UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Det Udenrigspolitiske Nævn 2021-22
UPN Alm.del Bilag 304
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FRONT COVER: Roberta Bondar,

Meltwater Quttinirpaaq National Park, Nunavut,

1999 & 2014,

Chromira Print, 32 x 32 in., Image courtesy of the artist.

For more information please contact us:

by email:

[email protected]

by mail: The Special Senate Committee on the Arctic

Senate, Ottawa, Ontario, Canada, K1A 0A4

This report can be downloaded at:

www.sencanada.ca/

The Senate is on Twitter: @SenateCA,

follow the committee using the hashtag #ARCT

Ce rapport est également offert en français

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

TABLE OF CONTENTS

THE COMMITTEE MEMBERSHIP ........................................................................................................... 5

ORDER OF REFERENCE .......................................................................................................................... 7

THE FUTURE IS NOW: INTRODUCTION OF THE CHAIR AND DEPUTY CHAIR ....................................... 9

EXECUTIVE SUMMARY ........................................................................................................................ 11

LIST OF RECOMMENDATIONS ............................................................................................................. 13

INTRODUCTION ................................................................................................................................... 17

BACKGROUND – THE ARCTIC IN CONTEXT ......................................................................................... 21

Governance ....................................................................................................................... 21

Climate Change ................................................................................................................. 27

CHAPTER 1: HEALTHY ECONOMIES TO BENEFIT THE ARCTIC ............................................................ 29

Economic Challenges and Opportunities ........................................................................................ 29

Churchill, Manitoba........................................................................................................... 33

Northwest Territories ....................................................................................................... 33

Nunavut............................................................................................................................. 35

Nunatsiavut ....................................................................................................................... 36

Nunavik ............................................................................................................................. 37

Yukon ................................................................................................................................ 38

Continuum of Housing ...................................................................................................... 42

Air and Road Transportation............................................................................................. 43

Marine, Emergency Response and Navigation ................................................................. 44

Broadband Telecommunications ...................................................................................... 45

Energy ............................................................................................................................... 47

Education Skills Gap .......................................................................................................... 49

Pathways to Post-Secondary Education ........................................................................... 50

Public Sector ..................................................................................................................... 52

Private Sector .................................................................................................................... 53

Conservation Sector Opportunities .................................................................................. 55

Arctic Growth Depends on Infrastructure Development ............................................................... 39

Education, Skills and Employment .................................................................................................. 49

Growing a Local Workforce ............................................................................................................ 52

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

CHAPTER 2 - CULTURE AS A PATHWAY TO STRONG AND HEALTHY COMMUNITIES ......................... 57

Culture is Healing ............................................................................................................................ 57

Protecting Indigenous Ways of Life ................................................................................................ 60

Art, Culture and Identity ................................................................................................................. 63

Supporting Inuit Media ..................................................................................................... 64

Federal Programs for Art and Culture .............................................................................. 65

Supports for Emerging Artists ........................................................................................... 68

CHAPTER 3: SCIENCE, INDIGENOUS KNOWLEDGE AND ENVIRONMENTAL CONSERVATION ............ 70

Arctic Communities’ Knowledge Needs.......................................................................................... 70

Increasing Community Sustainability................................................................................ 70

Preparing for Tourism and Resource Development Opportunities.................................. 73

Research Infrastructure .................................................................................................... 74

Capacity of Territorial and Indigenous Organizations ...................................................... 77

Research Funding .............................................................................................................. 78

Arctic Research Infrastructure and Capacity .................................................................................. 74

Incorporation of Indigenous Knowledge in Arctic Research .......................................................... 80

Environmental Conservation: Towards a Conservation Economy ................................................. 84

Community-Driven Environmental Conservation............................................................. 84

Building a Conservation Economy .................................................................................... 87

CHAPTER 4: THE ARCTIC IN A GLOBAL CONTEXT ................................................................................ 89

The Arctic Heats Up: Contending Perspectives .............................................................................. 90

Arctic Exceptionalism ........................................................................................................ 90

The Arctic as a Potential New Platform for International Rivalry .................................... 99

Avenues for Cooperation in a Changing Arctic ............................................................... 108

Arctic Sovereignty: Co-Management of the Inuit Homeland ......................................... 111

Arctic Diplomacy and Development of International Agreements ................................ 112

Marine Shipping and Supporting Community Infrastructure ......................................... 114

Inuit and Arctic First Nations’ International Priorities .................................................................. 110

APPENDIX A: WITNESSES WHO APPEARED BEFORE THE COMMITTEE ............................................ 117

APPENDIX B: WITNESSES WHO APPEARED DURING THE FACT-FINDING MISSION ......................... 126

APPENDIX C: WRITTEN SUBMISSIONS .............................................................................................. 131

APPENDIX D: REPORTS PERTAINING TO THE ARCTIC ....................................................................... 134

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

THE COMMITTEE MEMBERSHIP

The Honourable

Dennis Glen Patterson

Chair

The Honourable

Patricia Bovey

Deputy Chair

The Honourable Senators

Margaret Dawn

Anderson

Mary Coyle

Donna Dasko

Joseph A. Day

Nicole Eaton

Richard Neufeld

Victor Oh

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

Ex-officio members of the committee:

The Honourable Peter Harder, P.C. (or Diane Bellemare), or (Grant Mitchell)

The Honourable Larry W. Smith (or Yonah Martin)

The Honourable Yuen Pau Woo (or Raymonde Saint-Germain)

The Honourable Joseph A. Day (or Terry M. Mercer)

The committee would like to recognize the following Senators who are no longer serving

members of the committee whose contribution to the study was invaluable:

The Honourable Senators: Yvonne Boyer, Rosa Galvez, Marilou McPhedran, Kim Pate and Charlie Watt

(retired).

Other Senators who have participated in the study:

The Honourable Senators: Gwen Boniface, Colin Deacon, Marc Gold, Mobina Jaffer, Mary Jane

McCallum, Paul E. McIntyre and Carolyn Stewart Olsen.

Parliamentary Information and Research Service, Library of Parliament:

Sara Fryer and Thai Nguyen, Analysts

Senate Committees Directorate:

Maxime Fortin, Committee Clerk

Lynn Gordon, Committee Clerk

Debbie Larocque, Administrative Assistant

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

ORDER OF REFERENCE

Extract from the

Journals of the Senate,

Wednesday, September 27, 2017:

Resuming debate on the motion of the Honourable Senator Watt, seconded by the Honourable

Senator Cordy:

That a Special Committee on the Arctic be appointed to consider the significant and rapid changes

to the Arctic, and impacts on original inhabitants;

That the committee be composed of ten members, to be nominated by the Committee of

Selection, and that five members constitute a quorum;

That the committee have the power to send for persons, papers and records; to examine

witnesses; and to publish such papers and evidence from day to day as may be ordered by the

committee;

That the committee be authorized to hire outside experts;

That, notwithstanding rule 12-18(2)(b)(i), the committee have the power to sit from Monday to

Friday, even though the Senate may then be adjourned for a period exceeding one week; and

That the committee be empowered to report from time to time and to submit its final report no

later than December 10, 2018, and retain all powers necessary to publicize its findings until 60 days

after the tabling of the final report.

After debate,

In amendment, the Honourable Senator Plett moved, seconded by the Honourable Senator

Wells:

That the motion be not now adopted, but that it be amended in the second paragraph:

1. by replacing the word “ten” by the word “nine”; and

2. by replacing the word “five” by the word “four”.

The question being put on the motion in amendment, it was adopted.

The Senate resumed debate on the motion, as amended, of the Honourable Senator Watt,

seconded by the Honourable Senator Cordy:

That a Special Committee on the Arctic be appointed to consider the significant and rapid changes

to the Arctic, and impacts on original inhabitants;

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

That the committee be composed of nine members, to be nominated by the Committee of

Selection, and that four members constitute a quorum;

That the committee have the power to send for persons, papers and records; to examine

witnesses; and to publish such papers and evidence from day to day as may be ordered by the

committee;

That the committee be authorized to hire outside experts;

That, notwithstanding rule 12-18(2)(b)(i), the committee have the power to sit from Monday to

Friday, even though the Senate may then be adjourned for a period exceeding one week; and

That the committee be empowered to report from time to time and to submit its final report no

later than December 10, 2018, and retain all powers necessary to publicize its findings until 60 days

after the tabling of the final report.

The question being put on the motion, as amended, it was adopted.

ATTEST

Nicole Proulx

Clerk of the Senate

Extract from the

Journals of the Senate,

Thursday, November 29, 2018:

The Honourable Senator Patterson moved, seconded by the Honourable Senator MacDonald:

That, notwithstanding the order of the Senate adopted on Wednesday, September 27, 2017, the

date for the final report of the Special Senate Committee on the Arctic in relation to its study on the

significant and rapid changes to the Arctic, and impacts on original inhabitants be extended from

December 10, 2018 to September 30, 2019.

The question being put on the motion, it was adopted.

ATTEST

Richard Denis

Clerk of the Senate

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

THE FUTURE IS NOW: INTRODUCTION OF THE CHAIR

AND DEPUTY CHAIR

Northern Lights: A Wake-Up Call for the Future of Canada

is the result of the Senate Special

Committee on the Arctic’s year-long study. Its title reflects the urgency resulting from a history of

neglect and disregard, and the deep connection to the land and environment, and references the

aurora borealis and its link to Northern people’s ancestors. It underlines the plethora of future

opportunities of Canada’s north. The North

the future of Canada in countless ways. The issues

are urgent; the recommendations require immediate action.

The parameters are the six themes of the government’s Arctic Policy Framework (APF). Mandate

letters of the Minister of Crown-Indigenous Relations and the Minister of Intergovernmental and

Northern Affairs, had the stated goal to “continue to advance work on a shared Arctic Leadership

model and support northern programming, governing institutions, and scientific initiatives.” The APF

was not released by the time of our writing. May this report assist in developing a living,

comprehensive long-term Arctic policy.

The testimonies we heard, and information garnered on the committee’s fact-finding mission to

Canada’s North, proved that multiple issues intersect, affecting the daily lives of Northerners as well

as well as Canada’s national security and international relations. Time and internet connectivity

precluded an exhaustive study, but it became clear the committee should be permanent, charged

with further work and monitoring the many concerning situations. These interconnecting issues

include northerners’ health, economy, housing, security, education, food, culture, language,

communications, climate change, shipping and more. The breadth and scope of the Arctic is vast.

The concerns are now covered by many government departments. We believe the continued

collegial, constructive and consensus-based approach of a single, non-partisan parliamentary

committee, wholly focused on the north, will be foundational in moving the APF forward.

Government policies must align with the various priorities of northerners, both Indigenous and non-

Indigenous, empowering northerners to create their own programs and initiatives. The ultimate

goal, in our committee’s view, should be the eventual devolution of decision-making powers about

northern issues to northern institutions - decisions about the North must be made in the North, for

the North and by the North.

We thank former Senator Charlie Watt for his dedicated efforts to establish a Special Senate Arctic

Committee. We also thank committee and office staffs, the clerks and analysts. All have contributed

greatly to ensure the committee operated as efficiently as possible. We thank the artists, right

holders, copyright holders and photographers, too, for permission to use their work in this report. It

is an honour to present works of art by Canadian artists, these being particularly germane to the

scope of the report. Finally, we would like to convey our sincere appreciation to all the witnesses

who appeared before the committee and the warmth of those whom we met on tour. Your

testimony and all your comments were critical to our conclusions and recommendations.

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Northern Lights:

A Wake-Up Call for the Future of Canada

With everything we have heard and seen regarding the very serious issues the North faces and the

Arctic being an essential part of Canada, we believe that the Special Senate Committee on the Arctic

become a permanent Standing Committee of the Senate of Canada.

Senator Dennis Patterson

Chair

Senator Patricia Bovey

Deputy Chair

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

EXECUTIVE SUMMARY

For far too long, the Arctic and northern regions have been neglected by Canada. Crises remain

unresolved and the well-being of residents, left to tackle enormous challenges on their own, has

been overlooked. Arctic residents are more than up to the task of resolving these challenges and

they know what needs to be done. It is essential that the Government of Canada recognize that the

Arctic requires greater attention, investment and consistent support from the federal government,

to complete Canada’s nation-building project. The impact of federal underinvestment hits hardest

on the Arctic’s greatest asset, Indigenous youth. Opportunities for nation-building can no longer be

missed.

As highlighted by the title of this report,

Northern Lights: A Wake-Up Call for the Future of Canada,

the Special Senate Committee on the Arctic (the committee) understands that the Arctic is Canada’s

future. This report is an urgent wake-up call. The committee’s mandate was to study the “significant

and rapid changes to the Arctic and impacts on original inhabitants.”

As the Government of Canada

prepares a new policy framework for the Arctic, this study recommends important changes for

federal policy in areas such Canada’s sovereignty and safety, devolution of federal programs and

services and investments in infrastructure to support the well-being and future prosperity of Arctic

communities. This report, like others before it,

makes recommendations that Arctic residents have

raised time and time again.

Canada’s Sovereignty in the Arctic

Arctic residents keenly observed other countries’ interest in the region’s natural resources and the

Northwest Passage. The committee recommends that the Government of Canada ensure the

Canadian Arctic security and safety and assert and protect Canada’s sovereignty in the Arctic. In the

committee’s view, actions ensuring prosperous, sustainable and safe Arctic communities are vital to

enhance Canada’s ability to project its Arctic foreign policy, including sovereignty in the region.

Empowering Arctic Residents

The committee heard from numerous federal departments with responsibilities related to the Arctic,

often working in silos. Indigenous and territorial leaders stressed that policy, legislation and service

delivery must occur in the North, by the North, for the North. The committee therefore recommends

that the Government of Canada develop a strategy that: 1) empowers Arctic and northern

governments to assume roles in delivering federal programs and services to its residents; and 2)

devolves federal programs and services related to the Arctic and northern regions to local, territorial

and Indigenous governments.

Senate of Canada,

Journals,

No. 142, 1

Session, 42

Parliament, 27 September 2017.

A list of parliamentary reports pertaining to the Arctic is included as an appendix.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

Infrastructure Building to Face the Challenges of a Changing Arctic

With little infrastructure in many communities in the Arctic, people struggle to access water and

sanitation, housing, good schools and healthcare. As the climate warms and permafrost thaws, the

urgency of the Arctic’s challenges come into plain view: traditional food supplies are threatened;

homes are endangered by the rising seas and the ice becomes unsafe for travel.

Understanding that Arctic communities deserve better, the committee recommends that the

Government of Canada: 1) complete a building code adapted to Arctic conditions and the effects of

climate change; 2) implement an action plan to mitigate the effects of climate change on existing

and new infrastructure, including housing; 3) take immediate measures to address the housing crisis

in the Arctic by funding a complete continuum of Arctic housing; and 4) report on the effects of its

investments on housing annually to local, Indigenous and territorial governments. Broadband

telecommunications access in the Arctic is unavailable, poor and, where available, expensive and

often unreliable. The committee agrees with witnesses that broadband access is necessary and

recommends that the Government of Canada establish a broadband telecommunications action plan

with dedicated funds to support fibre deployment to underserved regions in the Canadian Arctic by

March 2020.

The committee strongly believes that the social, cultural and economic well-being of Arctic residents

should be the cornerstone of the forthcoming federal policy framework for the Arctic and northern

regions. Implementation of the recommendations put forward by this report will contribute to the

effectiveness of that framework for the future of Canada.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

LIST OF RECOMMENDATIONS

HEALTHY ECONOMIES TO BENEFIT THE ARCTIC

1. That the Government of Canada adopt a consistent definition of the Arctic with respect to

legislation, policy directives and programs.

2. That the Government of Canada develop a strategy that: 1) empowers Arctic and northern

governments to assume roles in delivering federal programs and services to its residents; and

2) devolves federal programs and services related to the Arctic and northern regions to local,

territorial and Indigenous governments.

3. That the Government of Canada: 1) provide greater financial support towards the

implementation of comprehensive land claims agreements, including land use planning

processes and governance of regulatory boards; and 2) consult and cooperate with Indigenous

and territorial governments to develop co-management regimes with respect to the Arctic

offshore waters.

4. That the Government of Canada appoint a Minister of Northern Affairs in control of its own

parliamentary appropriation and that this cabinet position report annually to Parliament on its

activities.

5. That the Government of Canada, in partnership with Indigenous and territorial governments,

establish an Arctic Infrastructure Bank to fund new infrastructure and mitigate the effects of

climate change on existing infrastructure, and to ensure the funds are directed based on Arctic

needs.

6. That the Government of Canada: 1) direct the National Research Council to complete a building

code adapted to Arctic conditions and the effects of climate change; 2) implement an action

plan to mitigate the effects of climate change on existing and new infrastructure, including

housing; 3) take immediate measures to address the housing crisis in the Arctic by funding a

complete continuum of Arctic housing; and 4) report on the effects of its investments on

housing annually to local, Indigenous and territorial governments.

7. That the Government of Canada establish a broadband telecommunications action plan with

dedicated funds to support fibre deployment to underserved regions in the Canadian Arctic by

March 2020.

8. That the Government of Canada ensure Arctic and northern communities have reliable and

secure forms of energy, including renewable energy and alternates to diesel based on locally

identified priorities and opportunities.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

9. That the Government of Canada support Indigenous and/or territorial governments to: 1)

increase funding for Basic Adult Education in the Arctic; 2) ensure students can pursue studies

in their Indigenous language; and 3) support the Government of Nunavut to establish a

university in the Eastern Arctic.

10. That the Government of Canada, in partnership with Indigenous and territorial governments,

build upon and support existing territorial education and labour force strategies based on

Arctic peoples’ priorities and needs, to decrease the reliance on southern workers.

11. That Employment and Social Development Canada and Innovation, Science and Economic

Development Canada: 1) immediately adapt its skills and employment programs to the

educational attainment and labour force realities of the Arctic; 2) with Indigenous and

territorial governments, use data to better target federal investments in post-secondary

education and training to Arctic peoples’ priorities and the labour market to meet the needs of

this generation of Arctic youth; and 3) invest in post-secondary education and training in such

areas as trades, arts and conservation sectors, or other priorities as identified by northerners.

CULTURE AS A PATHWAY TO STRONG AND HEALTHY COMMUNITIES

12. That the Government of Canada, with Indigenous, territorial and local governments, take

immediate measures to address the social determinants of health that takes into account

Indigenous norms, values and languages in the Arctic and northern regions with specific

investments, goals and measurable outcomes reported annually to both houses of Parliament.

13. That Canadian Heritage increase its investments in the Northern Aboriginal Broadcasting

Program and extend multi-year, flexible funding specific to Arctic recipients so they can

produce content in the Indigenous language of their choice.

14. The Government of Canada, in close collaboration with local, Indigenous and territorial

governments, support the development of multi-use community centres for the practice of

arts, culture and language.

15. That the Government of Canada and the Canada Council for the Arts work with Indigenous and

Arctic arts organizations, to provide local outreach to Arctic and northern artists, including

specific supports to emerging artists in such areas as building capacity to apply for grants and

to exhibit their work.

SCIENCE, INDIGENOUS KNOWLEDGE AND ENVIRONMENTAL CONSERVATION

16. That the Government of Canada collaborate with territorial governments, Arctic Indigenous

governing bodies, academic institutions and industry to grow the scientific capacity of northern

agencies and peoples responsible for devising adaptation efforts to climate change.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

17. That the Government of Canada create mechanisms for Arctic Indigenous representational

organization’s input into federal research governance bodies, and partner with Arctic

Indigenous governing bodies and communities in setting Arctic research priorities as it relates

to funding requirements.

18. That the Government of Canada, with Indigenous governing bodies and organizations, develop

a government-wide policy to direct how Indigenous knowledge and science can be better

synergized to reflect a holistic approach, including the recognition of intellectual property

rights of Indigenous knowledge holders.

19. That the Government of Canada: 1) Support community-driven environmental conservation

efforts; 2) Recognize the central role of co-management bodies in the Arctic when proposing

environmental conservation initiatives; and 3) Ensure collaborative governance in

environmental decision-making.

20. That the Government of Canada recognize socio-economic and cultural equity opportunities

in Arctic environmental conservation and invest in the development of infrastructure and

Indigenous environmental stewardship initiatives that support a conservation economy.

THE ARCTIC IN A GLOBAL CONTEXT

21. That the Government of Canada enhance support for the University of the Arctic to provide

Arctic youth with international learning opportunities and enable the network to increase its

activities in Canada and throughout the circumpolar Arctic.

22. That the Government of Canada increase support for international Arctic scientific

cooperation, while ensuring that scientific activities conducted in the Canadian Arctic are

focused on the knowledge needs of local Arctic residents.

23. That the Government of Canada ensure the Canadian Arctic’s security and safety and assert

and protect Canada’s sovereignty in the Arctic.

24. That the Government of Canada, on an immediate basis, establish a robust governance regime

to regulate activities in Canada’s Arctic waters, including shipping corridors, and bonding and

insurance requirements. Such a regulatory regime must include the active involvement and

participation of Arctic Indigenous governing bodies and communities.

25. That the Government of Canada enhance maritime and aerial situational awareness of the

Canadian Arctic, including improving the icebreaking capacity of the Canadian Coast Guard, and

equipping the Canadian Rangers’ with marine capabilities.

26. That the Government of Canada propose the establishment of a Pan-Arctic Infrastructure Bank

at the Arctic Council and ensure an improved investment climate and trade flow in the

circumpolar Arctic Region.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

27. That, to ensure regional stability and facilitate information-sharing, the Government of Canada

establish a forum dedicated to Arctic security issues involving the participation of all Arctic

states.

28. That, to reinforce international Arctic cooperation, the Government of Canada increase its

involvement at the Arctic Council as well as bolster funding for Indigenous permanent

participants of the Council.

29. That the Government of Canada increase Arctic Indigenous representation at international

forums and treaty negotiations related to the Arctic, including the

United Nations Convention

on the Law of the Sea

process.

30. That the Government of Canada address the urgent need to enhance search and rescue and

emergency protection infrastructure in the Arctic, and ensure Arctic Indigenous communities

are involved in the management of this infrastructure.

UPN, Alm.del - 2021-22 - Bilag 304: Senator Pattersons arktiske rapport

Northern Lights:

A Wake-Up Call for the Future of Canada

INTRODUCTION

On 27 September 2017, the Senate of Canada adopted a motion to establish a Special Committee on

the Arctic (“the committee”) to consider “significant and rapid changes to the Arctic and impacts on

original inhabitants.”

The purpose of the study is to advance recommendations to the federal government as it prepares

a new policy framework for the Arctic and northern regions of Canada. The committee agreed to

study the following topics: economic development and infrastructure, Arctic peoples and

communities, protecting the environment and biodiversity, Arctic science and Indigenous

knowledge, and the Arctic in a global context.

For the purposes of the study the committee adopted a broad definition of the Arctic which includes

the Northwest Territories and Yukon, the Inuit homeland known as

Inuit Nunangat,

comprised of

Inuvialuit, Nunatsiavut, Nunavik and Nunavut; along with northern Manitoba.

Figure 1 – Map of Arctic and Northern Regions

Source:

Canada (NRCan),

Atlas of Canada National Scale Data 1:5,000,000 Series,

“Boundary Polygons” and “Waterbodies”, Ottawa, 2013; NRCan,

Administrative Boundaries in Canada

- Canvec Series,

“Administrative Features”, Ottawa, 2018; NRCan,

Atlas of Canada National Scale Data 1:1,000,000 Series,

“Place

Names”,

Ottawa, 2014; Indigenous and Northern Affairs Canada

(INAC),

Inuit Regions (Inuit Nunangat),

Gatineau, 2017; INAC,

Inuit Communities Location,

Gatineau, 2016; Natural Earth,

Physical Vectors,

“Geographic Lines”, 1:10m, version 4.1.0; and Jackie

Dawson et al., “Temporal and Spatial Patterns of Ship Traffic in the Canadian Arctic from 1990 to 2015”, Arctic, Vol. 71, No. 1, 2018, p. 18. The following software was used: Esri,

ArcGIS PRO v. 2.1.0.

Contains information licensed under

Open Government Licence – Canada.

Senate of Canada,

Journals,

No. 142, 1

Session, 42

Parliament, 27 September 2017.

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Northern Lights:

A Wake-Up Call for the Future of Canada

Essential to its work was to hear from Arctic residents directly. The committee travelled to the Arctic

in September 2018, held meetings in Kuujjuaq, Nunavik; Iqaluit, Baker Lake, and Cambridge Bay,

Nunavut; Yellowknife and Inuvik, the Northwest Territories and Whitehorse, Yukon. While it heard

from a wide array of witnesses, including Indigenous leaders, governments, community members,

youth, business representatives and industry, unfortunately it did not hear from several First Nations

governments, from youth associations nor women’s organizations under the timeframe it had to

complete its work.

The Arctic is quickly changing, and territorial and Indigenous leaders alike observed that the changing

climate threatens every part of daily life. As a witness described, “The threat to our traditional

territory, our lands, animals and fish are very real and ongoing.”

The Arctic and its surrounding

oceans will continue to warm at a faster rate than the rest of the globe,

which will increase extreme

weather events like flooding and fires and reduce permafrost and sea ice, making navigation

increasingly dangerous. The rising waters threaten coastal communities. While some see an Arctic

without sea ice in the coming years, others stressed that the ice will be less reliable

as the climate

warms, posing problems with harvesting and hunting, dramatically changing conditions for fishing,

transportation and responding to emergencies.

Canada has long neglected the Arctic by leaving its nation-building project unfinished. From food

security to access to education and health care, the high cost of living and aging or non-existent

infrastructure, the Arctic’s residents are marginalized by their exclusion from investment. Canada

falls even further behind when it is compared with other circumpolar countries, which make

significant investments in the Arctic regions.

The impact of the underinvestment hits hardest on the Arctic’s greatest asset, Indigenous youth. The

Arctic’s population is young, and this generation deserves greater supports to act on their priorities,

so they can deal with the rapid social and economic changes the Arctic is facing.

While the Government of Canada is preparing a policy for the future of the Arctic, it has committed

to building a new relationship with First Nations, Inuit and Métis peoples. Indigenous peoples in the

Arctic are addressing the legacies brought about by the era of colonialism which, over a very short

period of time, brought about disastrous consequences to Arctic Indigenous peoples. The era of

colonialism gave rise to the relocations of Inuit, the “Eskimo identification” program, project

surname, the establishment of settlements and forced attendance of Indigenous children in

residential schools. This history has been exacerbated by policy and programs designed and delivered

from southern Canada.

As shared by the Qikiqtani Inuit Association, “Doing the hard work to address colonial policies and

decisions is both very raw and necessary for Inuit to move forward with future opportunities.” The

Arctic and Northern Policy Framework (‘the framework’) must be centred upon locally-identified

Senate, Special Committee on the Arctic, Steve Smith, Chief, Champagne and Aishihik First Nations,

Evidence,

11 June 2019.

Government of Canada,

Canada’s Changing Climate Report – Executive Summary,

2019.

David Barber, Professor, University of Manitoba, As an individual,

Evidence,

16 April 2018.

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Northern Lights:

A Wake-Up Call for the Future of Canada

processes for reconciliation and healing, situating the well-being of Indigenous communities at the

centre of the framework and following their lead on achieving their priorities.

The current

challenges presented by a climate change are compounded by the legacy of colonialism and the

history of southern-driven policy and program delivery in the 20

century.

Importantly, the federal government is a key part of meeting these challenges with its partners,

territorial and Indigenous governments. First, in the conclusion and implementation of

comprehensive land claims agreements, historic treaties and self-government agreements

established with Inuit, First Nations and Métis peoples. Second, in the implementation of devolution

of province-like powers to Yukon, Northwest Territories and, by 2023 to Nunavut. Third, Canada

maintains responsibility in the territories for: intergovernmental relations; Indigenous programs and

services; remediation of contaminated sites; management of the offshore; and various matters

related to shipping, including navigation and safety, security and sovereignty.

Witnesses were hopeful that a new framework would harmonize the activities of different federal

departments related to the Arctic, recognize Indigenous inherent rights and strengthen capacity,

coordinate the multi-jurisdictional governance and regulatory environments and create space for

public and Indigenous governments at all levels, especially community governments

, to make policy

decisions together. An important first step for the Government of Canada is to adopt a consistent

definition of the Arctic across federal departments for greater coherency and to build in real

processes to ensure Arctic residents are in control of policy and program development. Therefore,

the committee recommends:

1. That the Government of Canada adopt a consistent definition of the Arctic with respect to

legislation, policy directives and programs.

The committee believes strongly that the Arctic is the future of Canada, and its primary strengths are

its residents. Arctic and northern leaders noted that the region holds the potential of driving

Canada’s economy for the coming decade. The proposals presented in this report - of a skilled

Indigenous labour force, infrastructure to improve the quality of health and educational systems,

healthy citizens practicing their cultures and speaking their languages and improved living standards

- will help to achieve the overall social development goals of communities. This report also argues

that Arctic research that incorporates Indigenous knowledge and is community-driven is essential to

ensure that scientific investments benefit Arctic residents and answer key questions facing the

region. On the international dimensions of the forthcoming policy framework, in the committee’s

view, actions ensuring prosperous, sustainable and safe Arctic communities will also enhance

Supplementary

document submited by Gwich’in Tribal Council and Deputy Grand Chief and Vice-President Jordan Peterson, Gwich’in Tribal Council,

Committee fact finding trip, Yellowknife, Northwest Territories, 10 September 2018.

Supplementary document submitted by the Northwest Territories Association of Communities; Madeleine Redfern, Mayor, City of Iqaluit,

Evidence,

22 October 2018.

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Canada’s ability to project its Arctic foreign policy, including sovereignty in the region. This report is

comprised of four chapters. First, healthy economies and comprehensive infrastructure; second,

arts, language and culture as pathways to strong communities; third, the environment, Indigenous

knowledge and science; and, lastly, the Arctic in a global context.

The Baker Lake Inukshuk, members of the Special Senate Committee to the Arctic.

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BACKGROUND – THE ARCTIC IN CONTEXT

The Arctic is a dynamic cultural, social, political and economic region. It encompasses one-third of

Canada’s land mass and half of its coast line. Arctic communities are small and close-knit, with diverse

populations and unique forms of governance, which require careful consideration when establishing

broader goals for social and economic development. The territories have the highest proportion of

the Indigenous people in Canada: 86% of the population of Nunavut is Inuit, 51% of the population

of the Northwest Territories is First Nations, Inuit or Métis; and 23% of Yukon is First Nations.

The

population of the Arctic is youthful, and rapidly growing. The committee strongly agrees with

witnesses who emphasized that the federal framework must be driven “in the North, by the North,

for the North” and as an opportunity to move away from the one-size-fits-all approach to federal

policy development.

A. Governance

1. Devolution

Governance in the Arctic region is quickly evolving. Devolution agreements have been concluded in

Yukon and Northwest Territories, bringing about control over public lands, inland waters and

resources to the elected officials in the territorial governments. As a result, the Northwest Territories

now has authority over resource development and 50% of natural resource revenue. Honourable

Bob McLeod, Premier of the Northwest Territories, outlined their approach to share 25% of revenues

more broadly with participating First Nations governments “to make sure they and their people were

receiving the benefits of development in our territory.”

Revenues from prospective offshore oil and

gas fields, however, remain under federal jurisdiction.

Yukon has also benefited economically and politically since it concluded its devolution agreement

with the federal government in 2003. With a greater share of revenue from its natural resources,

Yukon’s economy has experienced positive GDP growth overall, often exceeding other regions of

Canada. However, Honourable Sandy Silver, Premier of Yukon said that due to the territory’s lack of

full provincial powers, Yukon is limited in its ability to issue and raise debt instruments, a tool

provinces use for large-scale investments.

Nunavut is the only jurisdiction in Canada that does not have complete control over its land and

resources, with “80% of the territory still controlled by the federal government”.

Territorial officials

believe devolution holds promise for the territory, pointing to their experience following the

conclusion of the

Nunavut Land Claims Agreement,

whereby Inuit-owned lands (comprising about

Brief,

Canadian Northern Economic Development Agency.

