Methodology

This report draws on a combination of data sources: a review of existing literature, insights gained from expert surveys, and the outcomes of two workshops. The first workshop, held in Waterloo, Ontario in November 2023, focused on academic perspectives. The second, convened in Ottawa, Ontario in June 2024, included representatives from government, academia, and civil society to explore the climate, peace, and security nexus. A follow-up survey of additional experts provided further data on how Canada can improve its capacity to respond to climate change while advancing peace and security.

Executive Summary

Climate change is no longer a distant concern but an urgent reality, with its impact on Canada’s security, economy, and governance set to grow more profound in the decades ahead. While Canadian policy acknowledges climate change as a critical security threat, the current framing remains narrowly focused on military sovereignty, particularly in the Arctic. The “Defence Vision” (Department of National Defence [DND] 2024, p. ix) highlights the urgency of asserting Canada’s sovereignty in the Arctic and northern regions, citing the changing physical and geopolitical landscapes as key drivers of new threats and vulnerabilities. However, while important to address, this perspective oversimplifies the complexities of climate-induced security risks.

The true implications of climate change in the Arctic, for Canada and Canadians, go beyond traditional military concerns. To effectively address these emerging challenges, Canada needs an integrated climate-security strategy that acknowledges the interconnectedness of environmental, economic, security, and social factors. A military-first approach — one that relies primarily on traditional defence capabilities to assert sovereignty and manage risks — cannot address the full range of threats posed by climate change. What is needed instead is a systems-based approach that integrates military, civilian, environmental, and Indigenous expertise to develop coordinated, long-term responses to enable domestic resilience and global leadership on climate security.

This report outlines five core findings that underscore the need for a comprehensive, systems-based approach to climate security, ensuring that Canada is better equipped to navigate the rapidly changing landscape and emerge as a leader in climate resilience and security. The report is intended reading for policymakers, defence planners, civil society organizations, and northern community leaders working at the intersection of climate resilience, security, and governance.

1. Climate Change as a Clear and Present Danger

The impacts of climate change are no longer distant possibilities — they are immediate and undeniable challenges. From increasing natural disasters to the erosion of Arctic infrastructure, Canada’s military is being increasingly called upon for disaster relief and emergency response. As climate change continues to reshape the landscape, it threatens not only national security but the safety and well-being of communities across the country.

• Arctic warming threatens sovereignty, supply chains, and infrastructure.
• Communities across Canada are feeling the growing impact of climate-related events, with the 2023 wildfire season the most destructive on record (Natural Resources Canada 2024).
• Canadian Armed Forces (CAF) deployments for disaster relief have doubled since 2010 — this is unsustainable with current resources.

2. The Limits of a Military-First Approach

Canada’s military is already stretched thin as it takes on a growing role in disaster response, which detracts from its core defence responsibilities. As the climate crisis intensifies, this military-first strategy is proving inadequate. Moreover, there is a lack of coordination among military, civilian, and Indigenous agencies, which impedes the effectiveness of response efforts.

• While the CAF’s training, equipment and logistical expertise have proven essential in disaster response, at heart many of the threats posed by climate change are not military in nature.
• CAF’s growing disaster-response role is pulling resources from core defence.
• Interagency coordination is lacking, and Canada’s policy approach is fragmented — civilian and Indigenous agencies must be integrated.
• Growing maritime traffic in the Arctic will also require civilian infrastructure and create a need for emergency response and search-and-rescue operations.

3. Geopolitical Competition in the Arctic

As the Arctic undergoes rapid changes, the region has become an arena for heightened geopolitical activity. The melting ice is not just reshaping the environment but also creating new opportunities and competition over resources. This increasing “geopolitical noise” in the Arctic is driven in large part by major powers that are looking to exploit the region’s resources and trade routes. To address these complex dynamics, Canada must prioritize diplomatic and cooperative efforts to foster stability in the region.

