Select committee: Environmental Audit Committee
Sixth Report - The UK and the Arctic Environment
HC 1141
Published 13 October 2023
At a glance24 recommendations and 29 conclusions · Government response published 28 December 2023 (deadline 13 December 2023)
The government's response
Summary written by Accountability Index from the government's response. It is not the government's own words.
The government's response agrees with some recommendations, partially agrees with others, and disagrees with the proposals for an Arctic Envoy, an additional research ship, a dedicated coordinating body and a national Arctic research plan.
- On ministerial coordination, the government agrees and says it is "looking to build on this by establishing a Ministerial group" of Ministers whose portfolios concern the Arctic, which "would meet periodically".
- It disagrees with appointing an Arctic Envoy, saying responsibility "best sits with" the Minister for the Polar Regions in the FCDO, and disagrees with a strategic national Arctic research plan because it "would not add significant value".
- On research ships, it disagrees with an additional vessel, stating that total research time available for Arctic work in any given year is "likely to be 45–50 days" for the RRS Sir David Attenborough, and points to other NOC ships and partnerships with other countries.
- On fisheries, it agrees and is "committed to joining CAOFA at the earliest possible opportunity". On deep-sea mining it partially agrees, supporting a moratorium on exploitation licences at the ISA.
What the committee recommended 53
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Sources
- Sixth Report - The UK and the Arctic Environment ↗The committee's report, HC 1141, parliament.uk
- Second Special Report - The UK and the Arctic Environment: Government Response to the Committee’s Sixth Report of Session 2022–23 ↗The government's response, 28 December 2023, parliament.uk
Recommendations and conclusions 53
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1
The Arctic region is at the frontline of climate change and is warming four times... Conclusion (the committee's words)The Arctic region is at the frontline of climate change and is warming four times faster than the rest of the Earth, on a feedback loop largely due to a reduction in sea ice. The Arctic is predicted to be summer sea ice free within a decade. Climate change in the Arctic is driven by human-made carbon emissions and is a global responsibility.
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2
What happens in the Arctic does not stay in the Arctic. Conclusion (the committee's words)What happens in the Arctic does not stay in the Arctic. Climate change in the Arctic is having an observable impact on the climate in the UK, including though more extreme weather events. Sea level rise also has the potential to affect UK coastal areas drastically through flooding, requiring urgent and difficult decisions of our Government.
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3
Our understanding of future Arctic climate changes and their implications for human and natural systems... Conclusion (the committee's words)Our understanding of future Arctic climate changes and their implications for human and natural systems remains incomplete. A great deal of further research is still required to assess and understand the full effects and implications of Arctic climate change, for the Arctic region, for the UK and for the world. However, there is already sufficient scientific evidence to show that more needs to be done to reduce greenhouse gas emissions more quickly.
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4
If we want to continue to see the Arctic as the ‘frozen place’ that its... Conclusion (the committee's words)If we want to continue to see the Arctic as the ‘frozen place’ that its Indigenous inhabitants know it as, and save our own country from the potentially dire impacts that climate change in the Arctic has in store for us, then the world must make efforts to mitigate the effects of climate change and keep within the Paris Agreement target of 1.5–2°C warming; a range that will still cause further drastic changes in the Arctic. The world is currently on track to exceed the 1.5–2°C threshold to which the Paris Agreement was designed to limit warming.
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5
We recommend that the Government acts to limit future climate change by strengthening its emissions... Recommendation (the committee's words)We recommend that the Government acts to limit future climate change by strengthening its emissions targets and policies to meet its carbon budgets and reach net zero by 2050 at the latest, and uses its influence on a global stage to persuade other countries to implement the Paris Agreement fully.
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6
Climate change, the retreating ice, military tensions, and economic competition have made the Arctic an... Recommendation (the committee's words)Climate change, the retreating ice, military tensions, and economic competition have made the Arctic an area of significant concern in global politics, and the Government should give greater thought to how to secure its future peace and prosperity.