Honourable Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018 and

Honourable Wally Schumann, Minister, Industry, Tourism, Investment and Infrastructure, Government of the Northwest Territories, Committee fact

finding trip, Yellowknife, Northwest Territories, 10 September 2018..

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

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20% of land surface in Nunavut) is where “most of the developments are now taking place”.

These

revenues are for the Inuit of Nunavut, collected by their beneficiary organization, Nunavut Tunngavik

Inc. The Government of Nunavut expects to have a devolution agreement in place with the federal

government by 2023 which could provide a greater fiscal benefit for the territorial government.

The committee heard from 17 federal departments, agencies or crown corporations that have

responsibilities related to the Arctic, and there are others that did not appear. The service

arrangements are highly complex, making it difficult to discern Arctic-specific programs, investments

and outcomes. Engagement between federal departments and Arctic peoples often results in

departments asking the “same questions over and over.”

The fragmented structure of federal

approaches to Arctic and northern regions could contribute to incoherency or discord in policy

development, funding and legislative frameworks. Given the array of federal programs and services

developed and delivered from southern Canada, the Committee is of the view that changes are

required. The Committee believes that the capacity to assess needs, deliver services and evaluate

outcomes rests with Arctic residents themselves. Therefore, the committee recommends:

2. That the Government of Canada develop a strategy that: 1) empowers Arctic and northern

governments to assume roles in delivering federal programs and services to its residents; and

2) devolves federal programs and services related to the Arctic and northern regions to local,

territorial and Indigenous governments.

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

Claudio Aporta, Director, Marine Affairs Program, Dalhousie University,

Evidence,

1 April 2019.

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Figure 2 – Map of Comprehensive Land Claims and Self-Government Agreements

Source:

Indigenous and Northern Affairs Canada, 14 March 2016.

2. Comprehensive land claims agreements and historic treaties

There is broad support for the conclusion and effective implementation of comprehensive land

claims agreements, historic treaties and self-government agreements. The Gwich’in Tribal Council

reminded the committee that “the future of the North is intimately linked to the full implementation

of the land claim agreements.”

Greater federal support to strengthen the capacity of Indigenous

governments is required. Indigenous government and industry agree that not concluding and

implementing comprehensive land claims agreements and historic treaties has had a negative

impact. For example, the Yukon Chamber of Mines observed there was a decline in prospecting in

the region due to the large parts of the territory which remain under negotiation, noting there would

likely be less mining in the territory in the future due to uncertainty posed by outstanding land claims

agreements.

Each territory has legislation in place to oversee surface rights, environmental, water and socio-

economic assessment and land use. Comprehensive land claims agreements have given rise to

Deputy Grand Chief and Vice-President Jordan Peterson, Gwich’in Tribal Council, Committee fact finding trip, Yellowknife, Northwest Territories,

10 September 2018

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Indigenous governments with increased control and ownership of land and assumed co-

management responsibilities for future resource planning and land, water and wildlife

management.

The co-management of resources brings decision-making over land and resources

closer to communities. Regulatory approvals in the Arctic thus differ according to the territory. As

they are informed by and designed by Indigenous peoples who bring different approaches and

capacities to these boards, and their successes are not as widely known, it can be a challenge for

external parties to navigate.

Due to the leadership and participation of Indigenous peoples, the regulatory regimes take into

account Indigenous knowledge and scientific evidence to make decisions about wildlife

management, land use and environmental protections. The Nunavut Impact Review Board observed

that “Inuit

Quajimajatuqangit,

[Inuit knowledge] assists greatly in making impact predictions,

particularly where scientific baseline [data] may be missing.”

The Sahtú Land Use Planning Board

reported that it relied heavily on Indigenous knowledge and community engagement to develop its

land use plan. Through land use planning, Indigenous organizations and governments have identified

a number of significant land and marine areas for conservation.

Several witnesses made proposals to strengthen the function of regulatory boards in the Arctic,

starting with greater coordination and collection of baseline information about the land, waters and

ice. Appropriate and relevant data and information is important to make predictions at the regional

and community levels. As shared by the Nunavut Impact Review Board, “Nunavut is under-

represented in terms of available scientific baseline information.”

It is difficult to begin land use

planning without reliable data to measure, compare change and predict future impacts on the land,

wildlife or waters.

There is a lack of long-term funding and federal engagement to support the function of regulatory

boards established under comprehensive land claims agreements that are tasked with creating land

use plans. For example, the Sahtú Land Use Planning Board suggested that dedicated funding for

more than one fiscal year, timely appointments to its board and federal engagement in the five-year

review would bring about greater land use planning success. While the federal

Nunavut Planning and

Project Assessment Act

provides for federal funding for community members to participate in

regulatory review similar to processes established in southern Canada, the lack thereof means that

participation in land use planning and regulatory processes is likely cost prohibitive for most Arctic

residents.

Clint Davis, CEO, North35 Capital Partners,

Evidence,

11 June 2018.

Supplementary document provided to the Committee, Nunavut Impact Review Board, Committee fact finding trip, Cambridge Bay, Nunavut,

September 2018.

Supplementary document provided to the Committee, Nunavut Impact Review Board, Committee fact finding trip, Cambridge Bay, Nunavut,

September 2018

Mary Simon,

A New Shared Arctic Leadership Model,

March 2017.

Supplementary document provided to the Committee, Nunavut Impact Review Board, Committee fact finding trip, Cambridge Bay, Nunavut,

September 2018.

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Inuit consider the land, waters and ice of the Arctic their homelands. The Clyde River Supreme Court

of Canada ruling found there is an obligation to consult and afford remedies with Inuit even if the

project takes place outside of Inuit lands.

Witnesses told the Committee that the Government of

Canada placed Arctic waters off limits to new offshore oil and gas licensing without consulting Inuit

rights-holders. Currently, the Government of Canada is considering the establishment of a co-

management regime with the governments of the Northwest Territories and Yukon, and the

Inuvialuit Regional Corporation. The committee believes that Indigenous and territorial governments

have a key role to play in co-management of the Arctic offshore as “any resource extraction that

occurs in the extended continental shelf has the potential to impact the marine wildlife in the Arctic

Ocean, not only in the immediate area but throughout the Arctic Ocean.”

Therefore, the

committee recommends:

3. That the Government of Canada: 1) provide greater financial support for the implementation of

comprehensive land claims agreements, including land use planning processes and governance

of regulatory boards; and 2) consult and cooperate with Indigenous and territorial governments to

develop co-management regimes with respect to the Arctic offshore waters.

3. Fiscal relations and fiscal needs

The Government of Canada makes important fiscal transfers to territorial and Indigenous

governments in the form of territorial formula financing, and contributions to Indigenous

governments to offer comparable public services to those offered in the south. However, the high

cost of living and operating in the Arctic and the number of isolated, small communities, place

considerable strain on Arctic governments to meet their responsibilities to their citizens. The

territories’ unique circumstances within Canada calls for innovative solutions.

The committee heard repeatedly that federal funding continues to disadvantage the Arctic which

does not have the population to drive per capita investment. Whether it be for trade and

transportation corridors, housing or health care, building new infrastructure like ports, extending

broadband telecommunications to remote areas, basic services such as water and wastewater,

federal investments fall short. When programs have dedicated funds for the Arctic, they are heavily

oversubscribed as the needs are so acute.

The inadequacy of federal investments are due to a variety of factors: programs are often announced

too late in the year to take advantage of the shipping and small construction window, delaying the

start of new builds; the funds are short-term, and perhaps project-based, and inhibit the creation of

Peter Hutchins, Supplementary document provided to the committee, 1 April 2019 and Clyde River (Hamlet) v. Petroleum Geo‑Services Inc.,

2017SCC 40, [2017] 1 S.C.R. 1069.

Peter Hutchins, Supplementary document provided to the committee, 1 April 2019.

Mining Association of Canada, Supplementary document provided to the committee.

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transportation, energy or telecommunications networks across several regions; and the degree to

which the funding is uncoordinated between a dozen or so federal departments makes it difficult to

find the funding to apply for in the first place.

For example, the committee learned of Iqaluit’s water shortage in 2018 and Madeleine Redfern,

Mayor of Iqaluit observed that there was no federal funding source: “I think there are too many

programs. The Government of Nunavut…had identified 27 or 28 different climate change programs.

… The programs haven’t been a good fit.”

Some witnesses observed there were funding approaches which worked well, such as the increase

in the proportion of federal contributions for projects, flexible multi-year funds and dedicated

funding streams for northern and rural projects.

The committee believes the Arctic requires strong leadership between federal and other orders of

government to address the needs and priorities of the Arctic and to find common solutions to the

rapid changes the region is experiencing.

The committee believes strongly that federal departments must take Arctic needs into account,

including timing of funding announcements, local service delivery points, supporting public services

in Indigenous languages and facilitating greater coordination between federal departments on

investments. The committee was encouraged to see that Bill C-97, the Budget Implementation Act

establishes a Minister of Northern Affairs to be appointed by the Governor-in-Council; and believes

the position will create a ‘champion’ within the Government of Canada to facilitate stronger relations

with territorial and Indigenous governments. Therefore, the committee recommends, as soon as Bill

C-97 comes into force:

4. That the Government of Canada appoint a Minister of Northern Affairs in control of its own

parliamentary appropriation and that this cabinet position report annually to Parliament on its

activities.

Madeleine Redfern, Mayor, City of Iqaluit,

Evidence,

22 October 2018.

Honourable. Sandy Silver, Premier of Yukon, Government of Yukon, Committee fact finding trip, Whitehorse, Yukon, September 2018.

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B. Climate Change

The Arctic is warming at twice the rate of the global average. This has changed our traditional

transportation routes and the animal life, and the infrastructure is less secure in the villages with

melting permafrost. We need an action plan and funding to relocate some of our communities and

to stabilize the others.

Warming trends are threatening Indigenous peoples’ cultures, lifestyles and languages as they are

intimately connected to the land for subsistence hunting, fishing and harvesting. Recent research on

climate change indicates that specific parts of the Arctic are warming at three times the global

average and notes that it is “likely that more than half of the observed warming in Canada is due to

the influence of human activities.”

While Northerners are not contributing significantly to climate

change in the form of emissions, they are more at risk than the rest of Canada. The transformation

of the Arctic’s land and sea environments results in the deterioration of Indigenous peoples’ physical

and mental health, threats to food sources and the destabilization of infrastructure.

Indigenous

peoples and academics alike emphasized the importance of collecting information now on the ways

warming temperatures are changing food species and migration patterns. Indigenous communities

noted this work is particularly urgent, so they will not entirely lose the food that they get from

harvesting and hunting. Climate change is having a direct effect on those in the Arctic, who require

greater support to develop plans to adapt.

Climate change has led to more invasive species, which affects wildlife and people’s diets in the

Arctic. For example, the spruce beetle killed trees over large parts of Yukon and has led to more

wildfires. Species that are primary food sources of Inuit and First Nations people, like caribou or

walrus, are at risk of contamination by parasites. Some communities have established innovative

initiatives to respond to such changes. For example, the Nunavik Research Institute, established by

Inuit of Nunavik, established a public health protocol on food safety whereby hunters send walrus

samples to the Institute, which then informs communities if the walrus meat is safe for consumption.

Permafrost decay threatens existing infrastructure and significant amounts of money are already

being spent to mitigate and adapt roads, building foundations, sewers and water pipes. The

Northwest Territories Association of Communities estimates annual economic losses in the millions

of dollars on community assets due to permafrost decay. Christopher Burn raised the climate-related

costs of maintenance on the Yukon portion of the Dempster Highway was in 2005 about 20% of

territory’s budget. Now, about 45% of the maintenance budget is spent on these activities.”

The

Hon. Charlie Watt, former senator, President, Makivik Corporation,

Evidence,

26 March 2018.

Government of Canada,

Canada’s Changing Climate Report – Executive Summary,

2019, p. 5.

Louis Fortier, Professor, Laval University and ArcticNet, Network of Centres of Excellence, As an individual,

Evidence,

19 March 2018.

Christopher Burn, Chancellor’s Professor of Geography, Carleton University, As an individual, Evidence, 19 March 2018.

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Arctic requires strategic investments and shared plans among the different jurisdictions to adapt to

climate change which “will become the largest megaproject the North has ever seen.”

Some noted that a warming climate may enable economic opportunities to emerge. For example,

the expansion of agriculture to warmer regions or the growth of the construction sector to deal with

the effects of permafrost decay may be imminent.

New innovations in renewable energy could see

the Arctic region well-positioned to be leaders in adaptation and mitigation measures, in Canada and

around the world. Witnesses reported that the Arctic is well positioned to drive innovation in cold

climate resource extraction and has the natural resources needed to support the expanding green

economy.

Frances Abele, Professor, School of Public Policy and Administration, Carleton University, As an individual,

Evidence,

1 April 2019.

Hon. Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018.

Honourable Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018 and Jim

McDonald, Mayor of Inuvik, Committee fact finding trip, Inuvik, Northwest Territories, September 2018 and Duane Smith, Chair and Chief Executive

Officer, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, September 2018.

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CHAPTER 1: HEALTHY ECONOMIES TO BENEFIT THE

ARCTIC

To many, the Arctic represents Canada’s future. Given the large proportion of the population of the

Arctic that is Indigenous, the success of the region is “strongly linked to the prosperity of northern

Indigenous people.”

There is “a significant opportunity for Canada to fully engage the Indigenous

labour force, especially in the north.”

Economic Challenges and Opportunities

The committee strongly agrees with witnesses, who emphasized that Indigenous youth must be

engaged in education and the labour force. This chapter of the report will focus on Arctic economies,

infrastructure and education, skills and employment for Arctic Indigenous peoples. Without bold and

strategic investments in infrastructure and education, the promise of the Arctic for its residents may

go unfulfilled.

While the territories are poised to lead the rest of Canada in future economic growth, the

infrastructure deficit was raised as a major barrier to social and economic development. While the

Canadian Arctic makes up 25% of the international circumpolar region, its economic production

accounts for less than 2% of the circumpolar economy. Clint Davis noted that this is because the

Canadian Arctic is “under-built.”

Infrastructure development in the region requires political

commitment, strategic vision and concrete plans.

The Arctic economies are unique and can be characterized as mixed, whereby residents rely on wage

employment and traditional activities such as harvesting, hunting, fishing and trapping, and produce

art, tanned hides, furs and related handicrafts.

In some communities in

Inuit Nunangat,

up to 50%

of the adult population earns part of their income as artists.

In real terms, there are about 4,200

Inuit artists working across Canada, predominantly in

Inuit Nunangat

representing about 2,100 full-

time positions, and contributing about $64 million to the Canadian GDP in 2015.

Yet the “extent

Inuit art plays a vital role in economic development in the Arctic … is poorly understood and

supported.”

The types of supports required for artists in the Arctic are raised in greater detail in

the following chapter.

Brief, Canadian Northern Economic Development Agency.

Hilda Broomfield Letemplier, Board Member, National Indigenous Economic Development Board,

Evidence,

28 May 2018.

Clint Davis, CEO, North35 Capital Partners,

Evidence,

11 June 2018.

Nunavik Furs Cooperative, Committee fact finding trip, Kuujjuaq, Nunavik, September 2018 and Makivik Corporation et al.,

Parnasimautik

Consultation Report on the consultations carried out with Nunavik Inuit in 2013,

14 November 2014.

Natan Obed, President, Inuit Tapiriit Kanatami,

Evidence,

15 October 2018.

Big River Analytics, Impact of the Inuit Arts Economy, 2017.

Natan Obed, President, Inuit Tapiriit Kanatami,

Evidence,

15 October 2018.

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Another unique feature of the Arctic economy is based on conservation. Mary Simon, Minister’s

Special Representative in her 2017 report, highlighted the conservation economy in the Arctic.

Witnesses noted that the conservation economy has the potential to build on existing capacities and

cultural strengths of Indigenous peoples and contributes to strong and healthy communities. This

sector sees Indigenous peoples assuming roles and responsibilities in environmental and wildlife

monitoring; vessel management; emergency preparedness and response, search and rescue and

tourism. Mary Simon noted that support in this sector could contribute to healing and reconciliation

by connecting youth with traditions and language, opportunities for land-based learning, supporting

communities to regain land-based skills and documenting Indigenous knowledge.

Arctic leaders acknowledge the importance and potential growth of the tourism sector. Tourism can

also be linked to the conservation economy in the Arctic. The committee learned that Government

of Yukon is expanding the opportunities offered to international visitors with a pilot northern lights

flight to see the northern lights from the air, and also heard that the territory attracts international

visitors to its parks and links to Alaska.

The cruise ship Crystal Serenity was a shift for many

communities in dealing with the economic potential of tourism and was raised as a best practice in

terms of being adequately prepared, escorted by its own ice-breaker, and consulting with

communities along the way. However, the Iqaluit Chamber of Commerce observed that art and other

souvenirs were sold on the ship to its guests, which meant tourists were less inclined to purchase

directly from artists in the communities where they visited.

Wage employment in the territories is provided primarily by three sectors: government and

government support services, small businesses in the service industry, and natural resource extraction,

predominantly mining in the Northwest Territories, Nunavut, Nunatsiavut and Yukon.

The largest

employer overall, is the public sector.

Mining is the largest private sector employer in the Arctic, contributing to 20% to 25% of the GDP of

the northern territories and supporting about 9,000 jobs directly, or one in every six jobs. The rich

mineral deposits in the territories means territorial growth is projected to surpass the rest of Canada.

Some of the mineral potential of the North remains to be discovered with more work to do to

understand the geological endowment, and importantly, the effects of resource development on

ecosystems and Arctic peoples.

Representatives of the Government of the Northwest Territories

underscored that the territory also has deposits that could “fuel the global green economy” including

Mary Simon,

A New Shared Arctic Leadership Model,

2017.

Committee fact finding trip, Whitehorse, Honourable Jeanie Dendys, Minister of Tourism and Culture, Government of Yukon, September 2018.

Committee fact finding trip, Iqaluit, Sylvie Renaud, Director General, Canadian Northern Economic Development Agency,

Brief,

Atlantic Canada

Opportunities Agency,

Brief,

Canada Economic Development for Quebec Regions.

Mining Association of Canada Facts and Figures and Brief, Mining Association of Canada, 1 October 2018.

Linda Richard, Director, Northern Canada Division, Geological Survey of Canada, Natural Resources Canada,

Evidence,

29 October 2018.

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cobalt, gold, lithium, bismuth, and rare earth elements.

The Arctic also has the potential to

contribute important minerals for the growth of the technology sector.

In addition to creating direct employment opportunities for northern communities, the mining

industry also creates growth in other economic sectors including communications, energy and

transportation infrastructure, and commercial services. In certain northern areas, mining has

become a major contributor to the local economy and it is expected to create economic benefits in

the future.

However, as natural resource activity is driven by global demand, Arctic economies are

vulnerable to fluctuations in mineral prices.

Other limitations were raised by witnesses. For example, some community leaders noted that while

there have been employment and income gains by some Indigenous peoples due to the growth of

the mineral sector, infrastructure investments do not trickle down to communities. In many cases,

infrastructure development only takes place at the mine site with nearby communities not

benefitting from industry investments in energy, broadband or marine infrastructure.

Indigenous leaders, along with the territorial Premiers, see economic development and protection

of the environment as two pillars of their sustainable development strategy.

Inuit leaders argued

that “the careful and sustainable uses of natural resources have been necessary to Inuit survival for

centuries.

“47

The committee heard concerns that striking this balance may be difficult given the

priorities of different parties, for example, Duane Smith, Chair and Chief Executive Officer, Inuvialuit

Regional Corporation observed that if “conservation is a priority for Canada, it cannot be achieved

through the sacrifice of the few opportunities that exist in the Arctic.”

As stated by Honourable

Charlie Watt, President of Makivik Corporation, “we need our economies too.”

The territorial governments have prioritized infrastructure and education investments to support

growing industries like tourism, traditional or harvest economies, agriculture, arts, forestry,

manufacturing, information technology and commercial fishing.

Innovative approaches to bidding, procurement and financing were raised by several Indigenous

organizations. Economic development corporations established through comprehensive land claims

agreements have started to collaborate to become greater forces in retaining capital and investment

in the North to benefit their communities. For example, the six Inuit economic development

Wally Schuman, Minister of Industry, Tourism, Investment and Infrastructure, Committee fact finding trip, Yellowknife, Northwest Territories,

Government of the Northwest Territories, 10 September 2018.

Canadian Northern Economic Development Agency,

Resource Development.

Governments of the Northwest Territories, Nunavut and Yukon,

Pan Territorial Vision for Sustainable Development.

Hon. Charlie Watt, former senator, President, Makivik Corporation,

Evidence,

26 March 2018; Bob Simpson, Director, Government Affairs,

Inuvialuit Regional Corporation,

Evidence,

23 April 2018; Johannes Lampe, President, Nunatsiavut Government,

Evidence,

23 April 2018.

Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, September 2018.

Hon. Charlie Watt, former senator, President, Makivik Corp.,

Evidence,

26 March 2018

Governments of the Northwest Territories, Nunavut and Yukon,

Pan Territorial Vision for Sustainable Development.

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corporations

have come together to bid on common contracts. The new Inuit business

development committee has identified four sectors for collaboration: renewable energy,

telecommunications connectivity, infrastructure and new marine routes through the Northwest

Passage.

The Kivalliq Inuit Association and Anbaric Development Partners have advanced a proposal for a

hydroelectric – fibre-optic link between Manitoba and the Kivalliq region of Nunavut that could

reduce the reliance on diesel in the region and improve internet connectivity. The partnership may

create opportunities to take an equity position in the development of badly-needed infrastructure.

The Yukon First Nation Chamber of Commerce believes Yukon First Nations development

corporations, trusts and people can better participate in infrastructure development by investing in

specific infrastructure projects that has a return on investment, take advantage of contracting

opportunities and provide ongoing operational care and maintenance.

Indigenous leaders in the Northwest Territories are exploring ways to create to work together to

achieve the scale necessary to achieve broader economic and infrastructure goals. As noted by

Darrell Beaulieu, First Nations could invest some of their own capital in support of controlled

resource development and export corridors to support their long term goals, “Dene want to be key

players, along with other governments, in developing the badly needed transportation, energy,

communication corridors in infrastructure in the Northwest Territories.”

He stated such

partnerships could bring about a mixture of employment and business opportunities for Indigenous

peoples which follow such investments.

Darrell Beaulieu and Yukon First Nation Chamber of Commerce urged the committee to consider

improvements be made to federal procurement policies and set asides for Indigenous businesses.

For example, environmental remediation presents significant opportunities for Indigenous

businesses as the Arctic has some of the largest contaminated sites under federal jurisdiction.

Indigenous companies were unsuccessful in obtaining contracts for some of the work presented by

environmental remediation and it was recommended it should be a part of the set asides under the

Procurement Strategy for Aboriginal Business, a program where Indigenous businesses can bid on

specific federal contracts. The Yukon First Nations Chamber of Commerce noted the “Yukon First

Nation Final Agreements are honoured in the spirit they were intended, especially when it comes to

Chapter 22 the investment, procurement, employment and special provisions opportunities.”

With the right tools and investments, harnessing the potential of Indigenous businesses in the Arctic

could lead to greater social and economic benefits overall. The committee heard that financial

services are limited in communities, as are business support services. Blair Hogan who runs a

Including Inuvialuit Development Corporation (Inuvik, Inuvialuit Settlement Region), Kitikmeot Corporation, Sakku Investments (Rankin Inlet,

Nunavut), Qikiqtani Corporation (Iqaluit, Nunavut), Nuvviti Development Corporation (Nunavik) and Nunatsiavut Group of Companies (Nunatsiavut).

Brief,

Yukon First Nation Chamber of Commerce.

Darrell Beaulieu, Chief Executive Officer, Denendeh Investments Incorporated, Evidence, 15 October 2018.

Brief,

Yukon First Nation Chamber of Commerce and Darrell Beaulieu, Chief Executive Officer, Denendeh Investments Incorporated,

Evidence,

15 October 2018.

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successful biomass company in Carcross, Yukon observed mentoring and business supports during

start-up are particularly important for Indigenous businesses to see growth over time.

Each region of the Arctic has unique opportunities but there are common challenges, outlined in the

following section.

A. Churchill, Manitoba

Churchill is situated in an important place for Manitoba and Nunavut providing goods and services

to Arctic communities via its trade and transportation routes. Churchill’s position on the coast of the

Hudson Bay region, makes it a draw for tourists and is home to world-class research facilities, the

University of Manitoba’s Churchill Northern Studies Centre and the forthcoming Churchill Marine

Observatory. After a series of floods and washouts in May 2017, the rail line went unrepaired and as

it is the only ground link, the community was stranded and isolated until October 2018. One-third of

the population left Churchill as the cost of basic goods and services were prohibitive. The rail service’s

disruption was catastrophic to the region affecting communities in northern Manitoba and western

Nunavut with higher costs for the transport of goods and passengers, “You have to remember there

were people who were not called back for two years who were working at the port for the rail line.

Construction came to a halt. Tourism numbers went down. There was lost employment and now the

community is rebounding and lifting itself.

”

The Arctic Gateway Group comprised of First Nations communities, governments and the private

sector came together to take an ownership stake in the rail line and port facilities. Taking an equity

stake in ownership of strategic assets, and pooling ownership and risk, is a model other Arctic

communities and groups are interested in exploring. Churchill is well positioned to build on its

existing strengths, as it has benefited from past federal investments with the rail line established in

1929 and a deep-water port in 1931, along with an airport with a runway that can accommodate

large planes. With the rail service restored, Michael Spence, Mayor of Churchill, remarked that

Churchill’s critical infrastructure is a transportation and trade gateway of national importance, and

that business should be encouraged to use the ports for shipping to Nunavut and other markets. He

recommended investments in establishing the Kivalliq fibre optic and hydro line which would provide

significant benefits to the region.

B. Northwest Territories

The Northwest Territories’ economy is fueled by its diamond mines and its real gross domestic

product (GDP) grew 1.9% in 2018; nationally, real GDP rose by 2%. However, the territory’s economy

will likely contract by 3% a year over the next decade due to the projected decrease in diamond mine

Blair Hogan, President, Gúnta Business and The Gordon Foundation,

Evidence,

27 February 2019.

Michael Spence, Mayor of Churchill,

Evidence,

22 October 2018

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production.

By 2035, it is expected that all the diamond mines will close, resulting in a rise in

unemployment from the current 6.8% to over 10%. This will likely contribute to outmigration and

job losses, having the cumulative effect of “shrinking the labour force.”

As stated by Honourable Bob McLeod, Premier of the Northwest Territories, “Tourism has been the

fastest growing part of our economy. The aurora borealis viewing has been very successful. We’re

moving more into eco and adventure tourism.”

The Government of the Northwest Territories and Indigenous governments in the territory urged the

committee to consider addressing the infrastructure deficit in the territory as foundational to

achieving the overarching objectives of the Arctic Policy Framework. As stated by Jordan Peterson,

Deputy Grand Chief and Vice-President, Gwich’in Tribal Council, “Infrastructure is not an end in itself,

it is an underpinning of the other goals of the Arctic Policy Framework.”

Warming temperatures will affect transportation infrastructure such as the ice-road network, used

to connect communities to each other and industry to markets. The Northwest Territories’

Association of Communities stated that while communities in the Mackenzie Valley will be adversely

affected and all communities will require support for upgrades and new builds.

Inuvialuit Settlement Region and Gwich’in Settlement Region

The Inuvialuit Settlement Region has numerous natural resources, with offshore oil and gas reserves

and large natural gas fields. Duane Smith explained that “the primary objective of the Inuvialuit Final

Agreement was to enable Inuvialuit to be equal participants in the northern and national economy”

and to protect and preserve Arctic wildlife and environment. He emphasized that the Inuvialuit has

a long record of striking a balance between development and ecological conservation.

The moratorium on offshore oil and gas exploration in the Beaufort Sea was raised by several

witnesses as limiting the region’s economic potential and as an example of made-in-Ottawa policy-

making. Both Jordan Peterson and Duane Smith observed industry is reluctant to invest in the region

due to the uncertainty the moratorium presents. According to Jordan Peterson, large scale economic

development options are “not immediately on the horizon” in the Gwich’in Settlement Area as the

Mackenzie Valley Pipeline was put on hold.

Brief, Canadian Northern Economic Development Agency; Adam Fiser, Principal Research Associate, Conference Board of Canada,

Evidence,

28 May 2018.

Adam Fiser, Principal Research Associate, Conference Board of Canada,

Evidence,

28 May 2018.

Honourable Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018

Jordan Peterson, Deputy Grand Chief and Vice-President, Gwich’in Tribal Council, Committee fact finding trip, Yellowknife, Northwest Territories,

10 September 2018.

Honourable Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018; Jim

McDonald, Mayor of Inuvik, Inuvik, Northwest Territories, Committee fact finding trip, September 2018 and Duane Smith, Chair and CEO, Inuvialuit

Regional Corporation, Yellowknife, Northwest Territories, Committee fact finding trip, 10 September 2018.

The Government of Canada has since

responded to the calls from Arctic leaders,

with steps to be taken to those affected by the moratorium.

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The region is ideally suited for a growing spatial industry due to Inuvik’s proximity to polar orbiting

satellites. The recently completed Mackenzie Valley Fibre Link supports the industry with high speed

data transfer services, connecting the Inuvik Satellite Station Facility to the rest of the world. The

committee visited Natural Resources Canada’s Inuvik Satellite Station Facility where they learned of

how it supports 27 satellite missions. The committee also visited a private satellite facility station

nearby which has been awaiting licensing for years from Global Affairs Canada, delaying the company

from assuming an international contract.

C. Nunavut

Contrary to the trend in Northwest Territories, Nunavut is “on the cusp of a mining boom”

with

five new mines to be in operation by 2021.

In 2018, GDP growth was the highest in Canada at 10%

and is expected to be a similar rate in 2019. Some of the richest mineral deposits in Nunavut in the

Kitikmeot region are inaccessible without significant investments in roads to connect to ice road

infrastructure in Northwest Territories. The committee heard from the Kitikmeot Inuit Association

and its subsidiary the Nunavut Resources Corporation about a proposal to develop the Grays Bay

Road and Port Project on Inuit lands to create employment in the region. The project would connect

the region known for its geological potential to the ice-road infrastructure in the Northwest

Territories and the Northwest Passage. The prospective mine would also require investments for a

deep water-port.

Over the last three decades, Nunavut’s fishing industry has grown exponentially from subsistence-

based harvesting to an offshore fishery generating over $100 million in revenue. The Arctic Fishery

Alliance, wholly owned by Inuit, noted Nunavut’s offshore fish catches are processed at sea and

offloaded in Greenland or Newfoundland for export. The absence of proper marine infrastructure

capable of supporting the fishing industry results in economic leakage in the millions of dollars in

skilled trades and associated business opportunities.

The

Nunavut Land Claims Agreement

mandates the negotiation of Inuit Impact and Benefit

Agreements between prospective companies and Inuit. Thus far, through Impacts and Benefits

Agreements with Inuit, some of the mining projects have resulted in higher levels of Inuit

employment, for example at Agnico Eagle’s Meadowbank Mine, discussed in greater detail later in

the chapter.

With five mines slated to open, it would be expected that

Nunavummiut

will benefit from growth

in wages and employment, particularly with a young and growing Inuit population. However,

Inuvik, Northwest Territories, Committee fact finding trip, September 2018 and Natural Resources Canada,

Inuvik Satellite Facility.

Adam Fiser, Principal Research Associate, Conference Board of Canada,

Evidence,

28 May 2018.

Adam Fiser, Principal Research Associate, Conference Board of Canada,

Evidence,

28 May 2018.

Paul Emingak, Executive Director, Kitikmeot Inuit Association,

Evidence,

1 October 2018.

Brief, Arctic Fisheries Alliance.

Inuktut for Inuit of Nunavut.

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forecasts show that the territorial unemployment rate, currently at 14 % is expected to remain the

same until well into the 2030s.

Many of the higher skilled jobs created in mining will be filled by

southern-based workers that fly to and from mining sites, bypassing most of Nunavut’s communities

altogether. This means the benefits of development, and the well-paying jobs in mining, may not

sufficiently benefit local people, and results in capital flight from the territory. The committee heard

from Inuit students across the territory that they require greater access to post-secondary education

and training,

on an urgent basis, so they can assume a greater share of the labour force.

