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Legal regulation of ecological tourism in Arctic

Ecological tourism is one of the current trends in development of Arctic. There are several reasons for this: popularity of ecological tourism among modern travelers in general and competitiveness of Arctic travel in a unique and diverse nature; profitability of ecological entrepreneurship; environmental, socio-economic and educational importance of ecological tourism for sustainable development of Arctic. Accordingly, the legal regulation of ecological tourism in Arctic should serve the purpose of ensuring preservation of human capital, protection and reproduction of natural complex of Arctic, efficient use of material, financial and human resources based on modern achievements in the field of ecology and tourism technologies. Entrepreneurial activity in the field of ecological tourism in Arctic is carried out simultaneously in the context of international cooperation and interaction of professional entrepreneurs with local population of Arctic. It is important to consider possible impact of nature protection tourism on lifestyle of people living in Arctic. Indigenous people should have the right to preserve traditional way of life and, at the same time, opportunity to develop modern forms of self-organization, self-regulation. Legal guarantees for development of ecological tourism in Arctic are state support measures federal legislation, state programs, state budget.


Legal policy and regulatory framework for the regulation of ecological tourism in the Arctic
Legal regulation of ecological tourism in Arctic is aimed at entrepreneurial activities to ensure the protection and renewal of natural resources of the Arctic zone through and in course of ecological tourism services' provision -tourism that has environmental protection objectives. Ecological entrepreneurship is one of relatively new and relevant types of entrepreneurial activity in socioeconomic sphere. Entrepreneurship in the field of ecological tourism is a good alternative to other types of economic activity bringing significant profits [1]. Entrepreneurship in framework of ecological tourism in Arctic is one of the priority areas of business. This type of business complies with sustainable development strategy of the Arctic zone of Russian Federation, because ecological tourism has an environmental purpose, serves task of creating financial resources for protection and reproduction of natural complex of Arctic, stimulates entrepreneurial initiative of the indigenous peoples of the Far North. Such emphasis as "environmentally safe tourism activities in Arctic and promotion of Arctic tourism in the national and international markets" was made in the document "Strategy for development of the Arctic zone of Russian Federation and national security for period up to 2020" ratified by the President of the Russian Federation. Chairman of the Government of Russian Federation D.A. Medvedev marked following: "People, citizens and guests of our country should be able to visit protected areas. Ecological tourism is also developing. The structure for ecological tourism must conform to strict requirements, focus on the best world practices, help preserve and develop territory, take into account the interests of people who live there" [2]. It should be noted that Ministry of Economic Development of Russian Federation has received functions in the field of public policy and legal regulation in the field of tourism and tourist activities. A conclusion follows that development of ecological tourism in the Arctic zone of Russian Federation, in fact, reflects the economic orientation of national policy.
The development of environmental entrepreneurship in Arctic today takes place in conditions of, on the one hand, international cooperation, and on the other, co-operating of businessmen with people living in the Arctic zone, primarily with indigenous communities of the Far North, state and municipal government bodies. Legal regulation of ecological tourism in the Arctic zone of Russian Federation should be based on a systematic approach that allows to consider national and international regulatory frameworks of entrepreneurial activities in the field of ecological tourism and features of environmental business practice in harsh conditions of Polarity [3]. Russian legislation and international agreements defining modern standards and rules for entrepreneurship and environmental protection form the normative basis for the legal regulation of business activities for provision of ecological tourism services in Arctic. The concept of ecological tourism is not exposed in current version of Federal Law No. 132-FZ dated 11/24/1996 "On Principles of Tourism Activities in Russian Federation" (January 1, 2019) (Collection of legislation of Russian Federation, N 49, 02.12.1996, ст.5491). Lawmakers do not distinguish nature conservation tourism as a special kind of tourist activity. Thus, special regulation of environmental trips' organization is not provided.
