Critical Choices for the 1980S
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LOAN COPY ONLY RID-W-84-002 C3 rp m~k 4 ~~~a, MIX.-M A + >AitLMeN CLN ~A MRrlQC ResGQrces: Critical Choices for the 1980s Center for Ocean Management Studies harv-x-84-002 C3 Antarctic Politics and Marine Resources: Critical Choices for the 1980s LAT!',!GCOPE g! Oa!MiiFQ Proceedings f rom the Eighth Annual Conference HeM June l7-20, l984 Center for Ocean Management Studies University of Rhode Island LEWIS M. ALEXANDER LYNNK CARTER HANSON Editors NPTiomL m CV,NT O~POS,'TORY PELL LIRRP,RYEl],'I OIha' URI, NA8R~CANSEHBAY CAMPUS NARRAGANSETT,Rl 02882 Library of CongressCataloging in Puhti<ation Data Main entry under title: "Antarctic Politics and Marine Re»our<«»; Critical Choices for the 1~80s Annual conferenceprocecNngs / Center for Ocean Management Studies; 8! 1. Antarcticregions International status Congresses- 2. Marine resourcesconservation Law and legislation Antarctic regions Congresses. 3. Marine resources Antarctic regions Congresses. I. Alexander, Lewis M., 1921 . II. Hanson,Lynnc Carter, 1950 , III. Universi- ty of RhodeIsland. Center for Ocean Management Studies. IV. Series:Annual conferenceproceedings; 8. JX4084.A5h555 1985 341.2'9'09989 85-573 I ISBN 0-932413-G7-2 Copyright ' i <184by Centerfor Orran ManagementStudio» All rights rest rved Center for Ocraii ManagementStudies University of Rhode Island Kingston, Rhode Island 02881 Puhl!shed in 1985 by Center for OceanManagement Studies University of Rhode Island Kingston, Rhode Island 02881 All rightsreserved, No part of this publicattortnoway be repro- ducedor trartsmittediii any form or by anymeans, electronic or tnt.hanical iiicluding photocopy,recording or any infortna- tion»torageor retrievalsystems, without permissionin writittg from the publisher. Printed in the Uniteil States of America, Contents Prettier r A<kno~-6 cfgc ns n s vi PART ONE Antarctic Treaty System: An Analysis LYVNE CARTER HANSON t Tlie A»taretic Treaty System:Overview and Analysis 3 R. TUCKER SCULLY The A»tare.ticTreaty: Victi n of Its Own Success> 13 BARBARA M ITCH EL L Coiiim en taries 23 WILLIAM R, MAVSFIELD CHRISTOPHER C. JOYNER D 'scvssi or 35 PART TWO Antarctic Science Policy 43 RICHARD BURROUGHS international Science Programs in Antarctica 45 CHARLES R. BENTLEY United States Antarctic Program 55 ROBERT H. RUTFORD Antarti« Science Programs National Oceanica id AtmosptiericAclmuiistratiori's Antarctic Activities t>5 THOMAS L LAUGHLIN Att Antarctic Marine-Geology Program; Possibilities 68 TERRY W. OFFIELD Antarctic Sc.ience The Role of the.Polar ResearchBoard 7l W. TI MOTH Y H USH EN Some Thoughts on Antarctic Research 78 JOHN R. TWISS, JR. Di.scv as ion 85 ti The Antarrtir Treaty:A Reality BeforeIts Time 87 HENRY S. FRANCIS, JR. PART THREE Marine Living Resources 99 ALAN RYAN Fisheries Ovi.rview 101 DIETRICH SAHRHAGE The Convention on the Conservation of Antarctic Marine Living Resources 113 ROBFRT J. HOFMAN Living Resources.A Variety of Perspectives Conservation of Antarctic Marine Living Resources: The Environmental Perspective 123 WILLIAM Y. BROWN B RUCE S, MAN HE IM ! v Ce>»tents It»pl«m«ttttng tlie Goiivention on Conservati<><i of Antarrt«Mar<it« Living Resot!rc«a:The Legislative Process 12o W I L LI AM H Ma<-K F N Z I E RFBECCA S.ROOTFS F< nnomir Aspc rts <>fAntarrtir f=!sh«r!rs 1<t1 VLADIMIR M K A C Z V NS K I First and Se<o»tf Iriteriiati<>italBiomass Exprrir«cnts a»<1Rcr e»t Res«arch <>iitli» AI>un<fancr.of Krill Euphausiasup«rba! in th«Souttiern Otea<i 15~ MIC HAE L C. MACAULAY Discuss!on /68 PART FOUR MirteralsRegime for Antarctica 171 JAMES KF NNE1"1 10 An Qvcrv!«w of the Or»fc!giral Histr>ry <!f Antarrt!ra With Rcgar<f t<> Min« ral Re sourrc Pot> »ti a 1 173 DENNIS F.. HAVFS 11 Tht' E< on<imics of Aiitar< tir Oil JOHN NOR'lON GARRETT Drv«loping Legal Regime Are Ther« P«trofrum Resources in Antarctica? Iol JOHN C BEHRENDT A Minerals Regime for Antarct!ca:The M!nerals Management S«rvtce Perspective 202 REID STONE Fnvironmenta! Issues in the Antarctir Minerals Negotiations 204 LEE KIMBALL P>seuss>on 2! 5 PART FIVE The Future of the Treaty Sys!tem 223 LFWIS M ALEXANDFR 13 Th«Future of the Antarctic Treaty System One Cr>nsultat!ve Party Outlook 225 AMBASSADOR RICHARD WOOLCOTT Th«M slays!an P«rsp«r tive 2.12 AMBASSADOR DATlIK RAIN AZRAAl Eiivir<>iini«nial C<>minuiiitv Si>kg«st i<>ns 2.17 L EE K 1MB A LL D<sr ussi<>n 2S8 L!it <!f R«g!st r.!