Jessie Oonark (Canadian Baker Lake), 1906-1985),

Untitled,

c. 1972-1973, wool felf on wool

duffle, 65x170 cm, Government of Nunavut Fine Art Collection, On long-term loan to the

Winnipeg Art Gallery, 2.76.1, Photograph: Leif Norman, courtesy of the Winnipeg Art Gallery &

Government of Nunavut

Infrastructure deficits in housing, renewable energy, marine transportation and connectivity mean

the cost of living is significantly higher in Nunavut and makes the investment climate less appealing

for industry. Infrastructure constraints also make it difficult for the territory to diversify its economy

into other sectors of interest to Inuit like fisheries, the arts and tourism.

D. Nunatsiavut

Mining is the main economic driver in Nunatsiavut, and in the Labrador region generally, with Vale’s

nickel, cobalt and copper mine located on Inuit and Innu traditional territories, with a significant

expansion announced this year. Impact and Benefit Agreements are in place between Vale, the

Nunatsiavut Government and the Innu Nation, containing specific employment commitments and

giving first consideration to Indigenous businesses for goods and services. As a result, 51% of the

Adam Fiser, Principal Research Associate, Conference Board of Canada,

Evidence,

28 May 2018.

Aluki Kotierk, President, Nunavut Tunggavik Inc.,

Evidence,

26 March, 2018; Virginia Mearns, Associate Deputy Minister, Executive and

Intergovernmental Affairs, Government of Nunavut,

Evidence,

26 February 2018.

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Voisey’ Bay workforce is Innu or Inuit with Indigenous people assuming management and executive

roles, and 80% of support contracts at the mine are assumed by Indigenous businesses.

Other

opportunities exist in the mineral sector with one of the world’s largest undeveloped uranium

resources situated outside of Postville, Nunatsiavut.

Fisheries are important to the Nunatsiavut region, with two fish plants in operation, and the

Nunatsiavut Government holding quotas for several commercial fish species. Tourism is a burgeoning

industry. With the recently opened Torngat Mountains National Park, Nunatsiavut Inuit see potential

for growth, and visitors increase year to year.

Again, like the other Arctic regions, the transport of

people, supplies, raw materials and finished goods is costly and challenging, particularly in the

winter.

The Government of Nunatsiavut sees economic growth being limited by the scarcity of

connectivity, transportation and hospitality infrastructure.

E. Nunavik

Mineral exploration and mining are expected to grow in Nunavik with an additional three mines

slated to be in operation until 2039. The Glencore-Raglan Mine started mining in 1997 for nickel and

copper. The Raglan Agreement with Nunavik Inuit and the Glencore Group was the first Impact and

Benefit Agreement in Canada and the mining projects provide employment and business

opportunities arising from procurement and priority hiring of Inuit.

Other sectors such as tourism, renewable energy and fisheries offer promising economic

opportunities.

For example, Nunavik Parks offer unique trekking and hiking opportunities.

Nunavik’s young population is entrepreneurial and interested in starting their own businesses.

Services offered by the Kativik Regional Government in the areas of training and employment and,

notably, child care in Inuktitut, provide essential supports for Inuit families. Inuit Tapiriit Kanatami

cited evidence that the Nunavik’s affordable child care system is one of the “factors thought to be

linked to … [Nunavik’s] stronger labour market performance when compared to other

Inuit Nunangat

regions”.

Poor housing, high cost of living and food insecurity and the remoteness of communities with

exclusive reliance on air and sea transportation were cited as limiting employment and economic

opportunities for Inuit.

Brief, Atlantic Canada Opportunities Agency.

Supplementary document provided to the committee, Torngat Mountains National Park, Parks Canada.

Brief, Atlantic Canada Opportunities Agency.

Meeting with Makivik Corporation, Kuujjuaq, Nunavik, Committee fact finding trip, September 2018 and Brief, Canada Economic Development for

Quebec Regions.

Brief, Canada Economic Development for Quebec Regions.

Inuit Tapiriit Kanatami,

Pre-Budget Submission 2019.

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F. Yukon

Yukon benefits from a skilled work force and has existing transportation, energy and broadband

infrastructure assets. In 2018, Yukon had the lowest unemployment rate in Canada and GDP grew by

2.8%. With three new metal mines anticipated to open over the next decade, its economy is expected

to grow at a rate of 6.2% between 2019 to 2025. The largest parts of Yukon’s economy remain the

public sector, followed by mining and quarrying and real estate.

Ted Harrison,

Comet,

1989, Acrylic on canvas, Art Gallery of Greater Victoria collection,

photo from AGGV

The Yukon First Nation Chamber of Commerce explained that with increased activity in the mining

sector, there is increased demand for infrastructure in the form of transportation routes and ports

to facilitate greater access to markets and energy infrastructure to meet demand in the mines. With

a relatively small population spread out over the territory, the territorial government is challenged

Government of Yukon, Supplementary document submitted to the committee.

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to provide infrastructure and services. Much of the community-based infrastructure is aging and

requires replacement, including water and wastewater treatment. Given its “enviable position”

the lowest unemployment rate in Canada, it faces a shortage of employees and skilled labour. Aging

infrastructure makes it difficult for remote communities to recruit and retain new employees.

Arctic Growth Depends on Infrastructure Development

Most Arctic regions face substantial deficits in community infrastructure such as housing, water and

wastewater facilities, health and education facilities and telecommunications infrastructure.

Investments in infrastructure, that can be used for multiple purposes, “multi-use”, will improve the

quality and reduce the cost of delivering essential services such as health care and education.

Community infrastructure, along with ground and air transport and energy infrastructure, is required

to attract investment and facilitate business development which will, in turn, grow the Arctic

economy

and raise the standard of living for Arctic residents.

Canada lags far behind other circumpolar countries with respect to Arctic infrastructure. However,

unique challenges hinder social and economic development. The Canadian Arctic is a vast geographic

area with communities that are far apart from one another and has a population with distinct needs

in terms of education, health and supports to heal from the legacy of colonization. For example,

some of the school systems do not offer education in Indigenous languages, nor are there many

Indigenous teachers and other educators working in territorial systems.

Higher rates of food insecurity persist in the Arctic, exacerbated by climate change and

environmental contamination.

Basics like food, energy, housing and transportation raise the cost

of living of Arctic residents. Arctic leaders emphasized that the gap in infrastructure further

compounds the cost of living and contributes to the income inequality between Indigenous and non-

Indigenous peoples, that must be addressed on an urgent basis. Finally, there are limited

mechanisms for different levels of governments and communities to set priorities and make

decisions, together.

Existing community infrastructure, like housing and community facilities, is deteriorating, aging and

vulnerable to thawing permafrost and extreme weather events. Construction costs more in the

Arctic. This is due to the cold climate and short construction season; the high costs of shipping raise

the price of raw materials and supplies. It can take several years for the construction of assets to be

completed; missing parts may only be shipped on the annual sealift.

These hard constraints are leading to the outmigration of families from remote communities to

regional centres. As stated by Darrell Beaulieu, “From the smaller communities, people who are now

Hon. Sandy Silver, Premier of Yukon, Government of Yukon, Whitehorse, Yukon, Committee fact finding trip, September 2018.

Brief, Yukon First Nations Chamber of Commerce, 26 September 2018.

Hilda Broomfield Letemplier, Board Member, National Indigenous Economic Development Board,

Evidence,

28 May 2018.

Committee fact finding trip, September 2018, Food Security Workshop, Kuujjuaq, Nunavik.

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generating a good source of income are moving into the larger centres such as Yellowknife.”

This

is because larger communities offer better access to housing and public infrastructure like

community centres and education.

Industry representatives stressed the underdevelopment of Arctic infrastructure impedes

prospective investment. For example, the Mining Association of Canada explained that “the largest

factor influencing mineral investment decisions in Canada’s Arctic is heightened costs…it costs two

to 2.5 times more to build the same … mine off grid in the North compared to the South. About 70

percent of this northern cost premium is directly related to the Arctic infrastructure deficit.”

Witnesses described that they struggle prioritizing projects when the needs are so great and the

available funds are so small.

Witnesses, including representatives from federal departments, emphasized that the Arctic has

never benefitted from wide-scale public investments in infrastructure as in Southern Canada.

Infrastructure investments in the South yielded significant economic returns over time. Some

territorial and Indigenous governments indicated that their limited fiscal capacity like the inability to

issue and raise debt instruments, the small population and large land mass means that partnerships

with the federal government and/or industry are vital to deliver infrastructure and services to its

citizens.

According to the National Indigenous Economic Development Board public support for infrastructure

can leverage private sector investment, “in Northern regions…public investment in infrastructure can

be important to start the investment cycle, even before private investment can take place.”

Industry, Indigenous and territorial officials agreed that the pronounced infrastructure deficit

reduces the likelihood that the economic and social potential of the Arctic will be realized.

The lack of infrastructure affects social, economic and industrial development in the Arctic. While

the region has several world class mineral assets, large reserves of crude oil and natural gas, and

growing fishing and tourism industries, its potential will not be realized without strategic plans to

develop new infrastructure, and to adapt existing facilities and transportation networks to climate

change.

While the committee heard from the Canada Infrastructure Bank while it was in its infancy, it

appeared that none of its early investments were being considered for the Arctic and Northern

Regions. Federal programs which had tranches of funds specific to the Arctic were over-subscribed,

like the Trade and Transportation Corridors initiative.

Darrell Beaulieu, Chief Executive Officer, Denendeh Investments Incorporated,

Evidence,

15 October 2018.

Brendan Marshall, Vice President, Economic and Northern Affairs, Mining Association of Canada,

Evidence,

1 October 2018.

Government of Yukon and Government of the Northwest Territories, supplementary documents submitted by the committee and Mayor and Council

of Inuvik, Inuvik, Northwest Territories, Committee fact finding trip, September 2018.

National Indigenous Economic Development Board, Recommendations on Northern Infrastructure to Support Economic Development, January

2016.

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Indigenous and territorial governments along with economic development corporations noted that

strategic investments in infrastructure, including its adaptation to thawing permafrost, could boost

new job growth and facilitate greater access to quality education, health and social services. The

concept of building energy, broadband and transportation networks or corridors in the Arctic could

support a comprehensive, coordinated and coherent plans to achieve over the coming decades.

The committee therefore recommends:

5. That the Government of Canada, in partnership with Indigenous and territorial governments,

establish an Arctic Infrastructure Bank to fund new infrastructure and mitigate the effects of

climate change on existing infrastructure and to ensure the funds are directed based on Arctic

needs.

Figure 3 – Arctic and Northern Region Infrastructure

Source

: Map prepared by Library of Parliament, Ottawa, 2019, using data from Natural Resources Canada (NRCan), Administrative boundaries in Canada – CanVec Series, “Administrative features”,

1:5M, Ottawa, NRCan, 2018; Lakes, rivers and glaciers in Canada – CanVec Series, “Hydrographic features”, 1:5M, Ottawa, NRCan, 2018; Transport networks in Canada – Canvec Series, “Transport

features”, 1:15M, Ottawa, NRCan, 2018; Indigenous and Northern Affairs Canada (INAC), Inuit Regions (Inuit Nunangat), Gatineau, 2017; INAC, Inuit Communities Location, Gatineau, 2016; INAC, First

Nations Location, Gatineau, 2016; and Natural Earth, Physical Vectors, Physical Labels, “Marine Areas”, 1:50m, version 4.1.0. The following software was used: Esri, ArcGIS Pro, version 2.1.1. Contains

information licensed under Open Government Licence – Canada.

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The following provides an overview of housing, transportation, marine, emergency response and

navigation, broadband and energy infrastructure in the Arctic.

A. Continuum of Housing

The persistent lack of suitable and safe housing affects the socio-economic outcomes of Arctic

residents. The housing needs of Indigenous communities are acute. A continuum of housing types is

required in the Arctic and northern regions, including: new homes including home ownership and

rentals, long-term care facilities for the elderly, transitional homes, shelters for victims of violence,

and residential addictions treatment centres.

The negative consequences of living in overcrowded homes are far reaching. Poor quality and unsafe

housing affects health outcomes, like the high rates of tuberculosis in

Inuit Nunangat.

This, is turn,

places additional strain on public services, such as health care. Due to overcrowded housing, students

have difficulty finding space to do homework. Children and parents experience sleep deprivation,

affecting school and employment performance and attendance, compounded by other factors such

as food insecurity and housing. Peter Tapatai, an Inuk business owner at Agnico-Eagle’s Meadowbank

Mine, described the net effects of overcrowded housing: “When working at the mine site, Inuit

workers are getting a rest; but when they go home, they get no sleep!”

Meeting the housing demand in the form of new construction comes with land development with

community infrastructure in the form of water, sewer and waste management; making the costs of

housing even greater for northern communities. Steve Smith, Chief, Champagne and Aishihik First

Nations describes the pressure for new homes in Yukon,

Housing in the Yukon is always under pressure. We’ve seen immense growth similar to places like

Vancouver, Toronto and other big urban centres. We have seen a significant rise in housing costs.

We feel this pinch because we’re trying to attract people to come here and work for us but we don’t

have the housing available… and we need the develop land [to build new homes], but the support

to develop the land is five or six years down the road, then we suffer a real pinch.

Duane Smith urged the federal government to establish a housing strategy as a cornerstone of the

Arctic Policy Framework, and to ensure “local benefits that emanate” from new housing construction

remain in the community. The Nunatsiavut Government designed and built an energy efficient

prototype in the form of six apartment units that takes into account passive solar heat in the winter.

It will be monitoring the new prototype to see if it meets social and family requirements.

David

Scott, President of Polar Knowledge Canada remarked that the National Research Council is working

Inuit Tapiriit Kanatami, Pre-budget submission 2018; Isuarsivik Treatment Centre, Kativik Regional Government, Kuujjuaq, Nunavik, Committee

Fact Finding Trip, September 2018, and Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Yellowknife, Northwest Territories, Committee

fact finding trip, 10 September 2018.

Agnico Eagle Mine, Committee fact finding trip, Nunavut, September 2018.

Steve Smith, Chief, Champagne and Aishihik First Nations,

Evidence,

11 June 2018.

Isabella Pain, Deputy Minister, Nunatsiavut Secretariat, Nunatsiavut Government,

Evidence,

23 April 2018.

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to revise a building code specific to northern conditions, including heat recovery to avoid mould with

design options more suited to the way northerners live.

Northerners are tired of raising the same concerns about the urgency of the housing problem in the

Arctic and it is now time to act. Furthermore, the committee believes it is time to finally develop

building codes specific to northern conditions and cultures, along with Indigenous and territorial

governments who are at the forefront of this work.

Arctic communities are pursuing innovative solutions to the housing problem. Inuit-specific housing

designs are underway in Nunatsiavut where the Inuit-owned construction company constructs new

units, ensuring homes are appropriate to the local climate and culture along with creating

employment. The Government of Nunatsiavut is testing new foundations for homes that can adapt

to discontinuous permafrost.

The committee acknowledges the important recommendations within the Standing Senate

Committee of Aboriginal Peoples’ 2017 report,

We Can Do Better: Housing in Inuit Nunangat Report,

many of which remain to be addressed. Given the acute needs for all types of housing across the

Arctic, including shelters, transition homes, substance use facilities and homes, the committee

therefore recommends:

That the Government of Canada: 1) direct the National Research Council to complete a building

code adapted to Arctic conditions and the effects of climate change; 2) implement an action plan

to mitigate the effects of climate change on existing and new infrastructure, including housing;

3) take immediate measures to address the housing crisis in the Arctic by funding a complete

continuum of Arctic housing; and 4) report on the effects of its investments on housing annually

to local, Indigenous and territorial governments.

B. Air and Road Transportation

Reliable transportation networks are closely connected to socio-economic development in the Arctic.

For example, Nunavut communities are not linked by road and the territory has a deep-water port

and small-craft harbor under construction in Iqaluit, an existing small-craft harbour in Pangnirtung

with another in development in Pond Inlet. The territory relies exclusively on costly marine and air

transportation for communities’ diesel shipments, cargo for goods and travel between communities.

The Northwest Territories has all-season and ice-roads connecting communities and industry to

markets and regional centres; both types of roads are under threat because of warming

temperatures and thawing permafrost. The opening of the Inuvik Tuktoyaktuk Highway in 2017 was

described as a positive development in terms of increased mobility of residents and attracting new

David Scott, President and Chief Executive Officer, Polar Knowledge Canada,

Evidence,

19 March 2018.

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visitors to the region. The territory envisions an all-weather highway up the Mackenzie Valley to

connect to Inuvik.

However, the influx of tourists and southerners may erode the cultural and

traditional norms of the community. Now that there is a road to Tuktoyaktuk, the community no

longer qualifies for federal subsidies for food and other basics like the Nutrition North Program even

though the road is not always open due to the thawing permafrost.

Discontinuous permafrost affects other modes of transportation. For example, in Nunatsiavut and

Nunavik, runways require adaptation to ensure remote communities have reliable transportation.

The Honourable Charlie Watt explained the effects of thawing permafrost, “We have 14 runways

that we’ve spent a huge amount of dollars on already in the last 10 years and they need to be redone

again. …[I]n a community that I was in not too long ago, half of the runway collapsed.”

Transportation deficits differ according to the Arctic region. For example, communities in

Nunatsiavut and Nunavut have aging runways that are too short to accommodate newer, more

powerful planes, many also lack lighting systems to guide pilots during reduced visibility like in the

evening, winter or during fog. Many flights are missed which is particularly important to residents

who may miss out on critical medivac services.

C. Marine, Emergency Response and Navigation

Given that most communities are located on the coastlines marine infrastructure is important to

Arctic residents. However, very few communities have ports impeding the movement of “goods and

services in and out of those communities.”

Marine infrastructure is of critical importance to a conservation economy and to those that harvest

food from the seas to feed their families and export commodities to external markets. Fisheries are

an economic driver in Nunatsiavut, Nunavik and Nunavut and could be better supported by small

craft harbours and deep-sea ports. The committee was encouraged to hear Pond Inlet has a small craft

harbour under construction and Iqaluit is upgrading to a deep-sea port and improving its current

breakwater to build a small craft harbour.

With the anticipated increased ship traffic along Canada’s coast, port facilities in Inuit communities

in Nunatsiavut are not equipped to accommodate larger vessels nor are northern shipping routes

properly charted. Johannes Lampe warned, “Extreme weather conditions are predicted to become

more common in the future, creating a very real need for improve sea travel safety.”

Due to the underdevelopment of the Arctic’s marine infrastructure, Canada is limited in its capacity

to respond to emergencies in the Arctic. Johannes Lampe observed that “some of the strongest and

Committee fact finding trip, September 2018, Yellowknife, Wally Schumann, Minister, Industry, Tourism, Investment and Infrastructure, Government

of the Northwest Territories.

Hon. Charlie Watt,

Evidence,

26 March 2018.

Natan Obed, President Inuit Tapiriit Kanatami,

Evidence,

15 October 2018.

Johannes Lampe, President, Nunatsiavut Government,

Evidence,

23 April 2018; Suzanne Paquin, NEAS Group, Kuujjuaq, Nunavik, Committee

fact finding trip, September 2018.

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earliest impacts of climate change are being felt throughout Nunatsiavut. Sea ice coverage in

northern Labrador Sea along our coast declined 73 % over the last 40 years, the largest rate of decline

in all regions of Canada.”

Changing weather patterns has meant that travel on the ice and land is

less reliable than previous years.

Complicating matters further, the Arctic seabed is sorely under-charted and ship traffic is expected

to grow with more tourists sailing on pleasure crafts that may be ill equipped for Arctic passage.

Emergencies are expected to become more common, placing greater demands on search and rescue

services, as corroborated by the recent

Standing Senate Committee on Fisheries and Oceans Report,

When Every Minute Counts: Maritime Search and Rescue.

Emergency response in the Arctic is limited by an aging fleet of icebreakers deployed in its waters.

Suzanne Paquin recounted an incident which jeopardized the annual shipment of supplies to High

Arctic communities in the fall of 2018. A Canadian Coast Guard icebreaker was diverted from its work

to rescue a pleasure craft grounded in the shallow Arctic waters. She suggested shipping routes in

the Arctic be federally regulated, to ensure ships use only specific routes which are safe and

navigable.

D. Broadband Telecommunications

The Canadian Arctic lags far behind the rest of Canada and other circumpolar countries in digital

connectivity. Reliable and affordable broadband telecommunications services can improve the

delivery of public services, help to preserve culture and language and enable economic diversification

by connecting remote communities to each other and the rest of the world. Broadband

telecommunications access in the Arctic is poor and, where available, expensive. Nunatsiavut,

Nunavut and Nunavik reported their communities were significantly underserved. Honourable Paul

Aarulaaq Quassa underscored, “Our information superhighway, the Internet, is also hampered by

our sole reliance on satellite for Internet and its associated high cost and slow speeds. This

contributes to a sense of disconnect between Northern and Southern Canada and further isolates

Nunavut from its national neighbours.”

When the committee travelled to Iqaluit, representatives of the Iqaluit Chamber of Commerce

observed that not only was the Internet access slow, it was expensive for a middle-class family to

afford. They shared that those with low incomes likely could not afford to access the Internet on a

regular basis. Madeleine Redfern testified that Canada had missed out on connecting Baffin Island

to fibre-optic lines from Nuuk, Greenland to Newfoundland. She stated “you effectively cannot put

a branching unit in after it has been built. It is as expensive as a new build.” She called for the

Johannes Lampe, President, Nunatsiavut Government,

Evidence,

23 April 2018.

Standing Senate Committee on Fisheries and Oceans Report,

When Every Minute Counts: Maritime Search and Rescue,

November 2018

Suzanne Paquin, NEAS, Kuujjuaq, Nunavik, Committee fact finding trip, September 2018.

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

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construction of a fibre link from “Iqaluit to Nuuk at a cost of approximately $80 million”; a cost that

would have been reduced by half had a branching unit been installed in the original design phase.

Inuvik Satellite Station Facility

Steve Smith, Chief, Champagne Aishihik First Nations and the Government of Yukon explained that

while they are served by high-speed broadband, there is a need for a redundant connection to

prevent service interruptions when, for instance, the existing line is cut or if there is a longer

interruption.

The Mackenzie Valley Fibre Link, running from south of Fort Simpson to Inuvik, came online in 2017

and brings faster internet speeds to communities. As stated by Bob Simpson, “The bandwidth has

improved because we have fibre-optic that goes to Inuvik and will be extended to another

community, Tuktoyaktuk.”

100

The net effects of this investment had a positive effect on the lives of

Indigenous peoples in the region.

100

Bob Simpson, Director, Government Affairs, Inuvialuit Regional Corporation,

Evidence,

23 April 2018.

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The committee agrees with witnesses that broadband investments have not been equitable in the

Arctic and its high cost results in the widening of the digital divide. Recent incremental federal

investments in additional satellite coverage have not brought about accessible coverage in most

communities.

101

Therefore, the committee recommends:

7. That the Government of Canada establish a broadband telecommunications action plan with

dedicated funds to support fibre deployment to underserved regions in the Canadian Arctic by

March 2020.

E. Energy

Energy is central part of Canada’s economy. Most Arctic regions rely exclusively on diesel to power

communities. In Nunavut, the Qulliq Energy Corporation generates and distributes electricity

through the operation of 26 stand-alone diesel plants in the territory’s 25 communities; the

territorial government spends $200 million a year on diesel and is actively testing other forms of

energy.

102

Iqaluit “consumes approximately 50% of the diesel fuel of the entire territory.” The sole

reliance on diesel compromises communities that have no alternatives. The sole reliance on diesel

compromises communities that have no alternatives.

Jordan Peterson described similar constraints in his region, the current reliance on diesel is costly in

terms of effects on both the environment and human health, “Gwich’in communities have been

actively pursuing renewable energy projects, including wind, biomass, and solar. There needs to be

ongoing support for these kinds of infrastructure developments.”

103

Renewable energy presents some opportunities for communities to be energy secure Nunatsiavut is

interested in micro-grid hydro development to supplement its exclusive reliance on diesel. Madeleine

Redfern emphasized that the “best option for energy for Iqaluit is hydro or…small modular reactors,

something that Russia is doing and also industry is looking into in other parts of the Arctic region.

The National Research Council has a national working group …looking at [funding] a pilot phase.”

104

Energy solutions being considered by industry may present opportunities for public private

partnerships to deliver energy to the territory. Qulliq Energy Corporation built district heating

systems connected to ten diesel plants which capture residual heat. Iqaluit recently received funds

to expand its excess heat capture from its diesel generators to heat the city’s Aquatic Centre. The

Nunavik Research Institute is testing solar panels to see how the batteries will store energy in cold

101

102

103

Jeff Phillip, President, SSI Micro, Committee fact finding trip, Yellowknife, Northwest Territories, September 2018.

Iqaluit Chamber of Commerce, Committee fact finding trip, Iqaluit, Nunavut, September 2018.

Deputy Grand Chief and Vice-President Jordan Peterson, Gwich’in Tribal Council, Committee fact finding trip, Yellowknife, Northwest Territories,

10 September 2018.

104

Madeleine Redfern, Mayor of Iqaluit,

Evidence,

22 October 2018.

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climates and how the panels work in areas with snow accumulation. Inuvik is benefiting from

investment in a wind farm and Agnico-Eagle’s new Meliadine mine has plans to invest in wind energy.

However, transitioning to renewable energy sources will not occur without greater investment in

how these technologies can be adapted to the Arctic, particularly with regards to battery storage.

The wildfires and areas of deadfall in Yukon have increased First Nations use of biomass (woody fuels

in particular). Chief Smith of Champagne Aishihik First Nations told the committee that this in turn

has increased the First Nations’ use of biomass for fuel. Other entrepreneurs have started businesses

to offset northern communities’ reliance on diesel. For example, Blair Hogan’s company in Teslin,

Yukon “helps communities access renewable energy opportunities”

105

by building biomass district

heating systems which are in use in the Arctic regions of Scandinavian countries, his “three district

energy systems offsetting half the community’s diesel for space heating, people are now visiting us

and they see an example of what a Scandinavian project could look like for them.”

106

The committee acknowledges the important recommendations in the Standing Senate committee

on Energy, the Environment and Natural Resources Report,

Powering Canada’s Territories,

and

therefore recommends:

8. That the Government of Canada ensure Arctic and northern communities have reliable and

secure forms of energy, including renewable energy and alternates to diesel based on locally

identified priorities and opportunities.

105

106

Blair Hogan, President, Gúnta Business, The Gordon Foundation,

Evidence,

27 February 2019.

Blair Hogan, President, Gúnta Business, The Gordon Foundation,

Evidence,

27 February 2019.

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Education, Skills and Employment

A. Education Skills Gap

Witnesses raised education as an important driver for overall community success in every region of

the Arctic. Education is an important precondition for greater opportunity and is a marker of

community well-being. The committee heard from witnesses that there is a skills gap in the Arctic,

whereby local employers struggle to find qualified workers for higher-skilled jobs while Indigenous

peoples face higher unemployment rates and tend to occupy low-paying service jobs.

107

Educational attainment is strongly linked to higher incomes: as Indigenous peoples have lower rates

of educational attainment than non-Indigenous peoples in the Arctic, they have significantly lower

incomes and higher rates of unemployment.

Figure 4 - Income of Individuals and Unemployment, Indigenous identity and

Selected Canadian Regions

Source:

Statistics Canada. 2018.

Aboriginal Population Profile. 2016 Census

Statistics Canada Catalogue no. 98-510-X2016001. Ottawa. Released July 18 2018. Accessed on 2019-04-11.

107

Mary Simon,

A new Shared Arctic Leadership Model,

March 2017.

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The skills gap is evident across the sectors, including the public and natural resources sectors. Lower

levels of education impede access to many of the available positions. Representatives from the mining

industry reported that internationally, Indigenous peoples occupy senior positions internationally,

which is not the case in Canada.

108

Indigenous people in the Arctic continue to deal with the legacy of colonization making it difficult for

some Indigenous workers to find meaningful employment. As such, community leaders underscored

some may struggle with low self-esteem, inadequate housing leading to attendance or performance

issues, and barriers to participating in the labour market such as the lack of child care and inadequate

or supplementary services such as inadequate mental health supports or non-existent substance use

treatment facilities in all of the regions except Nunavik.

B. Pathways to Post-Secondary Education

A concerted effort must be made to connect the education and training needs of Indigenous peoples

to current and future employment opportunities. Given the anticipated growth of the resource

sector in Nunavut, ensuring Inuit benefit from the development occurring on their lands is of critical

importance.

The committee strongly agrees that “youth are the Arctic’s biggest asset to respond to a changing

environment.”

109

Quality education depends on adequate funding, proper infrastructure and

committed teachers who can respond to the distinct Indigenous language and cultural needs of

students. The committee learned of several challenges and best practices from Arctic students,

teachers, instructors and employers which will be discussed in the following section.

The committee heard from many students about the poor quality of education available in

communities in the Arctic. The problem is compounded by a lack of academic instruction in

communities, and the phenomenon of “social passing” where students are given passing grades even

though they may not meet the requirements. As stated by Cindy Dickson, Executive Director, Arctic

Athabaskan Council, “That’s absolutely correct. I know some students that can barely read, and

they’ve been passed up through the grades.”

110

Such factors mean that students’ pursuit of post-

secondary education may be further limited.

108

109

110

Mary Simon,

A new Shared Arctic Leadership Model,

March 2017.

Sylvie Renaud, Canadian Northern Economic Development Agency, Iqaluit, Nunavut, Committee fact-finding trip, September 2018.

Cindy Dickson, Executive Director, Arctic Athabaskan Council,

Evidence,

18 March 2019.

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Students at Arctic College in Cambridge Bay with Senators Patterson and Bovey

Students described completing secondary school with high grades and not meeting the equivalency

standards when assessed at southern post-secondary institutions. The committee met with

Indigenous and non-Indigenous students at Aurora College in Inuvik who were in the process of

upgrading their courses via basic adult education programs, so they could begin a college or

university program.

111

As many students have to upgrade, they have to pay or use up to two years

of financial assistance to complete basic adult education, which may limit their future academic

studies.

112

Students in the Arctic are hampered by having to leave their communities, and the region,

if they wish to attend university. There is no university in the Arctic region, though the committee

was pleased to hear that Yukon College will soon transform into the first university in the north.

The Canadian Northern Economic Development Agency has a Northern Basic Adult Education

Program which provides funds to the three northern colleges, Aurora College, Yukon College and

Nunavut Arctic College. Courses are delivered in smaller communities via their networks of

community learning centres, including the campus the committee visited in Cambridge Bay, Nunavut.

111

112

Student roundtable, Aurora College, Inuvik, Northwest Territories, Committee fact finding trip, September 2018.

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Closing the digital divide in making broadband telecommunications available in the Inuvialuit region

has led to wide-scale improvements for students. While distance learning is no replacement for in

person instruction, the region has brought academic instruction to students in small communities in

the Inuvialuit region via distance learning. The program facilitates access to some of the “best

teachers the North has to offer”

113

with courses geared for students to attend university or college.

The course selection is varied, with “guest lecturers from universities, workshops on digital

storytelling, hands on learning in science, math, social science, biology, connecting students in small

communities with others throughout the territory.” In classroom monitors support student in person

with organization, curriculum “an energetic and actively engaged monitor who is modeling proper

behaviours in the classroom has been one of the greatest factors to the success of Distance

Learning.”

114

Since the start of the program, several Inuit students have gone onto attend university,

one of whom is now pursuing her medical studies. As stated by one of the students in the program

who now attending university, the Northern Distance Learning is important because “it is the only

opportunity to take academic courses while staying in my community.”

115

The committee was pleased to hear from representatives from Yukon College and to see recent

federal investments to transform Yukon College into a university and encourages it to recruit

students from across the Arctic. The Committee also acknowledges the collaboration announced

between Nunavut Arctic College and Memorial University to help further develop post-secondary

education in Nunavut. Students across the Arctic told the committee that place-based learning was

of critical importance to their cultures, languages and overall success. Therefore, the committee

recommends:

9. That the Government of Canada support Indigenous and/or territorial governments to:

1) increase funding for Basic Adult Education in the Arctic; 2) ensure students can pursue studies

in their Indigenous language; and 3) support the Government of Nunavut to establish a university

in the Eastern Arctic.

