How to Handle Land Conflicts on Reindeer Pastures

To address land-use conflicts between reindeer herding and mineral extraction, new methods are needed to provide a better basis for individual decisions. The decision-making process also needs to be reviewed. The interdisciplinary ScalingUp project proposes a series of measures focused on a sustainable and equitable climate transition.

Many of the metals and raw materials needed for batteries, wind turbines, and solar cells—among other things—that are essential for the transition to a fossil-free industry are found in reindeer grazing lands. In the ScalingUp project, researchers demonstrate how decisions regarding permit applications for new mining operations and the expansion of existing mines can achieve greater predictability, legitimacy, and sustainability if the Sámi communities affected by these decisions are given better opportunities to participate in social planning. The group includes researchers in law, political science, ethnology, cultural geography, landscape planning, and ore geology.

The researchers emphasize that, as an indigenous people, the Sámi have specific rights under international law that Sweden has committed to uphold. They call for institutional changes so that Sweden can live up to its commitments. Institutional changes encompass both formal institutions—such as legislation and decision-making processes—and informal institutions, such as norms, knowledge, the working methods of government agencies, and how stakeholders actually interact.

International law sets higher standards

“International law has evolved. It now sets higher standards than before regarding the Sámi communities’ influence, particularly over land issues,” says Christina Allard, professor of law at Luleå University of Technology and project director.

According to several UN human rights conventions, as well as the UN Declaration on the Rights of Indigenous Peoples (UNDRIP), indigenous peoples have the right to influence projects that affect their lands, resources, and culture. This means being consulted early in a matter and on an ongoing basis throughout the decision-making process, with the principle of free, prior, and informed consent (FPIC) applied—that is, consultations aimed at obtaining consent from the affected Sámi community. Consent must always be given without coercion, pressure, threats, or manipulation.

The project has been carried out in close collaboration with relevant authorities and advocacy groups—at the regional, local, and national levels—as well as with four Sámi communities in the Gällivare and Malå areas. The researchers also undertook a study trip to New Zealand, which is often considered a pioneer in the coexistence of indigenous peoples and the majority population.

On August 18, they presented their conclusions at an open seminar at Vetenskapens hus in Luleå.

Tom Mels, Professor of Human Geography, Uppsala University – Campus Gotland; Christina Allard, Professor of Law; Ingrid Sarlöv Herlin, Professor of Landscape Architecture, Swedish University of Agricultural Sciences (SLU); Karin Beland Lindahl, Professor of Political Science; Per Sandström, Associate Professor, Department of Forest Resource Management, Swedish University of Agricultural Sciences (SLU).

Understanding the Conditions of Reindeer Herding

Researchers are calling for a common knowledge base among those involved in decision-making processes. Government agencies and industry need to gain a better understanding of the conditions of reindeer herding, Sámi rights, and how various activities impact the landscape over time. This knowledge includes the reindeer herders’ traditional knowledge, árbediehtu. Árbediehtu refers both to the practical knowledge of reading the landscape and understanding how reindeer react under different conditions, as well as to a moral approach to nature. This knowledge is passed down, but it also requires that the reindeer herder personally navigate the landscape to understand the context. Árbediehtu is not static but adapts to changes occurring in the landscape.

“Reindeer herders feel that their counterparts lack a basic understanding of reindeer herding.” But it’s not just a matter of a lack of knowledge; it’s about what knowledge is recognized as legitimate and relevant in the negotiation process,” says Kajsa Kuoljok, an ethnologist at the Ájtte Museum and a postdoctoral researcher at SLU.

Together with Tom Mels, a professor of cultural geography and landscape researcher at Uppsala University/Campus Gotland, she has conducted interviews with members of the Gällivare, Báste, Ran, and Malå Sámi communities.

“Planning for activities such as mining, wind farms, and tourism is often highly sectoral. We need to look at how these different activities collectively impact the landscape. We must also understand that reindeer herding takes place over vast areas. Activities in one part of the landscape will affect conditions even in a completely different part of it,” explains Tom Mels.

Better Technical Support

Through better technical support, the researchers aim to provide the Sámi people and authorities with greater opportunities to anticipate and communicate the consequences of competing activities. Tobias Bauer is a professor of ore geology at Luleå University of Technology. He has further developed a geographic information system (GIS) for reindeer herders and authorities, called RenGIS++. A GIS is a computer-based system that collects, stores, processes, and presents geographic data, such as geology, topography, and infrastructure. RenGIS++ also includes data on, among other things, reindeer migration routes, grazing area divisions, and árbediehtu.

“RenGIS++ has a simpler interface than its predecessor. It runs on an open platform, which makes it easier to share data between Sámi communities and other stakeholders.” Interested Sámi communities are welcome to contact me if they’d like a tour of the system,” says Tobias Bauer.

Furthermore, the researchers believe that the Sámi communities need better access to administrative support as well as technical, scientific, and legal expertise.

Last but not least, the decision-making process for permit applications must be reviewed so that the Sámi communities can participate on an equal footing. This requires that the Sámi communities be involved early in the process and be able to contribute their knowledge as the basis for decision-making is being developed, and that consultation takes place on an ongoing basis. Representatives of the Sámi communities should also receive financial compensation for their participation in the process.

One of the attendees was Lotta Lauritz, corporate lawyer at LKAB.

“The project addresses some of the most difficult issues surrounding the establishment of new operations. All stakeholders need to find ways to engage in a fact-based dialogue. There is no point in digging in our heels; we need to find ways forward,” she says.

• The ScalingUp Project Page