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MAGAZINE Dealing the Seal 8 No. 1 Piloting Passages 14 2016 THE CIRCLE The EU & 20 THE EU AND THE ARCTIC

PUBLISHED BY THE WWF GLOBAL ARCTIC PROGRAMME

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Contents EDITORIAL Leaving a legacy 3 IN BRIEF 4 ALYSON BAILES What does the EU want, what can it offer? 6 DIANA WALLIS Dealing the seal 8 ROBIN TEVERSON ‘High time’ EU gets observer status: UK 10 ADAM STEPIEN A call for a two-tier EU policy 12 MARIA DELIGIANNI Piloting the Arctic Passages 14 TIMO KOIVUROVA : wearing two hats 16 – walking the middle path 18 FERNANDO GARCES DE LOS FAYOS The & EU Arctic policy 19 CHRISTINA HENRIKSEN The EU and Arctic Indigenous peoples 20 NICOLE BIEBOW A driving force: The EU & polar research 22 THE PICTURE 24

The Circle is published quar- Publisher: Editor in Chief: Clive Tesar, COVER: terly by the WWF Global Arctic WWF Global Arctic Programme [email protected] (Top:) Local on ice in Uumman- Programme. Reproduction and 8th floor, 275 Slater St., Ottawa, naq, Greenland. quotation with appropriate credit ON, K1P 5H9. Managing Editor: Becky Rynor, Photo: Lawrence Hislop, www.grida.no are encouraged. Articles by non- Tel: +1 613-232-8706 [email protected] (Bottom:) European Parliament, affiliated sources do not neces- Fax: +1 613-232-4181 Strasbourg, France. sarily reflect the views or policies Design and production: Photo: Diliff, Wikimedia Commonss of WWF. Send change of address Internet: www.panda.org/arctic Film & Form/Ketill Berger, and subscription queries to the [email protected] ABOVE: Sarek , Sarek National address on the right. We reserve ISSN 2073-980X = The Circle Park, . the right to edit letters for publica- Printed by St. Joseph Communications Photo: Kitty Terwolbeck/Creative Commons tion, and assume no responsibil- Date of publication: ity for unsolicited material. February 2016. Thank you for your interest in The Circle. Many of our ­subscribers have moved to an e-version. To receive an electronic copy in your email instead of a paper 2 The Circle 1.2016 copy, please write to us at [email protected] and help us reduce our costs and footprint.

TheCircle0116.indd 2 25.02.2016 10.53 THE CIRCLE 1.2016 EDITORIAL Leaving a legacy

THE ARCTIC IS STREWN with the names of Europeans Wildlife products have long provided livelihoods for drawn by the lure of trade and riches -- Dutch explorer Arctic Indigenous peoples, and it is important to ensure , Dane , Britain’s William that their use and trade is based on sustainable practices. Baffin, for example and there are hundreds more. Close The EU can do much to educate consumers on wildlife behind them came fur traders, whalers, gold-seekers and products, perhaps through certification schemes. others who left a legacy of Indigenous oppression and The EU should also enforce compliance of European devastating ecological impacts. businesses operating in the Arctic with international, EU After a couple of centuries of relative neglect, the Arctic and national regulations, as well as with Arctic-specific is once again drawing Europeans and for many of the standards and guidelines to address marine noise, oil same reasons. At the same time, the is at the very spill prevention, , intensity, and fisheries. centre of debates on change as it warms twice as As well, many internationally agreed goals such as fast as the global average and drives global impacts such limiting global temperature rise to well below 2C, halt- as rising sea levels and melting which is opening ing global loss by 2020, up the Arctic and spurring and establishing renewed interest in Arctic resources marine protected and trade routes. THIS TIME THE PEO- areas, will benefit This time, however, the rule of the Arctic region, international law is more entrenched PLE OF THE ARCTIC ARE given its unique in the Arctic, and the people of the BETTER PREPARED TO exposure to cli- Arctic are better prepared to defend mate change and their rights and interests. DEFEND THEIR RIGHTS nature degrada- GENEVIÈVE PONS is As I write this, the European Com- tion. AND INTERESTS the Director of the mission is preparing to release a In this issue, European office of “communication” that is expected to officially set out our contributors examine the renewed WWF. the EU’s interests in the Arctic in the coming years. European interest in the Arctic through WWF provided input to this process that we hope will be the prism of the – the economic and reflected in this upcoming policy paper. political bloc that includes 28 European countries. For example, WWF has recommended more research Alyson Bailes lists some common interests of the Arc- to help understand and predict Arctic change, particu- tic and the EU, while Lord Robin Teverson argues that larly regarding ecosystems, the sustainability of fisheries accepting the EU into its ranks would strengthen the and the transition from fuels (especially diesel) to . Diana Wallis reflects on past policies that renewables for energy production. This should go hand- haunt the EU’s place in the Arctic today. When asked how in-hand with support for investments in alternative socio- the EU can contribute, member of the Norwegian Sami economic models fostering economic diversification into Parliament Christina Henriksen put it succinctly: “Buy sectors other than extractive industries. our products, respect our rights and ensure our future.” The EU should also provide political support for nature This time around, the people of the EU can explore the conservation in the region, and for the creation and Arctic’s potential more ethically and sustainably than management of a pan-Arctic network of protected areas, they did centuries ago. Instead of leaving their names on including areas of particular ecological importance in the , they can leave a legacy of support for the Arctic terms of resilience, communities and spe- environment, and for Arctic peoples. l cies conservation.

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Oceans, Hunter Tootoo told groups to the Arctic Council. sealing the Canadian Broadcasting Arctic Council Heavy fuel oil powers Corporation. “It’s all about almost all the large cargo industry gets opening new markets for our support sought ships that ply Arctic waters. Indigenous seal products.” Unlike other fuels, it doesn’t federal boost The EU had imposed by environmental evaporate but combines a ban on seal products in with seawater and expands THE GOVERNMENT of Canada 2009 causing international groups for heavy in volume. It also sinks and has pledged $150,000 to pro- demand and prices for seal- sticks to anything it contacts, mote Nunavut’s ailing sealing skin products to plummet. making cleanup impossible industry and take advantage In 2015 the EU approved the fuel oil ban as seen during a recent spill of Nunavut’s exemption to Government of Nunavut’s ENVIRONMENTAL GROUPS in Russian waters that killed the European Union’s ban on application for an exemption want the eight circumpolar hundreds of seabirds. seal products. to the ban under the Indig- countries to take a stand on “There’s just no way to The funding is the first enous Communities Exemp- banning the use of heavy fuel respond to it,” said Kevin installment from the 5-year, tion of the EU Seal Regime. oil, considered one of the Harun of Pacific Environ- $5.7 million Certification and This means the Government greatest threats to the Arctic ment, an environmental Market Access Program for of Nunavut will be able to ecosystem. group that works with abo- Seals. certify that sealskins were “We believe that measures riginal communities to pro- “I think it’s a big step harvested according to the are desperately needed to tect the Pacific Rim. between Canada and Nuna- rules of the exemption, there- reduce the environmental Burning heavy fuel oil vut to be able to find differ- by allowing Nunavut hunters impacts from Arctic shipping, also creates “black carbon,” ent ways for marketing our to sell their sealskin pelts and and that a logical place to fine soot that falls on seal products,” Nunavut’s products in the European focus attention is vessel fuel and ice and hastens melting. Member of Parliament and market again. quality,” said a letter from 15 Cleaning up black carbon has the Minister of Fisheries and international environmental been identified as one of the

