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2020 | OriginalPaper | Buchkapitel

No UNCLOS, No Icebreakers, No Clue? U.S. Arctic Policy Through the Eyes of Congress

verfasst von : Victoria Herrmann, Lillian Hussong

Erschienen in: Handbook on Geopolitics and Security in the Arctic

Verlag: Springer International Publishing

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Abstract

The U.S. is oft described as the reluctant Arctic nation; in spite of its geopolitical potential to become a circumpolar superpower, that potential remains unrealized. With no strong fleet of icebreakers, no UNCLOS membership, and no regional military strategy, the positioning of the U.S. as a weak Arctic power simultaneously undermines its own national security and limits its role in fostering peace across the North. The proposed book chapter will analyze the role of Congress in U.S. Arctic policymaking and military leadership. First, the chapter will provide a brief survey of U.S. congressional actions related to Arctic security from 2007 to 2018, using a widened security perspective to include the nexus of national, climate, energy, and military security measures. Then, through a critical discourse analysis of published documents, speeches, and legislation, the chapter will analyze congressional action on Arctic energy, climate, UNCLOS, leadership, and icebreaking vessels. The chapter will conclude with a consideration of what the future holds for U.S. engagement in the Arctic and pathways for augmented congressional support for leadership in the region.

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Fußnoten
1
Ronald O’Rourke, “Coast Guard Polar Security Cutter (Polar Icebreaker) Program: Background and Issues for Congress,” Congressional Research Service, Report RL34391, October 4, 2019, 1–67; Rachel Waldholz, “Tillerson proposes scrapping Arctic and climate envoys,” Alaska Public Media, August 31, 2017, https://​www.​alaskapublic.​org/​2017/​08/​31/​tillerson-proposes-scrapping-arctic-and-climate-envoys/​.
 
2
NSDM-144 states that the U.S. will “…support the sound and rational development of the Arctic, guided by the principle of minimizing any adverse effects to the environment; promote mutually beneficial international cooperation in the Arctic; and… provide for the protection of essential security interests in the Arctic, including preservation of the principle of freedom of the seas and superjacent airspace.” “National Security Decision Memorandum 144,” National Security Council, December 22, 1971, 1.
 
3
National Security Decision Directive 90, “United States Arctic Policy, April 14, 1983, 1–2; United States Arctic Research and Policy Act (ARPA) of 1984 (Title I of P.L. 98-373).
 
5
In our assessment to determine the threshold for Arctic versus non-Arctic bills, we found three broad themes: legislation dedicated entirely to Arctic issues; legislation that had some implications for the Arctic but also largely addressed non-Arctic issues; and legislation that nominally mentions the Arctic.
 
6
The U.S. was largely an isolationist nation in the late nineteenth century, and the purchase signified the geopolitical importance of Alaska as a way to counterbalance both the Russian Empire and Great Britain in North America. Yet the expansion into Alaska was not meant as an instrument of democracy promotion; rather, it reflected a strategy to curb Russian expansion as a means to preserve American “…sovereignty and territorial integrity in the face of external military threats.” Office of the Historian, “Purchase of Alaska, 1867,” United States Department of State, https://​history.​state.​gov/​milestones/​1866-1898/​alaska-purchase; Caswell (1951: 220), Nordlinger (1995: 10).
 
7
The Library of Congress’ online archives include all Congressional legislation since the 93rd Congress beginning in 1973.
 
8
NSDM-144 states that the U.S. will “…support the sound and rational development of the Arctic, guided by the principle of minimizing any adverse effects to the environment; promote mutually beneficial international cooperation in the Arctic; and… provide for the protection of essential security interests in the Arctic, including preservation of the principle of freedom of the seas and superjacent airspace.” “National Security Decision Memorandum 144,” National Security Council, December 22, 1971, 1.
 
9
In her confirmation hearing for Secretary of State, Hillary Clinton acknowledged UNCLOS’ as both an asset for Alaskans and a diplomatic instrument to strengthen the US’ relationship with Russia. Numerous Defense Department officials and top-ranking military officers also support American accession to UNCLOS, including then-Secretary of Defense Leon Panetta, then-Chairman of the Joint Chiefs of Staff General Martin Dempsey, and former Chief Oceanographer of the Navy Admiral David Titley. United States Senate, “Transcript of Hillary Clinton’s Confirmation Hearing,” January 13, 2009; Department of Defense, “Law of the Sea Convention,” http://​archive.​defense.​gov/​home/​features/​2012/​0612_​lawofsea/​; Jim Garamone, “Dempsey Urges Ratification of the Law of the Sea Convention,” Armed Forces Press Service, May 9, 2012, http://​archive.​defense.​gov/​news/​newsarticle.​aspx?​id=​116265; Rear Admiral Titley and St. John (2010: 40).
 
10
The USCGC Polar Sea is a heavy CODLOG icebreaker that was decommissioned in 2010 to due consistent engine failure. See Freedberg (2016).
 
11
“United States of America,” Arctic Council, https://​arctic-council.​org/​index.​php/​en/​about-us/​member-states/​united-states-of-america. Julie Gourley served as the most recent Senior Arctic Official. The position is currently held by Interim Senior Arctic Official Meredith Rubin.
 
12
The following bills were introduced between 2008 to 2018 for a U.S. Ambassador at Large for Arctic Affairs: H.R.1593 (111th), S.1229 (112th), H.R.4538 (113th), S.270 (113th), H.R.1593 (114th), and H.R.1559 (115th). Senator Begich and Representative Sensenbrenner’s bills were co-sponsored by Senator Kirsten Gillibrand (D-NY), and Representatives Gerald E. Connolly (D-VA-11), Matt Salmon (R-AZ-5), Betty McCollum (D-MN-4), Don Young (R-AK-At Large), Rick Larsen (D-WA-2), Chellie Pingree (D-ME-1), John Garamendi (D-CA-3), and Elise M. Stefanik (R-NY-21). “Arctic Legislation,” Congress.gov, https://​www.​congress.​gov/​search?​searchResultView​Type=​expanded&​pageSort=​relevancy&​q=​%7B"congress"%3A%5B"115"%2C"114"%2C"113"%2C"112"%2C"111"%2C"110"%5D%2C"source"%3A"legislation"%2C"search"%3A"arctic"%2C"subject"%3A"International+Af​fairs"%7D.
 
13
“H.R.39—Alaska National Interest Lands Conservation Act96th Congress (1979-1980)” https://​www.​congress.​gov/​bill/​96th-congress/​house-bill/​39
 
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Metadaten
Titel
No UNCLOS, No Icebreakers, No Clue? U.S. Arctic Policy Through the Eyes of Congress
verfasst von
Victoria Herrmann
Lillian Hussong
Copyright-Jahr
2020
DOI
https://doi.org/10.1007/978-3-030-45005-2_2

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