Article contents
Rebalancing state and Indigenous sovereignties in international law: An Arctic lens on trajectories for global governance
Published online by Cambridge University Press: 05 September 2019
Abstract
The environmental and economic realities of Arctic climate change present novel problems for international law. Arctic warming and pollution raise important questions about responsibilities and accountabilities across borders, as they result from anthropogenic activities both within and outside the Arctic region, from the Global North and the Global South. Environmental interdependencies and economic development prospects connect in a nexus of risk and opportunity that raises difficult normative questions pertaining to Arctic governance and sovereignty. This article looks at how the Arctic has been produced in international legal spaces. It addresses the implication of states and Indigenous peoples in processes of Arctic governance. Looking at specific international legal instruments relevant to Arctic climate change and development, the author attempts to tease out the relationship between the concepts of Indigenous rights and state sovereignty that underlie these international legal realms. What do these international legal regimes tell us with respect to the role of Arctic Indigenous peoples and the role of states in governing the ‘global’ Arctic? It is argued that while international law has come a long way in recognizing the special status of Indigenous peoples in the international system, it still hesitates to recognize Indigenous groups as international law makers. Comparing the status of Indigenous peoples under specific international regimes to their role within the Arctic Council, it becomes evident that more participatory forms of global governance are entirely possible and long overdue.
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Footnotes
The author wishes to thank the Editor and anonymous reviewers for their comments. She thanks the American Society of International Law for supporting the presentation of an early version of this work at the Seventh International Four Societies Conference (Tokyo, Japan). She expresses her gratitude to Octaviana Trujillo (Pascua Yaqui Tribe of Arizona), Sarah James (Neet’sai Gwich’in elder, Arctic Village), Dean Jacobs (Walpole Island First Nation), Konstantia Koutouki, Faiz Khan, and Yat-Chi Lau for insightful discussions throughout the writing process. This research has been conducted with funding from the Academy of Finland (Decision #314767).
References
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11 UNGA, UNDRIP, supra note 5.
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35 One of the first comprehensive studies on the Arctic impacts of climate change was the 2004 Arctic Climate Impact Assessment (ACIA), that drew upon the work of over 250 scientists and six representative groupings of Arctic Indigenous peoples. See ACIA, Impacts of a Warming Arctic: Arctic Climate Impact Assessment (2004).
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38 Walker’s concept of ‘global law’ attempts to capture the way in which the legal world is evolving beyond the Westphalian dichotomy of national and international law, and how governance is spatially produced within and beyond the state, from underneath and outside statist spheres through an assemblage of cross-scalar legal instruments and actors. It emphasizes the inherently pluralistic and decentralized nature of ‘international’ governance in practice. N. Walker, The Intimations of Global Law (2014).
39 S. Watt-Cloutier, ‘Foreword’, in S. Duyck, S. Jodoin and A. Johl (eds.), Routledge Handbook of Human Rights and Climate Goverance (2018), xix.
40 Ilulissat Declaration, 28 May 2008, available at cil.nus.edu.sg/wp-content/uploads/2017/07/2008-Ilulissat-Declaration.pdf.
41 United Nations Convention on the Law of the Sea (UNCLOS), 1833 UNTS 3, 10 December 1982.
42 Inuit Nunaat refers to international circumpolar homeland of the Inuit. Art. 1.2 of the ICC’s Circumpolar Declaration on Sovereignty in the Arctic Declaration states: ‘From time immemorial, Inuit have been living in the Arctic. Our home in the circumpolar world, Inuit Nunaat, stretches from Greenland to Canada, Alaska and the coastal regions of Chukotka, Russia. Our use and occupation of Arctic lands and waters pre-dates recorded history. Our unique knowledge, experience of the Arctic, and language are the foundation of our way of life and culture.’ ICC, ‘A Circumpolar Declaration on Sovereignty in the Arctic’, 2009, available at inuit.org/about-icc/icc-declarations/sovereignty-declaration-2009/.
43 Ibid.
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47 Ibid.
