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New Zealand Yearbook of International Law |
Last Updated: 7 February 2019
GLOBAL PRINCIPLES, UNIVERSAL VALUES AND THE ATS:
REGIME INTEGRITY AS ANTARCTIC SECURITY
Duncan
French[∗]
I. INTRODUCTION
The purpose of this paper is to consider the relationship between the
Antarctic Treaty System (ATS)[1] and
the application and relevance of certain global principles and values. The
positioning of the ATS within international law, international
governance and
global policy-making is, of course, a well-trodden road. Such discussions range
from a narrow positivist focus on
rules (i.e. on inter-relationships between the
various Antarctic conventions and other international
norms),[2] a broader consideration of
competing regimes (most famously between the ATS and the UN in the
1980s)[3] and, perhaps of more recent
origin, inter-linkages between global issues and regional challenges (one might
mention, for instance,
climate change and bioprospecting, both of which are
currently subject to international negotiations, as well as raising specific
regional considerations).[4]
This
paper, whilst utilising these connections, takes concurrently both a broader and
narrower approach to its subject-matter. Narrower
– because it focuses
exclusively upon a number of select principles, rather than international law
and global policy at the
systemic level. And broader – because it ranges
beyond legal rules to consider also normative values and other extra-legal
considerations; what this paper refers to as certain meta-principles. The
meta-principles selected are global justice, sustainable
development and, as
discrete notions thereof, conservation and sustainability. Due to limitations
of space, this paper will not
detail the application and relevance of these
meta-principles to Antarctica, but rather provides the generic framework which
will
then be used, at a subsequent point, to take the analysis of these
meta-principles further. However, to give some sense of how this
might work,
there is a brief discussion of global justice and its putative relevance to the
Antarctic Treaty System (ATS) –
this particular theme being chosen to
highlight both the relevance and the complexity of the interaction
between an – arguably amorphous – principle and a designated
political regime.
II. META-PRINCIPLES AND ANTARCTICA: DEMARCATING THE
SCOPE
It might be worth noting what the paper will not be saying. First,
the paper will not be saying that these principles should displace
or dislodge
the Antarctic-specific principles that have guided the ATS – very
successfully – since its inception. The
exclusively peaceful nature of the
Antarctic,[5] its
demilitarization,[6] its principal
– though perhaps no long singular – focus on
science[7] and, since the 1991 Madrid
Protocol to the 1959 Antarctic
Treaty,[8] its designation as a
‘natural reserve, devoted to peace and
science.’[9] Second, the paper
will not assert that these meta-principles can be applied deterministically, as
if they should somehow prescribe
the future direction of the ATS. As I seek to
show, notions such as sustainability and justice have a great deal to say about
the
operation of the ATS, but that is a long way from suggesting that they
should be used unquestionably or in a way which pre-ordains
political action and
normative choice. Related to this, third, the paper does not even presume to go
so far as to say that any of
these principles have acquired any form of
objective normative status that demands compliance by regional regimes.
Questions of legal
status of such principles are, of course, important, but
arguably secondary to their normative impact.
Nor, fourth, will the paper be
saying that these principles can be understood atomistically; that each
principle can be separated
into neat and discrete elements, with each element
being used to subject the current Antarctic regime to detailed scrutiny. As I
will note below, there is (still) a high degree of conceptual uncertainty behind
many of these principles. And though that is part
of their conceptual charm and
political strength, it also prevents any kind of systematic approach, whereby
the ATS can be assessed
against the minutiae of each and every principle. And
finally fifth, the paper is not – by discussing global values –
suggesting a move away from Antarctic exceptionalism to something significantly
more generic, and perhaps normatively blander. This
is what Alan Hemmings has
referred to as ‘the alternative of Antarctica being passively driven by
global norms, despite these
being manifestly problematical in Antarctica because
they have evolved in different parts of the
world’.[10] I agree; the
physical, biological and political uniqueness of Antarctica cannot be submerged
within the global mass as if the continent’s
differences can purely be put
down to simply being a slightly different – perhaps more extreme –
variant of what exists
elsewhere.
