Foreign Affairs Committee on Oct. 2nd, 2025

[The Chair, Liberal, Ahmed Hussen]

Hello, everyone.

I call this meeting to order.

Welcome to meeting number four of the House of Commons Standing Committee on Foreign Affairs and International Development.

Today’s meeting is taking place in a hybrid format, pursuant to the Standing Orders. Members are attending in person in the room, as well as remotely using the Zoom application.

Before we continue, I would like to ask all in-person participants to consult the guidelines written on the cards on the table. These measures are in place to prevent audio and feedback incidents, and to protect the health and safety of all participants, including our interpreters.

You will also notice a QR code on the card, which links to a short awareness video.

I would like to make a few comments for the benefit of the witnesses and the members.

Please wait until I recognize you by name before speaking. For those participating by video conference, click on the microphone icon to activate your microphone, and please mute yourself when you are not speaking.

For those on Zoom, at the bottom of your screen, you can select the appropriate channel for interpretation: French, English or floor. For those in the room, you can use the earpiece and select the desired channel.

I remind you that all comments should be addressed through the chair. For members in the room, if you wish to speak, please raise your hand. For members on Zoom, please use the “raise hand” function. The clerk and I will manage the speaking order as best we can, and we appreciate your patience and understanding in this regard.

Pursuant to Standing Order 106(2) and the motion adopted by the committee on Tuesday, September 23, the committee is meeting on the study of Canada’s Arctic strategy.

I would now like to welcome our witnesses for the first hour.

From the Inuit Circumpolar Council of Canada, we have Mr. Herb Nakimayak, president.

From Oceans North, we have Dr. Sheena Kennedy, executive director.

Welcome to the committee. Up to five minutes will be given for opening remarks, after which we will proceed to rounds of questions from the members.

Mr. Nakimayak, you have the floor.

[Herb Nakimayak, President, Inuit Circumpolar Council (Canada)]

Quyanainni, Mr. Chair. I thank you and the committee for having us here today.

My name is Herb Nakimayak. I'm from Paulatuk, Northwest Territories, which is in the Inuvialuit Settlement Region.

I'm the newly appointed interim president of the Inuit Circumpolar Council of Canada. ICC Canada advocates on behalf of Inuit from the four Inuit regions in Canada: the Inuvialuit Settlement Region, Nunavut, Nunavik and Nunatsiavut, collectively termed Inuit Nunangat. We are taxpayers and rights holders within Inuit Nunangat, protecting, stewarding and preserving the lands, coasts, waters and ice that make up our home. We are the sister organization of Inuit Tapiriit Kanatami, the national organization representing the rights and interests of Inuit in Canada.

We have lived in our circumpolar homeland since time immemorial. As such, our indigenous knowledge is essential to who we are and the regions in which we live.

Internationally, ICC is an indigenous peoples' organization that represents Inuit in our circumpolar homeland, inclusive of Canada, Alaska, Greenland and Chukotka, which is part of the Russian Federation. We do so at the United Nations as permanent participants to the Arctic Council, and we are permanent consultative status members at the International Maritime Organization, among many other fora.

Mr. Chair, the 2024 Arctic foreign policy must be implemented with regular and ongoing engagement with Inuit. This work is most effectively managed through engagement at the Inuit-Crown partnership committee and with regional Inuit treaty organizations, which include the leaders from the four Inuit treaty organizations.

There is no sovereignty or security in the Arctic without engaging and first protecting its people. Canada's Arctic sovereignty depends on Inuit use and occupancy across our lands, sea ice, airspace and waters. I would like to highlight a couple of key areas to focus on.

First, for Inuit in Canada, mixed or dual-use infrastructure is critically important. Canada has committed to a year-round military presence in the Arctic, along with identification of major projects that include the revitalization of the port of Churchill, Manitoba, and the early-stage Arctic economic and security corridor strategy. There are many opportunities for investment in Inuit communities that also represent investment in Arctic security and sovereignty.

Second, Inuit also recognize the changing geopolitical landscape, which has increased interest in our lands, waters and ice. With Inuit having long advocated for the peaceful use and preservation of the Arctic, it is pivotal that Canada continue to recognize the ongoing commitments to multilateralism, diplomacy and good governance in support of a safe and governed Arctic.

