Changes in the Arctic: Background and Issues for Congress.

The diminishment of Arctic sea ice has led to increased human activities in the Arctic, and has heightened interest in, and concerns about, the region’s future. The United States, by virtue of Alaska, is an Arctic country and has substantial interests in the region. The seven other Arctic states are Russia, Canada, Iceland, Denmark (by virtue of Greenland), Norway, Sweden, and Finland. The Arctic Research and Policy Act (ARPA) of 1984 (Title I of P.L. 98-373 of July 31, 1984) “provide[s] for a comprehensive national policy dealing with national research needs and objectives in the Arctic.” The National Science Foundation (NSF) is the lead federal agency for implementing Arctic research policy. The Arctic Council, created in 1996, is the leading international forum for addressing issues relating to the Arctic. The United Nations Convention on the Law of the Sea (UNCLOS) sets forth a comprehensive regime of law and order in the world’s oceans, including the Arctic Ocean. The United States is not a party to UNCLOS. An array of climate changes in the Arctic is now documented by observing systems, with more expected with future greenhouse gas-driven climate change. Observed physical changes in the Arctic include warming ocean, soil, and air temperatures; melting permafrost; shifting vegetation and animal abundances; and altered characteristics of Arctic cyclones. A monitoring report of the Arctic Council concluded in 2019 that “the Arctic biophysical system is now clearly trending away from its previous state [in the 20^th century] and into a period of unprecedented change, with implications not only within but also beyond the Arctic.” Following the end of the Cold War, the Arctic states sought to maintain the Arctic as a region of cooperation, low tension, peaceful resolution of disputes, and respect for international law. Over the past 10 to 15 years, the emergence of great power competition between the United States, Russia, and China has introduced elements of competition and tension into the Arctic’s geopolitical environment. Russia’s war in Ukraine beginning on February 24, 2022, has further affected the region’s geopolitical environment by prompting the seven Arctic states other than Russia to suspend most forms of Arctic cooperation with Russia, by prompting Finland and Sweden to apply for NATO membership (they are now NATO members), and in other ways. The Department of Defense (DOD) and the Coast Guard are devoting increased attention to the Arctic in their planning, budgeting, and operations. Whether DOD and the Coast Guard are taking sufficient actions for defending U.S. interests in the region is a topic of congressional oversight. The Coast Guard has two operational polar icebreakers and through FY2023 has received funding for procuring the first two of four or five planned new heavy polar icebreakers. The diminishment of Arctic ice could lead in coming years to increased commercial shipping on two trans-Arctic sea routes—the Northern Sea Route close to Russia, and the Northwest Passage close to Alaska and through the Canadian archipelago—though the rate of increase in the use of these routes might not be as great as sometimes anticipated in press accounts. International guidelines for ships operating in Arctic waters have been updated. Changes to the Arctic brought about by warming temperatures will likely allow more onshore and offshore exploration for oil, gas, and minerals. Warming that causes permafrost to melt could pose challenges to onshore exploration activities. Increased vessel traffic (e.g., oil and gas exploration, cruise ships, expanded fishing activities) in the Arctic increase the risk of pollution in Arctic waters. Cleaning up oil spills in ice-covered waters will be more difficult than in other areas, primarily because effective strategies for cleaning up oil spills in ice-covered waters have yet to be developed. Changes in the Arctic could result in migration of fish stocks to new waters, and could affect protected species. The United States is working with other countries regarding the management of Arctic fish stocks. [ABSTRACT FROM AUTHOR]

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