunavut," began in the Nature of the Claim policy statement on fisheries and marine mammal re­ mid 1970s. From the beginning of these discussions The Nunavut claim was accepted for negotiation un­ source management in the North. to the present stage of negotiations, ITC has recog­ der the 1973 federal policy statement on comprehen­ nized that the responsibility for negotiation and imple­ sive land claims, in which the government affirmed its Another current government initiative is the evolution mentation was with the Inuit of Nunavut. The claim is commitment to negotiate comprehensive settlements by the Federal Environmental Assessment and Review now being actively negotiated by Inuit representatives with native peoples in those parts of Canada where Office (FEARO) of a policy concerning more effective from the Baffin Region Inuit Association, the Keewatin aboriginal interest in land had not been extinguished processes for the review and assessment of develop­ Inuit Association and the Kitikmeot Inuit Association. by treaty or superseded by law. Such claims are refer­ ment projects, including the funding of intervenors to red to as "comprehensive" because of the broad na­ participate in the process. This is being done in collab­ lTC's commitment to the concept of self-government ture of the demands, which include land, financial oration with the departments of the Environment and within a new territory was reaffirmed in 1979 with the compensation, access to resources, and other bene­ Indian Affairs and Northern Development and both ter­ adoption by the annual general meeting of a document fits. Each claim is judqed by the federal government ritorial governments. entitled Political Development in Nunavut. In mid­ on its own merits. Consequently, the terms of settle­ 1980, ITC indicated that it was ready to resume formal ment for each individual claim could differ sign~icantly. Comprehensive Land Claim Negotiations negotiations on land ownership and related aspects of The Inuit of the central Arctic, Keewatin and Baffin its claim. This was done on the understanding that the In the case of the Nunavut claim, the topics proposed regions of the Northwest Territories are currently ne­ proposal for the creation of Nunavut would be dealt by ITC for negotiation include: gotiating a comprehensive settlement of their aborig­ with outside the claims forum in the context of a gov­ interim protective measures; inal land claim with the government of Canada. The ernment review of the larger issue of constitutional land ownership; negotiations are being directed by the Nunavut Claims change in the Northwest Territories. Negotiations land management and planning (Inuit participation); Executive Committee under the aegis of the Inuit began in earnest in November 1980 and have contin­ • wildlife harvesting rights and Inuit participation in Tapirisat of Canada. ITC is a national organization ued through 1981 with negotiations concentrating on wildlife management; representing the Inuit of the Northwest Territories, the wildlife component of the overall agreement-in­ • economic and social development provisions; northern Quebec and Labrador. Parallel to the land principle. monetary compensation; and claim negotiations, ITC is also engaged in an effort to local government. achieve a political restructuring of the Northwest ITC still maintains that any final settlement of its land Territories that wouid result in the establishment of a claim is conditional on the achievement of its political Of particular significance for the Lancaster Sound "Nunavut territory" with its own government, in the goal, the creation of a Nunavut territory. A plebiscite Regional Study are the following Inuit concerns: central and eastern Arctic. will be held in the Northwest Territories in early 1982

34 1. Interim protection measures that the Inuit have 7. Provision for compensation for loss of harvesting that they would have the opportunity to protect their proposed during the course of negotiations. These potential in the event of damages caused to the en­ interests through various hearings and processes, in­ include: vironment by non-renewable resource development. cluding the Lancaster Sound Regional Study, the Inuit • community approval for issuance of land use per­ have stressed their wish to settle land claims before mits within a 60-mile radius of communities and The role of the proposed Nunavut territorial govern­ any major new developments are approved. within IBP and other critical habitat sites; ment in the management of the Lancaster Sound re­ • a call for a three-year moratorium on drilling in gion is also of particular significance for the Lancaster Lancaster Sound; and Sound Regional Study. • a comprehensive independent inquiry into oil tanker traffic through the Northwest Passage. Agreement has recently been reached on the wildlife provisions of an overall agreement-in-principle. The 2. Inuit land ownership. wildlife agreement provides for a joint Inuit-govern­ ment management board to exercise strong advisory 3. The powers of the Nunavut-wide land use plan­ and managerial functions with respect to wildlife in the ning and management regime as it relates to both central and eastern Arctic. The agreement outlines onshore and offshore areas. As coastal people, Inuit specific wildlife harvesting rights that the Inuit will en­ are seeking to confirm certain rights in the offshore joy in their claim area and includes provision for the areas, particularly access to landfast ice for harvesting continuation of hunting, fishing and trapping by non­ purposes, and to establish a system of marine man­ Inuit. The agreement will now be reviewed by the ex­ agement and environmental protection for coastal ecutive level of each side before the resumption of areas. negotiations to reach a final agreement as part of a comprehensive settlement. 4. Economic development measures and participa­ tion (inclUding training and employment). ITC proposes that claim negotiations deal next with communications and social development provisions. 5. Inuit claims to royalties or subsurface rights in Documents on land and marine management will be onshore and offshore areas. tabled in 1982.

6. Involvement by Inuit in wildlife harvesting and At the negotiating table, Inuit have voiced concerns for management of the region'S renewable resources. industrial development and tanker traffic in the Lancaster Sound area. Although they were assured

35 v. Regional Planning

The Lancaster Sound Regional Study was established A crucial element in planning for the Lancaster Sound workshop, it was discussed at length and the conclu­ to stimulate informed discussion on resource use is­ region is the matter of the current Inuit land claim ne­ sion reached that some form of regional planning body sues and to provide the foundation and framework for gotiations as outlined in the previous chapter. The with meaningful involvement of the local people was a regional planning process. An appropriate planning terms of the eventual land claim settlement, and the required. In the words of the workshop chairman, body for the Lancaster Sound region will be formed form of political devolution that accompanies it, will "Consensus on the need for a planning framework as sometime after completion of the green paper in order have a lot to say about how resource use and man­ a means of managing future uses in the region was to implement that process. agement will be carried out in the future. Because of one of the clearest and most convincing reactions to this, the Inuit and various other participants in the the green paper derived from the public process." 1 Regional planning is a process for guiding develop­ public review process have taken the position that ment of a region according to established principles land claims must be settled before any further devel­ Although there was a consensus in the workshops on and objectives. A successful regional planning process opment takes place in the Lancaster Sound region. the need for a regional planning process, there was no requires the meaningful involvement of the people of unanimity on the form that it should take nor on the that region. This does not imply that they have com­ To be effective, a continuing regional planning body degree of influence that the people of the region plete control over the process. Throughout Canada, for Lancaster Sound must have terms of reference should have over decision-making. A summary of regional planning bodies must balance external inter­ and a membership that are acceptable to government, opinions expressed by public interest groups, by in­ ests with internal ones and must operate within de­ to the communities in the region, and to those organi­ dustry, and by government departments follows. fined legislative and regulatory frameworks. zations sharing an interest in both the development Presumably any regional planning body established for and the conservation of the region's resources. The Canadian Arctic Resources Committee's paper, Lancaster Sound would have similar restrictions Furthermore, although the planning process may Lancaster Sound 1980-2000, stimulated a good deal placed upon its degree of planning control. begin before a comprehensive land claims settlement of the discussion on the planning process. CARC is concluded, the process must be capable of func­ stressed the need to develop a consensus on princi­ However, if a regional planning process is to be suc­ tioning during this interim period and of continuing fol­ ples that should guide the future of Lancaster Sound cessful, it must be seen as a legitimate one through lowing the settlement. (see "Planning Considerations" in this chapter), and which all sides of an issue can be addressed and suggested that an interim planning committee, repre- dealt with in a reasonable way. It is not likely to be Workshop Proposals for Planning viewed this way if decisions are dominated by a partic­ The need for a regional planning process was a cen­ ular sphere of interest, particularly when the locus of tral topic of discussion at the Resolute and Ottawa that sphere is outside the region. At present the peo­ workshops of the Lancaster Sound Regional Study. 'P. Jacobs. 1981. People, Resources and the Environment: ple of the Lancaster Sound region do not have a plan­ Many of the submissions at the workshops specifically Perspectives on the Use and Management of the Lancaster Sound ning process to participate in at all, much less a legiti­ referred to this need and some of them advanced pro­ Region. Chapter 4: Management of the Region: A Consensus. mate one. posals for particular planning structures. At the Ottawa Department of Indian Affairs and Northern Development.

36 sentative of non-government interests in the region, out a systematic planning process through which the Northern Land Use Planning be established and funded by the government of goals and strategies for the region could be set out On July 30, 1981, the Honourable John C. Munro, Canada. Inuit spokesmen expressed a preference for and that this process should have a community base. Minister of Indian Affairs and Northern Development. a management board, rather than an advisory commit­ The Department of Fisheries and Oceans emphasized announced approval by the federal government of a tee, which would be interim until land claims were set­ that the regional study must lead to the establishment policy on northern land' use planning, designed to tled and would contain equal representation of north­ of a management framework involving the participation improve the management of land and resources and ern and southern people. The University of Waterloo of the various interests in Lancaster Sound and that to resolve conflicts between resource users, including submission asserted that the Inuit must have time to this framework must include a continuing planning native people, resource developers, and conservation­ establish their own planning institutions and to take process. The government of the Northwest Territories ists. Under this policy, a system for land use planning more control over the process itself. agreed that there was a need for an ongoing and sys­ is to be established in the Yukon and the Northwest tematic planning process for the Lancaster Sound re­ Territories in order to: Support for regional planning was also expressed by gion and recommended the establishment of a re­ • avoid or minimize land use conflicts arising from representatives of industry. Norlands Petroleums Ltd. gional board under federal legislation to work out and the inability of different land uses to be accommo­ stated that northerners should be involved in planning implement a plan for the orderly development of the dated on any area of northern lands; and should participate in, and benefit from, resource natural resources of the area. The board would be • ensure the integration of the management of north­ activities. Petro-Canada strongly supported the need "tripartite" in nature, having equal representation from ern land resources; for regional planning and stressed the need for local the federal, territorial and local governments. • enable northern lands to be allocated and used in people to be involved to the degree that reflects their an optimum way, taking into account local, regional interests in the region. However, most industry In his report on the public review phase of the and national interests and concerns and the physical spokespeople appeared to regard planning as a Lancaster Sound Regional Study, Chairman Peter Ja­ and biological characteristics of northern lands and means to speed approvals for development projects cobs summarized the planning problem: To what ex­ the resources they support; and and to focus on the opportunities for ameliorating im­ tent can a viable planning process for north of 60" be • allow for public participation in the decision-making pacts and providing benefits to northerners and to in­ designed that will accommodate the potentially con­ process concerning allocation and best use of north­ dustry. In their view, the people of the region should flicting goals - development for the national interest ern lands. be consulted with and should provide planning advice, and maintenance of lifestyle options for the Inuit? He but decision-making should remain outside the region recommended that a two-year period be set aside to An organizational structure will be established to facili­ in order to serve the nationai interest. establish an operational planning process and that tate co-operation and participation among government Indian and Northern Affairs' new northern land use The Department of the Environment recommended planning policy be tested forthwith in the Lancaster that significant industrial activity or major development Sound region. "The term land in this context includes both onshore and offshore should not proceed in the Lancaster Sound area with- components of an area.

37 agencies (both federal and territorial) at the policy and having a direct interest in the planning area will be di­ Planning Process Option 1: An Interim Planning operational level, to carry out planning in the territories rectly involved. Advisory Committee and to ensure public involvement in the planning process. The details of the organizational structure Working Towards Northern Land Use Planning in Basic Premise have not yet been finalized, but they are expected to the Lancaster Sound Region The Department of Indian Affairs and Northern include the following: The government-approved policy on northern land use Development should establish an interim planning planning, as described in the previous section, lays advisory committee to provide advice on all Lancaster • A northern land use policy committee with mem­ out the framework of the new program. However, Sound regional planning issues until a permanent sys­ bership drawn from departments and agencies having because the details of regional implementation are in tem comes into effect. northern land- and resource-related interests, includ­ the developmental stage, it does not provide much ing the territorial government. The committee will pro­ guidance on how the program should be implemented Rationale vide direction at the policy level, develop program ob­ at this level. Regional implementation will likely remain There was a consensus among the participants in the jectives, set priorities for planning and provide somewhat flexible so that, within the approved policy Lancaster Sound public review process that some direction for the initiation and conduct of northern land framework, it can be adapted to fit the planning needs form of regional planning body, with representation use planning. of the region and its inhabitants. from the Inuit residents, should be established. An in­ terim planning advisory committee could be set up • To direct the operation of planning in the northern In considering possible ways to carry out northern and used as the planning vehicle at least until the sys­ territories, land use planning commissions will be es­ land use planning in the Lancaster Sound region, two tem under the northern land use planning program tablished whose co-ordinating committees will have overriding considerations should be kept in mind: comes into operation. representation from native organizations and federal (1) although the new policy has been approved and and territorial government departments and agencies. will be implemented, it remains uncertain how com­ How It Would Work The land use planning commissions will be supported prehensive it will be and how soon it will become The interim planning advisory committee would be by planning secretariats that will carry out the actual functional in the Lancaster Sound region: and established by the Minister of Indian Affairs and task of planning. (2) whatever planning process is initiated, it is likely to Northern Development (no legislation would be re­ require review and adjustment when land claims are quired). The terms of reference and the composition • For each planning region, a planning area review settled, particularly if a Nunavut territory is estab­ of the committee would be determined following con­ panel will be formed to provide a structured forum for lished. With the above considerations in mind, two sultations with the Baffin Regional Council, the gov­ public input and involvement. The exact terms of ref­ options for working towards implementing the northern ernment of the Northwest Territories, other federal erence and composition of the panels can vary de­ land use planning policy in the Lancaster Sound re­ departments, the Baffin Region Inuit Association, and pending on the characteristics of the planning region. gion are advanced for discussion. the Inuit Tapirisat of Canada. A substantial portion of However, local authorities, native groups, and others the members would be residents of the Lancaster

38 Sound region. An "impartial" chairperson, acceptable Relationship to the Northern Land Use Planning Policy inclination to reach consensus on planning issues, to all sectors, would be appointed by the minister. The It will take sometime before a comprehensive planning thereby forcing government to handle them. The gov­ committee would be provided with a ievel ot funding system under the northern land use planning policy ernment, in view of its national energy priorities, might sufficient to hire planning staff and conduct its busi­ will actually be in operation in the Northwest not be happy with the time required for the planning ness. The minister would also appoint a technical ad­ Territories. Until that time, the interim planning advis­ process to work or with the advice received from the visory group to assist the interim planning advisory ory committee would maintain the momentum gener­ committee. committee on technical and scientific matters. ated by the Lancaster Sound Regional Study. Its prac­ tical experience and advice could also make a Planning Process Option 2: A Planning Board The terms of reference would give the interim planning valuable contribution to the design of the northern advisory committee a substantive role to play in re­ land use planning structure and process at the re­ Basic Premise gional planning despite its nominally advisory nature. gional level. Government should enact legislation to establish a This would be done by building a comprehensive and planning board with authority to carry out planning for open planning process around the committee. The Implications the Lancaster Sound region. minister would require that all project proponents (in­ An interim planning advisory committee could be a cluding federal departments and the government of useful vehicle for acclimatizing the participants to a Rationale the Northwest Territories) consult with the interim regional planning process and the accommodations A duly constituted planning board for the Lancaster planning advisory committee at an early stage and that must be made in reaching a consensus on plan­ Sound Region would have legislative authority to carry that the committee be informed on all prospective ning issues. In addition, it could provide a prototype out regional planning and to implement planning deci­ planning issues. The committee's mandate might, for for more comprehensive regional planning that would sions, thereby avoiding the potential inadequacies of example, enable it to intervene in regulatory hearings be helpful both to the federal government and to the an advisory committee process. on projects; to hold its own public meetings and work­ government of the Northwest Territories. The terms of shops on planning issues; to work towards a regional reference and the composition of the committee could How It Would Work plan; and to make recommendations to the minister readily be adjusted over time to improve its efficiency The legislation establishing the planning board would regarding the implementation of northern land use and effectiveness. specify its mandate. The board would be authorized to planning and of regional planning generally. In any of prepare a regional plan, submit it to the government the activities the committee would act in an advisory However, government could have difficulty in estab­ for approval, and oversee its implementation. All re­ capacity to the minister, who, in turn, would maintain lishing and maintaining the credibility of the process. source activities taking place within the region would the credibility of the process by demonstrating that the The Inuit might not agree to participate in any advisory require licensing or approval in accordance with the committee's advice carried considerable weight in process in the first place, or they might withdraw at plan, or else be required to use planning mechanisms government decision-making. any time. The committee would not have decision­ to apply for easements or exemptions. The planning making powers; as a result members might lack the board would not have complete authority over all plan-

39 •

ning issues, however, and its relationship with the Implications Planning Considerations northern land use planning program and with regula­ The planning board would establish a continuing, sys­ tory agencies (such as the Northwest Territories tematic planning process for the region. Its mandate Planning Region Water Board, the National Energy Board, or a possible could give it the scope to pursue genuinely compre­ As part of the ongoing planning process for Lancaster Northwest Passage shipping authority) would have to hensive physical, economic and social planning. If Sound the boundaries for the planning region may be stipulated in the enabling legislation. In these situa­ properly implemented, the planning process should need to be redefined to enable a more realistic exami­ tions the planning board would still playa key role in a stand a good chance of maintaining its credibility in nation of the proposed uses and their possible im­ consultative and advisory capacity by trying to ensure the eyes of all interested parties. The balance of rep­ pacts on the region. At the beginning of the Lancaster that all resource use activities would be compatible resentation on the board has obvious implications for Sound Regional Study, the proposed industrial activ­ with the regional plan. the control of decisions, and equally obvious implica­ ities for the Sound were thought to be sufficiently lo­ tions for what will be acceptable to the Inuit and to calized so that they could be adequately examined Appointments to the planning board would be made national energy interests. There would, however, be within the present study boundaries. However, in the by government in accordance with procedures laid some real difficulties in reconciling this option with the course of the study, it became apparent that the en­ down in the legislation, with due consideration of rep­ system now envisaged under the northern land use vironmental and economic implications of many of resentation for regional, as well as national, interests. planning program. these activities would extend beyond the confines of The planning board would be funded to hire its own the region, as now defined. For example, the executive director and staff and to conduct its busi­ There is also the distinct possibility that the planning Northwest Passage may develop into a major trans­ ness from an office located in the Lancaster Sound board may be viewed as too powerful and inconsistent portation artery, with year-round ship traffic through region. with existing local government institutions, such as the Lancaster Sound and Baffin Bay. In that event, the Baffin Regional Council. Moreover, establishing a environmental and socio-economic influences of this Relationship to the Northern Land Use Planning Policy planning board for one region of the North and not the activity on the entire transportation route need to be The planning board called for by this option would be others may lead to inconsistencies and dissatisfaction. examined. Delineating the planning region so that it established pursuant to new federal legislation. Its The Inuit may not want to see a powerful planning more accurately reflects the ecological interactions mandate would include determination of a regional board established and operating before native land with the adjoining marine areas of Jones Sound and plan for Lancaster Sound as well as authority over claims are settled. The planning board option may be Baffin Bay might also facilitate the assessment of en­ management decisions required to implement the an appropriate long-term objective, but may not be vironmental impacts. The traditional uses of the land plan. This option, therefore, calls for a broader author­ suitable at this time. by Inuit have a wider sphere of influence than is ac­ ity than is contemplated for the northern land use knowledged by the present study area. It is for this planning system, and its relationship to that system reason that the Inuit frequently requested that those would require careful consideration. living in Pangnirtung or Broughton Island, or even the settlements in western Greenland, be involved in the public review.