Growing a Local Workforce

A. Public Sector

The public sector is the largest employer across the territories in the Arctic. The

Nunavut Land Claims

Agreement

(NLCA) between the Government of Canada and

Nunavummiut

includes specific

measures to ensure there is an Inuit-representative workforce in the Government of Nunavut. Aluki

113

114

115

Frank Gallway, Superintendent, Beaufort Delta Education Council, Inuvik, Northwest Territories, Committee fact-finding trip, September 2018.

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Kotierk observed that Inuit envisioned a territorial government where “we could continue to have

our Inuit culture and language thrive.” Despite this vision, Nunavut Tunngavik Inc. reported its’

concern “that [Inuit] are not currently reflected” within the public government. Despite the target

established by the NLCA for 85% of the Government of Nunavut’s staff to be Inuit, only half of the

employees are “Concentrated at the lower and less skilled levels.”

116

The economic costs to Inuit are

enormous, and include lost wages, an inability to deliver services in Inuktitut and the critical lack of

Inuit influence over policy and program design for the territory.

Since the conclusion of the NLCA, Inuktitut use has declined at a rate of 1% a year in Nunavut. Aluki

Kotierk stated this was connected to the Government of Canada’s decision at the conclusion of the

NLCA not to support Inuktitut as the “working language of our territorial government … [As a result]

Inuit are not receiving essential public services of a reasonable quality because they are not being

delivered in Inuktitut.”

117

She urged the committee to support the implementation of Article 23 of

the NLCA, along with other provisions of the treaty which remain unresolved.

With many positions available in the territory, those “Nunavummiut have increasing choices in

employment. Inuit with skills and job experience are in high demand”.

118

The situation is

compounded by the relatively higher levels of unemployment of Inuit in the territory due to lower

levels of educational attainment. Virginia Mearns, Associate Deputy Minister, Executive and

Intergovernmental Affairs, Government of Nunavut, outlined some of the specific measures taken to

narrow the skills gap to build an Inuit-representative workforce in in the territory. For those with

lower skill levels, the government invests in pre-employment training to prepare

Nunavummiut

for

specific occupations in the public service and establishes plans for on-the-job training, mentorship

and arranges youth internships.

Financial support is provided to train Inuit in professional fields like law, health and education to

meet the long-term goals of Inuit delivering public services in the territory. Virginia Mearns noted

improvements in broadband telecommunications infrastructure would mean that the territory

would be in a position to offer training at a reduced cost to more people.

B. Private Sector

Strengthening Indigenous peoples’ participation in the mining sector was raised as an important

condition of the mines operating on Indigenous peoples’ lands. Indigenous leaders reflected on the

importance of corporate social responsibility, and in doing business with industry that understands

the importance of balancing environmental protection along with staged economic growth. The

committee learned of investments in on the job training in the trades that has led to more Inuit

assuming roles in all aspects of production in mining. The committee visited the community of Baker

Lake, Nunavut and the Meadowbank gold mine operated by Agnico Eagle located on Inuit lands north

116

117

118

Aluki Kotierk, President, Nunavut Tunggavik Inc.,

Evidence,

26 March, 2018.

Aluki Kotierk, President, Nunavut Tunggavik Inc.,

Evidence,

26 March, 2018..

Virginia Mearns, Associate Deputy Minister, Executive and Intergovernmental Affairs, Government of Nunavut,

Evidence,

26 February 2018.

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of Baker Lake in the Kivalliq region. The company is expanding its operations in the region, with the

identification of additional deposits in the region. The new mine sites, Amaruq and Meliadine, are

expected to be in operation in 2019.

The Kivalliq Inuit Association entered into an Inuit Impact and Benefits Agreement with Agnico Eagle

that has specific goals to achieve with respect to training, employment and related benefits for Inuit.

Part of these commitments has meant Agnico Eagle developed specific programs to reach out to

prospective workers starting in secondary school with Inuit employees promoting careers in the

sector. The mine operates a Rapid Inuit Specific Education program which provides on-the-job

training and apprenticeships to obtain certifications to work in higher skilled and supervisory

positions.

Local Artist and entrepreneur, Cambridge Bay

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The committee met with several Inuit employees who occupy different positions at the mine, from

heavy equipment operators to human resources professionals. Through on the job training, for

example, one can start in an entry level position at the mine and earn the certification to work as a

heavy equipment operator in a shorter timeframe rather than the average of 15 years in southern

Canada.

119

Additionally, an on-the job pairing program matches employees to grow skills readiness

to assume future supervisory positions at the mine. Agnico Eagle produces reports on Inuit

employment as a condition of the company’s certification to operate in the Kivalliq region, in 2018

out of 2,400 employees, more than 500 are Inuit the company invested $8 million in training and

development with the goal to have the mines 100% staffed by a local workforce in the future.

120

Training in communities and at the mine site can bring about higher employment rates for Inuit. The

Nunatsiavut Government has had an Impact and Benefits Agreement in place since 2002 with the

Voisey’s Bay mine. As part of the agreement, training was offered directly in the Nunatsiavut

communities like mill operator certification with an on-site component in the mine to “bring people

into the site to see what the site is like and actually experience it before you take a job.”

121

The

Nunatsiavut Government reports that they have started to see Inuit in senior management positions,

in charge of the mine site and mill operations.

122

Other mines have not achieved targets established for Indigenous employment. A recent report on

Mary River Project Mine’s proposed expansion in Nunavut noted that Inuit will not be in a position

to benefit from employment if mining scales up too quickly as there is not enough time to build

sufficient capacity.

123

C. Conservation Sector Opportunities

As noted in Mary Simon’s 2017 report, there are many well-paying jobs in the Arctic, and locals do

not necessarily have the skills to assume them. She observed that an Indigenous-led conservation

economy builds on the strengths and capacities of Indigenous peoples and governments by

supporting harvesting, marine and land stewardship. Furthermore, Qikiqtani Inuit Association

observed that the conservation economy is connected to greater food sovereignty for Inuit and has

the added benefit of strengthening culture and language.

Across the Arctic, the committee met with students pursuing post-secondary studies in

environmental management conservation or who were employed at research institutes, such as at

the Nunavik Research Institute or studying at Dechinta Centre for Research and Learning. In

Cambridge Bay, the committee met with two women who were students in the environmental

technology program at Nunavut Arctic College. Many careers are open to them, even prior to

119

120

121

122

123

Agnico Eagle Mines Limited, Committee fact finding trip, Nunavut, September 2018.

Patrice Gilbert, Vice-President, Health and Safety and Community, Agnico Eagle Mines Limited,

Evidence,

1 April 2019.

Isabelle Pain, Deputy Minister, Nunatsiavut Secretariat, Nunatsiavut Government,

Evidence,

23 April 2018.

Isabelle Pain, Deputy Minister, Nunatsiavut Secretariat, Nunatsiavut Government,

Evidence,

23 April 2018.

Loxley, John,

Assessment of the Mary River Project: Impacts and Benefits,

February 2019, submitted by Ocean’s North.

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completing their certificates, due to high demand in the sector. One of the students mentioned she

became interested in the program after her father had completed it, as it allows her to spend time

on the land and builds on the strength of her culture. Funding from the Government of Nunavut

enables students to bring their families with them to complete their studies. Instructors at Nunavut

Arctic College explained some of the challenges that students face, such as basic adult education

upgrading and trades are not defined as post-secondary, making students ineligible for funding.

Youth across the Arctic stressed that they need education of the same quality as other Canadians,

and that is relevant to the cultures and languages of the Arctic. One student who studied at Dechinta

Centre for Research and Learning in the Northwest Territories which provides academic instruction

and hands-on learning based on Indigenous cultures, values and languages recommended an

Indigenous-led university would be beneficial for the Arctic.

124

The committee recognizes that

several reports raise this matter, including Mary Simon’s 2017 report, which urged for broad

investments in education, starting in early childhood, and to adapt existing federal skills and training

programs to Arctic realities.

It was recommended by several witnesses that broad measures to align education and training

initiatives to occupational demand will support the economic expansion of the region so that the

economies of the Arctic provide work for its residents. As the Government of Canada invests in labour

force capacity through several departments, including Innovation, Science and Economic

Development Canada and Employment Training for Indigenous Peoples at Employment and Social

Development Canada, the committee therefore recommends:

10. That the Government of Canada, in partnership with Indigenous and territorial governments,

build upon and support existing territorial education and labour force strategies based on Arctic

peoples’ priorities and needs, to decrease the reliance on southern workers.

11. That Employment and Social Development Canada and Innovation, Science and Economic

Development Canada: 1) immediately adapt its skills and employment programs to the

educational attainment and labour force realities of the Arctic; 2) with Indigenous and territorial

governments, use data to better target federal investments in post-secondary education and

training to Arctic peoples’ priorities and the labour market to meet the needs of this generation

of Arctic youth; and 3) invest in post-secondary education and training in such areas as trades,

arts and conservation sectors, or other priorities as identified by northerners.

124

Dechinta Centre for Research and Learning, Yellowknife, Northwest Territories, Committee fact finding trip, September 2018.

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CHAPTER 2 - CULTURE AS A PATHWAY TO STRONG AND

HEALTHY COMMUNITIES

Inuit have lived on the sea, ice, land and water for generations.

125

The land in the Arctic is the foundation of Indigenous culture and languages; a source of spirituality,

sustenance, pride and identity. Many witnesses observed that the Arctic lands, ice, seas, marine and

wildlife resources are rapidly changing, which means that cultural practices have had to adapt. As

shared by Bernadette Dean, Chair, Inuit Broadcasting Corporation, any hunter-gatherer society is

flexible and adaptable, as the ability to respond quickly to changes in the geographic or cultural

environment has been essential to their survival.

126

Culture is Healing

Culture is a necessary part of community-based efforts to heal from the legacies of the past.

Indigenous cultural knowledge and practices are a “strong protective factor for community

wellness”

127

In our work with [E]lders, we have been told that the purposes of beliefs and cultural practices that

served Inuit for thousands of years do not change with time. If we can reclaim them, they can

become strengths for Inuit today, just as they were in the past.

128

From the early days of its relationship with Indigenous peoples in the Arctic, Canada was coercive

and intrusive, and the lingering effects of federal policies contribute to the social and health

challenges faced by Indigenous peoples in the Arctic today. Witnesses before the committee

maintained that the consequences of forced relocation and settlement, dog slaughter, residential

schools and taking people south for tuberculosis treatment cannot be understated. As Honourable

Paul Aarulaaq Quassa explained:

[T]he lives of the Inuit were forever changed by the policies and programs that took Inuit from their homes,

denying them their language and culture, placing them in unfamiliar lands and communities, and separating

them from a way of life they had always known. Many of us lost our language, our culture, our traditions,

which is, of course, our identity. Many struggled with trying to reconcile the ways of the past and their present.

Many turned to alcohol and drugs, to violence or to suicide or have been profoundly impacted by these

actions, and many today are still struggling in these ways.

129

125

126

127

128

129

Hon. Charlie Watt, former senator, President, Makivik Corporation,

Evidence,

26 March 2018.

Bernadette Dean, Inuit Broadcasting Corporation, Supplementary document submitted to the committee, 4 February 2019.

Shirley Tagalik, Director, Aqqiumavvik Society,

Evidence,

1 April 2019.

Shirley Tagalik, Director, Aqqiumavvik Society,

Evidence,

1 April 2019.

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

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Oviloo Tunnellie (Canadian (Cape Dorset), 1949-2014),

Nurse with Crying Child,

2001, serpentine,

25.7 x 15.6 x 9.5 cm, Collection of John and Joyce Price, Photograph: Ernest Mayer, courtesy of

the Winnipeg Art Gallery

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Indigenous peoples were encouraged to move to settlements by the Government of Canada, a move

that changed the structure of Indigenous peoples’ lives and their relationship to their traditional

territories. While the land is a source of healing, settlements were often seen as a source of many

problems, due to the swift pace of moving from a nomadic society to life in towns, often spanning

only a decade.

130

“It is often forgotten that present-day settlements are the result of a

sedentarization process that took place between the 1950s and the 1970s.”

131

The sites of settlements have led to contemporary problems. Madeleine Redfern explained when the

federal government selected the sites of permanent settlements in Nunavut, factors such as the

availability of “water, expandability for growing populations, transportation and good hunting” were

not taken into account. More than half of the hamlets in Nunavut continue to have water quality

issues, a by-product of federal decisions taken several generations ago.

Colonization and assimilation disrupted culture and language and the effects persist within family

relationships and the slow decline of the use of Indigenous languages at home. leaders across the

Arctic were clear that the Government of Canada must address the legacy of colonialism – “pressing

social issues such as suicide, mental health, alcoholism and addiction, [and] the erosion of language

and culture” – with community-led solutions.

132

These challenges cannot be left to local, Indigenous and territorial governments in the Arctic to

resolve. While there is no one simple measure that can “remedy the social and economic inequity

that many of the residents of the Arctic are facing”

133

, significant resources and investments are

required based on the needs and solutions identified by Indigenous communities and

governments.

134

130

131

132

Claudio Aporta, Director, Marine Affairs Program, Dalhousie University,

Evidence,

1 April 2019.

Claudio Aporta, Director, Marine Affairs Program, Dalhousie University,

Evidence,

1 April 2019.

Johannes Lampe, President, Nunatsiavut Government,

Evidence,

23 April 2018; Hon. Charlie Watt, former senator, President, Makivik

Corporation,

Evidence,

26 March 2018; Isabelle Pain, Deputy Minister, Nunatsiavut Secretariat, Nunatsiavut Government,

Evidence,

23 April

2018.

133

134

Duane Wilson, Vice President of Stakeholder Relations, Arctic Cooperatives Limited,

Evidence,

25 September 2018.

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

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The interconnected nature of the social determinants of health mean they must be approached in a

holistic fashion and not siloed by government departments. Addressing food insecurity and hunger,

housing shortages and overcrowding, income inequality and poverty, and lack of access to culturally

safe health, education and social systems must be the priorities of all governments, so that children

born today will live in a healthier society tomorrow. Therefore, the committee recommends:

12. That the Government of Canada, with Indigenous, territorial and local governments, take

immediate measures to address the social determinants of health that takes into account

Indigenous norms, values and languages in the Arctic and northern regions with specific

investments, goals and measurable outcomes reported annually to both houses of Parliament.

Protecting Indigenous Ways of Life

In response to increasing outside interest in the resources of the Arctic and northern regions, in the

1970s Indigenous peoples organized to have their inherent rights to the lands and waters of their

traditional territories protected. Retention and promotion of languages and cultures have always

been at the forefront of the struggle for such rights. Together, the constitutionally-protected

comprehensive land claims agreements cover parts of Yukon, the Northwest Territories, Labrador

and all of Nunavut. These agreements intend to improve the social, cultural, political and economic

health of Indigenous peoples, are protected by the

Constitution Act, 1982

and were negotiated to

ensure “our Inuit culture and language thrive.”

135

Aluki

Kotierk, President, Nunavut Tunggavik Inc.,

Evidence,

26 March, 2018.

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Country food: Nancy Aptanik harvesting caribou in Baker Lake

Governance structures, like public land and resource co-management boards, were established by

the land claims agreements and operate for the benefit of all Canadians. The agreements also set

out obligations for the Government of Canada to fulfil, such as support for vibrant cultures and

languages across communities in the Arctic.

Agreements provide jurisdiction over lands and resources, harvesting rights, environmental

management, parks and conservation areas, social and cultural enhancements, infrastructure and

self-government or public governments. Central to this chapter, comprehensive land claims

agreements also contain provisions regarding the protection and promotion of Indigenous languages

and cultures and for social and cultural programs and services that create space for the expression

of language and culture.

Comprehensive land claims agreements implementation must be the cornerstone of the Arctic and

Northern Policy Framework. To northern Indigenous peoples, strong and healthy communities hinge

upon the ability to harvest, hunt and fish, providing food for families and land-based skills

development. All of these measures strengthen communities.

Several witnesses raised promising practices related to land, culture and language arising from the

settlement of comprehensive land claims agreements. Torngat Mountains National Park is the first

park in Canada co-managed between Inuit in Nunavik and Nunatsiavut, respecting the rights and

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knowledge systems of Indigenous peoples, by “incorporating the Indigenous history and cultures into

management practices.”

136

The first priority of Nunavik and Nunatsiavut Inuit was to bring Elders and

youth back to their homeland in northern Nunatsiavut. Youth learned leadership skills, language and

traditional knowledge, “to ensure that knowledge and traditions are passed on to them…it

empowers our youth.”

137

However, the Nunatsiavut Government has been unable to offer the

program in Torngat Mountains National Park for the past two years due to costs. Instead, the

government has identified other sites in Nunatsiavut where language and land-based education will

be offered closer to Inuit communities.

With base camp established just outside of the park, Inuit tour operators and guides bring tourists

to the area, and the “story we tell in the park is an Inuit story.”

138

An increasing number of visitors

are visiting the park year to year but the costs to operate the park, including shipment of fuel and

food is high, due to the remoteness of the area and the underbuilt infrastructure in the region.

Several witnesses raised the importance of connecting Elders with younger generations on the land

to pass on their knowledge. Shirley Tagalik discussed the importance of Elders’ deep relationship

with the land as healing. She cited discussions she had with incarcerated men who stated that

practicing their culture on the land would have prevented their incarceration.

139

Spending time on

the land as a community-based environmental and wildlife monitor helps people recover from

addictions and trauma. As shared by Valerie Courtois, of the Indigenous Guardians Initiative,

We need to be back on the land. That’s where our healing and identity will come from, and that is

where our relationship with the rest of Canada and Canadian[s] is really emerging from. It is that

very personal on-the-land relationship.

140

Indigenous government representatives who appeared before the committee rely on hunters and

trappers organizations’ expert knowledge to regulate and manage harvesting practices and

economies. Nunavik Furs, a cooperative established by Makivik Corporation, generates income for

about 40 local hunters and trappers to offer a local source of fur to community members to produce

clothing and art. The cooperative sets the price for furs for hunters and trains new hunters to clean

and cut the hides. In another example, the Gwich’in Tribal Council explained that local hunters and

trappers’ organizations have key roles to play in treaty implementation, connecting land-based

activities like harvesting to language revitalization initiatives. As such, the Gwich’in Tribal Council ties

greater treaty implementation funding to “balanced development in the North that supports and

contributes to revitalization of the traditional economy.”

141

136

Gary Baikie, Superintendent, Torngat Mountains National Park, Parks Canada,

Evidence,

19 November 2018.

Baikie, Superintendent, Torngat Mountains National Park, Parks Canada,

Evidence,

19 November 2018.

Baikie, Superintendent, Torngat Mountains National Park, Parks Canada,

Evidence,

19 November 2018.

137

Gary

138

Gary

139

140

141

Shirley Tagalik, Director, Aqqiumavvik Society,

Evidence,

1 April 2019.

Valerie Courtois, Director, Indigenous Leadership Initiative,

Evidence,

4 February 2019.

Committee fact finding trip, September 2018, Yellowknife, Jordan Peterson, Gwich’in Tribal Council.

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Art, Culture and Identity

When we think about art and its importance, language and culture are integrated into art. Art is a

voice for culture and for language.

142

Art, culture and languages of Arctic peoples have made significant contributions to Canada’s social

fabric. Art and cultural practices can educate and inform and tell the stories of communities and

individuals, strengthen language and build healthy identities. The committee heard from different

artists and collectives about the importance of art, traditional games, stories, song and dance in the

Arctic and northern regions.

Performing artists like the Inuit collective Qaggiavuut!, work with Elders to reclaim and learn of Inuit

stories that may have been lost or undermined:

[O]ur artists talk about what was lost during colonization. One of the great collateral damages of

colonization was the loss of songs and stories, how the elders were made silent, how they felt unsafe

to sing their songs, unsafe to tell their stories because they were considered shamanic by the

missionaries. Quickly, often in one generation, a whole library of songs and stories has been lost

and, with these, the language, the values, the spirituality and the history of the Inuit. … We are

working hard and urgently right now at Qaggiavuut! to document the last remaining knowledge

keepers, to train younger artists to come bring them together with the elders to learn the songs and

the dances. In the last few years, we’ve now documented and filmed 100 songs and stories, trying

to capture them before they’re lost forever.

143

In the late 1990s, following the suicide of two teenagers in Igloolik, Artcirq, an Inuit circus

performance collective, was formed for youth to learn ways to express themselves. Artcirq links

traditional Inuit culture with modern artistic practices, enhancing the self-esteem of participants.

Artcirq has since established a studio called Black Box, based on a model from Greenland, and offers

programs six days a week for youth in the community.

Jimmy Awa Qamukaq of Artcirq spoke about the importance of Artcirq’s programs in teaching moral

traditions, keeping Inuktitut language strong and in showing youth where they come from. He shared

with the committee the importance of the arts in keeping traditions alive:

[C]onserving Inuit games. It is one of the main points that we want to keep going, because during

Qaggiq, every year there is a gathering for us to celebrate the return of the sun. For us, keeping

sports strong is like cultural differences. Competition is important. It keeps our bonds very strong.

The sports we have will keep us alive during the hunting times, and also prove to one another we

142

143

Reneltta Arluk, Artistic Director and Founder, Akpik Theatre,

Evidence,

4 February 2018.

Ellen Hamilton, Qaggiavuut!,

Evidence,

4 February 2018.

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are strong together and can help each other out. Artcirq, it’s not just traditional and modern. It has

a lot more meaning. We exchange cultures and collaborate.

144

The committee heard from William Huffman, of Dorset Fine Arts, about the prolific work of artists

who belong to the West Baffin Eskimo Co-operative in Cape Dorset, Nunavut. Over 60 years of

operation, the Co-operative has created and maintained a distribution platform for Inuit visual art,

bringing the Arctic to Canada and the world. In addition to supporting artists through salaries,

marketing and copyright, the Co-operative, with the support of governments and private donors

recently opened the Kenojuak Cultural Centre, a community gathering hub, exhibition space and a

place for artists to produce their work. The Centre’s first installation was an exhibition of work by

Kenojuak Ashevak, which will travel to other venues in Canada, “the first time an exhibition of this

scale has been curated in the Canadian Arctic and circulated to venues across the country.”

145

A. Supporting Inuit Media

By the 1970s, changes were occurring among communities, with language and culture from the south

being introduced to Arctic communities by way of new media:

[T]he arrival of television in the Arctic, with its capacity to flood every living room in the Arctic with

images and languages from the consumer-driven south, represented a unique and potentially

devastating threat to a culture already reeling from the impact of trade, education and religion.

146

Inuit and community leaders realized there was an opportunity for Inuit to find a way of using

television as a vehicle for the protection of language and culture. The Inuit Broadcasting Corporation

was founded to produce shows in Inuktitut and funded through a federal program now called the

Northern Aboriginal Broadcast Program. The positive impacts are numerous, including training and

capacity building of Inuit to work in media and produce series and grow their careers in storytelling

through film. Bernadette Dean explained,

The Inuit language, like many other Indigenous languages, is rooted in oral traditions and oral

storytelling. It has transitioned really well with film and television due to being rooted in that oral

tradition. I want to mention that one of Canada’s greatest filmmakers, Zacharias Kunuk, started his

career [at Inuit Broadcasting Corporation].

147

The artist collective Isuma, founded in 1990 by Zacharias Kunuk, Norman Cohn, Paul Apak Angilirq

(1954-1998), and Pauloosie Qulitalik (1939- 2012), works to preserve Inuit culture and language and

to present Inuit stories to Inuit and non-Inuit audiences around the world. Isuma hosts content from

144

145

146

147

Jimmy Awa Qamukaq, Vice President, Acrobat/Clown and Chief Coordinator, Artcirq,

Evidence,

4 February 2018.

William Huffman, Marketing Director, West Baffin Eskimo Cooperative,

Evidence,

19 November 2018.

Bernadette Dean, Inuit Broadcasting Corporation,

Supplementary document submitted to committee,

4 February 2019.

Bernadette Dean,

Evidence,

4 February 2019.

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IBC and its artists helped to establish Artcirq. Isuma recently represented Canada at the Venice

Biennale and is the first presentation of art by Inuit in the Canada Pavilion.

TV and film has created children’s programming for language acquisition, importantly to Inuit and

other children, and shared the knowledge of Elders by broadcasting their stories which helps to

preserve cultural knowledge. Specific proposals were made by Inuit Broadcasting Corporation to

support this important work such as dedicated funding to strengthen archival collections of its

materials and to digitize collections.

The committee also heard from Taqqut Productions, an Inuit-owned company that focuses on

educational and children’s productions. Founded by educators, it produces Inuktitut television series,

in recognition that southern television was have an effect on the loss of language and culture.

Creating Inuit content for children is important, as “It is in childhood that we learn foundational

literacy skills, develop sets of values to take us through our live, and develop cultural identity as a

person.”

148

Inhabit Media is the sister company of Taqqut, publishing books primarily in Inuktitut and English,

focused on Nunavummiut authors. With seed subsidies from the Canada Council for the Arts, Inhabit

Media has been able to maintain 300 books in print and sees significant interest from the

international market for Inuktitut publications. Representatives from both Inuit Broadcasting

Corporation and Taqqut Productions highlighted the need for continued investment in the

production of series, as it grows the capacity for Inuit to work in media and provides full time work

over multiple years.

The committee recognizes there is a lack of equal access to funding for the arts, heritage and

language for artists in the Arctic. Witnesses stated multi-year, flexible funding was important to

support organizations and sustain businesses in the Arctic, and the committee therefore

recommends:

13. That Canadian Heritage: 1) increase its investments in the Northern Aboriginal Broadcasting

Program and 2) extend multi-year, flexible funding specific to Arctic recipients so they can

produce content in the Indigenous language of their choice.

B. Federal Programs for Art and Culture

The Government of Canada has several institutions and programs in place to support artistic

practices and showcase cultures, languages and the arts of Canada. The committee heard from the

Winnipeg Art Gallery, the Canadian Museum of History and Canada Council for the Arts. Together,

the national institutions hold important collections of Inuit, First Nations and Métis art along with

148

Neil Christopher, Producer and Director, Taqqut Productions,

Evidence,

4 February 2018.

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historical collections of functional items like sleds and parkas. The Winnipeg Art Gallery has the

world’s largest collection of contemporary Inuit art. It also has the Government of Nunavut’s entire

fine art collection on loan and is building an Inuit Art Centre to showcase these collections.

Central to the Gallery’s plans are to feature Inuit art, and to enable “peoples from the North and

South to meet, learn and work together.”

149

Plans are to host virtual exhibitions for schools across

the north, offering training in cultural studies for Inuit youth. The Gallery is a partner with the

University of Winnipeg and Concordia University to “bring more Inuit into careers as arts workers”,

with training to be offered between Winnipeg and northern communities. The inaugural exhibitions

will be led by an all-Inuit curatorial team representing all regions of

Inuit Nunangat.

150

The committee also heard from the Canada Council for the Arts, the national funding institution for

the production of art and the study and enjoyment of the arts in Canada. The Council has a program

called Creating, Knowing and Sharing: The Arts and Cultures of First Nations, Inuit and Métis peoples.

The Council provides a range of grants and services to artists in Canada in music, theatre, writing and

publishing, visual arts and dance. The organization changed its programming structure in the last

several years, relying on on-line applications for funding, previously it had a dedicated funding

stream for northern artists.

151

The Canadian Museum of History noted it is working with Indigenous communities to respond to the

archaeological sites in the Arctic being washed out to sea due to coastal erosion. Recent exhibitions

on the fate of the 1845 Franklin expedition saw the museum relying upon research and accounts by

Nunavut Heritage Trust and the Government of Nunavut to tell the story. The museum has started

thinking about how to share its collection, amassed over a century, with northern communities,

“once there are venues equipped with the environmental conditions required for safely displaying

fragile materials.”

152

149

150

151

152

Winnipeg Art Gallery, Supplementary document submitted to committee.

Simon Brault, Director and Chief Executive Officer, Canada Council for the Arts,

Evidence,

4 February 2019.

Karen Ryan, Curator, Northern Canada, Canadian Museum of History,

Evidence,

4 February 2019.

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Mary K. Okheena (Canadian (Ulukhaktok), b. 1957),

They Sang Grampa’s Song and I Danced,

1998, stencil on paper, Co-op Proof 3/3, 50.8 x 65.4 cm, Image: 36.8 x 54.7 cm, Collection of the

Winnipeg Art Gallery, Gift of Holman Eskimo Co-operative, 2000.161

Photograph: Lianed Marcoletta, courtesy of the Winnipeg Art Gallery

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Avataq Cultural Institute, established by the Elders of Nunavik in 1980, has a large archive of

interviews, photos, drawings, artifacts and prints from Nunavik stored in Montreal. They also have a

significant art collection transferred from the former Department of Indian and Northern Affairs, in

the 1980s. As stated by Rhoda Kokiapik, due to the lack of space in Nunavik, “These pieces are stored

in a climatized space in Montreal. I hope one day we will be able to transfer them to Nunavik. The

reason we don’t keep them in Nunavik is we don’t have a facility to store them safely.”

153

While the art produced in the Arctic is highly valued in Canada and overseas, most of the visual art is

held by southern institutions, limiting community members’ ability to experience this aspect of

their culture first-hand.

Alysa

Procida of the Inuit Art Foundation observed that having most of the

art of the north held by southern institutions is “a bit odd”, adding “I can see more Inuit art in

Toronto than necessarily when I go to a community in

Inuit Nunangat

depending on the day

because so much of it leaves.”

154

The committee believes multi-use cultural hubs and infrastructure are important places for learning,

creating and healing, particularly in Arctic communities where infrastructure development has been

neglected. Communities emphasized the importance of spaces where different generations can

connect, speak their languages and practice their culture. Therefore, the committee recommends

that:

14. The Government of Canada, in close collaboration with local, Indigenous and territorial

governments, support the development of multi-use community centres for the practice of arts,

culture and language.

C. Supports for Emerging Artists

With the arts economy providing an important source of income to nearly half of some community

members in

Inuit Nunangat,

there is great potential for the arts to continue to grow with proper

supports in capacity.

Alysa

Procida discussed the importance of supports for emerging and established artists from

the Arctic. The Inuit Arts Foundation provides direct support to artists in portfolio development,

writing biographies and CVs, and provides awards and scholarship programs. In 2017, it took

over the management of the Igloo Tag Trademark from the Government of Canada, the only such

trademark protecting Indigenous art in Canada. The Trademark helps protect Inuit visual arts from

counterfeits and adds value to art produced under the trademark. The West Baffin Eskimo

Cooperative also

153

154

Rhoda Kokiapik, Executive Director, Avataq Cultural Institute,

Evidence,

4 February 2019.

Alysa Procida, Executive Director and Publisher, Inuit Art Foundation,

Evidence,

19 November 2018.

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provides supports to artists through the supervision of the use and copyright of artwork, finding

residencies for artists in other studios, mentorships, supplying materials, wages and other supports.

Witnesses suggested that online applications for grants is challenging for artists in the Arctic due to

limited broadband access. Furthermore, Natan Obed highlighted that developing successful grant

applications in English may be difficult for any artist. Witnesses suggested that federal programs

should be locally delivered in the Arctic to provide better support to artists in communities, in their

Indigenous languages. Therefore, the committee recommends:

15. That the Government of Canada and the Canada Council for the Arts work with Indigenous and

Arctic arts organizations, to provide local outreach to Arctic and northern artists, including

specific supports to emerging artists in such areas as building capacity to apply for grants and

to exhibit their work.

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CHAPTER 3: SCIENCE, INDIGENOUS KNOWLEDGE AND

ENVIRONMENTAL CONSERVATION

The next step in the evolution of scientific practice in the Arctic is linking community-driven Arctic

research priorities with national policy development to ensure scientific investments benefit

communities and answer key questions facing the Arctic.

155

With the above words, Mary Simon, the Minister of Indigenous and Northern Affairs’ Special

Representative on Arctic Leadership, summarized the required evolution of Arctic research as

envisioned by Arctic residents. In the context of rapid changes taking place in the region, this view

was also conveyed to the committee by many witnesses.