To note, ICC Canada will be assuming the four-year ICC chairship next summer at the quadrennial ICC general assembly in Iqaluit, Nunavut, convening Inuit from Canada, Alaska, Greenland and Chukotka. We call upon Canada to ensure its commitments to Arctic collaboration and diplomacy. As ICC Canada's chairship of the ICC will overlap with Canada's next chairship of the Arctic Council, we look forward to collaborative opportunities for stewarding shared goals and Arctic multilateralism.

To be sure, Canada's continued support allows us to voice and gain support for a secure Canadian Arctic. Inuit work closely with many Arctic and non-Arctic states and other Arctic and northern indigenous peoples as part of Canada's delegation for many agreements in international fora. I would remind the committee that the work to implement the goals for the Arctic foreign policy need to be based on the work that Inuit have been and are already doing to leverage existing relationships, capacities and knowledge systems.

Engagement through the Inuit-Crown partnership committee, along with engagement with states in the Arctic Council and the United Nations, allows us to represent Inuit rights and priorities right here at home and around the world. We look forward to building on this work with Her Excellency Virginia Mearns, Canada's newly appointed Arctic ambassador.

Mr. Chair, I'm reminded every day that the pace of change in our homeland is gaining momentum. The opportunity that Canada has to work in tandem with Inuit to secure our Arctic is unique. It is achieved by involving Inuit in the decision-making process and securing long-term, sustainable funding enabling Inuit communities to build strong economies. In addition, by learning about our realities as rights holders, hunters, boat owners, guardians and experts in our regions, the Government of Canada can implement an Arctic foreign policy that serves the needs of the nation and keeps us strong in the face of adversity.

Quyanainni, Mr. Chair.

[The Chair, Liberal, Ahmed Hussen]

Thank you very much, President Nakimayak.

[Mario Simard, Bloc, Jonquière, QC]

Mr. Chair, I would like to make a friendly reminder. The pace should be a bit slower. I think that the interpreter is having difficulty breathing.

[The Chair, Liberal, Ahmed Hussen]

Thank you, Mr. Simard.

I now invite Dr. Kennedy to make an opening statement of up to five minutes.

[Sheena Kennedy, Executive Director, Oceans North]

Thank you, Mr. Chair.

Honourable members of the committee, thank you for the invitation to appear before you today. I am Dr. Sheena Kennedy, and I am here on behalf of Oceans North, where I serve as executive director.

I’d like to acknowledge my friend, Mr. Herb Nakimayak, and congratulate him on his recent appointment as interim president of ICC Canada.

Oceans North supports marine conservation and climate action in partnership with indigenous and coastal communities. Over the last 15 years, our collaborative and science-based approach has led to tangible outcomes for Arctic communities, including contributing to the protection of over 650,000 square kilometres of marine area; the establishment of the Tallurutiup Imanga National Marine Conservation Area; the successful conclusion of the SINAA agreement between the Qikiqtani Inuit Association and the Government of Canada; and a network of indigenous-led science, monitoring and other research projects that support the well-being of Arctic communities across the Canadian north and in Greenland.

Canada demonstrated leadership in releasing a new Arctic foreign policy in 2024, and I'd like to commend this committee on its decision to review it now. In this period of transformative, unparalleled change, the regular study of our approach to the opportunities and challenges facing the Arctic is both urgent and necessary. I would also be remiss if I did not acknowledge the essential role that Canada’s new Arctic ambassador will play as the Arctic becomes an even greater theatre of geopolitical interest.

At this time, when global powers are showing renewed interest in the Arctic, Canada’s approach to policy in this region must underscore that diplomacy is our first line of defence. Canada should remain committed to the principles of peace, stability and rules-based international order.

Canada and its Arctic allies have always found ways to co-operate on matters of mutual interest. For example, the unprecedented precautionary agreement to regulate fishing in the central Arctic Ocean is an example of this exceptional multilateralism. Building on the Central Arctic Ocean Fisheries Agreement to address emerging industrial activities such as transpolar shipping and deep-sea mining in the central Arctic Ocean would strengthen multilateral co-operation in this highly sensitive and globally significant region.

Canada should also continue to strengthen its relationships across the circumpolar world. With Greenland and the Kingdom of Denmark, Canada could establish bilateral agreements on matters of trade, environmental protection, defence, science and monitoring. The rapid establishment of the bilateral Pikialasorsuaq protected area, also known as the North Water Polynya, which is located between northern Baffin Island and northwest Greenland, would strengthen communication, data and knowledge sharing and monitoring capabilities between both regions.