40 Definition of Planning Objectives and the proponents of industrial development, as well of problems: A necessary step in arriving at a comprehensive man­ as by Inuit, conservationists and academics. While a • those related to knowledge of the ecological re­ agement plan for the use of Lancaster Sound will be consensus was readily obtained on the intent of the quirements of living things and the effects on biolog­ to set planning objectives that can be used to examine principles, agreement on exact wording could not be ical systems of artificial (man-caused) or natural per­ the opportunities and constraints offered by each op­ achieved in the workshop setting. The wording turbations of the environment (mainly biological tion. These objectives need to clarify how the interests adopted here incorporates revisions suggested during problems); of the local people can be served within the frame­ the study's public review phase' • those related to increasing the feasibility, safety, work of national policies and regional goals and inter­ and efficiency of any industrial or technical operations ests. All interested parties should have an opportunity 1. Maintenance of Biological Productivity and under consideration for the region (mainly technical to participate in defining the planning objectives. Environmental Quality and physical problems); and • those related to social, cultural, and community A set of tentative planning principles for the region has During and subsequent to any human activity in the development, and the needs, values, and aspirations been formulated and already has received some pub­ Lancaster Sound region, the basic biological produc­ of the human inhabitants of the region (socio-eco­ lic review. These seven principles were drawn up in tivity and the resilience and viability of the ecosystem nomic and cultural problems). 1979 by the participants of a workshop on Lancaster shall be maintained. No species or component of the Sound.' sponsored by the Canadian Arctic Resources biological system shall be seriously disturbed, endan­ It is important that the interrelationships between Committee (CARC). The principles were later ac­ gered, or extirpated by human actions. these types of problems be given adequate attention. cepted by a meeting of representatives of the Lancaster Sound communities of Arctic Bay, Grise 2. Interrelationships Between Biological, 3. Integrated Environmental Management Fiord, Pond Inlet, and Resolute, the Baffin Region Inuit Technical, and Social Concerns Association (BRIA), Inuit Tapirisat of Canada (ITC), Environmental stresses caused by petroleum, mining, and CARC. During the public review of the draft green In considering the need for knowledge and the con­ and other industrial development in the Lancaster paper, the seven principles were further discussed at cerns that are taken into account in making decisions Sound region should not be considered in isolation. both the Resolute and the Ottawa workshops and for formulating policies affecting the Lancaster Sound The potential and cumulative impacts of all activities were broadly accepted by senior government officials region, attention must be given to three distinct types and their interactions must be considered in develop­ ing management and environmental protection mea­ sures for the region.

4. Rights and Responsibilities of Northern 3E. F. Roots. 1979, Lancaster Sound: Issues and Responsibilities "P. Jacobs. 1981. People, Resources and the Environment: Residents Environmental Science Workshop for the Lancaster Sound Region Perspectives on the Use and Management of the Lancaster Sound Canadian Arctic Resources Committee Region. Department of Indian Affairs and Northern Development. Northern residents and communities have special

41 E_ n!C

rights and responsibilities with respect to the use of 7. Accident Prevention and Mitigation of Lack of co-ordination with regard to identifying, evalu­ Lancaster Sound and the protection and management Environmental Damage ating and delineating conservation areas will hinder of its resources. It is important that they be given the regional planning for Lancaster Sound. information and means to exercise those rights and The techniques and mechanisms used to prevent ac­ responsibilities to a degree at least equal to the rights cidents that will affect the environment, or used to A strong requirement exists, therefore, to implement a and powers that citizens in other parts of Canada .prevent serious damage to the environment in the comprehensive system for the identification of all eco­ 0 have with respect to areas where they live. event of accidents or unplanned incidents, should be logically significant areas or habitats north of 60 • A an integral part of the evaluation of the benefits, risks, coherent process, operated in conjunction with the 5. Protection of Special Areas and costs of activities in the Lancaster Sound region. northern land-use planning system, through which the The degree to which such techniques or mechanisms appropriate level of protection can be applied to each Some specific areas and some species or components are proven or demonstrated must be taken into ac­ of the selected areas would also then be needed. of the ecosystem in the Lancaster Sound region de­ count at the time that permission to proceed with any serve and will require special protection to ensure industrial development is being considered. Expansion of KnOWledgeBase their continued existence and viability. This protection Effective ongoing planning for the North will need to may be needed to prevent damage from the effects of The suitability of these tentative principles to serve as be accompanied by a concerted effort to acquire a a continuation or expansion of those activities that the base for regional planning objectives for Lancaster better understanding of ecosystem dynamics, of en­ have been carried on in the past, from cumulative Sound will have to be carefully examined. vironmental interactions with man-induced changes, of social and non-consumptive developments, from the the socio-economic ramifications on the region of in­ effects of current and future economic industrial Conservation dustrial development activities, and so forth. Close co­ activity. At present various mechanisms exist that seek protec­ ordination of these studies will be essential because of tion of environmentally significant areas in, and adja­ the diverse institutions, agencies, and departments 6. Regional and Long-Term Management cent to, the Sound. These approaches are all valid in involved in these fields of research. With respect to their own right; however, they involve different depart­ Lancaster Sound, the existing information base ap­ A regional and long-term approach, with due aware­ ments and levels of government with different inter­ pears to be still inadequate to enable reliable assess­ ness of spatial and temporal variations, must be taken ests in the region and employing different criteria for ments of the impacts by the proposed activities on the regarding decisions on the use and management of selection. All sectors of the public seem to agree that region's biological resources or physical environment. the Lancaster Sound region. The regional probiems steps should be taken to preserve unique areas in the Also, reliable information is not available at this time to and strategies should be addressed in the context of region. Confusion exists, however, about the various determine to what extent biologicai resource harvest­ northern policies in general, and of national or regional selection criteria and procedures; thus, there is con­ ing could be intensified to provide for the long-term policies. cern about the apparently unsystematic manner in stable economy sought by the residents. which conservation areas are identified and selected.

42 Effective Co-ordination with Review and Regulatory Processes The need to protect the environment of the Lancaster Sound region to ensure continued viability of hunting, trapping and fishing pursuits has been acknowledged by all interested parties. These concerns will form part of the environmental and socio-economic assess­ ments of the various proposed industrial projects. For each of these assessments it will be necessary to design a project-specific review process. The terms and conditions under which particular projects will be allowed to proceed will be defined through these processes, which may include EARP hearings, Northwest Territories Water Board hearings, or the application of the Territorial Land Use Regulations. With so many ongoing reviews, decisions could be made that would not be consistent with the gUiding regional planning objectives. Therefore, any regional planning body for Lancaster Sound must be aware of these complex operating conditions and develop a mechanism to effectively co-ordinate the various re­ view and approval processes for development projects affecting the region.

43 --===--::------'--======---===,•

VI. Beyond the Green Paper

To recapitulate, the green paper is the resuIt of a "Nunavut" land claims settlement prevent a consen­ 2. The development of a comprehensive conser­ study launched to examine and present to the public sus at this time. The discussion that the green paper vation policy and strategy. the full spectrum of issues concerning the people, intends to promote will, it is hoped, lead to broad There is an urgent need to develop and implement a environment, and resources of the Lancaster Sound agreement on the optimum plan for Lancaster Sound. coherent system for identifying all environmentally sig­ region; it is against this background that decisions will nificant areas in the Arctic and to determine the appro­ be made on appropriate uses of the regions Many of the difficult and urgent issues bearing on the priate levels of protection required to preserve their resources. future on the region have been clarified by the green respective environmental attributes. The formulation of paper. The public interest in participating in planning a comprehensive conservation policy and strategy for As a first step, a draft green paper was released in generated by this exercise has greatly enhanced the implementation is seen as an important adjunct to the February 1981. The public review phase that followed climate for co-operation and decision-making. new land-use planning approach, one that would as­ provided valuable feedback about the questions the sist in striking a better long-term balance between draft document posed on the future of the region. A To sustain the momentum and carry this climate of non-renewable and renewable resource interests. clear consensus emerged that the final version shouId interest forward, six interim steps whose early imple­ develop a range of specific resource use options and mentation would facilitate the timely introduction of an 3. The immediate establishment of an ad hoc advis­ place more emphasis on regional planning. effective planning mechanism and agreement on a ory body, with meaningful involvement of the region's best plan for Lancaster Sound are suggested: Inuit inhabitants and other relevant sectors of the Accordingly, the final green paper presents resource public. use options that cover the full range of possibilities 1. The announcement ofa policy statement on the The green paper exercise has heightened public identified during the public review and deals with re­ pace and timing ofnew resource use activities in the awareness of the issues at stake and initiated a re­ gional planning considerations and the implications of Lancaster Sound region. sponse from the Inuit residents and other interested the government's new northern land use policy for the A clearly articulated policy statement on the timing for sectors of Canadian society on the future uses and region. Because the northern land use program is not the introduction of new resource use activities is a key management of the Lancaster Sound region. This yet operational, two planning process options are pro­ component of an integrated policy framework for the momentum can be sustained by enabling the Inuit and posed to facilitate the early introduction of regional development of the North. Tha orderly evolution of a representatives of relevant interest groups to work planning. planning and management regime for Lancaster together with government to continue the activities Sound would be greatly facilitated by such a policy begun by the Lancaster Sound working group. This ad The public review also demonstrated that a consen­ decision. Specific planning objectives for the region hoc committee would provide advice to the depart­ sus on the best future uses for the resources of could then be drawn up to guide subsequent resource ment regarding the further review of the green paper, Lancaster Sound does not yet exist. Strongly held use decision making with the time frame provided by and would remain active until a more formal planning convictions on the part of different sectors of the pub­ the policy. forum for the Lancaster Sound region is established. lic and uncertainty about the nature of the eventual

44 4. The initiation of an ongoing regional planning of reference of the planning body will need to be modi­ The review of the green paper will then be concluded process before further proposals for resource use pro­ fied when agreement on the Nunavut claim is reached by a meeting of representatives of the region's com­ jects affecting the region are assessed. would enable these adjustments to be made with mini­ munities, followed by a public workshop. Detailed ar­ The current practice of setting up a separate mecha­ mal loss of continuity. rangements will be made public when they are com­ nism for the assessment of each individual resource pleted. All input from the public will be carefully use proposal often creates confusion, not only among 6. The use of the tent.ative planning principles pre­ reviewed and will effectively contribute to the formula­ the local residents but also among industry, private sented in Chapter V in screening and evaluating all tion of a balanced regional plan for Lancaster Sound. interest groups and the general public. It also fre­ options for the future use of the region's resources. quently leads to duplication of effort by the proponents These seven principles have already received a con­ Readers are requested to provide their comments to and the regulatory agencies. The main drawback of siderable degree of acceptance from all interested par­ the department within a period of three months follow­ uncoordinated project reviews, however, is that they ties; they can therefore serve as performance criteria ing the release of the green paper. All correspondence often define a scope for the assessment process for assessing the resource use options that have been should be addressed to: which is far too narrow. The northern land use plan­ put forward in this document, or fhose which may be ning policy has been introduced in order to eliminate suggested in the public feedback following release of Dr. H.J. Dirschl, this piecemeal approach to resource use decision this paper. Project Manager, making. It follows, therefore, that a systematic plan­ Lancaster Sound Regional Study, ning process for Lancaster Sound should be in place May We Have Your Comments? Northern Environment Directorate, before the implications of any further development The strong public consensus on the need for effective Department of Indian Affairs and project for the region will be assessed. Although pro­ regional planning that this study has brought about is Northern Development, ject-specific reviews will continue to be necessary, expected to result in the initiation of a planning Ottawa, Ontario their scope and terms of reference can then be co­ process for the Lancaster Sound region. Once set up, K1A OH4 ordinated through the planning mechanisms. this process will continue the efforts of the Lancaster Sound Regional Study toward a "best plan" for the Telephone (819) 997-0223 5. The provision for the modification of the member­ use and management of the region. The readers' re­ ship and terms of reference of the planning body in action will assist in framing the terms of reference, accordance with a Nunavut claim settlement. composition and operational goals of the pianning It is to be expected that the terms of settlement of the body. Nunavut claim will include provisions that will alter the present responsibilities for resource management in Views on the resource use options will assist in deter­ the Lancaster Sound region. Accepting from the out­ mining the overall framework and scope for the re­ set the likelihood that the composition and the terms gional planning process and its relationship to concur­ rent processes and events.

45 ~ _.X ••

Appendix A Lancaster Sound: The Present Picture

In the Lancaster Sound region, the relationships siderations; together they constitute "the present pic­ tinues on the islands west of Somerset. where low­ between climate, natural processes, and economic ture" of Lancaster Sound. Appendix B will look at po­ lands are extensive and ridges do not exceed 230 m activity are intricate. The harsh climate, for example, tential and future uses and the influence they are above sea level. sets severe restrictions on industry, communications, expected to have on the region. and transportation. Industrial activities in turn may The lowlands throughout the area are sparsely cov­ bring ecological change to the land and offshore ar­ This complex region may be described fairly con­ ered with lichens, mosses, grasses, sedges, and a eas, and may have a profound influence on the prefer­ veniently according to typical conditions encountered few stunted, dwarf shrubs. Slopes and upland pla­ red lifestyle and aspirations of the region's Inuit inhab­ during winter and summer. In this context, winter is teaus, exposed to severe winds, are virtually devoid of itants. Any process of planning for the future use of considered to correspond roughly to the period from vegetation. this unique environment, therefore, must be based on October to May when the marine channeis are ice­ an understanding of its physical and biological charac­ covered, and summer to the open-water season from The marine channels and inlets are bordered mostly teristics and of the human activities that are carried on June to September. This simplification aids in present­ by steep coastal cliffs and numerous fiords. Lancaster at present. ing the material in map format; however, the informa­ Sound itself is a smooth, broad trench with depths of tion given in the text takes into account the complex 900 m at its eastern entrance, becoming gradually At this time, these factors and their interrelationships seasonal variability so characteristic of the region. shallower towards the west until reaching a 180-m sill are still a long way from being completely understood. in Barrow Strait. Marine sediments consist mainly of While some aspects have been studied intensively, The "composite maps" in this appendix were derived gravel and sands in Barrow Strait and nearshore others have been given very little attention in past re­ from superimposed maps of the more important indi­ zones, grading to progressively finer silts and clays search programs. Though unbalanced, the current vidual components. These smaller maps, which ac­ towards the mouth of Lancaster Sound and Baffin level of knowledge about the Lancaster Sound region company the composite maps, were taken from the Bay. enables a broad review of potential uses of the region. Data Atlas. Additional knowledge, as it becomes available, can be The Region in Winter incorporated into the planning process to provide for The Land and the Sea better design for future projects or activities. The region'S most prominent physiographic features Physical Environment are the rugged mountains of Bylot, eastern Devon, Three months of continuous darkness, from late The following briefly outlines the present state of and northeastern Baffin islands, which rise to 1 500 m November to early February, characterize the winter knowledge of Lancaster Sound, as it relates to the above the sea and are covered by glaciers and ice environment. The annual snowfall, which represents regional planning objectives. The physical make-up of caps. In the central part of the study area, vast pla­ the main component of the area's relatively low pre­ the region is looked at, followed by a review of biolog­ teaus grade from 700 m on the southern Brodeur cipitation, is about one metre. However, 1.5 m or ical features, hunting, fishing and trapping, current Peninsula to 300 m further west on Somerset and more may fall on the rugged mountains of Bylot, commercial activities, and social and economic con- Devon islands. This gradual lowering of the relief con- Devon, and northern Baffin islands.