Proposed Greenland mine lacks crisis plan: WWF

ping before consultation ried out and several stud- Proposed zinc DISASTER PREPAREDNESS and lead mine plans are incomplete or on the mine proceeds. ies were incomplete. Citronen missing for a zinc and WWF found it “very Following WWF’s lead mine proposed troubling that the plans criticism, the Greenlandic Washington Land East in the ’s largest do not follow Råstofde- Cabinet, in cooperation Greenland national park, according partementets Guidelines with the company, Iron- Northeast Greenland to an analysis by WWF- on preparation of the bark Zinc Ltd., decided National Park . The mine in assessment of the effects to publish several of the Mestersvig Northeast Greenland on the environment.” missing reports on Iron- National Park would The guidelines stipulate bark’s website. The area require increased ship- that all studies conducted in question, in the north- ping through an open- should be made pub- east of Greenland, is an water area important for lic. WWF found several environmentally sensitive , , polar reports were not included area which contains one and bowheads. in the consultation docu- of Greenland’s main open WWF is calling for a full ments, other key studies water areas, the North contingency plan for ship- were apparently not car- East Greenland polynya. Ironbark Zinc Ltd projects

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easiest and quickest ways to slow the retreat of Arctic sea ice. Reducing black carbon has been a top priority for the Arctic Council. However, the International Marine Organi- zation which sets the rules for international shipping recently bowed to pressure from countries – such as – which have large merchant fleets that use the fuel. The IMO left the issue out of the Polar Code it adopted last year. “It’s time for the Arctic Council to take the lead,” Harun said. “It would be a very strong message to IMO Photo credit: Igor Shatilo if the Arctic Council were to recommend a (heavy fuel oil) ban.” Zhupanova hydropower plant delayed WWF has been pressing RUSSIA’S Presidential Exec- the territory of Kronotsky affect all species inhabiting council members and observ- utive Office has postponed reserve, a site included in the river’s basin.” ers to include heavy fuel oils plans for construction of a the UNESCO World Herit- The Zhupanova River is in an update to the polar hydropower plant on the age List. a pristine salmon and trout code. The fuel is already Zhupanova River for ten “WWF is very critical of river on the southeast Kam- banned in and years. this project,” says Sergey chatka peninsula that also around the Norwegian Arctic The Ministry of Natural Rafanov, head of Kamchat- boasts brown bears, eagles, . Resources and “RusHy- ka/ ecoregional and other birds and wildlife. dro” – Russia’s key agent in office. “We insisted that There is a small commercial implementing hydropower the project be reconsidered salmon harvesting opera- Last Ice Area and development projects – because there are other, tion at the mouth of the have agreed that the Zhu- much more sustainable river as well as a fly fishing panova HPP construction alternatives. The Zhupano- tourist lodge. One type of Pikialasorsuaq can severely damage the va HPP project – with the fish caught on the Zhupano- unique nature of the Kam- construction of three dams va is a very large rainbow Commission chatka peninsula, drasti- – would annihilate the trout caught on a “fly” that THE PIKIALASORSUAQ Com- cally change the river’s eco- river’s recreational and fish- resembles a mouse. The fish mission – set up by the system and negatively affect ing potential and negatively also eat voles. Circumpolar Council to examine the future of an area of open water between Can- even in the middle of winter, that brought together Inuit to last the longest, so while ada and Greenland – held its providing a critical feeding from Greenland and Canada the polynya is important first meeting in , Can- area for animals, and food to discuss management habitat in winter, the Last Ice ada, in January 2016. This for Inuit from the region. The options for the ice around the Area will be important habi- area, also known as the north commissioners also attended polynya. This area is where tat in the summer. water polynya, remains open a Last Ice Area workshop summer sea ice is projected

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TheCircle0116.indd 5 25.02.2016 10.53 What does the EU want, what can it offer? One of the few things most people know about the European Union (EU) in the Arctic is that it has repeatedly been denied formal Observer status at the Arctic Council – the region’s dedicated organ for cooperation. That may give the impression that one of ’s strongest organizations is still knocking on the door of the Arctic from the out- side. As ALYSON BAILES writes, that is not the case.

THE EU IS ALREADY interlinked with the equally to their northernmost terri- for Arctic catches of fish. It registers and Arctic at many levels: membership, torities and, indeed, to their Extended insures a significant proportion of Arctic partnership, trade, rule-making, and Economic Zones in the Arctic . This shipping and generates an increasing practical cooperation. Whether this EU ‘regulatory footprint’ is particularly flow of tourism into the Arctic lands complex relationship is optimally man- strong in the case of fisheries manage- and seas. also supplies funds aged is a different question. Is the EU ment – on which Greenland and the for cooperative projects from Russia clear on what it wants from the Arctic , while not included in to Greenland through its Northern process, and effective in pursuing it? Is Denmark’s EU membership, also have Dimension regional programme and it working as best it might for a peace- agreements with Brussels – and on cli- other cross-border frameworks in ful, sustainable Arctic future? mate change policy. Northernmost Europe. It spends a large To start with Given the way ‘money talks’ how- and growing amount on Arctic-related ALYSON the facts: three ever, European economic and financial monitoring and research. BAILES is an of the Arctic involvement is at least equally impor- When the EU first began framing an Adjunct Pro- Council’s eight tant. The EU is the leading foreign cus- Arctic policy in 2008-09, it made clear fessor at the member states tomer for oil and gas already produced that its main interest lay in a peaceful University of – Denmark, in the Arctic by Russia and , and Arctic future grounded in law-based specializing in Finland and cooperation. Conflict or even violent Nordic & Arctic security Sweden – are competition around the Pole would be issues full EU mem- bound to spill over southwards, bring- bers. Two more, ing strategic as well as economic risks. Iceland and Accordingly, the EU supports the , as members of the European CONFLICT OR EVEN Council’s current policy of working as Economic Area, belong to the Single normally as possible with Russia on Market and the Schengen Convention – VIOLENT COMPETI- Arctic issues despite the Ukraine-related agreements that make them part of the TION AROUND THE POLE crisis. EU’s single territory without internal Brussels has consistently backed borders or regulatory obstacles for the WOULD BE BOUND TO other goals of the Arctic Council such as free movement of goods and services, environmental protection and sustain- and with a common visa policy. SPILL OVER SOUTH- able economic development, shipping The remaining three, Canada, Rus- safety, scientific cooperation, and the sia and the US, are key partners of WARDS, BRINGING rights of Indigenous peoples. It can the EU in trade, investment and other STRATEGIC AS WELL use its powerful regulatory clout and policy areas. All EU rules and agree- financial incentives to promote these. ments accepted by these countries apply AS ECONOMIC RISKS On other issues, such as its anti-

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TheCircle0116.indd 6 25.02.2016 10.53 Member of the European Union (EU)

Arctic member of the EU

Arctic member of EU’s

Greenland is an Overseas Countries and Territories (OCT) of the EU because of its political union with Denmark. Greenland has some integration with the EU's internal market via associa- tion agreements.Greenlandic citizens have EU citizenship.

