The Arctic Council – a New Era of Action?

MAGAZINE Heeding Indigenous voices 11 Singapore: arctic newcomer 13 No. 1 2013 The Circle Global science 17

The Arctic Council – A New Era of Action?

PUBLISHED BY THE WWF Global ARCTIC PROGRAMME

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Council MinisterialinMay2013. ABOVE: Kirunawillhostthe Arctic Leona Aglukkaq inMay, 2013. Chair toCanada’s Ministerforthe Arctic Affairs, CarlBildtwillhandoverthe COVER: Sweden’s MinisterforForeign 29.04.13 16.26 The Circle 4.2012 Editorial Coming full circle

The Arctic Council Ministerial meeting in May 2013 with existing or pending Observer status at the Council marks the completion of the first full circle of chairman- have strong Arctic science programs and should contrib- ship since the Council was established in 1996. This next ute to the Arctic Council agenda. Informed decisions will cycle will be a time to look at this regional process, the require integration of knowledge from different scientific new challenges and new realities the Arctic faces. This disciplines with full inclusion of traditional knowledge. issue of The Circle explores some of these issues. Authors Several non-Arctic states and the EU are seeking touch on the readiness of Arctic nations to use the Coun- Observer status at the Arctic Council. The council has long cil to provide environmental stewardship for this polar deliberated over some of these applications. Now it is time region, for the benefit of the people both locally and glo- for decisions to include these applicants, or explain how bally who will be affected by the council’s successes or the Arctic could be better stewarded without them. failures. Climate change continues to be the major driving force The Arctic Council enters its second cycle strengthened of changes in the Arctic and the main threat. Scientific through the establishment of a permanent Secretariat reports show black carbon is the second largest human and the new initiative of brokering legally binding deci- emission after carbon dioxide forcing climate change. sions. This may help clear the backlog of policy recom- While Arctic nations can point the finger mendations flowing from the Council’s excellent scientific at global drivers of climate change, they assessments and reports from recent years. This strength- must also act to mitigate the coming ening has also raised public expec- change by developing tations for better transparency and This next cycle will be a black carbon emis- accountability of Council proc- sions inventories, esses and decisions. time to look at this re- tracking regional The outgoing Swedish chair- trends and identify- manship took the lead in develop- gional process, the new ing mitigation oppor- Alexander ing a Council vision for the next tunities. challenges and new re- Shestakov is the 10-20 years. The changing climate, The Swedish director of the WWF protection of the environment, alities the Arctic faces chairmanship led Global arctic Pro- sustainable conditions for resi- processes to make gramme, based in dents and commercial development as well as a strength- the Arctic Council a platform for interna- Ottawa, Canada. His ened Arctic Council are all vital issues for the future of tional cooperation on Arctic best business background includes the Arctic. The incoming Canadian chair stresses human practices and to promote corporate social working for a number dimensions, strengthening northern communities and responsibility. This initiative requires of NGOs, government balancing development with respect for fragile Arctic eco- more engagement of all relevant stake- and industry, giving him systems and ecosystem services will be a priority for the holders among the Arctic business com- a broad understanding coming two years. munity with businesses displaying leader- of conservation issues. The Arctic Council continues to be a unique process ship instead of waiting for government to He has a law degree which incorporates Indigenous Peoples. Their role should convene the process. and a PhD focused on be strengthened through the full engagement of Per- WWF’s vision for the future of the environmental manage- manent Participants in decision-making processes and Arctic Council, as articulated in the final ment and conservation. activities of the Arctic. This requires not just opening the article in this edition, highlights the role doors, but ensuring Permanent Participant organizations of Arctic governments collaborating to representing Indigenous Peoples have the capacity and implement Council decisions. A Council independence to operate as full partners. that informs, brokers and assists governments to act on Enhanced decision-making capacity relies on a robust issues of common priority and concern would be a valu- knowledge base for risk management and policy-making. able contribution in helping governments fulfill their The global nature of the challenges the Arctic faces stewardship responsibilities for this rapidly changing part requires global science. A number of non-Arctic nations of our planet.

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TheCircle0113.indd 3 29.04.13 16.26 In brief

The Kulluk grounded on Sitkalidak Island, Alaska.

Participants in polar bear workshop,Tromsø, Norway. Safer bears, safer communities

As temperatures warm and sea ice melts, polar bears will

Photo: DoD, Petty Officer 2nd Class Zachary Painter, U.S. Coast Guard/Released Photo: DoD, Petty Officer 2nd Class Zachary Painter, spend more time on land and in closer proximity to Kulluk grounding shows Shell isn’t ready for Arctic humans, according to experts from Russia, Norway, Green- Federal and state agency industry personnel, rescue Last year U.S. Deputy land, Canada and Alaska who officials and Shell Oil rep- crews, coastal residents, Assistant Secretary of the met in Tromsø in February. resentatives hastily con- rich wildlife populations Interior David Hayes said WWF polar bear expert Geoff vened in Anchorage in the and productive fisheries “any approved (offshore York was one of the organ- new year to examine the that feed millions of people oil development) activities izers of a workshop on how series of events surround- around the world,” says will be held to the highest to lessen polar bear/human ing the latest incident Margaret Williams, manag- environmental protection conflict. He says educat- plaguing the oil company’s ing director of WWF’s U.S. standards.” ing humans going into bear Arctic drilling efforts. Arctic field program. “In our book, high country is key. On Dec. 31, Shell’s drill The response effort – standards include hav- “Bears in general are rig Kulluk grounded on the largest ever launched ing failsafe towing and predictable in their behav- Sitkalidak Island after in Alaska, according to the handling vessels, and a iour and they give cues to repeated failures to tow it state’s Department of Envi- drill ship that has not us. It’s whether we know in rough seas from Dutch ronmental Conservation – been fined for violations, how to read those cues,” Harbor to Seattle. The Kul- was stymied by stormy seas as Shell’s equipment has he told BBC News. “That luk was one of two drill- and gale force winds. been,” Williams says. “The being said, there’s always ing vessels deployed for a The inability to quickly administration’s green the one in 1,000 animals short fall season of drilling and adequately respond light to allow Shell to con- that is less predictable or is in Alaska’s Chukchi and to emergencies because duct initial exploratory in a situation that becomes Beaufort seas. of extreme environmental activities last year sets unpredictable with bears, “This drama at sea shows conditions is called the a poor precedent in the but there are things that we how even so-called routine “response gap,” something administration’s so-called can clearly teach about bear operations such as moving WWF has highlighted as the commitment to the ‘high- behaviour and proper human drilling rigs can threaten barrier to safe offshore oil est standards’. ” response.” the lives and livelihoods of development in the Arctic.” York says the range states are compiling a new data- base on polar bear/human

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TheCircle0113.indd 4 29.04.13 16.26 In brief

New national park will protect Onega Peninsula ecosystems, traditional lifestyles

In February, Russian Prime Minister Dmitry Medvedev signed a decree to create a new national park encom- passing over 201,668 hectares on the Onega Peninsula Jutting into the White Sea, the peninsula is unique for its biodiversity and preserved indigenous boreal forest rich in flora, fauna and many rare species. The area also plays an Pine trees on dunes in the Onezhskoye Pomorye National Park, Russia. Photos: Alexey Ovchinnikov. important role in regional climate regulation while preserving a distinct, Andrey Shchegolev, WWF environmental damage. Over the last traditional way of life for coast-dwell- Russia,says industrial logging caused few decades of industrial develop- ers. Locals believe environmental and massive destruction of Onega Penin- ment, 60 per cent of the area was historical tourism development is the sula’s natural ecosystems. “Local peo- logged. A national park will save only way to sustain their traditions ple have used forests for centuries, those ecosystems which haven’t been into the future. but have done so carefully, without reached by harvesters yet.”

conflicts to better track able causes. “We hope by this data system that can start to Cold water prawns (Pandalus trends, identify hotspots, and fall (2013) we will have an tell us a little bit about that – borealis) harvested by this address common prevent- Arctic-wide mostly populated what’s the history, do we see fishery are now eligible to any trends in numbers, simi- bear the blue MSC ecolabel larities in conflict causes?” – assuring buyers and shop- pers that that the product Thinning sea ice lures, traps killer originates from a certified First Greenland source. In international whales in Canada’s Hudson Bay markets, Greenland prawn fishery gains is known for its outstanding A pod of trapped killer whales spent two days franti- quality. cally bobbing for air around a breathing hole in sea ice “Respect for nature has near Inukjuak in January. WWF Canada’s Pete Ewins MSC certification been a fundamental prereq- says climate change has reduced sea-ice cover in Hud- The West Greenland cold uisite for survival in Green- son Bay, opening the door to predators like orcas to water prawn trawl fishery has land for centuries,” Fisheries spend more time there feeding in summer. But some- become the first Greenland Minister Ane Hansen said. times they don’t make it out, he said. fishery to achieve certification to the MSC standards.