46 Snow cover persists in the region from mid-September The ice edge that separates these two regimes usu­ bears. Many birds, and some whales, also congregate to late Mayor June. Baffin Bay to the east has a mod­ ally appears near Prince Leopold Island across east erating influence on air temperature, causing a notice­ and feed along the fast-ice edge, particularly along the Barrow Strait (near longitude 90'W). However, the coast of southeastern Devon Island, from April to able gradient in mean annual temperature from east position of the ice edge can vary considerably to the (-24'C) to west (-32'C). June. The ice edge forms a barrier to these animals, west or east. thus limiting their westward movements in spring. Winds, currents, and ice-cover are extremely variable In the vicinity of Resolute near Barrow Strait, wind di­ From October to June, the drifting ice with its many within the region and often unpredictable between rection varies considerably. However, no weather obs­ cracks, leads, and patches of open water, provides seasons, years, and localities. Nonetheless, a number ervations are taken in the Sound proper during winter valuable haoitat for ringed seal, polar bear, and arctic of general descriptive trends with sign~icance to a re­ and data from the eastern land stations are influenced fox. It is here that hundreds of thousands of birds con­ gional study have been identified, with those suitable by local topography. for mapping illustrated in Figures 4 and 5. verge during April and May to feed and rest while waiting for the landfast ice to break up. Wildlife Ocean freeze-up begins along the shores by early The Lancaster Sound region, characterized by abun­ October, and by December, the channels are normally The consolidated ice of central and western Barrow dant and diverse wildlife populations, is probably the Strait and the adjoining channels provides a platform ice-covered. Two distinct ice-cover regimes that most biologically important area in the Canadian high where arctic fox, Peary caribou, and muskoxen cross strongly influence this winter environment are formed. Arctic. In the winter, the ice regimes as described in throughout the winter. Areas of weak ice, often asso­ the previous section playa major role in determining ciated with zones of snow accumulation between The sea ice of Baffin Bay and Lancaster Sound - the the distribution, movements, and abundance of many pressure ridges or among rubble ice, are used by first regime - is unconsolidated throughout the winter; species of birds and mammals. that is, it remains mobile, responding to currents, ringed seal for pupping and feeding. winds, and tides. As illustrated in Figure 4, ice drifts The ice edge between consolidated (Iandfast) ice and eastward in Lancaster Sound at average speeds of Another feature that afteets wildlife patterns is the for­ unconsolidated (drifting) ice typically lies across mation of snow banks along the coastlines of the re­ 5-10 km per day. The amount of unconsolidated ice­ Barrow Strait and extends eastward along the shores gion. Particularly on southern Devon and northern cover varies greatly, owing to continuous opening and of Devon and Baffin islands. As Figures 6 and 7 illus­ refreezing of cracks, leads (long narrow openings), Somerset islands, snow banks are used extensively trate, this edge provides a critical habitat for many and patches of open water. as maternity denning areas by polar bears and their species of animals. The ringed seal, for example, cubs from mid-November to early April. feeds and hauls out along the ice edge where it is The winter sea ice in Barrow Strait - the second also hunted by its main predator, the polar bear. The regime - is a relatively stable, consolidated Muskoxen are mainly found on northeastern Prince of mixture of arctic fox frequents the same area, hunting seal or new and multiyear ice, landfast for six months or more Wales Island, but small populations on Somerset, scavenging the carcasses of seals killed by polar annually. Cornwallis, Bathurst, and Devon islands use the lim-

47 Physical Environmental Characteristics: Winter • ..Da..~ AL:a..Ac-\Lcr\rC t>Pt>c;~. Caracteristiques physiques etenvironnementales: hiver

sea Ice conditions range from complete Ice cover (White) to C ILlo' .....Jr'l..:n' ~'f''i ...'1. ... .IIIC lo~r-./'. ~ ~~ \o-'\ lo'<~~ couverture de glace (blanc) i11I'tltst d'eau libra (bleu fonce). La Pos ition of falNce edge usually In hatched zone. Blue areas neche = mouvement g6neral de Is glace. Lea zones r8tur~1 on land rece ive most snow. ~L'\orr.... :>~-./'~ ...~....IIIrclo.....L -./' .-.r '1O...... lo<':>r Indlquent habltueUement I'emplacement de 18IIs1 &re de glace l table. Les zone s bleues sur terre sont cell" qui reco lvent Ie plus de nelge.

... __.. 1:::""":=:'=".,- • _ .­ ex _.-=-- .,..:=:-. 0_-'_-H ------.._ '-.J....l' - ~ . l..--.I _ :...... 1_ '----'-.1' _ _ ~- = - =:--'"= ~ :.:.:...:.1.::::'" -::=.:==-'""::""..:~------..------_. _ ._-~_ . _-_ ..._.-- .. _-- .... --- 4 48 c Physical Environmental Characteristics: Winter • ~L~ 4L:L4r-'Lcr'r : ~P~'i ·. Caracteristiques physiques et environnementales: hiver Selected Components. ~y; C;~C~~L,.IL~ • Composantes choisies

1 Mean AJ'1n.J8I Snowfal .

3 Consoidated Ice Edges ' ,...,...R..J4,. . Lisierea de glaces con scndee s. 1965, 1966,1967.1968,1971, 1972. 1973, 1975, 151 77

5 49 Biological Resources Characteristics: Winter • I>L~J{ c ..QCI>c-fL<:I?"'~cr"rc A L.:a.. Ac-"Lcr"r : I>PI>,b. Caracteristiques des ressources biologiques: hiver

Five levels of Important habitats are sh own for malor spec",_...... r c ~L4 ....JLI> -.!' 11:1.,:;1>' ''-'0' l>L~J .....-. ~~-.!'. Clnq niveau x d'habltats Importants soot Indl qu6s pou r Ie. prlnclpales espeees . Les zones en vert lonce sont des Dark green areas are critical habitats for speci es that C~ L~J ..~t l.,:; ~ ...... 1>' concentrate and feed along fast-Ice edge. White areas are habitats critiques pour Ies espkes qui 58 concentrent et general range of one or two species. .-"\00'1.... L<-:lJ . C~...«:r .....-.4' ~-.!' a'allmenten' Ie long de la frange de glace ferme et lei zones C~...'I.' C.a;~ t>L~J I.,:; P~~'I. ~~':'-~' <:'~t "f"<:l...' ..-.!'LI>-.!'. blanches repreeentent une alre generale frequent" par une au deux eepecee.

_ ~ = l",...,l .. L...oI ~ """"" _ _ t::'"...:=:=..,_••• _

_ _ ·_ 4 - .-o "'--' _ ;..--: _ ...... :II ~__ _._­ C::W-=--:-.:::-....;.."'=-~ -..'=--=­ -."'" ==-..::---- . = \...---l~'---'~ _ _ '--:. ,"""""'.__ _ _ ------='X' ...... :': I:: :.:':"::' ~ ..:~- -- -:::.c:.:==-':------...... -----_..- _._.__ _._---_-- _-- --- 6

50 Biological Resources Characterist ics: Winter. l>L"'O:!Ac ..DC~c-rL

Selected Components. r>':>~ Cj ~C~"'O:!L"'L"'O:! • Composantes choisies

1 Polar Bear· L Jllf • Ours blanc 4 Marne Manmab: Spmg MqantS" CJ'l..J)o'rDo ~'L'I' C" ..'"'""'NY , 7 Peary Caribou -.rc :::>':::>4 •Caribou f"'lfCi"i' <~ 'Mai I ' ii"68 mams: rrqation~ de Peary 2 Ringed Seal· .,t,rY . Phoque annele 5 C cMoniat Seabirds • ~n"'c ~ n'r4"·Orseeux coloniaux 8 BarTen-Gromd <",, :;r; Carbou · ... ~f"' ::> r lli =r:Uf .Caribou de 18 toundra 3 Arctic Fox .,rc nfLL..<4" · Renard arctique 6 Muskoxen · tl>rC- . Boeuf musque 9 Yegetabon· I\?"':::Y'''~'''' L . vegetation

51 7 ited areas of well-vegetated lowlands found on these Caribou, the preferred food source, are hunted in the Current Commercial Activities islands. Peary caribou move between Prince of Wales early and late winter months (November and March to In the winter, mining of lead and zinc at Nanisivik and and Somerset islands during winter; some may also May) when travel and light conditions are amenable. air transportation operations serving Resolute, cross Barrow Strait. Hunters travel long distances: Pond Inlet residents Nanisivik, and Pond Inlet (Figures 10 and 11) are the going southwest to Eclipse Sound, Arctic Bay people main commercial activities. Hunting, Fishing and Trapping to southern Admiralty lnlet, and Resolute hunters to As the wildlife of the region is finely adapted to the Somerset and Prince of Wales islands. Mining at Nanisivik on Strathcona Sound began in dynamics of this harsh land, so too the native hunter 1976 and at present employs 225 people. Inuit consti­ must be attuned to seasonal change in the natural Muskoxen, too, have recently become a source of tute 25 per cent of this work force. Although the min­ environment to earn his livelihood. Hunting, trapping food and income for Resolute people, who harvest a ing facilities occupy an area of only 10 km', including and fishing have been, and remain, important pursuits small quota on Devon and Prince of Wales islands. storage and operating facilities, townsite, and associ­ for the region's Inuit in the winter. ated activities, such as shipping docks, roads, airstrip, The permanent residents of Somerset Island hunt on and tailings disposal site, the environment may be Except for December and January, when darkness the island and in the area of Creswell Bay. affected over a much wider area as a result of noise and extreme cold interfere, winter is the most impor­ and air pollution and icebreaker-assisted shipping. tant period for Inuit hunters and trappers. Figures 8 Polar bear are hunted for their hides on the sea ice Environmental effects are poorly documented. and 9 show where hunting, fishing and trapping may and along the floe edges. Quotas on polar bear are Operations here are year-round with the concentrates occur in this season. With the snowmobile, hunters established by the government of the Northwest stockpiled until the summer. can cover extensive areas of snow-covered land and Territories. They are occasionally modified, following sea-ice. The harvested animals include ringed seat, consultation with local hunters' and trappers' In 1978, a representative year, Nanisivik produced narwhal, caribou, muskoxen, polar bear, arctic fox, associations. 128 400 tonnes of zinc concentrate and 11 500 and small game. Fishing for arctic char through the tonnes of lead concentrate, representing about 7.1 ice also takes place. Small game such as arctic hare, ptarmigan, seabirds, and 2.4 per cent of the total Canadian production, re­ and migratory waterfowl adds welcome variety to the spectively. The mine has a life expectancy of about Ringed seals are hunted at breathing holes and ice Inuit diet, so these species are eagerly hunted. eight more years unless another economic ore body is cracks in fast ice areas during winter, and on sea ice discovered nearby. or along leads and ice floes in April, May and June. Inuit trappers tend their arctic fox traplines most of the This is the most important species harvested during winter on landfast ice and along the coast. Depending The Arvik mine on Little Cornwallis Island is scheduled this period as it is abundant and highly valued for its on the abundance of the animals and the current price to start production in 1982. Annual exports of about meat and pelt. of their fur, arctic fox trapping is an important source 270 000 tonnes of zinc concentrate and 45 000 of income in all native communities. tonnes of lead concentrate are anticipated.

52 -

to northwest direction in the western end of Lancaster Summer in the Lancaster Sound region is thus char­ Air transportation is essential to the communities and Sound near Resolute, whereas in the Sound proper acterized by highly variable weather and ice condi­ mines for supply of perishable foods and urgently tions, complex surface-water circulation patterns, and travel. they vary considerably. needed cargoes as well as intercommunity the presence of numerous icebergs in the eastern por­ Important medical, dental, and educational services in The circulation of surface waters in the Sound is pre­ tion of the Sound. The earlier ice breakup and the rel­ Frobisher Bay and southern Canada can only be season in the eastern part of from west to east but a persistent east­ atively longer open-water reached by air; technical personnel to operate and dominantly ward current follows its southern margin. This flow is the Sound, together with the complex surface water maintain certain equipment can only enter the region contribute to the overall biological productiv­ complicated by a number of incursions at most chan­ currents, this way. Scheduled flights are available several times ity of this marine environment. a week. nels (such as Prince Regent and Admiralty inlets) and by the presence of mid-channel eddies, as shown in 12 and 13. At the Sound's exit into Baffin Bay, Wildlife The Region in Summer Figures a large anticlockwise intrusion of Baffin Bay surface During the brief summer season, abundant plant and throughout the marine area and water penetrates, sometimes as far westward as animal life is evident Physical Environment much of the coastline (Figures 14 and 15). As the re­ daylight from 100 km. The arctic summer brings continuous gion's channels, well-vegetated lowlands, valleys, and early May to early August. but the mean daily temper­ unconsolidated ice in the Sound loosens. shorelines become free of snow and ice in the spring, ature rises only slightly above freezing in JUly and In May, the An open-water area, which starts to develop along they are used by more than 50 species of birds during August because of the influence of the cold surface and feeding, breeding, and moulting. southern Devon Island, normally becomes continuous migration waters. For about two to three months, the Lancaster Colonial seabirds, which nest on coastal cliffs in vari­ Sound region experiences open water but the length through to Baffin Bay by mid-June. The consolidated lillie ice further west is slower to decay as is that of the in­ ous locations from late April until September, are of the period varies greatly from year to year for vari­ affected by ice-cover. Nine major seabird colonies are ous locales according to prevailing weather and ocean lets and bays adjoining the Sound. Regardless of the killiwakes and guille­ position of the consolidated ice edge, how­ occupied by murres, fulmars, conditions. geographic ever, its breakup generally commences in mid-JUly. mots, which together with a number of other species, Canada's 8.3 million breeding Lancaster Sound is nearly always ice-free during total a third of eastern Most of the rainfall occurs in July and August with the colonial seabirds. Tens of thousands of eider and old­ throughout August and September. average summer total being only 75 mm squaw ducks, snow geese, loons, and shorebirds ap­ the region except for slightly higher amounts in the pear here. eastern mountainous areas of Devon Island. Extensive Icebergs, numbering in the hundreds and greatly vary­ particularly ing in size, drift into the eastern entrance of Lancaster fog is common over the marine channels, The abundant ringed seal, which are permanent resi­ Sound, but like the intrusive current in which they drift, in late summer. dents of these waters, are joined in summer by the seldom penetrate more than 100 km before returning endangered bowhead whale, most of the world's nar- At this time of year, prevailing winds are from a north to Baffin Bay.

53 Hunting, Fishing and Trapping Patterns: Winter • ~ \JQ..r \ crn...~I>~~:> c, &lb..,)~ ,.II>Cir' crn...~l>~ b:>C ~ LL P~c;bcCLr ~ "I>~~:> c Lc-~ < ~ cr-. I>PI>,b• Chasse, peche et piegeage: hiver 1974-1982

Red colour Indicates areas whereInuit commonlyharvest <':::>r n "'....L-.!' ~..~....LJCl>-.!' b...Jf Lea r!&glanes en rouge Indlquent les zones ou les Inuit wildlife. Key species harvested are shown In Figure 9. l>'J..I"'l\rT..l>I.-' c T ...•. l>L-.!' .><':::>' chassent couramment la raune . Lafigure 9 1ndlqueleI principals. 8SpeceSchassees...... ~Cl>....L-.!' 9.r.

-~-~ ~...=:::: =- ..------=r=:==~--_ __-:-L.oJ_ a...... r _'---J~'---' ez:--==~""I:.:o:-' or: ------__t...... __~=,~=-1.___I =:====----:"'"__ :.:e::::.:,,':.:.'-.. ------==::==-""=""...:=:- _r_._e-..... _. .. _._.._._ 8 54 Hunting, Rshing and Trapping Patterns: Winter . ~ ·:> c, ~ b~' ,.Jt>c;l"" cr lL !lo- t> ~ · :> c ~ .::> c L ....• <' erc: t>Pt>'i·. Chasse, ~che et piegeage: hiver 1974-1982 selected Components. ~y c;t>Ct>~L,.JL~ • Composantes choisies

4 Trap U.s · r rrcfir.;' lt · Ugnes de piegeage

2 Polar Bear Hunting . a. ..'''''r.lt>1lf • Chasse it " our s blanc::

3 Caribou Hunting .::>' :>.... t>~« . Chasse au caribou

9 55 Current Commercial Activities: Winter. LA. o..l>~'~ Po..l>c ~ ~ ' ? C l> o.. r <1 " ~ :::> c : I>PI>'~. Activites commerciales actuelles: hiver

Commercial activities Include mining ot lead-zinc ore and air r--l>'!o-·...l>nl>-.." A~ l" _~...r'-" !o-r "\l\'ilo'r. Les activit's commerclales comprennent .'explattatlon transportation operations. ~..!o-l>loo'r.... '':'~C':::>r' ~L...r. mlnlMe du plomb et du zinc alnsl que des op6rations de transport.

... t::"..::::::..._ ..... _ _- _ ...... = ;."",:= t--:I':.....JI &-ZJ _ _ __~.*~==" ;...._I_ L...._J' _:_ _ _.­ ====--::--- - Z:"" _ . ":=': ' -===­ _.------~- _.. _~ -= _. _· =~ _ ,----, ==-= t _ _ ======~_ "e= ::.:::':' =:-- l:C:''::==-~'':=='- ...... _._.. ------_..- _.___._-_ _.- ---- 10 56 Current Commercial Activities: Winter • L~ Q• .I>~ 'i ' PCL.J>c~·""?CJ>CL.r c: J>PJ>'i' . Activites commerciales actuelles : hiver

Selected Components. ~ :>'i C:;J>CJ>~t.""L~ • Composantes choisies

1 Mining. Ilo >-~C'...""'« .Mine s

2 Air ..ansport .....'t.Ct"c -cr"'Jn'r<.Transport aerien

11 5 7 Physical Environmental Characteristics: Summer • c ..oa..~ AL:a..Ac-"Lcr"r : ·~c;L. Caracteristiques physiques et environnementales: ete

Sea Ice conditions range from partial Ice cover (light blue) to C lt.l>' .JJ'L'?~'" fJ 'L' l"n ~ <,..._ .... I< L Io-'Ll>'<'..._ ... Les conditions de 18 mer de glace variant de 1'6t81 partlel de open water (dark blue). Icebergs are mOlt frequent In hatched C lt.l>'r. ~L'Ll>'_ r couverture de glace (bleu clair) 81'6lal d·eau. IIbres (bleu areas. Surface wate r circulation I, shown by arrow• • Blue ar.as fonc4). Lea Icebe rg s se trouvent Ie plu s frequemment dan. tea on land receive mOlt rainfall...... ~.JL~ L:i Jl\l>...~<'..'1" ....r. zones returNs. lea f1kh.slndlquent les courants d'eau de surface. Les zones bteu• • sur terre sont celles qui ~tY.nt Ie plu s scuvent des p~lpltatlon• .

e--' - ._. ______... e-o_ ~ '--I ~ =&...f _ ...... , ... &.oJ-'_ __- __~ ~ ' -1'__ _.­____ K'F'""""'-T :)"I =:==:'''::'--- - C::?:t:- ':--:""'I:..-:::':- - = "=-'-I:­ _____ .t._...... l0:-o-==.--.~_ ~. =-"~... ._ .~'-.___ :::: .. -=~~-~,,: =::,:,'::.:,=------_.- ::.t::"::==-----..-..-.-...... ::=-:.- 12 58 Physical Environmental Characteristics: Summer ~o..~ c • A L.:o..Ac-'Lor'r : !o--'i·. Caracteristiques physiques environnementales: ete et Selected Components. J>!::J'i C:;~C~~L"" L~ • Composantes choisies

1 Rivers ~ c u~ and lakes . . COlIS d'e au et lacs 4 Slr1ace Water cnu&ation . ALII-< "''1.C .6.'f' C:;r~L : !lo-'Jc• COU'ant ",'ace s de 5 Median Ice Cover · .... .rt.~...' L· Couverture de glac e mediane 3 Mean AnnJaI Rainfal • -4GJCLr ~J"" Jr't. . Pr8dpitations annueIes 6 Iceber N " ~".d rnoyenne s de pIuie gs · . Icebe rg s