However, there is a distinction between
making Antarctica part of the ‘general’ and divorcing the
‘general’
completely from Antarctica. As a politico-legal
enterprise, the ATS as a body is capable of institutional learning and the
Antarctic
Treaty Consultative Parties (ATCPs), especially, as its guardians,
should equally be able – both individually and corporately
– to
acknowledge the relevance of autonomous principles in shaping their political
and national positions. This is not to say
that I do not believe that there are
reasonably cogent arguments to revisit the structural position and operational
functionality
of the ATS as an over-arching polar regime, and the Antarctic
Treaty Consultative Meetings (ATCMs) as its principal manifestation
but
probably, as with most commentators, I suspect that the ATS is a long way away
from being superseded by anything more radical,
or should that be more mundane.
Moreover, and purely as an aside, is there not a real risk of picking apart the
current regime for
the speculative benefits of something better?
So what am I
saying? My principal argument is that notwithstanding significant ambiguity
within the three meta-principles identified,
each of these principles has a
pertinence both to the ideals underlying, as well as the operation of, the ATS.
These principles highlight
certain key themes, which the ATCPs, in particular,
should bear in mind in fulfilling their legal commitments under the
various ATS treaties, as well as their political responsibilities as
global trustees of the Antarctic environment. These themes include, but are not
limited to, the importance of
maintaining legitimacy in how decision-making
occurs, achieving perceptibly fair outcomes as a consequence, continuing to
prioritise
environmental protection and nature conservation over human activity,
and ensuring extensive participation of a wide range of actors,
both state- and
non-state in character, within the ATS. This may seem a list of the rather
obvious, and to some extent it is; but
it is still nevertheless important to
enquire, for instance, whether and to what extent the institutions of the ATS
act fairly, transparently
and legitimately in the conduct of their business, or
whether and to what extent they prioritise environmental protection in the
way
that they should. This is not a move away from Antarctic exceptionalism, but
recognition that there are a range of core “values”
– for want
of a better term – that we have begun to expect to see at the
international level, and which should, to a
greater or lesser extent, be
embedded within the diversity of global organisational forms, including the ATS.
Some of this may be
phrased as incorporating aspects of good governance within
the ATS, but this is only one aspect of a much broader range of
considerations.
Moreover, the paper will conclude that in managing future
challenges in Antarctica, reliance on universal norms and principles, however
putative many of these principles currently are, can ‘cement’ the
role of regional regimes, such as the ATS, within the
context of the global
normative framework. This need for contextualising both the regional and the
global will become particularly
significant as the challenges facing the
Antarctic are both momentous and diverse, such as the consequences of climate
change, revisiting
the question of mining, the likelihood (at some point) of
commercial bioprospecting and the question of how to better regulate non-State
(including both non-Party and non-Party non-State) activity in Antarctica, most
notably tourism. Nevertheless, the relevance of such
principles is not that they
somehow reflect ipso facto symbolic truths, but that they can frame a
political discourse in which Antarctic governance can concurrently be both
contested and
defended within the wider international community. Such principles
might also influence the policy, political, and ultimately normative,
debate;
not in a deterministic manner, but in a way which shapes the choices that have
to be made. This will only occur, however,
when the necessary political will
exists. Moreover, though the ATS may not be free from (valid) criticism or be
immutable from political
pressure to change (both from within, but more so
without), it is at least not unreasonable to argue that the ATS will be better
able to withstand alternative claims to both its legality and its legitimacy if
it is seen to be acting in accordance with, rather
than contrary to, certain
basic global precepts.
III. META-PRINCIPLES: MAKING CONNECTIONS BETWEEN THE GLOBAL AND THE REGIONAL
A few words about meta-principles may be useful at this
point.[11] A meta-principle is
defined here as referring to both its universal geographical scope and, equally
significant, the overarching
conceptual reach of its subject-matter. A
meta-principle is also arguably characterised by a high degree of ambiguity in
content
and meaning. An alternative perspective is to view such ideas as what
one commentator has called ‘contestable concepts’.
‘Contestable concepts are complex and normative, and they have two levels
of ‘meaning’. The first level is unitary
but vague; it can often be
expressed in a short definition...Often there will be a number of such
definitions available; but neither
this nor their vagueness makes such concepts
meaningless or useless’.[12]
Either way, these principles reflect a macro-understanding of the world,
unrelated (at least in the first instance) to the specifics
of any particular
context.
