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National Emergencies: Canada’S Fragile Front Lines

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National Emergencies: Canada’S Fragile Front Lines National Emergencies: Canada’s Fragile Front Lines An Upgrade Strategy Standing Senate Committee on National Security and Defence VOLUME 1 March 2004 MEMBERSHIP 37th Parliament – 3rd Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Deputy Chair And The Honourable Senators: The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Michael A. Meighen The Honourable Jim Munson The Honourable David P. Smith, P.C. *Austin, P.C. (or Rompkey, P.C.) *Lynch-Staunton (or Kinsella) *Ex Officio Members MEMBERSHIP 37th Parliament – 2nd Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Deputy Chair And The Honourable Senators: The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Michael A. Meighen The Honourable David P. Smith, P.C. The Honourable John (Jack) Wiebe *Carstairs, P.C. (or Robichaud, P.C.) *Lynch-Staunton (or Kinsella) *Ex Officio Members DEDICATON Grant Purves Grant Purves joined the Parliamentary Research Branch of the Library of Parliament in 1974. He was assigned to the Committee at its inception in mid-2001 and he worked for it until his passing two years later. Grant was a warm, kind, easy-going person and a wonderful colleague. He approached everything – be it fathering, his work with the Branch, or his reading and research – with a thoroughness and dedication that was respected and appreciated. He was a multifaceted person. He was intellectually curious but also practical, a builder of his home, a scholar and a gentleman. We miss him very much. National Emergencies: Canada’s Fragile Front Lines Table of Contents Preface ............................................................................................... I National Emergencies:..................................................................... 1 We Scramble to Survive ................................................................. 1 An Unready Nation.......................................................................... 2 CHAPTER 1: Threats........................................................................ 5 Facing Up to Reality........................................................................ 6 Acts of God – and the Devil ............................................................ 6 Recommendations ........................................................................ 13 CHAPTER 2: Federal Government Responses............................ 15 OCIPEP ........................................................................................ 15 Conducting the Orchestra ............................................................. 17 Counting on the Canadian Forces ................................................ 20 Canadian Forces Disaster Assistance Response Team (DART).. 21 Health Canada: Why ‘Secret’ Caches?......................................... 22 Funding......................................................................................... 26 Coordinating with Anyone but Themselves?................................. 27 Recommendations ........................................................................ 35 CHAPTER 3: Problems................................................................... 37 Relations Between Federal, Provincial and Territorial Governments .................................................................................................. 37 Neutered OCIPEP......................................................................... 40 Pressure on Municipalities: The Provincial Blockage.................... 42 Disconnects .................................................................................. 43 (a) Flow-Through to First Responders ...................................... 43 (b) Training Standards............................................................... 44 (c) The Role of the Military ........................................................ 44 Recommendations ........................................................................ 47 CHAPTER 4: Making OCIPEP Work .............................................. 49 Strategy......................................................................................... 49 Communications ........................................................................... 49 - i - National Emergencies: Canada’s Fragile Front Lines Intelligence Coordination .............................................................. 55 A New Focus for the Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP)........................................ 57 Information Coordination............................................................... 58 Audits, Lessons Learned, Best Practices ..................................... 59 Recommendations ........................................................................ 63 CHAPTER 5: The Needs of First Responders.............................. 67 Listening to First Responders ....................................................... 68 Getting Intelligence into the Field.................................................. 70 Responding to First Responders .................................................. 70 Reforming the Joint Emergency Preparedness Program (JEPP): 72 Improving Access to Resources and Training .............................. 74 Recommendations ........................................................................ 77 CHAPTER 6: Community Emergency Preparedness Questionnaire ................................................................................. 79 I. Methodology.............................................................................. 79 II. Highlights................................................................................... 81 III. Results - Analysis .............................................................. 82 A. The State of Emergency Preparedness............................. 82 i. Who Does the Job? .................................................... 82 ii. What is an Emergency?.............................................. 84 iii. Perception of Vulnerability.......................................... 84 iv. Level of Preparedness................................................ 85 v. Command and Communications Structure................. 87 vi. Communicating with Citizens...................................... 90 vii. What about supplies to handle emergencies and disasters? ................................................................... 92 B. Federal and Provincial support .......................................... 93 i. Health Canada Emergency Caches ........................... 93 ii. Need for assistance in the event of a CBRN emergency .................................................................................... 95 iii. Provincial Support....................................................... 96 iv. The Federal Role........................................................ 99 a. Joint Emergency Preparedness Program (JEPP) ...... 99 b. Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP) ................ 101 C. Measuring Success.......................................................... 104 - ii- National Emergencies: Canada’s Fragile Front Lines D. Identifying the Need for Improved National Coordination 105 RECOMMENDATIONS: Chapters 1 to 6...................................... 107 APPENDIX 1: Questionnaire On Community Preparedness For An Emergency Or Disaster.......................................................... 115 APPENDIX 2: Cities That Responded ......................................... 121 (ALPHABETICALLY) .................................................................. 121 (BY PROVINCE) ......................................................................... 123 (BY CATEGORIZED SIZE)......................................................... 126 APPENDIX 3: Cities That Did Not Respond ............................... 129 (ALPHABETICALLY) .................................................................. 129 (BY PROVINCE) ......................................................................... 129 (BY CATEGORIZED SIZE)......................................................... 130 APPENDIX 4: Who The Committee Heard From ........................ 133 APPENDIX 5: Exhibits.................................................................. 139 APPENDIX 6: Recommendations of the National Advisory Committee on SARS and Public Health (the Naylor Committee) ....................................................................................................... 143 APPENDIX 7: CBC Radio Broadcast World Report................... 151 APPENDIX 8: CBC Radio One Broadcast The Current ............. 153 APPENDIX 9: Biographies of Committee Members .................. 165 APPENDIX 10: Biographies of Committee Secretariat.............. 179 APPENDIX 11: Order of Reference ............................................. 187 APPENDIX 12: Media Inquiries.................................................... 189 Index .............................................................................................. 191 - iii - National Emergencies: Canada’s Fragile Front Lines Preface The Committee received a great deal of evidence during its examination of Canada’s approach to natural and man-made emergencies. The Members hope that the material we have gathered
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