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The Politics of Development in Nunavut: Land Claims, Arctic Urbanization, and Geopolitics

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The Politics of Development in Nunavut: Land Claims, Arctic Urbanization, and Geopolitics University of Alberta The Politics of Development in Nunavut: Land Claims, Arctic Urbanization, and Geopolitics by Barret Weber A thesis submitted to the Faculty of Graduate Studies and Research in partial fulfillment of the requirements for the degree of Doctor of Philosophy Department of Sociology ©Barret Weber Spring 2013 Edmonton, Alberta Permission is hereby granted to the University of Alberta Libraries to reproduce single copies of this thesis and to lend or sell such copies for private, scholarly or scientific research purposes only. Where the thesis is converted to, or otherwise made available in digital form, the University of Alberta will advise potential users of the thesis of these terms. The author reserves all other publication and other rights in association with the copyright in the thesis and, except as herein before provided, neither the thesis nor any substantial portion thereof may be printed or otherwise reproduced in any material form whatsoever without the author's prior written permission. ABSTRACT This thesis surveys the development of Nunavut as not only a governmental and institutional entity but as a territory that is a political and social space both in the tradition of the Territories of the Canadian State and of Westphalian territorial government generally. It relies on Inuit everyday life, knowledge and values in the Eastern and Central Canadian Arctic. Drawing on first hand ethnographic fieldwork conducted primarily in Iqaluit, Nunavut, Canada, from 2008–2011; interviews with key informants; archival research, and participant observation in local, national and international governmental forums; Iqaluit, capital of Nunavut, is presented as a major case study. Iqaluit carries important lessons for evaluating processes of Arctic urbanization, the centralization and formation of communities and it has been challenged as a meaningful site for Inuit dwelling, rather than purely a governmental place. The poor image of Iqaluit is also related to the differential experience of migrants from other parts of the Arctic and local families who are successful as established insiders. In addition, minor case studies of the human dimensions of climate change and the debate on the European Union seal ban are presented. Attitudes towards social science research illustrate disagreements and conflict between “northern” publics and Canadian and international “southern” values. ACKNOWLEDGEMENTS It is more than a cliché to say that a dissertation requires an entire community of support to be possible in the first place. This has been confirmed to me over and over again throughout the PhD program. I have been fortunate enough to be generously supported over the years of conceiving of and ultimately writing this dissertation by friends, family and colleagues. I wish to thank them here as well as those whose names are surely left out (you know who you are): qujannamiik, merci, thank-you! The institutions that made this thesis possible provided seed grant monies such as fieldwork funds provided by INAC/CBAR via the Canadian Circumpolar Institute. This surely added to the richness of this work by enabling me to visit the north and meet many northerners on numerous occasions. I would also like to thank the Department of Sociology and the Canadian Circumpolar Institute at the University of Alberta for all the tireless monetary and collegial support over the years of graduate school. I extend my thanks to Rob Shields, Elaine Maloney, Lynn Van Reede, and Karen Hughes in those institutions. I particularly want to thank Jacqueline Koe-Schnell, Darlene Reid (late) and Patrick Kikoak with the Edmonton Inuit Cultural Society for assisting me with meeting local Inuks and studying Inuktitut. I also thank Eric Cameron in Public Affairs with the National Defence and the Canadian Forces for arranging a trip to Resolute Bay in 2011 as a media stakeholder. In Iqaluit, I would chiefly like to thank Mary Ellen Thomas and Mosha Cote with the Nunavut Research Institute, as well as Geela Tagak and Salomie Arualak for all their friendship during fieldwork. In terms of formal and informal interviews, I would also like to thank (in no particular order): John Amagoalik, Jason Carpenter, Susan Sammons (late), Cameron McGregor, Mikidjuk Akavak, Roy Inglangasuk, David Issakiark, Robert Eno, Edward Atkinson, Jack Hicks, Amanda Kilabuk, Thomas Suluk, Aaju Peter, Ed Zebedee, Moshe Cote, Mary Clark, Michelle McEwan, Lindsay Sowdluapik-Lloyd, Alethia Baril, Elisapee Sheutiapik, Rob Hogan, and Anja Jeffrey. In Greenland, Upaluk Poppel, Birger Poppel, Paaliit Olsen, and Mikisoq H. Lynge hosted me graciously. In Yukon, I would like to thank