Measuring the Success of the Canadian Rangers

Measuring the Success of the Canadian Rangers A REPORT PREPARED BY P. WHITNEY LACKENBAUER AND PETER KIKKERT © P. Whitney Lackenbauer and Peter Kikkert, 2020 North American and Arctic Defence and Security Network c/o School for the Study of Canada Trent University Peterborough, Ontario, Canada K9J 7B8 Measuring the Success of the Canadian Rangers / P. Whitney Lackenbauer and Peter Kikkert Issued in electronic and print formats ISBN: 978-1-989811-11-5 (e-book) 978-1-989811-10-8 (print) The authors wish to acknowledge the direct or in-kind support of the following: Department of National Defence Mobilizing Insights in Defence and Security (MINDS) program 1st Canadian Ranger Patrol Group (1 CRPG) Canada Research Chairs program Irving Shipbuilding, Inc. Marine Environmental Observation Prediction and Response Network (MEOPAR) North American and Arctic Defence and Security Network (NAADSN) Polar Knowledge Canada Social Sciences and Humanities Research Council of Canada (SSHRC) 1. Canadian Rangers. 2. 1st Canadian Ranger Patrol Group. 3. Canada—Arctic—resilience. 4. Canada— Arctic—Defence. 5. Canada—Armed Forces—Reserves. 6. Canada—Armed Forces—Indigenous Peo- ples. I. Lackenbauer, P. Whitney, author. II. Kikkert, Peter, author. III. Title: Measuring the Success of the Canadian Rangers Designer: Jennifer Arthur-Lackenbauer Distributed by the North American and Arctic Defence and Security Network (NAADSN) Contents EXECUTIVE SUMMARY i INTRODUCTION ix 1. BACKGROUND AND CONTEXT 1 2. FRAMING THE STUDY: SELECTED POLICY AND OPERATIONAL DOCUMENTS 15 3. MILITARY METRICS OF RANGER SUCCESS 31 4. COMMUNITY DISASTER RESILIENCE AND SEARCH AND RESCUE (SAR) 59 5. THE CANADIAN RANGERS AND COMMUNITY RESILIENCE 77 6. THE CANADIAN RANGERS AND INDIGENOUS RESILIENCE 97 7. THE CANADIAN RANGERS AND INDIVIDUAL RESILIENCE 111 8. FINAL OBSERVATIONS AND NEXT STEPS 133 APPENDIX: DAOD 2020-2, CANADIAN RANGERS 139 NOTES 147 SELECTED BIBLIOGRAPHY 167 PHOTO AND FIGURE CREDITS 170 ABOUT THE AUTHORS 171 EXECUTIVE SUMMARY EXECUTIVE EXECUTIVE SUMMARY This project on “Measuring the Success of the Canadian Rangers: Using Statis- tical Methods, Gender Based Analysis Plus, and Stakeholder Dialogue to Dis- cern Culturally Relevant and Appropriate Metrics” was undertaken pursuant to a Department of National Defence (DND) Defence Engagement Program (DEP) Targeted Engagement grant from 2018-2020. In close cooperation and partnership with 1st Canadian Ranger Patrol Group (1 CRPG), the project team developed a series of metrics and indicators that might be used to evaluate the contributions, successes, and shortcomings of the Canadian Rangers as a component of the Canadian Armed Forces (CAF) Reserves within a Northern Canadian context. The project is closely aligned to commitment #108 in Cana- da’s 2017 defence policy, Strong, Secure, Engaged, to “enhance and expand the training and effectiveness of the Canadian Rangers to improve their functional capabilities within the Canadian Armed Forces.” In this study, our project team systematically analyzed publicly-available reports, media coverage, and academic commentary on the Canadian Rang- ers as well as broader Government of Canada and CAF Arctic priorities. We also drew significant insights from focus group conversations and community-based interviews with a diverse group of Rangers from across 1 CRPG. The report blends descriptive, explanatory narrative (with extensive first-hand quotes providing the insights of Canadian Rangers in their own words) to identify critical success factors and specific, measurable indicators of whether the organization is achieving desired outcomes. We propose metrics and indicators of success that embrace the Canadian Rangers’ distinct forms and terms of CAF service as relevant members of the Defence Team with extensive experience operating in austere conditions who are willing to share their local and traditional knowledge about lands and waters, whilst providing practical support for activities in what many Southern Canadians consider to be “extreme environments.” As members of their local communities, the Rangers also provide a robust and immediate response to the broad spectrum of security and safety issues facing isolated communities. By applying various concepts of resilience (community disaster, community, Indigenous, and individual) to frame Canadian Rangers’ myriad roles (formal and informal), contributions, and benefits, our research confirms that metrics of organizational success must incorporate both DND/CAF priorities as well i Measuring the Success of the Canadian Rangers as contributions to collective and individual resilience that benefit communities, help to meet broader government objectives (at federal, territorial, hamlet, and Indigenous government levels), and