Global justice and sustainable development are, in particular,
examples par excellence of a meta-principle; seemingly all-encompassing
in nature and scale, and equally characteristic, apparently capable of
incorporating
an impossibly broad array of
issues.[13] Moreover, the issues
that such principles incorporate are themselves increasingly global in nature;
‘[t]he threats arising
from global integration are nothing new for the
countries of Africa, Asia and Latin America...In recent years, however, the
North
has been discovering its own vulnerability – an experience it had
previously been spared. Profits can no longer be had at zero
cost, as the
societies of the North begin to be affected by the collateral damage of
globalization’. [14] In light
of the human challenges increasingly facing the polar regions, and specifically
the advent of its growing commercialisation,
one can easily add Antarctica to
this list.
It is, of course, axiomatic that meta-principles such as these are
subject to the obvious criticism that they are inherently malleable
and that
they can mean virtually anything competing political actors want them to. Even
for proponents of such principles, they are
confronted with the perennial issue
as to how one is to delineate and delimit their precise contours? As Jacobs goes
on to note,
‘For common political concepts, the battle is neither over the
first level of meaning nor indeed whether one accepts the normative
goal. Almost
everyone is in favour of democracy, liberty, and social justice; the debate is
over alternative conceptions of what
they mean, at the second
level’.[15]
However,
ambiguity per se should not lead us to discard such principles. Political
discourse is awash with the penumbra of uncertainty that surrounds many
of its
key ideas. Indeed, it is this uncertainty, it might be argued, which is often
intrinsic to flexible political negotiation
within a state-centric system; the
open-textured character of such principles naturally lends itself to, as well as
simultaneously
prompts accusations of, conceptual indeterminacy. Nevertheless,
the indeterminacy of such principles often has a useful role to play
in
maintaining the dynamism of political dialogue, even if such principles cannot
of themselves – indeed, normatively should
not – govern the actual
outcome reached. And in this regard, the ATS as a model of international
governance is neither immune
from, nor should be viewed as not being able to
benefit from, this wider discourse. As noted above, the ATS cannot be divorced
completely
from the ‘general’. To say otherwise, might suggest a
rather-closed system, incapable or unwilling to adapt. And notwithstanding
criticism of the present structures and processes, it would be difficult to
argue that the ATS is quite so hermeneutically sealed
in approach that it can
rightly ignore the broader considerations of international
society.
Nevertheless, how far such principles have influenced either
Antarctic, or indeed general, politics is debatable. For some, this is
evidence
that a focus on principles is an overly-idealistic understanding of the reality
of political life. However, there is a balance
to be struck; while national
interests will undoubtedly take primacy in international debate, this should not
necessarily lead to
a position which requires us to exclude a priori the
moral perspectives and ethical values which principles introduce within, and
bring to, political deliberations. Indeed, to suggest
that such principles are
by-and-large irrelevant to the ‘proper’ debate, indicates a rather
poor reflection on, and most
certainly a pessimistic view of, the ability of
States to engage with overarching ideals in seeking to negotiate international
public
goods and other societal goals. Indeed, where one is seeking to espouse
some notion of the ‘common’ or ‘global’
good, as with
the stewardship of the Antarctic, it might be thought peculiar – certainly
when looking from the outside in –
if such principles did not have a role
to play. In addition, in connection with regional regimes, the inclusion of such
principles
can have the additional, legitimising, function of vocalising the
community interest. Thus, notwithstanding the inevitable indeterminacy
surrounding such principles, their utility in being able to bring a distinctive
dimension to international negotiations – though
neither unquestioned nor
unquestionable – should not be underestimated, either.
IV. GLOBAL JUSTICE AND ANTARCTICA: THE OVERARCHING IMPERATIVE
OF FAIRNESS
The three principles chosen – global justice, sustainable development
and conservation and sustainability – are all extremely
pertinent to the
Antarctic debate, even if the extent of their relevance is not
immediately apparent. Due to limitations of space, consideration in this paper
is restricted to a brief
discussion of global justice, first because as a
concept it is significant in and of itself and second, because it is an
excellent
example of how meta-principles might operate within this context.
Moreover, out of the three, global justice seems the most remote
from the
Antarctic debate. Indeed, it is an idea that contains so much indeterminacy that
there must be an overarching question as
to what it means,
generally.[16] There are two facets
to global justice which seem to me clearly apposite to Antarctica. The first is
the close correlation between
justice and fairness; and the extent to which the
achievement of that which is perceived to be fair (and thus just) is dependent
upon a seamless combination of both the existence of a legitimate deliberative
process and the fairness of consequent outcomes reached.