Elizabeth, Sarah and Paula Hanson for assistance during a brief stay at their place in August 2008. Within the context of the academic community, I would like to especially thank Rob Shields, Mark Nuttall, Phillip Steinberg, Jeremy Tasche, Hannes Gerhardt, Klaus Dodds, Bryan Sluggett, Emily Snyder, Brock Roe, Heidi Bickis, Charles Barbour, Paul Nonnekes, Tekke Terpstra, Paul Joose, and Imre Szeman for all their help in bringing this dissertation into the light of day. However, any limitations in this study are surely of my own making. I would also like to thank my family and, most importantly, Ondine Park for all her support and love through the best and the darkest of times. Without question, this project would not have happened quite the way it did without her intellectual companionship. LIST OF ABBREVIATIONS ACIA Arctic Climate Impact Assessment ANCSA Alaska Native Claims Settlement Act BNA British-North America Acts CHARS Canadian High Arctic Research Station CLCS Commission on the Limits of the Continental Shelf COPE Committee for Original Peoples’ Entitlement DOT Department of Transport Canada EEZ Exclusive Economic Zone GN Government of Nunavut GNWT Government of the Northwest Territories ICC Inuit Circumpolar Council IFA Inuvialuit Final Agreement INAC Indian and Northern Affairs Canada IPO Indigenous People’s Organization IQ Inuit Qaujimajatuqangit IRC Inuvialuit Regional Corporation ITC Inuit Tapirisat of Canada ITK Inuit Tapiriit Kanatami JBN James Bay and Northern Québec Agreement LILCA Labrador Inuit Land Claim Agreement NAC Nunavut Arctic College NCF Nunavut Constitutional Forum NIC Nunavut Implementation Commission NILCA Nunavik Inuit Land Claims Agreement NLCA Nunavut Land Claims Agreement NTI Nunavut Tunngavik Incorporated NWT Northwest Territories QIA Qikiqtani Inuit Association RCAF Royal Canadian Air Force SAC Strategic Air Command TEK Traditional Ecological Knowledge TFN Tungavik Federation of Nunavut UNCLOS United Nations Convention on the Law of the Sea USAF United States Air Force TABLE OF CONTENTS Abstract Acknowledgements List of Abbreviations Table of Contents List of Figures Figures 1-4 Introduction............................................................................................................. 1 a. Research Problem and Approach ............................................................ 3 b. Methodology and Research Process...................................................... 10 Part A: Nunavut Chapter 1 – Inuit History, Land Claims, and Northern Politics............................ 17 a. How Frontiers Expand .......................................................................... 26 b. Village Journey and ANCSA................................................................ 29 c. Thomas Berger and the Nunavut Project .............................................. 33 d. The NLCA............................................................................................. 35 e. Historical Precursors to NLCA ............................................................. 38 f. Changing the Face of Canada................................................................ 40 g. Post-1999 .............................................................................................. 45 h. Conclusion ............................................................................................ 48 Chapter 2 – Gavamanga (“People that Look After Others”): the Origins of Local Government in Northwest Territories and Decentralization in Nunavut.............. 49 a. The Postwar Origins of Local Government in the Northwest Territories ................................................................................................................... 50 b. The Carrothers Commission ................................................................. 56 c. “Building Nunavut”............................................................................... 65 d. “Footprints in New Snow”.................................................................... 69 e. Evaluating Successes and Failures of a Decentralized GN................... 71 f. “Qannukkanniq”, or, What is Next?...................................................... 76 g. Building Nunavut Through Decentralization?...................................... 80 h. Conclusion: In Defense of Decentralization ......................................... 84 Chapter 3 – Iqaluit, NU: From Community to City and Back Again? ................. 87 a. Iqaluit: The Name of a Place and a Debate........................................... 88 b. Excursus I: Second Fieldtrip to Iqaluit ................................................. 91 c. Nightlife in Iqaluit................................................................................. 95 d. Excursus II: A History of the Present: “Old Res”, Student Life in Iqaluit, and Military Origins ........................................................
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