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TheCircle0113.indd 5 29.04.13 16.26 Scene setter Staying the course The Arctic Council has now completed a full rotation of Member States holding the Chairmanship. Sweden’s Minister for Foreign Affairs, Carl Bildt will hand over the Chair to Canada in May, 2013. In doing so, he urges the circumpolar countries to focus on stability, collaboration and maintaining momentum in protecting the Arctic.

Swedish foreign minister Carl Bildt takes over as Chair of the Arctic Council at the Council's meeting in 2011. Here together with Danish Foreign Minister Lene Espersen (left) and US Foreign Minister Hillary Clinton. Photo: Swedish Ministry for Foreign Affairs

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TheCircle0113.indd 6 29.04.13 16.26 The Arctic Council has now for Observer status to the Arctic been through its first cycle of “The Arctic Council Council. The criteria that Ministers member countries chairing the adopted in Nuuk in 2011 must be the organization – what do you believe is not only a re- basis for the review of all applications. is its biggest achievement in this gional forum, but As chair of the Council, the role of cycle? Sweden is as “honest broker” tasked to The Arctic Council has since its birth a global one.” prepare the decision that will take place in 1996 matured from a policy shaping in Kiruna in May 2013. entity to a policy making forum with Given the membership of some great institutional stability. It has put Arctic states and Indigenous Peoples Arctic Council members in the EU the Arctic region and the perspectives organizations of the Arctic. We are also, how does that constrain their of the Arctic states and peoples on the taking incremental steps to strengthen positions at the council? global agenda through groundbreaking the cooperation. Unlike other regional The Arctic Council is a democratic reports such as the Arctic Climate organizations, the Council has observers forum and states’ membership does Impact Assessment. from the entire world and from different not constrain their positions. On sectors – WWF being one of them. In the contrary, it widens perspectives As we approach the next cycle of this sense the Arctic Council is not only and benefits the work of the Council. chairmanships, Sweden is leading a regional forum, but a global one. Both the Arctic Council and the EU a document to help set a path for share similar views on many of the that next cycle. What would you The question of who should be challenges in the Arctic: fighting climate like to see in that document? admitted as Observers to the change, conducting research on the It is important that the Arctic States and council is still under debate, Arctic environment and investing in Permanent Participants work together particularly when it comes to sustainable development to mention in all areas sharing a joint vision about State Observers. In your opinion, a few common objectives. We should what we want to achieve with the Arctic who should be Observers at the always strive for as much cooperation Council and a common set of goals for Council, and why? as possible as it will help ensure the Arctic region for the next 10-20 I believe we should have an open sustainable development in the Arctic years. The changing climate, protection mindset when we review applications region. of the environment, sustainable conditions for the people living there and commercial development as well WWF CEO Vision Statements as a strengthened Arctic Council are all vital issues for the future work of the Arctic Council. Sweden

Ecosystem based management (EBM) is a very important man- What is the Council’s biggest agement concept within the Arctic Council which can address both challenge right now? human and environmental issues in a changeable world. During the It is important that all members keep up Canadian chairmanship over the next two years, EBM should go the momentum and preserve the focus from theory into practice with real field projects. One example could on the changing climate, protection of be from the Abisko area in the Swedish province of Lapland where Hakan Wirten, environment and sustainable economic stakeholders are already discussing the future and their future Secretary development as well as questions cumulative effects on the environment. The EBM concept is a very General WWF concerning the Indigenous Peoples of promising way to resolve issues for reindeer herders, the tourist Sweden. the Arctic. industry, county boards, hunters, mining companies and scientific researchers who all want access to the same area. WWF urges the Swedish Government to fulfill ideas What do you think of the Arctic and decisions of the Arctic Council into concrete projects in northern Sweden. The Council’s capacity to evolve as a results and experiences from these projects should then be fed back into the Arctic regional organization? Council and its work on an international level. The Arctic Council is a unique high level forum that incorporates all the

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TheCircle0113.indd 7 29.04.13 16.27 Expectations of incoming chair An important milestone for Canada – and the Arctic In 1996, Canada was the first of the eight member states to chair the newly-created Arctic Council. Canada takes the chair again in May 2013 under the leadership of Leona Aglukkaq, Canada’s Minister for the Arctic. Here the Min- ister lays out her priorities for Canada’s upcoming two year term at the helm of the Arctic Council.

Canada and seven other circumpolar Nunavut, the Northwest Territories and countries formed the Arctic Council 16 Yukon. Earlier this year, I met with Can- years ago, as a high-level intergovern- ada’s Nordic Arctic Council partners. mental forum to promote cooperation, These discussions underlined the chal- coordination and interaction among lenges and opportunities ahead, as well Arctic States. The council was estab- as how much we all have in common. lished with the Ottawa Declaration in In its first 16 years, the Council has 1996 and Canada was the first country done important scientific work and to chair it, with participation from states shaped global policy on key issues like Leona Aglukkaq, Minister for the Arctic around the Arctic Circle and Aboriginal mercury levels. We have established Council (right), meets with Carl Bildt, groups from across the region. Canada world-class programs such as the Sweden’s Minister of Foreign Affairs starts its second chairmanship at a time Circumpolar Biodiversity Monitoring (center), and Torgeir Larsen, Norwegian of far-reaching change in the region. Program, which is an international net- State Secretary (Deputy Minister) to the The Council faces critical questions work of scientists, government agencies, Minister of Foreign Affairs (left). Photo: DFAIT | MAECI about how best to take advantage of the Indigenous organizations and conserva- region’s tremendous resource potential tion groups working together to harmo- and manage the opening up of new nize and integrate monitoring efforts shipping routes while preserving the and data collection. We will continue are applied in a practical way. This will North’s vital ecosystems. this work, ensuring research findings help improve the well-being and pros- My first priority as Canada’s Minis- perity of people living in the Arctic. ter for the Arctic Council was to have a Canada’s chairmanship of the Arctic conversation with northern Canadians Council will put northerners first, with about what our chairmanship priori- Canada starts its sec- initiatives that reflect the views and ties should be. Last autumn, I met with expertise of the people on the ground premiers, elected officials, Aboriginal ond chairmanship at a and benefit those across the circumpo- leaders, Permanent Participants of the time of far-reaching lar region. The overarching theme of Arctic Council, environmental groups, Canada’s chairmanship will be Develop- business people, and researchers in change in the region ment for the People of the North. We Canada’s three northern territories— will focus on creating economic growth,

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TheCircle0113.indd 8 29.04.13 16.27 business opportunities in the North. We will also continue the Council’s work on oil spill pollution in the Arctic. Safe Arctic Shipping is our second sub-theme. We foresee the development of guidelines for Arctic tourism and cruise-ship operators. This will complement the new Arctic search and rescue agreement signed by Arctic Council ministers, including myself, in Green- land. The final sub-theme is Sustainable Circumpolar Communities. My friends, my family and all northerners are facing new challenges as a result of climate change. The Council must help people adapt to these changes. We must also explore how best to advance work on short-lived climate pollutants, like black carbon. Addressing this issue will have benefits both for climate change and for the health of northerners. The Arctic region faces not only a time of change and challenge, but also of great opportunity. If we combine the knowledge of the people who have lived in the North for generations with what we have learned through innovative research and technology, we can move forward successfully. Of this, I have no doubt.

strong northern communities and healthy ecosystems. The circumpolar WWF CEO Vision Statements region is home to many thousands of men, women and children; their views, traditions and cultures will be central to Canada our chairmanship. The Arctic climate is changing at an unprecedented rate, bringing Three sub-themes guide our work. uncertainty to the people who have lived in the region for millen- The first is Responsible Arctic Resource nia while at the same time attracting interest in new development Development. The development of opportunities. Canada’s upcoming term as Chair offers an invalu-

natural resources is important to the Photo WWF-Canon/Richard Stonehouse able opportunity to demonstrate leadership at a critical time for the economic future of the Arctic and to the Arctic, and the Honourable Leona Aglukkaq has charted a path that Roger Dick- long-term prosperity of its inhabitants. focuses on the theme of ‘development for the people of the north.’ hout, Chair- The Council should play a strong role in We call on all Arctic Council States, Permanent Participants and man, WWF- ensuring that Arctic resource develop- Observers to work together over the coming years to realize this Canada ment takes place in a safe and sustain- aspiration in a way that demonstrates truly sustainable Arctic development, including able manner that is beneficial to the the protections that are needed to safeguard a unique environment. It will require people of the North. We will continue circumarctic collaboration to support ecosystem and community resilience in a rap- the work that began under the Swedish idly changing environment, and to develop and implement the tools needed to foster chairmanship to enhance the relation- responsible Arctic stewardship. ship between the business sector and the Arctic Council and to encourage

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TheCircle0113.indd 9 29.04.13 16.27 Indigenous Peoples Full participation requires full support As Canada assumes chairmanship of the Arctic Council in May, 2013, new opportunities will open up for Permanent Participants to influence the Council’s work through their formal status. Rodion Sulyandziga observes that the incoming Canadian chair says she believes in the importance of culture and the value of all forms of knowledge, including Indigenous Peoples’ traditional knowledge. Consequently, he calls on the Arctic Council to prioritize efforts to fund, support, and acknowledge the expertise of the Permanent Participants.