The second ties in with
the fairness of the outcome and concerns the use (seen in some quarters as
potential ‘abuse’)
of Antarctic resources and the extent to which
the ATCP de facto control of these resources means that the
‘justice’ question at the global level has never truly been
answered. In other
words, a rather old-fashioned question of allocation of
resources and the economic redistribution of benefits amongst all States.
The paper limits itself to the briefest of remarks on this second
issue.
Thomas Franck, in his work on fairness, has highlighted the importance
of both process and outcome in creating a perceptibly fair
situation.[17] For the ATS, this is
a question of the first-order, going to the heart of its very existence. Despite
the political and legal ingenuity
of Article IV of the Antarctic Treaty, whether
the Antarctic Treaty and the ATS more broadly can be considered legitimate and
fair
is a matter that pervades the entire discourse. This is never more acute
than when focused upon the supremely contentious matter
of the future
distribution of Antarctic natural resources. Franck makes this link plain;
‘[t]he stewardship of Antarctica’s
resources thus appears to be in
the hands of a small proportion of states administering them for the benefit of
the entire international
community. It remains to be seen whether this
arrangement will be challenged, on the one hand by a revival of dormant claims
to sovereignty,
and on the other by [common heritage]-based claims to universal
shareholding’.[18] Of course,
it was the claimed inequity in the perceived ATCP carve-up of Antarctic mineral
resources that was one of the principal
causes for the demise of the 1988
Convention on the Regulation of Antarctic Mineral Resource Activities
(CRAMRA),[19] and resulted in its
replacement by the 1991 Environmental Protocol. In the absence of commercial
mining, the ‘equity’
of the international community would be best
met – or at least assuaged – by a focus upon environmental
preservation.
This was achieved by equity being refocused onto viewing
Antarctica as non-commercialised, unspoiled, ‘land of science’
where
its wilderness qualities (an arguably unfortunately under-instrumentalised
concept in the ATS[20]) would play a
greater role.
However, the issue of commercial mining has never really
disappeared and continues to be the most obvious ‘equitable’
challenge facing the ATS.[21]
Whether the issue now arises because of a consensus to suspend the
moratorium,[22] a unilateral
withdrawal from it, or the complete breakdown of the Protocol in this regard,
the effect would likely be the same, namely
a re-emergence of the curious
amalgam of political, economic and principled arguments which surround the
topic. But regardless of
how the moratorium might come to an end – and as
aside it is worth recalling that the Protocol’s provision on this issue
was a masterly example of appearing to preclude mining indefinitely, whilst in
reality doing nothing of the kind – the effect
of such a shift in
Antarctic affairs would be truly devastating.
Notwithstanding the enormity
of the mineral resource issue, possibly of more immediate concern are the
environmental and equity issues
which arise around the possibility of commercial
bioprospecting. Though action on the part of the ATCM has been slow, many ATCPs
at least recognise the complexity and seriousness of the matter. As Chile noted
in 2009, ‘[w]hile a substantial mass of information
has been introduced by
a number of Consultative Parties, the UN University, IUCN, ASOC and other
sources, at successive ATCMs the
debate has not been focused or aimed at a
serious political consideration of a matter which probably represents the most
serious
challenge to the integrity, the nature and the relevance of the
Antarctic Treaty System’. [23]
Moreover, as Hemmings notes, talking generally about these ‘newer’
issues, the political denouement seen over minerals
is unlikely to be replicated
in quite the same way; ‘[t]hen, at least, the ATS was elaborating a system
to regulate the activity.
Intention, norms and likely mechanism were clear. With
the ATS now reluctant to develop new instruments, or even legally binding
mechanisms within existing instruments, the rate limiting step is often
technical capacity and wealth, which is less amenable to
resolution through
diplomatic negotiation’.[24]
There must be a significant element of truth in this, though one should also not
ignore the moral claim of non-parties.