To support this process, we recommend that Canada expedite the establishment of an Arctic consulate in Nuuk and work with the newly appointed Canadian and Greenlandic Arctic ambassadors, as well as ITK and ICC, to identify a shared set of priorities for Arctic diplomacy and co-operation.

As you heard from Herb, Arctic peoples have always lived in deep connection with the marine environment and are on the forefront of climate change and biodiversity loss. Their knowledge and experience must inform all policies and decisions the Government of Canada undertakes with regard to the Arctic, their homeland.

Arctic waters are seeing exponential increases in vessel traffic as climate change drives sea ice retreat. Robust management of shipping in Canada’s EEZ is essential to avoid accidents, such as the recent grounding of the MV Thamesborg, and deleterious impacts to the marine environment, but most relevant to this discussion today, a more robust system for managing Arctic shipping would enhance Canada's domain awareness in the Northwest Passage at this critical time.

In the Arctic, the Canadian Coast Guard and Canadian Rangers play an essential role in monitoring and contributing to the federal government’s awareness and surveillance of the region. To perform this function at a calibre sufficient to meet this moment, both programs require adequate and scaled resourcing.

The existing network within Arctic communities already contributes greatly to our domain awareness in the Arctic, but for deeper knowledge, expertise, on-the-ground capacity and durability, the federal government must invest in best-in-class infrastructure, equipment and training to fully realize the potential of these important programs. All of these efforts would serve multiple purposes and contribute to meeting many federal priorities while supporting Inuit sovereignty.

I will close by saying that I'm deeply appreciative of the opportunity to be here today, and I look forward to our discussion.

Thank you.

[The Chair, Liberal, Ahmed Hussen]

Thank you, Dr. Kennedy, for your opening statement and your remarks.

I will now open the floor for questions.

MP Hoback, you have six minutes.

[Randy Hoback, Conservative, Prince Albert, SK]

Thank you, Chair.

Thank you, witnesses. It was nice to visit with you before the committee. I have a few questions for you.

I'm curious to know how Inuits' vision of the north aligns with the Arctic policy. Are there things you would look at and say that this isn't aligning? Are there areas that need more construction or more work?

[Herb Nakimayak]

I would say that Inuit definitely played a role in the development of Canada's Arctic foreign policy. We want to ensure that as we move ahead, what is happening in the Arctic is reflective of our way of life, and ensure that there is security amongst Inuit in our homes, so that we feel safe living in the place we live. As you know, there has been a lot of pressure this year and attention in the Arctic. We want to make sure that we are not left behind, that there's no gap between Canada and Inuit, and that as we further develop policy and implement policy, we are at the table too. That way, we ensure that the decisions that are made are reflective of the region in which we're actually making those decisions. We see it as a win-win for Canada and Inuit when we implement policy together.

In fact, as with any organization or any government, we want to ensure that we are there in peace, and we want it to remain that way. We feel that right now we are aligned. We want to continue that alignment to ensure that we are making the right decisions.

[Randy Hoback, Conservative, Prince Albert, SK]

You deal with Inuit from other countries—Russia, for example. When you see the development that's happening on the Russian side, would you say they are aligned with what you see with regard to a vision for the polar region?

[Herb Nakimayak]

I can speak only for Canada. I would say that Inuit in the four regions are certainly working with their states. I feel that in Canada we are certainly leading the way, as there is a lot of engagement between the government and Canada. We can only advocate so much for another country, but when we do advocate, we ensure that there is also peace on that side as best we can, without putting any of the ICCs or the people in a place where they do not want to be.

[Randy Hoback, Conservative, Prince Albert, SK]

Ms. Kennedy, you talked about making sure we have the proper infrastructure when it comes to the ability to properly monitor the region as you see more ships going through, and to do mining mapping and stuff like that. Do you think Canada will need to have a role somewhere down the road such that they will enforce that territory and enforce that bad actors won't be participating in illegal mining or illegal activity in the region? How do you see that unfolding?

[Sheena Kennedy]

To start, investments in a lot of communities through the Arctic—Herb can speak to this from his region—are actively doing a lot of the monitoring and search and rescue and emergency preparedness through that region. I think investments in new vessels and perhaps docks and other infrastructure would really allow for an expansion of people who have local knowledge and local experience to play that role, but I do think leadership from Canada will also be required to meet the moment.