Efforts to strengthen the Arctic interests and sensitivity toward Arctic Council will continue. Institution- indigenous engage- Indigenous realities, the delicate inter- ally, developing the ment in the Arctic relationships existing between language, newly established traditional knowledge, food, health, the Arctic Council Sec- Council hinges on land, waters and pastures. retariat (ACS) in However the Permanent Participants Tromsø, Norway, being financed as well as the Observers are aware of remains key to this, the need to engage with each other and Rodion Sulyandziga although it has develop structured relationships. Thus, is the first vice-presi- long been debated recently, the Permanent Participants dent of RAIPON, the how the Permanent Private foundations in North America were invited to a meeting among state Russian Association Participants should are facilitating this process as is the Observers and Observer applicants in of Indigenous Peoples relate to this new Nordic Council of Ministers; a clear Warsaw, Poland. of the North. RAIPON institution and what indication of interest in Arctic issues As it turned out, only one Permanent represents 40 ethnic will happen to the from groups outside of the Arctic Coun- Participant organization accepted the groups from the far Indigenous Peo- cil. This also indicates the importance of invitation. This underscores how Indig- north, Far East and ple's Secretariat in increasing the involvement of local and enous engagement in the Arctic Council Siberia, a total popula- Copenhagen, Den- Indigenous People in the work of the hinges on being financed as do all initia- tion of about 250,000 mark. Council. tives to build capacity and develop rela- Indigenous Peoples. Permanent Par- Furthermore, a growing number tions within and among all three main The organization was ticipants are now of non-Arctic states, international Arctic Council stakeholders – countries, recently reinstated by reaching consensus organizations and NGOs are applying to Permanent Participants and Observers. the Russian govern- on bringing the become Observers in the Arctic Council. Recognition of the need to secure, ment, after having been Indigenous Peoples They argue that the rapid changes in the financially and otherwise, Indigenous decertified for several Secretariat under Arctic driven by climate change have involvement in the Arctic Council months. Sulyandziga the umbrella of global consequences and they are claim- appears to be growing on all sides. The is Udege (“Forest Peo- the ACS, while still ing a role in the opening of the Arctic. process of strengthening the Arctic ple”), located in the Far functioning as an The growing interest in observing Council – institutionally and in terms of East (Siberia) of the autonomous entity. and, eventually, beyond merely observ- science and policy – will have to go in Russian Federation. A relocation model ing has raised concerns among the that direction. The strengthening proc- is being crafted Permanent Participants about a poten- ess only makes sense in relation to the and will soon be tial undermining of their own role in sustainable development and strength presented to and discussed with Senior the Arctic Council. This role is based of the peoples, the cultures and societies Arctic Officials and the Arctic states. on respect for Indigenous rights and of the Arctic.

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TheCircle0113.indd 10 29.04.13 16.27 Inuit leader Mary Simon spearheaded the creation of the Arctic Council in 1996 and was its first chairperson. She says she ‘worked very hard’ to establish Arctic Indigenous groups as Permanent Participants at the Council.

Permanent Participants Heeding their voices Until the Arctic Environmental Protection Strategy (AEPS) was established in 1991, the Indigenous Peoples of the Circumpolar Arctic were some kind Øyvind Ravna, is a Professor of Law of Observers without much influence. Their position gradually increased at the University of with the creation of the Arctic Council Indigenous Peoples Secretariat Tromsø. He is also a (IPS) in 1994 as well as the category of Permanent Participants which documentary producer and author of books on included the three Indigenous Peoples’ organizations, then observers on Indigenous Peoples, the AEPS: the Inuit Circumpolar Conference (ICC), the Saami Council and culture and societies, the Association of Indigenous Minorities of the North, Siberia and Far East especially from the Russian and Scandi- of the Russian Federation (RAIPON). Øyvind Ravna says this was quite an navian North. achievement, but heeding their voices is now more important than ever

When the Arctic Council was estab- Council International (GGI) are all Per- Permanent Participants category would lished in 1996, the status of the Perma- manent Participants. have been possible to establish. A great nent Participants was reaffirmed in the The PPs do not have the right to vote, thanks to those who saw this window of Ottawa Declaration. It allowed for other but since decisions are generally made opportunity during the establishment of Arctic Indigenous Peoples organizations in consensus, this is not considered to the Arctic Council.” to be Permanent Participants although be problematic. It is important to hear the Indigenous it is still somewhat limiting in that the Gunn-Britt Retter, the acting leader voices for several reasons. An obvious declaration stipulates the numbers of of the Arctic and Environmental Unit one is that the Indigenous Peoples of Permanent Participants at any time of the Saami Council, says the Arctic the circumpolar Arctic are the original should be less than the members of Council was established in a time when possessors – one can well call them the the council. Currently the Arctic Atha- a lot was possible regarding Indig- original landowners – of icy tundra, baskan Council (AAC), Aleut Interna- enous issues. “If the Arctic Council mountains, plains and coastal islands tional Association (AIA) and Gwich’in was established today I don’t think the including the fishing rights outside the

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TheCircle0113.indd 11 29.04.13 16.27 coast. It is very important that the voic- Permanent Participants means that they es of those peoples are heard because of the indigenous peo- actually have a kind of veto. Although the international treaties and custom- decision-making is at the state level, it ary traditions saying that they have the ples of the circumpo- can easily be stopped or prolonged if right to self-determination, participa- lar Arctic are the the PPs disagree. Gunn-Britt Retter says tion and involvement in the governance they are listened to. “If the PPs stand of land and natural resources. original possessors together and speak strongly against The Ottawa declaration also recognizes something, I feel that the Member the valuable contribution Indigenous – one can well call States would be careful taking decisions Peoples make through their traditional against our will.” knowledge. This is knowledge that can- them the original There is a general impression that it not be learned in schools or through aca- landowners – of icy was easier to get in strong Indigenous demia and which is becoming more and references in the declarations in the more important for the management of tundra, mountains, earlier days of Arctic Council, compared the Circumpolar Arctic. There were, for with today. Over the last decade, as example, Indigenous Peoples who raised plains and coastal more and more eyes look to the north the alarm about global warming, and and the states put more emphasis on the functioned as climate witnesses. islands including Arctic Council, it seems like it is increas- Besides that, the Arctic Council covers the fishing rights ingly difficult for the Indigenous arctic Indigenous areas throughout the cir- minorities to be heard. “It looks like it is cumpolar north. These areas are in part more difficult to get strong Indigenous governed by the most progressive states Permanent Participants have managed statements in the declarations, says in terms of democracy and welfare. If to give the activities of the Arctic Coun- Gunn-Britt Retter, “but on the other Indigenous voices can’t be heeded, and cil a human face. The outcomes of the hand, member states have strongly real participation can’t take place here, Arctic Council are improved by involv- expressed the PPs role shall not be side- one can ask where could it happen. ing the people living there”. lined now that more states and organi- I would aso like to emphasize the The Permanent Participants role is zations want to become Observers to the importance of the human dimension at more than just a symbolic presence. The Arctic Council. PPs have even been used the Arctic Council. As Gunn-Britt Ret- Permanent Participants have full par- as a shield to ‘protect’ the Arctic Council ter says, the Arctic is not merely about ticipation rights in connection with the from all the Observers.” polar bears, but also about people for Council’s negotiations and decisions. From the Saami Council’s perspec- whom the Arctic is their home. “The The fact that they have the status of tive, the organization is trying to engage Saami expertise broadly in the Arctic Council working groups’ assessments WWF CEO Vision Statements and projects, to develop the strong- est possible knowledge base for Arctic Council decisions. A knowledge base Norway that includes Indigenous perspectives and traditional knowledge is the More so in the Arctic than anywhere else on the planet, climate best way to ensure recommendations change is an enormous ecological and economic threat. And will also benefit Indigenous Peoples, nowhere do the potential negative feedback mechanisms of this although we already struggle to keep up change have such ominous global implications. Canada must, as with the Arctic Council workload and a matter of urgency, ensure during its chairmanship of the Arctic address all the requests for participation Council that climate change mitigation is a strong priority of the Nina Jensen, we receive. Council. The coming chairmanship must seek to ensure that the CEO WWF- The Permanent Participants will also member states take a cooperative global lead in concluding a bind- Norway have an increasingly important role in ing global climate agreement no later than 2015. Arctic states as ensuring lands, watercourses and natu- parties to the United Nations Framework Convention on Climate Change need to take ral resources are not exploited, overused urgent action to meet the target of keeping global average temperature rise under and destroyed in the growing competi- 2 degrees. The Arctic can play a key role in piloting a global transition to renewable tion for resources such as oil, gas and energy. minerals in the Circumpolar Arctic, triggered by climate change and easier access to the resources.