5 9 13 whal population, a third of North America's white quence to ducks, geese, colonial seabirds, and marine Island. Some families camp on Somerset Island and whales, as well by walrus, and harp and bearded seal. mammals. Prince Leopold Island and Cape Hay on hunt along the island's coastal areas. As well, the per­ Arctic char are found in several streams, lakes and northern Bylot Island are particularly important nesting manent population of Somerset Island hunts in the rivers, while arctic cod are abundant throughout the locations for colonial seabirds, whereas the Wollaston area of Creswell Bay. The Arctic Bay people work marine areas. Islands are a significant walrus habitat. from the floe edge north of Admiralty Inlet and, after the ice retreats, hunt throughout the inlet. Pond Inlet In summer, there is also considerable wildlife activity On the other hand, the Devon Island plateau, central people hunt at the floe edge near Button Point and on land (see Figure 14). The coastal lowlands, in par­ Somerset Island, and the Brodeur Peninsula are very Cape Graham Moore until the ice recedes, at which ticular, are occupied by nesting waterfowl and shore­ sparsely used by wildlife. time they use Eclipse Sound and Navy Board Inlet. birds, polar bear, who favour these locations as sum­ Other species such as bearded and harp seals are mer retreats, caribou, and muskoxen. Barren-ground Hunting and Fishing taken by Inuit whenever encountered. caribou are found in small numbers on northern Baffin Hunting activities are intensive during the brief sum­ Island, while Peary caribou range on Prince of Wales mer period, with many families dispersing to seasonal White whale and narwhal are hunted from boats dur­ and northwestern Somerset islands, and to a lesser camps located at varying distances from the commu­ ing the open-water season. Numbers taken vary con­ extent on northern Cornwallis and Bathurst islands. nities. Areas where hunting or fishing may occur dur­ siderably from year to year. White whales are more Muskoxen occupy, year-round, the well-vegetated ing the summer are shown in Figures 16 and 17. available in Resolute and Creswell bays and the west­ lowlands on Prince of Wales, Devon, Cornwallis, and Comparison of the composite maps for winter and ern part of the Lancaster Sound region. In late June, Bathurst islands. summer (Figures 8 and 16) shows that the area the Inuit of Pond Inlet begin hunting the narwhal along hunted in summer is much smaller. This is, in part, the floe edge about 75 km east of the community, Although it is necessary to recognize the importance related to difficulties of travel overland and over open near Cape Graham Moore and Button Point. As the of the whole region as a wildlife habitat, there are water. whales continue westward, they are hunted by resi­ some areas that merit special mention. The coastal dents of Arctic Bay and the outpost camp on Creswell lowlands and nearshore waters of southeastern Devon Marine mammals are hunted in the coastal waters of Bay. The narwhal is hunted for the valuable ivory of Island and Philpots Island, together with the coastal Bylot and northern Baffin islands as well as in the its tusk and for its skin, called mukluk, which is eaten. areas and adjacent waters of the Borden Peninsula coastal areas of Cornwallis and southern Somerset and Bylot Island, are perhaps the most important hab­ islands. Ringed seal are consistently available and are Walrus are hunted by the people of Pond Inlet in the itats in the region in terms of species diversity and bird used for food, clothing, and sale of skins. They are Wollaston Islands, an important hunting area; the wal­ and mammal population densities. The north and east hunted offshore from small boats near the communi­ rus ivory is used for carving and some of the meat for coasts of Somerset Island, including the Creswell Bay ties and from seasonal camps. Resolute people hunt food. area, the southwest coast of Devon Island, Admiralty principally around Cornwallis Island and McDougall Inlet, and McDougall Sound are also of major conse- Sound, and east as far as Radstach Bay on Devon Since travel over the tundra in summer is arduous,

60 caribou hunting is confined to short distances inland occur in the eastern part of the region. from shorelines accessible by boat from settlements to investigate environmental characteristics. For ex­ or seasonal camps. Caribou meat is a preferred com­ ample, in the 1979-80 season, 74 field teams were Mining involves the extraction and concentration of involved in research and surveys, most of which dealt ponent of the Inuit summer diet and the skins are used lead and zinc ores, and their export by ship to Europe. to make warm winter travelling clothes. However, ow­ with biological or geological topics. The Nanisivik mine has been in operation since 1976 ing to the irregular movements of the caribou herds, and the Arvik mine, currently being developed on Little As discussed in "The Region in availability varies considerably from year to year. Cornwallis Island, is scheduled to begin production by Winter," air transpor­ tation is important for intercommunity Generally, Pond Inlet Inuit hunt around Eclipse Sound, 1982. travel and the Arctic Bay hunters use the southern portion of transportation of residents to medical, dental, and educational services in Frobisher Bay or southern Admiralty Inlet, and Resolute people hunt on Somerset Shipping activities also serve to bring supplies to com­ Island. Canada. Aircraft also supply perishable foods and ur­ munities. At present, there are about 70 ship transits gently required supplies and provide access to the each year, servicing both the communities and the During hunting excursions for caribou and other ani­ area for technical personnel who are required to main­ mining operation at Nanisivik. In 1978, 1 685 tonnes tain equipment or machinery. Most of the tourists who mals, Inuit also take small game, particularly migratory of dry cargo, and 5 155 tonnes of bulk fuels were visit the region in summer arrive by air. waterfowl, as well as ptarmigan and seabirds. transported in eight resupply voyages. During the same year, six shiploads of ore were exported from Tourism is a major activity in Pond Inlet with the at­ Fishing through the ice of freshwater lakes for arctic the Nanisivik mine. An increased number of voyages char begins in May and continues into the summer traction of arctic char fishing on the nearby Robertson were made in 1980 to support the construction of the River and adjacent Koluktoo Bay. along coastal margins and in the mouths of rivers and sport fishing could Arvik mine. Supply ships and ore-carriers are often also become more important to other communities. streams. Summer camps are often favourable sites for accompanied by Canadian Coast Guard icebreakers. this pursuit. Small-scale commercial fishing of arctic Resolute currently supports one locally based tourist char for sale in the settlements is carried out. operation, and serves as a staging point for occa­ A few vessels involved in survey projects travel sional tours to Ellesmere Island and the North Pole. through the Northwest Passage each summer. The Tourism is a source of seasonal income to the com- Current Commercial Activities Vessel Traffic Centre in Frobisher Bay, operated by During summer, a variety of commercial activities the Canadian Coast Guard, is responsible for monitor­ takes place in the Lancaster Sound region including ing ship movements and enforcing prescribed stan­ mining, shipping, scientific surveys, tourism, and air dards with respect to ship safety and pollution support operations. Although much of eastern prevention. t 'The Arctic Lancaster Sound is held under oil and gas permits, WatersPollution Prevention Act prohibits the deposit of any waste in arctic waters. The act also authorizes the there is no drilling under way at present. As promulgation Government and industry scientists conduct terrestrial of shipping safetycontrol zonesand regulations that prohibit a ship of any class from Figures 18 and 19 show, most commercial activities and marine surveys to ascertain resource potentials or navigating in a safety control zone unless it com­ plies with prescribed standards

61 Biological Resources Characteristics: Summer .I>L~~ c ..QCt>c-n...~'ib . Caracteristiques des ressources biologiques: ete

Ave levels 01Impo rtant habitats are shown tor major species...... LI> -l' ItL:OlLl>":;"'.J l>L-.!.J ...... ~,.IL-l' . Clnq niveaux d 'habltsta Impo rta nts 80nt I" dlques pour les prlnclpales espeees. Les zones en vert tonce Indlquent un Darker green areas Indi cate an Increasing overtap of :J'J.../''':;'''4 ~ L-l' 'b I>~ f -l' l>L-l' Important habitats. White areas are general range of one or chev8ucheme nt de plus en plus pr ononc6 d'habltats two specIes. .rr~cl>":;,,{ Lr "'1>'..)...'1" ...... ~r> (y L:O r>4 Impo rtants. Lea zones blanches sont generalement ' l>L-l' Lr ...•. trequenteee par une au deu x especes.

______e-_ _ ...... :,.....: :...... : -=~ l"""I,=\--J'J _ =-..:.::.::::.. ..-...._----- .. _ _ ~.. ~~ -_ I._.I_ '___l ~-===-=--:--e.:. .,...

==-..;...--- _~ a _. =-"L----.J' ~;...... ,r ~. _----­ __ _~_.._ . _e_"__· . ~===-.::-:----= -.:c.:::.:.-:.:.::.;:;'" -----_~.:==-'"'::""..:=:-_ .- __._._._.._ 14 62 Biological Resources Characteristics : Summer. t>L~Ac .DCI>c-n....~?~~cr'rC AL.::Q.Ac-'Lcr'rc: ~I>!lo-'i '. Caracteristiques des ressources biologiques: ete

selected Components. r>::>'i c;I>CI>~L,JL~ • Composantes choisies

1 Polar Bear · __..& . Ours blanc 4 Narwh.al ": >1...... ,~1.4 . Narval 7 Peary Caribou .,\,roC" -::r::ut "Caribou de Peary 2 walrus · -n.c= r~rt Ja.'f""'Ct4\r<" eye. M9'atiOn 8 de s manmiter8S rNrils Snow Goose" t:JJf · Oie blanche 3 White WhiNe (Beluga) •"",rc' <; L4 •Beluga ' ...... 6 Colonial Seabirds . l!> n'I'C ,.sc rr r

15 63

Hunting and Fishing Patterns: Summer • ~~::>c

A'1~...,)Lr\crn..~I>~~::>cLc-~<~C"rc:~'1~.Chasse et pkhe: ete 1974-1982

Lea zones en rouge sont celles aules Inuit vont couramment a Red colo ur Indicates ereea where Inu it commonly hunt or fish J>/i; '~~L-I' sont Indlqu6es dans Is figure 17.

II,"", Cl'L.»o'LC ~ C>rl' L Lancaste.Sound -.. Study • Etudedo" '- '" dO_ douncast..

::T._.,_ • .•• .... .,_.. _ t-J-='r._ ~ ~ ~ ~ = ~ ~ :.....r· =:. •_ '-....; _ .R ==:;,r=~~~ = ~ ="_J =L...... J ~ e-_.-__. ~ _ ~ ~ ~ ~ ~:=:~~==---~~..: ____ =-~":'.=O'::~~~l::;..,~~ _ _ .. _ Do.. ' " _ .... . -. "'J"'' ~_"'_ # ~_e._. ~ L-.-.:I ~ ~. = :...-...r _ -.. _ 1 ~ _ . _ .. 40"- ==~ = ~ ..:;:L_::.;.',:.':.:'~.::.:;,::...... : · _ _ _ _ ''''0 '''''' ______"=" ~= :C'~-:-_'"'= ~=~ ....:~ -_ ...-~ -----_.- _. _ .,_,"'--"' ._ _' ...,_'.e__._ .._ 16 64 c ~~'i'. ~ ~~':>cc

selected Components. a>t:>'i C;~C~-

1 Seal Hunting • ~fY"'~tJ>~« • Chasse au phoqu e 4 FistWIg • ~~J_<4"« •Peche

2 Whale turt.ng ·...,...... C".-'ClI'It·Cha sse a Ia baleine

3 Caribou Hunting . :>';),...,1><<<•Chasse au caribou

4 ~ ~ 1 J ( 4c_ :::; I

' I fJ7\f~ , \ I

3

17 65 Current Commercial Activities: Summer. L'"o..t>~'1b Po..t>C~b'?Ct>o..rC:~''ib.Activites commerciales actuelles: ete

Com mercial activities Include sh ipping of lead-zinc are, <':Y, t>,..r;~Ce,4\ t><'...u ,.....), cr- t>' ?",C"::>r;n-.­ Les eenvttes commerclales comprennent Ie transport resupply shipp ing, scientific surveys , tourism , and alr . maritime des minerals de plomb et de zinc et des bl>~r-I·.:!:>' l\l>'~r~ ' b'LCr-·.r. '''' ·' transport. Dark fed Ind icates spatial coinc idence of activities. <' ''&' reapprovislonnements,les etudes sclentlflques,le tourlsme ~ n.: J\ l\ t>""II!..... et Ie transport aerten . Les zones en rouge fonce Indiquent Ia cctncrcence c'ecnvneeau meme and rei'.

~ "\P~~ I lancast ..'r CI"U-' LC C tlo.,JL ~ ~ ~ ~ . , ..iz: Study . Et.... de Ia"""""'..,.de eancaste' ~ ~ _frtt. _ Icr-- > \/\ !\k

='=::.":t _ ,.__ ...... _ _ ~ _t.....:.= ~ .=~ = ;.....z_" . __ ..... o:.....; " "".."..,."".. 0 " •• . . -=-~ =====~-o:=-- _ ~ .J-= .;...... : ----~ _ ..., ..... •• :.• = ""'---l .••.: ·1• !:-:;~~:~~~;;:.~~. ~~ ...... -... ::=:-:;:=::::::~ _=7=.;;;:?:"':.:"~ .. _n<>eH1982 ~ == : _ ';...:..-.1-= ,:....-.:= L----oJ= _ _ ~.::==_'"":i":_...:=:.- _. e.-.~ _ ., _''''-'''<:-_ . ..,_ '.e..- .• ..-.,__ ---.-__..- 18 66 c~'''?CI>a..r'~~ ':>c:~I>~~'. Current Commercial Activities: Summer. L ~a..1>.../~'Pa..l> Activites commerciales actuelles: ete

selected Components. ~:>~CiI>CI>.../L,..IL.../• Composantes choisies

~ C" 1 Mining . t>., .. 4'It· Mines 4 'burism· NJ 4 "« 4 .,1<:·J4 ·ti .... rt>?~"• . Tourisme

2 Shipping, Corrtdors • ,.... r>r4 ""'II!¢¥ : 4""'Jnl""· Transport 5 Oil and Gas: Peemite . t><;"'4.J' ...rr "" tl-....r'-Petrcle et gaz :pe rmi, maritime' corridors

C "'~ 3 Air lfa nsport .~IIo'l.

4

~ I 1 fin~J "".. "_

f:'!J~._ :;.~

~jI>A'~ l\..- 2 I f(. "'1 .r -' I

3 fif.cJ;;;;;--- 6 ~ I I , _ ,. .

19 67 1

munities and residents, generating jobs related to ac­ its location, Resolute has usually offered more oppor­ Pond Inlet and Arctic Bay are incorporated as hamlets. commodation, meals, and guiding services. tunities for wage employment, but hunting is still an A hamlet council has limited authority and may pass important activity. by-laws to regulate certain activities within the ham­ Oil and gas exploration began in the Arctic Islands in let's boundaries. This includes responsibility for mu­ 1960 when oil and gas permits covering most of the The politically unorganiZed community of Nanisivik nicipal services, road maintenance, zoning, and com­ archipelago were issued. Initial drilling on Cornwallis (population 360), a mining community located on munity planning. These essential services are mainly Island took place in 1962, and on other islands in the Strathcona Sound, 27 km from Arctic Bay, developed financed by operating contributions from the govern­ study area during the 1970s. No exploratory drilling is in the mid-1970s because of the lead-zinc deposit ment of the Northwest Territories. Less than under way at present. there; its population is predominantly non-native. 10 per cent of their operating budgets is raised directly by the hamlets of Arctic Bay and Pond Inlet through Socio-economic Characteristics North of the study area is the small settlement of licensing of businesses, rental of equipment and the Grise Fiord (population 85). Like Resolute, it was es­ sale of services, including water delivery and garbage Communities tablished by the federal government in 1953 with an and sewage removal. During the past two decades, the attractions of immigrant Inuit population from Port Harrison and schools, housing, and medical services have induced Pond Inlet. Although they live outside the study area, The communities of the region have often identified many Inuit to abandon camp life and move into com­ residents of Grise Fiord hunt within the region on social services, education and management of lands munities. Today, there are three organized communi­ northern Devon Island. Accordingly, some reference is outside their boundaries as areas of critical impor­ ties within the Lancaster Sound region: Arctic Bay made to Grise Fiord in the following sections. tance to them. However, these programs are not gen­ (population 380), Pond Inlet (population 660), and erally under direct local control. Resolute (population 150). Arctic Bay and Pond Inlet Local Political Structures are hunting communities with predominantly Inuit pop­ Each of the three organized communities in the region As mentioned, the senior levels of government gener­ ulations. Both began to develop as trading centres in has a local political structure. ally consult with settlements and hamlets on matters the 1920s. that affect and concern them. The communities recog­ Organized as a settlement, Resolute is unincorporated nize, however, that consultation and control are not The settlement of Resolute was established by the but annually elects a council, which is, in a strict synonymous, and view the many proposals for devel­ federal government in 1953 with an immigrant popula­ sense, an advisory body. In practice, however, the opment in the region with considerable concern. They tion of Inuit from Pond Inlet and Port Harrison (now settlement council does exert significant influence are anxious for more authority at the local and re­ Inoucdjouac), northern Quebec. The settlement is over decisions taken by the federal and territorial gov­ gional levels. 8 km from a non-native area, locally referred to as ernments on matters affecting the community. Grise "the base," which has grown up around the airport, Fiord is also a settlement. Population the transportation hub of the high Arctic. Because of For most of the last decade, the communities in the

68 region experienced a steady natural increase in a full- or part-time basis. Currently, permanent em­ free period when transportation is by boat, the popula­ population. ployment is available to 35-40 per cent of the male tion is dispersed over a wide area, but individual hunt­ labour force; the rest depends on a combination of ing ranges are not nearly as extensive as in winter In the last few years, however, Arctic Bay, Resolute casual or seasonal employment and hunting. Even for and spring. and Grise Fiord have experienced some decrease in those permanently employed, part-time hunting re­ population. For Resolute and Grise Fiord, the cause mains a means of supplementing their food supplies. Hunting activities may be hindered by transportation for this decrease may be found in the artificiality of the Within extended family groups, there is substantial difficulties especially during freeze-up and breakup communities: many residents have returned to their sharing of cash resources from wage employment and and by the winter darkness prevailing in December former homes in Pond Inlet and northern Quebec. For of food resources from the hunt. and January. Also, hunters must abide by laws estab­ Arctic Bay, the decline may be attributed to the out­ lishing harvesting seasons and quotas, and many migration of some who had moved in to take advan­ During 1978-79, hunting and trapping generated an spend part of their time in wage employment when it tage of employment opportunities when Nanisivik was estimated total cash income of $302 400 from fur, is available. Cash is necessary to buy supplies, espe­ under construction. In addition, some families from sealskin, and ivory sales, as determined from the re­ cially fuel for snowmobiles. In addition, hunting may Arctic Bay have moved to Nanisivik. turns of general hunting licences, the holders of which be restricted by the biological characteristics of certain were Inuit. Over a five-year period, edible meat avail­ prey species, for example, by irregular movement Of the native communities, Pond Inlet alone has expe­ able averaged 190400 kg (420300 Ibs) per year, with patterns. rienced steady growth. Nanisivik, where the non-na­ an imputed annual value of $1.2 million. These figures tive population forms a substantial majority, has in­ include those for Grise Fiord. Note that general hunt­ Northwest Territories government game returns and creased considerably in population since 1976. ing licence returns are thought to seriously under-re­ Department of Fisheries and Oceans data for 1978-79 port the game harvest and the value of country re­ indicate that 1 714 ringed seal, 1 309 arctic fox, 1 124 Assuming that the population decreases of the last sources produced. caribou, 241 narwhal, 123 polar bear, 32 walrus and few years were in response to specific short-term fac­ 17 white whale (beluga) are known to have been har­ tors, and that average population growth rates of the The harvest area is larger in winter when sea ice vested by Inuit in the Lancaster Sound region. last decade will continue, the Inuit population in the forms a generally stable avenue of access to distant Although these figures are considered incomplete region should increase substantially over the next 20 hunting territories from communities and permanent because of the failure of some hunters to report their years. Younger age-groups predominate in the Inuit camps. In late spring and summer, generally before wildlife take, and other statistical problems, they pro­ population and thus natural increase will be a major breakup, people from the communities disperse to tra­ vide some indication of the size of the wildlife harvest factor in population growth. ditional camps in favourable hunting areas. Families in the region. remain at their campgrounds through breakup and Harvesting Wildlife most of the summer, returning to the communities Modern technological innovations, especially the Most male Inuit consider themselves hunters on either usually in late August or September. During the ice- snowmobile, have had a dramatic effect on hunting as

