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Controlling Canada's Arctic Waters: Role of the Canadian Coast Guard

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Controlling Canada's Arctic Waters: Role of the Canadian Coast Guard Senate Sénat CANADA CONTROLLING CANADA’S ARCTIC WATERS: ROLE OF THE CANADIAN COAST GUARD Report of the Standing Senate Committee on Fisheries and Oceans The Honourable Bill Rompkey, P.C., Chair The Honourable Ethel M. Cochrane, Deputy Chair December 2009 Ce rapport est aussi disponible en français Available on the Parliamentary Internet: www.parl.gc.ca (Committee Business — Senate — Reports) 40th Parliament — 2nd Session MEMBERSHIP The Honourable Bill Rompkey, P.C., Chair The Honourable Ethel M. Cochrane, Deputy Chair and The Honourable Senators: James Cowan Dennis Glen Patterson Roméo Dallaire Vivienne Poy Elizabeth Hubley Nancy Greene Raine Michael L. MacDonald Fernand Robichaud, P.C. Fabian Manning Charlie Watt Ex-officio members of the committee: The Honourable Senators James Cowan (or Claudette Tardif) Marjory LeBreton, P.C. (or Gerald J. Comeau) Other Senators who has participated on this study: The Honourable Senators Adams, Brown, Champagne, P.C., Cook, Downe, Greene, Johnson and Munson Parliamentary Information and Research Service, Library of Parliament: Claude Emery, Analyst Senate Committees Directorate: Danielle Labonté, Clerk of the Committee Louise Archambeault, Administrative Assistant Consultant: Dr. Rob Huebert, Professor of Political Science and Associate Director of the Centre for Military and Strategic Studies at the University of Calgary ORDER OF REFERENCE Extract from the Journals of the Senate, Thursday, March 12, 2009: With leave of the Senate, The Honourable Senator Comeau moved, seconded by the Honourable Senator Cowan: That the Standing Senate Committee on Fisheries and Oceans be authorized to examine and to report on issues relating to the federal government‟s current and evolving policy framework for managing Canada‟s fisheries and oceans; That the papers and evidence received and taken and work accomplished by the committee on this subject since the beginning of the First Session of the Thirty-ninth Parliament be referred to the committee; That the committee report from time to time to the Senate but no later than June 30, 2010, and that the Committee retain all powers necessary to publicize its findings until December 31, 2010. The question being put on the motion, it was adopted. Paul C. Bélisle Clerk of the Senate CONTROLLING CANADA’S ARCTIC WATERS: ROLE OF THE CANADIAN COAST GUARD THE STANDING SENATE COMMITTEE ON FISHERIES AND OCEANS CONTENTS Page ACRONYMS ......................................................................................................................... i LIST OF RECOMMENDATIONS ....................................................................................... iii PREFACE .............................................................................................................................. v FOREWORD ......................................................................................................................... vii BACKDROP .......................................................................................................................... 1 A. Receding Ice, Increased Vessel Activity ....................................................................... 1 B. Geopolitical Developments ........................................................................................... 5 C. Canada‟s Northern Strategy .......................................................................................... 9 D. Integrated Approaches .................................................................................................. 11 SOVEREIGNTY-RELATED MATTERS ............................................................................ 14 A. The Northwest Passage ................................................................................................. 15 B. Vessel Reporting Requirements .................................................................................... 18 C. Monitoring and Control ................................................................................................. 21 1. The RCMP .................................................................................................................. 22 2. The Canadian Rangers ................................................................................................ 23 3. Overflights .................................................................................................................. 24 4. New Technology ......................................................................................................... 24 5. Planned Arctic/Offshore Patrol Ships ......................................................................... 25 6. Coast Guard Icebreakers and Marine Communications and Traffic Services ............ 26 7. Marine Security Operations Centres ........................................................................... 27 D. Conclusion and Recommendations ............................................................................... 27 OPERATIONAL/DOMESTIC MATTERS .......................................................................... 32 A. Current Role and Operations......................................................................................... 32 B. Vessel Activity in the Western Arctic ........................................................................... 35 C. Icebreaking .................................................................................................................... 37 D. Environmental Response............................................................................................... 40 E. Search and Rescue ......................................................................................................... 42 F. Canada–US Cooperation ............................................................................................... 45 G. Political Support, Future Role ....................................................................................... 47 H. Conclusion and Recommendations ............................................................................... 49 APPENDICES 1. Northern Strategy Commitments ............................................................................... 52 2. Government of Canada Response to the Report of the Standing Senate Committee on Fisheries and Oceans: Rising to the Arctic Challenge: Report on the Canadian Coast Guard ......................................................................................................................... 55 3. The 1988 Canada–US Agreement on Arctic Cooperation ......................................... 70 4. Reporting Requirements: Answers to Questions, DFAIT, 9 November 2009 .......... 72 WITNESS LIST ..................................................................................................................... 74 ACRONYMS AMSA – Arctic Marine Shipping Assessment AOPS – Arctic/Offshore Patrol Ship ASWG – Arctic Security Working Group AWPPA – Arctic Waters Pollution Prevention Act CBSA – Canada Border Services Agency CCG – Canadian Coast Guard CCGA – Canadian Coast Guard Auxiliary CCGS – Canadian Coast Guard Ship CF – Canadian Forces CRPG – Canadian Ranger Patrol Group DFAIT – Department of Foreign Affairs and International Trade DFO – Department of Fisheries and Oceans ECAREG – Eastern Canada Vessel Traffic Services Zone EEZ – Exclusive Economic Zone EU – European Union ICC – Inuit Circumpolar Council IMO – International Maritime Organization JCP – Canada-United States Joint Marine Pollution Contingency Plan JRCC – Joint Rescue Coordination Centre JTFN – Joint Task Force (North) LOS – Law of the Sea LRIT – Long Range Identification and Tracking ii MCTS – Marine Communications and Traffic Services MGP – Mackenzie Gas Project MSOC – Marine Security Operations Centres NORDREG – Arctic Canada Traffic System NSF – (US) National Science Foundation NTCL – Northern Transportation Company Limited SAR – Search and Rescue SCOFO – Senate Committee on Fisheries and Oceans SOLAS – Safety of Life at Sea USCG – US Coast Guard VTS OFFSHORE – Western Canada Vessel Traffic Services Zones LIST OF RECOMMENDATIONS Recommendation 1: The Committee recommends that all foreign vessels that enter Canada’s Arctic waters be required to report to NORDREG, regardless of vessel size or tonnage. Recommendation 2: The Committee recommends that, as a precautionary measure at least in the interim period before the new naval Arctic/Offshore Patrol Ships (AOPS) are built and deployed, the Government of Canada: a) arm Canada’s Coast Guard icebreakers with deck weaponry capable of giving firm notice, if necessary, to unauthorized foreign vessels for use in the Northwest Passage; and b) provide on-board personnel from appropriate government agencies that have the authority to enforce Canadian domestic laws with small arms. Recommendation 3: The Committee recommends that the Government of Canada proactively engage the United States in bilateral discussions to resolve their dispute over the Northwest Passage. Recommendation 4: The Committee recommends that a Cabinet committee on Arctic affairs, chaired by the Prime Minister and comprising the Ministers of Indian and Northern Affairs, Fisheries and Oceans, National Defence, Environment Canada, Natural Resources, Foreign Affairs and International Trade, and Transport Canada, be created to further develop national Arctic policy, in cooperation with the three territorial governments, and to ensure that attention to northern issues and Arctic policy is maintained. Recommendation 5: The Committee recommends
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