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7
Rising temperatures are rapidly changing the Arctic, allowing increased access to the region’s resources. Conclusion (the committee's words)Rising temperatures are rapidly changing the Arctic, allowing increased access to the region’s resources. This has led to increasing commercial activity and geopolitical competition over resources and shipping routes in the Arctic. The idea of a ‘low tension Arctic’ is becoming increasingly tenuous.
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8
As international attention on the Arctic increases as a result of the increasing geopolitical tension... Conclusion (the committee's words)As international attention on the Arctic increases as a result of the increasing geopolitical tension due to Russia’s actions and the urgency of climate change, the 86 The UK and the Arctic Environment UK needs to be ready to bring its influence to bear in the region where appropriate. In order to do this, it is vital that there is sufficient Ministerial capacity to prioritise the UK’s interests in the Arctic.
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9
We were concerned to hear that the Ministers with portfolios that concern the Arctic do... Recommendation (the committee's words)We were concerned to hear that the Ministers with portfolios that concern the Arctic do not meet to coordinate an approach to the Arctic on a regular basis. We recommend that Ministers from the FDCO, MoD, DEFRA, DESNZ and DSIT meet at least quarterly to discuss Arctic issues and to ensure a coherent approach to the region.
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10
The fact that the Minister for the Americas and the Caribbean was unable to give... Recommendation (the committee's words)The fact that the Minister for the Americas and the Caribbean was unable to give oral evidence to our inquiry, despite being offered multiple dates, shows the capacity constraints of Government Ministers to give due attention to the Arctic. We accordingly recommend that the Government should consider recommendations that the UK should appoint a special representative or Envoy to the Arctic.
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11
As a result of Russia’s illegal invasion of Ukraine, all UK scientific cooperation with Russia... Conclusion (the committee's words)As a result of Russia’s illegal invasion of Ukraine, all UK scientific cooperation with Russia has halted, and we are unlikely to see any kind of ‘normalisation’ of relations with Russia in the foreseeable future. Despite that, understanding environmental change in the Russian Arctic is crucial to understanding climate change in the Arctic as a whole and therefore its impacts in the UK.
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12
We are concerned that these geopolitical tensions, and increasing security concerns, have lessened international cooperation... Conclusion (the committee's words)We are concerned that these geopolitical tensions, and increasing security concerns, have lessened international cooperation on climate change priorities.
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13
We are concerned about the significant gap in our understanding of the Arctic that comes... Conclusion (the committee's words)We are concerned about the significant gap in our understanding of the Arctic that comes from the inability of researchers from the UK and other countries to collaborate with their Russian counterparts, and about the long-term implications of this gap for understanding climate change worldwide.
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14
Although Russia’s invasion of Ukraine has jeopardised much of the collaborative work of the Arctic... Conclusion (the committee's words)Although Russia’s invasion of Ukraine has jeopardised much of the collaborative work of the Arctic Council, the Arctic Council is still active and there is more that the UK can do to promote its interests and support the region through the Arctic Council. The UK is a long-standing Observer to the Arctic Council, but we were told that the UK has had relatively ad hoc participation in the working groups, where the UK could have the most influence on the work and decisions of the Arctic Council. The UK has not been as active at the Arctic Council as our scientific strengths and varied interests in the region would warrant.
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15
Notwithstanding the current difficulties at the Arctic Council, the FCDO should seek to increase the... Conclusion (the committee's words)Notwithstanding the current difficulties at the Arctic Council, the FCDO should seek to increase the UK’s involvement in the Arctic Council as projects begin to restart with Norway in the Chair, such as through more active participation in the working groups.
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16
Russia’s invasion of Ukraine has fundamentally undermined the role of the Arctic Council as an... Conclusion (the committee's words)Russia’s invasion of Ukraine has fundamentally undermined the role of the Arctic Council as an intergovernmental forum on cooperation in the Arctic. While our witnesses were clear that the Arctic Council had historically been the most suitable forum for promoting cooperation in the Arctic, the geopolitical balance at the Arctic Council has been disrupted by Russia’s egregious war in Ukraine. We have very substantial concerns about whether the Arctic Council, without Russia, can ever in the foreseeable future fulfil its former role.