[Randy Hoback, Conservative, Prince Albert, SK]

You made the comment about dual-use ports—Churchill, for example. I agree with you 100%. If you are going to spend the money, it has to have both a civilian aspect and a military aspect to it somewhere down the road. That is something that I think everybody around this room would probably agree with.

As we look at more players in the north, though, and the military aspect, I know that the Americans have a lot of interest. In fact, I would almost say that they are paranoid about the activity going on in the north. What role do you see us playing in that environment?

[Herb Nakimayak]

I see Canada's role, especially for Inuit.... This year has likely seen a record number of icebreaking vessels from other countries. They have shown an interest and are patrolling outside international waters. For us to play a role when it comes to dual use, we need to ensure that we add the civilian aspect to this.

When you look at any airport in the country, there's a secure side and perhaps a detached side. For us, we need to ensure we're developing policies and regulations, so that they are feasible for both sides, for national defence use and civilian use. Breaking down both of those aspects is really key to ensuring the right policy is developed. When it comes to other councils, I see us playing a role together, so we are involved with search and rescue. By giving advice to countries, we can ensure we are looking at these areas.

For example, in Canada, sometimes there is such a lack of response in any part of the Arctic. To do that, we have to ensure we're looking at the Polar Code, the types of vessels that are coming through our regions, and how best to accommodate those. There may be a spill, or as Sheena mentioned earlier, a ship going aground. How are we going to react to those, and how are we going to react to safety, so we can ensure the environment is protected?

It's not just people, as we also rely on migratory species, such as beluga whales, chars and seals. We want to make sure that one spill doesn't create a massive impact on a species, whereby it might change its migration route for a long time until that site is cleaned up. When it comes to shipping, we're thinking about all of those things by developing sound policies and regulations together. It is very important, especially for us, in our region.

[The Chair, Liberal, Ahmed Hussen]

Thank you very much for that.

I'll now go to MP Fortier.

[Mona Fortier, Liberal, Ottawa—Vanier—Gloucester, ON]

Thank you, Mr. Chair.

Since I'll be speaking in French, I'll give the witness time to put on his earpiece so that he can clearly understand me. In the meantime, I would like to take this opportunity to thank the interpreters for their support. It makes today's discussion much easier.

Mr. Nakimayak, nakurmiik. Thank you for joining us today to share your expertise. As a committee, we have the opportunity to look closely at this issue and make concrete recommendations that can guide the government or other partners in their efforts to protect the Arctic and expand its role.

I have an open‑ended question to help set the stage. Which countries currently pose the greatest threats to Canada in the Arctic region, and which countries are its closest allies?

[Herb Nakimayak]

When it comes to allies, certainly our partnership with the U.S.A. has been one through time that we've always relied on as Canadians. It's become sort of a brand through our lifetime until recently, when now, with the geopolitical state of this world, we need to ensure, even though there may be disagreements at certain levels of government, that there are also levels where they're actually working quite well. Those are the ones that we need to look at and ask, how do we continue that? Through time we're going to need to work together at one time or another, or continue working, regardless of what our relationship is between states. We look at countries like that, which certainly are our neighbours. For us, for myself, my family migrated from Alaska and ended up in Canada as Inuit. Certainly there are ties when it comes to indigenous peoples.

For myself, I can speak for ICC. Across the Inuit Circumpolar Council, we advocate for the 180,000 Inuit in the circumpolar world. We have relations with Inuit in Russia, Alaska, Greenland and other places, so our dialogue has continued with them regardless. When it comes to state-to-state, when we attend Arctic Council central Arctic Ocean fisheries negotiations, plastics negotiations, treaties and forums like that, we come as a state with Canada. Our message is always aligned with Canada, so that we ensure that we're in this together. We need to be strong. If we're going to work with our allies, we need to ensure that we have a strong foundation here at home so we can provide that support to each other, so we are, in fact, there to implement our mandate.

When it comes to threats, certainly there were quite a number of icebreakers out from certain countries. It was like, wow, there's a very big interest. When it comes to research on the Arctic, it's a new race for a lot of countries that want to see what's there. When it comes to the Central Arctic Ocean Fisheries Agreement, there are 10 countries. As well, there are countries that include the European Union, so there is a lot of interest, a lot at stake. For us, it is our.... We could define a threat. Sometimes we see a threat as a vessel. Most recently, there was a ship aground. That is for sure.