Climate change is arguably the single greatest challenge facing the Arctic and its residents. Therefore,

understanding the climate change impacts on the Arctic’s ecosystem, including traditional food

sources, and infrastructure, including ice roads and sea ice used as highways by Inuit, requires strong

research capacity. Such a research capacity is essential not only to increase community sustainability

but also to prepare Arctic residents for tourism and resource development opportunities presented

by climate change.

However, for this capacity to be efficient, impactful, and useful, research must be carried out in

partnership with local communities and allows for the respectful incorporation of Indigenous

knowledge. The conduct of research must also be sensitive to the reality that Arctic residents are

already highly researched and community members often express that they feel research fatigue

when discussions about research arises.

Arctic Communities’ Knowledge Needs

A. Increasing Community Sustainability

Nancy Hamzawi told the committee that the decline in Arctic sea ice thickness and extent (Figure 5),

along with changes in the timing of ice melt, are affecting marine ecosystems and biodiversity;

leading to changes in diet among marine mammals; and altering predator-prey relationships, habitat

uses, and migration patterns.

156

Norma Kassi also indicated that terrestrial ecosystems are feeling

the effects of changes in precipitation, snow cover, and the frequency or severity of wildfire.

157

The

occurrence of rain-on-snow and winter thaw/refreezing events affect grazing animals by creating an

155

156

Mary Simon, “Research

and Indigenous Knowledge,”

Part 1 in

A New Shared Arctic Leadership Model,

March 2017.

Nancy Hamzawi, Assistant Deputy Minister, Science and Technology Branch, Environment and Climate Change Canada,

Evidence,

29 October

2018.

157

Norma Kassi, Co-Founder and Director of Indigenous Collaboration, Arctic Institute of Community-Based Research,

Evidence,

20 March 2019.

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ice barrier over lichens and moss. These observations are consistent with findings from the 2019

Canada’s Changing Climate Report.

158

Figure 5 – September Arctic Sea Ice Extent

Source:

Map prepared by Library of Parliament, Ottawa, 2019, using data from

Natural Earth,

1:50m Cultural Vectors,

version 4.1.0;

and F. Fetterer et al.,

Sea Ice Index,

Version 3, “Monthly Sea Ice Extent Images”, NSIDC: National Snow and Ice Data Center, Boulder,

Colorado, 2017 (accessed November 2018). The following software was used: Esri, ArcGIS PRO v. 2.1.0.

158

Government of Canada,

Canada’s Changing Climate Report – Executive Summary,

2019.

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Climate-driven environmental changes have profound implications for Arctic community

sustainability. For example, travel and hunting on ice may be hampered and safety compromised

with later ice freeze-up and earlier breakup. According to Larry Hinzman, reduced sea-ice extent also

has impacts on the abundance, migration, seasonal distribution, and composition of key commercial

fish, marine mammals, and seabirds, resulting in shortages of traditional country foods.

159

Gerald

Inglangasuk described the anxiety of the Inuvialuit regarding climate change impacts on their food

security with these words:

Our culture is strong and resilient, and the people harvest country food such as Arctic char, seals,

beluga whales, caribou, muskox and other country foods to feed their families and communities. We

are on the land. We see what’s happening. We see what has been occurring in the Arctic, and we

are concerned about the future.

160

Thawing of ice-rich permafrost and increased coastal erosion also threaten coastal settlements,

risking damage to the already deficient infrastructure, including road networks used for travel and

transport, and for access to traditional food sources.

161

Therefore, to increase their community

sustainability, Arctic residents require effective responses to their knowledge needs regarding

environmental changes that are affecting their day-to-day lives:

…we are in a time of such profound change that these iconic fish [Pacific salmon, Arctic char, and

Atlantic salmon] that are each representative of Canada’s three coasts are not only in the same

ocean, but they could actually be caught in the same net set by an Indigenous fisher harvesting

food. This means that increasing abundances and wider geographic occurrences of salmon in the

Arctic is a tangible example of climate change. The people in the Arctic are on the front lines of this

change. When a strange fish shows up that leads to questions: What is it? Where did it come from?

What does it mean for the fish that I usually rely upon? Can I eat it?

162

159

160

161

162

Larry Hinzman, President, International Arctic Science Committee,

Evidence,

1 April 2019.

Gerald Inglangasuk, Inuvialuit Member, Fisheries Joint Management Committee,

Evidence,

1 April 2019.

Christopher Burn, Chancellor’s Professor of Geography, Carleton University, As an Individual,

Evidence,

19 March 2018.

Karen Dunmall, Former Liber Ero Post-Doctoral Fellow, As an Individual,

Evidence,

27 February 2019.

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Kananginak Pootoogook (Canadian (Cape Dorset), 1935-2010),

The First Tourist,

1992, lithograph

on paper, 48/50, 57 x 71 cm, Government of Nunavut Fine Art Collection, On long-term loan to

the Winnipeg Art Gallery, 993.3.27, Photograph: Lianed Marcoletta, courtesy of the Winnipeg

Art Gallery & Government of Nunavut

B. Preparing for Tourism and Resource Development Opportunities

Climate change also presents economic opportunities for the Arctic. Improved maritime access to

the region may foster the growth of the mining sector, an already important private sector driver of

Canada’s Arctic economy.

163

During its September 2018 visit to the Meadowbank gold mine near

Baker Lake, Nunavut, the committee learnt about employment and skills development benefits for

Nunavut residents. However, social challenges associated with the mine development, such as

increased alcohol and drug use in the community, were also mentioned during the committee’s

discussions with the Hamlet of Baker Lake. Further research is therefore needed to understand and

163

Brendan Marshall, Vice President, Economic and Northern Affairs, Mining Association of Canada,

Evidence,

1 October 2018.

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mitigate social, cultural and environmental impacts of large-scale mining development in Arctic

communities.

According to the Arctic Fishery Alliance, Nunavut’s fishing industry is an “excellent example of the

potential for Canada’s Arctic economy to develop sustainably.”

164

However, the organization

indicated that the “baseline scientific knowledge of Nunavut’s marine environment is minimal or

non-existent.” Hence, the research capacity in Arctic fisheries needs to be strengthened to close

knowledge gaps and prepare Arctic communities for future opportunities arising from their marine

environment.

The committee heard from the Honourable Paul Aarulaaq Quassa, former Premier of Nunavut, on

the impacts of increased tourism in the context of the “Northwest Passage […] becoming accessible

to cruise ships.”

165

In addition to potential economic benefits, he expressed concerns regarding

cruise ships navigating into fjords where Inuit hunting grounds are, and the resulting effects on

marine mammals. Enhanced research capacity to understand the potential impacts of increased

maritime activities on Arctic marine mammals as well as cruise tourism impacts on Arctic

communities is, therefore, required to respond to local residents’ concerns and knowledge needs.

Arctic Research Infrastructure and Capacity

A. Research Infrastructure

The scientific knowledge on the impacts of climate change in the Arctic is most useful when it

addresses the pressing adaptation needs of Arctic communities and the well-being of the region’s

residents.

166

To close key knowledge gaps and enable informed answers to research questions from

Arctic communities, Maribeth Murray indicated that an integrated and sustainably funded Arctic

research infrastructure is essential.

167

She noted that research stations in the Canadian Arctic are

“critical components of Canada’s science capabilities and our contribution to global observing

activities.” Maribeth Murray also noted the role of research infrastructure in building bridges

between Indigenous and non-Indigenous experts:

The Canadian Network of Northern Research Operators works for a common purpose to support

coordination across these facilities. Scientists and Indigenous experts from across Canada often

use them as a base of operations and, importantly, they also serve to facilitate cooperation in Arctic

research and build bridges across nations and cultures. Maintaining our Arctic research facilities

164

165

166

167

Arctic Fishery Alliance, Arctic Policy Framework: Infrastructure & Economic Development for Nunavut Fisheries, August 2018.

Honourable Paul Aarulaaq Quassa, Premier of Nunavut, Government of Nunavut,

Evidence,

26 February 2018.

Mary Simon, “Research

and Indigenous Knowledge,”

Part 1 in

A New Shared Arctic Leadership Model,

March 2017.

Maribeth S. Murray, Executive Director, Arctic Institute of North America and Professor, University of Calgary, As an Individual,

Evidence,

1 April

2019.

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and this network is critical to continue to track change, project future conditions and develop

strategies for mitigation and response that will benefit Canada.

168

To maintain the existing research infrastructure, long-term and stable funding is critical as Maribeth

Murray mentioned:

It’s sometimes difficult to immediately see the benefit of the collection of these kinds of observations,

but they are key to underpinning our understanding of where we’re headed, both in the Arctic and

more broadly, so I would certainly like to see stable support for these kinds of nationally significant

pieces of research and observing infrastructure.

169

In addition to properly maintaining the existing research infrastructure, the committee heard from

witnesses on the need for coordination between different research networks and the building of new

research centres. During the committee’s visit to the newly established Canadian High Arctic

Research Station in Cambridge Bay, Nunavut, David Scott mentioned that the station is a much-

needed innovative facility that can support a wide range of research activities and will complement

the existing network of research facilities across the Arctic. However, he also observed that “there

are numerous areas in the North where you could fit the province of New Brunswick and no research

infrastructure exists.”

170

As shown in Figure 6, research centres in the Arctic are in majority owned and operated by

government departments, research institutions, and non-governmental organizations. Only a small

number of Arctic research centres are owned or operated by Indigenous organizations. During its

visit to Kuujjuaq in September 2018, the committee had the opportunity to tour the Nunavik

Research Centre. The Centre was established after the signing of the

James Bay and Northern Quebec

Agreement,

and operated by Makivik Corporation. The committee learned that the Centre carries

out scientific research on the natural environment and wildlife, including country food. Scientists at

the Centre test country foods, such as marine mammals, for diseases and heavy metals following

guidelines established by the Canadian Food Inspection Agency. Results are transmitted to Nunavik’s

Public Health officer within 24 hours of receiving samples from harvesting communities.

Maribeth S. Murray, Executive Director, Arctic Institute of North America and Professor, University of Calgary, As an Individual,

Evidence,

1 April

2019.

168

Maribeth S. Murray, Executive Director, Arctic Institute of North America and Professor, University of Calgary, As an Individual,

Evidence,

1 April

2019.

169

170

David J. Scott, President and Chief Executive Officer, Polar Knowledge Canada,

Evidence,

19 March 2018.

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Figure 6 – Distribution of Research Stations in Inuit Nunangat

Source:

Inuit Tapiriit Kanatami, “Distribution

of research stations in Inuit Nunangat,”

Figure 4 in

National Inuit Strategy on Research,

2018.

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To ensure that research priorities are community-driven, Joel Heath pointed out that it’s “important

to have [research centres] owned by communities as well so that communities can really take self-

determination and research and the intellectual property and drive that process.”

171

He also

emphasized the need for long-term and sustainable funding for Arctic research stations:

I don’t think all stations necessarily need to be community-owned, but when communities can take

that ownership, it will make it that much more successful. Currently, the funding is often very project

based. There needs to be funding that’s sustainable, so communities can have a full-time local Inuit

station manager hired to run programs. That needs to move beyond project-based funding.

172

B. Capacity of Territorial and Indigenous Organizations

Devolution of governance and settlement of land claims has transferred much responsibility for land

and renewable resource management in the Canadian Arctic to territorial and Indigenous

organizations. Members of these organizations frequently express concerns about their lack of

capacity to manage the large number of issues that are arising and anticipated in the context of rapid

changes driven by climate change. During its visit to Yellowknife, the committee heard, for example,

from the Sahtú Land Use Planning Board on challenges related to funding and delays in appointments

to the Board. These difficulties hamper the Board’s capacity to devise land use plans based on

scientific data and Indigenous knowledge. The Board reminded the committee that its mandate for

land use planning flows from the

Sahtú Dene and Metis Comprehensive Land Claim Agreement

and

the

Mackenzie Valley Resource Management Act.

To ensure that territorial and Indigenous organizations are in position to meet the adaptation

challenges of climate change, Christopher Burn recommended that the federal government work

with territorial governments and Indigenous governing bodies to:

increase the capacity of northern agencies to manage and mitigate the effects of climate change in

the Arctic, particularly with respect to built infrastructure. This will require investment in people and

positions as well as rehabilitation of existing facilities and modification of construction techniques.

Similar additional capacity may be required to manage the effects of climate change on wildlife

populations and water resources throughout the Canadian Arctic.

173

Christopher Burn also recommended the federal government to “assist development of

administrative instruments” to ensure that science conducted in the Arctic support territorial and

Indigenous organizations in carrying out their mandates. He clarified that these instruments may be

administered through the research licensing processes in the territories.

171

172

173

Joel Heath, Executive Director, Arctic Eider Society,

Evidence,

19 March 2018.

Joel Heath, Executive Director, Arctic Eider Society,

Evidence,

19 March 2018.

Christopher Burn, Chancellor's Professor of Geography, Carleton University, As an Individual,

Evidence on climate change effects and their

management and investigation in the western Arctic: Recommendations,

19 March 2018, Supplementary document provided to the committee.

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The committee notes that, in 2016, the three Arctic territories released a document entitled

A Pan-

Northern Approach to Science

putting forward their vision and priorities in scientific research and

development.

174

At the heart of the territorial science strategy is the development of partnerships

required for building Arctic scientific capacity. Collaboration with other governments, including

Indigenous governing bodies and organizations, as well as communities, academic institutions, and

industry was identified as critical to ensure that scientific research benefits and meets the needs of

Arctic residents. In addition, the territories identified ongoing support for territorial colleges and

research institutes as critical for scientific capacity building in the Arctic. The committee

recommends:

16. That the Government of Canada collaborate with territorial governments, Arctic Indigenous

governing bodies, academic institutions and industry to grow the scientific capacity of northern

agencies responsible for devising adaptation efforts to climate change.

C. Research Funding

In its National Inuit Strategy on Research, the Inuit Tapiriit Kanatami (ITK) observed that “federal

research funding eligibility criteria tend to exclude Inuit representational organizations from

accessing funding as lead institutions or principal investigators.”

175

Calling for the federal

government to align funding to Inuit research priorities, the ITK also indicated:

Inuit research priorities should be reflected among the priorities identified by funding agencies, and

they should influence the manner in which research priorities are determined, the composition and

function of research governance bodies, as well as funding eligibility criteria for prospective research

grant applicants.

176

Reflecting the ITK’s concerns regarding federal funding for Indigenous organizations undertaking

research, Shirley Tagalik indicated that the Aqqiumavvik Society in Arviat is a sought-after partner in

the Arctic research community.

177

However, “Aqqiumavvik is entirely funded by third-party grants,”

and there is a need for core funding for community organizations. Karla Jessen Williamson also

expressed her concerns regarding federal funding through the Tri-Council agencies - the Canadian

Institutes of Health Research (CIHR), the Natural Sciences and Engineering Research Council of

Canada (NSERC), and the Social Sciences and Humanities Research Council of Canada (SSHRC).

178

174

175

176

177

178

Government of Yukon,

Pan-Northern Approach to Science,

April 2016.

Inuit Tapiriit Kanatami,

National Inuit Strategy on Research,

2018.

Inuit Tapiriit Kanatami,

National Inuit Strategy on Research,

2018.

Shirley Tagalik, Director, Aqqiumavvik Society,

Evidence,

1 April 2019.

Karla Jessen Williamson, Assistant Professor, Ed Foundations, University of Saskatchewan,

Evidence,

1 April 2019.

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Representing the Tri-Council agencies, Ted Hewitt informed the committee about the progress made

by the federal government in devising strategies to grow the capacity of Indigenous communities to

conduct research and partner with the broader research community. He mentioned the Indigenous

Research Capacity and Reconciliation’s 116 Connection Grants:

More than half of these grants were awarded to Indigenous, not-for-profit organization and nearly a

dozen went to projects related to communities in the North and the Arctic. There will be more

opportunities for both Arctic and Indigenous research thanks to the recently launched New Frontiers

in Research Fund, a new CRCC [Canadian Research Coordinating Committee]-designed tri-agency

program.

179

Marc Fortin also indicated that:

NSERC in the process of reviewing, redesigning the partnership programs which represent about

$270 million a year of expenditures, partnerships between different groups, academia, and

sometimes industry. We are in the process of simplifying those programs, broadening eligibility to

those programs, including not-for-profit organizations and community organizations, and we are

thinking specifically of communities in the North.

180

Marc Fortin added that NSERC is also considering the appropriate approach to review research

proposals originating from Arctic communities since the “classical or the conventional peer review

approach, […] will be a challenge for some of those not-for-profit organizations, smaller community

groups or community associations.”

181

For its part, SSHRC is now ensuring that when research

proposals come from Indigenous Arctic communities, there will be representation from the Arctic in

peer-review committees examining the proposals.

182

The committee is encouraged by the progress made to date and notes that identifying new ways of

doing research with Arctic First Nations and Inuit communities is part of the Calls to Action (number

65) made by the Truth and Reconciliation Commission of Canada.

183

Given that very few Arctic

residents currently sit on federal research governance bodies,

184

and according to the ITK, federal

Ted Hewitt, Chair and President of Social Sciences and Humanities Research Council, Canada Research Coordinating Committee,

Evidence,

April 2019.

179

Marc Fortin, Vice President, Research Partnerships, and Chief Operating Officer, Natural Sciences and Engineering Research Council of Canada,

Evidence,

3 April 2019.

180

Marc Fortin, Vice President, Research Partnerships, and Chief Operating Officer, Natural Sciences and Engineering Research Council of Canada,

Evidence,

3 April 2019.

181

Hewitt, Chair and President of Social Sciences and Humanities Research Council, Canada Research Coordinating Committee,

Evidence,

April 2019.

183

Truth

184

182

Ted

and Reconciliation Commission of Canada,

Calls to Action,

2015.

Ted Hewitt, Chair and President of Social Sciences and Humanities Research Council, Canada Research Coordinating Committee,

Evidence,

April 2019.

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“engagement with the Inuit governance structure, research institutions, and priorities by the

research community tends to be sporadic,”

185

the committee recommends:

17. That the Government of Canada create mechanisms for Arctic Indigenous representational

organization’s input into federal research governance bodies, and partner with Arctic Indigenous

governing bodies and communities in setting Arctic research priorities as it relates to funding

requirements.

Incorporation of Indigenous Knowledge in Arctic Research

The committee heard from Sandra Kunuk Inutiq on the necessity to have “research priorities set by

the community and then capacity building within Inuit [communities] to do that research or to

partner with whom we want to partner with on research.”

186

The ITK added that “Inuit self-

determination in research is imperative for enhancing the effectiveness, impact, and usefulness of

research for Inuit.”

187

Therefore, research that is community-driven and effective will necessarily

incorporate Indigenous knowledge, or in the case of the Inuit,

Inuit Qaujimajatuqangit.

188

Karla Jessen Williamson impressed on the committee the need to consider Indigenous knowledge as

a legitimate form of knowledge embodying a wealth of wisdom and experience of the environment

gained over millennia from direct observations:

What is knowledge and whose knowledge matters? I think it’s a very pertinent question that we

need to ask here in Canada. Obviously, Canada as a nation is a state that has been deeply and

continues to be very deeply involved in colonial structures.

189

In her view, Indigenous knowledge of the environment is intuitive and holistic and is derived from

the special relationship between Indigenous peoples and their lands:

In a decolonialized mindset that’s the input the First Nations, Metis and Inuit can have, is relationship

with the land because without the land we are nothing in reality. Great scholars like Paulo Freire

were one of the first ones to alert us that as human beings we need to explain ourselves in relation

185

186

187

Inuit Tapiriit Kanatami,

National Inuit Strategy on Research,

2018.

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement, Qikiqtani Inuit Association,

Evidence,

1 April 2019.

Inuit Tapiriit Kanatami,

Position Paper: Development and Implementation of the Arctic Policy Framework,

November 2018, Supplementary

document provided to the committee.

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement, Qikiqtani Inuit Association,

Evidence,

1 April 2019.

Karla Jessen Williamson, Assistant Professor, Ed Foundations, University of Saskatchewan,

Evidence,

1 April 2019.

188

189

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to nature and the environment, and I think it’s something that needs to be well taken for what it is,

because without the land, without the environment we are absolutely nothing.

190

In the same vein, Jocelyn Joe-Strack indicated that “Indigenous knowledge is an aspect of humanity,

being and living that is often missing from science and policy.”

191

Valérie Courtois added that

Indigenous knowledge is a rich source to be tapped into to gain new perspectives about the

relationship between humans and the environment:

Our science is very young, relatively speaking, on caribou, compared to Indigenous knowledge

systems. What we’re finding is that while we know the caribou are cyclical, like lynx or rabbit, but

the cycle is very long. The Western science data and the information we have doesn’t cover the

entirety of a cycle. The oldest collars installed in Canada on caribou were installed in Labrador in

1983 to track packs of low-level flying. We have only got less than 40 years.

192

The Inuit Circumpolar Council Canada drew the committee’s attention to the interactions between

science, arts, and culture. According to the Council,

Science, arts, and culture are inextricably linked, one feeding into another, with the Inuktut language

weaving its way through. Environmental science supports successful subsistence hunting practices

that provide materials for the clothes and supplies artfully created from skins, bones, and fur, which

are foundational to the Inuit culture that exists in the survival of Arctic conditions. Promoting one

means promoting all. And to strengthen science, arts, and culture is to equip the youth population

with the tools required to preserve the language and customs of their ancestors, and to observe,

record, and communicate the environmental changes that are happening as the climate warms.

193

The committee also heard Christopher Burn pointing out that “Indigenous knowledge shares

attributes with western science but is also distinct. The distinctions are important because they alter

and may even enhance participation in decision-making processes.”

194

In the view of the Inuvialuit

Regional Corporation, the federal Arctic and Northern Policy Framework should “provide direction

to Canada’s representatives on how both Indigenous knowledge and western science can be better

synergized to reflect an all-inclusive approach.”

195

However, despite the importance of Indigenous

knowledge in providing a unique understanding of the Arctic environment and its peoples, Karla

Jessen Williamson indicated that, in the past, it has not been respected as a source of knowledge for

Arctic research:

190

Karla Jessen Williamson, Assistant Professor, Ed Foundations, University of Saskatchewan,

Evidence,

1 April 2019.

Joe-Strack, Consultant and PhD student, Subarctic Research and Strategy, University of Saskatchewan As an Individual,

Evidence,

191

Jocelyn

April 2019.

192

193

194

195

Valérie Courtois, Director, Indigenous Leadership Initiative,

Evidence,

1 April 2019.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Christopher Burn, Chancellor's Professor of Geography, Carleton University, As an Individual,

Evidence,

19 March 2018.

Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, 10 September 2018.

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I have never had funding from SSHRC, ever; I never have, even though I have been applying. But

my ideas that are well grounded in the Indigenous knowledge have never been appreciated, except

that 10 years later, they will be inviting me to speak on some policy making.

196

The committee is encouraged to hear from many scientists based in southern Canada that their

research is now undertaken in meaningful partnership with Arctic communities and such research

has created value for those communities. Joel Heath described the work of the Arctic Eider Society

as follows:

Sanikiluaq is very proactive. They had a program called Voices from the Bay, which catalyzed a lot

of collaboration between Hudson Bay communities. We networked with Inukjuak, Umiujaq and

Kuujjuaraapik in Nunavik, Chisasibi in the region of Northern Quebec and Sanikiluaq in Nunavut to

form this network. Each community has a different piece of the puzzle that the community can get

to by Ski-Doo in the winter or by boat. By putting the pieces together, we can get a bigger picture of

what’s been happening and look at the cumulative impacts of environmental change, such as

hydroelectric electric projects, climate change and development.

197

The committee also heard from Gary Stern about involvement of Indigenous communities in

research on contaminants, such as mercury and hydrocarbons, circulating within the Arctic

ecosystem, and how they are affected by climate change:

When we started it, with a big workshop that we had in Inuvik, we invited people from Inuvialuit,

Kitikmeot and the Yukon North Slope, as well as different scientists involved in these studies. We

got direct input from them as to exactly what their concerns are living in the Arctic. We wanted to

make sure the science we were doing was the science they felt needed to be done. It was a long

consultation process and it worked wonderfully.

198

Karen Dunmall described to the committee the Arctic Salmon program, a community-based

monitoring effort to track salmon in the Canadian Arctic using science combined with Indigenous

knowledge to better understand broader changes in the freshwater and marine ecosystems.

199

her opinion, the program is a prime example of research undertaken to address community-driven

questions about environmental changes that are impacting day-to-day lives:

Simply identifying these fish even as salmon is a challenge. Salmon are not commonly harvested;

so, people know they are different, but they may not recognize them as salmon. This first step

requires common language. It’s the reason why we developed salmon and char guidebooks. These

196

197

198

199

Karla Jessen Williamson, Assistant Professor, Ed Foundations, University of Saskatchewan,

Evidence,

1 April 2019.

Joel Heath, Executive Director, Arctic Eider Society,

Evidence,

19 March 2018.

Gary Stern, Professor, University of Manitoba, as an individual,

Evidence,

30 April 2018.

Karen Dunmall, Former Liber Ero Post-Doctoral Fellow, As an Individual,

Evidence,

27 February 2019.

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species ID books rely on illustrations and point to key identifying traits. They are now translated into

several local languages across the Canadian Arctic to reach more harvesters.

David Barber provided further examples of partnership with local communities in the conduct of

scientific Arctic research. He indicated that Inuit partnerships have been instrumental in research

undertaken on the North Water Polynya and the SIKU project, an Inuit knowledge wiki and social

mapping platform for communities across Hudson Bay.

200

The active involvement of the Cree

communities on the southeast side of the Hudson Bay and the Inuit of Sanikiluaq also ensured the

success of the ongoing community-based monitoring program that examines freshwater coming into

Hudson Bay and the resulting impacts on marine processes in the bay.

While welcoming community-based monitoring programs, the Council of Yukon First Nations also

cautioned that much more investments are needed to ensure their success:

Programs like the Federal Indigenous Community-Based Climate Monitoring (ICBCM) are

oversubscribed and, although progress has been made, these programs need to be more long-term

so that they are not always scrambling for funding and can spend more time on the land, analyzing

data, etc.

201

In the view of Norma Kassi, “Indigenous peoples are now at a point where community-based

research and Indigenous-led research are paramount in our way of doing things and moving forward

with this planet the way it is.”

202

Referring to Yukon’s Kluane First Nation, she provided a hopeful

perspective:

There has been a lot of research in the past, and scientific research that has done a lot of damage

to our people to the point of death. We have learned from that. We need to go forward and work

together. We need young people, we need the two-eyed seeing. We want the non-Aboriginal youth

who live in our nations together to walk with us together, because we know our lands and our

species. From the bottom of our hearts. We have known them for thousands of years. We have a

lot of knowledge to share and we can work together. We’re hoping in the way of research now that

no time is wasted, no money is wasted and we do research that is relevant to the survival of our

people into the future.

203

Regarding the critical youth participation in Arctic research, Jennifer Provencher observed that “up

to 41 per cent of the population [in the Arctic] is under the age of 20. While knowledge holders and

elders are very important to engage in research, it is equally important to ensure opportunities for

200

201

202

203

David Barber, Professor, University of Manitoba,

Evidence,

16 April 2018.

Council of Yukon First Nations, Brief, 4 October 2018.

Norma Kassi, Co-Founder and Director of Indigenous Collaboration, Arctic Institute of Community-Based Research,

Evidence,

20 March 2019.

Norma Kassi, Co-Founder and Director of Indigenous Collaboration, Arctic Institute of Community-Based Research,

Evidence,

20 March 2019.

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community members to be active participants in research programs.”

204

However, as Theo Ikummaq

and Gita Ljubicic indicated, research opportunities for Arctic youth can be limited given that their

Nunavut education equivalencies do not prepare them adequately for college or university.

205

The

committee recommends:

18. That the Government of Canada, with Indigenous governing bodies and organizations, develop

a government-wide policy to direct how Indigenous knowledge and science can be better

synergized to reflect a holistic approach, including the recognition of intellectual property rights

of Indigenous knowledge holders.

Environmental Conservation: Towards a Conservation Economy

Given rapid changes occurring in the Arctic environment, the committee heard witnesses expressing

the need for environmental conservation based on Indigenous knowledge and scientific evidence.

However, environment conservation and management should also be tied to building healthy

communities and sustainable and diversified economies.

A. Community-Driven Environmental Conservation

The importance of Indigenous knowledge in environmental conservation was raised during the

committee’s visit to Yellowknife. The committee was informed by the Gwich’in Tribal Council that

the Gwich’in Nations are asserting a “common front advocacy for protecting the Porcupine caribou

herd against the threat posed by the U.S. Administration’s proposed oil and gas leasing program in

Kanathe Arctic National Wildlife Reserve (ANWR)” in Alaska.

206

As the Council is undertaking a

porcupine caribou study drawing on Indigenous knowledge, it stressed the important role of using

Indigenous knowledge alongside scientific evidence in the analysis of oil and gas development

impacts on the herd.

204

205

Jennifer Provencher, Liber Ero Post-Doctoral Fellow, As an Individual,

Evidence,

1 April 2019.

Theo Ikummaq, Iglulingmiut, Hunter, Environmentalist, Cultural Advocate, As an Individual; and Gita J. Ljubicic, Associate Professor, Carleton

University, As an Individual,

Evidence,

3 April 2019.

206

Jordan Peterson, Deputy Grand Chief and Vice-President, Gwich’in Tribal Council, Committee fact finding trip, Yellowknife, Northwest Territories,

10 September 2018.

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Figure 7 – Boundary Proposal for Tallurutiup Imanga National Marine Conservation Area

Source:

Qikiqtani Inuit Association and Government of Canada,

Tallurutiup Imanga Inuit Impact and Benefit Agreement,

Supplementary document provided to the committee.

Norma Kassi emphasized the significance of the Porcupine caribou herd for the Vuntut Gwitchin

people in Yukon :

The accelerated speed at which climate change has hit our communities is unreal. But the biggest

thing is our caribou. We have the last remaining and largest herd on earth, and our people have

taken care of that herd for thousands of years. There are human remains of my people that date

back to 27,000 years ago, and we have taken care of those caribou. We have the only herd left.

We’ve been at this for 28 years, fighting the U.S. administration as Vuntut Gwitchin. I’m very proud

of the way our people have taken a lead on this and raised this awareness internationally. A lot of

the caribou herds, as you know, amongst both our nations have declined in the Northwest Territories

and Nunavut and other areas in Canada. Internationally, we have raised the issue to a point where

we have large support to support the Arctic National Wildlife Refuge.

However, we need a state-to-state discussion. We need the Prime Minister of Canada to discuss

openly the preservation of the Arctic Refuge. This is the last area on earth with so much biodiversity

that we have got to protect it. We cannot do this. This absolutely cannot happen.

207

Norma Kassi, Co-Founder and Director of Indigenous Collaboration, Arctic Institute of Community-Based Research,

Evidence,

20 March 2019.

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Sandra Kunuk Inutiq recommended the federal government to support community-driven

environmental conservation efforts, keeping in mind the national, territorial and regional Inuit

governance structures.

208

In her view, environmental conservation initiatives should rely on Arctic

residents’ priorities. Valérie Courtois added that “Indigenous protected areas are created in

collaboration with Crown governments, but Indigenous governments must play the primary role in

identifying and managing the lands.”

209

Echoing this view, the Inuvialuit Regional Corporation stated:

The principle of Inuit self-determination means that environment and biodiversity conservation

initiatives should only proceed in areas and on issues defined by Inuit. Self-determination also

means that Inuit priorities for economic development which impact environmental resources will be

respected and advanced as joint Inuit-Crown priorities.

210

Sandra Kunuk Inutiq highlighted the Tallurutiup Imanga, also known as Lancaster Sound, national

marine conservation area (NMCA) as a conservation model for the Qikiqtaaluk/Baffin region (Figure

7).

The committee was informed by Sandra Kunuk Inutiq that the

Nunavut Land Claims Agreement

requires that there be an impact and benefit agreement with the local Inuit when establishing

conservation areas.