At the same time, ecological tourism is distinguished as an independent type of tourism, along with event, business, cruise, pilgrimage, ski, sanatorium-resort and wellness, in the Strategy for Development of Tourism in Russian Federation until 2020 and in Conception of the Federal Target Program "The development of internal and entrance tourism in Russian Federation (2019-2025)", which was ratified by the order of Government of Russian Federation on May 5, 2018 No. 872-p. Ecological tourism is "a trip with the purpose to observe and be familiar with nature, basic principles of which are the rational use of natural resources and protection of environment". Task of ensuring "environmental management and development of environmentally friendly forms of tourism in places of traditional residence and traditional economic activities of small indigenous people" is marks in the indicated Conception. Development of international tourism, including recreational, scientific, cultural, educational, ecological, is envisaged in the Arctic zone of Russian Federation "in order to protect the environment and ensure environmental safety." A concept of "ecological tourism" has a wide range of scientific interpretations. The row of near terms and concepts exist. These are such concepts as nature tourism, wildlife tourism, adventure tourism, green tourism, sustainable tourism, mild tourism, alternative tourism, and others. Relevant types of nature management are designed to minimize environmental damage [4]. The most promising types of ecological tourism for Arctic are: excursion-ecological, naturally-aesthetic, educational and scientific; sports nature-oriented (floatable, ski, skiing, alpinist, speleological, and recently even yachting, diving, surfing); naturally-events (stay on the territory during the white nights, polar day or night, auroras, bird watching at bird markets, walruses, flight of birds, whales when they approach the coast, spring tundra blooms, etc.); psycho-conditioned (associated with the necessity of making a trip to get new impressions as a result of a change of environment) [5].
Ecological entrepreneurship is developing in conjunction with ecological tourism. "Services for organization of ecological tours" refer to environmental entrepreneurship, besides other types of activity [6]. At the same time, the concept of "ecological tourism" is also considered to entrepreneurial activity and is enshrined in the national standard of Russian Federation "Tourist services. Ecological tourism. General requirements" in an existent normative base. Interestingly, the concept of "ecological tourism" marks in a document as "travel management activities, including all forms of nature tourism, at that basic motivation of tourists are observation and familiarization with nature while striving to preserve it". Confusion between concepts of "travel" and "travel activities" are explained by absence of legal definition of ecological entrepreneurship in federal legislation on environmental protection, as well as in tax and other legislation. In this regard, the idea of including concept of "ecological entrepreneurship" in the Federal Law "On Environmental Protection" deserves support, as well as a special principle securing support for this type of activity from the state [7].
Prospects for development of ecological tourism in the Arctic zone of Russian Federation should be viewed from different angles. Socio-economic benefits from development of ecological tourism consist in fact that it is designed to help solve employment problems and improve its well-being, makes better use of natural, historical and cultural potential of territories, serves goals of fiscal policy and a market economy [8]. Tourism in the Arctic zone of Russia is of great importance from point of view of strengthening Russia's position in the international arena and ensuring sustainable development of region, leveling living standards of areas with the traditional way of life and new districts that are formed around the mining industry [9]. At the same time, polar or arctic tourism in the Arctic zone of Russia has good prospects. Today, nature-oriented trips in the northern regions prevail over culture-oriented.
For Russian businessmen, the Model Law "On the Basics of Ecological Entrepreneurship", adopted by the Inter-Parliamentary Assembly of the CIS Member States on 13.06.2000 (Act. Interparliamentary Assembly of the CIS Member States No. 25,2000), is relevant. According to this Model Law, environmental entrepreneurship should ensure the redistribution of costs for the protection and reproduction of natural resources in such a way that business entities partially carried these costs. The share of environmental activities should be no less than 75 percent of the total annual volume of services / products of entrepreneurs in terms of value.