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TheCircle0113.indd 12 29.04.13 16.27 Permanent observers Singapore: The arctic newcomer As a city-state lying just over 100km north of the equator, Singapore may not strike you as an obvious participant at meetings of the Arctic Council. But at the Council’s upcoming Ministerial Meeting in May, members will decide on precisely that: should Singa- pore become a Permanent Observer to the Arctic Council. Stewart Watters and Aki Tonami weigh in on the discussion.

Singapore is one of five applicants managing the Singaporean economy and development of key for Observer status from Asia along its strategic industries of port manage- domestic industrial with China, Japan, Korea and India, ment and vessel construction. sectors, namely Sin- indicating the growing awareness and gapore’s role as a perceived interests by Asian states in Singapore’s Interest global hub port, as Stewart Watters a rapidly changing Arctic. However, in the Arctic a strong base of off- China, Japan, Korea and India all have Singapore has played an important role shore and marine leads the ‘Asia in long traditions of Polar science either in the global governance regimes and engineering and a Changing Arctic’ in Antarctica or via research stations on institutions for ocean management and as an international Program at the Nor- Svalbard – by contrast, Singapore has transportation as an island state and a leader in port man- dic Institute of Asian little Polar heritage. major shipping hub, including as a long- agement. Studies, looking at Nonetheless, Singapore has articu- standing member of the International Here it is impor- the drivers behind the lated an intention to play a role in Arctic Maritime Organization (IMO). Singa- tant to remember growing interest in the governance, through government state- pore asserts that freedom of navigation Singapore’s political Arctic region by Asian ments, its submission for Arctic Council represents an issue of vital interest, that context: Singapore countries. Observer status in December 2011 and the the high seas are the common herit- has been ruled by creation of an Arctic Envoy role, raising age of mankind and that there must be a single party since the question of what is motivating these improved cooperation between littoral 1959 and there is a activities. In our research, we argue that and user states and that ocean govern- significant degree this engagement stems from Singapore’s ance must be open and inclusive. of involvement by significant interest in global maritime Seen from this perspective, it is not state institutions affairs and the strong role of the state in surprising that Singapore seeks to fol- and government Aki Tonami is a low the development of Arctic ship- officials in the man- researcher at the ping and resource exploration agement of the Sin- Nordic Institute of more closely, and some Arctic gaporean economy Asian Studies (NIAS), Council member states have and its major com- University of Copenha- acknowledged that Sin- mercial entities, gen. She has a Ph.D. gapore’s role in global with a long-term in Environmental Stud- maritime governance strategic approach ies (ecological eco- is a legitimate factor to foreign economic nomics) from Kyoto in its application for policy. This means University (2008). Her Observer Status. that the state, and main research areas However, Singa- not just private include Japan’s inter- pore also has con- companies, is very national relations and SINGAPORE siderable economic alive to the chal- environmental govern- and political interest lenges and oppor- ance, particularly envi- in the development tunities of Arctic ronmental aid. of the Arctic. This is change. directly related to the One of the most

Map: Ketill Berger, Film & Form

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TheCircle0113.indd 13 29.04.13 16.27 common assumptions about Singapore’s this ‘threat’ is overblown. Significant Arctic interest is that it is born of the Singapore seeks to questions remain about the near-term Northern Sea Route’s (NSR) potential follow the devel- potential of large-scale, highly regular- challenge to Singapore’s role as a glo- ized Arctic shipping, related to navi- bal shipping hub. Some analysts assert opment of Arctic gational safety, transit time, capacity that more northerly Asian ports could restrictions, limited seasonal access, as benefit from a reliable Arctic passage shipping and re- well as an uncertain Russian bureauc- instead of transiting the heavily traf- racy and lack of existing infrastructure. ficked Malacca Straits, and so bypass- source explora- The Malacca Straits may be crowded, ing Singapore. Some also argue that tion more closely but it is well managed and highly projected energy resources in the Arctic regularized, two factors that shipping may reduce NE Asia’s energy imports brokers and importers are reluctant to from the Middle East, again reducing gamble with. Singapore’s significance. However, we Indeed, there may well be an upside argue that for the foreseeable future to the development of the NSR: Singa-

Singapore icebreakers Toboy and Var- andey in Arctic waters. Photo: Keppel Singmarine

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TheCircle0113.indd 14 29.04.13 16.27 pore’s broad expertise in the running of and Offloading (FPSO) platform conver- opening up of the Arctic for shipping major port facilities may be an opportu- sion market, both important technologies and resource extraction represents an nity for one of Singapore’s most impor- for offshore drilling in hostile environ- important new niche for industries tant enterprises, PSA International, to ments like the Arctic. One of Singapore’s critical to the Singapore economy and deliver and manage the new northern most important engineering companies, closely linked to the government. port infrastructure required to facilitate Keppel Corp., entered the Arctic ice- Singapore has expended a great deal Arctic shipping. breaker market in 2008. In 2012, Keppel of diplomatic efforts to prove its suita- Furthermore, Singapore is home to and ConocoPhillips announced their bility for Arctic Council Observer status. global leaders in Offshore and Marine intention to jointly design a pioneering But the question facing Arctic Council Engineering (OME), a critical sec- rig for offshore Arctic drilling. members may be less about Singapore’s tor for Singapore’s economic strategy. In conclusion, Singapore’s Arctic suitability and much more about the For example, Singapore’s OME sector interest represents the logical extension direction in which they want to see the accounts for 70 per cent of the world’s of its more general interest in important Arctic Council develop in a period of jack-up rig-building market and 2/3 of developments in international mari- unprecedented interest in a changing the global Floating Production Storage time policy. However, for Singapore the Arctic.

WWF CEO Vision Statements USA

There are parts of the Arctic where it seems time has stood still – ancient cultures and traditions thrive; landscapes stretch end- lessly, seemingly untouched. But the Arctic is facing many of the world’s most modern problems. Important decisions about energy resources, food security and climate change impacts will be made here in the coming decade. The political prominence of the Arctic Carter Rob- Council has grown significantly, and WWF anticipates it will become erts, CEO the primary forum for diplomacy and deliberation on these topics. WWF US As the geopolitical importance of the Arctic increases along with dramatic climate change-related impacts on Arctic ecosystems, new opportunities are emerging for economic development and environmental protection. In no other part of the world do we have such an opportunity to get it right in terms of planning, protection and precaution. WWF urges the Arctic nations to fully support the Arctic Council to ensure a healthy, sustainable future for the Arctic.

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TheCircle0113.indd 15 29.04.13 16.27 The Arctic Council: Leaving the public out For journalists, covering the Arctic also means covering the Arctic Council which diplomats and politicians will tell you is a very important and significant body. But journalist Martin Breum says for reporters, the challenge lies in finding results, achievements or concrete evidence to support this claim.

