Elizabeth Snider

Although the idea of conservation is not new, public awareness of the real need to care for the earth's resources has been growing over the past few years. Both the World Conservation Strategy and the recent World Commission on Environment and Development (Brundtland Commission) have promoted the development of regional and local strategies for planning the sustained use of living resources. The Arctic Ocean, because of its unique and sensitive nature, has been identified for priority action. The 1984 Report of the Task Force on Northern Conservation, like the earlier World Conservation Strategy, advocated conservation planning and made numerous recommendations aimed at achieving a balance between conservation and development. Among its recommendations, the report challenged the Department of Fisheries and Oceans to assume the lead in the development of a Canadian conservation strategy for the Arctic Ocean.

 The marine waters of the Canadian Arctic are vast and vary significantly in their physical and biological characteristics. They form part of a larger circumpolar ocean, which also covers the marine areas of Alaska, the Soviet Union, and Greenland. Hunting, trapping, and fishing continue to be important sources of food and income in all communities in the region. These activities not only provide a high protein, country-food diet, but are equally important to the cultural and social survival of the Inuit.

 The area is also valued for the aesthetic quality of the arctic seas, the growing northern tourism industry, the increased interest in the commercialization of renewable resource harvesting, the national interest in the exploration for and development of nonrenewable resources, and the potential for marine shipping. Finally, the arctic marine waters are a focus for sovereignty and northern defence issues.

 With each new interest, the need to link conservation and development becomes more critical. A unique opportunity exists now, because of decreased industrial development pressures, to encourage an informed pro-active approach to the sustained use of arctic marine resources and to strike a balance between industrial activities, community development, and the pursuit of hunting and fishing. The process involved in developing the conservation strategy is intended to achieve consensus on the optimum use of natural resources and to promote development patterns that are sustainable. The idea is to promote the integration of conservation practices with current resource uses.

 The Arctic Marine Conservation Strategy is a plan for Canada, not just the Department of Fisheries and Oceans. Traditionally, initiatives to achieve conservation in the North have tended to focus almost exclusively on attempts to protect particular geographic areas during resource development. This approach has fostered a confrontational approach to the whole issue of conservation; as a consequence, it has enjoyed little success. The Department of Fisheries and Oceans has assumed the role of co-ordinator and advocate in the co-operative development of a comprehensive policy to conserve and manage the Arctic Ocean.

A public discussion paper, prepared in consultation with various organizations, agencies, and individuals having an interest in the arctic seas, will be released for public comment. It is the intention of the department to continue to seek the views of a variety of people and organizations, particularly Inuit residents who are most directly affected by arctic marine development.

What Does the Strategy Say?

 The Arctic Marine Conservation Strategy provides a framework for the conservation of the arctic marine ecosystem, to ensure the quality of the marine environment and to conserve the renewable resources that are an integral component of it. The intent is to provide for an integrated regime which will permit both the consumptive and non-consumptive use of renewable resources. As well, the strategy is designed to encourage the development of non-renewable resources in harmony with that of renewable resources. The purpose and principles set out in the strategy will provide objective statements against which implementation can be measured. From this basis, specific detailed action plans will be developed to complement the objectives of the strategy. For example, these actions may include the development of species-specific management plans, a system of protected areas, or the establishment of management organizations involving resource users.

 The strategy and its associated action plans will evolve over time and be modified if necessary. This might occur as new knowledge becomes available or as a result of other developments.

Implementation Strategies

The discussion paper outlines six strategies that together form a basis for future action plans.

 Science

 The strategy recognizes that scientific knowledge of arctic resources and the environment is essential to the development of resource management policies and informed decision making. The planning and development of scientific information should incorporate the knowledge and viewpoints of northern native

 Shared Management Processes

 Shared management is considered a prerequisite for conservation and effective management in the Arctic. The strategy calls for the establishment of co-operative management structures and processes based on shared responsibility between governments, the arctic peoples, and other stakeholders.

 Integrated Resource Planning and Management

 The strategy supports the development of an integrated regime which would reconcile the diversity of objectives among resource users and among various resource sectors. The co-operation of managers and legislators, with the involvement of resource users, is critical for effective implementation of the strategy. The regime should ensure the current and future use of renewable resources with due consideration of their economic, social, and cultural values. The regime should also recognize the benefits of non-renewable resource development to all Canadians, including arctic peoples. Terms and conditions, established through planning and environmental impact assessment, will allow for non-renewable resource development while minimizing adverse effects on the arctic marine ecosystem.

 Marine Environmental Quality

 It is important to ensure that neither industry and community development in the Arctic nor developments outside the region affect the quality of the arctic marine environment. In some cases, areas will require special protection for the maintenance of natural conditions or the preservation of certain features for cultural, scientific, educational, aesthetic, recreational, or biological purposes. The establishment of a system of protected areas can best be accomplished as a component of an integrated resource management system.

Public Knowledge

The strategy advocates the development of a communication system to allow for the exchange of information and to promote understanding of the arctic marine ecosystem and its importance to Canada. An awareness of the benefits of marine conservation and its relevance to everyday concerns is essential for policy makers, industrial proponents, and the general public.

 The strategy also encourages the sustainable use and management of renewable resources. Management will be most effective if it involves resource users at the community level. If this is to happen, relevant education and training programmes must be provided in a manner that is culturally acceptable to trainees.

 International Co-operation

 The marine waters and resources of the Canadian Arctic can be adversely affected by air and water pollution originating beyond Canada's jurisdictional boundaries. Migratory species that spend only part of their seasonal lifespan in Canada may also be exploited by peoples from other countries. The strategy encourages the development of a circumpolar conservation effort in all arctic marine waters.  Bilateral management and research initiatives are also important in ensuring the sustainable use of renewable resources.

Where Would the Policy Apply?

 The Arctic Marine Conservation Strategy applies to sea waters north of the Strait of Belle Isle, west of the boundary between Canada and Greenland, and east of the northward extension of the boundary between Alaska and Yukon. It includes Hudson and James bays. Other Policy Issues The North is undergoing an evolutionary process as a consequence of native land claims in Yukon, the Northwest Territories, Quebec, and Labrador; the division of the Northwest Territories; and political development in both Yukon and the Northwest Territories. The resolution of these issues will greatly affect and direct northern management and conservation. The principles of  the strategy recognize the particular rights of the Inuit and their special responsibilities for the management and use of arctic marine resources. The nature and extent of these rights are being defined through ongoing constitutional and native claims negotiations. The strategy calls for their immediate involvement in decisions relating to the management and conservation of arctic resources.

 In addition, the governments of the Northwest Territories and Yukon, along with the Inuit Circumpolar Conference, are preparing conservation strategies; the Arctic Marine Conservation Strategy will be closely linked with these. Collectively, these programmes will form a comprehensive northern conservation strategy for Canada and, with international co-operation, become part of a circumpolar conservation strategy.

Elizabeth Snider is a Senior Staff Officer with the Department of Fisheries and Oceans in Ottawa.