Tourist's destinations of the Arctic Zone of Russian Federation
Three natural (landscape) zones enter in limits Russian Arctic: the zone of arctic deserts, tundra, forest-tundra (partially and taiga). Each of them has its own characteristics. The zone of the Arctic deserts lies in the north of the Taimyr Peninsula, as well as on numerous islands of Arctic. Relief is represented by table plateaus and mountains. Some islands, for example, the Northern Land archipelago, has in its relief deep valleys forming fjords on the coast of seas. Relief forms are presented by a different glacial morpho sculpture. Seas of the Arctic Ocean, washing islands, are covered with numerous pack-ices grater part of a year. Arctic landscapes are extreme in their natural ecological potential. The annual radiation balance in Russian Arctic sector varies from 20,934 to 41,868 Joule / cm². The highest diffuse radiation, accounting for 76% of the total radiation, is here. The radiation balance has a negative value of 8 months per year. Travelers consider auroras as one of the wonders of Arctic. Many tourists dream of seeing it, arriving in Severodvinsk, Norilsk, Murmansk and Naryan-Mar [10].
Subarctic landscapes can be characterized as uncomfortable for people to stay. Lack of solar energy is characteristic of this area. A cold period lasts more than six months with average daily temperatures below 0° C. A two-month polar night leads to a deficiency of ultraviolet radiation. The increased air humidity, winter blizzards and snowstorms, summer frosts, drizzling rains, fogs, abundance of midges make this area uncomfortable for people and animals. Territories are treeless, marshy. The uniformity of landscape makes it difficult to orientate. Tourists may experience effects of meteorological stress, a decrease in immune properties of body and a strong strain of adaptation systems. In the region, some hazards are identified: contamination with natural focal diseases when contacting representatives of local fauna or eating foods that have not undergone proper cultivation [11]. Organization of ecological trips to circumpolar regions should be accompanied by enhanced measures to ensure safety of tourists. This requires services of search and rescue services, warnings about changes in years, etc. Participants of trips on landscapes of areas of Arctic deserts, tundra, forest-tundra and taiga prefer recreational fishing tours (hunting, fishing, less often picking berries, mushrooms, medicinal plants, and photo hunting). Arctic landscapes respond dynamically to natural or man-made impacts. The biocenoses of Arctic zone are distinguished by simplicity and a slow rate of development. Therefore, biocenotic bonds here are easily broken and slowly restored. Any damage to habitats of fauna and flora is dangerous in this area. Tourism in Arctic is often in conflict with need to protect vulnerable natural complexes of polar regions. When organizing tours to Arctic, it is necessary to take into account low resistance of landscapes to anthropogenic pressures.
Over the twentieth century, a network of permanent settlements, ports, airfields, scientific and meteorological stations, naval and air bases are in the Arctic zone of Russian Federation. Many of them were not claimed, were abandoned after collapse of the USSR. As a result, a huge amount of garbage has accumulated on the coasts of Arctic seas. "General cleaning" of Arctic began in 2010 on the Franz Josef Land Archipelago. During a geoecological survey of 6 islands of archipelago with accumulated environmental damage were discovered. These are such territories as: Alexandra Land Island, Graham Bell Island, Hooker Island, Fr. Hoffmann, Rudolph Island and Heiss Island. A comprehensive program that defined a set of priority measures aimed at preventing development of environmental damage was developed. Over 40 thousand tons of production and consumption wastes were removed from islands archipelagoes of Franz Josef Land and Novaya Zemlya over 5 years of work to eliminate past environmental damage. This scale corresponds to mass of 4 Eiffel Towers or, for example, 5 Palace Bridges in St. Petersburg. Technical reclamation on territory of 270 hectares was carried out -this is approximately about 380 football fields [12].
Problems of Arctic, including preservation of its natural complexes, are of concern to many people. People with a high level of ecological culture formation come on their own holidays in order to participate in purification of coastal areas from accumulated garbage over a century of history. Such volunteer movement is expanding, representatives of other countries join Russians. The Green Arctic Interregional Public Eco-Sociological Organization is an example of promoting environmental education and organizing practices for restoring Arctic ecosystems. The main activities of organization are conduct of environmental actions, public environmental impact assessment, educational and scientific work, organization of interaction with state and local authorities, as well as with indigenous peoples. "Green Arctic" considers development of ecological tourism as the most important direction.
