Arctic Committee Report

Lord Hunt of Chesterton Excerpts

Tuesday 3rd November 2015 Lords Chamber

[Lord Hunt of Chesterton (Lab)]

My Lords, I should like to compliment the noble Lord, Lord Teverson, on his diplomatic chairing of the committee and his energy, as well as the excellent work of the staff. One of the staff members—the clerk—took the nice photograph on the front. We had a bit of a discussion about what should be on it—some people thought there should be beautiful mountains and clouds, and I said we had to have people as well.

The Select Committee report is based on much excellent expert evidence from the UK and internationally. The theme of the report is the extraordinary importance of the large changes of the Arctic environment and their impact on the globe. I am afraid that after my years of experience of these reports, I was expecting the usual “steady as you go, there’s no more money” response from the Government, so this response has been quite positive. I would give it a good alpha/beta. Departments have clearly worked together and seen the need for new approaches, even though not much extra money will be available.

The report emphasises the maximum warming of the atmosphere that occurs over the Arctic and, in one or two special areas, the Antarctic. But neither the report nor the government response pointed out the relatively recent scientific discovery as to why these temperature patterns affect the global weather patterns. Neither did they mention the conclusion of the Royal Society polar conference last year that only by a massive reduction of global emissions will the Arctic possibly be restored. Paragraph 7 of the Government’s response is certainly emphatic. A key objective is national and international polar research, which should include the excellent work done in Russia. Anyone who has visited Russian institutions knows the rigour of their science and the ferocity of their questioning. UK scientists have been visiting Russia, as has the Royal Society. The important point about this research, as explained in the Government’s response, is to measure and predict the melting of the permafrost on the polar lands of Russia, Canada and Alaska. The reason it is so serious is that as it melts, it leads to a huge release of methane. There is no precise estimate of the effect of this release on global temperature, but various approximate calculations indicate that it should be at least another degree or more.

I hope that the Minister will make it clear that the Met Office Hadley Centre, along with NERC, is collaborating with other major research centres to develop global climate models so that by the time of the next International Panel on Climate Change model in a few years’ time, there will be definite intercomparisons between the models of the global effects of the melting of the permafrost and release of the methane. You might ask: why has this not been done already? The answer is that the United States chairman of the Arctic climate impact assessment programme in 2003 stopped it being done. There was a very distinguished American scientist who said, “You shouldn’t be doing this because we don’t know enough about it”. However, the fact is that scientists have to do calculations and studies and make predictions even when things are not certain.

I was in Norway last week helping with the review of the Arctic environment research in that country, much of which, I am glad to say, was being conducted with UK institutions—a point made in the report. It was very surprising to me that there was not a strong commitment in the programme to model the melting of the permafrost. Indeed, when the media reported on our Select Committee report, they did not pick up on this either, so I am afraid that we have to be a bit boring and keep going on about it.

However, it was very gratifying to see our Norwegian colleagues planning to join the German-Russian collaboration in Arctic research. It is vital that the Government fund this urgent research programme and, as I said, there are indications in their response that they are doing so. Perhaps they will also consider practical solutions, which are not mentioned.

The Government, in paragraphs 13 to 16, respond to the Select Committee’s concern that the UK has not been as active and influential in the deliberations of the Arctic Council and its committees as other countries with observer status, such as Singapore. In fact, non-governmental organisations that have observer status, such as the UK-based ACOPS— the Advisory Committee on Protection of the Sea, which was originally set up by Lord Callaghan and of which I am president—are also active in linking UK activities with those of other countries on the Arctic Council. I believe that if we do not have an ambassador or an ambassador’s office, there should at least be a rather more positive mechanism for exchanging the activities of the various groups in the UK which participate in Arctic Council activities. At the moment there is no such organisation but I believe that it would be quite straightforward to organise.

There is also an important case for a more active role for UK diplomacy in the Arctic, and I am sure that the noble Lord, Lord Hannay, will talk about this. However, there is a scientific aspect that I should like to mention. The UK should work with other countries in the Arctic Council and in the EU towards the EU joining the Arctic Council, even as an observer. One might ask why the EU is not an observer. This will happen only if the EU stops trying to tell the Arctic people about their traditional customs, including the hunting of seals. In very powerful video conference evidence, the committee heard from a political representative of the Canadian Inuits. So my question to the Government is: what is the UK doing to open up this issue and to understand the complex nature of traditional activities and natural life in the Arctic?