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49 While the ILO’s work on indigenous peoples’ rights goes back to the time of its establishment in 1919, neither of the two legally-binding treaties relating to indigenous peoples that were adopted by the ILO (ILO 169 and the earlier 107 which is outdated but remains in force) affirm the right to self-determination. As Macklem notes, ILO Convention No.169 ‘comprehends international indigenous protection as measures internal to and compatible with the sovereign authority of the State in which they are located’. See Macklem, supra note 8. As discussed further on in the present work, this same critique applies to the UNDRIP, despite its integration of the seemingly emancipatory language of self-determination.
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53 UNGA, Declaration on the Granting of Independence to Colonial Countries and Peoples, UN Doc. A/RES/1514/XV(14 December 1960).
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55 Macklem, supra note 8.
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57 HRC, ‘Report of the Special Rapporteur on the rights of indigenous peoples, James Anaya, Addendum: The situation of indigenous peoples in Canada, 27th session’, 2014, available at www.ohchr.org/Documents/Issues/IPeoples/SR/A.HRC.27.52.Add.2-MissionCanada_AUV.pdf.
58 Government of Canada, Indigenous and Northern Affairs Canada, ‘Tuberculosis Task Force Backgrounder’, 7 November 2017, available at www.canada.ca/en/indigenous-northern-affairs/news/2017/10/tuberculosis_taskforce.html.
59 Z. Nungak, Wrestling with Colonialism on Steroids: Quebec Inuit Fight for their Homeland (2017), 80.
60 Macklem, supra note 8, at 209.
61 Ibid.
62 HRC, supra note 51.
63 Tauli-Corpuz, supra note 52.
64 Macklem, supra note 8.
65 On UNDRIP’s reception into Canadian case law and its application in the interpretation of Aboriginal rights and domestic human rights legislation, see Nunatukavut Community Council Inc v. Canada (Attorney General), 2015 FC 981, paras. 101–6; Mitchell v. Minister of National Revenue, 2001 SCC 33, paras. 80–3; Canada (Human Rights Commission) v. Canada (Attorney General), 2012 FC 445, paras. 350–4; Simon v. Canada (Attorney General), 2013 FC 1117, para. 121. On regional systems see HRC, Ten years of the implementation of the United Nations Declaration on the Rights of Indigenous Peoples: good practices and lessons learned 2007–2017, UN Doc. A/HRC/EMRIP/2017/CRP.2 (2017), paras. 24–35.
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73 UNFCCC, Synthesis Report on the aggregate effect of the intended nationally determined contributions, UN Doc. FCCC/CP/2015/7(2015).
74 The ICC holds Consultative Status II at the United Nations and is a Permanent Participant of the Arctic Council.
75 ICC, supra note 23; ICC, ‘Inuit Call on Global Leaders at UNFCCC COP 18 in Doha, Qatar: Making the most of the 2013-2015 review and the second commitment period under the Kyoto Protocol’, 5 December 2012, available at iccalaska.org/wp-icc/wp-content/uploads/2016/03/ICC-Statement_UNFCCC-COP18.pdf. On emissions sources see AMAP (2015), supra note 37, at 9. Overall, Arctic states account for 10% of global anthropogenic emissions of black carbon.
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78 UNFCCC, Decision 1/CP. 23, Adoption of the Paris Agreement, UN Doc. FCCC/CP/21/2015/10/Add.1 (29 January 2016), para. 135.
79 UNFCCC, Decision 2/CP.23, Local communities and indigenous peoples platform, UN Doc. FCCC/CP/2017/11/Add.1 (8 February 2018).
80 Ibid., para. 6(a).
81 Ibid., para. 6(c).
82 Ibid., para. 8 (emphasis added).
83 G. Reed and T. Sadik, ‘Operationalizing the Local Communities and Indigenous Peoples’ Platform: A Step in the Right Direction?’, CIGI, 4 December 2017, available at www.cigionline.org/articles/operationalizing-local-communities-and-indigenous-peoples-platform-step-right-direction.
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86 Ibid.
87 See ‘IMO Secretary General meets with Arctic indigenous leaders’, Chamber of Shipping, 28 October 2016, available at www.cosbc.ca/index.php?option=com_k2&view=item&id=2948:imo-secretary-general-meets-with-arctic-indigenous-leaders&Itemid=292; S. S. Zerehi, ‘Indigenous leaders head to London to lobby for stronger Arctic shipping regulations’, CBC News, 25 October 2016, available at www.cbc.ca/news/canada/north/polar-code-international-shipping-arctic-1.3818865.
