The State of Northern Knowledge in Canada, 2014

Table of contents

• Board of Directors
• Mandate of the Canadian Polar Commission
• Message from the Board
• Introduction
• How This Study was Conducted
• Findings
• Concluding Observations
• Acknowledgements
• References

Board of Directors

The Board of Directors is the governing body of the Canadian Polar Commission. Appointed by Governor in Council, they are responsible to Parliament through the Minister of Aboriginal Affairs and Northern Development. The Board provides direction and delegates authority to the Executive Director, who manages the Commission.

• Nellie J. Cournoyea, (acting chair) Inuvik, Northwest Territories
• Barrie Ford, Kuujjuaq, Quebec
• Martin Fortier, Quebec City, Quebec
• Robert A. Gannicott, Yellowknife, Northwest Territories
• David S. Hik, Edmonton, Alberta
• Rob Huebert, Calgary, Alberta
• Maxim Jean-Louis, Sudbury, Ontario
• John Nightingale, Vancouver, British Columbia
• Darielle Talarico, Whitehorse, Yukon

Mandate of the Canadian Polar Commission

Established in 1991, the Canadian Polar Commission is Canada's primary polar knowledge agency and has responsibility for:

• Monitoring polar knowledge in Canada and around the world;
• Working with Canadian and international institutions to determine scientific and other priorities;
• Encouraging support for Canadian polar research;
• Communicating polar research information to Canadians; and,
• Fostering international cooperation in the advancement of polar knowledge.

In carrying out its mandate the Commission builds and maintains polar knowledge networks, hosts conferences and workshops, publishes information regarding the polar regions, and works closely with other governmental and non-governmental partners to promote and support Canadian polar knowledge.

The Commission serves as Canada's primary point of contact with the circumpolar knowledge community, and is Canada's adhering body to the International Arctic Science Committee (IASC) and the Scientific Committee for Antarctic Research (SCAR). In addition, the Commission maintains liaison with research organizations and institutes throughout the circumpolar world, providing guidance into bi-lateral and multi-lateral scientific projects relevant to Canadian interests.

Message from the Board of Directors

The Canadian Polar Commission's mandate requires it to monitor and report to Canadians on the state of knowledge of the polar regions. The focus of this report is the Canadian North, comprising Yukon, Northwest Territories, Nunavut, Nunavik in northern Quebec, and Nunatsiavut in northern Newfoundland and Labrador.

The purpose of this report is to inform Canadians, especially those living in Canada's North, of the state of northern research so they can better influence its direction. It will also assist decision-makers in identifying and acting on those key knowledge gaps most critical to Northerners and the Canadian North. This report also provides an opportunity to reflect on the praiseworthy work carried out by our nation's community of northern researchers.

Their collective efforts, the calibre of their work, and their accomplishments are a source of national pride. The published research considered in this report is the product of one of the busiest, most fruitful periods of scientific investigation in the history of the Canadian North, the seven-year period starting with International Polar Year in 2007. The knowledge gains of this period raise new questions that will set the course of northern research for years to come. This report examines those gains and some of the pressing knowledge gaps that remain in order to chart that course forward. The timing is opportune, coinciding as it does with a number other inter-related circumstances each important to the future of northern research in Canada. These include:

• Canada's current leadership of the Arctic Council, the dominant international forum for circumpolar cooperation in northern knowledge creation
• Increasing political and economic empowerment of Northerners—exemplified most recently by the devolution of responsibility for lands and resource management to the Government of the NWT— which is gradually shifting control of the research agenda northward
• Recent $85 million revitalization of Canada's network of northern research facilities, better equipping them to meet the varied and complex needs of northern research
• Planned opening in 2017 of the Government of Canada's signature deliverable under its integrated Northern Strategy, the world-class Canadian High Arctic Research Station (CHARS) in Cambridge Bay as a catalyst for the next wave of targeted northern research
• Ongoing advances in Aboriginal self-government taking place throughout the region and their positive effects on government policies, including how research is undertaken
• Heightened northern interest on the part of Canadians

Consistent with Canada's Northern Strategy, this report focuses on the need for science and technology to support sound decision-making. As such, "knowledge to action" research is emphasized, consisting of new knowledge that translates readily into improved policies, programs, interventions and services with a near- to mid-term time horizon. Since Northerners have the greatest vested interest in northern research, the focus of this report is also on knowledge gains and opportunities that align with the priorities of Northerners. This knowledge creation value is illustrated in the research project "vignettes" that are highlighted in this report. These vignettes showcase examples of northern collaboration, involvement and leadership, attributes of northern knowledge creation that the Canadian Polar Commission strongly endorses. In closing, the members of the Board wish to express their gratitude to all those who have contributed over the past 18 months to the creation of this report.