Reykjavik Arc tic C ircle

Russia

Lithuania Copenhagen

Amsterdam

Belgium

Paris Slovakia France Slovenia

Rome

Map: Ketill Berger, filmform.no • Source: Wikipedia, Natural

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TheCircle0116.indd 7 25.02.2016 10.53 policy and trade ban on seal products, the EU has sometimes clashed with Arctic interest groups. This was initially complicating its bid for Arctic Council observership, though recent moves have been made for compromise. On fisher- ies, the EU is close to the Arctic Council mainstream in believing that the exploi- tation of new ice-free waters should be delayed pending a full scientific assess- ment. So far so good: but why then is the EU still not seen as a suitable Arctic Council observer? Politically, the latest complication is that the EU economic sanctions adopted during the Ukraine crisis have angered Russia and are, in fact, starting to block off some funding options for Arctic projects. The EU’s problem here is that it has an overall stance towards Moscow in which the Arctic plays only a limited part, and its legalistic nature gives it less scope Photo: Peter Prokosch, www.grida.no than a national government to vary its Inuit hunter feeds his child with still warm from just hunted ring seal, Pond approach in different cases. At least Inlet, Canada temporarily, therefore, Brussels finds it hard to come forward as a clean-handed supporter of the Arctic peace it sincerely seeks. There are also more mundane prob- lems. The EU’s ‘diplomatic service’ (the European External Action Service) Dealing the seal claims coordinating rights over Arctic One issue continues to cloud the EU’s role in the Arctic. The policy, but the more important practi- sealskin trade issue has become emblematic of the Union’s cal fields like shipping, fisheries and failure to maintain the interests of Arctic peoples. Former climate policy development are run by the . Maintaining Member of the European Parliament DIANA WALLIS reflects coherence is a struggle. Moreover, many on the campaign that has haunted EU-Arctic relations. EU nations have yet to take Arctic issues seriously and two of the front-liners – Denmark and Sweden – have mixed AS I WRITE THIS, it is the day after Christ- may not care who legislates, but feelings about possible Brussels inter- mas Day. In many rural communities there is a problem here and it should not ference. , the UK and France in England this day is still marked by be too easily dismissed. This is especially have only very recently defined their the so-called Boxing Day hunt, although true with an entity like the EU, which is Arctic aims. the actual killing of a wild is now very much a legal construct only empow- All this said, further delay over the banned. I have often wondered whether, ered by the Member States of the Union Arctic Council Observership is more in 2008/2009 as the European Parlia- to legislate in accordance with the prin- a symbolic than a practical block to ment’s rapportuer on the proposal for ciples of subsidiarity and proportionality. stronger EU involvement. Much could a Regulation on the Trade in Seal Prod- The main problem with the Regula- be achieved by tighter coordination, ucts, what the feeling would have been if tion on Seal Products, from my point of more flexible funding, and a more sensi- the EU and not our Westminster Parlia- view, was that it was never really clear tive grasp of Arctic partners’ own aims ment had sought to achieve legislation what the European Parliament was and feelings. l which limited fox hunting. Of course, legally trying to achieve, nor why we those who are adamantly against fox were doing it within a legal framework

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TheCircle0116.indd 8 25.02.2016 10.53 was discussed in the Parliament there was huge emphasis on the rights of the Indigenous peoples of the Arctic. Here I thought was a chance to bring this together. The proposed legislation purported to exempt seal products hunted by such peoples for subsistence purposes, but the fact that their products would be associated with a ‘ban’, seemed inevita- bly damaging to any genuine market. I started to formulate an alternative prop- osition based on a labelling regime, thus leaving the market and the informed consumer to decide. Even the ‘ban’ itself would require comprehensive label- ling to maintain so it was not such an unworkable or burdensome alternative. To me it had the merit of offering some sort of lifeline to the fragile Indigenous communities, especially in places like Greenland. More importantly, I thought it better respected the proportionality and subsidiarity requirements that all EU law should meet. Prior to the first vote in DIANA WALLIS committee is the President there appeared of the - to be a broad pean Law Insti- coalition pre- tute and British meant only to regulate the circulation of SEALS HAVE GOOD PR, pared to sup- former Member, then Vice- goods in the European market. It now port this alter- President of the European seems clear, thanks to the outcome of AGAINST WHICH, SADLY, native proposi- Parliament lengthy proceedings in the World Trade tion. However, Organization (WTO), that if Europe- INDIGENOUS PEOPLES animal rights ans do not want seal products in their activists had been busy contacting min- market based on cultural grounds or CANNOT COMPETE isters in capitals and European political sensitivities, then that is their right, as parties. It should also be recalled that long as the prohibition or exemptions to this came in the run-up to European it are applied consistently. more strange given that there is also a Parliament elections in June 2009. However, the European legislative large seal hunt in Namibia, but this was Every committee member had a hotel process was, at the time, less about almost never mentioned as the concen- type hanger put on their door indicating products and much more about hunting, tration was on cruelty in Canada. the pros and cons of each side and later especially the hunting of seals in Canada. When I took the role as Parliament’s every parliamentarian was to receive It seemed from the piles of letters that rapporteur I did so on the basis of a a fluffy white toy seal bearing a label arrived in my office that a very active track record of activity in relation to showing blood and the slogan ‘doomed and competent animal rights NGO had the Internal Market and a huge inter- to die’ even though these white seal instigated a huge campaign. Humane est in Arctic affairs. Indeed, with oth- pups had been protected by EU conser- Society International, which has its ori- ers, I had been instrumental in several vation legislation since the 1980s. gins in the U.S., was very successfully resolutions of the Parliament on Arctic The legitimate aim of the legislation campaigning to get the European legis- issues, as we then thought the EU was was opaque; it was constructed finally lature to regulate an activity carried out edging towards membership of the not as a ‘ban’ or ‘prohibition’ but rather in a third state: Canada. It seemed all the Arctic Council. Every time the Arctic as an indication as to what goods could

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TheCircle0116.indd 9 25.02.2016 10.53 be placed on the EU market; that was those complying with the so-called ‘Inuit exception’. Working out how that exception applies has proved difficult in ‘High time’ EU gets the subsequent legal wrangles. Clearly the legislation was not a conservation measure; the seal populations are not under threat, indeed fishermen will tell you there are too many eating too much observer status: UK fish! If it was an animal welfare concern Gone are the days of the 19th and early 20th century when then seals as wild animals were likely to end up with similar or greater protec- Britain’s Royal Navy ruled the and saw itself as tion than any animals reared commer- the world’s peacekeeper through flying the flag or – on occa- cially in the food chain for consumption sion – using its gunboat diplomacy. Also gone are the days of their meat. If the issue was a cultural one, like the ban on cat and dog fur when British explorers were among the few that first mapped products, then again this seemed at the most remote and inhospitable of our planet. first encounter unbalanced given that While the balances of power have changed, as cats and dogs are family pets in Europe, LORD ROBIN seals are not. There is no doubt, as I TEVERSON points out, geography has not. finally remarked, that seals have good PR, against which, sadly, Indigenous peoples cannot compete. BRITAIN IS STILL the nearest neighbour- Images of sobbing in my ing non-Arctic state. The northernmost THE EU IS A MAJOR office, distraught at what might happen tip of the , the Shetland ­SUPRANATIONAL POWER in their communities, remain with me Island’s ‘Out Stack’ or Oosta, is a mere from the process as does the shocked 320 nautical miles south of the Arctic THAT CAN ACT AS AN silence during a telephone call with a Circle. The Arctic remains a part of the Canadian minister as she began to com- UK’s backyard. What happens there IMPORTANT COORDINA- prehend that a transnational legislature – climate change, pollution, security, in another could intervene in shipping routes, or territorial claims TOR OF EXTERNAL ACTION the commercial activities of her country. – has a knock-on effect on British inter- Aside from the damage to these Indig- ests. enous communities, there was damage This is why the House of Lords took As the committee undertook its to the EU’s credibility as a legitimate the decision in 2014 to set up a select work it also became clear that the UK Arctic actor. There is little doubt in committee to scrutinise the Govern- had wider interests in the High North: my mind that is why the EU, six years ment’s policies for the High North. We London is a global centre of business, on, has not progressed to becoming an set about our task by taking evidence in finance and insurance; it is the head- official observer of the Arctic Council parliament while members visited the quarters of the International Maritime let alone a full member. Of course, Can- , Iceland, Tromsø and Svalbard. Organisation and OSPAR (the Conven- ada’s new government may now take a The impetus for our enquiry was one tion for the Protection of the Marine different view. of change. The Arctic is the region of Environment of the North-East Atlan- The whole process left me wondering greatest transformation on our planet – tic); we have a long history of polar sci- about EU law-making. Of course, if a the fastest rising temperatures, melting ence and expertise from the measure has popular support politi- ice, increasing mineral , the on gas exploration. cians must give way, but it should be start of mass tourism, and opening sea The British Government produced its informed and legal. Also, and routes. own Arctic policy document in 2013. It animal rights should be carefully bal- From a diplomatic point of view, was cautiously called a ‘policy frame- anced. Let me put it this way, I ride Britain may still be a major player in work’ – avoiding the word ‘strategy’ so horses but I would never join a hunt, research and an observer at the Arctic as not to be seen as too bold. But did nor would I want to see the EU legislat- Council. However, its historic activity is this reticence risk sending out a signal ing about such domestic UK matters; at risk of being eclipsed by the welcome of indifference to the rest of the world? even more so if my country were not a interest of more distant nations, not That same year the Arctic Council member of the EU! l least from . expanded the number of its observer