To date, the Arctic Council has rela- decision-makers when they claim that be dug out through sources who do not tively little to show by way of concrete the Arctic Council will regulate oil explo- speak on the record. The politicians, results that would convince broader ration, promote development of Arctic who are accustomed to talking to the sections of the public that the Council communities, regulate shipping, tourism media, only show up every second year is politically important and has a strong and industrial fishing and secure peace- for the ministerial meetings. The rest bearing on the future of the Arctic. Yes, ful borders in the Arctic Ocean. of the time journalists deal with diplo- a lot of important scientific work has Trying to find an answer to this rather mats, who have little to gain from talk- been carried out, pivotal question one runs into serious ing. Finally, the real deals in the Arctic but in its 16 years of flaws in the Council’s dealings with Council are no longer made at the actual existence the Coun- the public. Let me give an example: meetings of the Council. There are cil has made only the most controversial question on the already too many observers at the table one solid, political Council’s table at the moment threat- to allow any meaningful discussion to Martin Breum is decision legally ens the Council itself – should China, take place, so important decisions are a journalist with the binding upon the the European Union, India and others now negotiated between the key diplo- Danish Broadcasting eight governments asking be allowed seats as Permanent mats over lunches, dinners or at other Corporation and the in the Arctic – this Observers? Among the members of the discreet venues. After the formal meet- author of ‘When the happened in Nuuk Council, Russia, Canada, the US and ings, press releases and briefings are Ice Disappears – Den- in 2011, when the some of the representatives of the Arctic organized, reflecting only a fraction of mark as a great power governments agreed peoples are reluctant to allow China what actually transpired. in the Arctic, the riches to collaborate on and the EU in particular a greater say. Then, in January 2013, promising of Greenland and the search and rescue at The Scandinavians are mainly in favor. news: The Arctic Council got a perma- quest for the North sea. A second bind- The debate has been raging behind the nent secretariat in Tromsø, Norway. A Pole’ (Danish only). ing decision will be scenes for more than four years, and at fine ceremony was held, the eight Arctic He has previously made in May this the time of writing there is no solution flags were waved and dances performed written on the Arctic year forcing closer in sight. The Council met in Tromsø in in celebration, and with good reason. Council’s communica- cooperation in case January and according to the rumor The new staff will help the Council work tions in “The Arctic of an oil spill. mill, the fight is still on, even though a in a more concerted way and to com- Council: Its place in This is hardly decision has been promised for May, municate, hopefully, more efficiently. the future of Arctic an impressive 2013. Fear is growing that China and But will it? The new director, from governance”, www. track record when others will soon be so frustrated that Iceland, has been given limited powers gordonfoundation.ca/ assessing whether they will ask the UN to start tackling to address the public, he is not to act as publications/530 the Council is up some of the global issues in the Arctic – a spokesperson and he is not meant to to the challenges instead of the Arctic Council. take initiatives on his own, but to facili- ahead. Without Meanwhile, the public is left in the tate the ongoing work of the Council. solid achievements recognized by the dark. The media are not allowed to Without a more solid mandate I fear public, the Council stands little chance cover the actual meetings of the Arctic the establishment of the secretariat of becoming the political powerhouse of Council. Secondly, the Arctic Council will make the Council only marginally the Arctic that politicians and diplomats works by consensus, so nobody will tell more transparent. It all depends on the claim it already is. The question still you up front where disagreements or quantity of political will in the Arctic is to what extent we should trust these nuances are to be found. These have to capitals.

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TheCircle0113.indd 16 29.04.13 16.27 Knowledge based descision making Arctic science is global science The national strategies of the eight Arctic countries all place significant importance on research and science as the basis for sound decision-making in Arctic affairs. Both science and public policy are built on a base of knowledge that should be reliable, timely, accessible, reflect a diversity of perspectives, be considerate of long-term changes, and yet be sufficiently flexible to address unexpected, short-term and local events. Conse- quently, improving the quality and relevance of Arctic research and ensuring timely access to this knowledge must remain a priority for all Arctic countries, says David Hik.

Since its creation, the Arctic Council from different scientific disciplines, and the effects of exter- has facilitated cooperation on com- especially to ensure the inclusion of tra- nal environmental, mon issues among the Arctic states, ditional knowledge. Many new projects economic and social Indigenous Peoples’ organizations underway or in development (for exam- changes, and in turn and communities and other Arctic ple, the Arctic Resilience Report, Adap- the Arctic creates David Hik is a Profes- inhabitants. Under its auspices, Arctic tation Actions for a Changing Arctic, drivers that act on sor in the Department Council Working Groups have com- the Arctic Biodiversity Assessment, etc.) the Global Com- of Biological Sciences pleted numerous scientific assessments, embrace interdisciplinarity, community mons. at Canada`s Univer- providing an improved understanding and Indigenous perspectives, and cir- Several non- sity of Alberta. He of environmental, social and economic cumpolar connections. Arctic nations conducts research on changes in the Arctic region. These Nevertheless, from my perspective, have strong Arctic the ecology of Arctic reports and syntheses are comprehen- the Arctic Council faces a very immedi- science programs ecosystems and the sive and have provided guidance for ate challenge with respect to science: and could contrib- interface between sci- decision-making that can shape the pol- that of ensuring the engagement of ute greatly to the ence and policy. He icies of the Arctic Council members. The global capacity in addressing Arctic work of the Arctic currently serves as Arctic Council has also recognized that issues. The Arctic Commons, our shared Council. The value President, Internation- there is a need to integrate knowledge Arctic space, is increasingly subject to of international al Arctic Science Com- collaboration has mittee (IASC) and been amply demon- Vice-Chair, Sustaining strated during the Arctic Observing Net- recent International works (SAON). Polar Year (IPY). In preparing for IPY the world community deployed a great deal of effort and resources to build the capacity for collaboration and this momentum should not be lost. One legacy of IPY could be to formalize or institutionalize the means for international Arctic science collaboration, and the Arctic Council has a leading role to play in ensuring the future of international Arctic scientific cooperation. A variety of options might be con- Greenland fishermen. sidered for engaging in broader inter- Photo:Clive Tesar

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TheCircle0113.indd 17 29.04.13 16.27 economic drivers national cooperation to support Arctic tion from the Arctic are safeguarded, science. For example, at one end of the freely exchangeable and accessible; sup- spectrum could be an inclusive and port for the next generation of Arctic robust Arctic Science Treaty that would scientists; and is engaged cooperatively allow for participation beyond Arctic with relevant science organizations Sustainable development Council membership. A less formal around the world. As an observer of the alternative might be a limited Arctic Arctic Council, IASC can bring other Science Protocol focusing on a variety partners into various Arctic science of activities required to support Arctic partnerships. science cooperation. Or, it might be use- The recent IPY provided an oppor- ful to establish a voluntary, multi-state tunity to build linkages among various Arctic Science Forum that could include science communities in the Arctic and representation from states, interna- globally, and with the public, the private tional arctic science organizations, sector and governments to ensure that Indigenous organizations, industry, and the impacts of scientific investments others. are lasting and substantive. There is Fortunately, this latter option already presently an active discussion under- exists in most respects, although at way concerning the establishment of a arms-length from the Arctic Council. longer-term International Polar Initia- The International Arctic Science Com- tive, or IPI, that would serve as a coor- mittee (IASC) is a non-governmental, dinating platform for addressing emerg- international scientific organization cre- ing challenges in the Polar Regions ated by the eight Arctic states in 1990. (www.internationalpolarinitiative.org). The IASC mission is to encourage and The proposed IPI concept employs an facilitate cooperation in all aspects of Earth System approach that embraces Arctic research, in all countries engaged research, observations, modeling, pre- in Arctic research and in all areas of diction, and services. the Arctic region. IASC currently has 21 If the IPI is successful, it will deliver member countries and promotes and better, more reliable scientific informa- supports leading-edge multi-discipli- tion for risk management and policy- nary research in order to foster a greater making, optimize and better coordinate scientific understanding of the Arctic existing resources and facilities, and region and its role in the Earth system. develop mechanisms for concerted IASC provides: mechanisms and instru- investments in areas where required ments to support science development activities are lacking. The Arctic Council in the Arctic; independent scientific can be an important partner in shaping advice on issues of science; oversight to the IPI, and ensuring that Arctic science ensure that scientific data and informa- is global science. Photo: Clive Tesar

As the climate changes, nature adapts to new realities. In a situation of great WWF CEO Vision Statements change, there will inevitably be potential winners and losers, and this is also true Russia for the inhabitants of the Arctic. There are about four million people living in the Arctic, with Indigenous Peoples An Arctic that is free from oil and gas drilling as well as from cruel making up approximately 10 per cent hunting of marine mammals, demonstrating resilience towards cli- of the population. To minimize the mate change taking place. negative impacts of various economic Igor Chestin, activities, people living in the Arctic CEO WWF must be able to take part in the region’s Russia development. For development to be

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TheCircle0113.indd 18 29.04.13 16.27 economic drivers Sustainable development Climate change is the major driver in the Arctic today and much of the Arctic Coun- cil’s work has focused on monitoring and assessing the pace and impact of its drastic effects. Paradoxically, new economic opportunities are the second major driver of change in the Arctic and are the result of climate change. As Mikael Anzén, chair of the Sustainable Development Working Group (SDWG) of the Arctic Council, notes, little work has been undertaken to understand the economic drivers in the Arctic in that there is no clear picture of the scope, pace and impact of the range of economic activities in the Arctic on the environment and Northern societies.