Introduction

Canada's North is undergoing significant change driven by a number of complex factors, some global in nature, others rooted in the dynamics of the region's unique history, and others stemming from the increased empowerment of Aboriginal peoples through settled comprehensive land claims. These changes have overlapping consequences for Northerners, their communities, their cultures, their natural and built environments, the northern economy, and Canada as a nation. This interconnectedness makes it difficult to discuss human health and well-being, for example, without touching on the issues of overcrowded housing, the cost of living, building technologies and the warming of permafrost.

To reflect the interconnected consequences of this change, and in turn, the interdisciplinary responses that are required, the Commission has identified four over-arching functional themes. They are based on a thorough analysis of recurring and inter-related issues and research priorities of Northerners, identified in the literature and by informants, especially those who are based in the North. These themes provide the framework for our analysis and the context for our findings. The four themes are the following:

• Preparing for large-scale resource development—which includes employment and training, understanding and mitigating negative impacts, governance, and mapping and surveys
• Increasing community sustainability—which includes housing, infrastructure, transportation, energy security, food security, supporting local and regional economies, and health care systems
• Strengthening resilience—which includes determinants of health, impacts of socio-economic and cultural change, Inuit suicide, education and cultural preservation, fetal alcohol spectrum disorder, and physical health including tuberculosis, obesity, cancer, and lower respiratory tract infections
• Understanding environmental change—which includes the cryosphere, ocean and marine ecosystems, terrestrial ecosystems, pollutants and contaminants, and monitoring

This report views northern research in terms of what is beneficial to the people who live in the region. The institutional barriers to greater local influence over northern research, while relevant, are systemic issues beyond the scope of this report. Public policy focused research also falls largely outside the scope of this report. Research focused on the humanities, including the epistemological study of traditional or indigenous knowledge systems, is significant and vast, and therefore merits a separate, in-depth investigation. The interview, literature review and validation phases of this study have confirmed to us the crucial value of traditional knowledge to northern research, especially in the environmental and social domains. We have attempted to reflect this in corresponding areas of this report.

Finally, a word must be said about the physical sciences which, especially in the Arctic, are foremost in their contribution to the global understanding of climatic change. Other national and international research and policy agencies are evaluating physical science gains and gaps as part of their own far-reaching priority-setting and research planning activities for the polar regions, including the Canadian North. As a consequence, the physical science aspects of this report concentrate primarily on those environmental research questions with more immediate "knowledge to action" potential for Northerners, especially in terms of personal and community well-being.

In closing, Canada is not unique in the world for its heightened interest in northern knowledge creation. Other nations have embraced the challenge. The result is an unprecedented opportunity for global expansion of northern knowledge. For the sake of focus, this report concentrates primarily on those key knowledge gains and gaps specifically relevant to the Canadian North and its people.

How This Study Was Conducted

Our methodology was developed and the study initiated under the guidance of a five-person advisorycommittee of northern research specialists.^{Footnote 1} This support was supplemented by ongoing consultations with the science advisors of the governments of Yukon, Northwest Territories and Nunavut, as well as other northern experts. The study focuses on knowledge gains primarily during the seven-year period commencing with International Polar Year in 2007. As an initial step, some 114 subject matter experts were engaged in semi-structured interviews, two-thirds of them based in northern Canada. These informants were asked to identify key research gains, gaps and opportunities within their areas of expertise. Their observations were validated and supplemented with peer reviewed and "grey" literature.

The resulting input was analyzed to identify predominant cross-cutting functional themes. The data were screened for key gains, gaps and opportunities, organized by themes areas, then reviewed and prioritized with input from northern research experts in terms of relevance to Northerners and alignment with northern priorities. This report constitutes the Commission's high-level synthesis of the resulting output.

Methodological hurdles include the challenging volume of research implicit in the report's comprehensive scope and time period covered, as well the limited time and staff resources available to undertake this effort. A detailed methodology and subject area summaries will be made available on the Canadian Polar Commission's website as a compendium to this study.

Findings

Acknowledgements

The following people have provided information and feedback for this report.