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17
We welcome the Minister for Science, Innovation and Technology’s commitment to work internationally with other... Conclusion (the committee's words)We welcome the Minister for Science, Innovation and Technology’s commitment to work internationally with other nations and urge the Minister to ensure that the issue of climate change in the Arctic remains a collaborative effort.
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18
Other fora in addition to the Arctic Council are important for building international consensus on... Conclusion (the committee's words)Other fora in addition to the Arctic Council are important for building international consensus on Arctic issues to do with the environment and should be supported. It is now urgent that the UK uses its position in other international fora, such as NATO, the UN, IMO and other intergovernmental organisations where we have a stronger voice than on the Arctic Council, to make the Arctic environment a higher priority on the international political agenda.
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19
UK research contributes a huge amount to the Arctic. Conclusion (the committee's words)UK research contributes a huge amount to the Arctic. We punch well above our weight, producing 10% of the world’s Arctic science, across a wide range of topics. We recognise that UK Arctic research has considerable strengths to offer the international scientific community and we welcome the commitments that the Minister has made to build upon the Arctic research community’s existing strengths.
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20
The Arctic is changing rapidly, and the UK could make a significant contribution to the... Recommendation (the committee's words)The Arctic is changing rapidly, and the UK could make a significant contribution to the world’s understanding of these changes by stepping up its contribution to longer-term scientific observing systems. The Government must ensure that the UK is well positioned to contribute to these systems and commit to supporting them long- term by ensuring that there is adequate support for the UK research community to do so.
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21
More interdisciplinary research on the Arctic is needed to bring together the physical consequences of... Recommendation (the committee's words)More interdisciplinary research on the Arctic is needed to bring together the physical consequences of climate change with its impacts on communities in the region. Such research can provide a more holistic view of the changes occurring in the Arctic so that better informed decisions can be made. The Canada-Inuit Nunangat-United Kingdom Arctic Research Programme highlights the positive impact that UK cross- disciplinary work can have. But to consolidate and build on its position as a world leader in Arctic research, the UK must significantly expand its interdisciplinary output. We appreciate that this is dependent on wider funding structures beyond specifically Arctic research. Consequently, we recommend that UKRI should review how its funding structures for Arctic research can better incorporate interdisciplinary projects across the natural and social science, and use its findings from the Arctic as a case study model.
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22
UK Arctic science receives 10% of the total state funding, with the balance of 90%... Conclusion (the committee's words)UK Arctic science receives 10% of the total state funding, with the balance of 90% going to Antarctica. However 70% of UK polar science is currently focussed on the Arctic. Arctic research is an area of considerable international interest and relevance and if the UK is to remain world-leading in Arctic science, continued and enhanced funding will be necessary. We support the Government’s ambition to leverage additional funding sources for Arctic research. We support the Government’s ambition to leverage additional funding sources for Arctic research. There should be more funding made available, through UKRI or other sources, to UK scientific research about the Arctic, but this should not come at the expense of the Antarctic, where equally important questions for the future of the world are being studied by scientists.
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23
In view of the evidence that we have heard about the rapidly intensifying changes that... Recommendation (the committee's words)In view of the evidence that we have heard about the rapidly intensifying changes that are occurring in the Arctic, and the potential impacts that those changes could have for the UK, we recommend that environmental change in the Arctic should feature more explicitly within UKRI’s top priorities.
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24
We have heard that long term monitoring and observations will be crucial to understand the... Recommendation (the committee's words)We have heard that long term monitoring and observations will be crucial to understand the changing Arctic, but we are concerned that current funding models are geared towards short-term projects. The Government and UKRI should set out how longer-term scientific monitoring over periods of at least 10 years can be successfully supported with a longer-term funding strategy.
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25
The RRS Sir David Attenborough is a much-needed platform for UK scientists in the Arctic. Conclusion (the committee's words)The RRS Sir David Attenborough is a much-needed platform for UK scientists in the Arctic. We welcome the Minister’s enthusiasm for the idea of a scientific voyage to the North Pole for the SDA and we believe that this would demonstrate the UK’s commitment to its responsibilities towards the Arctic environment and deepening international understanding of climate change in the region. The Minister should explore options with NERC for a voyage by the SDA to the North Pole.