Of course, as with mining,
bioprospecting is not just about regulating access (much easier when one has
territorial sovereignty it
must be said), there is also the issue of ensuring
fair and equitable rewards from any benefits derived. Of course, what might be
considered fair and equitable in the context of national bioprospecting takes on
a whole different complexion when considered in
the context of areas outside
national jurisdiction, be that on land or in the high seas, both of which would
have significant implications
for the ATS. Interestingly, Franck in the section
of his work on fairness in which he discusses Antarctica seems not to
acknowledge
the pivotal significance of benefit-sharing, in his case with
particular reference to Antarctic mining. Though he notes that the
ATS,
post-CRAMRA, creates a regime ‘in which, in effect, the most active
participants recognize an obligation to preserve and
protect the common area for
the benefit of all, regulating the harvesting of renewable resources and
prohibiting the exploitation
of non-renewable
ones’,[25] the manifest
unfairness of the unequal distribution of benefits is entirely ignored. Perhaps
Franck was persuaded by the conservationist
ethos of the Protocol, and a belief
therefore that the issue of the distribution of benefits was a matter that died
with CRAMRA.
But this is to ignore not only that polar mining has not gone away
as an item on commercial agendas, but that unfairness in the distribution
of
benefits can also arise with the occurrence of new issues, such as
bioprospecting. And if these concerns become reality, so will
the dormant
demands for equity, especially from the global South.
Perversely,
notwithstanding the enormous negative spiral that claims for resource equity
will place on the Antarctic Treaty System,
it might be that these very claims to
equity will also politically inhibit such activity from occurring in the first
place. The current
absence of protest from non-parties on the question of the
legitimacy of the ATS would be completely destroyed if any form of significant
commercial activity were to begin in Antarctica, particularly that which was
generated from the extraction of its natural resources
(the rights under CCAMLR
notwithstanding, which are better viewed as the exercise of general rights under
the law of the sea). Though
non-parties have accepted the general tenor of the
current environmental focus of the ATS, there must still be a sense that they
view the Protocol as a second-best option, particularly if the ATCPs were ever
decide to recommence commercial mining activity. For
proponents of an
ecologically-preserved Antarctica, therefore, though claims to equity might
prove rather strange bed-fellows with
environmental conservation, politically
their combined impact may nevertheless be sufficient to encourage the ATCPs to
maintain the
status quo, perhaps even if the inclination of some of them
in the future will be to reverse the moratorium.
V. CONCLUSION
Thus, to conclude, though there is a strong suggestion, as evidenced by
the discussion of global justice above, that meta-principles
can be given effect
within the ATS, this should not be taken to suggest that these principles are
now somehow fully operational within
the ATS. It is certainly the case that
despite notable strengths, the current rules and processes in place are far from
perfect.
The rather slow response of the ATCMs to tackling
tourism,[26] the increasing concerns
over the limitations in environmental regulation within the Madrid
Protocol’s Annexes and a perception
of growing divergence between the
number of legislative measures being adopted and the rate of implementation
thereof are just three
examples which indicate that the ATCPs need to improve
their regulatory and compliance performance, both individually and collectively,
if they are to incorporate more fully the ideas contained within the three
meta-principles of this wider project, namely sustainable
development and
sustainability and conservation, as well as global justice.
This dichotomy
between rhetoric and aspiration, on the one hand, and political reality, on the
other, has the potential to become
ever more stark as the ATS is confronted with
the scope of the challenges facing Antarctica in the forthcoming decades. These
challenges
are both diverse and significant; they range from the global (ie.
climate change),[27] the commercial
(ie. bioprospecting, tourism) and the political (i.e. questions relating to the
continuing hegemony, particularly,
of the ATCPs).
It must, of course, be
conjecture as to what influence principles such as those identified have had
– and will have –
on how ATCPs tackle these contentious topics.
Certainly, it is almost empirically impossible to test their weight in this
regard.
But that is perhaps not the point; what I am suggesting is that these
principles have a normative value which should be reflected, in some
form, in the ATCM response to the current challenges facing Antarctica.
Moreover, though such principles cannot
displace the underlying values of the
ATS, they can – and arguably should – influence the political
dialogue and remind
the ATCPs, in particular, of some of the underlying themes
that they might bear in mind when fulfilling their legal commitments
under the various ATS treaties, as well as their political
responsibilities as global trustees of the Antarctic environment. This is, in
many ways, an intuitive response to the special position
of the ATCPs; it is
beyond argument that they have a sui generis role, both within the ATS
and, consequently, the international community. But this self-created vision of
the ‘consultative
party’ cannot be without limitation and guide.