For us, we want to ensure that our rights.... We believe that we are part of the ecosystem, and we want to ensure that when there's research being conducted, they're following guidelines that are put out in front. We do our best to remind countries and states that there are some regulations in place. For the CAO, we're definitely developing that platform, and we want that as the best representative. For us in Canada, we want to.... In my day job, we manage a marine environment that is in the Inuvialuit region, and we want our national programs to be recognized and mirrored on the offshore, so there is in fact proven collaboration, coordination, comanagement and coleading research. If we can do that here in our own country, then we can actually do that on the offshore as well.

As I said, a threat could be anything or anyone—

[Mona Fortier, Liberal, Ottawa—Vanier—Gloucester, ON]

I really appreciate your response. Unfortunately, I only have six minutes, but I understand that what you're sharing is really important for us to hear.

I might just give a chance to Dr. Kennedy to also answer or try to answer that question.

[Sheena Kennedy]

Sure. In addition to what Herb has just said, I do really think that climate change is a major threat to the Arctic, and it's one that Inuit understand deeply and live every day. I think that the changing climate is allowing for the recession of ice, and that creates opportunities for increased shipping through the Northwest Passage. I do think that environmental protection is akin to security, in that if we don't have healthy communities and a healthy environment, and we don't have pathways for the movement of vessels through the Arctic, for example, we are increasing our risks, both as a region and as a country.

[The Chair, Liberal, Ahmed Hussen]

Thank you very much.

Mr. Simard, you have the floor for six minutes.

[Mario Simard, Bloc, Jonquière, QC]

Thank you, Mr. Chair.

Thank you, Ms. Kennedy and Mr. Nakimayak.

You probably know that the government hopes to increase its defence spending, perhaps even up to 5% of the gross domestic product. To achieve this, it wants to set up infrastructure for strategic critical minerals. The North Atlantic Treaty Organization wants to establish a list of critical minerals subject to a type of floor price. In short, all this requires investment in infrastructure for critical minerals. As you know, a significant portion of the valuable critical minerals are found in the north.

I would like to know whether the Inuit are participating in discussions with the government regarding both this infrastructure and certain strategic critical minerals mining projects.

You spoke earlier about foreign threats. I want to ask whether this whole situation involves new foreign threats that could, on some level, undermine respect for sovereignty in the Arctic.

I would like to hear your opinion on this matter, particularly regarding the strategic critical minerals situation.

[Herb Nakimayak]

As you know, we represent the Inuit internationally, and we have four new treaty organizations that are in fact working with the government. In the Grays Bay area and the Slave geological province, which is just north of the capital of the Northwest Territories and goes into Nunavut, there is great interest there, and there is also shipping from the Mary River mine.

With any development, when it comes to critical minerals and developing that infrastructure, we know there is a lack of such infrastructure in the Arctic, but in being strategic not just for Canada but also for Inuit, working closely with the Inuit treaty organizations will really enhance the ability to become more successful in finding a good logistical point for it. We know critical minerals play a big role right now all around this world, and we are going in that direction.

We want to ensure there are proper environmental reviews and a proper process to ensure that consultation is at the forefront of any type of development and planning. Having Inuit involved is key to ensuring success both for Canada and for the people, such as Inuit, who reside along those shipping lanes and ports. Port-to-port infrastructure is important. We want to ensure we have that ability here in Canada, and also that Inuit have a major role in developing that.

When it comes to the foreign threats backdrop, of course, when any type of infrastructure is developed, there is going to be interest, and there will be for sure. We are seeing that through time. For us to feel safe and secure, we need to ensure we are playing this role with Canada, and any type of threat would certainly jeopardize any type of operation. It is not a life-or-death thing, but we want to ensure there is health and safety along the way, as I said, not just for the people but also for the environment, which is really key.

[Mario Simard, Bloc, Jonquière, QC]

Ms. Kennedy, would you like to answer this question as well?

[Sheena Kennedy]

The only thing I would add is that when you speak about the threat to sovereignty and the relationship with critical minerals, that is something Canada and Greenland share. If, through your consideration of this policy, you chose to engage more with Greenland on some of these shared priorities, that would be of interest on the other side of Baffin Bay as well as on this side.

I would echo that the creation of the enabling infrastructure to allow for the development of mining in the Arctic is also a shipping issue, because everything that goes out from the Arctic requires trans-Arctic shipping. That is something to take quite seriously as we imagine what the impacts of mining development will be through the Arctic.