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26
We are concerned that the time that the RRS Sir David Attenborough can spend in... Conclusion (the committee's words)We are concerned that the time that the RRS Sir David Attenborough can spend in the Arctic is limited, and recommend that consideration is given to the provision of an additional ship for UK scientists and researchers in the Arctic.
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27
The UK Research Station in Ny-Ålesund is a key element of the UK’s science capacity... Recommendation (the committee's words)The UK Research Station in Ny-Ålesund is a key element of the UK’s science capacity in the Arctic. It is vital for UK researchers and for the UK’s scientific influence internationally. We are concerned that the operation of such a vital resource to researchers may be jeopardised by rising running costs. We urge NERC to ensure that the station receives adequate funding.
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We understand that the station is typically open from March to September, in line with... Recommendation (the committee's words)We understand that the station is typically open from March to September, in line with demand from researchers. On our visit to Svalbard we also heard that the Arctic ecosystems are more active over winter than scientists have previously thought, requiring more active and regular monitoring. The UK has the opportunity to enhance the international scientific community’s understanding of Arctic winters, and their role in environmental change, by conducting more research in Ny- Ålesund over the winter. We recommend that the station is given enhanced support by NERC to enable it to open for a longer period during the year and that researchers be encouraged to use the station during winter. NERC should give consideration to maintaining a year-round operational presence in the station.
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29
There are numerous benefits to opening an additional platform in the Arctic for UK research,... Recommendation (the committee's words)There are numerous benefits to opening an additional platform in the Arctic for UK research, not limited to the potential for deepening scientific understanding of climate change in the Arctic. We urge the Government to consider increasing the infrastructure available to UK scientists in the Arctic.
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30
We were struck equally by the efficacy of Norway’s FRAM centre and by the fact... Conclusion (the committee's words)We were struck equally by the efficacy of Norway’s FRAM centre and by the fact that no equivalent platform in the UK exists to coordinate Arctic research. Our evidence points to a need for national strategic coordination of Arctic research within the UK, to enable researchers on projects spread throughout different universities and organisations to collaborate, share resources, and optimise the amount of work The UK and the Arctic Environment 89 that can be achieved. The Government, UKRI and NERC should explore options for further coordination, through a dedicated institute or body to provide strategic coordination of UK Arctic science.
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31
The Government should consult on a strategic national Arctic research plan, including both the natural... Recommendation (the committee's words)The Government should consult on a strategic national Arctic research plan, including both the natural and social sciences, with its own long-term funding, to help to understand, anticipate and respond to the changing Arctic environment and its impacts for the UK and the rest of the world.
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32
While UK Arctic researchers punch well above their weight, they also require international collaboration to... Recommendation (the committee's words)While UK Arctic researchers punch well above their weight, they also require international collaboration to be efficient and to maximise their impact. Polar infrastructure for science is expensive but necessary, and international collaboration is needed to enable us to understand the Arctic, such as through international projects to share different observations and modelling, and through the shared use of infrastructure. As part of the long-term research strategy that we recommend, the Government should include its approach to international collaboration, and how it will coordinate investment in research capability and infrastructure with like-minded countries.
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The Memorandum of Understanding between the UK and Norway has been very valuable for UK... Conclusion (the committee's words)The Memorandum of Understanding between the UK and Norway has been very valuable for UK Arctic science, enabling meaningful international collaboration. We strongly encourage the Government and UKRI to consider reproducing this model with other Arctic capable countries.
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34
We welcome the UK-Inuit Nunangat Memorandum of Understanding as a constructive example of polar research... Recommendation (the committee's words)We welcome the UK-Inuit Nunangat Memorandum of Understanding as a constructive example of polar research engagement with Indigenous knowledge holders. We recommend that NERC prioritise more co-production of research with Indigenous Peoples across the Arctic. This engagement should follow the principle of the ethical and equitable engagement with Indigenous knowledge holders.