Such limitation and guide will inevitably be part formulated by the terms of
the
Antarctic Treaty itself, but part also perhaps by reference to general
principles as a secondary factor. In particular, such
principles can assist in
helping the ATCPs themselves decide how they should act, both as unilateral
actors and as a corporate entity.
Moreover, as such meta-principles are often
taken to reflect broader societal values, if the ATCPS are seen to be
guided by them, it may also have the important consequence of more firmly
entrenching – and thus legitimising –
the ATS within the context of
the global politico-legal framework. Nevertheless, the significance of such
principles is not that
they somehow contain absolute truths, but that they frame
a political discourse in which Antarctic governance can concurrently be
contested, and perhaps also defended, both within the growing ATS membership as
well as within the wider international community,
both governmental and civil
society. In other words, seeking to incorporate notions of conservation and
sustainability, sustainable
development and global justice with the Antarctic
regime will not save Antarctica from the challenges confronting it – it
may
not even be able prevent the overarching question of the political survival
of the ATS from itself eventually resurfacing –
but what it may do is to
provide a general rationale to the particular conceptual foundations of the
regime. In that sense, this
recourse to general principle within the ATS would
arguably assist in its long-term integrity or, in the words of the colloquium
in
which this paper was first presented, ‘regime security’. Or, in the
words of the 2009 ATCM XXXII Washington Ministerial
Declaration, it would help
the ATCPs to live up to their commitment to ‘continue and extend for
the benefit of all humankind their cooperation established in the Treaty and
in the Treaty system over the last fifty
years’.[28]
This, of
course, demands political will, especially from the lead actors. But if the
abstract nature of ideals, values and principles
does little to motivate them,
perhaps the self-interest of protecting their dominant position in Antarctic
affairs (whether they
expressly acknowledge they possess this or not) will.
Significantly, such a position only possesses legitimacy so long as it is
perceived
as valid and recognised as such by others. Meta-principles are
purposively idealistic, but to the extent that they also might solidify
the
status of the ATCPs as Antarctica’s trustees and the ATS as the
paradigmatic regime, they are also contemporaneously highly
pragmatic and
politically apposite.
[∗] Professor of
International Law, University of Sheffield. This paper develops the
presentation under the same title delivered at
the Colloquium Responding to
Contemporary Challenges and Threats to Antarctic Security: Legal and Policy
Perspectives, held at the School of Law, University of Canterbury, 5-7 July
2009. The author would like to acknowledge the generous support provided
by the
New Zealand Law Foundation which enabled my attendance at this
Colloquium.
[1] The Antarctic
Treaty System refers to the 1959 Antarctic Treaty, opened for signature 1
December 1959, 402 UNTS 71 (entered into force 23 June 1961), its associated
instruments and relevant measures and decisions adopted under the auspices of
these
instruments.
[2] See for
example Christopher Joyner, Antarctica and the Law of the Sea (1992);
Arthur Watts, International Law and the Antarctic Treaty System
(1992).
[3] See for example Peter
Beck, The International Politics of Antarctica (1986); Peter Beck,
‘Twenty Years On: The UN and the “Question of Antarctica” 1983
– 2003’ (2004) 40
Polar Record
205.
[4] See for example Duncan
French and Karen N Scott, ‘International Legal Implications of Climate
Change for the Polar Regions:
Too Much, Too Little, Too Late?’ [2009] MelbJlIntLaw 33; (2009)
10(2) Melbourne Journal of International Law 631; Alan Hemmings and
Michelle Rogan-Finnemore (eds), Antarctic Bioprospecting
(2005).
[5] 1959 Antarctic
Treaty, art I.
[6]
Ibid.
[7] 1959 Antarctic Treaty,
arts II and III.
[8] 1991
Protocol on Environmental Protection to the Antarctic Treaty, opened for
signature 4 October 1991, 30 ILM 1455 (entered into force 14 January
1998).
[9] 1991 Environmental
Protocol, art 2.
[10] Alan
Hemmings, ‘From the New Geopolitics of Resources to Nantechnology:
Emerging Challenges of Globalism in Antarctica’
(2009) 1 Yearbook of
Polar Law 55.