69 a means of livelihood. In particular, it is the extensive a cash value for country food face similar problems, men from Arctic Bay and other locations found addi­ use of snowmobiles during the ice-covered period of for it has proven difficult to describe, in monetary tional employment in construction at Nanisivik. the year that has drastically disrupted the tenuous bal­ terms, the nutritional and cultural importance of the ance that formerly existed between Inuit and their consumption of locally harvested game. These cultural The effects of industrial employment and high wages prey. The snowmobile has greatly increased the ex­ preferences, rather than solely economic criteria, have included increased consumption of material goods and tent of the winter hunting range but decreased the kept hunting a prestigious activity. a generally higher standard of livinq, coupled with . duration of hunting trips. Unlike the hunt by dog team, higher expectations that often could not be main­ in which one product of the hunt fueied the means of In recent years, the government of the Northwest tained. Because much of the employment was away transport, the hunt by snowmobile requires that the Territories has initiated an Outpost Camp Program to from the communities, family stability in some cases cash proceeds from the sale of skins are used to pur­ financially assist families wishing to adopt or continue became threatened. For others, increased cash also chase fuel for the vehicle or to pay for the vehicle it­ a hunting lifestyle on the land. In 1980, there were brought a higher consumption of alcohol. The availa­ self. High fuel and equipment prices, therefore, lead to four assisted permanent camps in operation in or adja­ bility of permanent employment at Nanisivik has had a increased harvests, and serious wastage of meat cent to the region, involving a total of 35 people. The detrimental effect on community leadership in Arctic occurs. program has been judged a success by the territorial Bay: at one point five families moved to the mine site government and has attracted considerable interest from Arctic Bay, four of them headed by long-term In purely cash terms, hunting by snowmobile is uneco­ from community residents. It may well continue and members of Arctic Bay's council. nomical, and casual or seasonal wage employment, expand. for those who are primarily hunters, subsidizes the In the organized communities, employment opportuni­ increased cost of hunting by this means. But the hunt Wage Employment ties include positions such as municipal service work­ continues to provide large quantities of "country food" Until the 1970s, wage employment opportunities were ers, clerks, mechanics, teaching assistants, and ad­ at costs estimated to be much less than those for severely limited. At Pond Inlet and Arctic Bay they ministrators. Other opportunities exist further afield in comparable imported foodstuffs available in local retail consisted mainly of the provision of labour for the lo­ the form of support jobs for oil and gas exploration outlets. cal trader and for government. At Resolute, opportuni­ and mining development projects. Some permanent ties were greater, primarily in labour positions at the employment is also available when these projects are The hunt has, moreover, an important value other base. At all locations, minimal opportunities existed for operational. than economic - Inuit prefer country food to food sold employment of women, usually as housekeepers. in local stores. Estimates of country food available More opportunities are available for skilled labour, but from harvested animals in each community have gen­ In 1972, Panarctic began to hire Inuit men from Arctic few Inuit from the region enter the high school in erally neglected cultural preferences for certain foods. Bay and Pond Inlet to work as well-paid, though un­ Frobisher Bay and fewer still graduate. In the local At best, such estimates indicate availability of food skilled, labourers at exploration sites in the high Arctic schools, education is available to the grade eight or resources, not their consumption. Attempts to impute Islands. This program is still in operation. In 1974, nine level. Many Inuit have not recognized the value of

70 a sound education in a decade that has provided Government transfer payments, especially family al­ creasingly common in the region to hear the com­ many well-paid job opportunities for unskilled labour, lowance benefits, are an important supplement to ment: "We do not oppose non-renewable resource and parental support for higher education is often most family incomes. Social assistance payments in development, but we are against projects being lacking. In addition, the educational system is gener­ the region are not generally high, but levels fluctuate started before the land claims are settled." ally considered by Inuit to be a "southern" system, considerably. largely unresponsive to Inuit needs. The Northwest Territories Housing Corporation pro­ Income vides rental homes in all communities. Monthly rental Levels of income in the region, in cash or kind, have charges, which include all municipal services, electric­ been relatively high. Employment in non-renewable ity, and fuel oil, are heavily subsidized by government resource development and exploration offers wages and this contributes to the generally high standards of considerably higher than those for jobs in the commu­ living. Food and transportation costs in the region are nities. Wage employment and hunting generate cash not subsidized, however, and are high. incomes, and hunting, as mentioned, also provides a potentially large supply of country food. Many incomes Residents' Perceptions are supplemented by the production and sale of art Residents of the communities in the region are in­ objects and handicrafts, notably soapstone and whale­ creasingly aware of the magnitude of the proposals for bone carvings. Women, as well as men, earn money development and how such development may directly in this manner. affect them and their lifestyles. Most feel that develop­ ment will occur and some support it, but all insist that In Pond Inlet, tourism has become an important indus­ development projects should not proceed without try. The local co-operative operates a hotel in the guarantees of real benefits to the region's residents. community and a summer fishing camp at Koluktoo Bay that provide job opportunities for many residents. Desired benefits from industrial projects are seen by Tourism is as yet undeveloped in the rest of the re­ residents to include business opportunities, training, gion. In Pond Inlet and Resolute, local co-operatives jobs, control over working and operating conditions, also operate retail stores. In each community, one or and receipt of royalties. Their concern about proposals two entrepreneurs operate small businesses, including for the protection of natural areas and the region's coffee shops, billiard rooms, taxi and freight haulage biological productivity is that no additional restrictions services, and small retail stores. be placed on their hunting activities. The settlement of land claims is also a high priority. It is becoming in-

71 Appendix B Lancaster Sound: Potential and Future Uses

In this appendix activities that could take place in cer­ Most of these activities would occupy restricted loca­ A great deal of what might be described as "socio­ tain parts of the Lancaster Sound region during the tions within the region and would take place in the economic impact" is government induced, through next 20 years are examined. Those major industrial summer seasons. The darker areas on the map policies on native employment, local business oppor­ ventures already being actively pursued (mining) and highlight zones where activities might occur simulta­ tunities, and the like. These policies are a direct re­ those proposed for possible implementation in the neously. From the composite map, it can be seen that sponse to requests from northern communities that near future, (year-round shipping, hydrocarbon explo­ the eastern end of the Lancaster Sound region shows northerners obtain benefits from resource ration and development) are outlined first. Further de­ the greatest concentration of potential activities. This development. tail on some proposed industrial activities is provided sharing of space could be beneficial for the activities in Appendix C. Also dealt with are such uses proposed concerned if, for example, it would permit joint use of Shipping for the region as the establishment of national parks facilities. In other cases, spatial overlapping of activ­ Any non-renewable resource development in the and other types of conservation areas. Finally, the fu­ ities may be detrimental to one or more of the Arctic will depend on safe and reliable shipping. ture of those activities more closely related to the pre­ pursuits. Today, shipping occurs during the two-month ice-free sent lifestyle of the Inuit residents, such as the devel­ period only, for resupply operations, ore shipments, opment of community-based tourism and the The major features of each activity, together with a marine surveys, and icebreaker support operations. harvesting of fish and wildlife, is looked at. brief assessment of its likely economic, social, and environmental implications, are described on the fol­ These uses are expected to continue over the next 20 Each of these activities and the benefits that the pro­ lowing pages. From this review, some major consider­ years with an additional modest growth or a trend to posed industrial ventures would bring for the local res­ ations emerge that must be addressed with regard to larger carriers to meet the demands of a growing pop­ idents and the Canadian economy as a whole should the future use and management of the region. ulation for fuel, accommodation, and vehicles. Ore be considered, keeping in mind the social and environ­ shipment from Nanisivik will decline during this period, mental implications for the region. While some In preparing these activity descriptions, it has been but because of the new Arvik mine on Little Cornwallis changes and associated effects appear inevitable, oth­ assumed that all future development activities will be Island, total ore shipment through Lancaster Sound ers mayor may not be acceptable. subject to existing regulatory controls to minimize en­ will increase. Summer shipping corridors will not vironmental and social impacts. The implications of a change appreciably. In addition to considering each proposed activity sepa­ land claims settlement have not been examined. It rately, it is also necessary to examine the interactions may be assumed that the settlement of land claims An important change from the established pattern of among various activities, and the cumulative effects currently being negotiated would have a significant summer shipping to year-round shipping would occur that may result from the joint implementation of sev­ effect on the social and economic circumstances in with the use of large ice-breaking tankers carrying car­ eral activities. To facilitate this review, a composite the Lancaster Sound region (see Chapter IV); how­ goes of crude oil or liquefied natural gas (LNG). map (Figure 20) has been compiled to show the spa­ ever, it is not possible to anticipate specific outcomes Although such tankers have not yet been constructed, tial relationships of the various potential activities. at this time. legislative authority exists for the construction, opera-

72 ~r4 '-.!4 ' 4"~n'r'.Corridordenavigation Land-basedFad litles . .... r ' ...."""·""A . Inst811ationsten estJes c ~ "C;,..r!J..b-.../.c "",""Cii!J..'""c;",'i::>~~c 1=1 Favourable Gedogy and/or UmitedMineralResources • "",A~~· Potentia l Extent of Accidental 011PoUution . ta-o;r4,.,'...J r ;::J.../.'i..,"'· ...r ...""';L'lc (r.GeOlogie favorable ou ressources ml~ 1eslimHees D Etendue possible de pollution ac:ddenteIle ~ r;l Near-tenn Produce< (1982): ArvIk(Polaris DeposIt) • l>Io-G'C' .. -.!L:;;'::l' '(19S2): 4' ~ AJr Routes. 'ill'I.C"- c 4~..rtr c.R ootes aeriennes ~ (l>jIL4 ' 4 ") . Mlneproductivd c:ourtten1lO(l982): ArvIk (gisemenlPo IariS)

~ ,,~'i 4'~(C~,.IL-.!"). o; I,;l Potential Produce<: Atvlk (eclipse DeposIt). l>Io-G'C' .. 4'''l>::lALIL4~': ~ Parks Canada's Areas of Interest · "...Cll-' ...o;o:>c-n..;a..'rc ridrr>--'r · ~ Producteur8ventuet: Atvl~(gisement eclipse) Regions d'interet de Pares Canada

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74 Shipping: Potential Corridors . A\rG&\I>~"'a..c;~::>cI>r

c;~CI>~Q..c;~::>c•Transport maritime: corridors possibles

~j'"(4&>~·I').CorrIdorde :>c..IC'l4\l>~· o ShlpplngCon1dor(Summer) .l>r4 "i'Olll!..·,r navlgation(ete) [Q] Potential Ports. ....,.:t . Ports6ventuels

r4'-.!~ 4'Jnr~1>-.!·ol'::l~ Shipping Corridor (WInlet') .l> ..' (1"1>'1'). Con1dor de navlgatloo Note: A haltlour Is a place which provides good anchotege for the purposes of temporary shelter 0< for the lJ:,';jng Saletv Control Zone Bou_ry. l>r4 '-.!4 ..e l><'Cl>-.!°ol'::l' 4,.4. Umlte de Is zone loading and unloedlng of A porti a a placa for the loading 0< unloading of ships that Is supervised de con~ de faMcurtl'I."· ·r' (l>r4 '-.!4"l>n ' L4~').Distance (mUles nautiques) A'A-"'\O B .. ty ,. (L!loo-rL-.-'r-"""::r" 1\1>< ' "~ oJ" .. l>C:;A," 1\1><'...,r-l l>r-ct~c '¢!;o-....Cl>.. C:;A&>...... -0;0:>';1\1><'-'.. ¢L"", ~ Harbours. '~I\l>-<~:>(.Ports de mer .. l>c:;A·I\I>r4"i~".."r '·~JA" c 1>"<.;..1: .:r...·r j ... ttL,.... [Q] Ports • ::l~·C'N.Ports Un port de merest un havrenaturelet unendroIt de mouillagepournocfembarquementou de d6barquement du mat6rteI . Un port (amOnagO)eel un endroIt d'embarquemenl ou de d8barquemonl des navlres sous la 00 ProposedRacon Beacon .... ~... AdC?nf""l><;I\l>oorI"..."":>c. Salise surveillancecruneautorite prMktou publlque.

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~ Although liquefied natural gas is not a pollutant, there cou ld be drill ed offshore for extensive exploration of Implications is a slight possibility that an LNG tanker accident these structures. Some of the activities associated Benefits associated with hydrocarbon exploration in could result in an extensive plum e of ignited natural with potential oil and gas exploration in Lancaster the region would include fulfilment of the "n eed-to­ gas. This could be lethal to colonies of birds or group s Sound are shown in Figure 22 (also refer to know " policy about northern energy resour ces, of mammals if the incident occurred close to them. Appendix C). thereby aiding national energy decision-making. It should be noted, however, that in May 1981, a Effective monitoring, cont rol , and support of year­ Exploratory drilling in Lancaster Sound would requir e spokesman for the federal Department of Energy. round arctic shipping would result in increased costs commitment of two drill ships operating each year dur­ Mines and Resour ces stated that, as regards to government. These costs would have to be met by ing the open-water season. Four to twelve supply Lancaster Sound, the department would like to know the ship operators, the cargo owners, the taxpayers, ships would be needed for resupply, fuel transfer, ice the potential for oil and gas developm ent, but does not or by some agreed combination of these as deter­ reconn aissance , and towing of icebergs. Shore-based need to know immediately.' Such exploration could mined by government. The capabilities and limitations and port faciliti es, possibly located on southeastern result in the finding of significant new reserves that of available pollu tion clean-up equipment and the Devon Island so as to be close to the offshore drilling would be within easier reach of markets than those of technology applicable to arctic clean-up operations are operation s, would occupy about 20 ha and comprise a the Melville Island or Beaufort Sea areas and, particu­ important considerations. dock area, a bulk storage area, an airstrip, and roads. larly, much closer to the import-dependent East Coast Support aircraft woul d be used intensively during drill­ market. Oil and Gas Exploration ing operations. The rising costs of imported oil led to the federal gov­ Additional seasonal employment opportunities for ernment's 1976 " need- to-know" policy, which seeks Increased aircraft traffic would be expected in the vi­ skilled and non-skilled workers would be available to to assess systematically the petrol eum potential of the cinity of Pond Inlet and Nanisivik, and over southern residents of Pond Inlet, Arctic Bay, and Resolute. North. To the present, appro ximately 150 exploratory Devon Island. Bylot Island, Navy Board Inlet, and Residents have expressed a need for the early identi­ wells have been drilled in the Arctic Islands and the Eclipse Sound . Crew transfers and re-supply between fication of specific employment opportunities, and the Davis Strait area. shore' based facilities and offshore drill ships could in­ provision of education programs to allow them to learn volve two helicopters making two to four trips per day, the skills necessary to fill jobs as they become avail­ Geologically, the areas under the waters of Lancaster and a Tw in Otter making three to four trips per week able. Other indirect large job opportunities would also Sound and Baffin Bay offer the best prospects in the from a logistic centre such as Pond Inlet or Nanisivik. region for future exploration: nearly 30 potential hydro ­ Vessel traffi c betw een drillships and shore-based tacit­ carbon-bearing structures have been ldentitied. Up to ities would be light to moderate, involving perh aps 50 wildcat exploratory wells (to demonstrate the pres­ four to five trips per week. Ice breaking of landfast ice ence or absence of oil and gas) and delineation wells would be required in Croker Bay or Dundas Harbour 'J.P. Hea. Submission on Behall 01the Departmenl of Energy. (to estimate the reserve and size of the structure) during July and early August if a shorebase were lo­ Mines and Resources. Lancaster Sound Regional StudyWorkshop, cated there. Onawa. May 1981: 4 p. ILSRS Open File No. 5 -05) .

76 Oil and Gas: Exploration . I>c:;r

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76

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ol otiueto contribute would "

on ol rn ihi various it with bring would Sound

i n a eeomn and development gas and Oil

Implications

"Shipping."

et smnindi h rvossection previous the in mentioned as west,

on n arwSri oadfo onsfurther points from and to Strait Barrow and Sound

ol ei diint h rnisthrough transits the to addition in be would rkrByo udsHror This Harbour. Dundas or Bay Croker

oadfo aietria,lkl obe to likely terminal, marine a from and to

rnistruheastern through transits

hogotteya.Ti ol mean could This year. the throughout

every

siae rdcinrt ol eur n i tanker oil one require would rate production estimated

oc of force

h rdcinpaewudivlea involve would phase production The

hp otransport to ships

tuto grgts swl sanme fcargo of number a as well as aggregates, struction

usata uniiso rvl ad n te con­ other and sand, gravel, of quantities substantial

ol eur aorfreo eea ude,plus hundred, several of force labour a require would ln,adsm emnn tf osn.Ti phase This housing. staff permanent some and plant,

akrtria,a i akfr,agsliquefaction gas a farm, tank oil an terminal, tanker

ld aeoss ulsoae e isrp,a oil an airstrips, jet storage, fuel warehouses, clude

hpetadisalto nst.Fclte ol in­ would Facilities site. on installation and shipment

inwudtk lc nsuhr aaa olwdby followed Canada, southern in place take would tion

l rdcinfclte (Figure facilities production all

hs ol nld h ntlainadoeainof operation and installation the include would phase

ytm uigtenext the during systems

a eepce opoieappropriate provide to expected be can

he asadoeLGtne e week per tanker LNG one and days three

100

to

150

components

Canada's

epeo a on people

Lancaster

20

production

er.The years.

energy

from

23). economic

year-round

on e month per Sound

lanker

southern

l major All

self-sufficiency

20-30

modest

in

development

situated

production Lancaster

benefits.