88 See IMO, ‘Marine Environment Protection Committee (MEPC), 70th session, 24-28 October 2016’, 28 October 2018, available at www.imo.org/en/mediacentre/meetingsummaries/mepc/pages/mepc-70th-session.aspx.
89 ICC, ‘Utkiagvik Declaration’, July 2018, available at www.arctictoday.com/wp-content/uploads/2018/07/2018-Utigavik-Declaration.pdf.
90 IMO, ‘Member States, IGOs and NGOs’, 2019, available at www.imo.org/en/About/Membership/Pages/Default.aspx.
91 A. Chircop, ‘The IMO, its Role under UNCLOS and its Polar Shipping Regulation’, in R. C. Beckman et al. (eds.), Governance of Arctic Shipping: Balancing Rights and Interests of Arctic States and User States (2017), 107, 117.
92 Ibid.
93 J. George, ‘Pressure’s on UN shipping agency to embrace heavy fuel oil ban’, Nunatsiaq News, 12 April 2018, available at nunatsiaq.com/stories/article/65674pressures_on_un_shipping_agency_to_embrace_heavy_fuel_oil_ban/.
94 Schade, J. and Obergassel, W., ‘Human Rights and the Clean Development Mechanism’, (2014) 27 Cambridge Review of International Affairs 717 CrossRefGoogle Scholar; Savaresi, A., ‘REDD+ and Human Rights: Addressing Synergies between International Regimes’, (2013) 18 Ecology and Society 5 CrossRefGoogle Scholar.
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96 Inuit Tapiriit Kanatami (ITK), ‘Inuit Priorities for Canada’s Climate Strategy: A Canadian Inuit Vision for Our Common Future in Our Homelands’, 2016, available at www.itk.ca/wp-content/uploads/2016/09/ITK_Climate-Change-Report_English.pdf, 41.
97 Stockholm Convention on Persistent Organic Pollutants, 40 ILM 532, 22 May 2001, Preamble; Minamata Convention on Mercury, Kumamoto, 10 October 2013, in force 16 August 2017, available at www.mercuryconvention.org/Portals/11/documents/Booklets/COP1%20version/Minamata-Convention-booklet-eng-full.pdf, Preamble.
98 ICC, ‘ICC Charter’, available at www.inuitcircumpolar.com/icc-international/icc-charter/, Art. 3(a)(b).
99 Ibid., Art. 3(c).
100 Bloomfield, L. P., ‘The Arctic Last Unmanaged Frontier’, (1981) 60 Foreign Affairs 87 CrossRefGoogle Scholar, 90 cited in Selin and Selin, supra note 95.
101 Arctic Council, Ottawa Declaration of the Establishment of the Arctic Council, 19 September 1996, available at oaarchive.arctic-council.org/bitstream/handle/11374/85/EDOCS-1752-v2-ACMMCA00_Ottawa_1996_Founding_Declaration.PDF?sequence=5&isAllowed=y, Art. 1(a).
102 Dorough, supra note 85, at 82.
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104 Ibid., at 103.
105 A. Stepien et al., ‘Arctic Indigenous Peoples and the Challenge of Climate Change’, in E. Tedsen, S. Cavalieri and R. A. Kramer (eds.), Arctic Marine Governance: Opportunities for Transatlantic Cooperation (2014), 71.
106 Koivurova and Heinämäki, supra note 103. See also Koivurova, supra note 6, for Koivurova’s discussion on state responses to Saami and Inuit agency in international relations and other practices of external self-determination. On the participation of Indigenous groups within the climate regime see E. A. Kronk Warner, ‘South of South: Examining the International Climate Regime from an Indigenous Perspective’, in S. Alam et al. (eds.), International Environmental Law and the Global South (2015), 451.
107 Rajagopal, B., ‘International Law and Social Movements: Challenges of Theorizing Resistance’, (2003) 41 Columbia Journal of Transnational Law 397 Google Scholar. The term is understood here to imply the disruption of the international legal dominance of the state and individual.
108 ICC Charter, supra note 98.
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