International ecological tourism will continue to develop in territories belonging to List of World Natural Heritage of UNESCO. The International Committee of Polar Heritage is organized by at International Council of Protection of Monuments and Sites. It deals with problems of identifying, preserving and using objects related to monuments of history and culture, reflecting history of development of Arctic and Far North [13]. Great number of natural, material and spiritual monuments have been preserved on territory of Russian Arctic almost in their original form. Four of them are listed in objects of World Heritage of UNESCO. These are Lena Pillars in Yakutia, Wrangel Island in Chukotka, cultural-historical ensemble "Solovki Islands", which united about 200 monuments from III of millennium BC. To present and plateau "Putorana" in the Krasnoyarsk Territory [14].
Specialists recognize Lapland, Pechero-Ilych, Nenets, Gydansky, the Great Arctic Reserve and Ust-Lensky reserves as promising for ecological tourism. Not all employees of state nature reserves unequivocally positively relate to development of tourism in specially protected areas. Travel arrangements require special infrastructure and specially trained rangers.
It should be noted particularly significant projects for tourist development of Arctic. A national park Russian Arctic has been the leader of recent years among ecological tourism destinations within Russian North. It was founded in Arkhangelsk region in 2009. It is the northernmost and largest largest specially protected natural territory of Russia. The protected areas include the northern part of the Northern Island of Novaya Zemlya archipelago with adjacent islands, as well as the northernmost land area of Eurasia -the islands of Franz Josef Land archipelago.
Many tourists want to visit "Russian Arctic". Citizens of more than 70 states have visited park during its entire existence. 10 tourist ships and over a thousand tourists visited the protected areas in The project of reviving natural park "Beringia" is becoming very promising for development of ecological tourism. Ancient Arctic land between Asia and North America received beautiful name "Beringia". It is a biogeographical region and a paleogeographic country that linked northeast Asia and northwestern North America in Quaternary, during global glaciations. It is often compared with Atlantis, and Hyperborea. Width of strait separating in the northern latitudes two largest continents of the planet -Eurasia and America -is only 82 km, depth is not more than 60 m. Ancient elephants, horses, saber-toothed tigers and other animals migrated over Bering channel from Asia to America in search of warmth and food. Scientists still find evidence of a common past in modern flora and fauna on both sides of strait. Whales, beluga whales, walruses are related populations, and polar bears generally make up one family. Many bird species of Chukotka maintain a connection with Alaska. The same species of fish are found in rivers on both sides of channel. Flora is a unique combination of American and Asian plant species. Anthropologists believe that ancient people 25 thousand years ago came to America through an existing isthmus [15]. A Nature and Ethnic Park "Beringia" was created in territory of Chukotka in 1993 with the aim of preserving natural heritage of crossroads of the great migration routes. Every summer park participates in various research projects.
It is difficult to overestimate a geological complex of Berelekhsky cemetery of mammoths as prospects for ecological tourism in Arctic. This complex is located near the village of Chkalovo on a bank of Elon River, which flows into Indigirka River. The largest accumulation of bone remains is a unique monument of ancient fauna. Resource reserve "Kytalyk" gained wide popularity among tourists. This reserve was created to protect the eastern population of Siberian Crane -Siberian White Crane, as well as to ensure development of traditional environmental management of indigenous northern peoples) [16].
Ecological tourism in the Russian Arctic is becoming increasingly popular, causing interest among various categories of travelers. For its development, it is necessary to conduct research on the natural resource potential of individual regions of the Russian Arctic to develop a concept for the development of ecological tourism, take measures to improve the quality and safety of the services provided in the field of nature-oriented tourism, and find effective options for mutual public and private partnership in creating new tourist destinations. All of this, in particular, will help attract the local population to receive and serve tourists who take environmental trips to the Russian Arctic.

