Arctic Committee Report
Debate between Baroness Neville-Jones and Lord West of Spithead
Baroness Neville-Jones (Con)
My Lords, I came to the committee’s work part way through when I replaced a member of the committee. Despite the fact that I was there for only part of the time, I learned a great deal. It was one of the most informative committees I have had the good fortune to be on.
The chairman has set out extremely well the grounds that the report covers. It illuminates the state of affairs and the policies that are being pursued in a part of the globe that, frankly, does not get a great deal of attention in its own right. I thank the committee staff and the clerks for the way in which they helped us in our deliberations and calls for evidence, and I thank the chairman for the way in which he led our deliberations.
Testimony to the quality of the report came from a surprising source—well, perhaps not surprising but certainly unexpected. I was asked not long ago to speak at a meeting in Helsinki about the Arctic. I was the only non-Arctic state speaker. It was quite obvious that I was there because of the committee’s report, which it was clear the participants had read and considered to be a well-balanced, positive and helpful contribution. They very much welcomed the fact that attention had been paid to the issues that concerned them. If I detected anything that was less than totally positive, it was that they wished not that the quality or direction of the UK’s policy would change but that it would do more. We are viewed as one of the most positive and active of the non-Arctic state contributors. Nevertheless, the fact that we are regarded so well means that people would certainly like to see more from us.
Our chairman has given the House a good conspectus of the ground that we covered, which was quite extensive. It included economic development, fishing, hydrocarbon exploration, indigenous peoples and so on, and I am sure that other members of the committee will speak on those aspects with rather greater authority than me. I just want to make a couple of observations about the committee’s work before I say something about science, about which I very much agree with what the chairman has just said.
One of the things I would say about the Arctic is that the way it has developed up to now has often been the outcome of policies that have been pursued without necessarily any regard to their effects on the Arctic region, or alternatively have been pursued for their own ends with sometimes unwanted effects on the Arctic. It is quite obvious that climate change falls into that category. People did not really talk about climate change because of its effects in the Arctic; the Arctic, on the other hand, has been the taker of quite a lot of those effects, and we need to be careful that we do not allow that situation, with changing water and so on, to have damaging effects that go wider than the Arctic itself, quite apart from what is happening there.
There is also the fact that policies pursued for other reasons produce cross-currents and tensions in the Arctic itself. Take some of the aspects of economic development done without necessarily reflecting on the effects on the ecosystems and the ecology of the area. Similarly, one could point to things such as the ban on seal culling. No doubt that was done for good reasons and with laudable values but it has an effect on the indigenous inhabitants and their culture, and indeed on their way of life and prosperity, since seals are something that they used to sell. We need to think rather more widely about whether it is right to deprive people of traditional ways of life, and indeed we need to offer them a say in such decisions, which certainly they did not have in this case.
Obviously the Arctic is not going to stand still. I am not suggesting at all that it should not have further economic development, and it will certainly be greatly changed if and when the two sea passages—the north-east passage and the north-west passage—ever become high roads for international shipping. We took a great deal of evidence showing that that is not an immediate prospect for all sorts of reasons, including the difficulty of ensuring safety. There is only a small number of ships in the world that are equipped to sail into such waters. Nevertheless, there will be further development.
The implication that follows from what I have just said is that it is very important in future to consider the Arctic in its own right. It ought to be the case that when one talks about a policy, the effects in the Arctic should feature. I therefore welcome, as the chairman did, the Government’s commitment to attend future meetings of the Arctic Council at political level. I am as curious as he is to know precisely what that means—what level of person one can expect to attend. Does it mean that we will get occasional Ministers? I would also like to ask for reassurance from the Government that in future, when thinking about, say, shipping policy or climate change, the effects on the Arctic are embedded in the policy-making process and are not something that come as an afterthought or a side-consideration, possibly when something unwanted and undesirable has happened. So let us try, if we can, to get the Arctic further into the centre of policy-making.
My second brief comment is on Russia. Our chairman has mentioned some of the issues that we dealt with, and the Russian ambassador has written to him about the report in a letter which I must say I regard as largely positive. There is more than a hint in the letter that the committee failed to take into account Russia’s extensive interests and the contribution that she makes to Arctic issues. I say to the Russian ambassador that it is a pity that he did not take up the offer of giving evidence; the report is poorer for not having a Russian input. We need to be careful, as some commentators—not the committee—have suggested that Russian is introducing a great deal of militarisation into the Arctic area. There has certainly been military activity, but one has to realise that the Russians are the largest Arctic power, as the chairman said, and have extensive interests there. There has been a certain securitisation of their interests there, but I would not want to accuse them of militarisation.
Lord West of Spithead (Lab)
Can the noble Baroness say whether there is any mention of the programme to dismantle ex-Soviet submarines and their ice-breakers, and the impact of that? I have not read the full report as yet.
Baroness Neville-Jones
No, we do not deal with that aspect at all—we do not cover a great deal of the military activity. I am talking about issues that we know are taking place, but they are not covered in the report.
Lord West of Spithead
I was thinking in terms of the pollution of that area, which was the reason we funded a programme with the USA and Norway, and I wondered if that was covered at all.
Baroness Neville-Jones
I do not think, subject to correction from our chairman, that it is covered. However, one of the things that the report does is open up a number of areas that we could fruitfully discuss with the Russians. A great deal of additional co-operation could take place not only between Russia and the Arctic Council but between Russia and other countries that are interested in the Arctic and have knowledge of it. We could develop co-operation with the Russians in this area, and I think there is a future for such co-operation. It is a hopeful and positive sign that the Arctic Coast Guard Forum has now come into being and the Russians are included. I hope they will be very active and pursue a policy—which, certainly on the western side, we would like to see—of trying to insulate the Arctic from wider disagreements.
I am running out of time, but I want to say just one thing about our scientific effort. What really distinguishes the UK contribution, and which is distinctive in its own right, is our scientific contribution to the understanding of the Arctic. I hope very much that we can major on that area. I accept that resources are limited, and I do not expect the Government to pour a great deal more into it, but I suggest that we could make more of what we do. Majoring on an area of strength, where small increments give considerable added value, is the way to proceed. The Government made a number of suggestions, particularly regarding one of the research councils which is thinking of doing a piece on the changing Arctic Ocean. I hope very much that the Government will encourage it to do so and that some of the “options” that it lists as things that they might consider will turn into policy intentions and goals.
I agree with the chairman that the Government are missing a trick in not accepting the committee’s recommendation to have a UK ambassador for the Arctic—I do not mean someone sitting at a desk. It would help bring together the strands of what are necessarily rather disparate areas of policy; it would give focus and would give other nations a door to knock on and a telephone to call. It would help to raise our profile—we do not get as much credit for what we contribute as we could. We could blow our trumpet a little more with the help of an individual nominated to do that.