Lancaster

traffic

ai.The basis.

tanker

Canada. construc­

labour

at

80

summering

or

rtn ht hls umrn arss breeding walruses, summering Whales, white grating

as Animals mals.

ongoing,

movement

and

lrto hs.Hwvr en eua,year-round regular, being However, phase. ploration

environment

rine

The

shipping

e rart the to air or sea

Transportation

n business and

vice

tteln-ae facilities. land-based the at

uiist h eino upysisadbre and barges and ships supply on region the to tunities

The

could

moulting

In

production

nthe on

eedn on Depending

Canada's

n,b euigrlac niprs improve imports, on reliance reducing by and,

contribute

nteoladgsidsr.A industry. gas and oil the in

n edt the to lead and

permanent

diin ohfdrland federal both addition,

terminal

construction

industries

production

collect

long-term

provisions

---=.-"'----

volume

muskoxen.

fsisand ships of

igdsas enn oa er,and bears, polar denning seals, ringed

aac fpayments. of balance

stoemnindi eadt h ex­ the to regard in mentioned those as

could

ol aesimilar have would

othe to

potentially

opportunities

oprt,proa n te taxes. other and personal corporate,

over

hre o ai od hpe by shipped goods basic for charges

ol locet some create also would

production

communities

hs ol rvd oejboppor­ job some provide would phase

increases.

n prto fa of operation and

development

disruption

generate

security

fterylyshm,oladgas and oil scheme, royalty the of

-~---

eidof period a

onshore

fetdwudicuemi­ include would affected

aaiiiso h ilsand tields the of capabilities

o residents. for

of

Development

very

fsaid n mam­ and seabirds of

territorial oI erdcdas reduced be couId

Canada's

20-30

producing

timproved ot

activities

implications

intcn revenues. signiticant

shore-based

er,the years,

governments

employment

upyo oil of supply

ol pose would

flclser­ local of

i il would field oil

technologies

o the for

ma­

yo Island. Bylot

otenand southern

ncatlwtr raogtelnfs c de of edges ice landfast the along or water, coastal in

hr h i slkl to likely is oil the where on and Sound

etlhazard mental

and

n osa aieliIe. marine coastal and

ol oetems eiu hett h offshore the to threat serious most the pose would sub-sea

Large-scale

inldischarges. tional

production

development

blow-out

fthe of

oehzrosta the than hazardous more

Oil

in

eeso ambient of levels

iebecause Iile

os ol o be not would noise

sub-sea

iy oee,the However, sity.

erdt rvosy u ol eo a rae inten­ greater far of be would but previously, to ferred

01

duction

The

Lancaster

Winds,

development

the

probability construction

production

exploratory

rmoeo h aywlsdilddrn the during drilled wells many the of one from

lacilities

production

northwestern

this

hs,o rmsal u rqet opera­ frequent, but small, from or phase,

rd i plsfo aae tanker, damaged a from spills oil crude

southeastern

hs,fo tanker a from phase,

almost

Sound. 01

pollution

h ra ae etsadtehigh the and depths water great the

and

famjrolsilete hog a through either spill oil major a of

underwater

ol raeipcssmlrt those to similar impacts create would

ltom or platform,

n prto fteofhr pro­ offshore the of operation and

rligadascae ciiisre­ activities associated and drilling

continuous

expected anywhere

qimn ihisassociated its with equipment

production

concentrate

Driven

would

afnByaes especially areas, Bay Baffin

_~c.~"

Devon

exploration

"'~

yvral currents variable by

eaptnilenviron­ potential a be

os sue oexist to assumed noise

ob aadt marine to hazard a be to

nthe in

underwater

omloeainof operation normal

sadadnorthern and Island

r osdrdt be to considered are

._~

accident

nteshorelines, the on

~

__

Lancaster

hs because phase

-_

pipeline

uigthe during ""'-'~~'-~ Hunting and trapping patterns may not be directly or Lancaster Sound region. One is at Strathcona Sound ities such as shipping docks, roads, airstrips, and ar­ immediately affected by the physical disturbances of and the other on Little Cornwallis Island (Figure 24). eas for tailings disposal. development and production activities since Inuit do not now hunt off southeastern Devon Island nor in Within these favourable areas, three deposits of eco­ Implications eastern Lancaster Sound during the open-water sea­ nomic significance have been outlined. One is pres­ Direct job opportunities at the mines would exist dur­ son. However, Inuit have not abrogated their interests ently in production at Nanisivik on Strathcona Sound; ing both the development and production phases. in these areas in which they hunted until very recently. another, the Polaris deposit on Little Cornwallis Island, Employment and business opportunities would be It previous hunting patterns that did include these ar­ is being developed; and the third, Eclipse, also on available locally and would tend to increase incomes, eas were resumed, conflicts could arise. Little Cornwallis Island, is a potential producer. create jobs in associated activities, and reduce depen­ (Further description of some mining prospects are dency on government transfer payments. Associated Communities rely upon extensive areas ot land and given in Appendix C.) Exploration activities will tend to activities such as marine transport of supplies to the sea to produce needed country food. Environmental concentrate in those few areas where there is a good mines, or aircraft chartered for movement of rotational disturbances in one part of Lancaster Sound may well possibility of other economically viable deposits being work crews, would improve transportation and com­ affect renewable resources and hunting in other parts discovered. Exploration activities for other base met­ munications and create additional employment and of the region. The resulting indirect displacement of als, coal and uranium will also continue in the region. business opportunities within the region and the ship­ animals or population fluctuations may necessitate ping industry. Furthermore, communities in the region changes in Inuit hunting patterns. The ringed seals, As previously mentioned, the only producing mine at may benefit from the reduced freight rates associated seabirds, and marine mammals in the Arctic Bay and the present time, Nanisivik, will be phased out of pro­ with the additional transport facilities available to the Pond Inlet hunting areas would be particularly suscep­ duction in approximately eight years unless other eco­ mines, depending on the proximity of future mines to tible to such year-round disturbances. Consequently, nomic ore deposits are discovered in the immediate existing communities. the intensity of hunting terrestrial wildlife populations area. The Polaris Project (Arvik mine) may, however, could increase significantly, possibly leading to over­ be the beginning of major mineral development activ­ Direct and indirect revenue through corporate and per­ exploitation. If wildlife scarcity developed for this rea­ ities in the Lancaster Sound region. If the project can sonal income taxes and royalties would accrue to the son or because of pollution, special subsidies or com­ overcome difficult operating conditions, and if lead­ federal and territorial governments. Canada's balance pensation payments to residents of Arctic Bay and zinc prices increase, there is the possibility that addi­ of payments and knowledge of the North would be Pond Inlet could be needed. tional operating mines will come into existence during strengthened through increased northern minerai ac­ the period under review. tivity under Canadian control. Mining Based on mineral exploration activities to date, two If new mining operations were to begin, they would There are, however, environmental concerns con­ areas geologically favourable for the occurrence of require construction of on-site storage and operating nected with mining in the Lancaster Sound region. lead and zinc minerals have been delineated in the facilities, and possibly town sites with associated facil-

81 C'cr'~Ct>~"'Q.,~:::>C Mining: Potential . t>~C:;~ · Exploitation miniere potentiel

~r:>,. D Unknown MlnoroIPoIontioI ....."C;y"l~L:LC·~\>i"\o- _ mlnoral Inconnu lAedendZJnc. """c.~·~r'4"'«~cr ~,.ll.POnbet zinc

"""C;~.",,~:>~~c F8YOUrabieGeology and/orUmltedMlI'l8f"8IReeources• '''Gr·",\c:;,.r~ll>..,y. ProducIng Mine:Nanlstvlk • r.!loo'G'C".. «'lI\~-,...... : ..... ~«.Mine producttve: NanaMk O '""'C;Y~C;",r\o-\>../~. \>\o-G'C'r~"\>../L.·:;). M1noralDepooIIs end F__ GooIogy . ...."C; G1_ rw. _ ...... P!

C'r~,,\>:;),,'LlL\o-C;' ~ ng ~r~,","c~ ~ D Rocks • tIo!lo-c:;e.RochesC8lbOliNN. : Alvlk (..- EdlpM)

__ ""I\c;,...~r'b-,."b-...r= mmMining Pro.pectlng Permtll • A...r...bon..,.....:>..'· Permls de ~ CosI Occurrences • ..,...r~C~ Venuescarbonlteres • lllllJ prospection mlnWne ~ ~-n-e:tL.-LC Qo.oI'L ...... - ...... 5_.10 ...... _ ... _ ......

,.

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_ .... I .. / " ~ j '. •I <, ,-- • -, -. -..,- ....

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.,, _..,-_- .-..._ .~--.. . -~ -:::._ ~ ~J=oI'""- .. .. - -l.W-.o- .. - ...... , ~ __ "d. .~ ,-" .-J o...... e-_o.-. _------~..: ~~ -=-~ ", __ _ _ _ ,. ~==-e---_____ =-'"":"=.=~...:;::..oz::e:__;"'__==__.. ••_•• 'ou ;~~~~;:~:~~ ,:::.~ ~:-: ..:__==t=""-=::L~ '=; :'..:: ~ _ ~'It _ =---'-l _~ .:.-.l-. ;;:.=:t: _ . .... _ _ ... _. _ .._ ,,--e:.-_. ..._. _ .._ ..._ ::.t::'.:==---_..-_---.. ...:=:.- 24

82 Exploration activities may cause some disturbance to standing natural features and critical biological re­ parks is to have each of the natural regions repre­ the currently small populations of caribou and mus­ sources. Parks Canada may set aside national parks sented in the system of national parks. From the iden­ koxen on Cornwallis and Little Cornwallis islands, or and Canadian landmarks. The International Biological tified NACS, potential national parks are selected the few barren-ground caribou now present in the Programme (IBP) has identified a number of significant within each region. Then public feasibiiity assess­ Strathcona Sound area. Disruption of their seasonal ecological sites for protection (Figure 25) which could ments, additional studies, and new park negotiations movements may further endanger the survival of be preserved under existing Canadian legislation. The are undertaken to determine whether or not new na­ these local populations. Canadian Wildlife Service has selected critical wiidlife tional parks should be established, under what condi­ habitats, covering, in part, the same areas as those tions, and having what boundaries. Development and production activities associated with identified by IBP; these could be designated as na­ the Arvik Mine site may cause disturbance of the wal­ tional wildlife areas under the Canada Wiidlife Act. The Three such terrestrial NACS and one marine NACS rus population in McDougall Sound. In particular, Bylot Island Migratory Bird Sanctuary already exists to have been identified by Parks Canada in Lancaster nearby ship movements and low-level overllights in protect the snow goose colony there. Sound (Figure 26). Three additional marine areas of summer may interlere with the use of the Brooman interest in Lancaster Sound have also been identified, Point haul-out site, located about 12 km from the mine Parks Canada activities include the identification and and require further evaluation before their status can site. These activities could also disturb the migratory setting aside of marine and terrestrial areas for pur­ be determined. movements of caribou and muskoxen between poses of preservation, recreation, and interpretation. Bathurst, Cornwallis, and Little Cornwallis islands dur­ This would preclude non-renewable resource develop­ To determine a definitive Parks Canada position for ing the winter. In addition, passing ore carriers may ment and certain other uses. However, it is current the Lancaster Sound Regional Study, a detaiied com­ occasionally disrupt the hunting of sea mammals by Canadian government policy to assess the non-renew­ parison of the three terrestrial NACS located in the Resolute hunters in McDougall Sound. able resource potential of an area prior to the estab­ Lancaster Sound region, plus another in the Foxe lishment of a national park. Lowlands of west Baffin Island, was undertaken by a Social stability could be threatened if families move consultant to Parks Canada in early 1981. The com­ out of the community to take up wage employment at National parks are created according to a nation-wide parison included reference to a variety of factors such the new mines or if famiiy members are absent on ro­ systems planning process undertaken by Parks as natural resource representation and the possible tational employment, as is planned for Arvik in re­ Canada in consultation and co-operation with the ap­ social and economic consequences of establishing sponse to requests by the communities. propriate provincial or territorial agencies and the parks. The study also examined and compared the Department of Indian Affairs and Northern marine areas of interest in the eastern arctic marine Preservation of Natural Areas Development. The process is based on the "natural region. Four of the seven marine areas studied fell There are several programs aimed at designating land regions" concept and includes the identification and within the Lancaster Sound region. The overall con­ and marine areas in Lancaster Sound to protect out- analyses of each region's natural areas of Canadian clusion of the study was that the best area for a na­ significance (NACS). Parks Canada's goal for national tional park proposal would be in the Bylot Island-

83 Ecological Sites O.B.I?)• cr'i~n~C~Q..rncl>~c(~Q..'i~

"~r'r,..c ~ S4gntncant Ecok>glca l SItes . ",&"rc~<; 1:Ifil"-' ..."''Y . lmportanta aIte88cok)giques c r,:;'l IBP DesIgnated Numbers .... .::l-.l

r.'I1Jfen,....LC "..~ ClJ>rl. lancast.. SoundRegional Study , Etudodo Ie...... do LanCllS'''

- ... u ­ .".~~~ ,.,'.

-- , ~ .. ~ .~ I - ~-" -'_." - I -"

. '

=:t. _.,,-_.- ... -' ", = _ _ _ ..'I",.;.,I--=t.d.-;,;o!=:-' .!::-'_L..M''''',._ ~ .. ~=-..:;..--...- ~ -'-' D._...... "'-­ ~ ..:.;.:.:."C:e:-"":\:.-""""=- .= .:.: =-""":"'"...::- - '--L~ .-l--- ...... " _K_' 2 --~ """"",!\rrd ;~:~ ··~:~:·~ .. ~ i:-: ~ ':'_ . I _._----­ ;;=:=::c::::==~-=- -=.;..=~:.:;:,':.."C"_ _ .. _ I...... lI·_ I ...... __ ----::.c:.:=-,,=---::-...:==.-_- _ .._ o.- c:r.- e-. _ _ • • .- ,. .. _ ----- _..- 25 84 ~:>C"'"n.~"rc~drr~"rc. Parks Canada's Areas of Interest • bQ.,C~ b~c;Q.,c; Regions d'interet de Pares Canada r=l Terres1rial Natural Areas of Canadian Significance. JlLI1 C ,,!.o-'i...... :>c .... cr~'J..\J c. R6gions B teerestres netureuea d'importance nationa le c ~"' r.::::INatural Site of Canadi an Significance • '-..'i'::>C .....c rt> 'J r '\.J • Zones naturelles d'imporlance W natIonale

Manne Natural Area of Canadian Significance. cn. tl>r ..1,<;...<;'::><: It...c r l>'J r 'l..Jc. Regions O martnes naturelles d'lmpo1tance naliona~

"I>i"'-,",'iCI>"'I!L~ mnnPrelim inary Marine Areas 01Inlerest. "i Cn.I>"i'. Regions Wllll pr611rnlnalres d'lol'r ~6! marin ...... , Sound '''''' CIl.J»LC ...... Ch"

~Iude JV:~~ ;" .... "..~ _ -... Study • de Ia _ cO>"'"de I.-""l "' -- . 11'\ \; J i'llillWlllllIlllllJlIIIIIIIIII " e, _. -- 1 I

,

>, \') .-

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f I" - -f -- I I I ~ii\ I , , i ; ,r Ball", llolIrld r ? ( -- -s , \ ' J ""'/~"'."