A more immediate diplomatic issue is the future of fisheries in the Arctic, which has also been mentioned. Rightly, this concerns the UK fishing industry because of the northward movement of the fishing grounds as the sea ice melts in the summer periods. The UK is a member of international bodies such as OSPAR, which is based in London. I should like to know from the Minister what proactive ideas the Government have. The government response in paragraph 87 about the defence and marine security and associated capabilities of the UK and the Arctic is very weak, given the strong criticism that the committee heard of cutting the aircraft survey of the northern waters—a criticism made by a junior Minister, Mr Brazier. It was also made by a representative of the Maritime and Coastguard Agency, who talked about the now weak air-sea research capability. Last November, the Sunday Times reported on current arguments in the MoD about buying or not buying a US aircraft system. This is a critical issue and I think that the Government need to be much stronger in this area. Much closer collaboration with other countries is needed as part of the multibillion-pound expenditure in naval ships above and below the water—to be diplomatic—that the UK is involved with.

The final paragraph of the report, paragraph 90, refers to the important role of the Hydrographic Office. That will be particularly essential in mapping the Arctic Ocean, which is rather a shallow sea often only 10 metres deep. Such mapping will be vital for the Arctic shipping route. The United Kingdom Hydrographic Office has a unique global role.

The noble Lord, Lord West, who was here earlier, commented on the nuclear environment, especially nuclear pollution. This was discussed by the committee. The UK was involved, along with NGOs such as ACOPS, but this is still a dangerous area.

--- Later in debate ---

[Lord Ashton of Hyde (Con)]

My Lords, this has been an interesting debate, on an important subject, and I thank all noble Lords who contributed and gave of their wide experience and knowledge. It is customary in Select Committee debates to thank the chair. I join other noble Lords in paying tribute to the noble Lord, Lord Teverson, since, as the noble Lord, Lord Stevenson, mentioned, I was a member of this committee, all too briefly, before I was entombed in the permafrost of the Government Whips’ Office. I also thank all other noble Lords and staff involved with the Select Committee for their outstanding efforts in putting together a balanced, thoughtful and well-evidenced report. Lastly, I thank my noble friend Lord Tugendhat, who originally proposed the idea for this Select Committee, for consequently focusing attention on the important issue of the changing Arctic.

As their response to the committee’s report makes clear, the Government believe that their approach to the Arctic, as laid out in the Arctic policy framework, was and remains the right one. However, we also agree with the committee that more can be done to ensure that the UK continues to take a leading role in the Arctic issues that affect us, and we are grateful to the committee for its constructive suggestions on how to do this. Our response sets out a number of steps which, taken together, represent a significant evolution of the UK’s Arctic policy. It is worth noting and celebrating the fact that, of the 67 conclusions and recommendations in the committee’s report, in only two specific areas have the Government not been persuaded of the strength of the committee’s recommendations. These are the appointment of an official Arctic ambassador, which I will come to later, and reassigning the existing Arctic policy framework as a strategy.

The UK’s Arctic policy is based on respect, co-operation and leadership. The Government will show that leadership—the noble Lord, Lord Teverson, wanted it to come first—by hosting an international policy forum at Wilton Park. The event will address a major policy issue affecting the Arctic. We will organise it in co-operation with our Arctic partners to ensure it complements, rather than duplicates, the work of the Arctic Council. We will focus the event on the best way to ensure that we and our fellow non-Arctic states can engage, in practical policy terms, in working with the Arctic Council states in delivering their long-term vision for a safe, peaceful, successful and inclusive Arctic. We are working hard on this with Wilton Park and we hope to be in a position to confirm the date of this conference in the near future.

The committee’s report rightly pointed out the gaps in our understanding of the Arctic Ocean. I am delighted that, following the Government’s response, the Natural Environment Research Council decided to fund a multiyear, £16 million strategic research programme called “The Changing Arctic Ocean: Implications for Marine Biology and Biogeochemistry”, looking at important changes in the Arctic Ocean. This was also highlighted by the noble Lord, Lord Teverson, and my noble friend Lady Neville-Jones. The research will help to address some of the biggest knowledge gaps in our understanding of the Arctic. It is a worthy demonstration of the continued UK commitment to this unique region. The programme builds on the £15 million Arctic research programme that ran from 2010 to 2015, and is already producing valuable data and conclusions that assist our understanding of this rapidly changing region.

We are also committing to a number of steps that will build on the existing co-ordination across government and the research community. The Foreign and Commonwealth Office will lead discussions across Whitehall to develop and agree plans for engaging with the Arctic Council. The plans will align with the set of Arctic Council chairmanship priorities and enable us to focus and maintain our engagement on the subjects that matter most to us. The UK’s Arctic office, funded by the Natural Environment Research Council and hosted by the British Antarctic Survey, will assist co-ordination to ensure more effective involvement in the Arctic across research disciplines. The Government, through the science and innovation network, will explore options for agreeing memoranda of understanding on Arctic and polar research with key partner countries. These will help to build on and support the already extensive framework for co-operation that exists between UK scientists and their international counterparts.