sustainable, regional business oppor- ship of the Arctic Council has focused dialogue with businesses operating in tunities must also lead to the overall on two specific areas: corporate social the Arctic. involvement of and contribution to responsibility (CSR) and establishing a The CSR initiative highlights the the local communities. To achieve this internationally agreed-upon guidelines, objective, efforts must be made to strike such as the Organisation for Economic a balance between the scope and pace of Co-operation and Development (OECD) development activities, environmental people living in the guidelines for Multinational Enter- considerations, traditional lifestyles and prises (http://www.oecd.org/daf/inv/ the active engagement of Indigenous Arctic must be able mne/statistics.htm ) and the UN Global and local communities. Sustainable to take part in the Compact’s ten principles, and how busi- development in the Arctic would mean nesses can use the Global Reporting achieving this delicate balance. region’s development. Initiative standards. What people can To this end, the Swedish Chairman- reasonably expect from responsible

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TheCircle0113.indd 19 29.04.13 16.27 companies in the Arctic is to be found in these guidelines. For businesses, these guidelines are essentially voluntary but The UN Global Compact’s Ten Principles they are often used as a benchmark for quality and responsibility. If all Arctic The UN Global Compact’s ten principles in the areas of human rights, businesses followed these guidelines, it labour, the environment and anti-corruption enjoy universal consensus and would be of great benefit to everyone. are derived from: To encourage a broader awareness of ■■ The Universal Declaration of Human Rights these guidelines, the SDWG is designing ■■ The International Labour Organization’s Declaration on Fundamental a separate CSR section on its website Principles and Rights at Work with appropriate links to individual ■■ The Rio Declaration on Environment and Development organisations. ■■ The United Nations Convention Against Corruption The second Swedish initiative has The UN Global Compact asks companies to embrace, support and enact, been to establish a dialogue with the within their sphere of influence, a set of core values in the areas of human Arctic business community. It is impor- rights, labour standards, the environment and anti-corruption: tant to create an interface between Human Rights members of the ■■ Principle 1: Businesses should support and respect the protection of Arctic Council and internationally proclaimed human rights; and businesses operat- ■■ Principle 2: make sure that they are not complicit in human rights abuses. Mikael Anzén was ing in the Arctic. the chairman of the Given the common Labour Sustainable Develop- challenges, threats ■■ Principle 3: Businesses should uphold the freedom of association and the ment Working Group and opportunities, effective recognition of the right to collective bargaining; (SDWG) during the we believe there is ■■ Principle 4: the elimination of all forms of forced and compulsory labour; Swedish chairmanship merit in addressing ■■ Principle 5: the effective abolition of child labour; and of the Arctic Council. these issues in tan- ■■ Principle 6: the elimination of discrimination in respect of employment He is ministerial coun- dem. Government and occupation. selor at the Ministry officials, Indigenous for Foreign Affairs in Peoples and envi- Environment Stockholm, where he ronmental organisa- ■■ Principle 7: Businesses should support a precautionary approach to envi- has served for more tions need to know ronmental challenges; than ten years. He more about the ■■ Principle 8: undertake initiatives to promote greater environmental has broad experience companies’ engage- responsibility; and from multilateral work, ment and views on ■■ Principle 9: encourage the development and diffusion of environmentally mainly from the EU at economic develop- friendly technologies. the Permanent repre- ment activities in sentation in Brussels this fragile environ- Anti-Corruption and the World Trade ment. At the same ■■ Principle 10: Businesses should work against corruption in all its forms, Organization at the time, companies including extortion and bribery. Permanent represen- need to understand tation in Geneva. governments’ views on these activities in the Arctic. and gas extraction and mining require sectors will need to examine in the near The SDWG has also proposed the special considerations? Are there les- future. establishment of an expert group on cul- sons to be learned from an examination The Arctic Council can serve as a tural, economic and social issues in the of best practices? Can industrial sectors platform, a hub for further international Arctic Council. Its responsibilities will establish high operational standards cooperation on Arctic business practic- include deepening the understanding of themselves or will more governmental es. However, it is essential that all rel- the Arctic economy. regulations be required in the Arctic? evant stakeholders play an active role. The next step in meeting these chal- Are there large discrepancies in laws A detailed assessment of best practices, lenges will be to take a closer look at and regulations among the Arctic national success stories and crisis man- specific Arctic business sectors. Will countries? These are just a few of the agement would give a clearer picture of activities in Arctic shipping, tourism, oil questions Arctic countries and business future development in the Arctic.

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TheCircle0113.indd 20 29.04.13 16.27 NGO perspective Time for leadership on black carbon As the Arctic Council matures and grows from its beginnings as an informal think tank into a governing body, many say the time has come for it to show more leadership. Erica Rosenthal and Martin Williams say a good start would be to focus on reducing toxic emissions.

Arctic nations have an extraordinary land glaciers such as the Greenland Arctic states have a special opportunity to show global leadership Ice Sheet. This has grave implications responsibility since black carbon is a in slowing regional warming when the for Arctic peoples and biodiversity and more potent climate forcing agent when Arctic Council foreign ministers meet for low-lying nations and communities emitted from within in Kiruna, Sweden in May. They could around the world. Scientists named or near the Arctic. embrace a proposal to launch talks on 2012 the “Goliath melt year” observing Particles have a a circumpolar instrument to reduce melting on over 90 per cent of the greater chance of emissions of the climate pollutant black mammoth Greenland Ice Sheet’s settling on Arctic carbon. surface; sea ice retreated to half the size ice and snow, Martin Williams is Arctic nations took on a special it was when measurements began in amplifying warming a professor at King’s commitment in the founding declaration 1979. and melting. A College London and serves as chair of of the Arctic Council for “…the Carbon dioxide (CO2) reductions seminal paper protection of the Arctic environment, remain the backbone of efforts to limit published recently the Executive Body including the health of Arctic the long term consequences of climate by a multinational of the Convention on ecosystems, maintenance of biodiversity change in the Arctic and globally. team of scientists, Long-range Trans- in the Arctic region and conservation However, its 100-year atmospheric Bounding the role boundary Air Pollution (CLRTAP). The article and sustainable use of Arctic resources.” lifespan means CO2 reductions alone of black carbon in In recent years, the Arctic Council has cannot avert further potentially the climate system, reflects his personal begun an evolution from an informal devastating warming and melting in states that black views only, not any science and policy body toward a more the Arctic in the near term. Rapid carbon has “twice policy of CLRTAP. formal regional intergovernmental reductions in emissions of short-lived the climate impact body that serves as a platform for the climate forcers, including black carbon, reported in previous negotiation of regional agreements to a component of fine particle pollution, assessments and help fulfill that pledge. Arctic ministers and methane have been identified ranks black carbon signed the first such regional agreement as the most effective strategy to slow as the “second most on Search and Rescue, at the Arctic warming and melting in the Arctic over important human Council’s 2011 ministerial meeting, the near term, giving the cultures and emission …; only Erika Rosenthal is and are poised to sign the second, on biodiversity of the region more time to carbon dioxide is an attorney with the oil spill preparedness and response, adapt and slowing the rise of sea levels estimated to have a public interest envi- in Kiruna this year. Ministers will also by reducing continental ice melting. greater forcing…”. ronmental law firm, decide in Kiruna whether to launch talks Black carbon Earthjustice. Both par- on a circumpolar instrument on black reductions are ticipated in the UNEP carbon, addressing arguably the most important for health Integrated Assessment critical issue of our times: mitigating as well as climate. of Black Carbon and climate change in a region of global The Arctic is warming It is a component Tropospheric Ozone. importance. twice as fast as the of fine particulate The Arctic is warming twice as fast as pollution that is the rest of the planet. 2012 was a record rest of the planet emitted by diesel engines, residential melt year for both summer sea ice and wood heating and some industries.