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35
The Arctic community is building up towards the fifth international polar year in 2032–33, which... Recommendation (the committee's words)The Arctic community is building up towards the fifth international polar year in 2032–33, which has been described as a “once in a generation opportunity” to scale up polar science. The Government and UKRI should set out its targets for that year and put forth a strategic vision of UK activities to display our world-leading contribution to Arctic science, including through our research vessels.
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36
We have heard that the UK’s departure from Horizon Europe has been damaging for UK... Conclusion (the committee's words)We have heard that the UK’s departure from Horizon Europe has been damaging for UK Arctic research. We are concerned that lack of access to Horizon funding and international cooperation, at a time when international collaboration on Arctic research has never been more urgent, has been detrimental to UK polar science, and has reduced our capability and influence.
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We strongly welcome the agreement for the UK’s re-entry into Horizon Europe and Copernicus Earth. Conclusion (the committee's words)We strongly welcome the agreement for the UK’s re-entry into Horizon Europe and Copernicus Earth.
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UK scientists are building increasing evidence that the UK’s climate is affected by changes in... Conclusion (the committee's words)UK scientists are building increasing evidence that the UK’s climate is affected by changes in the Arctic. It is vital that the Government continues to use our world-class British research to inform policy and decisions about the use of Arctic resources, the 90 The UK and the Arctic Environment governance of and access to the region, and possible ways that Arctic countries, and the UK, will need to adapt to the effects that the changes in the region will bring.
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We heard very strongly in our evidence that UK researchers are committed to equipping UK... Recommendation (the committee's words)We heard very strongly in our evidence that UK researchers are committed to equipping UK policy makers with excellent academic knowledge, with a view to ensuring that UK policy is capable of responding to rapidly evolving climate threats. The Government should work with NERC to set out a map of knowledge exchange routes between Arctic science and policy makers, and identify areas where knowledge exchange could be strengthened.
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40
The loss of sea ice and permafrost creates new economic and social opportunities and risks... Recommendation (the committee's words)The loss of sea ice and permafrost creates new economic and social opportunities and risks in the Arctic. Further development of the Arctic is inevitable, and not undesirable, but it needs to be balanced with actions to limit environmental damage. The UK has a responsibility to ensure that commercial opportunities in the Arctic are guided by the principles of sustainable development and the Government should consider how the UK can use its expertise to ensure that development in the Arctic is both responsible and balanced against the risks to the environment and ecosystems of the Arctic.
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41
Economic development in the Arctic as a result of the changing climate must only take... Recommendation (the committee's words)Economic development in the Arctic as a result of the changing climate must only take place if it can be shown not to undermine the interests of Indigenous Peoples of the Arctic, or their environment. We welcome the code of conduct for UK Arctic researchers that the Government is currently developing. The Government should ensure that UK businesses are supported to work in genuine partnership with Indigenous Peoples, by developing a parallel code of conduct with for businesses with Arctic interests.
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42
Shipping routes, such as the northern passages, are predicted to open up, as the Arctic... Conclusion (the committee's words)Shipping routes, such as the northern passages, are predicted to open up, as the Arctic warms and sea ice diminishes. These could allow a vessel to cross the northern sea route from the Atlantic to Asia, or vice versa, saving 11–14 days at huge commercial benefit. But there is uncertainty over when, or if, such routes will emerge. The routes are likely to be hazardous and unpredictable, due to unmapped areas and severe weather.
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43
As a result of climate change-induced sea ice withdrawal, more shipping will become viable in... Recommendation (the committee's words)As a result of climate change-induced sea ice withdrawal, more shipping will become viable in the Arctic and there will be commercial interests in shipbuilding, marine equipment, engineering and manufacturing, as well as in professional maritime business skills such as chartering, ship finance and insurance. The Government must work with other likeminded partners to ensure that the pursuit of these economic interests do not come at the expense of harming the Arctic environment or Indigenous Peoples
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44
The UK should use its leadership in Arctic research to help to fill the knowledge... Recommendation (the committee's words)The UK should use its leadership in Arctic research to help to fill the knowledge gaps needed to ensure that emerging opportunities in shipping are pursued sustainably. The Government should back this research with funding, such as for marine spatial planning.