_ .,.,00>...... -~ ~ _ R. , '...... ,...,,_ _ ': 1 &...I .• ' ,, 1::"'..:::::::.,,_ ...... 5E:::5"'::e.-:.-""'T-_ =:.-==._,._ .._ ------a Dot. "'n.. =..-:-~=~~'C::=__:__===__;.. ~ - - e:;r=--=--=t.:--.:.-:~"--.,...~. .-;­ 7. L~ _-- -_ '_ = 1 ' "'.H_dun_ 'W ::-=o;:c.==:t:::r'-=-"::.:.'= ;~':."'C" ~ """"'"' ' .l. t ..... T ' _ _ z:::==C"'~ -:-_'"= :.:l:=:'.:.='" -----_.-.-~::=-"=-~...=~- __ ,t _._..-_-_._---_._-_..------_..- 26 85 Eclipse Sound area with combined terrestrial and ma­ Lancaster Sound is also a potential world heritage site mitted itself to the protection of siles considered to be rine environments. The combination of highly ranked and could be designated under the Convention of universal significance. marine and terrestrial environments was not equalled Concerning the Protection of the World's Cultural and elsewhere. Natural Heritage.' The recent World Conservation Parks Canada is prepared to implement measures that Strategy, prepared by the International Union for the will make the national park concept more suited to Parks Canada is initiating a new program called Conservation of Nature and Natural Resources northern areas. Renewable resource harvesting in na­ Canadian Landmarks. A Canadian landmark would be (IUCN), includes Lancaster Sound in a biogeographi­ tional parks by local Inuit would be the subject of an area identified on the basis of its significance and cal province where establishment of protected areas agreements to be worked out between Parks Canada uniqueness both nationally and internationally. These should have high priority. and the native people. Generally, food hunting and sites would generally be smaller than NACS. Prince domestic fishing traditions would be honoured, but Leopold Island is of interest to Parks Canada as a po­ Not all areas of biological or ecological importance sport hunting would not be permitted. Controlled sport tential Canadian landmark. have been included in existing preservation proposals. fishing of naturally regenerating populations of native Some areas such as the southern end of Admiralty species could be permitted within parks unless there The selection of IBP sites is a separate undertaking Inlet and the Steensby Peninsula, and the coastal was a conflict with local native use. Non-renewable from the Parks Canada program. Sites that have been waters of northern Brodeur Peninsula, are biologically resource development would be constrained in parks identified include those with unique plant associations important areas, but so far have not been identified for and nature reserves. and/or rare or endangered bird and mammal popula­ possible protection by any of the above programs. tions and those that are critical breeding, feeding and Tourism-related activities would be expected to ex­ staging habitats. These sites would be set aside to Implications pand with the development of parks, creating employ­ protect wildlife, to conduct scientific research, and to Allocation of selected parts of the region as national ment and business opportunities for local Inuit. As fur­ ensure the continuance of unique ecosystems and parks and other types of conservation lands could ther outlined in the following section, such activities ecosystem processes. There would be no encourage­ serve to preserve significant natural, cultural, and his­ could include managing tours, outfitting, quidinq. pro­ ment of tourist or recreational uses of these sites. toric resources of national importance. In some cases, viding transportation and accommodation, and selling such action could aid Canada's national and interna­ arts and crafts. As has been the experience with other tional obligations to preserve representative and northern parks, the number of park visitors would be unique areas. For example, the International expected to increase steadily from year to year. Agreement on the Conservation of Polar Bears and the Migratory Birds Convention commit Canada to A possible consequence of increased tourist activities "Ihis convention was adopted by the UNESCO member states at the 1972 GeneralConference in order to give international protec­ protect the species involved. As a signatory to the is, however, that they could cause some degradation tion to cultural and natural areas of worldwide importance. Canada Convention Concerning the Protection of the World's of sensitive habitats and detrimental impacts on wild- acceded to this convention on July23. 1976. Cultural and Natural Heritage, Canada has also com-

86 rr

life populations. To eliminate such threats, land use climbing could be exciting adventures on Devon, Moreover, if tourism could be extended over a longer zoning and other strict controls would be applied Bylot, and northern Baffin islands. Seals, whales, polar period of the year by means of off-season tours or within parks. bears, and icebergs could be viewed from small boats other activities, jobs and other economic benefits travelling the coastal waters of Eclipse Sound and could continue for most of the year. The designation of a number of potential preservation Navy Board Inlet. Historic sites such as the camps areas, together with a program for assessing their re­ and cairns of explorers and the ancient Thule settle­ Regardless of the season, the production and sale of source potential, may require increased government ments are also potential tourist attractions. skin and fur handicrafts, bone and stone carvings, or expenditures. Areas may, however, be tentatively set local souvenirs could offer steady employment and a aside for protection purposes prior to carrying out de­ Industrial facilities and operations such as mine sites, source of cash income for native artists, crafts people, tailed evaluation of their resource potential. oil and gas production bases, harbours, and ports distributors, and store owners. Local co-operatives could also be of interest to tourists, especially in re­ and small businesses could be encouraged by incen­ Tourism and Recreation mote areas where new engineering technologies are tive grants or loans. Such measures would help to Within the Lancaster Sound region today, Pond Inlet is featured. Conversely, a major oil spill could produce ensure that the tourist industry did not become domi­ the only community with an active tourist business; serious and long-lasting damage to the pristine physi­ nated by non-resident commercial interests. arctic char fishing is the main attraction at nearby cal environment and abundance of wildlife on which Robertson River. Some travellers visit Bylot Island and tourism in the Arctic is based. Arctic tourism is relatively compatible with community other mountainous areas for climbing, hiking, and life and preferred Inuit lifestyles. In addition, it is an sightseeing during the summer months. Interest in Promotion of arctic tourism would have to be directed industry that the Inuit could largely control and one "package tours" has grown considerably in recent toward people interested in special or unusual experi­ that probably has a longer life span than that of the years and some tour packages within the Lancaster ences. It would therefore be a mistake to confine such currently envisaged non-renewable resource extrac­ Sound region are already available. promotion to southern Canada, particularly since even tion projects. A flourishing tourist industry could thus now most visitors to the Canadian Arctic are contribute to long-term community stability and In the hope of increasing tourism in the future, the Europeans and Americans. security. government of the Northwest Territories is studying new tourist promotions that may one day be imple­ Implications There are, however, some environmental concerns mented. Natural history tours involving ship excur­ An important benefit of tourism in the region would be associated with an enlarged tourist industry. For ex­ sions, aircraft overflights, and observational camps an increase in job opportunities. Employment for resi­ ample, overfishing of arctic char populations by tour­ would focus on the spectacular scenery and wildlife dents from tourism and recreation could include posi­ ists could result unless the fishery is carefully man­ areas of Admiralty Inlet, northern Bylot Island, tions as managers, tour guides, cooks, park attend­ aged through catch limits and seasonal restrictions. Creswell Bay, the Devon Island ice cap, and other lo­ ants, and boat and snowmobile operators. Many Locales of domestic fishing would often be the same cations (Figure 27). Glacier skiing and mountain related jobs would also be based in the communities. as those favoured by tourists so that integrated man-

87 crt>?~~C:<1::>'ibCt>~"'a.. Tourism: Potential . NJ<1'i~<1,.1~"J<1'iI\.,.) 'ib::>C • Tourisme: potentiel

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..,-_.- _ ~ ..-=.:.=:=- .._- ...... _ ..._ " ...... ~ '""'-'..,..!z,IJ-I -" _~ '1 - -'I.l..oi .- ...... __ ._-- _ ==:::._..- _---- .­ 0...... "•• ~- -==-~"'l:.~""'-"ror::..~-e-._ __ 'NlI =-'"';;"".:.=.:.::~~'C:c::...~-=--:..--- "I. ._ ~~ -L...... L...... !=-6 -- ­ .. =====--=-- =--= ==~....:::L"C.:.'~;.:,::;:.."!;" . -: ~~ ~ a._e.."'WIiC=___'..-I- - -=::-::==---::-...:=-:--- -_.------1-.~..,j,-=;.:...... ! ====__;::-_'"'=:.:e::::.:.. - -_...-'''''--<-_ - _.._ ._ ------_ ..- ._- 27 88 agement of fish stocks would be needed to ensure the activities or major oil spills, the loss of access to hunt­ To keep pace with the expected needs of this popula­ long-term viability of both domestic and sport fishing. ing areas through the creation of conservation lands, tion, more complete use of marine mammals such as and increasing hunting and fishing pressures, resulting narwhal, beluga and walrus will likely be necessary. Care would also have to be taken to ensure that ar­ from human population growth, are all factors to be Intersettlement trade of the products and by-products cheological sites were not disturbed or destroyed, ei­ taken into account. of the hunt could provide a partial solution to the pre­ ther by tourists or by residents wishing to secure arti­ sent incomplete use of resources. facts for sale to tourists. Implications Until recently, Inuit hunted over a much wider area of Additionally, schemes to harvest alternative food spe­ Hunting and trapping by Inuit would probably be little land and sea than they do at present. This previous cies such as arctic cod could be instituted. Co-opera­ affected by expanded tourist activities. At present, range included most of Lancaster Sound itself. Inuit tive projects by Inuit and government, including the non-residents are entitled to hunt a few species such have never abrogated their interests in these areas development of appropriate harvesting technologies, as the polar bear, but only under very restricted condi­ and identify them as ones that have the potential to be would be needed to make such schemes successful. tions. Special care would, however, be required to used again for hunting, fishing and trapping. reduce possible conflicts between sightseer-photogra­ To ensure sustained yields of caribou, a preferred phers and Inuit during the annual hunts. Even if some young Inuit leave the area permanently food species, careful management would be required. to seek opportunities elsewhere, hunting pressures on Immediate steps would have to be taken to determine Hunting, Fishing and Trapping the fish and wildlife resources near the communities accurately herd sizes and sustainable harvest levels Hunting, fishing and trapping are expected to continue will increase as the human population continues to on north Baffin, Somerset and Prince of Wales as integral parts of Inuit lifestyles in the Lancaster grow. Some species may become locally or season­ islands. Sound region. Levels of wage employment, where ally scarce, although one preferred species, the ringed available, will probably increase and pay for the higher seal, can probably withstand greater hunting pressure The economic viability of trapping and hunting of fur­ costs of sophisticated equipment such as snowmobi­ because of its abundance throughout the region. An bearing animals is affected by unpredictable fluctua­ les and alternative methods of travel, such as aircraft increase in the use of outpost camps and chartered tions in fur prices. Floor prices on furs to cushion the charters. A growing number of Inuit may also seek aircraft may result in larger harvests of animals in ar­ northern economy against these fluctuations may be employment outside the region for varying periods to eas remote from the settlements. necessary and should be seriously considered. maintain current I~estylesbased on a combination of hunting and employment. "Country food" will continue to be important to the The establishment of parks and reserves may limit Inuit of the Lancaster Sound region. The projected Inuit hunting in certain areas. However, by protecting The major issue related to hunting, fishing and trap­ growth of the Inuit population could require a substan­ important wildlife habitat, such reserves would help to ping is the continued viability of these activities. The tial increase in current harvests by the year 2000. maintain game stocks in the region, thereby assuring potential loss of habitat through incompatible industrial continued renewable resource harvesting for the Inuit.

89 In fact. if the Inuit lifestyle in the Lancaster Sound re­ gion is to be based on a combination of resource har­ vesting and wage employment. increased efforts for the conservation of wildlife resources will be vital.

Government assistance will be required for effective management to prevent environmental degradation, to help develop new harvesting technologies and anerna­ tive food uses. and to market by-products of the hunt.

90 .. ""If

Appendix C Existing Projects and Current Proposals for Non-renewable Resource Exploitation and Transportation

tined for the Canadian market, but it has been pro­ Hydrocarbon Transportation Proposals for the Numberof 200 000 DWT Northwest Passage posed that twice the equivalent volumes should be Year arctic crude carriers Various proposals have been made for year-round released to the United States market from other marine transportation of oil and natural gas through Canadian sources in order to pay for the project. An 1985 1 the Northwest Passage. Although these hydrocarbons Environmental Assessment Review Process (EARP) 1986 1 originate outside the Lancaster Sound region, their panel carried out hearings on the project and con­ 1987 3 transport has implications for planning future uses of cluded that it was environmentally acceptable pro­ 1988 1 the region. The details of each project are not com­ vided certain conditions were met. The National 1989 1 pletely known, however, and may be subject to Energy Board expects to hold hearings in early 1982. 1990 4 change because of technological advances or other 1991 3 considerations. Dome Petroleum Limited recently outlined plans for 1992 3 the construction of 110 new vessels over the next 15 1993 3 1994 The Arctic Pilot Project application has been jointly years.' Included in this planned projection are 25 arc­ 3 1995 2 filed by Petro-Canada, Dome Petroleum, NOVA (for­ tic crude carriers of 200 000 DWT (deadweight merly Alberta Gas Trunk Line Company Limited), and tonnes) capacity to transport oil. If oil production com­ Melville Shipping Limited. This pilot project would in­ mences in 1985 it is expected that these carriers Total 25 volve construction of a natural gas pipeline, barge­ could provide delivery of one million barrels per day mounted storage and liquefaction facilities, and tanker by 1990 to southern markets. Ship delivery require­ transport of liquefied natural gas (LNG). The system ments during this period are reported as: Trans-Canada Pipelines Project, for which an applica­ would use a 56-cm diameter pipeline to transport gas tion is expected in 1980, would involve a 77-km long 160 km from the Drake Point field on Melville Island to pipeline on Ellef Ringnes Island, natural gas liquefac­ Bridport Inlet on the Island's south coast. At Bridport tion facilities on King Christian Island, and three Inlet, the gas would be liquefied and shipped by tanker 75 000 deadweight tonne vessels of Arctic Class 10 to regasification facilities in eastern Canada. Two ice­ ice-breaking capability for year-round operation. breaking Arctic Class 7 tankers of 135 000 tonnes Project cost has been estimated at $2.4 billion (in with a capacity of 139 909 m' (880000 barrels) would 1984 dollars). The origin of the gas would be Ellef be built. They would each make 14 round trips per Ringnes Island, King Christian Island, and other year. The system should be capable of moving sources, but its destination is uncertain at present. 7 million m' (250 million cubic feet) of gas per day. 'Statement read by M.S. Todd of Dome Petroleum Ltd. at the Joint The project's proponents, Trans-Canada Pipelines and Project costs are estimated at $1.76 billion and project Industry-Government Workshop, Frontier Oil and Gas - The Decade Dome Petroleum, have indicated that project construc­ start-up is planned for 1986. The gas would be des- Ahead, Montebello, Quebec. 1981 tion might begin in 1986. One of the routes being ex-

91 amined passes through Wellington Channel, Barrow 11 million m3 (400 million cubic feet) of gas per day drilling has yet occurred. Norlands applied for permis­ Strait, Prince Regent Inlet, and through Fury and would be transported. The system capacity could be sion in 1976 to drill an exploratory well, but their drill­ Hecla Strait to Foxe Basin. rapidly expanded by increasing the number of tankers ing program was deferred by the government, on the to 20. Globtik indicates the cost of transporting recommendation of the EARP panel that reviewed the Seatrain is an American scheme for moving oil from Prudhoe Bay gas by tanker would be $11 billion com­ application in October 1978. An application is ex­ Alaska's North Slope to east coast markets via the pared with $17.5 billion for the planned Alaska pected from Petro-Canada in 1983 to drill three or four Northwest Passage, using a fleet of three Class 8 ice­ Highway Pipeline. exploratory wells in western Baffin Bay and eastern strengthened tankers. Initial estimates call for each of Lancaster Sound. Drilling for both programs would these tankers to make an average of 15 round trips The United States Coast Guard has recently outlined involve dynamically positioned drill ships operating annually. plans for an early test voyage in winter through the during the open-water season, and both operations Northwest Passage. The planned dates for these tests would entail marine, land, and air support. Globtik Tankers Ltd. has proposed another American are 1983 or 1985 using the USCG heavy icebreakers scheme, which would carry Alaskan oil to the United Polar Star or Polar Sea. The principal characteristics Mining States east coast via the Northwest Passage, using of the Polar Sea are as follows: The 13000 tonne ship Commercially viable lead-zinc and iron ore deposits ice-strengthened tankers in the 350 000 deadweight is designed to ram through ice up to 21 feet (6.4 m) have been identified in the Lancaster Sound region. tonne range. No information is available on the ice­ thick and to operate continuously through 6 feet breaking capability of the vessels. Each of these huge (1.8 m) of ice at a speed of three knots (5.5 km per Nanisivik, a lead-zinc operation located at Strathcona tankers would be capable of carrying 397 469 m3 (2.5 hour) according to a recent Coast Guard document; Sound on Baffin Island, began production in October million barrels) of North Slope oil to Conception Bay, the ship's three propeller shafts are turned by either a 1976. The mine produces 150 000 tonnes of ore an­ Newfoundland, where it would be transshipped in diesel-electric or gas turbine power plant; the diesel nually, which is concentrated on site and stockpiled smaller tankers to United States ports. The initial com­ electric plant can produce 10 000 shaft horsepower for shipment during the open water season. With plement of six tankers would give a system capacity of and the gas turbine plant 60 000 shaft horsepower; proven reserves of about 8 million tonnes, the mine 79493 m3 (500 000 barrels) per day; the fleet would however, both modes of power cannot be used has an expected life span of 12-15 years. The opera­ be increased to 24 tankers with a corresponding in­ simultaneously. tion employs approximately 225 persons, and sup­ crease in system capacity. ports a permanent community of about 325 people. Hydrocarbon Exploration Associated facilities include airstrips and a marine Globtik Tankers Ltd. has also advanced the concept of The offshore area of Lancaster Sound contains geo­ terminal. transporting liquefied natural gas from Alaska and the logical structures with significant potential for oil and western Canadian Arctic, by way of the Northwest gas. Three companies - Norlands Petroleum, Petro­ The Arvik mine (Polaris deposit) is located on the Passage, to American and eastern Canadian markets. Canada, and Shell Canada - hold the oil and gas per­ southern part of lillie Cornwallis Island. With ore re­ Using four Class 10 ice-breaking tankers, mits to approximately 3.2 million ha. No exploratory serves estimated at 23 million tonnes, Arvik will have

92 a life span of at least 25 years. It will be the eleventh largest lead-zinc producer in the world. Preliminary construction activities are currently under way and the mine is expected to begin operation in 1982.

Cominco's present plans call for the production of 2 050 tonnes per day, to be concentrated and stock­ piled for shipment during open-water season. The mine will employ about 240 persons who will be ac­ commodated in bunkhouse facilities. No permanent community is planned. Although only the Polaris de­ posit is at present under formal development consider­ ation, the Eclipse deposit, located on the north end of Little Cornwallis Island, also contains significant amounts of lead and zinc. Future development of the Eclipse as well as other adjaCent deposits is a possibility.

The Mary River iron ore deposits have been identified on Baffin Island, south of Milne Inlet. They contain approximately 130 million tonnes of high grade ore. Although exploratory, metallurgical and economic work has been done, no current plans exist for the development of these reserves.

Coal mining was carried out by the Inuil of Pond Inlel at two separate mine sites on the Salmon River unlil 1964. In the decade prior to the start of the annual sea lift, an average of 125 tonnes of coal was mined each year. As oil and gas prices continue to rise, coal mining may well resume as a source of local energy at reasonable costs.