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states with the admission of China, until the ocean’s is far better research should be increased, especially India, Japan, South , Singapore understood regarding thaw and Italy. Instead of being one of four ■■ the UK’s contribution to polar ■■ the fall in oil prices should be an original observer states, the UK was opportunity to pause offshore explora- now one of twelve. tion to resolve the very real environ- Our recommendations were wide THE MOVE TO A PERMA- mental dangers. ranging: ■■ the Arctic ROBIN TEVER- ■■ the UK should appoint an Arctic NENT OFFICIAL ROLE HAS Council should SON is a Liberal Ambassador to coordinate the UK’s BEEN SOURED BY THE continue to Democrat politi- North Polar activities and raise our receive the full cian in the Brit- northern game DISPUTE WITH CANADA support of the ish parliament’s ■■ there should be a moratorium on UK in its work House of Lords fishing in Arctic international waters OVER SEAL PRODUCTS. as a successful Photo: Keith Edkins, Wikimedia Commons

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TheCircle0116.indd 11 25.02.2016 10.53 regional organisation of governance ■■ the USA should ratify the UNCLOS treaty (the United Nations Convention on the Law of the Seas) that will deter- A call for a two- mine the many territorial claims around the Pole ■■ the UK should work to help isolate other wider geopolitical problems. The Crimean annexation took place during tier EU policy the work of the committee but Arctic cooperation needs to continue despite In 2014, the European Parliament called for the formula- wider tensions. tion of a “united EU policy on the Arctic” and a “coherent There were many other recommenda- strategy and concretized action plan on the EU’s engage- tions, not least supporting the robust involvement of the Indigenous peoples ment in the Arctic.” The Council of the European Union of the Arctic. But we also strongly rec- also requested the European Commission to further devel- ommended that the European Union op “an integrated and coherent Arctic Policy”. should at last be given full observer sta- tus at the Arctic Council. However, as ADAM STEPIEN observes, it appears nobody It could be argued that with Denmark, knows how to accomplish such a coherent approach. Sweden and Finland as full members of the Council, and seven other EU states as observers, it is hardly necessary. But SINCE THE END of 2014, the European the EU is a major supranational power External Action Service (EEAS) and the “THE EU ARCTIC POLICY that can act as an important coordina- European Commission have been work- tor of external action: it has one of the ing on a new policy document. The new APPEARS MESSY, UNFO- world’s largest research budgets and it communication is likely to build on pri- CUSED AND INCIDENTAL” is a key player in fisheries management orities proposed in earlier statements, in northern waters adjoining the Arctic. but a more explicit distinction between The EU has been an ‘ad hoc’ observer the two geographic policy spaces – since 1998. The move to a permanent European Arctic and pan-Arctic issues in resource extraction and shipping. As official role has been soured by the dis- – may also be expected. But that may, a result, the EU focused on the Arctic pute with Canada over seal products. however, not go far enough to promote Ocean environment, resources and Now that this has been resolved, it is the greater coherence in EU Arctic activities international cooperation. This focus is EU’s robust reaction to Russia’s inter- and address diverse challenges related still dominant. vention in Ukraine that is proving to be to the EU-Arctic nexus. Therefore, the However, over time the policy encom- the barrier. EU policymakers should consider a two- passed topics relevant for the European There is no doubt that the EU as a tier structure for future Arctic policy. Arctic including regional development, fully-fledged observer would be benefi- These two tiers would be: a general terrestrial transport, mining and the cial to the Arctic’s future and strengthen policy for the Circumpolar Arctic and Indigenous Sámi issues. Actors from the Arctic Council itself. a focused strategy for the European Europe’s northernmost regions had The Arctic Council is young in terms Arctic. The latter would address chosen pointed out that the EU policy ignored of international organisations and has challenges associated with Arctic envi- part of the Arctic, which is inhabited by a good track record of success. It is in ronmental and socio-economic changes, EU citizens and directly affected by EU the interest of all countries, including as they are manifested in Europe’s legislation, policies and programmes. the UK, that the Council increases its northernmost regions. The EU Arctic policy has so far mixed authority and is successful as the Arctic The EU has been formulating its up the two distinct spaces: Circumpolar undergoes continued rapid change. l Arctic policy since 2008. Its interest and European Arctic. That partly con- was originally related to the predicted tributed to analysts’ and Arctic stake- climate-driven, profound environmental holders’ disappointment with consecu- changes such as melting sea-ice, as well tive EU policy documents, which lacked as overblown expectations for a boom concreteness and focus.

