国会研究服务部-北极的变化：背景和国会面临的问题（英文）-2021.5-143页_2mb

Summary of "Changes in the Arctic: Background and Issues for Congress"

Core Content

The Arctic is experiencing significant changes due to climate change, particularly the reduction of sea ice, which has led to increased human activity and raised concerns about the region's future. The United States, through Alaska, is considered an Arctic nation with substantial political, economic, energy, and environmental interests in the region. The report outlines the key issues for Congress related to the Arctic, including climate change, geopolitical competition, military operations, commercial shipping, resource exploration, and the impact on indigenous populations.

Main Points

• Arctic Sea Ice Decline: The diminishing Arctic sea ice has led to increased human activity and international interest in the region. This decline is linked to global climate change and could result in ice-free summers in the Arctic within decades.

• Arctic Nations and Governance: The seven other Arctic states are Canada, Iceland, Norway, Sweden, Finland, Denmark (via Greenland), and Russia. The Arctic Council, established in 1996, is the leading international forum for Arctic issues, but the U.S. is not a party to UNCLOS, the international treaty governing ocean law.

• U.S. Arctic Policy and Research: The U.S. Arctic Research and Policy Act (ARPA) of 1984 sets the framework for U.S. Arctic research policy. The National Science Foundation (NSF) is the lead federal agency for implementing Arctic research policy. The FY2021 NSF budget request included $419.8 million for Arctic research, part of the broader "Navigating the New Arctic" (NNA) initiative.

• Geopolitical Tensions: The Arctic is increasingly viewed as an arena for geopolitical competition, particularly among the U.S., Russia, and China. Despite some international cooperation, the region is also becoming a strategic focus for military operations and security concerns.

• Military and Security Focus: The Department of Defense (DOD) and the Coast Guard are paying more attention to the Arctic. The Coast Guard has two operational polar icebreakers and is working on acquiring two more. Search and rescue (SAR) operations in the Arctic are a growing concern, with updated international guidelines and a 2011 Arctic Council agreement on SAR.

• Commercial and Resource Activities: The reduction of sea ice is expected to increase commercial shipping through the Northern Sea Route and the Northwest Passage. This could also lead to increased oil, gas, and mineral exploration in the Arctic. However, these activities pose environmental risks, including the potential for oil spills in ice-covered waters, which are difficult to clean up.

• Impact on Indigenous Peoples: Climate change is affecting the economies, health, and cultures of Arctic indigenous peoples. The polar bear was listed as a threatened species under the Endangered Species Act in 2008.

Key Information

Definitions of the Arctic

• Arctic Circle Definition: The region north of the Arctic Circle (approximately 66°34'N), including parts of Alaska, the Chukchi Sea, and U.S. territorial and EEZ waters.
• 10°C Isotherm Definition: A climate-based definition that includes land and sea areas where the average temperature in July is below 10°C. This definition excludes some areas north of the Arctic Circle and includes some areas south of it.
• Arctic Council Definition: Includes all land and sea areas north of the Arctic Circle and certain areas south of it, such as the Aleutian chain, Hudson Bay, and parts of the North Atlantic.

Population

• Approximately 4 million people live in the Arctic, with about 2 million in Russia’s Arctic region.
• Around 500,000 are Indigenous peoples.
• Some estimates use a broader definition, suggesting over 10 million people live in the circumpolar North.

Arctic States

• Eight Arctic States: The U.S. (Alaska), Canada, Russia, Norway, Denmark (via Greenland), Finland, Sweden, and Iceland.
• Five Arctic Coastal States: The U.S., Canada, Russia, Norway, and Denmark (via Greenland).

U.S. Arctic Research

• The Arctic Research and Policy Act (ARPA) of 1984 defines the Arctic and establishes the U.S. Arctic Research Commission (USARC) and the Interagency Arctic Research Policy Committee (IARPC).
• The Office of Polar Programs (OPP) under NSF is responsible for Arctic research activities. The FY2021 budget request was $419.8 million for OPP, a decrease from FY2019.
• The Navigating the New Arctic (NNA) initiative focuses on establishing an observing network to understand the Arctic's changes. $40.8 million was requested for NNA in FY2021.

U.S. Arctic Policy Documents

• January 2009 Arctic Policy Directive (NSPD 66/HSPD 25): Established a new U.S. Arctic policy, stating the U.S. is an Arctic nation with varied interests.
• May 2013 National Strategy for the Arctic Region: Emphasizes advancing U.S. security interests, responsible stewardship, and strengthening international cooperation.
• January 2014 Implementation Plan: Outlines 36 specific initiatives for the National Strategy.
• January 2015 Executive Order 13689: Enhances coordination of Arctic efforts across federal agencies and includes consultation with Alaska Natives.
• December 2017 National Security Strategy: Mentions the Arctic once, highlighting the importance of international institutions in maintaining open and free domains.
• March 2021 Interim National Security Strategic Guidance: Does not include the term "Arctic."

U.S. Coordinator for the Arctic Region

• The position was first held by Admiral Robert J. Papp Jr. from 2014 to 2017.
• The position was later replaced by the U.S. Coordinator for the Arctic Region, with James DeHart appointed in 2020.

Arctic Council

• The Arctic Council is an international forum for Arctic issues, with the U.S. as a non-party to UNCLOS.
• It has eight member states, six Permanent Participants (indigenous organizations), and 38 observer states and organizations.
• The Council's chairmanship rotates every two years, with the U.S. holding it from 2015 to 2017 and set to do so again from 2031 to 2033.
• The Council addresses environment, climate, biodiversity, and scientific cooperation, but does not deal with military security.

Arctic Governance and Legal Framework

• The United Nations Convention on the Law of the Sea (UNCLOS) provides a legal framework for the Arctic, but the U.S. is not a party.
• The Arctic Council has negotiated three legally binding agreements:
  • 2011 SAR Agreement: Cooperation on search and rescue in the Arctic.
  • 2013 Oil Pollution Agreement: Cooperation on marine oil pollution preparedness and response.
  • 2017 Scientific Cooperation Agreement: Enhances international Arctic scientific cooperation.

Challenges and Concerns

• Climate Change: Affects weather patterns, resource access, and the environment.
• Commercial Shipping: Increased use of trans-Arctic routes may occur, but is limited by unpredictable ice conditions and lack of infrastructure.
• Resource Exploration: Warming temperatures could allow more oil, gas, and mineral exploration, but pose environmental risks.
• Environmental Risks: Oil spills in ice-covered waters are difficult to clean up, and increased tourism and shipping raise pollution concerns.
• Impact on Indigenous Peoples: Climate change threatens the livelihoods and cultures of Arctic indigenous communities.

Conclusion

The Arctic is undergoing rapid transformation due to climate change, which has significant implications for the environment, economy, and security. The U.S. has a vested interest in the region and is actively involved in Arctic research, policy, and military planning. The Arctic Council plays a key role in international cooperation, but the region is also becoming a focal point for geopolitical competition. Congress has a critical role in shaping U.S. Arctic policy and addressing the challenges and opportunities presented by these changes.