The Government’s commitment to the polar regions as a whole has been very visibly demonstrated by the announcement earlier this year of the decision to procure a new £200 million polar research vessel, to which the noble Lord, Lord Soley, referred. This vessel, which will be built by Cammell Laird in the UK, will provide a state-of-the-art platform for the latest polar science. I will come to how that will be used.

The main point that we disagreed with the committee on was the appointment of an Arctic ambassador, as mentioned by the noble Lords, Lord Teverson and Lord Hannay, and my noble friend Lady Neville-Jones, among others. We accept that we need to have a better co-ordination of effort, but we are not convinced about the added benefits that an Arctic ambassador would bring to the UK’s engagement with that region. We have a Minister for the Polar Regions to represent the UK at a political level. We have senior civil servants who provide the same functions as the Arctic ambassadors of other countries in all but name.

The noble Lord, Lord Hannay, mentioned the cost of the ambassador. I almost thought that he was putting in a job application, but he says he is not. There will be some costs, but we also have 200 scientists who work in collaboration with others in the Arctic. They are fantastic ambassadors for the UK.

Our response commits us to a more strategic engagement with the Arctic Council and a greater role for the head of the UK’s Arctic office in assisting co-ordination across scientific disciplines. We feel that our methods so far have actually been rather more effective, but I say in particular to the noble Lord, Lord Soley, that we have not closed our minds. We take note of the points made by the noble Lords, Lord Soley and Lord Hannay, about the ambassador. I also welcome the positive comments about the Polar Regions Department in the Foreign and Commonwealth Office.

I mentioned costs, but I do not think that the additional costs of an ambassadorial appointment are the main issue. We feel that the extra job that the ambassador would do is not currently fully convincing.

The noble Lords, Lord Hunt, Lord Oxburgh and Lord Teverson, and my noble friend Lady Neville-Jones asked what the practical points about appropriate representation to all future political-level meetings of the Arctic Council meant. We have been represented by the Polar Regions Department at political-level meetings—by that I mean senior Arctic official and ministerial meetings—since the start of the Arctic Council in 1996. The exact level of representation from the UK, official or ministerial, is obviously determined by the nature of the business under discussion. We keep all the meetings under review and we will always ensure that the UK is represented at the appropriate level. The UK’s Arctic office will fund the UK’s expert participation with the Arctic Council’s working groups and task forces, in line with the UK’s scientific and strategic priorities. Obviously, that is subject to resources.

The noble Lord, Lord Addington, talked about the UK’s presence at the Arctic Circle Assembly in 2015. He mentioned the fact that we maintained a profile set by the 2014 delegation that he attended. This year’s delegation was led by the Foreign and Commonwealth Office’s chief scientific adviser, Professor Robin Grimes. Interestingly, Russia had a very significant presence at the Arctic Circle Assembly in 2015: its Arctic Council representative, its Deputy Minister of Transport and the governor of Archangel province. These fora are useful for co-operation at many different levels.

The noble Lords, Lord Hunt and Lord Oxburgh, asked whether we should have better co-ordination of UK effort in the Arctic Council. We agree that we can be better co-ordinated. Paragraph 75 of the Government’s response is pertinent here. The FCO’s Polar Regions Department, together with the head of the UK’s Arctic office, under the direction of the director of the British Antarctic Survey, will work to assist this co-ordination.

Many noble Lords mentioned Russia—one of the largest Arctic states and obviously a key player—given the problems occurring with co-operation with Russia and sanctions in the rest of the world. In fact, the Arctic is a model of co-operation with Russia so far. Russia is a signatory of the Ilulissat Declaration of 2008, which commits the five Arctic coastal states to orderly settlements of disputes using international systems, such as UNCLOS, and minimising potential for conflict. So far, in any disputes that Russia has had—for example, the Barents Sea dispute with Norway— it has used international rules-based organisations to address them. This commitment, which Russia agreed, was reiterated in 2015 at the end of the Canadian chairmanship.