211

She added that the land claims agreement provides for Inuit management and

conservation of wildlife, land, water, and other resources. Therefore, the Qikiqtani Inuit Association

has been negotiating with the Government of Canada an impact and benefit agreement to manage

the Tallurutiup Imanga NMCA that Inuit “have been trying to protect […] since the exploration started

to happen in the 1970s.”

Regarding co-management in the Arctic, Burton Ayles reminded the committee that land claims

agreements have established co-management of resources throughout the region.

212

Therefore, the

central role of co-management bodies, such as the Inuvialuit Fisheries Joint Management

Committee, needs to be well reflected in Canada’s upcoming Arctic and Northern Policy Framework.

In his opinion, collaborative governance ensures a comprehensive approach to incorporate

Indigenous knowledge into environmental decision-making. Burton Ayles also added that the policy

framework must be supported by new resources if policies and programs are to be effective.

208

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement, Qikiqtani Inuit Association,

Evidence,

1 April 2019.

Courtois, Director, Indigenous Leadership Initiative,

Evidence,

1 April 2019.

Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, 10 September 2018.

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement, Qikiqtani Inuit Association,

Evidence,

1 April 2019.

Burton Ayles, Canada Member, Fisheries Joint Management Committee,

Evidence,

1 April 2019.

209

Valérie

210

211

212

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The committee recommends:

19. That the Government of Canada: 1) Support community-driven environmental conservation

efforts; 2) Recognize and support the central role of co-management bodies in the Arctic when

proposing environmental conservation initiatives; and 3) Ensure collaborative governance in

environmental decision-making.

B. Building a Conservation Economy

Referring to Mary Simon’s

A New Shared Arctic Leadership Model

report, Sandra Kunuk Inutiq

indicated that conservation goals require examining the purpose of conservation. For Inuit, the

purpose of environmental conservation is the “creation of socio-economic and cultural equity

between Inuit and other Canadians, while supporting reconciliation.”

213

Therefore, environmental

conservation should foster food sovereignty and a “conservation economy” in the Arctic.

214

In Sandra

Kunuk Inutiq’s view, such a conservation economy includes:

…marine infrastructure and community infrastructure, a stewardship model called Uattijiit — like a

guardians program, where Inuit are already traversing the land and sea scape, trying to advance or

support this further, that Inuit are already the eyes and ears of our homeland — as well as a robust

research model informed by the Inuit Tapiriit Kanatami research strategy that allows Inuit to define

their own research priorities.

The committee notes that, in terms of marine infrastructure supporting a conservation economy, the

Qikiqtani Inuit Association listed small craft harbours that would enable fisheries and tourism

development and increase access to country food.

215

The Association noted that there are over 1,000

small craft harbours overseen by Fisheries and Oceans Canada but only one is in Nunavut. It also

recommended the federal government to build multi-use facilities essential for training in

environmental stewardship and management of conservation areas, harvesting and program

delivery. The Qikiqtani Inuit Association’s vision for a conservation economy entails “economic

wealth derived from local natural resources in a way that respects and preserves Inuit

Qaujimajatuqangit, meets local needs and restores rather than depletes natural resources and social

capital.”

216

Qikiqtani Inuit Association, “Tallurutiup Imanga National Marine Conservation Area,” Part 7 in

A New Approach to Economic Development in

Nunavut,

February 2018, Supplementary document provided to the committee.

213

214

215

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement, Qikiqtani Inuit Association,

Evidence,

1 April 2019.

Qikiqtani Inuit Association,

QIA’s Response to “Stronger Together: An Arctic and Northern Policy Framework for Canada,”

January 2019,

Supplementary document provided to the committee.

Qikiqtani Inuit Association,

QIA’s Response to “Stronger Together: An Arctic and Northern Policy Framework for Canada,”

January 2019,

Supplementary document provided to the committee.

216

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Regarding Indigenous environmental stewardship, Valérie Courtois likens Indigenous guardians to

the “moccasins and mukluks or the eyes and ears on the ground,” skilled in Indigenous knowledge

and cultural protocols and trained in western science.

217

Therefore, she recommended “significant

and sustained funding […] for Guardians to reach their full potential and for meaningful reconciliation

at all scales relating to lands and waters in Canada.” In her opinion, supporting Indigenous-led

conservation is the most efficient way for Canada to reach its biodiversity goals.

As an example of eyes and ears on the ground, Gerald Inglangasuk provided the case of the Imaryuk

Monitoring Program in the Mackenzie Delta region.

218

He indicated that the Inuvik-Tuktoyaktuk

Highway, completed in 2018, brought fresh economic opportunities to the area but also “opened up

a number of previously unfished lakes and streams to Inuvialuit and sport fishers from elsewhere in

North America.” Recognizing the potential impacts of overfishing, the Fisheries Joint Management

Committee, local hunters and trappers committees, and Oceans North developed the Imaryuk

Monitoring Program as a step for long-term community-based fisheries management along the

highway. The committee recommends:

20. That the Government of Canada recognize socio-economic and cultural equity opportunities in

Arctic environmental conservation and invest in the development of infrastructure and

Indigenous environmental stewardship initiatives that support a conservation economy.

217

218

Valérie Courtois, Director, Indigenous Leadership Initiative,

Evidence,

1 April 2019.

Gerald Inglangasuk, Inuvialuit Member, Fisheries Joint Management Committee,

Evidence,

1 April 2019.

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CHAPTER 4: THE ARCTIC IN A GLOBAL CONTEXT

Many of the forces that are affecting the Arctic, such as climate change, increased maritime traffic, or

transboundary pollutants are global in nature, caused by non-Arctic drivers.

219

In response to this

changing landscape, the Government of Canada released a

Statement on Canada’s Arctic Foreign

Policy

in 2010,

220

which expanded on the international dimensions of the government’s 2009

Northern Strategy.

221

In 2013 and 2019, the House of Commons Standing Committee on Foreign Affairs and International

Development presented reports focusing on the international dimensions of Arctic policies. These

reports argued that Canada’s domestic and foreign Arctic policies should be approached as two sides

of the same coin.

222

Accordingly, actions ensuring prosperous and sustainable Arctic communities will

also enhance Canada’s ability to project its Arctic foreign policy. These findings are consistent with

Inuit and Arctic First Nations’ widened view of Arctic sovereignty. For Arctic residents, human

security issues, such as self-determination, economic development, infrastructure building, and

environmental conservation, are integral to Canada’s sovereignty in the region.

Since the release of the 2010

Statement on Canada’s Arctic Foreign Policy,

the Arctic Ocean’s summer

sea-ice extent continued to recede,

223

and the region is becoming gradually accessible for a range of

activities, including tourism, shipping and natural resource development.

224

This increase in activities

from Canadian and foreign companies fueled expectations about economic prospects for Arctic

residents but also concerns about possible environmental, social, cultural and security impacts.

The repercussions affecting the region and the lives of its residents are also taking place in the

context of growing global interest in the Arctic and rising international rivalry outside of the Arctic.

Several non-Arctic states in Europe and Asia have developed Arctic policies or strategies. This interest

reflects the global awareness regarding climate-driven changes in the region, including its

geostrategic importance in both political and economic terms.

Arctic Monitoring and Assessment Programme (AMAP),

Adaptation Actions for a Changing Arctic: Perspectives from the Baffin

Bay/Davis Strait Region,

Oslo, Norway, 2018.

219

220

221

222

Government of Canada,

Statement on Canada’s Arctic Foreign Policy,

2010.

Government of Canada,

Northern Strategy,

2009.

House of Commons, Standing Committee on Foreign Affairs and International Development,

Canada and the Arctic Council: an Agenda

for Regional Leadership,

Session, 41

Parliament, May 2013; and

Nation-Building at Home, Vigilance Beyond: Preparing for the

Coming Decades in the Arctic,

Session, 42

Parliament, April 2019.

223

224

David Barber, Professor, University of Manitoba,

Evidence,

16 April 2018.

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

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The Arctic Heats Up: Contending Perspectives

A. Arctic Exceptionalism

Since the end of the Cold War, the Arctic has generally come to be considered as a zone of peace and

a territory of dialogue. In this exceptionalism perspective, the Arctic has been considered as a unique

region characterized primarily as a space of regional cooperation and peaceful co-existence. As the

committee was informed by Alison LeClaire, Senior Arctic Official and Director General, Circumpolar

and Eastern European Relations, Global Affairs Canada, Arctic states and those states with

involvement in the region have worked to negotiate a regional rules-based order predicated on

multilateralism.

225

International cooperation in the Arctic has, therefore, been a major element of

Canadian foreign policy.

226

1. The Arctic Council: Collaborative Governance

Canada is a member state of the Arctic Council and assumed its rotating chair from 2013 to 2015

(Figure 8).

227

The Arctic Council was formally established in 1996 with the signing of the

Ottawa

Declaration

by Canada, Denmark, Finland, Iceland, Norway, Russia, Sweden and the United States.

The Council serves as an intergovernmental consensus-based forum to promote cooperation among

the Arctic states on common issues, particularly those concerning sustainable development and

environmental protection.

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

225

226

227

Government of Canada,

Canada and the Arctic Council.

Arctic Council,

Thematic articles highlighting Arctic Council accomplishments under the Canadian Chairmanship,

21 April

2015.

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Figure 8 –Member States of the Arctic Council

Source:

Map prepared by the Library of Parliament, Ottawa, 2019, using data from

Natural Earth,

1:50m Cultural Vectors

and

1.50m

Physical Vectors,

version 4.1.0; Winfried K. Dallmann,

Arctic Boundaries Map

(Arctic boundary according to AHDR), Norwegian Polar

Institute; Population data (as of 2010) for Russia from Timothy Heleniak, “Arctic Populations and Migration,” Chapter 2 in

Arctic

Human Development Report: Regional Processes and Global Linkages

[AHDR], Nordic Council of Ministers, Copenhagen,

Denmark, 2014; and population data (as of 2017 or 2018) for countries other than Russia provided by Timothy Heleniak through

personal communication. The following software was used: Esri, ArcGIS PRO, version 2.1.0.

In the view of Alison LeClaire, the structure of the Arctic Council is “unique in that there are six

Indigenous organizations that sit as permanent participants at the same table as states. Three of

these have Canadian constituents. They are the Inuit Circumpolar Council Canada, the Arctic

Athabaskan Council and the Gwich’in Council International.”

228

She added:

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

228

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When I go to an Arctic Council meeting, the Indigenous groups are at the table with us. They are

not decision makers. That accountability remains with governments, but they speak on an equal

basis at the table with states.

This was really an innovation, and I would say a Canadian innovation because we were central to

the formation of the Arctic Council 20 years ago. That particular category, championed by Mary

Simon, was called “Permanent Participants.” It meant that the voice is equal, but the decision-

making accountability remains with governments.

I would say, though, that it is a consensus body, and I have yet to see a decision taken by

government that did not take into very serious consideration the views of the Indigenous

organizations that are at the table.

229

To foster a negotiated rules-based Arctic governance and strengthen regional stability, the Arctic

Council successfully concluded three legally binding agreements: the

Agreement on Enhancing

International Arctic Scientific Cooperation

(2017); the

Agreement on Cooperation on Marine Oil

Pollution Preparedness and Response in the Arctic

(2013); and, the

Agreement on Cooperation on

Aeronautical and Maritime Search and Rescue in the Arctic

(2011).

230

In 2015, the Arctic Council also established an Arctic Coast Guard Forum to “seek common solutions

to maritime issues related to the agencies fulfilling the functions of coast guards within the

region.”

231

According to Alison LeClaire, the scientific work on identifying safe Arctic shipping

corridors is being considered by both the Arctic Council and the Arctic Coast Guard Forum.

232

Participation in the Forum allows circumpolar coast guards to better understand each other’s

capabilities and operational culture, and gauge what each agency can contribute in case of a major

emergency requiring the pooling of resources. The current lack of resources and infrastructure in the

arena of maritime search and rescue in the Arctic is well described in a Senate Standing Committee

on Fisheries and Oceans’ 2018 report

233

and was re-emphasized to this committee by Isabella Pain

from the Nunatsiavut Government.

234

Reflecting the global interest in the Arctic, there are a growing number of applications by non-Arctic

states, intergovernmental organizations and advocacy groups for observer status on the Arctic

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

229

230

231

232

Arctic Council,

Agreements.

The Arctic Coast Guard Forum,

About the ACGF.

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

Senate, Standing Committee on Fisheries and Oceans,

When Every Minute Counts: Maritime Search and Rescue,

Session, 42

Parliament, November 2018.

233

234

Isabella Pain, Deputy Minister, Nunatsiavut Secretariat, Nunatsiavut Government,

Evidence,

23 April 2018.

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Council.

235

In 2013, six non-Arctic states were granted observer status: China, India, Italy, Japan,

Korea, and Singapore. That same year, the Arctic Council updated its criteria to assess new observer

applications. Since then, only one additional non-Arctic state was accepted as an observer,

Switzerland. Alison LeClaire described the Arctic Council’s hesitancy to widen the number of

observers:

There are diverse views in the council on whether we should have more observers, but many of

those concerns are grounded — at least the way they are articulated — in a concern that our

commitment to hold Arctic Council meetings in the North would be jeopardized, because the whole

organization gets too big.

On the other hand, there is an acknowledgment that what happens in the Arctic, famously, doesn’t

stay in the Arctic. There are ramifications around the world, for sea level rises most notably.

236

Cindy Dickson, Executive Director of the Arctic Athabaskan Council, an Indigenous permanent

participant at the Arctic Council representing Athabaskan peoples in Alaska, Yukon and the

Northwest Territories, added:

The more near-Arctic states or observers that we allow to participate, as long as they participate

constructively, I think it’s a good thing. We are able to raise issues and get the information out to a

broader audience.

We’re able to share best practices. We’re able to share our concerns and maybe come to some

global solutions together. So, I think personally it’s a very good thing to be as inclusive as

possible.

237

In the opinion of Eirik Sivertsen, Chair of the Standing Committee of Parliamentarians of the Arctic

Region, which has observer status at the Arctic Council, the main concern regarding the growing

number of non-Arctic state observers is related to the capacity of Indigenous permanent participants

to meaningfully participate in the Arctic Council’s work.

238

He pointed out, for example, the “huge”

difference in financial resources between China and the Sami Council, representing the Sami people

in Finland, Russia, Norway and Sweden.

2. Regional Governance Beyond the Arctic Council

Cooperation in the governance of the Arctic goes beyond the Arctic Council. Alan Kessel from Global

Affairs Canada mentioned that, in October 2018, representatives of the five coastal states (Arctic

235

236

Arctic Council,

Observers.

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

237

238

Cindy Dickson, Executive Director, Arctic Athabaskan Council,

Evidence,

18 March 2019.

Eirik Sivertsen, Member of the Norwegian Parliament, Chair of the Standing Committee of the Parliamentarians of the Arctic Region,

Evidence,

April 2019.

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Five) bordering the Arctic Ocean (Canada, Denmark (Greenland and the Faroe Islands), Norway,

Russia, and the United States) and five others with significant commercial fishing industries (Iceland,

China, South Korea, Japan, and the European Union) signed an agreement to prevent unregulated

commercial fishing in international Arctic waters. This agreement is based on a precautionary

approach that recognizes the rapid climate change happening in the Arctic.

239

The

International Agreement to Prevent Unregulated High Seas Fisheries in the Central Arctic Ocean,

involving the Inuit Circumpolar Council (ICC), is also the first international treaty that includes

Indigenous knowledge in the decision-making process.

240

According to Robin Campbell from

Hutchins Legal Inc., this agreement should be a model to follow. She explained:

As a result of this collaboration, the agreement recognizes the interests of Arctic Indigenous

peoples, and the sustainability use of living marine resources and ensures that Indigenous

knowledge informs the consideration of where the commercial fishing should be undertaken in the

high seas as a central Arctic Ocean.

241

At a broader level of multilateral cooperation, member states of the International Maritime

Organization (IMO), including all eight Arctic states, reached agreement in 2014 on the

International

Code for Ships Operating in Polar Waters

(the “Polar Code”). Craig Hutton from Transport Canada

indicated that the Code entered into force in January 2017 and institutes mandatory safety and

pollution prevention requirements for ships operating in polar waters.

242

The necessary involvement

of non-Arctic shipping powers in this international Arctic governance agreement was highlighted by

Alan Kessel:

In the Polar Code context, it says that we as Canada can say that a vessel cannot enter our territory

unless it conforms to the double hulls or the special bilge water provisions in the code. Therefore, if

they ask to come into our waters, and we know that they are coming to our waters, and their vessel

doesn’t conform, we will say that, no, they cannot come into our waters.

That’s a very stringent capacity to say to another state that they cannot enter our waters. That’s the

reason Korea, Singapore and China were very involved in the negotiation of the Polar Code. They

are looking out 20 years from now when we, as states, will say to them that we need them to conform

to our environmental protection standards, otherwise their vessels can’t come through. They are

thinking 20 years from now that they want to use some of these waterways, moving goods from Asia

239

240

Alan Kessel, Assistant Deputy Minister Legal Affairs and Legal Adviser, Global Affairs Canada,

Evidence,

16 April 2018.

Fisheries and Oceans Canada,

International Agreement to Prevent Unregulated High Seas Fisheries in the Central Arctic

Ocean.

241

242

Robin Campbell, Lawyer, Hutchins Legal Inc.,

Evidence,

1 April 2019.

Craig Hutton, Director General, Strategic Policy, Transport Canada,

Evidence,

29 October 2018.

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through to Europe and elsewhere. Yes, to them it is extraordinarily important to have Canada as

part of an agreement that is binding.

243

3. Health Cooperation in the Arctic

Beyond governance collaboration, cooperation in domains such as health, education, and science

also contribute to build regional stability and the betterment of the lives of Arctic residents.

According to Mikhail Voevoda from the International Union for Circumpolar Health, an observer at

the Arctic Council, cooperation between health institutes of the eight Arctic states is more important

now than ever given rapid environmental and socio-economic changes in the region.

244

In his view,

Arctic Indigenous peoples have their own “genetic peculiarities which greatly influence the

susceptibility to different diseases.” This feature is compounded by socio-economic challenges

affecting the traditional lifestyles, and the lower level of medical resources and infrastructure

available in the Arctic compared to southern regions.

4. Education Cooperation in the Arctic

Partnerships between educational institutions have been a long-standing feature of circumpolar

Arctic cooperation. The University of the Arctic, an observer at the Arctic Council, is a network of

universities, colleges and research institutes concerned with education and research in and about

the Arctic. The committee heard Peter Sköld from the University of the Arctic stressing the need for

improved research cooperation on the human dimensions of the Arctic, especially regarding the role

of innovation and Indigenous knowledge in economic development.

245

He recommended:

…to strengthen the research partnerships across borders and we need to develop our international

educational collaboration, building integrated models, increasing mobility, summer schools, field

schools and possibilities for students to take courses in different countries and travel across the

Arctic. By this, educating the future leaders of the Arctic, not only the leaders in the Arctic but also

those leaders who have an impact on the development of the region. Into this picture comes, of

course, Indigenous traditional knowledge.

246

Regarding the 2030 Agenda for Sustainable Development adopted by Canada and 192 other United

Nations member states in 2015,

247

Peter Sköld mentioned that certain targets and indicators are

either not relevant to the Arctic or currently impossible to evaluate since “we don’t have the data

and, most of all, we don’t have data from all different countries that are comparable and possible to

put into the same system.”

248

Hence, the need to advance pan-Arctic collaboration, including the

243

244

Alan Kessel, Assistant Deputy Minister Legal Affairs and Legal Adviser, Global Affairs Canada,

Evidence,

16 April 2018.

Mikhail Voevoda, President and Professor of Medicine, Institute of Internal Medicine of Siberian Branch of Russian Academy of Medical Science,

International Union for Circumpolar Health,

Evidence,

1 April 2019.

245

246

247

248

Peter Sköld, Chair, Board of Governors, University of the Arctic,

Evidence,

18 March 2019.

Peter Sköld, Chair, Board of Governors, University of the Arctic,

Evidence,

18 March 2019.

Government of Canada,

The 2030 Agenda for Sustainable Development.

Peter Sköld, Chair, Board of Governors, University of the Arctic,

Evidence,

18 March 2019.

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development of Arctic-specific indicators, to ensure that Arctic states achieve their 2030 Agenda

commitments in ways that reflect the realities of the region.

Peter Sköld also mentioned the role of Arctic cooperation in arts and culture in building Arctic identity

and citizenry:

Arts and culture are important not only to Indigenous people but, of course, to all people, not least

the people who live in the Arctic. If we want to build a true Arctic identity, because that is also very

different in different parts of the region where people feel that I am an Arctic citizen and we belong

together, we people who live in the Arctic, if we want to improve that identity or understanding, arts

and culture are very important mediators and expressions of what we represent in terms of historical

understanding, of our own identities and cultures, and there is a need, parallel to research

cooperation, to develop this.

249

The committee recommends:

21. That the Government of Canada enhance support for the University of the Arctic to provide Arctic

youth with international learning opportunities and enable the network to increase its activities in

Canada and throughout the circumpolar Arctic.

5. Scientific Cooperation in the Arctic

In the arena of scientific cooperation, in addition to the 2017 agreement reached at the Arctic

Council, Larry Hinzman from the International Arctic Science Committee, an observer at the Arctic

Council, lent his support for the 2018 Joint Statement of Ministers issued at the end of the Second

Arctic Science Ministerial.

250

The Joint Statement calls for “increased effort and urgent attention

supporting further international scientific collaboration focusing on the warming trend in the

Arctic.”

251

The Arctic biophysical system remains challenging and costly to monitor and to forecast changes due

to its vastness, extreme climatic conditions and the low population density. Therefore, Larry Hinzman

indicated that there is an “urgent need for coordinated, sustained observations of Arctic

environments,” and for pan-Arctic collaboration and coordination of efforts on establishing

observation sites, spanning from community-based observatories to high-tech autonomous

systems.

252

He recommended that the federal government and Polar Knowledge Canada increase

249

250

251

252

Peter Sköld, Chair, Board of Governors, University of the Arctic,

Evidence,

18 March 2019.

Larry Hinzman, President, International Arctic Science Committee,

Evidence,

1 April 2019.

Second Arctic Science Ministerial,

Joint Statement of Ministers,

Berlin, Germany, 26 October 2018.

Larry Hinzman, President, International Arctic Science Committee,

Evidence,

1 April 2019.

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their engagement with the international Arctic science community and support for the Sustaining

Arctic Observing Networks (SAON),

253

an initiative of the Arctic Council and the International Arctic

Science Committee.

Larry Hinzman also indicated that Canada should “make the commitment of resources needed” to

support the Arctic Observing Summit helping Canada and the rest of the world prepare for an

uncertain future in the Arctic.

254

The Summit aims to “provide community-driven, science-based

guidance for the design, implementation, coordination and sustained long-term (decades) operation

of an international network of Arctic observing systems.”

255

Maribeth Murray from the Arctic Institute of North America, also an observer at the Arctic Council,

noted that, in addition to the new Canadian High Arctic Research Station in Cambridge Bay, Nunavut,

Canada has a “network of over 50 research facilities across the territories and provinces that are

operated by universities, the northern colleges, territorial governments and Indigenous

organizations.”

256

In her view, investments should be made to maintain this infrastructure as it serves

as the “foundation on which to build out Canada’s contribution to the development of an

internationally sustained and coordinated Arctic observing system.”

The committee also heard concerns expressed by Christopher Burn regarding international scientific

research conducted in the Canadian Arctic. He indicated:

During the last five years, the largest completed scientific research projects in the western Arctic

have been by teams based in Germany and the UK. Another large, five-year German project will

start there this year. Canada requires foreign scientific cruises in our territorial waters to obtain

federal clearance for their activities and to collaborate explicitly with Canadian scientists. We have

no similar policy for land-based research. Thereby, we risk losing the intellectual property developed

by the research, and, more critically, the ability of the research to assist our northern agencies fulfill

their objectives. This is because we do not require collaboration and consultation at the development

stage of the research.

257

253

254

255

256

257

Sustaining Arctic Observing Networks,

The SAON Process.

Larry Hinzman, President, International Arctic Science Committee,

Evidence,

1 April 2019.

Arctic Observing Summit,

About AOS.

Maribeth Murray, Executive Director, Arctic Institute of North America and Professor, University of Calgary,

Evidence,

1 April 2019.

Christopher Burn, Chancellor's Professor of Geography, Carleton University, As an Individual,

Evidence on climate change effects and their

management and investigation in the western Arctic,

13 March 2018.

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The committee recommends:

22. That the Government of Canada increase support for international Arctic scientific cooperation,

while ensuring that scientific activities conducted in the Canadian Arctic are focused on the

knowledge needs of local Arctic residents.

6. Economic Cooperation in the Arctic

The Arctic Council was instrumental in fostering circumpolar economic cooperation. The 2015

Iqaluit

Declaration

adopted at the end of the Canadian chairmanship established the Arctic Economic

Council (AEC), which brings together Arctic businesses.

258

Patrice Gilbert from Agnico Eagle Mines

Limited and a member of the AEC, indicated that the Responsible Resource Development Working

Group of the AEC completed a report on mineral development in the Arctic in November 2018.

That report reviews opportunities for resource development in the Arctic and identifies potential

barriers to sustainable development consistent with the aspirations of local Indigenous peoples.

259

The committee notes that strengthening pan-Arctic business ties was also called for by Premier Bob

McLeod of the Northwest Territories. He indicated:

I think, in the past, we always looked North/South. I used to go to the United States quite a bit. Now,

there seems to be a more natural alliance looking in those areas towards the Arctic countries of

Europe.

260

In the opinion of Ken Coates, while pan-Arctic cooperation has been successful on many fronts,

especially regarding Indigenous participation, the “weakest collaborations are on the business

side.”

261

Therefore, he recommended that Canada enhance circumpolar collaboration on

technological innovation, encourage Arctic business cooperation, and support greater business-

government and academic collaboration in the development of a circumpolar economy.

The committee was also informed by Eirik Sivertsen that, to foster circumpolar Arctic economic

cooperation, parliamentarians of the Arctic region adopted a Conference Statement in 2018 at their

meeting in Inari, Finland asking the AEC to “look at promoting an improved investment climate and

trade flow in the Arctic Region, including the promotion of joint economic projects.”

262

The

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar and Eastern European Relations, Global Affairs Canada,

Evidence,

April 2018.

258

259

260

261

Patrice Gilbert, Vice President, Health and Safety and Community, Agnico Eagle Mines Limited,

Evidence,

1 April 2019.

Honourable Bob McLeod, Premier of the Northwest Territories, Government of the Northwest Territories,

Evidence,

26 February 2018.

Ken Coates, Professor and Canada Research Chair in Regional Innovation, School of Public Policy, University of Saskatchewan,

Evidence,

8 April

2019.

Conference of Parliamentarians of the Arctic Region,

Conference Statement,

Inari, Finland, 19 September 2018, Supplementary document provided

to the committee.

262

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committee encourages the Government of Canada to support the AEC’s efforts in strengthening pan-

Arctic business ties.

B. The Arctic as a Potential New Platform for International Rivalry

While collaborative governance and circumpolar Arctic cooperation in a range of arenas have

avoided conflict dynamics in the region for the past 25 years, the Arctic is increasingly subject to

spillover impacts from rising great power rivalry and conflicts taking place outside the region. A

popular image of the Arctic is one of increasing tension, with certain media focusing on a

“militarization” of the region.

The committee heard contrasting views on whether the Arctic exceptionalism still isolates the region

from global political dynamics or the region is on the cusp of a new “cold” war and represents a new

platform for international rivalry.

1. Canada’s Arctic Sovereignty from a Legal Viewpoint

From a legal perspective, Michael Byers indicated:

There is only one dispute over land in the entire Arctic, and that is a small island between Canada

and Greenland named Hans Island. It is 1.3 square kilometres. It is a dispute that only involves the

island and not the water or the seabed around it, because those issues were resolved in a boundary

treaty between Canada and Denmark in 1973. So, it is a small dispute with a very close military and

trading partner.

263

Regarding maritime boundaries, Michael Byers pointed out a dispute between Canada and the

United States in the Beaufort Sea (Figure 9).

264

The dispute concerns the maritime extension of the

land boundary between Yukon and Alaska. Canada claims that the boundary runs along the 141

meridian. Instead, the United States argues that the boundary must be determined by using the

equidistance principle which more closely reflects the direction of the respective coast lines.

Both Michael Byers and Alan Kessel shared the opinion that these land and maritime disputes are

“well managed and will be resolved peacefully and in due course in accordance with international

law.”

265

Michael Byers, Professor and Canada Research Chair, Department of Political Science, University of British Columbia, As an Individual,

Evidence,

18 March 2019.

263

264

Michael Byers, Professor and Canada Research Chair, Department of Political Science, University of British Columbia, As an Individual,

Evidence,

18 March 2019.

Alan Kessel, Assistant Deputy Minister Legal Affairs and Legal Adviser, Global Affairs Canada,

Evidence,

16 April 2018.

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Figure 9 – Maritime Boundaries in the Arctic

Source:

Map prepared by Library of Parliament, Ottawa, 2019, using data from Natural Earth, 1:50m and 1:10m Cultural Vectors,

version 4.1.0; and Flanders Marine Institute, Maritime Boundaries Geodatabase: “Internal Waters”, version 2, and “Maritime

Boundaries and Exclusive Economic Zones (200NM)”, version 10, 2018. The following software was used: Esri, ArcGIS PRO v. 2.1.0.

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a. The Northwest Passage

By far, the most debated issue regarding Canada’s Arctic sovereignty during this committee’s study

concerned the legal status and effective Canadian control of the Northwest Passage. The Northwest

Passage is a maritime path connecting the Davis Strait and Baffin Bay in the east to the Bering Strait

in the west (Figure 10). Suzanne Lalonde indicated that Canada considers that it is sovereign over the

waters of the Northwest Passage as those waters are historic internal waters.

266

Under the 1982

United Nations Convention on the Law of the Sea

(UNCLOS), which Canada ratified in 2003, a state

exercises exclusive and absolute authority over its internal waters, including the right to control

access.

Suzanne Lalonde pointed out, however, that the United States “has held the view that the routes of

the Northwest Passage constitute an international strait subject to the right of transit passage.”

267

The United States is the only Arctic state not to have ratified UNCLOS. Suzanne Lalonde clarified:

As defined under the Law of the Sea convention, “transit passage” means freedom — freedom of

navigation for the ships of all nations, both civilian is and military; as well as a right of overflight in

the international air corridor above a strait, for the aircraft, again, military and civilian, of all states.

Robert Huebert expressed concerns that, in 2018, the United States “Secretary of the Navy has stated

twice on official record that the Americans are thinking about engaging in a freedom-of-navigation

operation in northern waters. There would only be two waters that they would do this against. They

would either do it against the [Russian] Northern Sea Route or the [Canadian] Northwest Passage.”

268

The United States Coast Guard Arctic Strategic Outlook

269

released in April 2019 emphasizing the

freedom of navigation in Arctic waters as well as the United States Secretary of State’s astonishing

May 2019 assertion that Canada’s claim to the Northwest Passage is “illegitimate”

270

give credence

to Robert Huebert’s concerns.

266

267

268

269

270

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

Evidence,

18 March 2019.

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

Evidence,

18 March 2019.

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

Evidence,

3 April 2019.

United States Coast Guard,

Arctic Strategic Outlook,

April 2019.

United States Department of State, “Looking

North: Sharpening America’s Arctic Focus,”

Remarks,

Michael R. Pompeo, Secretary of

State, Rovaniemi, Finland, 6 May 2019.

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Figure 10 – Arctic Shipping Routes

Source:

Todd C. Stevenson et al., “An

examination of trans-Arctic vessel routing in the Central Arctic Ocean,”

Marine Policy,

Vol. 100,

February 2019, pp. 83-89.

Regarding the position of certain non-Arctic states, Suzanne Lalonde mentioned that Germany’s 2013

Arctic Policy Guidelines

271

and China’s 2018 Arctic Policy

272

both stress the freedom of navigation in

Arctic shipping routes in accordance with international law.

273

She also noted that Russia’s viewpoint

regarding its Northern Sea Route is “almost the perfect mirror of the Canadian legal position,” and

271

272

273

Federal Foreign Office,

Guidelines of the Germany Arctic Policy,

2013.