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TheCircle0116.indd 12 25.02.2016 10.53 EU policy-making for the Circumpo- The strategy-tier is likely to empha- cracy should be proposed, as they are lar Arctic and European Arctic entails size economic development, as that is unlikely to be established. Instead, dealing with two different sets of issues the approach promoted by many region- the strategy could streamline existing and engaging different stakeholders. al stakeholders. Embedding the Euro- financing, prevent duplications and in Circumpolar Arctic questions are pri- pean Arctic strategy into the general the long-term affect priorities of fund- marily of maritime nature where the EU Arctic policy could help to safeguard the ing instruments. The formulation and is a secondary actor, while European balance with environmental priorities. implementation of the strategy could Arctic challenges are chiefly terrestrial Otherwise, the environment might get also influence general EU sectoral poli- and the EU is there a key player. When lost between the lines. cies, insofar as they have distinct impli- the calls for a “coherent strategy” are There are a number of issues that are cations for the European Arctic. voiced, usually they refer to the Euro- relevant from the point of view of both The two-tier policy requires organiza- pean Arctic space. pan-Arctic cooperation and the Euro- tional adjustments. Currently, the Euro- A solution would be to bring under pean Arctic development. These include pean External Action Service and the one framework two distinct approaches cooperation within the DG Maritime Affairs and Fisheries coor- and organizing EU Arctic engagement (Barents Euro-Arctic Council, where the dinate Arctic policy-making. That would into a two-tier “policy + strategy”. Commission is a full member), cross- continue to be the case for the first tier A Circumpolar Arctic policy-tier border transport networks extending of the EU Arctic policy, where the focus would retain the current set of gen- to Russia and Norway, and pan-Arctic is on maritime and external affairs. The eral, vague objectives. It would include business and NGO cooperation. A two- strategy-tier maritime issues, climate change mitiga- tier policy would deal with these issues should be led ADAM STEPIEN tion, climate and ocean research, earth better than two disconnected policies by the Com- is a researcher observation, involvement in the Arctic - for the Arctic and for Northern Fen- mission’s units in the Arctic Council, and the EU’s role in shaping noscandia. responsible Centre at Uni- Arctic-relevant international norms, Iceland and Norway are the European for regional versity of Lap- such as for Arctic shipping or long- Economic Area members and Norwe- development, land, Finland. range pollution. gian regions are particularly closely transport or He works on Arctic govern- A focused strategy for the European linked to the EU territories. If willing, environment. ance, Indigenous politics Arctic constitutes the second tier. It these states should fully participate in In addition, and the EU-Arctic nexus. would address challenges arising from the drafting and implementation of the establishing He was a co-editor of the Arctic change as they are manifested in strategy-tier. a network of 2014 “Strategic Assess- Europe’s northernmost regions. A short The strategy-tier has to have added national con- ment of Development of list of specific goals or targets would be value in relation to existing structures tact points or the Arctic”. identified together with Nordic states, such as the , a stakeholder northernmost regions and local stake- regional cooperation, and cross-border forum could be holders. Concrete action plans have to programmes, for example Northern considered. be agreed on. All relevant actors need to Periphery and Arctic Programme. No A two-tier structure would allow the commit to the targets and to the imple- new funding mechanisms or bureau- “EU Arctic Policy” to better accom- mentation of actions. modate diverse interests and to make Several possible goals for the strate- a tangible difference in various EU gy-tier could be envisaged. Actors have Arctic-related activities, without causing to jointly address climate adaptation anxiety among Arctic states and other in Europe’s fastest warming region. EU POLICY-MAKING FOR actors. Nevertheless, this is arguably an Among targets could be the North- THE CIRCUMPOLAR ARCTIC ambitious approach. It calls for a more South and intra-regional transport comprehensive way of thinking about networks, digital connectivity, as well as AND EUROPEAN ARCTIC the EU-Arctic nexus and for a different tackling developmental or demographic coordination of Arctic portfolios within problems specific to this sparsely ENTAILS TWO DIFFER- EU services. l populated area. The challenges faced by the Sámi also have to be highlighted, ENT SETS OF ISSUES The opinions expressed here are including energizing traditional liveli- AND ENGAGING DIFFER- based on the author’s analysis pub- hoods in light of expanding resource lished by The Arctic Institute. extraction. ENT STAKEHOLDERS.

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TheCircle0116.indd 13 25.02.2016 10.53 Piloting Arctic Passages Melting sea ice is reviving the centuries-old dream of an Arctic “silk route” connecting European or North Ameri- can ports to Asia. With navigating the Arctic becoming a reality, MARIA DELIGIANNI says European shipowners need more investments in infrastructure and technology.

PRECAUTIONS NEED to be taken to mental protection, as polar shipping ensure safety of life at sea and the sus- grows in volume and diversifies in the mandatory nature that ensures a level tainability of these highly sensitive envi- coming years. This is the single, most playing field. However, we acknowl- ronments is not compromised. While expeditious solution to achieve coordi- edge that more needs to be done and the International Maritime Organi- nation and harmonisation of national anticipate amendments will follow to sation (IMO) remains the primary legislation. strengthen the current provisions. regulator for the shipping industry, the As European Shipowners, we support It is unrealistic to believe that the Arc- European Com- that the risk-based approach followed tic will be immediately accessible as sea MARIA DELI- munity Ship- by the Polar Code will indeed boost the ice disappears. Firstly, an ice-free Arctic GIANNI is a owners’ Asso- level of confidence in the safety and Ocean year-round is false, as sea ice Policy Advisor ciations (ECSA) environmental performance of shipping. will always re-form during winter and on Maritime endorses the As of 2017, we are set to comply with ice properties and coverage will vary Safety, Envi- actions taken by IMO requirements by carrying onboard greatly within the region. There are also ronment and Offshore the European the Polar Ship Certificate stating the many other challenges that shipowners at European Community Union towards adequacy of the vessel to navigate in the encounter such as polar darkness, poor Shipowners’ Associations the development region and the Polar Water Operational charts, lack of critical infrastructure and (ECSA) of a policy on Manual – an essential tool in evaluat- navigation control systems, low search- Arctic issues, ing the anticipated range of operating and-rescue capability, and other non- especially in increasing knowledge of conditions and hazards to ensure the climatic factors. the region and investing in research and decision-making process onboard is Therefore, development of the development. adjusted accordingly. appropriate regulatory framework The Polar Code was intensely debated The Code has been criticized for a should be accompanied by reinforced by the IMO for more than four years number of omissions on issues such as infrastructure and technology. Other before adoption in 2014 by its Maritime heavy fuel oil use by vessels, the lack of critical investments include: improved Safety Committee (MSC). From the invasive species’ protections and suf- navigation aids; accuracy of nautical beginning European shipowners under- ficient oil spill response requirements. charts; weather forecasts; monitoring scored that a mandatory and uniform We consider the Polar Code to be the of drifting ice and icing conditions as regulatory framework is a prerequisite first decisive step by the IMO at this well as search and rescue infrastructure to ensure maritime safety and environ- stage. The importance of the Code is its for defined incident scenarios. These

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TheCircle0116.indd 14 25.02.2016 10.53 Cargo ship and , Illulissat, Greenland

and monitoring systems to ensure safe navigation and enable search and rescue (SAR) operations. This could take place through Galileo and Copernicus, the global navigation satellite system which provides a highly accurate, global posi- tioning service. In addition, a highly-developed infra- structure of geographical information through the creation of a digital of the Arctic should be established. Com- piling geographical information and obtaining a complete picture of what is happening at a given location (, charts, records, etc.) is also crucial. This data should be collected, maintained and made available in the most effec- tive manner, perhaps through the Arctic Information Center the European Com-

