The Arctic Council and Circumpolar Governance ONE ARCTIC Edited by P. Whitney Lackenbauer, Heather Nicol, and Wilfrid Greaves One Arctic © The authors, 2017 CANADIAN ARCTIC CENTRE ON FOREIGN POLICY RESOURCES COMMITTEE AND FEDERALISM 488 Gladstone Ave St. Jerome’s University Ottawa, Ontario K1N 8V4 290 Westmount Road N. http://carc.org/ Waterloo, ON, Canada N2L 3G3 www.sju.ca/cfpf All rights reserved. This ebook may not be reproduced without prior written consent of the copyright holder. Lackenbauer, P. Whitney, Heather Nicol, and Wilfrid Greaves, editors One Arctic Issued in electronic format. ISBN: 978-0-9684896-4-2 (pdf) Page design and typesetting by P. Whitney Lackenbauer Cover design by P. Whitney Lackenbauer Cover photos by P. Whitney Lackenbauer Distributed by the Canadian Arctic Resources Committee and the Centre on Foreign Policy and Federalism Please consider the environment before printing this e-book The Arctic Council and ONE ARCTIC Circumpolar Governance Edited by P. Whitney Lackenbauer, Heather Nicol and Wilfrid Greaves 2017 One Arctic Acknowledgements Several contributors participated in a workshop, One Arctic? The United States and the Arctic Council, hosted at the Woodrow Wilson International Center for Scholars in Washington in April 2016, which explored the history of institutional capacity-building in the region, the explosion of Arctic Council issue areas, the transition of the Council Chairmanship from Canada to the US, and the role of sub-national governments and organizations in Council activities. This workshop was possible thanks to the generous support of: the Social Sciences and Humanities Research Council of Canada (SSHRC) Connection Grant program; Trent University, the School for the Study of Canada and Frost Centre for Canadian Studies and Indigenous Studies; the University of Washington’s Henry M. Jackson School of International Studies, Future of Ice initiative, and the Global Business Center in the Michael G. Foster School of Business; the World Policy Institute, New York City; and Western Washington University's Canadian American Studies Centre. Other chapters grew from a panel on the Arctic Council at the Understanding Sovereignty and Security in the Circumpolar Arctic conference co-hosted by the Bill Graham Centre for Contemporary International History and the Centre for Foreign Policy and Federalism at the University of Toronto in January 2016. We acknowledge the generous support of the Social Sciences and Humanities Research Council of Canada (SSHRC) Connection Grant program (award number 611-2015-0038), St. Jerome’s University, the Graham Centre, and the Network of European Union Centres of Excellence. Thanks to Rob Huebert, Ed Struzik, and anonymous reviewers for their feedback on the collection, as well as research assistant Corah Hodgson at the Centre on Foreign Policy & Federalism for providing a thorough, final copy edit of the page proofs. One Arctic One Arctic Contents Introduction by P. Whitney Lackenbauer, Heather Nicol and Wilfrid Greaves . i 1. The Arctic Council: Between Continuity and Change by Małgorzata (Gosia) Śmieszek and Timo Koivurova ................................................................... 1 2. Leadership from the Chair: The Experience of Three Successive Chairmanships of the Arctic Council by Douglas C. Nord ....................... 27 3. Conceptualizing “One Arctic” as the “Canadian Arctic”? Situating Canada’s Arctic Council Chairmanship (2013-15) by P. Whitney Lackenbauer ...... 46 4. Understanding Canada’s Role in the Evolution of the Arctic Council by Andrew Chater ......................................................................................... 78 5. Environmental Security, Energy Security, and the Arctic in the Obama Presidency by Wilfrid Greaves ................................................................ 101 6. Is A Melting Arctic Making The Arctic Council Too Cool? Considering the Credibility, Saliency and Legitimacy of a Boundary Organization by Jennifer Spence .................................................................................................... 126 7. One Arctic … But Uneven Capacity: The Arctic Council Permanent Participants by Jim Gamble and Jessica M. Shadian ................................ 142 8. Ukiuqta’qtumi Hivuniptingnun – One Arctic, One Future by Nadine C. Fabbi, Jason C. Young, and Eric W. Finke .. Error! Bookmark not defined. 9. International Relations Theory and the Evolution of the Arctic Council by Daniel Pomerants ................................................................................... 179 10. The Arctic Council and the “One Arctic”: A historic stocktaking of some circumpolar challenges, dilemmas and inconsistencies by Willy Østreng . 191 Contributors ................................................................................................ 206 Index ........................................................................................................... 211 One Arctic Lackenbauer, Nicol, and Greaves - Introduction Introduction P. Whitney Lackenbauer, Heather Nicol and Wilfrid Greaves Eight countries make up the Arctic: the Kingdom of Denmark, Iceland, Norway, Sweden, Finland, Russia, the United States and Canada. And nothing would be worse than each of these countries trying to exploit the maximum instead of working with the other countries to promote responsible stewardship. Nothing could be worse than militarization based on mistrust between these countries that are neighbours. The Arctic Council is the way to create cooperation among eight countries that cling strongly to their sovereignty … Also at the table, and this is crucial to the Council’s success, the Indigenous Permanent Participants—from Canada, the Inuit Circumpolar Council, the Gwich’in Council International and the Arctic Athabaskan Council, as well as the Aleut International Association, the Saami Council and the Russian Association of Indigenous Peoples of the North. In the words of the Inuit Circumpolar Council, words later borrowed by the current U.S. Chairmanship of the Arctic Council, the aim is, and I quote, “One Arctic: shared opportunities, challenges and responsibilities. -- Pamela Goldsmith-Jones, Parliamentary Secretary to the Canadian Minister of Global Affairs, 29 September 2016 Since its founding through the Ottawa Declaration in September 1996, the Arctic Council has, to quote the U.S. State Department (2011), evolved to become “the preeminent forum for international cooperation in the Arctic.” The eight member Council is the key intergovernmental body for regional cooperation in addressing environmental and sustainable development challenges in the circumpolar north, and plays a vital role in conveying Arctic perspectives to other international and global organizations. Although a high- level “discussional and catalytic” venue rather than a political decision-making i