State Council of the People’s Republic of China,

China’s Arctic Policy,

2018.

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

Evidence,

18 March 2019.

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“if Russia were to contest the Canadian legal position, it would be torpedoing its own claim.”

274

addition, possibly in reaction to potential freedom-of-navigation attempts in its internal Arctic

waters, Russia has put in place regulations aimed at strengthening its sovereign rights to and

maximizing revenue from its Northern Sea Route resources.

According to David Barber, the Arctic Ocean is projected to be seasonally ice-free - less than 10

million square kilometres of ice - around the 2030s. He indicated, however, that compared to the

Russian Northern Sea Route and the Transpolar Sea Route (trans-Arctic passage in international

waters cutting straight across the North Pole), Canada’s Northwest Passage “will be the last of those

passageways to open up”

275

(Figure10). Nevertheless, the legal status of the Northwest Passage is

expected to remain in the centre of debates on Canada’s Arctic sovereignty as illustrated by the

testimony regarding the passage in summer 2017 of the

Xue Long,

a Chinese icebreaker and research

vessel.

Alan Kessel provided a reassuring assessment of the

Xue Long’s

passage:

That voyage was conducted with Canada’s consent after a request by the Chinese government,

and after we were satisfied that the vessel would comply with all relevant Canadian rules and

regulations. It’s important to note that navigation conducted in compliance with Canadian

requirements reflects recognition of Canada’s sovereignty over our Arctic waters rather than a

challenge to it.

I would also highlight that Canadian scientists were invited to join Chinese researchers on board

the ship during the Canadian portion of their expedition. At the recommendation of Transport

Canada, the Xue Long also hired the services of a Canadian ice navigator.

276

The committee also heard, however, a cautious take from Suzanne Lalonde:

China sidestepped the thorny issue of the legal status of the NWP [Northwest Passage]. It did not

ask permission for its State vessel to enter Canadian internal waters (as the Canadian position

would require). However, it also did not officially declare that it rejected the Canadian position and

assert freedom of navigation through an international strait. Rather, it chose to ask Canada for

permission to conduct marine scientific research, an obligation imposed by the LOSC [Law of the

Sea Convention] regardless of the maritime zone in which such research is to be conducted (well,

except for the high seas and the international area).

277

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

The Debate Over the Legal Status of the Northwest Passage,

17 October 2018.

274

275

276

277

David Barber, Professor, University of Manitoba,

Evidence,

16 April 2018.

Alan Kessel, Assistant Deputy Minister Legal Affairs and Legal Adviser, Global Affairs Canada,

Evidence,

16 April 2018.

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

The Debate Over the Legal Status of the Northwest Passage,

17 October 2018.

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Therefore, in her view, Canada’s legal position was neither strengthened nor weakened by the transit

of the

Xue Long

through the Northwest Passage in 2017.Considering that the waters of the

Northwest Passage are Canada’s internal waters and an integral part of the Inuit homeland, the

committee recommends:

23. That the Government of Canada ensure the Canadian Arctic’s security and safety and assert

and protect Canada’s sovereignty in the Arctic.

24. That the Government of Canada, on an immediate basis, establish a robust governance regime

to regulate activities in Canada’s Arctic waters, including shipping corridors, and bonding and

insurance requirements. Such a regulatory regime must include the active involvement and

participation of Arctic Indigenous governing bodies and communities.

b. Canada’s Extended Continental Shelf in the Arctic

States can claim extended continental shelves beyond the 200 nautical miles limit, to include the

natural prolongation of their continental margin and assert their sovereign right to develop natural

resources of their continental shelf. States seeking a continental shelf extension must, under

UNCLOS, submit their claim to the United Nations’ Commission on the Limits of the Continental Shelf

(the UN Commission).

278

Alan Kessel mentioned that, in 2008, representatives of the Arctic Five met

in Ilulissat, Greenland to commit to a common approach for adjudicating their offshore claims in the

Arctic Ocean. Through the

Ilulissat Declaration,

the Arctic Five restated that the UNCLOS principles

provide the foundation for the resolution of all outstanding Arctic maritime delimitation issues.

On 23 May 2019, Canada filed its Arctic continental shelf submission with the UN Commission.

279

The

Canadian submission overlaps in some areas with the Russian and Danish submissions. Norway

submitted its claim in 2006 and, since then, has concluded a treaty with Russia on maritime

delimitation.

According to Suzanne Lalonde, the UN Commission makes recommendations on the limits of the

continental shelf but does not determine maritime boundaries if there are overlapping claims. States

with overlapping claims must settle the dispute bilaterally following the UNCLOS principles and

customary international law.

280

Therefore, she recommended Canada to maintain lines of

communications open with all its Arctic coastal neighbours. In addition, given the slow pace of work

of the UN Commission, Suzanne Lalonde argued that consideration could be given to the options for

278

279

Fisheries and Oceans Canada,

Sovereignty and UNCLOS.

Global Affairs Canada, “Canada

marks major milestone in defining its continental shelf in Arctic Ocean,”

News release, 23 May

2019.

280

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal, As an Individual,

Evidence,

18 March 2019.

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a negotiated settlement between Canada, Russia and Denmark ahead of the Commission’s

recommendations to the individual states.

2. The New Geopolitics of the Arctic

Despite land and maritime disputes in the Canadian Arctic being “well managed” to date and

continental shelf extension claims following the well-defined UNCLOS framework, Robert Huebert

argued that the contemporary Arctic is global and, increasingly, a “dangerous geopolitical

environment,” “threatening Canadian Arctic sovereignty and security.”

281

In his view, there is a risk

of transforming the Arctic as a platform for rivalry because of the fact that the three “strongest and

most significant states in the international system — Russia, United States and China — are

increasingly coming to odds from a geopolitical perspective and that each and every one of these

states has core security interests in the Arctic that are increasingly clashing”.

Robert Huebert provided the examples of Russia modernizing its military infrastructure in the Arctic

and China’s expenditures being now the “second-largest defence budget at $200 billion a year and

will probably catch up to the Americans somewhere in the foreseeable future.”

282

In his opinion:

The logic of the Chinese military expansion is to become a peer competitor to the United States.

Under that logic, they cannot allow Russia and the United States to have safe sanctuary in the

Arctic. If they are a peer competitor, the logic of that military component means they need to have

the capability to pursue and engage both American and Russian forces in the Arctic.

Robert Huebert also cited the United States’ unilateralism and isolationism as a cause of concern. He

stated:

I don’t have to go into the difficulties that we now face with the Americans under the current

administration, but I would argue that the American push to a greater degree of what many identify

as isolationism is not necessarily only a Trump orientation.

Therefore, referring to the Canada First Defence Strategy,

283

Robert Huebert suggested that Canada

invest in the modernization of the North American Aerospace Defense Command (NORAD)

infrastructure, improve Arctic situational awareness and enhance the Canadian Rangers’ capability

to contribute to ensuring effective control over the Canadian Arctic.

284

Les Klapatiuk also

recommended the federal government to support the private sector’s investments in Arctic defence

and search and rescue infrastructure, especially in the Inuvik region as this area is Canada’s most

strategic Arctic defence location.

285

281

282

283

284

285

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

Evidence,

3 April 2019.

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

Evidence,

3 April 2019.

Government of Canada,

Canada First Defence Strategy.

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

Evidence,

3 April 2019.

Les Klapatiuk, President, International Logistical Support Inc. (ILS),

Evidence,

8 April 2019.

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Michael Byers provided a different approach in assessing the current geopolitics of the Arctic. In his

view, “Russia is not a state-to-state threat to Canada in the Arctic,” and “Russia has lots of Arctic of

its own. It has no need to claim or aspire to more.”

286

Jessica Shadian also pointed out that Russia’s

Arctic Strategy “makes the case that the Arctic is critical to the future of the Russian economy,”

287

and David Barber indicated that today “Russia generates about 26 per cent of its GDP from the

Arctic.”

288

Combined with the largest population residing in the Arctic (Figure 11), this suggests that

Russia will likely continue to re-build some of its military infrastructure

289

in the Arctic, if only to

protect its strategic assets and population centres.

Nevertheless, according to official statistics provided by Robert Huebert, Russian military

expenditures pale in comparison with the United States and the North Atlantic Treaty Organization

(NATO).

290

In 2016, Russia’s military spending was US$69 billion (4% of the global total) while the

United States invested US$611 billion (36% of the global total) and China’s military spending was

US$215 billion (13% of the global total).

291

Updated 2018 data shows that Russia’s military

expenditures declined to US$63 billion,

292

while the United States spent US$643 billion, NATO

(excluding the United States) invested US$264 billion, and China had a US$168 billion defence

budget.

293

Michael Byers, Professor and Canada Research Chair, Department of Political Science, University of British Columbia, As an Individual,

Evidence,

18 March 2019.

286

Jessica Shadian, CEO and Founder, Arctic 360, The Emerging Economy of the North American Arctic: Infrastructure Investment Analysis, 8 April

2019.

287

288

289

David Barber, Professor, University of Manitoba,

Evidence,

16 April 2018.

Adam Lajeunesse, Irving Shipbuilding Chair in Canadian Arctic Marine Security, Mulroney Institute of Government, St. Francis Xavier University,

As an Individual,

Evidence,

1 April 2019.

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

The New Arctic Strategic Triangle

Environment (NASTE): Ramifications for Canada,

3 April 2019.

290

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

The New Arctic Strategic Triangle

Environment (NASTE): Ramifications for Canada,

3 April 2019.

291

292

Under NATO defence-spending definition. See: International Institute of Strategic Studies, “Chapter Two: Comparative Defence Statistics,” in

The

Military Balance,

Vol. 119, No. 1, 2019, pp. 21-27.

North Atlantic Treaty Organization,

Defence Expenditure of NATO Countries (2011-2018),

Communique PR/CP(2018)091, 10 July

2018; and International Institute of Strategic Studies, “Chapter Two: Comparative Defence Statistics,” in The Military Balance, Vol. 119, No. 1, 2019,

pp. 21-27.

293

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Figure 11 – Arctic Population Centres

Source:

Map prepared by the Library of Parliament, Ottawa, 2019, using data from

Natural Earth,

1:50m and 1:10 Cultural Vectors

and

1.50m Physical Vectors,

version 4.1.0; and Timothy Heleniak, Eva Turunen and Shinan Wang, “Cities

on Ice: Population change

in the Arctic,”

Nordregio Magazine,

Vol. 4, 2018. The following software was used: Esri, ArcGIS PRO, version 2.1.0.

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For his part, Adam Lajeunesse cautioned the committee against conflating different Arctic regional

realities. In his opinion:

…the Arctic is not one region with common security concerns. It’s a series of different regions with

very distinct areas with very distinct security concerns. As such, there are no universal Arctic

defence issues. While great power conflict seems to be re-emerging in the European Arctic, this has

not extended into the Canadian North, and to its credit, the Canadian Armed Forces and the

Government of Canada have recognized that. Efforts here at home have, therefore, been focused

on unconventional security concerns, search and rescue, disaster response, constabulary duties

and support to the civilian power.

294

Regarding the increased presence of China in the Arctic, Adam Lajeunesse observed that:

Chinese investment and shipping activity have largely been in the Russian Arctic, with relatively little

attention paid to Canada’s northern territories. This activity does not necessarily translate into a

security threat, as is sometimes assumed. China’s interests are primarily economic, and it’s hard to

see what the Chinese could hope to accomplish strategically by deploying military assets into or

anywhere near the Canadian Arctic.

295

Yet, he indicated that “new assets like the Arctic Offshore and Patrol Vessels and the Nanisivik naval

base are important tools for enhancing Canada’s ability to exercise control in the region and to

respond quickly to unconventional security threats.”

296

To ensure effective enforcement of Canadian regulations and discourage attempts to delegitimize

Canada’s sovereignty over its Arctic waters, the committee recommends:

25. That the Government of Canada enhance maritime and aerial situational awareness of the

Canadian Arctic, including improving the icebreaking capacity of the Canadian Coast Guard, and

equipping the Canadian Rangers’ with marine capabilities.

C. Avenues for Cooperation in a Changing Arctic

The contrasting testimony above seems to suggest that the perspective of Arctic exceptionalism may

be an insufficient approach to understand the region. The Arctic is not hermetically sealed from

294

Adam Lajeunesse, Irving Shipbuilding Chair in Canadian Arctic Marine Security, Mulroney Institute of Government, St. Francis Xavier University,

As an Individual,

Evidence,

1 April 2019.

Adam Lajeunesse, Irving Shipbuilding Chair in Canadian Arctic Marine Security, Mulroney Institute of Government, St. Francis Xavier University,

As an Individual,

Evidence,

1 April 2019.

Adam Lajeunesse, Irving Shipbuilding Chair in Canadian Arctic Marine Security, Mulroney Institute of Government, St. Francis Xavier University,

As an Individual,

Evidence,

1 April 2019.

295

296

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global dynamics and its future can take different trajectories. Given the uncertainties resulting from

environmental, socio-economic and geopolitical factors, Whitney Lackenbauer made a case for

dialogue and reinforced international cooperation to ensure regional peace and stability. He

indicated:

Circumpolar cooperation should not be held political hostage to broader geostrategic rivalries. We

might look back to the Cold War and the important leadership roles that Indigenous organizations,

scientists and NGOs, working in close concert with the federal government, played in working with

their Soviet counterparts to share scientific and traditional knowledge as well as best practices in

governance. I hope we can find space for similar relationships today and into the future.

297

He also added that vigilance and enhanced international cooperation are not mutually exclusive:

We should operate from a position of confidence in our Arctic policy and, in turn, our Arctic and

northern policy framework should reiterate, wherever possible, that Canada welcomes navigation

in our Arctic waters as we do elsewhere, provided that ships respect Canadian regulations related

to safety, security, protection of the environment and Indigenous rights holders’ interests. This

approach also means having robust capabilities to maintain vigilance in ensuring that these vessels

are not undertaking activities against Canadian laws or counter to our national welfare.

298

Artur Wilczynski provided the example of Norway’s “sophisticated” approach to Arctic issues and its

Russian neighbour:

It [Norway] has a geographic land border with Russia. It needs to manage everything from fisheries

to cross-border issues with the Russians while being a NATO member state. It had a level of

sophistication in managing that complexity.

299

The committee also heard from Robert Huebert that military security dialogue between all eight

Arctic states has been discontinued due to conflicts outside of the region.

300

Although the Arctic

Council is the prime forum for Arctic cooperation, questions of military security have always been

kept outside of the mandate of the Council. Therefore, it appears to the committee that Arctic states

may benefit from establishing a forum dedicated to Arctic security issues to facilitate information-

sharing, reduce uncertainty, and limit the potential for escalation of tensions.

Regarding the place of China in the Arctic, Artur Wilczynski indicated:

297

Whitney Lackenbauer, Canada Research Chair (Tier 1) in the Study of the Canadian North and Professor, School for the Study of Canada, Trent

University, As an Individual,

Evidence,

18 March 2019.

Whitney Lackenbauer, Canada Research Chair (Tier 1) in the Study of the Canadian North and Professor, School for the Study of Canada, Trent

University, As an Individual,

Evidence,

18 March 2019.

298

Artur Wilczynski, Director General, Communications Security Establishment and former Canadian Ambassador to Norway, As an Individual,

Evidence,

20 March 2019.

299

300

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary, As an Individual,

Evidence,

3 April 2019.

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I think that it is appropriate to have diplomatic and other forms of engagement. To understand and

work in partnership, where appropriate, to manage that delicate ecosystem. One doesn’t have to be

in the Arctic to affect the Arctic. There are a lot of conversations that are linked to climate change

and mitigation measures that are relevant, because what happens in places like China affects, for

example, black carbon deposits in the Arctic.

301

To assuage concerns regarding China’s economic activities in the Arctic, Jessica Shadian

recommended Canada to “take the lead in bringing the idea of an Arctic Infrastructure Bank to the

Arctic Council.”

302

In her opinion, an infrastructure bank could “ensure that non-Arctic state

investment is guided by an institutional framework and conditions for investments.”

In the committee’s view, a circumpolar Arctic Infrastructure Bank may be an avenue for Canada to

leverage foreign and domestic capital to support infrastructure building in its vast Arctic. Such a

regional development bank, by creating additional channels of communication and linkages, could

also contribute to enhance Arctic cooperation and integration. In fact, to close the infrastructure gap

in the Canadian Arctic, Jessica Shadian suggested Canada to take inspiration from Russia’s and the

Nordic Council’s Arctic economic strategies.

303

Both strategies integrate Arctic development into

their respective overall economic visions.

The committee recommends:

26. That the Government of Canada propose the establishment of a Pan-Arctic Infrastructure Bank

at the Arctic Council and ensure an improved investment climate and trade flow in the

circumpolar Arctic Region.

27. That, to ensure regional stability and facilitate information-sharing, the Government of Canada

establish a forum dedicated to Arctic security issues involving the participation of all Arctic states.

Inuit and Arctic First Nations’ International Priorities

Considering the focus on the Arctic’s original inhabitants in the motion establishing this committee,

Inuit and Arctic First Nations’ views and priorities regarding the international dimensions of Canada’s

upcoming Arctic and Northern Policy Framework are of utmost importance. The Inuit Circumpolar

Artur Wilczynski, Director General, Communications Security Establishment and former Canadian Ambassador to Norway, As an Individual,

Evidence,

20 March 2019.

301

302

303

Jessica Shadian, CEO and Founder, Arctic 360,

Evidence,

8 April 2019.

Jessica Shadian, CEO and Founder, Arctic 360,

Evidence,

8 April 2019.

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Council Canada, part of the ICC

304

- a permanent participant at the Arctic Council representing

160,000 Inuit of Alaska, Canada, Greenland, and Chukotka (Russia) - stated:

It [Canada’s future Arctic and Northern Policy Framework] must emphasize the essential role of Inuit

as a central player in Canadian Arctic diplomacy and support Inuit. In doing so, it must also

recognize the rights, interests, and decision-making role of Inuit, as Arctic residents. It must

understand that Inuit use and occupy Inuit Nunaat

305

– their homeland, that Inuit are the stewards

of the land, and, given appropriate infrastructure, are the principal players in Canada’s Arctic

sovereignty and security.

306

A. Arctic Sovereignty: Co-Management of the Inuit Homeland

Aluki Kotierk, President of Nunavut Tunngavik Incorporated, described the ambivalent relationship

that Inuit have with the way the concept of Arctic sovereignty is typically approached by the federal

government. She told the committee:

What we’ve experienced throughout history has been that Canada swoops in when they need us

for sovereignty reasons and various initiatives that serve the purpose of Canada. Whether it be

resource extraction or sovereignty, Canada is present. But when there’s no use for Canada, then

we feel forgotten.

307

Peter Hutchins pointed out the transnational outlook of the Inuit people:

What Inuit have to offer, above all, is a new imagination. Historically and culturally, that imagination

is given to openness and sharing, not closure and exclusion. With brothers and sisters in three other

Arctic countries, the outlook of Inuit tends to be transnational. Thus, it is suited to Arctic problems,

whose origins more often than not ignore borders and whose solutions typically require for

international cooperation than unilateral action behind national frontiers.

308

Peter Hutchins also mentioned the ICC’s 2009

A Circumpolar Inuit Declaration on Sovereignty in the

Arctic.

309

Article 1.1 of that document emphasized that “the Arctic is [the Inuit people’s] home,” and

Article 2.1 states that the issue of “sovereignty and sovereign rights must be examined and assessed

in the context of [the Inuit people’s] long history of struggle to gain recognition and respect as an

Arctic indigenous people having the right to exercise self-determination over [their] lives, territories,

cultures and languages.” As Canada’s sovereignty claims in the Arctic are grounded in Canada-Inuit

304

305

306

307

308

309

Inuit Circumpolar Council,

About ICC.

Inuit Nunaat

refers to the Inuit homeland internationally while

Inuit Nunangat

designates the Inuit territory in Canada.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Aluki Kotierk, President, Nunavut Tunnagavik Incorporated,

Evidence,

26 March 2018.

Peter W. Hutchins, Lawyer, Hutchins Legal Inc.,

Evidence,

1 April 2019.

Inuit Circumpolar Council,

A Circumpolar Inuit Declaration on Sovereignty in the Arctic,

April 2009.

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land claims agreements, in the committee’s opinion, these treaties require a partnership between

Canada and Inuit and the co-management of the lands and waters.

310

In that spirit, the Inuit Circumpolar Council Canada suggested that the Hans Island dispute between

Canada and Denmark could be resolved by having Inuit from Canada and Greenland jointly managing

the island and the nearby Pikialasorsuaq area.

311

As for the Canada-United States dispute in the

Beaufort Sea, the Council recommended the area to be “designated a transboundary Indigenous

marine protected area jointly managed by Inuvialuit from Canada and Inupiat from Alaska.”

312

B. Arctic Diplomacy and Development of International Agreements

1. Indigenous Relationships and Mobility Across the Circumpolar Arctic

In the view of the ICC, the organization is:

particularly well-placed to facilitate positive international circumpolar relations: with Greenland,

whom has a semi-autonomous government with jurisdiction over offshore resources; diplomacy with

Russia with ICC’s close ties to the Russian Association of Indigenous Peoples of the North; assisting

the United States with the current international chair of ICC residing in Alaska, and; playing a role in

Arctic-related diplomacy with China and other non-Arctic states, many of which are observers to the

Arctic Council, some of whom invite the ICC to participate in conferences and other meetings on

Arctic issues.

313

Therefore, the committee believes it is in Canada’s interest to support an enhanced Inuit and Arctic

First Nations role in circumpolar diplomacy and cooperation. To do so, the Inuit Circumpolar Council

Canada recommended the federal government to increase the support for Indigenous permanent

participants at the Arctic Council both “financially and through working partnerships with

government departments.”

314

During the committee’s visit to Yellowknife, members also learnt from the Gwich’in Tribal Council

that the “Gwich’in have a unique status as part of a trans-border, broad Gwich’in Nation, whose

traditional territory and peoples extends across the Northwest Territories, Yukon Territory and the

State of Alaska.”

315

Due to the trans-border nature of the Gwich’in Nation, the Gwich’in Tribal Council

recommended the federal government to facilitate mobility of the Gwich’in peoples across the

310

311

Peter W. Hutchins, Lawyer, Hutchins Legal Inc.,

Evidence,

1 April 2019.

Pikialasorsuaq, or “Great Upwelling,” is the largest Arctic polynya and the most biologically productive region north of the Arctic Circle. It is located

between Nunavut and Greenland. In 2017, the Inuit Circumpolar Council’s Pikialasorsuaq Commission published a

report

recommending, among

other things, that Pikialasorsuaq be jointly managed by Canada and Greenland.

312

313

314

315

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Jordan Peterson, Deputy Grand Chief and Vice-President, Gwich’in Tribal Council, Committee fact finding trip, Yellowknife, Northwest Territories,

10 September 2018.

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Canada-United States border. The Council indicated that this could be accomplished through the

implementation of the Jay Treaty and through making Indian Status cards more accessible.

The committee recommends:

28. That, to reinforce international Arctic cooperation, the Government of Canada increase its

involvement at the Arctic Council as well as bolster funding for Indigenous permanent

participants of the Council.

2. Inclusion of Indigenous Rights in International Agreements

The Honourable Charlie Watt, President of Nunavik’s Makivik Corporation, indicated that, until

recently, international agreements were adopted without proper consideration of Indigenous

interests and voices. He stated:

We need Canada to stand up for us during negotiations with other countries – Why aren’t Inuit

handcrafts part of NAFTA [North American Free Trade Agreement]? Inuit made seal products and

ivory are not permitted into the United States.

316

While recognizing that the 2007 United Nations

Declaration on the Rights of Indigenous Peoples

provides support for Indigenous rights, the Honourable Charlie Watt mentioned that it is only

referenced in recent international agreements.

317

Robin Campbell indicated that there is, for

example, “no recognition in UNCLOS for the rights of Indigenous peoples, such as the right to marine

areas, the right to the migratory marine mammals and fish that may be present in these waters, or

to the benefits of resources extracted from the Arctic Ocean.”

318

Therefore, in her view, the

upcoming Arctic and Northern Policy Framework is an “opportunity to state that Canada will support

Inuit gaining a role in Arctic Ocean governance, in particular, in the UNCLOS system,” and to set up

mechanisms to allow Indigenous participation in the development of international agreements that

impact Arctic residents.

Recalling the 2018

Utqiaġvik Declaration

319

mandating the ICC to “initiate diplomatic talks for the

purpose of laying the groundwork for negotiations to declare the Arctic as a Peaceful Zone,” the ICC

also urged the federal government to sign and ratify the United Nations 2017

Treaty on the

Prohibition of Nuclear Weapons.

320

That treaty is not yet in force but has been signed by 70 states to

316

317

318

319

320

Charlie Watt, President, Makivik Corporation,

Evidence,

26 March 2018.

Charlie Watt, President, Makivik Corporation,

Evidence,

26 March 2018.

Robin Campbell, Lawyer, Hutchins Legal Inc.,

Evidence,

1 April 2019.

Inuit Circumpolar Council,

Utqiaġvik Declaration,

2018.

Inuit Circumpolar Council Canada, Brief, March 2019.

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date.

321

In the view of the ICC, the Government of Canada should “unequivocally state that it opposes

the presence of nuclear weapons in the Arctic.”

The committee recommends:

29. That the Government of Canada increase Arctic Indigenous representation at international

forums and treaty negotiations related to the Arctic, including the

United Nations Convention on

the Law of the Sea

process.

C. Marine Shipping and Supporting Community Infrastructure

The committee notes that, in the view of Inuit and Arctic First Nations, the issue of sovereignty and

security should be considered in a widened perspective to also encompass human security – i.e., the

well-being of the Arctic’s inhabitants. Article 3.12 of the ICC’s

A Circumpolar Inuit Declaration on

Sovereignty in the Arctic,

for example, states that the “foundation, projection and enjoyment of

Arctic sovereignty and sovereign rights all require healthy and sustainable communities in the Arctic.

In this sense, ‘sovereignty begins at home.’”

322

Therefore, the committee believes that Arctic

sovereignty goes beyond geographic claims and includes the partnership between the federal

government and Inuit and Arctic First Nations in fostering self-determination, economic

development, infrastructure building, and environmental conservation.

As Inuit’s “historic and ongoing use and occupation of the Arctic” is fundamental to Canada’s legal

position regarding the Northwest Passage as “internal waters”, the Inuit Circumpolar Council Canada

emphasized that discussions about marine shipping regulations and establishment of navigation

corridors in the Arctic Ocean “must take place with Inuit centrally involved because of the risks to

their environment and food security, and because of their invaluable Indigenous knowledge.”

323

Since the use of heavy fuel oil in Arctic marine shipping is a major contributor to black carbon

emissions, which absorb sunlight and potentially accelerate climate change, the Inuit Circumpolar

Council Canada also recommended the federal government to “embrace efforts within the IMO to

ban the use of heavy fuel oil in the Arctic.”

324

It should be noted that the Arctic Council Framework

for Action on Enhanced Black Carbon and Methane Emissions Reductions was developed and

adopted during the last Canadian chairmanship of the Arctic Council, and the Expert Group on Black

Carbon and Methane was established at the Iqaluit Ministerial in support of its implementation. In

321

322

323

324

United Nations Office for Disarmament Affairs,

Treaty on the Prohibition of Nuclear Weapons.

Inuit Circumpolar Council,

A Circumpolar Inuit Declaration on Sovereignty in the Arctic,

April 2009.

Inuit Circumpolar Council Canada, Brief, March 2019.

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2017, the Expert Group adopted the goal to reduce emissions of black carbon by 25 to 33% below

2013 levels by 2025.

325

As shipping activities are expected to increase in Arctic waters, so is the potential for incidents

requiring search and rescue operations. However, most of these operations are currently run from

distant southern Canadian bases.

326

Gary Stern reminded the committee that Canada must also

contend with a declining icebreaking capacity.

327

Consequently, the Inuit Circumpolar Council

Canada urged Canada to improve community energy, air and marine infrastructure to ensure reliable

platforms for National Defence and Coast Guard operations as “Canada’s sovereignty is best served

by resilient communities.”

328

Referring to the grounding of the

Akademik Ioffe

vessel in summer 2018 off the coast of Kugaaruk,

Nunavut costing the Department of National Defence $513 000, the Inuit Circumpolar Council

Canada observed that “Inuit are always the first to respond to an emergency, and in doing so with

limited training and resources they risk their own safety and security.”

329

Therefore, the Council also

recommended the federal government to enhance search and rescue and emergency protection

infrastructure and training in Inuit communities.

Both the Inuit Circumpolar Council Canada and the Inuvialuit Regional Corporation linked

opportunities for infrastructure building in the Arctic with diversification of the local economy for

the benefits of Arctic residents. In the Inuvialuit Regional Corporation’s view, the federal government

should engage directly with Inuit in the management of the country’s security assets on a long-term

basis.

330

The Inuit Circumpolar Council Canada added:

If new infrastructure is to be built, where and by whom should it be built and operated? If new or

improved services are to be provided, such as search-and-rescue equipment and personnel based

in the Arctic, where will they be based and who will be employed? These are opportunities for Inuit

to improve safety, diversify their economy, and build equity through social enterprises that keep

benefits in the Arctic.

331

The committee recommends:

325

326

Government of Canada,

Arctic Council action for reducing black carbon and methane emissions.

Senate, Standing Committee on Fisheries and Oceans,

When Every Minute Counts: Maritime Search and Rescue,

Session, 42

Parliament, November 2018.

327

328

329

330

331

Gary Stern, Professor, University of Manitoba,

Evidence,

30 April 2018.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, 10 September 2018.

Inuit Circumpolar Council Canada,

Brief,

March 2019.

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30. That the Government of Canada address the urgent need to enhance search and rescue and

emergency protection infrastructure in the Arctic and ensure Arctic Indigenous communities are

involved in the management of this infrastructure.

Regarding foreign investment in the Arctic, in the Inuvialuit Regional Corporation’s opinion,

corporate social responsibility is essential. The organization told the committee the upcoming Arctic

and Northern Policy Framework should “direct Canada to assert the utmost care in the granting of

access to foreign-owned companies in our national resources.”

332

The Inuvialuit Regional

Corporation indicated that the Arctic “must not be for sale to companies that have not demonstrated

the requisite level of commitment to the Canadian Arctic and a good corporate social responsibility

track record.”

On this topic of corporate social responsibility, the committee also learnt from Eirik Sivertsen that

the 2018 Conference Statement adopted by parliamentarians of the Arctic Region, including

members of the Sami Parliamentary Council and the Russian Association of Indigenous Peoples of

the North, promotes the “creation of an Arctic Corporate Social Responsibility initiative as a platform

for sharing ideas in finding best solutions and taking into consideration environmental standards and

the well-being of the residents of the Arctic, and disclosing, in an accessible manner, basic

information about corporations operating in the Arctic.”

333

332

333

Duane Smith, Chair and CEO, Inuvialuit Regional Corporation, Committee fact finding trip, Yellowknife, Northwest Territories, 10 September 2018.

Conference of Parliamentarians of the Arctic Region,

Conference Statement,

Inari, Finland, 19 September 2018, Supplementary document provided

to the committee.

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APPENDIX A: WITNESSES WHO APPEARED BEFORE THE

COMMITTEE

FEBRUARY 12, 2018

Crown-Indigenous Relations and Northern Affairs Canada:

Stephen Van Dine, Assistant Deputy Minister, Northern Affairs;

Wayne Walsh, Director General, Northern Strategic Policy Branch, Northern Affairs.

FEBRUARY 26, 2018

Government of Northwest Territories:

The Honourable Bob McLeod, Premier of the Northwest Territories (by video conference).

Government of Nunavut:

The Honourable Paul Aarulaaq Quassa, Premier of Nunavut;

Virginia Mearns, Associate Deputy Minister, Executive and Intergovernmental Affairs.

MARCH 19, 2018

Polar Knowledge Canada:

David J. Scott, President and Chief Executive Officer.

As individuals:

Christopher Burn, Chancellor's Professor of Geography, Carleton University;

Louis Fortier, Professor, Laval University and ArcticNet Network of Centres of Excellence Canada.