Photo: Clive Tesar / WWF Tesar Photo: Clive mission is considering. The EU could also develop a platform are just some of the critical factors that crucial for increasing activities in the to pool data on the state of the seas in need to be addressed in a region in Arctic. and around Europe and high-resolution which extreme weather events are rou- As demonstrated by the successful sea-bed mapping. This would further tine occurrences. development of the Polar Code, IMO is assist in establishing safe transport Maintaining a positive reputation for the appropriate forum for developing routes in Arctic waters. operators, as the area is increasingly standards for ships operating in the Arc- Last but not least, it is clear that exploited, is also a challenge. Maritime tic. It has the necessary legal and techni- future initiatives in the Arctic will neces- transport and energy extraction depend cal expertise to take full account of the sitate an increase in maritime training on both local and global acceptance interests of all maritime nations, includ- capacity. Specialised courses focusing of increased industrial activity in the ing those with an Arctic coastline. on High North/Arctic operations should Arctic. Investment in relationships is Discussions on an EU Policy on arctic be enhanced to offer relevant and quali- imperative for local and global accept- issues are also gaining momentum. In fied manpower in the offshore and mari- ance of increasing industrial activities in principle, we endorse the three pil- time domain. Improved competence the Arctic. This confidence can be built lars identified by the 2012 Joint Com- requirements and standards will ensure through investments in ice research, munication Commission and High there is knowledge and understanding forecasting and communications to Representative of the EU for Foreign of Arctic conditions. The EU could play ensure operational risks can be prop- Affairs and Security Policy: support a prominent role in developing these erly assessed and mitigated. A broad research and channel knowledge; act programmes. focus on knowledge and research is also with responsibility; and intensify the Shipping activities in the Arctic constructive engagement and dialogue must take place within the framework with Arctic States. We also acknowledge of uniform regulatory framework and EU’s actions in becoming one of the key adequate infrastructure that ensures WE CONSIDER THE POLAR investors in the region by exploring fur- quality shipping among all operators ther investment and research priorities. in the region. Any maritime accident in CODE TO BE THE FIRST The EU could play a prominent the vulnerable Arctic is an accident that DECISIVE STEP BY THE role in addressing some of these chal- affects us all. l lenges through the development of IMO AT THIS STAGE. satellite communication and tracking

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TheCircle0116.indd 15 25.02.2016 10.53 Finland: wearing two hats Finland is a member of both the EU and the Arctic Council. It is an active participant in the project – the process of industrial, political, legal, economic, social and cultural integration of states through the European Union. TIMO KOIVUROVA says although Finland is a “small actor” in the EU, he writes that this country has – with some success – played its “northern card” to pursue its own interests and policy goals while encouraging the EU to pay more attention to Arctic issues.

FINLAND JOINED the EU in 1995 after a crisis in the early 1990s, and EU mem- Finland has been generally supportive referendum which saw nearly 57% of bership can be seen as a natural evolu- towards deepening the role of the EU as Finns supporting membership for main- tion of Finland’s foreign policy. Since an economic and political union. Com- ly commercial and political reasons. the 1950s, foreign policy decisions have pared with other Nordic states, Finland Most of Finland’s trading partners were been cautiously – due to the delicate has clearly been the most EU-minded. located in EU member states. Finland relationship with the Soviet Union – It is the only Nordic country that joined was recovering from the collapse of the but consistently establishing ties with the monetary union, adopting the Euro Soviet Union and the Nordic banking Western intergovernmental institutions, as its currency while Sweden and Den- culminating with EU membership. It mark remained outside of the . PROFESSOR TIMO KOIVUROVA is a was also significant that Finland, Nor- Norway and Iceland have ties with the director of the Arctic Centre of the way and Sweden decided to pursue EU EU through the European Economic U of , Finland. His expertise membership at the same time. Finland Area Agreement, but Norway has twice includes Arctic legal & governance had strong international co-operation rejected EU membership while Iceland questions, environmental law & with the Nordic states prior to EU mem- has ended its membership negotia- Indigenous rights. bership with especially good economic tions, which commenced after the island and social ties with Sweden. nation was struck by the banking crisis.

Eurasian brown , Kuhmo, Finland

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TheCircle0116.indd 16 25.02.2016 10.53 In the last two decades, major politi- Finland has significantly contributed to does not entail any legally binding obli- cal parties in Finland have favoured EU the work of the Council, it is not a major gations. However the Arctic Council has membership, with the exception of the player in Arctic politics compared with recently catalysed two legally binding populist Finns party, which is currently coastal states and especial- agreements between the eight Arctic in government. The Finnish people have ly major Arctic powers such as Russia, states on search and rescue and oil spill also been fairly supportive of EU mem- Canada and the . response. More are likely for the future. bership although those critical are often Finland attempted to merge these Therefore, the EU institutions need to unhappy with the extensive range of EU South-Western and Northern policy make sure that any legal obligations legislation regulating many aspects of directions through the successful pro- are in accordance with what Finland Finnish economic and social life. posal of the Northern Dimension policy and other EU members have commit- What, then, is the influence of a small for the EU. Since 2006, the Northern ted themselves to in EU law. So far, no Nordic country on this pan-European Dimension has been resuscitated as a problems are apparent given that both regulatory framework, now crucial for joint policy between the EU, Iceland, new legally binding agreements are Finland? A member state’s influence in Norway and Russia. based on existing global treaties that are the EU is, to a great extent, based on Finland has also been very supportive already part of EU law. how the country actually pursues its of making the EU an Observer at the However, if the Arctic Council were to policy goals and interests in the Union. Arctic Council. The EU’s increased pres- transform from an intergovernmental Finland is considered to be fairly active. ence and funding could support Finn- forum into a treaty-based intergovern- Finns emphasize efficiency and open- ish policies and socio-economic needs, mental organization with legal decision- ness of decision-making and they have a including research, maritime govern- making power – a scenario Finland reputation of implementing EU legisla- ance, the development of Europe’s proposed in its 2013 Arctic strategy tion in an effective manner. northernmost regions and Finnish for the Arctic states to seriously con- Finland also has a strong track record stances on Arctic climate change and sider – there would need to be clearer as an active participant in Arctic co- environmental conservation. understanding of possible member operation. Finland proposed and led There are no real tensions or contra- states’ duties to co-ordinate their Arctic the initiative to launch the 1991 Arctic dictions arising from Finland being a policies within the Arctic Council and to Environmental Protection Strategy member of both the EU and the Arctic pay attention to the duties set out by the (AEPS) between the eight Arctic states. Council. The Arctic Council’s influences EU’s legal system. l This strategy was later adopted by the largely comprise scientific assessments current Arctic Council. However, while and guidelines and the co-operation Widstrand/WWF of Europe/Staffan Photo: Wild Wonders

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TheCircle0116.indd 17 25.02.2016 10.53 Fishermen in a fishing boat, , Greenland. Photo: Peter Ewins/WWF Canada Greenland – walking the middle path

THREE OF THE ARCTIC COUNCIL countries nity (the forerunner of the EU) in 1985, In allocating the money, the European are members of the EU, but one of them but is still associated with the Union. Council notes, “Union financial assis- has a particularly complex relation- This association gives each side some tance, allocated through the partner- ship with the trading bloc. Denmark is particular benefits. For Greenland, the ship, should bring a European perspec- a member of the Arctic Council largely most obvious is money. tive to the development of Greenland because Greenland is part of the king- Through the EU-Greenland Partner- and should contribute to the strength- dom of Denmark. However, Greenland ship (2014-2020), €217.8 million will ening of the close and long lasting ties is not part of the EU. The mostly inde- come from the EU to the Greenland with it, while strengthening the position pendent Arctic island formally withdrew government. Much of the money is of Greenland as an advanced outpost of from the European Economic Commu- earmarked for education and training. the Union, based on the common values