93 Appendix D Study Organization and Methodology

Study Organization In addition, the departments of National Defence and The working group's task included gathering and sum­ The Lancaster Sound Regional Study is a project of External Affairs are represented on the committee by marizing all available information relevant to the pro­ the Northern Affairs Program of the Department of permanent observers. ject and analyzing marine and land use patterns. This Indian Affairs and Northern Development (OlAND), involved the compilation of a data base, consisting of undertaken in collaboration with the federal depart­ The responsibility for the initial part of the study (data a preliminary data atlas and of 12 background reports ments of the Environment (DOE), Fisheries and base and draft green paper) was given to a working (see Appendix E for a complete listing). . Oceans (DFO), Energy, Mines and Resources (EMR), group composed of the following members: and Transport (DOT), and the government of the The working group also prepared an initial draft text of Northwest Territories (GNWT). Because of the inter­ H.J. Dirschl, OlAND - Project Manager the green paper, which was reviewed by the steering departmental nature of the study, a two-tiered organi­ D. Bissett, OlAND - Socio-economics committee. The recommended revisions were then ini­ zation has been set up comprising a steering commit­ B.J. Britton, GNWT - Socio-economics tiated by the Project Manager, H.J. Dirschl, who also tee and a working group. The steering committee, J.A. Dobbin, James Dobbin Associates Ltd., Toronto ­ was responsible for the final editing of the text. made up of representatives of these agencies, gives Coastal and ocean planning, Individual members of the working group contributed general direction to the study. Membership of the A. Geddes, DOT - Marine transportation substantially to the revision and finalization of specific committee is as follows: B.A. Gibson, OlAND - Legislation and regulations parts of the paper, and provided comments on the J.T. Inglis, OlAND - Terrestrial biology manuscript as it was being edited. Director General, Northern Environment, OlAND ­ SA Kanik, OlAND - Non-renewable resources Chairman J.S. Loch, DFO - Marine biology Following the public review of the draft green paper, Director, Northern Economic Development, OlAND D.C. McKay, DOE - Climatology updating and revisions were undertaken and the final Director, Northern Environmental Protection, OlAND G.G. McLean, DOE - Preservation of natural areas green paper was written by H.J. Dirschl, A.M. Ault, Director, Major Projects Assessment, OlAND J.N. Parker, OlAND - Regional economic planning and H. Mills. J.T. Inglis assumed responsibility for map Director, Non-renewable Resources, OlAND B.R. Pelletier, EMR - Geology and geomorphology revisions, while K. Harper updated the socio-economic Assistant Director, Renewable Resources, Northwest D.B. Smiley, DFO - Oceanography and renewable resources information. Territories Region, OlAND Secretary of Executive Committee, GNWT Consultant and support services to the working group Methodology Director General, Western and Northern Region, DOE were provided by: The Lancaster Sound Regional Study was organized Chief, Parks System Planning, DOE into three main phases. The first phase involved the Director, Special Projects, Coast Guard, DOT A.M. Ault - Environmental planning preparation of the draft green paper with its associated Chief, Ocean Science Affairs, DFO James Dobbin Associates Limited - Coastal and ocean maps and reports; the second, the public review of the Chief, Marine Habitat, DFO planning draft documents; and the third, the preparation of the Head, Office of Environmental Affairs, EMR K. Harper - Community liaison and socio-economics final green paper, including the incorporation of the Co-ordinator, Renewable Resources Planning, T. Lee - Administrative assistance results of the public review. OlAND - Secretary H.M. Myers - Research assistance N. Saab - Secretarial

94 ~ .....-~" ..,=-~~.-

Phase One: Preparation of the Draft Green Paper paper. These documents were distributed in Inuktitut the overlays were combined to arrive at composite as well as the official languages. They were made maps, illustrating physical environmental characteris­ Data collection available for reference to interested agencies and in­ tics, critical habitats, resource harvesting and com­ stitutions, the general public, and the residents of the mercial activities in ice-covered and open-water During the first phase of the study, working group region for their review and comments. seasons. members compiled and summarized all available infor­ mation relevant to the project. As a first step, back­ Data analysis Analyzing Potential Activities: Members of the working ground reports were prepared on the following topics: group proceeded with the analysis by considering po­ selected physical characteristics; selected biological Approach: Following the compilation of the data base, tential future activities. Projections of the nature and characteristics; socio-economic characteristics and existing and potential activities in the region were ana­ scope of activities such as shipping, oil and gas explo­ conservation interests; non-renewable resources and lyzed using a variety of methods and tools. A system­ ration and development, mining development, and transport; and jurisdictions and legislation (see Appen­ atic mapping and planning approach, developed by preservation of natural areas were prepared for the dix E for complete listing). James Dobbin, was used by the working group to years 1980-2000. Changes in the environment, the examine the relationships among biolugical, physical, economy, harvesting patterns, and the communities Concurrently, information on the Lancaster Sound re­ and socio-economic factors, and potential activities as a result of each activity were identified by relating gion was also summarized in map and written form in within the Lancaster Sound region. The approach also the future activities to the existing regional framework. a preliminary data atlas with accompanying map de­ called for the preparation of map overlays. These Areas of likely conflict were highlighted when overlays scriptions. This atlas contains 83 thematic maps at the overlays provided a flexible and efficient means of us­ representing potential activities were superimposed scale of 1:2 million. The maps deal with important ing selected information from the data atlas to identrty upon the regional framework maps. A further analysis coastal and oceanic processes, animals and their hab­ and illustrate key features of the region, to verify or suggested key issues to be addressed in decision­ itats and functions, resource harvesting areas, and test certain assumptions about the region, and to re­ making on the future use and management of the commercial activities. They also illustrate potential fine the analyses. In some cases, the mapped and region. activities in the region over the next 20 years, such as written information was sufficiently detailed to allocate shipping, hydrocarbon exploration, and the establish­ weightings in various colour intensities to reflect the Data synthesis ment of parks and reserves. The atlas was distributed relative importance of specific data, e.g., critical hab­ in draft form to allow for incorporation of new data itats for various animals. The approach also enabled The working group examined current government poll­ obtained during the public review phase. members of the working group to consider character­ cies and various perspectives in regard to northern istic seasonal patterns. development. From this review, four questions about The information summarized in the background re­ future directions were selected: ports and presented in the preliminary data atlas pro­ Establishing the Existing Regional Framework: During vided the background for preparing the draft green the preliminary analysis by working group members, • Should new major industrial development be defer-

95 red until safer technology and greater understanding green paper in February 1981, all interested persons made to the regional framework and the potential ac­ of environmental, social and economic relationships and organizations were given an opportunity to dis­ tivities described in the draft green paper. A clearer are available? cuss the issues and possible directions for the future description of the issues has been possible and a set of the Lancaster Sound region. Community meetings of planning considerations has been identRied. • Should parks and reserves be formally designated were held in Arctic Bay, Grise Fiord, Pond Inlet, and Resource-use options and alternative arrangements before new industrial development is allowed? Resolute in April 1981 to provide a forum for discus­ for planning and management were developed to facil­ sion by the residents of the region. These meetings itate concrete planning and decision-making steps for • Should shipping be expanded at this time to in­ were chaired by H.J. Dirschl, who was accompanied the future of Lancaster Sound. clude year-round transportation of oil and gas? by members of the working group.

• Should there be a determined program to explore During May 1981, workshops were held in Resolute and develop the resources of the Lancaster Sound and Ottawa to permit community representatives, pub­ region? lic interest groups, industrial organizations and the general public to contribute to the discussion. The Phase Two: Public Review Process workshop at Resolute concentrated primarily on re­ The second phase of the Lancaster Sound Regional gional issues, whereas the Ottawa workshop had a Study was recognized as an essential component of wider, national focus. Both workshops were chaired the development of the green paper. It began with two by Peter Jacobs, Vice Dean of the Faculty of newsletters, circulated in January and May 1980. Environmental Design, University of Montreal. Informal northern community meetings by working Professor Jacobs' report was distributed in draft form group members in March and April 1980, familiarized to the working group and to workshop participants for the residents of Lancaster Sound with the study orga­ information. It is being published in English, French nization, its purpose and process. An information bro­ and Inuktitut as part of the documentation of the chure, released in the fall of 1980, initiated the public Lancaster Sound Regional Study. review process on a nationwide scale. A member of the working group visited the Inuit communities in the Phase Three: Preparation of the Green Paper Lancaster Sound region during the fall and winter of The third phase of the Lancaster Sound Regional 1980-81 to explain and discuss the documents asso­ Study included refinement and rnodlfication of the draft ciated with the study. paper on the basis of input received through the public review process. New data and corrections have been With the official release and distribution of the draft incorporated into the data atlas and amendments

96 Appendix E SupportingDocuments

A. The data basefor the Lancaster Sound Regional 1.21 Minimum Ice Cover: August 20 1.22 Maximum Ice Cover: August 20 Study consists of the following documents: 3.1 Communities 1.23 Median Ice Cover: September 17 3.2 Tourism 1.24 1. A data atlas of 83 thematic maps at scale Median Ice Cover: October 1 33 Shipping: Corridors 1.25 1:2 million with map titles and legends in English, Median Ice Cover: October 29 3.4 Air Transport 1.26 Minimum Ice Cover: October 29 French, and Inuktitut. Descriptions (also in the three 3.5 Archaeological/Historical Sites and Bird Sanctuary 1.27 Maximum Ice Cover: October 29 3.6 Hunting Pre-1974 languages) for each map outline relevance to the 1.28 Ice Drift: Winter 3.7 Polar Bear Hunting study, key information presented, and quality or com­ 1.29 Ice Drift: Summer 3.8 Walrus Hunting pleteness of the data. 1.30 Icebergs 3.9 Seal Hunting 3.10 Whale Hunting Data Maps 3.11 Muskoxen Hunting 2.1 Phytoplankton: Summer Standing Stock 3.12 Caribou Hunting 2.2 Polar Bear: Winter 3.13 Wildfowl Hunting 1.1 Geology 2.3 Polar Bear: Spring and Summer 3.14 Fishing 1.2 Earthquake Epicentres 2.4 Ringed Seal 3.15 Trap Lines 1.3 Physiography 2.5 Bearded Seal 3.16 Mining 1.4 Coastal Geology 2.6 Harp Seal 3.17 Oil and Gas: Permits 1.5 Coastal Geomorphology 2.7 Walrus 1.6 Coastal Slope 2.8 White Whale (Beluga) 1.7 Marine Sediments 2.9 Narwhal 1.8 Rivers and Lakes 2.10 Bowhead Whale 1.9 Mean Annual Rainfall 2.11 Killer Whale 1.10 Mean Annual Snowfall 212 Colonial Seabirds 1.11 Mean Annual Precipitation 2.13 Fish 1.12 Mean Surface Wind Roses 2.14 Vegetation 1.13 Mean Surface Wind Roses 2.15 Arctic Fox 1.14 Surface Water Circulation: Summer 2.16 Muskoxen 1.15 Mean TIdal Range: Spring 2.17 Peary Caribou 1.16 Consolidated Ice Edges: 1964-1979 2.18 Barren-Ground Caribou 1.17 Median Ice Cover: May 28 2.19 Snow Goose 1.18 Median Ice Cover: June 25 2.20 Birds 1.19 Median Ice Cover: July 23 1.20 Median Ice Cover: August 20

97 Background Reports 2. Formal verbatim transcripts of the workshops at 4.1 Tourism: Potential Resolute and Ottawa: 4.2 Shipping: Potential Corridors I. Selected Physical Characteristics 4.3 Shipping: Potential Marine Pollution: Winter Geology and Physiography T-01' P. Jacobs (Chairman), 1981. 4.4 Shipping: Potential Marine Pollution: Summer Climate Lancaster Sound Regional Study: Transcripts of Public 4.5 Air Transport: Potential Ice Climatology Hearing Held in the Community Hall, Resolute Bay, 4.6 Parks Canada's Areas of Interest Physical and Chemical Oceanography NW.T. Prepared by Nethercut and Company Limited. 4.7 Ecological Sites(IBP) May 1981; Vol. 1 and 2; pp. 1-223. 4.8 Mining: Potential II. Selected Biological Characteristics 4.9 Sand and Gravel: Potential Marine Life 4.10 Oil and Gas: Potential T-02 P. Jacobs (Chairman), 1981. 4.11 Oil and Gas: Exploration Terrestrial Vegetation and Wildlife Lancaster Sound Regional Study: Transcripts of Public 4.12 Oil and Gas: Potential Development Hearing Held at Carleton University, Ottawa, Ontario. 4.13 Oil and Gas Activities: Potential Marine Pollution: III. Socio-economic Characteristics and Conservation Prepared by Nethercut and Company Limited. Winter Interests May 1981; Vol. 3, 4, and 5; pp. 224-646 4.14 Oii and Gas Activities: Potential Marine Pollution: A History of Human Occupation Summer An Overview of Socio-economic Conditions 4.15 Representative Oil SpillTrajectories (a): Summer Conservation Interests 4.16 Representative Oil SpillTrajectories (b): Summer 4.17 Sensitivity of Coastal Environment to Oil Spills IV. Non-Renewable Resources and Transport Non-renewable Resources Shipping

V. Jurisdictions and Legislation A Review of International Rules, Federal and Territorial Legislation as it Relates to Use Options.

B. Documents pertaining to the public review phase of the study are as follows:

1. Report on the public review phase by the chair­ man, Peter Jacobs, entitled People, Resources and the Environment - Perspectives on the Use and Management of the Lancaster Sound Region (1981). • File reference codes as assigned by project office.

98 3. Open file of all formal submissions, letter submis­ Formal Submissions sions and material generated by the public review phase: Reference Name Affiliation Code

5-01 • A.H. MacPherson Department of the Environment (DOE) 5-02 Parks Canada, (DOE) 5-03 D. Daae Norlands Petroleums Ltd. and Magnorth Petroleum Ltd. 5-04 G. Thompson Inuit Tapirisat ot Canada 5-05 J.P. Hea Department of Energy, Mines and Resources (EMR) 5-06 C. Floe Cominco Ltd. 5-07 J. Bonus Mining Associationof Canada 5-08 R. Pratt Canadian Nature Federation 5-09 J. Britton Governmentof the Northwest Territories 5-10 B.D. Bowie Petro-Canada 5-11 D.1. Gamble CanadianArctic Resources Committee 5-12 H.G. Lawler Department ot Fisheries and Oceans (DFO) 5-13 E. Atkinson University of Waterloo 5-14 D. Hodgson Department of Transport (DOT) 5-15 B.M. Johansson J.T. Stubbs Dome Petroleum Ltd. 5-16 H.V. Page Alberta Chamber of Resources 5-17 A.M. Pistruzak Dome Petroleum Ltd. 5-18 C. O'Brien 5-19 D. Dixon Carleton University 5-20 V.F. Wetzel Suncor Inc.

99 Letter Submissions

Reference Name Affiliation Location Code

L-01 D. Bissett Department of Indian Affairs and Ottawa, Ont. Northern Development (OlAND) L-02 I. Stirling Canadian Wildlife Service (DOE) Edmonton, Alta. L-03 J. Loch DFO Winnipeg, Man. L-04 H.J. Dirschl OlAND Ottawa, Ont. L-05 A.J. Gaston Canadian Wildlife Service (DOE) Ottawa, Ont. L-06 B. Wiesman University of British Columbia Vancouver, B.C. L-07 R.F.B. Decaen Union Oil Co. Calgary, Alta. L-OB J. Riddick Polar Gas Toronto, Ont. L-09 R.B. Taylor EMR Dartmouth, N.S. L-10 G.G. Runka Land Sense ltd. Burnaby, B.C. L-11 J.J. Straka Shell Canada Resources ltd. Calgary, Aita. L-12 N. Unrau Mennonite Central Committee Winnipeg, Man. Canada L-13 T.R. Allsopp AtmosphericEnvironmentService Downsview, Ont. (DOE) L-14 G.E. Cooper Noranda Exploration Co. ltd. Toronto, Ont. L-15 A. Ruffman Geomarine Association Ltd. Halifax, N.S. L-16 A. Marois National Museums of Canada Ottawa, Ont. L-17 E. Reimer C-CORE, Memorial University St. John's, Nfld. L-1B B. Dixit Dome Petroleum ltd. (APP) Caigary, Alta. L-19 H. Fargey Cominco Ltd. Toronto, Ont. L-20 B.R. Pelletier EMR Ottawa, Ont. L-21 J. Loch DFO Winnipeg, Man. L-22 E. Val Universityof Waterloo Waterloo, Ont. L-23 R. Percey DOE Dartmouth, N.S. L-24 IGALAAQ L-25 J. Riddick Polar Gas Toronto, Ont. L-26 P. Ittinuar Member of Parliament for Ottawa, Ont. Nunatsiaq L-27 Baffin Region Inuit Association Frobisher Bay, NW.T.

100 Material Generated by the Public Review Phase

Reference Name Affiliation Location P-01 H.J. Dirschl (Chairman), 1981. Code Resume of Community Meetings in Resolute, Pond Inlet, Grise Fiord, and Arctic Bay. Kenn Harper, L-28 R. Popko Cochrane, ant. Rapporteur; 21 p. L-29 D. Bosworth New Hamburg, ant. L-30 C. Zarb P-02 P. Jacobs (Chairman), 1981. L-31 S. Adams Gananoque, Ont. Summary of Proceedings: Northern Workshop. L-32 A.L. Collier Canadian Coast Guard (DOT) Ottawa, ant. L-33 C. Salisbury Mississauga, ant. Resolute Bay, NW.T.; May 1981; Margaret Ault, L-34 B. Seaton Castlegar, B.C. Rapporteur; 20 p. L-35 G. East Greighton, Sask. L-36 N. Parkinson Chase, B.C. P·03 Department of Indian Affairs and Northern L-37 R. Batt Verdun, Que. Development, 1981. L-38 G. Willey Caldwell, Ohio Background Material for Southern Workshop L-39 GW. Kirk Truro, N.S. Participants. Lancaster Sound Regional Study; Indian L-40 A.H. MacPherson DOE Edmonton, Alta. and Northern Affairs Canada; 8 p. L-41 J.R.F. Hodgson DOT Ottawa, ant. L-42 J.P. Johnson Jr. Carleton University Ottawa, ant. P-04 H. Mills, 1981. L-43 J. Sprague Universityof Guelph Guelph, ant. L-44 T. Allsopp Atmospheric Environment Service Downsview, Ont. Summary Report: Work Group A. Southern Workshop, (DOE) Lancaster Sound Regional Study; Ottawa; L-45 M. Randall Canadian Labour Congress Ottawa, ant. M. McComb, Rapporteur; 4 p. L-46 M. Amarook Inuit Tapirisat of Canada Ottawa, ant. L-47 R. Pratt Canadian Nature Federation Ottawa, ant. P·05 R. Pratt, 1981. L-48 H. Fargey Cominco Ltd. Toronto, ant. Summary Report: Work Group B. Southern Workshop, L-49 J.D. Barry Tourism Industry Association of Ottawa, ant. Lancaster Sound Regional Study; Ottawa; K. Harper, Canada Rapporteur; 7 p. L-50 G.B. Clarke Tourism IndustryAssociationof Ottawa, ant. Canada L-51 H. Williams Manitoba Naturalists Society Winnipeg, Man. L-52 C. Stephenson DOT Ottawa, ant. L-53 J. McAdam Prospectors and Developers Toronto, ant. Association L-54 SA Kanik OlAND Ottawa, ant. L-55 SA Kanik OlAND Ottawa, ant. L-56 J.A. Carruthers Parks Canada--- (DOE) Ottawa, ant. 101 P-06 T. Garvin, 1981. Summary Report: Work Group C. Southern Workshop, Lancaster Sound Regional Study; Ottawa; A.M. Ault, Rapporteur; 8 p.

P-07 P. Harrison 1981. Summary Report: Work Group D. Southern Workshop, Lancaster Sound Regional Study; Ottawa; R. Engelhardt, Rapporteur; 2 p.

Single copies of individual reports and submissions ­ please indicate reference code - may be obtained by writing to:

H.J. Dirschl, Project Manager, Lancaster Sound Regional Study, Northern Environment Directorate, Department of Indian Affairs and Northern Development, Ottawa, Ontario K1A OH4 Telephone: (819)997-0223

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