Arctic Eider Society:

Joel Heath, Executive Director.

MARCH 26, 2018

Nunavut Tunngavik Inc.:

Aluki Kotierk, President.

Makivik Corporation:

The Honourable Charlie Watt (former senator), President.

APRIL 16, 2018

Global Affairs Canada:

Alan Kessel, Assistant Deputy Minister Legal Affairs and Legal Adviser;

Alison LeClaire, Senior Arctic Official and Director General, Circumpolar & Eastern European Relations.

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As an individual:

David Barber, Professor, University of Manitoba (by video conference).

APRIL 23, 2018

Inuvialuit Regional Corporation:

Bob Simpson, Director, Government Affairs.

Nunatsiavut Government:

Johannes Lampe, President;

Isabella Pain, Deputy Minister, Nunatsiavut Secretariat.

APRIL 30, 2018

As an individual:

Gary Stern, Professor, University of Manitoba (by video conference).

MAY 28, 2018

Employment and Social Development Canada:

Adam Fritz, Director, Indigenous Coordination and Engagement;

Jean-Pierre Gauthier, Director General, Indigenous Programming Directorate.

National Indigenous Economic Development Board:

Hilda Broomfield Letemplier, Board Member.

Conference Board of Canada:

Adam Fiser, Principal Research Associate and Co-lead, Northern and Aboriginal Policy.

As an individual:

Frances Abele, Professor, School of Public Policy and Administration, Carleton University.

JUNE 11, 2018

Government of Nunavut:

Virginia Mearns, Associate Deputy Minister, Executive and Intergovernmental Affairs (By video

conference).

Champagne and Aishihik First Nations:

Steve Smith, Chief (By video conference).

North35 Capital Partners:

Clint Davis, Chief Executive Officer.

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Qikiqtaaluk Corporation:

Sheldon Nimchuk, Director, Project Development and Partnerships.

JUNE 18, 2018

First Air:

Brock Friesen, President and Chief Executive Officer.

New North Networks:

Tom Zubko, President.

SEPTEMBER 24, 2018

Arctic Co-operatives Limited:

Duane Wilson, Vice President of Stakeholder Relations.

OCTOBER 1, 2018

Indigenous Works:

Kelly Lendsay, President and Chief Executive Officer (by video conference).

Mining Association of Canada:

Brendan Marshall, Vice President, Economic and Northern Affairs.

Kitikmeot Inuit Association:

Charlie Lyall, Vice President of Economic Development;

Paul Emingak, Executive Director.

Nunavut Resources Corporation:

Scott Northey, Chief Operating Officer.

OCTOBER 15, 2018

Inuit Tapiriit Kanatami:

Natan Obed, President.

Denendeh Investments Incorporated:

Darrell Beaulieu, Chief Executive Officer (by video conference).

OCTOBER 22, 2018

Town of Churchill:

Michael Spence, Mayor;

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Cory Young, Executive Director.

City of Iqaluit:

Madeleine Redfern, Mayor.

Anbaric Development Partners:

Philip Duguay, Vice-President, Canada.

Kivalliq Inuit Association:

Tom Garrett, Consultant.

OCTOBER 29, 2018

Transport Canada:

Craig Hutton, Director General, Strategic Policy;

Martin Mckay, Acting Director General, Transportation Infrastructure Program.

Environment and Climate Change Canada:

John Moffet, Assistant Deputy Minister, Environmental Stewardship Branch;

Nancy Hamzawi, Assistant Deputy Minister, Science and Technology Branch.

Fisheries and Oceans Canada:

Neil O'Rourke, Assistant Commissioner, Arctic Region, Canadian Coast Guard;

Gregory Lick, Director General, Canadian Coast Guard;

Farhat Khan, Director General, Financial and Materiel Management Operations and Deputy Chief

Financial Officer.

Natural Resources Canada:

André Bernier, Senior Director, Renewable and Electrical Energy Division, Electricity Resources Branch;

Linda Richard, Director, Northern Canada Division, Geological Survey of Canada.

Infrastructure Canada:

Sean Keenan, Director General, Economic Analysis and Results;

Nathalie Lechasseur, Director General, Programs Integration.

Crown-Indigenous Relations and Northern Affairs Canada:

Wayne Walsh, Director General, Northern Strategic Policy Branch;

Mark Hopkins, Director General, Natural Resources and Environment Branch.

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NOVEMBER 5, 2018

Indigenous Services Canada:

Margaret Buist, Acting Assistant Deputy Minister, Education and Social Development Programs and

Partnerships Sector;

Susan Irwin, Senior Policy Manager, Education and Social Development Programs and Partnerships

Sector.

Canadian Heritage:

Claudette Lévesque, Director General, Citizen Participation Branch;

Guylain Thorne, Acting Director General, Heritage Group;

Vanessa Mckenzie, Director, Aboriginal Affairs Directorate, Citizen Participation Branch.

NOVEMBER 19, 2018

Nunatsiavut Government:

Belinda Webb, Deputy Minister, Department of Culture, Recreation and Tourism.

Parks Canada:

Gary Baikie, Superintendent, Torngat Mountains National Park.

Inuit Art Foundation:

Alysa Procida, Executive Director and Publisher.

West Baffin Eskimo Cooperative:

William Huffman, Marketing Director.

FEBRUARY 4, 2019

Inuit Broadcasting Corporation:

Bernadette Dean, President;

Debbie Brisebois, Executive Director.

Taqqut Productions:

Neil Christopher, Director and Producer;

Nadia Mike, Producer.

Qaggiavuut!:

Rhoda Ungalaq, Chairperson;

Ellen Hamilton, Executive Director.

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Akpik Theatre:

Reneltta Arluk, Artistic Director and Founder (by

video conference).

Artcirq:

Guillaume Saladin, President, Acrobat, Co-founder and Co-artistic Director;

Jimmy Awa Qamukaq, Vice-President, Acrobat/Clown and Chief Coordinator in Igloolik.

Avataq Cultural Institute:

Rhoda Kokiapik, Executive Director.

Canada Council for the Arts:

Simon Brault, Director and CEO;

Steven Loft, Director.

Canadian Museum of History:

Karen Ryan, Curator, Northern Canada;

Matthew Betts, Curator, Eastern Archaeology;

Jean-Marc Blais, Director General.

Crown-Indigenous Relations and Northern Affairs Canada:

Diane Lafleur, Associate Deputy Minister, Crown-Indigenous Relations;

Daniel Watson, Deputy Minister;

Wayne Walsh, Director General, Northern Strategic Policy Branch;

Mark Hopkins, Director General, Natural Resources and Environment Branch, Northern Affairs;

Nancy Kearnan, Director General, Northern Governance Branch;

Marla Israel, Director General, Policy and Coordination.

FEBRUARY 27, 2019

The Gordon Foundation:

Blair Hogan, President, Gúnta Business.

As an individual:

Karen Dunmall, Former Liber Ero Post-Doctoral Fellow.

MARCH 18, 2019

Kivalliq Inuit Association:

Luis G. Manzo, Director of Lands;

Brenda Osmond, Lands Administrator.

Hutchison Environmental Sciences Ltd.:

Neil Hutchinson, Principal Scientist.

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SahtuUniversity of Manitoba:

Jörg Stetefeld, Professor for Biochemistry Tier-1 CRC in Structural Biology and Biophysics.

University of the Arctic:

Peter Sköld, Chair, Board of Governors (by video conference).

As individuals:

Michael Byers, Professor and Canada Research Chair, Department of Political Science, University of

British Columbia (by video conference);

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal;

Whitney Lackenbauer, Canada Research Chair (Tier 1) in the Study of the Canadian North and Professor,

School for the Study of Canada, Trent University (by video conference).

Arctic Athabaskan Council:

Cindy Dickson, Executive Director (by video conference).

MARCH 20, 2019

Arctic Institute of Community-Based Research:

Coral Voss, Executive Director;

Norma Kassi, Co-Founder and Director of Indigenous Collaboration.

As an individual:

Artur Wilczynski, Director General, Communications Security Establishment and former Canadian

Ambassador to Norway.

APRIL 1, 2019

International Union for Circumpolar Health:

Mikhail Voevoda, President and Professor of Medicine, Institute of Internal Medicine of Siberian Branch

of Russian Academy of Medical Science (by video conference);

Anders Koch, Past President and Professor, Ilisimatusarfik, University of Greenland (by video

conference).

Agnico Eagle Mines Limited:

Patrice Gilbert, Vice President, Health Safety and Community.

Oceans North:

Christopher Debicki, Vice President, Policy Development and Counsel.

Qikiqtani Inuit Association:

Sandra Kunuk Inutiq, Chief Negotiator, Tallurutiup Imanga Inuit Impact Benefit Agreement.

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As individuals:

Jennifer Provencher, Liber Ero Post-Doctoral Fellow;

Lotfollah (Lot) Shafai, Distinguished Professor Emeritus, Department of Electrical and Computer

Engineering, University of Manitoba.

Maribeth S. Murray, Executive Director, Arctic Institute of North America and Professor, University of

Calgary.

Adam Lajeunesse, Irving Shipbuilding Chair in Canadian Arctic Marine Security, Mulroney Institute of

Government, St. Francis Xavier University.

International Arctic Science Committee (IASC):

Larry Hinzman, President (by video conference).

Hutchins Legal Inc.:

Peter W. Hutchins, Lawyer;

Robin Campbell, Lawyer.

Aqqiumavvik Society:

Shirley Tagalik, Director.

As individuals:

Claudio Aporta, Director, Marine Affairs Program, Dalhousie University (by video conference);

Karla Jessen Williamson, Assistant Professor, Ed Foundations, University of Saskatchewan.

Fisheries Joint Management Committee:

Gerald Inglangasuk, Inuvialuit Member;

Burton Ayles, Canada Member.

Indigenous Leadership Initiative:

Valérie Courtois, Director.

APRIL 3, 2019

Canada Research Coordinating Committee:

Ted Hewitt, Chair and President of Social Sciences and Humanities Research Council (SSHRC).

Canadian Institutes of Health Research:

Tammy Clifford, Vice President, Research Programs.

Natural Sciences and Engineering Research Council of Canada:

Marc Fortin, Vice President, Research Partnerships, and Chief Operating Officer.

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Canada Foundation for Innovation (CFI):

David Moorman, Senior Advisor, Policy and Planning.

As individuals:

Jocelyn Joe-Strack, Consultant and PhD student, Subarctic Research and Strategy, University of

Saskatchewan (by video conference);

Theo Ikummaq, Iglulingmiut, Hunter, Environmentalist, Cultural Advocate;

Gita J. Ljubicic, Associate Professor, Carleton University;

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary.

APRIL 8, 2019

As individuals:

Eirik Sivertsen, Member of Parliament, Chair of the Standing Committee of the Parliamentarians of the

Arctic Region, Stortinget (by video conference);

Bjørn Willy Robstad, Senior Advisor, International Department, Office of Eirik Sivertsen, MP.

WWF-Canada:

Paul Crowley, Vice President, Arctic.

International Logistical Support Inc. (ILS):

Les Klapatiuk, President.

New North Networks:

Paul A. Komaromi, Projects Manager.

As an individual:

Ken Coates, Professor and Canada Research Chair in Regional Innovation, School of Public Policy,

University of Saskatchewan.

Arctic 360:

Jessica Shadian, CEO and Founder.

Qikiqtani Inuit Association:

Stephen Williamson Bathory, Executive Advisor (by video conference).

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APPENDIX B: WITNESSES WHO APPEARED DURING THE

FACT-FINDING MISSION

ORGANIZATION

Kuujjuaq

Kativik Regional Government

Nunavik Toursim

NEAS Group

Government of Quebec

Iqaluit Chamber of Commerce

Makivik Corporation

NAME

Tunu Napartuk, Mayor

Véronique Gilbert, Project Manager, Renewable

Resources, Environment, Lands and Parks

Department

Victoria Gordon, Assistant Director, Programs,

Sustainable Employment Department

Jennifer Munick, Chair

Isabelle

Dubois,

Marketing

Media

Relations Coordinator

Suzanne Paquin, President and CEO

Marc-Antoine Fortin, Development Officer,

Société du Plan Nord

Robynn Pavia, Manager of Marketing & Research

Kevin Kelly, Chief Executive Officer

Gabrielle Morrill, Economic Development Officer

Ted Walker, Manager

Bruno Pereira, President and Chief Operating

Officer

Matthew Clark, President and Regional Manager,

Nunavut Arctic Cooperatives

Anne-Marie Kauki, Secretary, Nunavik Research

Centre

Claude Makiuk, Research Technician, Nunavik

Research Centre

Lilian Tran, Fisheries Biologist, Nunavik Research

Centre

Mackenzie Martyniuk, MSc Student, Nunavik

Research Centre

Michael Kwan, Toxicologist, Nunavik Research

Centre

Sandy Suppa, Wildlife Technician, Nunavik

Research Centre

Ellen Avard, Director, Nunavik Research Centre

Nathan

Cohen-Fournier,

Socio-Economic

Development Officer

Jean Dupuis, Chief of Staff, Office of the President

DATE OF

APPEARANCE

Sept 5, 2018

Sept 7, 2018

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ORGANIZATION

Makivik Corporation

Regional Health Centre

Isuarsivik

Nunavik Hunting, Fishing and

Trapping Association

Kativik Ilisarniliriniq

Agnico Eagle Mines

Kivalliq Inuit Association

Hamlet of Baker Lake

Canadian Northern Economic

Development Agency

Northwest Territories

Association of Communities

NAME

Charlie Watt, President

Alysa

Aragutak, Executive Director

Dave Forrest, Chairperson

Jimmy Johannes, Executive Secretary

Victoria Simigak, Assistant Director, First

Language Curriculum

Sarah Aloupa, School Board Commissioner

Robert Watt, President

Harriet Keleutak, Director General

Devon Killulark, Role Model

Gabriel Ulayok , Role Model and Mine & Surface

Worker

Benjamin Kusugak, Role Model and Energy &

Infrastructure

Robyn Leigh Tungua, Role Model and Process

Plant Worker

Blandina Kashla, Role Model and Human

Resources Agent

Peter Tapatai, Community Relations

Ian-Joey Amarook, Role Model and Trainer –

Simulator

Courtney Squires, IIBA Coordinator

Markus Uchtenhagen, H&S Superintendant

Stéphane Boucher, Maintenance General

Supervisor

Michel Desjardins, Trainer – Simulator

Laurie Théberge, Communications Coordinator

Luc Chouinard, General Manager

Charlie Tautuajuk, Meadowbank IIBA Coordinator

Thomas Elytook, Director for Baker Lake

Simeon Mikkungwak, MLA for Baker Lake

Paula Hughson, Councillor

Frank Tootoo, Councillor

Karen Yip, Deputy Mayor

Sylvie Renaud, Regional Director, Iqaluit

Sara Brown, Executive Director

DATE OF

APPEARANCE

Sept 7, 2018

Sept 8, 2018

Sept 9, 2018

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ORGANIZATION

Northwest Territories

Association of Communities

Nunavut Arctic College

NAME

DATE OF

APPEARANCE

Sept 9, 2018

Sept 10, 2018

Clarence Wood, President and Town Councillor in

Inuvik

Kayla Carter, Student

Leanne Beaulieu, Student

Nandana Prasad, Coordinator, Community

Programs, Kitikmeot Region

Nunavut Arctic College

Fiona Buchan-Corey, Dean, Kitikmeot Campus

Nunavut Resources Corporation

Patrick Duxbury, Advisor and Operations Support

Nunavut Resources Corporation

Charlie Evalik, Chairman

Nunavut Impact Review Board

Heather Rasmussen, Policy Advisor

Polar Knowledge Canada

Nancy Karetak-Lindell, Board Member

Polar Knowledge Canada

Alain Leclair, Director, Science and Technology

Polar Knowledge Canada

Chris Chisholm, Manager Facilities

Polar Knowledge Canada

David Scott, President and Chief Executive Officer

Gwich'in Tribal Council

David MacMartin, Director of Intergovernmental

Relations

Gwich'in Tribal Council

Jordan Peterson, Deputy Grand Chief and Vice

President

Inuvialuit Regional Corporation

Robert Simpson, Director of Government Affairs

Inuvialuit Regional Corporation

Duane Smith, Board Chair and Chief Executive

Officer

SSi Micro

Jeff Philipp, Founder and Chief Executive Officer

Government of the Northwest

Shawn McCann, Director, Intergovernmental

Territories

Relation

Government of the Northwest

Krystal Pidborochynski, Senior Cabinet Advisor

Territories

Northwest Territories

Melissa Cyr, Ministerial Special Advisor to Minsiter

Government

Schumann

Government of the Northwest

Tom Jensen, Deputy Minister, Department of

Territories

Industry, Tourism and Investment

Government of the Northwest

Paul Guy, Deputy Minister, Department of

Territories

Infrastructure

Government of the Northwest

Wally Schumann, Minister of Industry, Tourism

Territories

and Investment and Minister of Infrastructure

Sahtú Land Use Planning Board

Justin Stoyko, GIS Analyst/Planner

Melanie Harding, Executive Director

Rick Hardy, Board Member

Edna Tobac, Board Member

Dakota Erutse, Vice-Chair

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ORGANIZATION

Sahtú Land Use Planning Board

Canadian Arctic Resources

Committee

Canadian Arctic Resources

Committee

Northwest Territories &

Nunavut Chamber of Mines

Northwest Territories &

Nunavut Chamber of Mines

Dechinta Centre for Research

and Learning

Dechinta Centre for Research

and Learning

Dechinta Centre for Research

and Learning

Aurora College

Beaufort Delta Education

Council

Beaufort Delta Education

Council

Natural Resources Canada

Government of the Northwest

Territories

Town of Inuvik

Yukon College

NAME

Heather Bourassa, Board Chair

Robert Bromley, Board Member

Lois Little, Board Member

Tom Hoefer, Executive Director

DATE OF

APPEARANCE

Sept 10, 2018

Gary Vivian, President and Chair of Aurora Sept 10, 2018

Geosciences Ltd.

Sam Gargan, Elder

Sept 10, 2018

Jasmine Vogt, Alumni

Sept 10, 2018

Kelsey Wrightson, Director, Policy & Programming Sept 10, 2018

Roudtable with 25 students

Sept 11, 2018

William Logan, Northern Distance Learning Sept 11, 2018

Consultant

Frank Gallway, Superintendant

Sept 11, 2018

Jiri Raska, Inuvik Satellite Station Facility Manager Sept 11, 2018

Peter Clarkson, Director of Regional Operations Sept 11, 2018

for the Beaufort Delta and Sahtu Inuvik,

Department of Executive and Indigenous Affairs

Eric Whitworth, Director of Finance

Natasha Kulikowski, Councillor

Joe Lavoie, Councillor

Jim McDonald, Mayor

Lacia Kinnear, Director of Governance and

Strategic Initiatives

Janet Welch, Vice President Academic and

Student Services

Jacqueline Bedard, Executive Director, External

and Government Relations

Sept 11, 2018

Sept 12, 2018

Clint Sawicki, Associate Vice President, Research Sept 12, 2018

Operations

Michael Hale, Chief Administrative Officer

Sept 12, 2018

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ORGANIZATION

Yukon College

As an Individual

Yukon Chamber of Mines

Government of Yukon

NAME

Shelagh Rowles, Executive Director

Tosh Southwick, Associate Vice President,

Indigenous Engagement and Reconciliation

Karen Barnes, President

Carrie Boles, Student

Patricia Quiroga, Student

Alexandre Mischler, Student

Rae Mombourquette, Heritage Project Manager,

Kwanlin Dün First Nation

Kathleen Napier, Policy Analyst

Samson Hartland, Executive Director

Stephen Mills, Deputy Minister, Ministry of

Energy, Mines and Resources

John Fox, Assistant Deputy Minister, Ministry of

Energy, Mines and Resources

Jasmina Randhawa, Assistant Deputy Minister,

Corporate Programs and Intergovernmental

Relations

Pierre Germain, Director of Tourism, Ministry of

Tourism and Culture

Val Royle, Deputy Minister, Ministry of Tourism

and Culture

Assistant Deputy Minister, Ministry of Economic

Development

Justin Ferbey, Deputy Minister, Ministry of

Economic Development

Andrea Buckley, Assistant Deputy Minister,

Ministry of Community Services

Deputy Minister, Ministry of Community Services

Jeanie Dendys, Minister of Tourism and Culture

John Stricker, Minister of Community Services

Ranj Pillai, Minister of Economic Development and

Minister of Energy, Mines and Resources

Sandy Silver, Premier

DATE OF

APPEARANCE

Sept 12, 2018

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APPENDIX C: WRITTEN SUBMISSIONS

Agnico Eagle

Arctic 360 (Jessica Shadian)

Arctic Eider Society (Joel Heath)

Arctic Fishery Alliance (Harry Earle)

Atlantic Canada Opportunities Agency (Ken Martin, Newfoundland and Labrador)

Beaufort Delta Education Council

Canada Economic Development for Quebec Regions

Canadian Heritage (Claudette Lévesque, Citizen Participation Branch)

Canadian Institutes of Health Research (Tammy Clifford, Research Programs)

Canadian Museum of History

Canadian Northern Economic Development Agency

Christopher Burn, Chancellor's Professor of Geography, Carleton University

Council of Yukon First Nations (James Macdonald, Natural Resources and Environment)

Crown-Indigenous Relations and Northern Affairs Canada (Diane Lafleur)

Crown-Indigenous Relations and Northern Affairs Canada (Wayne Walsh, Northern Strategic Policy Branch)

David Barber, Professor, University of Manitoba

Federation of Canadian Municipalities

First Air (Brock Friesen)

Gary Stern, Professor, University of Manitoba

Government of Northwest Territories

Gwich'in Tribal Council

Hutchins Legal Inc. (Peter W. Hutchins)

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Indigenous and Northern Affairs Canada (The Honourable Carolyn Bennett, P.C., M.P.)

Indigenous Leadership Initiative (Valérie Courtois)

Indigenous Services Canada (Margaret Buist, Education and Social Development Programs and Partnerships

Sector)

Indigenous Works (Kelly Lendsay)

Infrastructure Canada (Sean Keenan, Economic Analysis and Results)

Inuit Art Foundation (Alysa Procida)

Inuit Broadcasting Corporation (Bernadette Dean)

Inuit Circumpolar Council (Canada)

Inuit Tapiriit Kanatami (Natan Obed)

Inuvialuit Regional Corporation (Bob Simpson, Government Affairs)

Isuarsivik Regional Recovery Centre

Kativik Regional Government

Kitikmeot Inuit Association

Kivalliq Inuit Association (Brenda Osmond)

Lotfollah (Lot) Shafai, Distinguished Professor Emeritus, Department of Electrical and Computer Engineering,

University of Manitoba

Louis Fortier, Professor, Laval University and ArcticNet Network of Centres of Excellence

Natural Resources Canada (Linda Richard, Northern Canada Division, Geological Survey of Canada)

Northwest Territories and Nunavut Chamber of Mines

Nunavut Impact Review Board

Nunavut Resources Corporation (Scott Northey)

NWT Association of Communities

Parks Canada (Gary Baikie, Torngat Mountains National Park)

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Polar Knowledge Canada (David J. Scott)

Qaggiavuut! (Rhoda Ungalaq)

Qikiqtaaluk Corporation (Sheldon Nimchuk, Project Development & Partnerships)

Robert Huebert, Associate Professor, Department of Political Science, University of Calgary

Sahtú

Land Use Planning Board

Suzanne Lalonde, Professor, Faculty of Law, Université de Montréal

Taqqut Productions (Neil Christopher)

University of the Arctic (Peter Sköld)

Winnipeg Art Gallery

Yukon Chamber of Mines

Yukon College

Yukon First Nation Chamber of Commerce (Albert Drapeau)

Yukon Government

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APPENDIX D: REPORTS PERTAINING TO THE ARCTIC

The following is a list of parliamentary standing committee reports for the past ten years on Arctic

and northern affairs, or have sections or recommendations devoted to northern issues.

Senate Standing Committee Reports

DATE

November 2018

June 2017

SENATE COMMITTEE

Standing Senate Committee on

Fisheries and Oceans

Standing Senate Committee on

Banking, Trade and Commerce

Standing Senate Committee on

Aboriginal Peoples

Standing Senate Committee on

Energy, the Environment and

Natural Resources

Standing Senate Committee on

Energy, the Environment and

Natural Resources

Standing Senate Committee on

Aboriginal Peoples

Standing Senate Committee on

Aboriginal Peoples

Standing Senate Committee on

Energy, the Environment and

Natural Resources

Standing Senate Committee on

National Security and Defence

Standing Senate Committee on

Social Affairs, Science and Technology

Standing Senate Committee on

Fisheries and Oceans

REPORT TITLE

When every minute counts: Maritime

Search and Rescue

National Corridor: Enhancing and

Facilitating Commerce and Internal

Trade

We Can Do Better: Housing in

Inuit Nunangat

Positioning Canada’s Electricity Sector in

a Carbon Constrained Future

Powering Canada’s Territories

March 2017

June 2015

February 2015

On-Reserve Housing and Infrastructure:

Recommendations for Change

Housing on First Nations Reserves:

Challenges and Successes, Interim

Report

Moving Energy Safely: A Study of the

Safe Transport of Hydrocarbons by

Pipelines, Tankers and Railcars in Canada

Sovereignty & Security in Canada’s Arctic

Opening the Door: Reducing Barriers to

Post-Secondary Education in Canada

The Management of Fisheries and

Oceans in Canada’s Western Arctic

August 2013

March 2011

June 2011

May 2010

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DATE

December 2009

June 2009

April 2009

May 2009

SENATE COMMITTEE

Standing Senate Committee on

Fisheries and Oceans

Standing Senate Committee on

Fisheries and Oceans

Standing Senate Committee on

Fisheries and Oceans

Standing Senate Committee on

Energy, the Environment and

Natural Resources

Standing Senate Committee on

Fisheries and Oceans

Standing Senate Committee on

Agriculture and Forestry

Senate Subcommittee on

Population Health of the

Standing Senate Committee on

Social Affairs, Science and Technology

Standing Senate Committee on

Aboriginal Peoples

REPORT TITLE

Controlling Canada’s Arctic Waters:

Role of the Canadian Coast Guard

Nunavut Marine Fisheries: Quotas

and Harbours

Rising to the Arctic Challenge:

Report on the Canadian Coast Guard

With Respect, Canada’s North

June 2008

April 2008

The Coast Guard in Canada’s Arctic:

Interim Report

Beyond Freefall: Halting Rural Poverty

Population Health Policy: Federal,

Provincial and Territorial Perspectives

March 2007

Sharing Canada’s Prosperity – A Hand

Up, Not a Handout

House of Commons Standing Committee Reports

DATE

April 2019

HOUSE OF COMMONS COMMITTEE

Standing Committee on Indigenous

and Northern Affairs

REPORT TITLE

A Path to Growth: Investing in the

North

Standing Committee on Foreign Affairs Nation-Building at Home, Vigilance

Beyond: Preparing for the Coming

Decades in the Arctic

Standing Committee on Canadian

Heritage

Standing Committee on

Environment and Sustainable

Development

A Vision for Cultural Hubs and Districts

in Canada

Better Buildings for a

Low-Carbon Future – Section 8. An

Energy-Efficient Building Strategy for

Canada’s North

October 2018

June 2018

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DATE

June 2018

HOUSE OF COMMONS COMMITTEE

Standing Committee on

Fisheries and Oceans

REPORT TITLE

Healthy Oceans, Vibrant Coastal

Communities: Strengthening the

Oceans Act’s Marine Protected Areas

Establishment Process

Report 4, Oral Health Programs for

First Nations and Inuit – Health Canada,

of the Fall 2017 Reports of the Auditor

General of Canada

Broadband Connectivity in Rural

Canada: Overcoming the Digital Divide

Newfoundland and Labrador’s Northern

Cod Fishery: Charting a New Sustainable

Future

Taking Action Today: Establishing

Protected Areas for Canada’s Future

The Future of Canada’s Mining Sector:

Sustainable Growth Beyond the

Global Downturn

Breaking Point: The Suicide Crisis in

Indigenous Communities

Breaking the Cycle: A Study on

Poverty Reduction

May 2018

Standing Committee on

Public Accounts

April 2018

March 2017

Standing Committee on

Industry, Science and Technology

Standing Committee on

Fisheries and Oceans

Standing Committee on

Environment and Sustainable

Development

Standing Committee on

Natural Resources

Standing Committee on

Indigenous and Northern Affairs

Standing Committee on

Human Resources, Skills and Social

Development and the Status of

Persons with Disabilities

Standing Committee on

Finance

Standing Committee on

Public Accounts

Standing Committee on

Agriculture and Agri-Food

Standing Committee on

Finance

March 2017

June 2017

May 2017

December 2017

Driving Inclusive Growth: Spurring

Productivity and Competitiveness

in Canada

Report 6, Civil Aviation Infrastructure

in the North, of the Spring 2017 Reports

of the Auditor General of Canada

A Food Policy for Canada

Creating the Conditions for Economic

Growth: Tools for People, Businesses

and Communities

December 2017

December 2016

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DATE

May 2016

HOUSE OF COMMONS COMMITTEE

Standing Committee on

Indigenous and Northern Affairs

Standing Committee on

Public Accounts

REPORT TITLE

Declaration of Health Emergency by

First Nations Communities in

Northern Ontario

Chapter 6, Nutrition North Canada –

Aboriginal Affairs and Northern

Development Canada, of the Fall 2014

Report of the Auditor General of

Canada

Licensed Hunting and Trapping

in Canada

Updating Infrastructure in Canada: An

Examination of Needs and Investments

Chapter 6, Transfer Payments Programs

– Canadian Northern Economic

Development Agency, of the Spring

2014 Report of the Auditor General of

Canada

Canada and the Arctic Council: An

Agenda for Regional Leadership

Resource Development in Northern

Canada

Skills Development in Remote Rural

Communities in an Era of Fiscal

Restraint

From Food Mail to Nutrition North

Canada

Northerners’ Perspectives

for Prosperity

May 2015

June 2015

Standing Committee on

Environment and Sustainable

Development

Standing Committee on

Transport, Infrastructure and

Communities

Standing Committee on

Public Accounts

June 2015

February 2015

May 2013

Standing Committee on

Foreign Affairs and International

Development

Standing Committee on

Natural Resources

Standing Committee on

Human Resources, Skills and Social

Development and the Status of

Persons with Disabilities

Standing Committee on

Aboriginal Affairs and Northern

Development

Standing Committee on

Aboriginal Affairs and Northern

Development

November 2012

June 2012

March 2011

December 2010

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DATE

November 2010

HOUSE OF COMMONS COMMITTEE

Standing Committee on

Human Resources, Skills and Social

Development and the Status of

Persons with Disabilities

Standing Committee on

Health

REPORT TITLE

Federal Poverty Reduction Plan:

Working in Partnership Towards

Reducing Poverty in Canada

The Way Forward: Addressing the

Elevated Rates of Tuberculosis Infection

in On Reserve First Nations and Inuit

Communities

Canada’s Arctic Sovereignty

Chapter 4, “Sustaining Development

in the Northwest Territories,” of the

Spring 2010 Report of the Auditor

General of Canada

A Prosperous and Sustainable Future

for Canada: Needed Federal Actions

Combining our Energies: Integrated

Energy Systems for Canadian

Communities

Chapter 3, Inuvialuit Final Agreement of

the October 2007 Report of the Auditor

General of Canada

Employability in Canada: Preparing for

the Future

June 2010

February 2011

Standing Committee on

National Defence

Standing Committee on

Public Accounts

December 2009

June 2009

Standing Committee on

Finance

Standing Committee on

Natural Resources

Standing Committee on

Public Accounts

Standing Committee on

Human Resources,

Social Development and

the Status of Persons with Disabilities

Standing Committee on

Fisheries and Oceans

Standing Committee on

Health

Standing Committee on

Aboriginal Affairs and Northern

Development

June 2008

April 2008

April 2007

March 2007

Ensuring a Sustainable and Humane

Seal Harvest

Healthy Weights for Healthy Kids

Aboriginal Housing in Canada

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