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TheCircle0113.indd 21 29.04.13 16.27 on SLCF and the UNEP Integrated Assessment have both shown that black carbon emissions reductions by the eight Arctic nations – using available technologies and known practices - can have a significant temperature impact in the region. Time is of the essence - the UNEP assessment showed that emissions reductions before 2030 will have the greatest impact - and Arctic Council nations are better positioned to lead having studied science-based mitigation opportunities in two working groups for more than four years. An Arctic regional agreement on black carbon, under the auspices of the Arctic Council, would complement and advance implementation of commitments under CLRTAP. This would do more in the region where it is most critical, to protect the health and ecosystems in the Arctic, and to slow sea level rise. An Arctic nation instrument on black carbon could start with agreement to submit black carbon emissions inventories, based on soon-to-be finalized CLRTAP guidelines, to track regional trends and identify mitigation opportunities; and the establishment of a mechanism for reporting and joint consultation on national mitigation action through the Arctic Council. Additional measures for a regional black carbon instrument could include the adoption of a common, circumpolar vision for black Icebergs Illulissat carbon emissions reductions, and the Photo: C. Tesar development of national mitigation It is associated with over a million extent it considers appropriate.” These action plans for black carbon. A premature deaths each year from measures were adopted based on the mechanism for technology transfer and respiratory and heart disease. recognition that reduction of black finance to facilitate enhanced mitigation The Convention on Long-range carbon would protect the Arctic and action may also be appropriate. Transboundary Air Pollution (CLRTAP) glaciated mountainous regions from A decision by the Council to has led the way. The May 2012 accelerated rates of melting of ice, snow launch negotiations on black carbon CLRTAP, of which all eight Arctic and permafrost, as well as provide reductions in the Arctic would be a states are parties, became the first significant public health benefits. welcome complement to the advances multilateral agreement to address While groundbreaking, CLRTAP’s under CLRTAP, and an important

black carbon. Amendments to the PM2.5 emission ceiling doesn’t apply step for nations of the region to Convention’s Gothenburg Protocol until 2020 and the black carbon move from analysis to action to fulfill establish emissions standards for fine reductions goals are voluntary. Arctic their commitment to protect the

particulate matter (PM2.5) and urge nation leadership is urgently needed extraordinary peoples, biodiversity Parties to “…seek reductions from to complement and accelerate black and ecosystems of the region. The time those source categories known to emit carbon efforts under CLRTAP. The for Arctic nations’ leadership on black high amounts of black carbon, to the Arctic Council’s own significant work carbon is now.

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TheCircle0113.indd 22 29.04.13 16.27 Photo: C. Tesar Indigenous drummers

Arctic Parliamentarians

MP Sara Olsvig has a Masters Degree in Arctic development by Anthropology from the University of Copenha- gen. She was elected to the Danish Parlia- ment in September the Peoples of the Arctic 2011, for the political party Inuit Ataqatigiit. She previously worked Pictures of melting ice, polar bears and whales, and graphs charting chang- at the Inuit Circumpo- ing temperatures are the most commonly shown images of the Arctic. lar Council (ICC) as Sara Olsvig (Inuit Ataqatigiit), MP for Greenland says the story too seldom Coordinator of Human Rights Issues, and as told is that of the people living in the Arctic – the people affected by global Executive Director. changes who have had to adapt to these changes for centuries.

As modern societies, Arctic peoples resources is considered to be the high- climate change and access to resources and nations develop their economies, est priority across the Arctic. But we are focuses on potential sub-surface oil and cultures and societies by harvesting the also subjected to increasing attention gas exploitation. There is no doubt the living resources which have always been from animal welfare activists and envi- Arctic is under scrutiny, and the socie- the source of sustenance in the high ronmental protectionists, particularly ties and peoples of the Arctic are shoul- north. Sustainable management of these in recent years as global debates on dering great responsibility. ➤

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TheCircle0113.indd 23 29.04.13 16.27 Arctic shipping routes and resource ple living in the Arctic, there is no doubt development are the core issues being Non-arctic states peace and safety are the core values on discussed internationally. They are also which the Arctic should continue to be the reason the Arctic is of increasing that want to operate developed. interest from non-Arctic states. Here, in the far north must Therefore a strong consensus on the Arctic Council plays a key role as the international agreements is needed in main governing body of the Arctic. All follow the accepted the Arctic. The five Arctic coastal states eight Arctic States are members, and six have already signed the Ilulissat Decla- Arctic Indigenous Peoples’ Organiza- Arctic standards re- ration in 2008 stating that international tions are permanent participants on the agreements, such as the UN Convention Council. This core structure is unique garding marine and on the Law of the Sea and the Interna- and goes all the way back to the estab- environmental safety tional Maritime Organization must be lishment of the Arctic Council in 1996. the basic tools for cooperation. More During the last two chairmanships, Arctic states should commit to these the Council has evolved from being a international agreements, and more policy-making body to become more practical cooperation must be devel- of a decision-making body. In 2011, the oped in the years to come. first legally binding legislation – the The Arctic as a region is vast. Com- Arctic Search and Rescue Agreement The Arctic is a developing region and mon solutions for environmental and – was signed in Nuuk, Greenland, with the peoples living here have the right to shipping surveillance, oil spill response, another binding agreement expected to be the decision makers in this develop- search and rescue and hydrographic be signed in 2013. Since 2011 the Coun- ment. With the increased attention on data collection will result in safer devel- cil has also had a permanent secretariat, resources and possible shipping routes, opment of this unique region. another indication of the Council’s there is more and more emphasis on the We must continue to govern the Arc- growing political clout. need for Arctic cooperation regarding tic with a human rights approach, with But as the Arctic Council gains more safety and environmental protection transparency and responsibility and an decision-making power, and as atten- as well as security and defense policy ultimate goal of cultural, social and eco- tion on the Arctic increases, so does the as the interaction between Arctic and nomic development for the peoples and desire by non-Arctic states to become non-arctic States increases. For the peo- societies living here. Observers at the Council. At this point, a number of states and international organizations have applied for Observer status, which I think is generally a good thing. As activities in the Arctic WWF CEO Vision Statements increase, so does the need for common standards. Non-arctic states that want to operate in the far north must follow Denmark the accepted Arctic standards regarding marine and environmental safety as well WWF Denmark would like the Arctic Council to address four main as transparency and good governance. issues in the upcoming term: climate change, Arctic fisheries, oil and In order to be fully informed about gas exploration and the need for ecosystem-based management. existing standards, laws and practices in For years now the consequences of climate change have been the Arctic, it is important to grant these experienced throughout Greenland, changing and threatening tradi- non-arctic countries and non-govern- tional ways of life. Gitte Seeberg, mental organizations Observer status. The lesser extent of sea ice has affected fisheries as well. Ice-free CEO WWF- Denmark This does not undermine the full waters put some stocks under pressure as fishing now can take participation of the Indigenous Peoples’ place throughout the year making management for sustainable fish- organizations as Permanent Partici- eries more important than ever. pants. These Indigenous organizations Ecosystem-based management should be the modus operandi in the Arctic future and represent a large percentage of the peo- the Arctic Council should work to support the management of the Last Ice Area. ple living in the Arctic, and it is of great Finally, we urge the Arctic Council to continue its focus on the risks and consequenc- importance that the peoples of the Arctic es associated with Arctic oil and gas exploration. Technologies for efficient clean-up take part in all decision making proc- must be developed and areas of ecological and biological significance conserved. esses and activities of the Arctic Council.

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TheCircle0113.indd 24 29.04.13 16.27 The European Union and the Arctic Time to boldly go Just under half of the states in the Arctic Council are members of the European Union. Iceland has also applied to join the EU (although polls in that country consistently show that a majority of its citizens oppose this). The EU has regional power, and legitimate Arctic interests through its Arctic member states, but as Adele Airoldi argues, it is slow and soft on Arctic issues.

The European Union seems to have dif- evolving Arctic policies and practices. Arctic research to the tune of roughly ficulty formulating new Arctic policy. In their territories and Exclusive 200 M euros over the last decade is The Arctic is relatively far – conceptu- Economic Zones – sea zones defined invariably proffered as the principal ally and geographically – from the EU’s by the United Nations Convention on justification for granting the EU a core interests. This explains why the EU the Law of the Sea – Arctic states have place at the Arctic has so far failed to make the critically clear jurisdiction and responsibility for Council. However, urgent situation in the Arctic a priority. shipping, fisheries and exploitation of EU research has EU institutions have instead made mineral resources. These are the main mainly focused stately, cautious pronouncements on activities and areas in which climate on furthering the its approach to Arctic issues: a first change is already having an impact, or is understanding of Adele Airoldi has policy paper by the European Commis- projected to bring fundamental changes. natural processes a masters degree in sion in 2008; conclusions by the EU The EU is a significant international affecting the Arctic, Polar Studies from the Council of Ministers in 2009; a Euro- economic and political power, and a particularly climate Scott Polar Research pean Parliament resolution in 2011 and major consumer of Arctic resources, and change. While that Institute. From 1981 most recently a policy paper in 2012 therefore it has legitimate interests and, remains the princi- to 2004, she worked on “progress since 2008 and next steps to varying degrees, competence in those pal threat to the far in the Secretariat of for developing EU Arctic policy” jointly same areas. north, today the EU the EU Council of released by the Commission and the The EU’s 2012 communication has little to offer in Ministers, principally European External Action Service – a touts “knowledge”, “responsibility” combating climate on environmental pol- recently established EU body compara- and “engagement” as the pillars for its change. Its emis- icy issues. She is the ble to a foreign affairs department. approach to a meaningful Arctic policy. sions reduction tar- author of a 2008 report These over-cautious overtures are While no one would deny these to be get of 20% by 2020 on the European inadequate for a region that is rapidly necessary concepts, the EU needs to has already been Union and the Arctic, evolving physically, socially and politi- undertake concrete, targeted action met, partly due to updated in 2010, for cally by an organization that should and where its strengths can have a positive the economic crisis, the Nordic Council of could immediately play a significant role impact. plus its emissions Ministers. in the Arctic. trading system has This timid approach reflects in great lost any impact on part the EU’s aspirations to be a Perma- emissions growth. Add to that the nega- nent Observer at the Arctic Council. The tive stance of important Arctic states, 2012 communiqué, for example, studi- and it is clear that the EU cannot exert a ously avoids any controversial stance, “over-cautious over- leading role. and instead repeatedly stresses the EU’s A more interdisciplinary approach, respect for the Arctic States’ sphere of tures are inadequate including socio-economic considera- action and its readiness to cooperate. tions, has been introduced in EU Arctic- Irrespective of whether it becomes an for a region that is related research in more recent years. Observer, the EU should exert its con- rapidly evolving” The 2012 communication indicates siderable expertise and influence on that the social and economic dimen-