«t ~ 257 Acknowledgements Much effort, by manypeople, goes into the planningand productionof any tneetingand its resulting proceedings. All of thetnI thankfor theirefforts while someof themI will specificallytnention. We were fortunateto haveas planning committeemembers: Lewis M. Alexander,Conference Chairman and Director of the Centerfor OceanManagement Studies; Alan Ryan,Research Fellow, Center for OceanManagement Studies, The Universityof RhodeIsland; Thomas Grigalunas,Professor, Resource Economics, The Universityof RhodeIsland; RichardBurroughs, Assistant Professor, Graduate Program in MarineAffairs, TheUniversity of RhodeIsland; and James P, Kennett, Professor, Graduate School of Oceanography,The University of RhodeIsland. Without their help in theplan- ningstage and their participation as session chairs, the fneetingwould not have addressedas much nor run as smoothlyas it did. lUIanythanks. Without the speakers'presentations there would be nothingto put into print.Critically irn. portantto anytneeting are the funding sources. We gratefully acknowledge fund- ingsupport from: U.S, Department ofState; U,S. Department of Interior:Minerals ManagetuentService; Marine Mammal Commission; and National Oceanic and AtmosphericAdministration; Sea Grant and Office of Policyand Planning. No office functionswith only oneperson. For their logisticaland technical supportI wouldlike to givespecial recognition to the COMSstaff, A well de- servedthanks goes to: Carol Dryfoos, CONS Coordinator for herpainstaking ef- fortstoward consistency and readability of theseproceedings; and to JanetLaCroix, COMSSecretary for her typing and phoningefforts. And finally, thanksto a withnumberthe oftransportation students fromlogistics, the Graduate Program in MarineLynne Affairs Carter who Hansonhelped ExecutiveDirector Centertor Oceanftfanatfement Stadies Universityol Rhodefriend Kintfslon,Rhode fsiend The Centerfor OceanManagement Studies wsa created in the fall of 1976for thepurpose of promotingeffective coastal and ocean inanagement. The CenteridentiTies ocean management issues, holds vsorkshops and con- ferencesto discussthese issues, and develops recommendations and research programsto resolvethem. PART ONE Antarctic Treaty System. An Analysis 2 Antarctic Treaty System We will beginour study of Antarctic politicsand marineresources with an analysisof the treaty system.The presentsystem grew out of a desireto rnain- tain amiablerelationships among the hostof nationsparticipating in the Interna. tional GeophysicalYear PGYJin 1957/1958.This original group of 12 nations established and participated in the Antarctic Treaty and to date have only four additional members. Since the ratification of the treaty in 1961,Antarctica has been in the business of science, and the treaty has meant more duties than privilegesto its tnembers,The questions of potentiallyvaluable resources, however, may mean the business of Antarctica is about to change. That, of course,has attracted attention to the so-called"exclusive" member- ship andcontrol through the AntarcticTreaty. These and other issuespertaining to the treaty itself, includingits evolutionaryabilities, will be addressedby two speakers and two commentators. Lynne Carter Hanson ZaeeutiveDfrector Centerfor OceantSIauagement Studies UnfversttyolRhode Island Kings on,Rhode Island CHAPTER 1 The Antarctic Treaty System: Overview and Analysis R, TUCKER SCULLY Director Office of Oceans and Po/ar Affairs U.S, Department of State Washin/rton, D.C. INTRODUCTION In these remarks, I would like to offer an overview of the Antarctic Treaty and the Antarctic Treaty System. In so doing, I hope to suggestsome analytical perspectives which might be brought to bear upon the Antarctic Treaty and to highlight what I believe are some of the salient, important characteristics of the Antarctic Treaty System. To start with, I would like to suggest two approaches from which one might view what is now called the Antarctic Treaty System. The first of these is an approach basedon the substantive content and substantive product of the system. The Antarctic Treaty Systemcan be viewed asan inter-linked network of substan- tive agreements,which includethe AntarcticTreaty itself andthat body of agreed recommendations,agreed measures, and additional instruments which havebeen concluded pursuant to the Antarctic Treaty. The first perspective is that of look- ing at the systemas a body of provisions,a body of measuresthat havebeen developed,beginning with the treaty itself, to deal with human activities in Ant- arctica, The secondapproach is to look at the Antarctic Treaty system as a system of governance,as an evolving set of political institutions which provide a means for identifying and responding to issues/activities/situationswhich require some form of common action among those active in Antarctica. To use a shorthand, I would like to suggestviewing the system from the point of view of its substan- tive content and secondlyas a processor a mechanism,a setof political institutions. THE ANTARCTIC TREATY SYSTEM SUBSTANTIVE CONTENT AND PRODUCT From either perspective, the Antarctic Treaty itself lies at the heart of the Antarctic Treaty System. I would