Purpose, strategy and socio-cultural aspects of the legal regulation of ecological tourism in the Arctic
The aim of legal regulation of ecological tourism is the sustainable development of Arctic, the preservation of its human and natural capital, the empowerment of future generations of Arctic residents, the effective use of material, financial and human resources based on modern achievements in the field of ecology and tourism technologies. Achieving this goal requires at the same time ensuring rights of the indigenous minorities of the North, Siberia, the Far East and balance of entrepreneurial interests of different subjects of Arctic community: minority peoples of Arctic, border regions of Russian Federation located in the northern, north-western, far-eastern parts of Russia; local authorities in the Arctic zone of Russian Federation; international organizations working in Arctic; enterprises and other participants of economic activity in the Arctic region. Development of ecological tourism in Arctic is determined by state support by legal guarantees in tax, customs, migration, passport and visa, and other areas of legal regulation. So, the Decree of the Government of Russian Federation from March 30, 2018 No. 378  Effective legal regulation of development of ecological tourism in Arctic depends on the trust of locals. [19] Such information is valuable, which was obtained from representatives of the indigenous people of Arctic, about environmental changes, features of fishing and hunting in arctic conditions. A trust is formed under influence of row of factors. The level of education of locals is only one of the factors contributing to trust in modern entrepreneurship. Effective legal regulation and ecological tourism cannot be represented without direct acquaintance and communication with people living in difficult conditions of the Arctic territory. [20] The emergence of partnerships between professional entrepreneurs in the tourism business and the local population is one of the current trends in legal regulation in Arctic. Professional entrepreneurs, arriving in Polarity for organization of ecological tourism and residents who implement entrepreneurial initiative can offer different directions of ecological tourism: from trip through the picturesque park areas of Arctic -to tourism associated with hunting, fishing, gathering, etc. [21] The section for legislative support of socio-economic development of the Arctic zone of the Council for Arctic and Antarctic is organized under the Council of Federation of the Federal Assembly of Russian Federation. [22] The chairman of the Council of the Federation Committee on Constitutional Legislation and State Building leads this section. The main national interests of Russia in Arctic are defined in the Principles of State Policy of the Russian Federation in the Arctic for the period up to 2020 and beyond, approved by Decree of the President of Russian Federation of September 18, 2008No. Pr-1969. These include use of the Arctic zone of Russian Federation as a strategic resource base of Russian Federation; maintenance of the Arctic as a zone of peace and cooperation; saving the unique ecological systems of Arctic; using the Northern Sea Route as the national unified transport communication of Russian Federation in Arctic. These national interests determine the goal, objectives and legal regulation of ecological tourism in Arctic in modern conditions [24]. Natural wealth in Russian Arctic, including flora and fauna, as well as the habitats of rare animals and plants under threat of disappearance, creates opportunities for development of ecological tourism as the most important area of educational activities. [25] According to available data, the share of ecological tourism in the total volume of tourist services is so far only 1%. At the same time, the extreme vulnerability of ecosystem of the Arctic zone of Russian Federation is a serious limitation for its further development [26]. However, rapid development of tourism in the Arctic zone of Russian Federation will contribute to a serious threat to environmental security for whole Arctic region [27]. Scientists warn of hazardous processes and possible negative effects of Arctic tourism's development in general. Such dangers are a decline in quality of ecosystems that entail soil erosion processes, pollution of aquatic environment, deterioration of habitat and reduction of species of wildlife objects, and increased vulnerability of forests from fire [28].