• A growing military focus and investments across the region make the Arctic more prominent to Canada’s sovereignty.
• Limits of current governance structures are being reached as the existing multilateral order and diplomatic efforts are being eroded. In addition, existing alliances and relationships, such as that between Canada and the United States, are being strained.
• Powerful countries are looking for ways to exert control over the region, leading to potential resource grabs or further territorial disputes.
• The challenges of climate change require a revitalization of cooperation and governance in the region; Canada can demonstrate leadership by working with Indigenous communities.

4. Indigenous Leadership Is Necessary

Indigenous communities possess invaluable knowledge of Arctic conditions and have a critical role to play in addressing climate-induced security challenges. However, current policies often treat Indigenous voices as outside of formal decision-making. Elevating Indigenous leadership is not just a matter of equity; it is essential to building effective, region-specific, climate-security strategies.

• Current policies treat Indigenous voices as secondary rather than critical to the decision-making process.
• Indigenous communities hold critical knowledge of Arctic conditions and northern environmental stability.
• Indigenous-led Arctic security programs (e.g., Canadian Rangers) should be expanded to provide more opportunities for collaboration with federal civilian and military response teams.
• It is important to consider infrastructure development and economic well-being of Indigenous communities.

5. A Made-in-Canada Approach to Climate-Security Strategy

While other nations are grappling with climate-induced security issues, Canada has a unique opportunity to develop a tailored strategy suited to its specific needs and challenges. However, Canada’s security agencies currently operate in silos, making crisis response inefficient. A made-in-Canada approach to Arctic climate security must begin with systems thinking—a holistic method that addresses the complex, interconnected nature of climate, peace, and security challenges by focusing on root causes rather than symptoms.

• Canada cannot rely on a ready-made model from any one country to navigate the security challenges posed by climate change.
• Canada’s security agencies operate in silos, making crisis response inefficient.
• There is a need to develop a climate-informed defence strategy that integrates all sectors and a systems-based approach that provides necessary layers of coordination and engagement across CAF/DND and civilian agencies.

Summary of Recommendations

The workshops and research findings offer valuable insights into the kinds of policies the Canadian government should consider. Together, these recommendations present a comprehensive and proactive approach for integrating climate change into Canada’s national security strategy. By prioritizing climate-responsive security measures, Canada can strengthen resilience to environmental and security risks, particularly in the Arctic and remote communities. The proposed actions focus on enhancing coordination across federal, provincial, and Indigenous governance bodies, investing in climate-resilient infrastructure, expanding Indigenous-led security initiatives, and positioning Canada as a global leader in the diplomacy of climate security. Implementing these recommendations will not only bolster Canada’s climate resilience but also ensure that national security remains aligned with the realities of a changing climate.

1. Build Climate-Resilient Infrastructure

• Upgrade Arctic surveillance capabilities, space-based services, airfield infrastructure, and emergency hubs, as these are multipurpose response supports.
• Consider ways to address the possible challenges of expanded multipurpose infrastructure on local communities, to ensure that those communities are not disrupted.
• Integrate climate-impact assessments into all defence planning.

2. Establish a National Climate-Security Task Force

• Bring together DND, Public Safety Canada, Environment and Climate Change Canada (ECCC), Indigenous, and local leadership to establish a National Climate-Security Task Force.
• Set clear CAF engagement protocols for disaster response.

3. Strengthen Canada’s Leadership in Arctic Security

• Take a leading role in multilateral Arctic governance to prevent undue military escalation.
• Expand joint planning and exercises with climate-security integration.

4. Expand Indigenous-led Security Initiatives

• Increase funding and authority for the Canadian Rangers.
• Support Indigenous-led search-and-rescue (SAR) operations.

5. Shift from Crisis Response to Proactive Security

• Train defence and civilian agencies in joint climate-risk simulations.
• Develop a DND Climate Adaptation Strategy with forecasting models.

While the case for a systems-based, climate-responsive security strategy is clear, putting it into practice will not be straightforward. Challenges include institutional inertia, siloed decision-making within federal agencies, limited coordination between military and civilian bodies, and capacity constraints in some northern communities. Moving beyond short-term crisis response will require not only political will and consistent funding, but also sustained leadership, cross-sector collaboration, and long-term policy alignment.

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