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45
We welcome the International Maritime Organisation’s decision to ban the use and carriage of heavy... Recommendation (the committee's words)We welcome the International Maritime Organisation’s decision to ban the use and carriage of heavy fuel oil by ships in the Arctic from 2024. However, the exemptions and waivers mean that the ban will only take full effect in 2029, and we are concerned that the ban as it stands will prove ineffective. As shipping increases in the Arctic, the amount of heavy fuel oil used in the Arctic will only increase unless a full ban is in place. We urge the Government to press the IMO for an earlier full adoption of this ban in 2024, and to work with them to set limits for black carbon in the Arctic.
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46
We welcome the steps already being taken by some UK businesses to minimise their use... Conclusion (the committee's words)We welcome the steps already being taken by some UK businesses to minimise their use of HFO and to transition to alternative fuels. These efforts must be accelerated as climate change opens up more shipping routes.
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47
We strongly support strengthening the Polar Code to minimise safety and pollution risks from shipping... Recommendation (the committee's words)We strongly support strengthening the Polar Code to minimise safety and pollution risks from shipping in the Arctic. The Government must continue to use its position at the IMO to push for the Polar Code not only to be strengthened to include a wider range of vessels, but also to be implemented and monitored effectively. The Government should ensure that all UK businesses with Arctic maritime interests and UK registered vessels visiting the Arctic region are Polar Code compliant.
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48
The effects of climate change are altering the composition of marine ecosystems in the Arctic. Conclusion (the committee's words)The effects of climate change are altering the composition of marine ecosystems in the Arctic. Fish stocks are becoming more distributed as Arctic species move further north to colder water. These changes offer opportunities for UK fisheries and ultimately UK consumers of fish, but these opportunities must only be pursued if it can be shown that they do not undermine the interests of Indigenous Peoples or the environment: we received evidence that many Arctic fish species are already in decline as a result of environmental change.
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49
Arctic fish constitutes 70% of UK seafood imports but the growth of the UK distant... Conclusion (the committee's words)Arctic fish constitutes 70% of UK seafood imports but the growth of the UK distant water fishing industry in the Arctic is dependent on international agreements. Were the Government to negotiate larger fishing quotas in the Arctic, that must take place within a sustainable level of the overall catch.
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50
We welcome the Government’s intention to join the Central Arctic Ocean Fisheries Agreement. Conclusion (the committee's words)We welcome the Government’s intention to join the Central Arctic Ocean Fisheries Agreement. The UK should do so without delay.
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51
Changes to the Arctic as a result of warming temperatures will allow more access to... Recommendation (the committee's words)Changes to the Arctic as a result of warming temperatures will allow more access to resources such as oil, gas and minerals. The potential for expansion of these industries must only be pursued in ways that are consistent with the Paris Agreement commitment to reduce carbon emissions. The risks to the climate and environment from mining in the Arctic, especially extractive industries, is significant, as many industries contribute to greenhouse gas emissions and habitat destruction. We welcome the Government’s commitment not to sponsor or support the issuing of any exploitation licences for deep-sea mining projects until there is further evidence about the potential impact and enforceable regulations are in place. However, the Government must go further and commit to a precautionary pause for deep sea mining which would be directly analogous to the precautionary pause in fishing in the Central Arctic Ocean.
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52
The Government must increase financial support for research into the potential consequences and mitigation strategies... Recommendation (the committee's words)The Government must increase financial support for research into the potential consequences and mitigation strategies related to mineral extraction in the Arctic, to ensure that a sustainable business approach is employed and that adequate policies are in place to protect the Arctic region, its environment, and its inhabitants.
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53
Tourism in the Arctic is likely to increase in the future. Conclusion (the committee's words)Tourism in the Arctic is likely to increase in the future. Arctic tourism can bring economic opportunities to the region if it is managed correctly, but there are risks around cultural and environmental impacts, and the safety of vessels and passengers. We welcome the steps already being taken by some in the industry to manage these impacts, and these steps should be developed continuously as environmental change opens up new opportunities and challenges. The UK should work with Arctic states and other relevant bodies to co-ordinate safe and sustainable tourism in the region.