Subnational governments and non-state actors in environmental governance: Japan, Russia, and the Northern fur seal

Abstract

Russia's invasion of Ukraine in 2022 put to test the North Pacific regional governance structure, with environmental cooperation overshadowed by security concerns. In this paper, the central government, subnational and non-state actors' potential in finding ways out of environmental governance crises is explored. The authors turn for possible clues to the Northern fur seal conservation and management regimes, which existed in 1911–40 and 1957–84 and laid the groundwork for marine wildlife conservation and management in the North Pacific, in the century replete with military conflicts and international tension. The focus is on Japan and Russia's subnational and non-state actors (private companies, experts, NGOs and indigenous communities), who have received much less attention than their US and Canadian counterparts. Their roles in negotiation, operation and dismantlement of these regimes, are analyzed in domestic and international contexts by applying Putnam's “two-level game” metaphor. Their motives and tactics, interconnections and clout are examined in the light of both states' domestic and foreign policy goals and constraints, and regional and global trends in environmental governance. The recent multi-actor undertakings for marine mammal conservation and management in Japan and Russia are also explored from the multilevel governance perspective. It is hoped that the current diplomatic deadlock may be overcome by utilizing sub-state and supra-state frameworks and channels for communication.