Environmental aspects of legal regulation of ecological tourism in Arctic
Environmental aspects of ecological tourism consist in environmental education, which should be carried out, according to the article 71 of the Federal Law of Russian Federation "On Environmental Protection", not only by public authorities, environmental agencies, public associations, mass media, museums, libraries, educational institutions, culture, sports, etc., but also subjects of tourist activity. The objectives of environmental education are formation of environmental culture in society, education of careful attitude toward nature, and popularization of the rational use of natural resources. These goals are set out in the article 74 of the Federal Law of Russian Federation "On Environmental Protection". Achieving these goals is possible through dissemination of environmental knowledge about ecological safety, information about the state of environment and the use of natural resources. Thus, ecological tourism and related business activities should be aimed primarily at environmental objectives. The task of the state is to promote ecological tourism, related business activities and at the same time prevent its negative impact on natural environment. The Maritime Doctrine of Russian Federation indicates the need to increase importance of tourist and recreational complexes on a coast, located at intersection of leading European tourist routes, organization of cruise and yacht tourism in characterizing the content of national maritime policy applicable to the Baltic Sea. It is necessary to pay attention to it, discussing ecological entrepreneurship in the field of Arctic tourism. So, according to forecasts, cruise tourism in coming years will be widely developed in the Arctic zone of Russian Federation. [29] Researchers mark that the volume of tourist ships in Arctic is growing rapidly. [30] For example, a maritime sector in Canadian Arctic is increasing. Movement of various kinds of pleasure craft, yachts, passenger and cruise ships may intersect with whale concentration zones and affect them, including the impact of ships and acoustic disturbances [31]. Risks associated with an increase of marine sector in Arctic tourism, their assessment, forecasts and necessary measures are discussed by experts and should serve as basis for the legal regulation of ecological tourism in Arctic.
It should be noted that ecological tourism in Russian Arctic has enough competitiveness. It is connected: 1) with plenty of the specially protected natural territories of different categories, their large areas, which allow "to reserve" areas for creation of infrastructure; 2) with a variety of natural conditions, allowing to create a range of environmentally friendly products. For this reason, Arctic tourism is one of the priorities for development of world tourism. Positive aspects of ecological tourism's development in the Arctic zone of Russian Federation are reflected in ability to save population of indigenous people of North, involvement of local population in economic activities, regular additional budget replenishment, consistent with concept of sustainable development. [32].
Important steps in development of ecological tourism in the Arctic zone of Russian Federation are such areas as improving quality of services, supporting development of routes (tourist paths), provided with a necessary infrastructure, etc. Such activities have already been developed in the state program of Republic of Sakha (Yakutia), it is necessary to fix them in federal legislation. An indispensable element of strategy for development of ecological tourism in Arctic is improvement of professional skills of workers in tourism industry, their training in the field of environmental protection and environmental management [33]. For example, this type of ecological tourism, like "friluftsliv", is gaining popularity. "Freeluftsliv" (from Norwegian friluftsliv -fri -free, luft -air, liv -life) -literally means "free air of life". In 1859, Henrik Ibsen published his work "On heights", in which there was a poem about a man, needing solitude with nature, to make clear the ideas about the future. There was a word of "friluftsliv" in this poem. Today, professional guides in the field of "friluftsliv" work in Scandinavia. They can provide simultaneous exploration of nature by travelers and their safety in conditions, for example, of glaciers. Guides in the field of ecological tourism should constantly improve their skills, professionally proficient travel practitioners in conditions of close communication of man with nature [34].
Ecological tourism in the Arctic zone of Russian Federation is becoming increasingly popular, causing interest among various categories of travelers. For its development it seems appropriate: 1) conducting research on natural resource potential of individual regions of the Arctic zone of Russian Federation (including a strategic assessment of ecological potential of territories) to develop a concept for development of ecological tourism; 2) implementation of measures to improve quality and safety of services provided in the field of nature-oriented tourism; 3) search for effective options for mutual public and private partnership in creation of new tourist destinations.
We suppose that all this will help attract local population to receive and serve tourists who take environmental trips to Russian Arctic.
Arctic tourism today is of interest among entrepreneurs and potential travelers, opening new horizons for development of ecological entrepreneurship in the field of tourism in Arctic. In the future, legal regulation of ecological tourism in Arctic should be based on policy of providing entrepreneurial profits and its partial redistribution to maintenance and restoration of nature, conducting scientific research on development of the Arctic zone and, as a result, preserving the unique nature of Polarity.