However, we are not naive about Russia’s military posture and related issues in the Arctic. The establishment or reopening of relatively small-scale military and search and rescue facilities has been proceeding for some time. It is taking place in Russian sovereign territory and we do not believe that it creates a real cause for concern. I stress that we absolutely do value co-operation in the Arctic, which we think is a special place in the world, as the noble Lord, Lord Hannay, and others mentioned. So far, this applies to Russia and is in many ways a model of what could happen in the rest of the world. For example, I can point to scientific co-operation with Russia that is still ongoing. In fact, a small team from the Russian Arctic and Antarctic Research Institute visited the UK in April 2015. The Russian scientific base is extremely important. Russia is crucial to understanding Arctic systems, as has been mentioned, in particular the melting of the permafrost and release of methane gas.

We are keen to find broader and deeper ways for British and Russian Arctic scientists to co-operate in this field. We will look at ways to collaborate more effectively. We are keen to ensure follow-through in order to work more closely with Russia. The head of the UK’s Arctic office will address these issues, in addition to numerous others.

My noble friend Lady Neville-Jones made an interesting point about consideration of Arctic issues in policy-making. The publication of the UK’s Arctic policy framework demonstrated the Government’s commitment to consideration of Arctic matters across a range of UK policy interests. This will be reviewed by the end of the financial year. The Foreign Office will continue to chair the cross-government Arctic network to ensure continued focus on Arctic matters across relevant policy areas.

The noble Lord, Lord Stevenson, asked about principles for mining and extractive industries. Governance of those extractive industries lies primarily with the Arctic states, which is where their work currently takes place and will to a great extent. The UK encourages the highest safety and environmental standards, both in regulation and directly with British companies. As has been mentioned, the first part of the polar code has been signed as part of the International Maritime Organization’s efforts.

The noble Lords, Lord Hannay and Lord Hunt, talked about fishing in the high seas in the Arctic. The UK supports the creation of marine protected areas where the science supports it. We are working with other partners and OSPAR to assess appropriate marine protection measures. We are aware of the agreement between the five Arctic littoral states on a moratorium on fishing activities in the Arctic high seas area, and we are sympathetic towards their intention to gain further support for this from the EU and other fishing nations.

The noble Lord, Lord Hunt, mentioned search and rescue in the Arctic. We have world-renowned expertise and significant knowledge and experience of search and rescue as a general subject, but we do not have specific expertise in Arctic search and rescue. That is held by the countries surrounding the Arctic. However, we are very much alive to coastguard and search and rescue issues. The requirement for the UK maritime patrol capability is being considered as part of the 2015 strategic defence and security review process.

The noble Lords, Lord Hannay and Lord Greenway, talked about Arctic tourism, and possible help with search and rescue. We think that any charge on tourism in the Arctic is a matter for the sovereign states, but operators, and so passengers, already pay landing fees when they land in the Arctic—for example, in Svalbard and Greenland. So a route for funding search and rescue is already in existence, and it could be argued that passengers are already supporting such systems—although it would usually be linked to military forces as well.

The noble Lord, Lord Soley, asked about the new polar research vessel. It has the capability to deliver science in the Arctic as well as the Antarctic, but its primary function is to support the UK’s Antarctic presence. It will also be able to operate in the north during the Arctic summer—that is, the Antarctic winter—as the science priorities require. I cannot give a more precise timetable for where it is going at the moment.

The noble Baroness, Lady Miller, introduced an interesting new point, which was not in the committee’s report, about a nuclear-free Arctic, and mentioned the growing support for that idea in many countries. We recognise the aspiration for a nuclear-free Arctic, but of course such matters are, in the main, for the sovereign Arctic states. In the meantime, it is encouraging that the Arctic states—sadly, currently without Russia—meet at defence level in the Arctic Security Forces Roundtable. This also includes the UK, Germany, the Netherlands and France. That level of co-operation and engagement is encouraging.

The noble Lords, Lord Teverson and Lord Soley, asked about indigenous peoples, and especially mentioned the specific knowledge they can contribute to the science base. We fully respect their rights, and the focus of our efforts is to ensure that indigenous peoples’ knowledge is taken into account in developing Arctic science. We are pleased that the UK was able to work so successfully with the Arctic Institute and the Science and Innovation Network to incorporate the views of indigenous people at the recent Arctic Circle assembly in Iceland. We will keep our engagement with indigenous peoples firmly at the front of our Arctic policy.

I am running out of time. If I have not answered all the questions asked by noble Lords—

[Lord Hunt of Chesterton]

We have not mentioned Scotland in the whole of the debate. There was a very important laboratory—SAMS, the Scottish Association for Marine Science, whose head resigned. Surely we should not be having the conference in Wilton Park; it should be in Scotland—the part of the UK closest to the Arctic. It will be a typical example of the London-based thinking that people criticise if we do not have this big conference up in the north.