• Frances Abele – Professor, School of Public Policy and Administration, Carleton University
• Paul Adlakha – Program Sustainability, LOOKNorth Coordinated input from individuals at Air Quality Research Division, Environment Canada
• Peter Allen – Principal, Nexus Group
• Tom Andrews – Territorial Archaeologist, Prince of Wales Northern Heritage Centre
• Andrew Applejohn – Senior Science Advisor, Department of Environment and Natural Resources, Government of the Northwest Territories
• Helen Balanoff – Executive Director, Northwest Territories Literacy Council
• David Barber – Professor, Faculty of Environment, Earth and Resources and Canada Research Chair Tier I, Arctic System Science, University of Manitoba
• Karen Barnes – President, Yukon College
• Elizabeth Beckett – Acting Senior Policy Advisor, Atlantic Canada Opportunities Agency
• Trevor Bell – Professor, Department of Geography, Memorial University
• Paul Berger – Associate Professor, Faculty of Education, Lakehead University
• Fikret Berkes – Distinguished Professor and Canada Research Chair, Natural Resources Institute, University of Manitoba
• Mitch Bloom – Vice President, Policy, Planning, Communications and Northern Projects Management Office, Canadian Northern Economic Development Agency
• Adrian Boyd – Director, Policy, Nunavut Planning Commission
• Birgit Braune – Research Scientist, Ecosystem Health Research, Environment Canada
• Carol Brice-Bennett – Director of Aboriginal Health Programs and Research, Labrador Grenfell Health
• Chris Burn – Professor, Geography and Environmental Studies, Carleton University
• Dollie M. Campbell – Fisheries Biologist, Nunavik Research Centre
• Hector Campbell – Director, Resource, Planning and Regulatory Affairs, Yukon Energy
• Laurie Chan – Full Professor, Department of Biology and Canada Research Chair in Toxicology and Environmental Health, University of Ottawa
• Susan Chatwood – Executive Director, Institute for Circumpolar Health Research
• Graeme Clinton – Principal, Impact Economics
• Marie Clément – Research Scientist, Centre for Fisheries Ecosystems Research, Fisheries and Marine Institute in partnership with the Labrador Institute
• Ken Coates – Professor and Canada Research Chair in Regional Innovation, University of Saskatchewan
• Dawn Conway – Executive Director, Canadian Climate Forum
• Andre Corriveau – Chief Medical Officer, Government of the Northwest Territories
• Greg Cousineau – Senior Transportation Planner, Department of Transportation, Government of the Northwest Territories
• Richard Cracknell – Manager, Technical Services, Public Works & Services, Government of the Northwest Territories
• Kim Crockatt – Executive Director, Nunavut Literacy Council
• Michael Crowe – Executive Director Policy and Partnerships, Meteorological Service of Canada
• Suzanne De La Barre – Professor, Recreation/ Tourism, Vancouver Island University
• Mike Demuth – Glaciology Research Scientist, Natural Resources Canada
• Cindy Dickson – Executive Director, Arctic Athabaskan Council
• Bill Doidge – Director, Nunavik Research Centre
• Guy Doré – Professor, Department of Civil Engineering, Université Laval; Yukon Cold Climate Innovation Centre Natural Sciences and Engineering Research Council Industrial Research Chair in Heavy Load, Climate and Pavement Interaction
• Marianne Douglas – Professor, Earth & Atmospheric Sciences, University of Alberta
• Marlene Doyle – Science Officer, Landscape Science and Technology, Environment Canada
• Lori Duncan – Director, Health and Social Services, Council of Yukon First Nations
• Megan Duncan – Environmental Coordinator, Environmental Public Health, Health Canada
• John England – Professor Emeritus, Department of Earth and Atmospheric Sciences, University of Alberta
• Jo-Anne Falkiner – Director, Policy & Planning, Department of Environment, Government of Nunavut
• Louis Fortier – Professor, Department of Biology, Université Laval
• Watson Fournier – Director General, Kativik Municipal Housing Board
• Erin Freeland Ballantyne – Board Member and Founder, Dechinta Bush University
• Milton Freeman – Professor Emeritus of Anthropology, University of Alberta
• Frédéric Gagné – Director, Municipal Public Works, Kativik Regional Government
• Shari Gearheard – Research Scientist II, National Snow and Ice Data Center and Co-Chair of the Ittaq Heritage and Research Centre of Clyde River, Nunavut
• Peter Geller – President, Association of Canadian Universities for Northern Studies
• Michael Gill – Wildlife Biologist, Northern Conservation Division, Environment Canada