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TheCircle0113.indd 25 29.04.13 16.27 WWF perspective tional debate on the creation of a regu- “the EU needs to latory framework. To act on oil and gas activities in be bolder” the Arctic would be far more controversial and delicate. Important Arctic states and stakeholders have clearly Transparent stewards expressed their opposition to any EU interference. But the EU could engage The Arctic Council is at a critical organizations such as the Nordic juncture in its evolution. Until the Council, which has expressed its con- 2011 Nuuk Ministerial meeting the cerns on this issue, and to those Arctic Arctic Council, operating through sion will be given an important place administrations, such as the United government technicians and experts, in future research projects, which will States, which appear more sensitive analyzed particular problems of General seek “policy-relevant results” to inform than others to the problems involved, Arctic interest and issued reports, and “economic and political decision-mak- to promote the determination of inter- sometimes included recommendations ing.” Again, that future horizon may be national standards for exploration and for actions. Some of these reports too distant. A mechanism allowing the extraction in the Arctic, and contribute did prompt action. For instance the systematic feeding of research results, the results of its ongoing research on reports of the Arctic Monitoring and including ongoing research, into the oil spills in Arctic waters. Assessment political process is needed now. Internal and external allies are need- Programme Also immediately needed is a clear ed for success. The EU has, unfortu- on pollution in expression of the EU’s current vision nately, so far failed to convince Arctic the Arctic were and the direction of its future com- inhabitants – particularly Indigenous instrumental mitment in the Arctic. The Council of Peoples – of the merits of greater EU Bill Eichbaum is in prompting Ministers representing EU Member involvement in the Arctic largely due the Vice President the Stockholm States, and the European Parliament to its infamous ban on imports of seal of Marine and Arctic Convention representing EU citizens should take a products. The 2012 communication Policy for WWF US of Persistent formal position that is politically if not only offers the promise of looking at Organic legally binding. Signals given so far are “appropriate ways” and “appropriate Pollutants. increasingly vague. platforms” for consultation of Indig- However, The EU needs to give concrete enous Peoples on EU policies affecting other reports were less successful at meaning to its assertion that protect- them. An early, targeted and sustained prompting the recommended actions, ing the Arctic environment remains effort of communication and follow-up such as the Arctic Climate Impact the cornerstone of its polar policy but needs to accompany any EU initiative. assessment. that a broader approach, linked with Non-governmental organizations At the Nuuk Ministerial there were the EU growth strategy to 2020, is such as WWF could be a useful go- some changes in this pattern, in that the required. between. Indeed, by addressing vigor- Arctic states decided to act unanimously In a word, the EU needs to be ously and relentlessly the EU admin- and multilaterally to tackle a common bolder. istration and the EU citizens, they can problem on a regional basis. A legally Assuming that the exploitation of help to spur the EU into action. binding agreement on Search and Arctic resources is unstoppable, the Rescue in the Arctic was agreed to by EU should use its weight as a consum- the Ministers. A decision was made to er of those resources, and the knowl- negotiate a similar agreement on oil and edge acquired through its research gas spill response. Additionally, it was effort, to ensure exploitation occurs decided to explore common perspectives according to internationally agreed- on ecosystem based management and upon high standards, and take the lead reduction of black carbon. for their determination. These discussions have raised An obvious area is that of future “Internal and ex- a critical issue that needs further Arctic fisheries, where changes are still ternal allies are elaboration if the Council is to evolve relatively distant and uncertain. The into a meaningful instrument for EU could openly support proposals needed for success” government stewardship of the Arctic. for a moratorium and initiate interna- That issue is whether governments will

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TheCircle0113.indd 26 29.04.13 16.27 WWF perspective important set of functions for the Arctic Council to perform as governments the Council serves implement recommendations of the as a common lens Council. These functions are not meant to replace the sovereign responsibilities through which to of national governments. But they are Transparent stewards designed to assure that the Council examine the effec- serves as a common lens through which give it ongoing responsibility to assure to examine the effectiveness of shared tiveness of shared that action is taken when committed national actions for better stewardship national actions to by ministers meeting as the Arctic of the Arctic. Among these functions are Council. For instance, good progress the following: for better steward- has recently been made on adoption Governments should report back to of the principle of ecosystem based the Arctic Council the steps they have ship of the Arctic. management. But beyond adopting taken to implement recommendations the principle, what will the Council of the Council and how effective those actually do to see whether Arctic steps have been. governments embed the principle The Arctic Council should report in national legislation? Thus, the from time to time to the public, on ecosystems often straddle national Council faces the issue of whether yet the basis of these reports and other boundaries). again it will approve a set of ideas and expert analysis, on the degree to Where new institutions for recommendations but will not monitor which implementation actions by intergovernmental cooperation or speak to their implementation by all governments have collectively on Arctic issues are agreed to by governments. contributed to improved stewardship of governments, the Arctic Council could WWF believes the Council must go the Arctic. serve as the neutral venue for such further. At the extreme, there appears The Arctic Council could take steps institutions. to be an apprehension among some to facilitate the exchange among Through a robust development of governments that this would mean governments of data and information actions along the lines suggested by that it would become an operational essential to the proper carrying the foregoing the Arctic Council can body and exercise power in a way that out of analytical processes and be an effective process, rather than an would begin to replace the authority implementation of recommendations. institution, helping governments of the of governments. This would neither The Arctic Council could facilitate region cooperate not only to analyze be possible under the existing legal cooperation among governments on issues but to act on them. Furthermore arrangements nor is it desirable or specific issues where such cooperation they can be seen by their own necessary. would assure more effective constituents and the global community Rather, it is clear that the implementation of recommended to be taking effective action to meet responsibility lies with governments actions, such as bi-national action their stewardship responsilities for this of the Arctic to first decide, through on ecosystem based management (as rapidly changing part of the earth. the Council, what substantive areas for cooperative action they wish to address. It is then the responsibility of WWF CEO Vision Statements governments through the processes of the Council and relying on government Finland and Indigenous experts and others in civil society to conduct substantive In the coming years several mining projects are in progress in analysis of those issues and proposed Finland as well as in other arctic countries. The rapidly increas- recommendations. It is then the role ing, energy-intensive extractive industry will have huge impacts on of the Ministers through the Council nature unless sustainably implemented. The Arctic Council should to determine whether to adopt such take a lead in creating high level sustainability standards for the recommendations. And, finally, it industry. This includes protecting nature conservation areas from all Dr. Liisa is the role of governments in their industrial activities. Rohweder, sovereign capacity to implement CEO WWF recommendations. Finland But WWF believes that there is an

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TheCircle0113.indd 27 29.04.13 16.27 Return WWF Global Arctic Programme 30 Metcalfe St, Suite 400, Ottawa ON K1P 5L4, Canada

The picture Inauguration in “place of many fish” Photo: Peter Prokosch

The Inauguration of the Arctic Council took place in 1998 in the northern Canadian city of Iqaluit, Inuktitut for “place of many fish.” Canada has not chaired the Arctic Council since it was formed under the Ottawa Declaration, establishing the council as a high-level forum between Canada, Russia, the U.S., Sweden, Finland, Iceland, Norway and Denmark.

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

www.panda.org/arctic

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