promote Crown-Indigenous reconciliation. The concluding chapter provides sugges- tions for proposed next steps. Our metrics reflect academic literature emphasizing that the best way to build collective and individual resilience is through long-term commitments and building from the bottom-up. In some chapters and sections, we employed a conceptual, “top-down” approach to identify indicators based on DND/CAF documents and previous research on Ranger roles, established practices, and relationships. Other parts of this report reflect a “bottom-up,” empirically-driven approach to identifying indicators based upon interviews and focus group discussions with Rangers over the past two years. METRICS OF SUCCESS These measures reflect desired outcomes for the Canadian Rangers and for 1 CRPG, and may serve as key performance indicators to show progress towards specific goals or critical success factors. They reflect strategic, operational, tactical, and social levels. 1. 1 CRPG enjoys strong relationships with other federal departments and agencies, territorial governments (particularly through emergency measures organizations), and Indigenous governments and organizations. 2. At the patrol level, Canadian Rangers have strong relationships with the local hamlet or First Nation government(s), Royal Canadian Mounted Police (RCMP) detachment, volunteer Ground SAR organization, Canadian Coast Guard Auxiliary, Territorial emergency measures organizations, and/or other relevant stakeholders. 3. Observations from Canadian Ranger activities feed into the Canadian Army Lessons Learned Process, particularly on the sustainment and conduct of domestic and sovereignty operations. 4. Canadian Rangers, as a continuous military presence in Arctic and Northern communities, are recognized for their role in supporting, promoting, and facilitating cooperation and collab- oration with domestic partners on a wide range of safety, security, and defence issues. 5. Canadian Rangers are recognized and effectively used as part of Canada’s domain awareness, surveillance, and control capabilities in the Canadian Arctic and North. As the “eyes, ears, and voice” of the CAF in their home areas, Rangers have access to appropriate channels to report on potential threats to or violations of transportation systems, border integrity, and environmental protection in the Arctic and North. 6. Canadian Rangers provide routine and deliberate collection and dissemination of informa- tion to support land, coastal, and inland waterway domain awareness by the CAF and partners. 7. Canadian Ranger patrols are trained and prepared to support deliberate or contingency operations within their area of responsibility (AOR) in all weather conditions. 8. Rangers are consistently engaged in supporting training activities at or staged out of the CAF Arctic Training Centre (CAF ATC) in Resolute Bay, Nunavut. 9. Canadian Ranger advice is sought and accepted during all phases of an exercise in 1 CRPG’s AOR. 10. Canadian Rangers demonstrate interoperability with other CAF elements (such as Immedi- ate Response Units and Arctic Response Company Groups). 11. Canadian Rangers are recognized as force multipliers during CAF deployments into Cana- ii da’s Northern Territories. Measuring the Success of the Canadian Rangers 12. The Canadian Ranger relationship with other CAF units/elements is based on mutual respect that manifests in a productive exchange of skills that supports and strengthens the CAF’s ability to conduct Domestic Operations. Canadian Rangers are appreciated for the roles that they do perform, and are not expected to become clones of the Regular Force or Primary Reserves with combat roles. 13. Canadian Rangers use their training, organization, and/or equipment to facilitate and support non-military regional and community events and activities. 14. 1 CRPG is able to provide support to other federal departments, provincial/territorial authorities, Indigenous governments, associations, and organizations, non-governmental organizations, and scientists in conducting research, monitoring, and domain awareness activities that contribute to Arctic security and resilience. 15. The CAF requests and receives the support of the local Canadian Ranger patrol for all CAF operations and exercises taking place in a patrol’s AOR or adjacent territory. 16. Canadian Rangers maintain an overt presence at strategic locations, such as the Northwest Passage. 17. Canadian Rangers are able to complete NWS patrols and other critical infrastructure security inspections in remote and isolated locations as assigned, when seasonal, weather, and environmental constraints make it safe to do so. 18. Canadian Rangers are recognized for their ability to function effectively on land and water

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