• Christina Goldhar – Environmental Protection Analyst, Nunatsiavut Government
• Neil Greig – Director of Economic Development and Marine Division, Makivik Corporation
• Minnie Grey – Executive Director, Nunavik Regional Board of Health and Social Services
• Kiah Hachey – Policy Analyst - Health, Department of Social and Cultural Development, Nunavut Tunngavik Inc.
• Siu-Ling Han – Unit Head, Eastern Arctic, Canadian Wildlife Service, Environment Canada
• Brendan Hanley – Chief Medical Officer, Government of Yukon
• Chris Hawkins – Vice President, Research, Yukon Research Centre, Yukon College
• Gwen Healey – Executive Director, Qaujigiartiit Health Research Centre
• Perry Heath – Director, Infrastructure Planning, Health & Social Services Department, Government of the Northwest Territories
• Greg Henry – Professor, Biogeography, University of British Columbia
• David Hik – Professor, Department of Biological Sciences, University of Alberta
• Andrew Hodgkins – Researcher, Ph.D., University of Alberta
• Susan Hopkins – Director, Planning, Research & Evaluation, Education, Culture and Employment, Government of the Northwest Territories
• Angela James – Director, Early Childhood & School Services; Education, Culture & Employment, Government of the Northwest Territories
• Amelie Janin – Industrial Research Chair, Yukon Research Centre
• Ric Janowicz – Manager, Hydrology, Government of Yukon
• Lawrence Joe – Director, Lands and Resources, Champagne and Aishihik First Nation
• Margaret Johnston – Professor, School of Outdoor Recreation, Parks & Tourism, Lakehead University Coordinated input from individuals at Joint Health and Social Services, Government of Nunavut
• Julian Kanigan – Section Head, Cumulative Impact Monitoring Program, Aboriginal Affairs and Northern Development Canada
• Cheri Kemp-Long – Senior Project Manager, Headquarters, Iqaluit, Canadian Northern Economic Development Agency
• Malcolm King – Scientific Director, Canadian Institutes of Health Research, Institute of Aboriginal Peoples Health
• Elizabeth Kingston – General Manager, Nunavut Office, NWT & Nunavut Chamber of Mines
• Michelle Kinney – Deputy Minister, Department of Health and Social Development, Nunatsiavut Government
• Sabrina Kinsella – Health Research Analyst, Yukon Government
• Shawn Kitchen – Assistant Deputy Minister, Advanced Education, Yukon Department of Education
• Ingrid Kritsch – Research Director, Gwich'in Social and Cultural Institute
• Susan Kutz – Associate Professor, Ecosystem Public Health, University of Calgary
• Elena Labranche – Assistant to the Director, Public Health Department, Nunavik Regional Board of Health and Social Services
• Caroline Larrivée – Program Coordinator, Built Environment and Northern Environment, Impacts and Adaptation, Ouranos
• Alain Leclair – Geo-mapping for Energy and Minerals Coordinator, Natural Resources Canada
• Olivia Lee – Manager, Infrastructure and Project Management, Municipal and Community Affairs, Government of the Northwest Territories
• Joe Linklater – Chief, Vuntut Gwitchin First Nation
• David Livingstone – Land Use Planner/Biologist, Aboriginal Affairs and Northern Development Canada (former)
• Dave Lough – Deputy Minister of Culture, Recreation and Tourism, Nunatsiavut Government
• Brian Lyall – Implementation Analyst, Nunatsiavut Government
• Bruce MacDonald – Manager, Canadian Wildlife Service, Environment Canada
• Jennifer Macgillivray – Director, Infrastructure Development, Yukon Government
• Jim Martin – Senior Policy Advisor, Priorities and Planning, Tlicho Government
• Humfrey Melling – Research Scientist, Institute of Ocean Sciences, Fisheries and Oceans Canada
• Christine Michel – Research Scientist, Marine Productivity, Arctic Aquatic Research Division, Fisheries and Oceans Canada
• Stephen Mooney – Director, Cold Climate Innovation Centre, Yukon Research Centre, Yukon College
• David Moore – Assistant Director, Pollutants, Inventory and Reporting, Science and Risk Assessment, Environment Canada
• David Muddiman – Masters of Arts in Public Administration Candidate, Carleton University
• Rita Mueller – Assistant Deputy Minister, Education, Culture and Employment, Government of the Northwest Territories
• Mishal Naseer – Regional Planner, Nunavik Marine Region Impact Review Board
• Dave Nightingale – Director, Energy Planning, Industry, Tourism and Investment, Government of the Northwest Territories
• Verdun Noel – Economic Development Advisor, Whitehorse, Canadian Northern Economic Development Agency