[11] See Duncan
French, ‘Global Justice and the (Ir)relevance of Indeterminacy’
(2009) 8 Chinese Journal of International Law
593.
[12] See Michael Jacobs,
‘Sustainable Development as a Contested Concept’ in A Dobson (ed),
Fairness and Futurity: Essays on Environmental Sustainability and Social
Justice (1999), 21, 25.
[13]
While conservation and sustainability lack some of the conceptual breadth of the
other two principles, they remain both expansive
in application and sufficiently
indeterminate in scope to justify being included alongside these other –
more obvious –
manifestations of a
meta-principle.
[14] See Wolfgang
Sachs and Tilman Santarius, Fair Future: Resource Conflicts, Security and
Global Justice (2007) 2.
[15]
See Jacobs above n 12, 25.
[16]
See French, above n 11, 598: ‘global justice is one of the most
indiscriminately used ideas in current political and academic
debate’.
[17] Thomas
Franck, Fairness in International Law and Institutions (Oxford, 1995)
8-9.
[18] Ibid
404.
[19] Convention on the
Regulation of Antarctic Mineral Resource Activities, opened for signature 2
June 1988, 27 ILM 868 (not in
force).
[20] See Kees Bastmeijer,
‘Protecting Polar Wilderness: Just a Western Philosophical Idea or a
Useful Concept for Regulating Human
Activities in the Polar Regions’
(2009) 1 Yearbook of Polar Law 73: ‘it is clear that the
international governance systems of both the Arctic and the Antarctic pay very
little attention to
the preservation of the Polar Regions as the last relatively
untouched wildernesses on earth’
(98).
[21] Mining other than for
scientific purposes is prohibited by art 7 of the 1991 Environmental
Protocol.
[22] The moratorium may
be reviewed in 2048 and lifted provided a binding minerals regime is put in its
place (art 25(5) of the 1991 Environmental
Protocol).
[23] Submission of
Chile to ATCM XXXII-CEP XII (2009), Bioprospection: Baselines and
Parameters, WP049 rev.2,
<http://www.ats.aq/documents/ATCM32/wp/ATCM32_wp049_
rev2_e.doc> at 24
November 2009. In similar terms, see also the submission of Belgium et al
to ATCM XXXII-CEP XII (2009), The Antarctic Biological Prospecting
Database, WP001
<http://www.ats.aq/documents/ATCM32/wp/ATCM32_wp001_e.doc>
at 24 November
2009: ‘It is generally acknowledged that bioprospecting is a complex
issue, encompassing scientific and
commercial interests, environmental concerns,
ethics and equity, and considerations relating to international law and policy,
including
the adequacy of the Antarctic Treaty System to fully address
bioprospecting. The ability of the ATCM to deal with the topic of bioprospecting
is to a great degree dependent upon a solid informational basis about the level
of commercial activity, both actual and potential,
relating to Antarctic genetic
resources’. It should be noted that the ATCM has now at least recognised
the issue, by adopting
non-binding Resolution 9 (2009) Collection and Use of
Biological Material,
<http://www.ats.aq/devAS/ats_
meetings_meeting_measure.aspx?lang=e> at
24 November 2009, which points to the relevance of the Antarctic Treaty and the
Madrid
Protocol in regulating bioprospecting; this however would seem to be a
significant way from actually regulating the
matter.
[24] Hemmings, above n
10.
[25] Franck, above n 17,
404.
[26] This remains true,
notwithstanding the recent adoption of Measure 15 (2009) on the Landing of
Passengers from Tourist Vessels
<http://www.ats.aq/devAS/ats_meetings_meeting_measure.
aspx?lang=e> at
24 November 2009, and Resolution 7 (2009) on General Principles of Antarctic
Tourism
<http://www.ats.aq/devAS/ats_meetings_meeting_measure.aspx?lang=e>
at
24 November 2009.
[27] ATCM XXXII
Washington Ministerial Declaration on the Fiftieth Anniversary of the Antarctic
Treaty (6 April 2009) [10]: ‘Confirm
their intention to work together to
better understand changes to the Earth’s climate and to actively seek ways
to address the
effects of climate and environmental change on the Antarctic
environment and dependent and associated
ecosystems’.
[28] Ibid
[11], emphasis added.
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