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TheCircle0116.indd 18 25.02.2016 10.53 and history which links the partners.” The money is a bump up from a pre- vious agreement between the EU and Greenland that sent 25 million a year to Greenland’s government. Some observers have suggested that the agree- ments in effect help buy the EU access to Greenlandic resources at a time when the Arctic is increasingly seen as a resource and a strategic crossroads. The latest agreement was signed following some public musings from Greenland’s former premier about the EU commit- The European Parliament ment to Greenland, on the heels of an unprecedented 3-day visit to Denmark by former Chinese leader Hu Jintao. A joint declaration on relations & EU Arctic policy between the European Union and the Government of Greenland and the Gov- The European Union may have a relatively small territory ernment of Denmark, signed March above the Arctic Circle but FERNANDO GARCES DE LOS FAYOS 19th, 2015 stated their intention to says it has always been an important and engaged Arctic continue and further strengthen their relations and cooperation in the follow- actor. In terms of Arctic research he notes the EU, along ing areas: with the EU Member States, is one of the leading forces in ■■ Sustainably managing fish stocks the world. He argues that the Union works hard to encour- and the marine environment as well as providing fishing opportunities for age international research collaboration with its sectoral the vessels of EU Member States which policies, and its cross-border actions have a significant should remain an essential pillar of the impact on the Arctic region. partnership between the EU and Green- land and continue to be based on the EU Greenland Fisheries Partnership Agree- THE EU ARCTIC POLICY has been built ment and its Protocols. gradually since 2008 in a process that IN TERMS OF ARCTIC ■■ Education and training, tourism and is still ongoing. From the outset, the EU RESEARCH, THE EU IS culture. Arctic policy was meant to be a common ■■ Natural resources, including raw enterprise of the EU institutions and the ONE OF THE LEADING materials. EU Member States, open to inputs from ■■ Energy, climate, environment and other Arctic States and other Arctic FORCES IN THE WORLD biodiversity. stakeholders. Its first building block, the ■■ Arctic issues. 2008 European Commission Communi- ■■ The social sector; mobility of work- cation on the EU and the Arctic, was the force; social protection systems; food result of a vast consultation exercise. A ■■ intensify its constructive engagement safety and food security issues. second Communication in 2012 consoli- and dialogue with Arctic States, Indig- ■■ Research and innovation in areas dated the EU Arctic policy, maintaining enous peoples and other partners. such as energy, climate change, disaster three basic priorities: The European Parliament (EP) has resilience, natural resources, including ■■ support research and channel knowl- agreed with this basic line and has pro- raw materials, and sustainable use of edge to address environmental chal- vided valuable input into the construc- living resources. l lenges, most notably climate change in the Arctic; FERNANDO GARCES DE LOS FAYOS ■■ Act with responsibility to assist in https://ec.europa.eu/europeaid/sites/devco/ is a Senior parliamentary policy ana- ensuring economic development in the files/signed-joint-declaration-eu-greenland- lyst with the European Parliament denmark_en.pdf Arctic is based on sustainable use of resources and environmental expertise;

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TheCircle0116.indd 19 25.02.2016 10.53 tion of the EU’s Arctic policy. On top Arctic with a high quality of life is of the of regular questioning of the European utmost importance, and that the EU can Commission and the European External play a vital role in the matter; Action Service (EEAS) whilst reflecting ■■ Acknowledges the wish of the Arctic concerns in the work of its differ- inhabitants and governments of the ent Committees, three key resolutions Arctic region, with sovereign rights and have channelled the main views of the responsibilities, to continue to pursue EP on Arctic policy, i.e. 9 October 2008, sustainable economic development 29 September 2011 and 12 March 2014. while at the same time, protecting the The latter EP resolution (2014), along traditional sources of the Indigenous with the Council of the EU Conclusions peoples’ livelihoods and the very sensi- of 12 May 2014, asks for a new Commu- tive nature of Arctic ecosystems. The nication, taking into account the recent EP also “regrets the effects which the developments in the Arctic and in EU EU regulation relating to the ban on action in the Arctic. seal products has produced for sections The EP went a step further asking for of the population, and in particular for the new document to be a proper EU Indigenous culture and livelihood”. strategy for the Arctic region, in line ■■ supports the meetings held by the with the national Arctic strategies of EU Commission with the six associations of Arctic and non-Arctic Member States. circumpolar Indigenous peoples that are The new Communication was expected recognised as permanent participants in by the end of last year but it has still the Arctic Council; not been issued at the time of writing ■■ Underlines the importance of sup- (mid-January 2016), probably because porting the development of cooperation the text needs to reflect the achieve- networks between higher education ments and new avenues opened up by institutions within and beyond the the 21st Conference of the Parties of region, providing opportunities for the UN Framework Convention on Cli- research funding in order to bring about mate Change (UNFCC) held in Paris in sustainable economic development in December, 2015. the regions of the Arctic. The EP is eager to see how the new Several other recommendations Communication reflects the recom- regarding the Arctic environment can be mendations that it called for in its 2014 summarised with the following one: Resolution. Several of these recom- ■■ The European Parliament stresses mendations refer to Arctic Indigenous that the increasing use of the Arctic Peoples and other citizens living in the region’s natural resources must be con- Arctic. The European Parliament: ducted in a way which respects and ben- THE SÁMI PEOPLE INHABIT almost half ■■ emphasises that the EU must take efits the local population, both Indig- of Norway and Sweden, the northern into account the need for raw material enous and non-Indigenous, and takes part of Finland, as well as North-West activities to provide local benefits and full environmental responsibility for the Russia. A large percentage of the Sámi garner good will with the Arctic popula- fragile Arctic environment. are EU citizens, and those residing in tions; Another way in which the EP interacts Norway are affected by EU decisions ■■ urges the Commission to proceed with the Arctic is as a member of the through the European Economic Area with the establishment of an ‘EU Arctic Conference of Arctic Parliamentarians, (EEA) agreement. The Sámi are the only Information Centre’; which brings together parliamentar- Indigenous people within the European ■■ recommends strengthening regular ians from around the Arctic, and is an Union and up until recently, the EU exchange and consultations on Arctic- observer at the Arctic Council. l commitment to the Sámi has been lim- related topics with regional, local and ited to regional cooperation and project Indigenous stakeholders of the Euro- The opinions expressed are those of the funding. pean Arctic in order to facilitate mutual author. Throughout the last decade, the Euro- understanding; pean Union has put heavy efforts into ■■ stresses that maintaining developed joining the Arctic Council as an observ- and sustainable communities in the er. That has proved challenging, as the

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TheCircle0116.indd 20 25.02.2016 10.53 The Sami have been herders since the 17th century.

The EU and Arctic Indigenous peoples Photo: Lawrence Hislop, www.grida.no

Global binoculars are fixed on the Arctic. What was previously ignored as a cold is hotter than ever. The Arctic Council overflows with inquiries from parties wanting to take part in all the exciting things that might happen “up there.” CHRISTINA HENRIKSEN says the Euro- pean Union – longing for Observer status in the Arctic Council – has suddenly realized the Arctic is inhabited, by Indigenous peoples, among others. How can the Indigenous peoples benefit from the EU participation?