• Kevin O'Reilly – Executive Director, Independent Environmental Monitoring Agency Coordinated input from individuals at Ocean, Coastal & River Engineering Section, National Research Council
• Aynslie Ogden – Senior Science Advisor, Yukon Government
• Serge Payer – Associate Director, Transportation, Kativik Regional Government
• Serge Payette – Professor, Department of Biology, Université Laval
• John Percival – Program Manager, Geo-Mapping for Energy and Minerals, Geological Survey of Canada, Natural Resources Canada
• Marc Perreault – Acting Director, Program Delivery, Yukon Housing Corporation
• Filip Petrovic – Science Officer, Aboriginal Affairs and Northern Development Canada
• Annie Popert – Director General, Kativik School Board Coordinated input from individuals at Public Health Agency of Canada
• Seth Reinhart – Manager, Nunavut General Monitoring Plan, Aboriginal Affairs and Northern Development Canada (former)
• Carolyn Relf – Director, Yukon Geological Survey
• John Robson – Manager Design Development, Northwest Territories Housing Corporation
• Thierry Rodon – Northern Sustainable Development Research Chair, Université Laval
• Steve Rose – Director Policy, Planning and Research, Economic Development, Government of Yukon
• Lia Ruttan – Manager of Social Science Research, Aurora Research Institute
• Mark Salvor – Senior Policy Analyst, Industry, Tourism and Investment, Government of the Northwest Territories
• Clint Sawicki – Director, Office of Research Services, Yukon Research Centre, Yukon College
• Pippa Seccombe-Hett – Director, Aurora Research Institute
• Bill Semple – Senior Northern Housing Researcher, Canada Mortgage and Housing Corporation
• Kelland Sewell – Manager, Risk and Policy, Qulliq Energy Corporation
• Tom Sheldon – Director, Environment Division, Nunatsiavut Government
• Jamal Shirley – Manager, Research Design and Policy Development, Nunavut Research Institute
• Manon Simard – Parasitologist, Nunavik Research Centre
• Frédéric Sirois – Policy Analyst, Transport Canada
• Scott Slocombe – Professor, Department of Geography and Environmental Studies, Wilfred Laurier University
• Kent Smedbol – Manager, Ocean and Ecosystem Sciences Division, Fisheries and Oceans Canada
• Sharon Smith – Permafrost Research Scientist, Natural Resources Canada
• Simon Smith – Coordinator, Northern Contaminants Program, Aboriginal Affairs and Northern Development Canada
• Kam So – Corporate Capital Planner, Public Works & Services, Government of the Northwest Territories
• Chris Southcott – Professor, Department of Sociology, Lakehead University
• Matthew Spence – Director General, Northern Projects Management Office, Yellowknife, Canadian Northern Economic Development Agency
• Oana Spinu – Executive Director, Nunavut Broadband Development Corporation
• Marc St-Onge – Senior Research Scientist and Head, Regional Geology, Natural Resources Canada
• Sara Statham – Food Security Project Coordinator, Government of Nunavut
• Arielle Stockdale – Policy Analyst, Nunavut Housing Corporation
• Don Taylor – Professor, Psychology, McGill University
• Frank Tester – Associate Professor, School of Social Work, University of British Columbia
• Mary Ellen Thomas –Senior Research Officer, Nunavut Research Institute
• James Thorbourne – President, Nunatsiavut Group of Companies
• Constantine Tikhonov – Chief, Surveillance and Risk Analysis, Health Canada
• Scott Tomlinson – Coordinator, Northern Contaminants Program, Aboriginal Affairs and Northern Development Canada Coordinated input from individuals at Transport Canada
• Sandra Turner – Corporate Representative, Canada Mortgage and Housing Corporation
• Bob Van Dijken – Director, Circumpolar Relations, Council of Yukon First Nations
• Warwick Vincent – Professor, Department of Biology, Université Laval
• Fiona Walton – Associate Professor, Faculty of Education, University of Prince Edward Island
• Michelle Watkins – Director, Labrador Affairs Office, Government of Newfoundland and Labrador
• Nadine Wells – Aquatic Sciences Biologist, Fisheries and Oceans Canada
• Bill Williams – Institute of Ocean Sciences, Fisheries and Oceans Canada
• Brent Wolfe – Professor, Faculty of Arts, Wilfred Laurier University
• Stephen Wolfe – Research Scientist, Natural Resources Canada
• Michele Wood – Health Researcher, Nunatsiavut Government
• Adel Yassa – Director, Regional and Local Development, Kativik Regional Government
• Paul Zorn – Ecological Integrity Branch, Parks Canada

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