EU discovered that among other things, Workshop in Brussels in 2010 what the and its inhabitants by the absence of its ignorance regarding Indigenous peo- EU could do for the Indigenous peoples Indigenous peoples’ voices in Brussels. ples in the Arctic was a barrier. Banning in the Arctic. Quite simply, he said: The seal ban was amended in 2015, as the import of seal products in 2009 was “First, drop the seal ban.” a result of the EU acknowledging that a a tough hurdle for the Union, and the The EU seal ban demonstrated the sincere dialogue with Indigenous peo- Gwich’in representative was succinct lack of knowledge among European ples is necessary to play the Arctic game. when asked at the First Arctic Dialogue decision makers regarding the Arctic The WTO called the Inuit seal hunt “too

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TheCircle0116.indd 21 25.02.2016 10.53 about climate changes, but these chang- THE EU SEAL BAN DEM- es also represent certain opportunities. ONSTRATED THE LACK If the melts, then access to min- erals is easier. If the sea ice melts in the A driving OF KNOWLEDGE AMONG North-East Passage, then cargo ships from Europe to Asia might get faster EUROPEAN DECISION (and perhaps cheaper). Europe and the world need miner- force: The MAKERS REGARDING als. Recycling is not enough and new extraction projects are needed. Yet, the THE ARCTIC AND ITS inhabitants of the Arctic are rarely men- INHABITANTS BY THE tioned. If we are, we might be referred EU & polar to as obstacles. We might say no. We say ABSENCE OF INDIG- no when our land and livelihood are in ENOUS PEOPLES’ VOICES danger of being ruined for easy profits. That is our right, and national states research worldwide have acknowledged that right, through supporting the UN Decla- Over the past decade commercial”, but how are Indigenous ration on the Rights of Indigenous Peo- the European Union has peoples supposed to survive if we can- ples and the Outcome Document of the not make a living of our own trades and UN World Conference on Indigenous become one of the largest cultures? If an environmentalist decided Peoples. So did the EU, and according funders of Arctic research to cry out for Rudolph, would the to the European External Action Ser- through numerous collab- EU ban import of reindeer products? vice, the EU will do its share to make Hopefully not, because the EU should sure that the decisions and recommen- orative projects, coordina- encourage the import of these products. dations of the UN World Conference on tion activities and support Reindeer meat and wild fish are healthy Indigenous Peoples document will be to infrastructures. NICOLE and ecological, implemented, because Indigenous peo- CHRISTINA and by increas- ples’ rights is a clear priority for the EU. BIEBOW says this has estab- HENRIKSEN is ing their import, The EU demanding that the principle lished a rewarding interplay a Member of the EU would of free, prior and informed consent is between the scientific com- the Sámi Parlia- contribute great- followed when economic activities are ment in Norway, ly to the devel- planned in areas inhabited and used munity and European policy representing the Norwegian opment of the by Indigenous peoples would be a way makers. Sámi Association (NSR) Sámi society. to implement this. Making sure that and the Sámi Peoples’ While the international legislation and the rights Party first Arctic Pol- of Indigenous peoples are mentioned AS THE ARCTIC CHANGES the European icy more or less in every discussion on extraction of raw Union and its executive body, the Euro- implied preservation of icebergs and materials would also be welcomed. The pean Commission (EC), are placing polar bears, the human aspect is now a EU could also raise its voice to ensure increasing importance on science and larger part of the policy. That is indeed a environmental standards are followed innovation in the high latitudes – for a step in the right direction. The Policy is in industrial projects while pushing its variety of reasons. being renewed, though the main objec- member states to ratify the Interna- Changing weather patterns and tives remain. It is still about interna- tional Labour Organization Convention climate, for example, are altering the tional cooperation and preserving and No 169. This convention recognizes sensitive ecosystem in the Arctic. Cli- protecting the Arctic (with the peoples Indigenous peoples’ right to self-deter- mate change triggers feedback processes who live there), but what it all comes mination within a nation-state, while which will have an impact on the global down to is promoting sustainable use of setting standards for national govern- climate system. Europe will consequent- resources. This is the tricky part since ments regarding Indigenous peoples’ ly be directly influenced by those chang- the Arctic is viewed as a great source of economic, socio-cultural and political es – colder winters being only one of the raw materials and renewable resources. rights, including the right to a land base. anticipated effects. Understanding these Climate changes daily affect Indig- So how can the EU contribute? Buy feedback loops and their implications enous peoples globally. Our ways of our products, respect our rights and for European society, improving predic- living are affected. World leaders worry ensure our future. l tive climate models and reducing exist-

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TheCircle0116.indd 22 25.02.2016 10.53 protection and sustainable exploita- tion”, says Andrea Tilche, Head of the Climate Action and Earth Observation Unit, Directorate General for Research and Innovation of the European Com- mission. And finally, the EC states that none of these objectives can be reached with- out engaging local communities and relevant stakeholders. For this reason one of the first steps in its Horizon 2020 framework programme for research and innovation was to establish a new coordination action, EU-PolarNet. This consortium – the world’s largest in expertise and infrastructure for polar

Photo: Jakob Sievers, European Geosciences Union, Creative Commons research – has been called upon to A curious investigates an instrument tower on sea-ice. assist the EC in giving advice in polar related questions, coordinating polar research and infrastructures in Europe and in identifying the highest priority ing uncertainties have hence become ground-based and underwater tools. research topics. vital. Technical innovation is highlighted here The EC has now proposed an invest- But changes in the Arctic also present as a mean of reducing high costs, which ment of about 40 Million Euros in Arctic economic opportunities for local com- previously have been seen as a limiting research and innovation for 2016/2017, munities, Arctic nations and Europe at factor in sustainable development. which focuses on the following key large. Thus the European Union has an The EC seeks to establish an open strategic areas: The development of an interest in a continuous, but sustainable international cooperation. Funding pro- integrated obser- development of the Arctic. Science- grammes of the EC are already open to vation system NICOLE informed decision making is key to applicants worldwide – a standard that for the Arctic; BIEBOW is a safeguarding the fragile ecosystems of the EC hopes to see being replicated. the assessment marine geolo- the North, to limit risks and to enable The EC says it is important to involve of the impact of gist and execu- adaptation of local communities. Indigenous people, local communities, Arctic changes tive manager of These ecologic, societal and economic and the relevant stakeholders in a sus- on the weather the EU Coordination and challenges and opportunities arising tainable development agenda. “We wish and climate of Support Action EU-Po- from Arctic change have resulted in five to make the Arctic a test bed for sustain- the Northern lat- larNet key considerations of the EC regarding able innovation, developing protocols itudes; and the Arctic research: and standards, which can guarantee impact of climate change on the Arctic, Firstly, the EC promotes open sci- in particular on permafrost and its pos- ence, meaning open access to research sible feedback and the socio-economic infrastructure, to data and to scientific consequences. To tackle these ques- results. A meaningful contribution to a SCIENCE-INFORMED DE- tions, the EC seeks multidisciplinary growing and shared body of knowledge and international projects with strong is dependent upon scientists having CISION MAKING IS KEY stakeholder involvement. access to all available sources of data in TO SAFEGUARDING THE Such an investment is of high impor- order to facilitate an integrated review tance to European polar research system for Arctic science. FRAGILE ECOSYSTEMS owing to the remarkable range of skills, The EC also strives to increase the knowledge and infrastructure that can predictive capabilities of climatic chang- OF THE NORTH, TO LIMIT be mobilised and coordinated in large es, feedback processes and weather EU projects. This will allow bigger and events through improving the quality, RISKS AND TO ENABLE more complex science problems to be the frequency and the geographic cov- ADAPTATION OF LO- addressed, which are beyond the capac- erage of sustained observations. This ity of one single nation. l implies an integration of space, remote, CAL COMMUNITIES

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TheCircle0116.indd 23 25.02.2016 10.53 Return WWF Global Arctic Programme 275 Slater Street, Suite 810, Ottawa ON, K1P 5H9, CANADA

THE PICTURE Survival skills Photo: National Museum of Denmark, Creatve Commons

The Greenlandic Inuit Agioq and "Boatsman" making a hole in the sea ice during at Danske Øen, Canada. These two Inuit participated in the 5th Thule-expedition supplying the expedition with game and skin for clothing. Inuit were important members of the Arctic expeditions due to their hunting and survival skills as well as their ability to find the safe routes in the landscape. Photograph from the 5th Thule-expedition 1921-24.

Why we are here To stop the degradation of the planet’s natural environment and to build a future in which live in harmony with nature.

www.panda.org/arctic

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