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Northern and Arctic Air Connectivity in Canada Discussion Paper 179 Roundtable CPB Corporate Partnership Board Northern and Arctic Air Connectivity in Canada Discussion Paper 179 Roundtable Mike Tretheway Robert Andriulaitis Jody Kositsky Geneva Tretheway InterVISTAS, Vancouver Northern and Arctic Air Connectivity in Canada Discussion Paper 179 Roundtable Mike Tretheway Robert Andriulaitis Jody Kositsky Geneva Tretheway InterVISTAS, Vancouver The International Transport Forum The International Transport Forum is an intergovernmental organisation with 62 member countries. It acts as a think tank for transport policy and organises the Annual Summit of transport ministers. ITF is the only global body that covers all transport modes. The ITF is politically autonomous and administratively integrated with the OECD. The ITF works for transport policies that improve peoples’ lives. Our mission is to foster a deeper understanding of the role of transport in economic growth, environmental sustainability and social inclusion and to raise the public profile of transport policy. The ITF organises global dialogue for better transport. We act as a platform for discussion and pre- negotiation of policy issues across all transport modes. We analyse trends, share knowledge and promote exchange among transport decision-makers and civil society. The ITF’s Annual Summit is the world’s largest gathering of transport ministers and the leading global platform for dialogue on transport policy. The Members of the Forum are: Albania, Armenia, Argentina, Australia, Austria, Azerbaijan, Belarus, Belgium, Bosnia and Herzegovina, Bulgaria, Canada, Chile, China (People’s Republic of), Croatia, Czech Republic, Denmark, Estonia, Finland, France, Georgia, Germany, Greece, Hungary, Iceland, India, Ireland, Israel, Italy, Japan, Kazakhstan, Korea, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Mexico, Republic of Moldova, Mongolia, Montenegro, Morocco, the Netherlands, New Zealand, North Macedonia, Norway, Poland, Portugal, Romania, Russian Federation, Serbia, Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Tunisia, Turkey, Ukraine, the United Arab Emirates, the United Kingdom, the United States and Uzbekistan. International Transport Forum 2 rue André Pascal F-75775 Paris Cedex 16 [email protected] www.itf-oecd.org ITF Discussion Papers ITF Discussion Papers make economic research, commissioned or carried out in-house at ITF, available to researchers and practitioners. They describe preliminary results or research in progress by the author(s) and are published to stimulate discussion on a broad range of issues on which the ITF works. Any findings, interpretations and conclusions expressed herein are those of the authors and do not necessarily reflect the views of the International Transport Forum or the OECD. Neither the OECD, ITF nor the authors guarantee the accuracy of any data or other information contained in this publication and accept no responsibility whatsoever for any consequence of their use. This document and any map included herein are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Comments on Discussion Papers are welcome. Cite this work as: Tretheway, M. et al. (2021), “Northern and Arctic Air Connectivity in Canada”, International Transport Forum Discussion Papers, No. 2021/03, OECD Publishing, Paris. Acknowledgements This paper was prepared by Dr. Michael Tretheway, chief economist of InterVISTAS Consulting Inc. He was assisted in this study by Robert Andriulaitis, vice president, and Jody Kositsky, director, of InterVISTAS Consulting, and Geneva Tretheway, senior associate. The discussion paper benefitted from comments provided by the participants of the ITF Roundtable on Connecting Remote Communities, held 23-24 September 2019 in Ottawa. NORTHERN AND ARCTIC AIR CONNECTIVITY IN CANADA | DISCUSSION PAPER | ITF ROUNDTABLE 179 Table of contents Acknowledgements ............................................................................................................................. 3 Table of contents ................................................................................................................................. 4 Purpose of this paper .......................................................................................................................... 5 Current transport infrastructure and services in northern and Arctic communities ............................. 5 Road network .................................................................................................................................. 7 Rail network .................................................................................................................................... 9 Marine services ............................................................................................................................. 11 Air services .................................................................................................................................... 12 Current policy regarding northern and Arctic air connectivity in Canada ........................................... 13 Legislation, regulations and policies related to northern and Arctic air connectivity ................... 13 Non-air transport policies related to northern and Arctic connectivity ........................................ 15 Developments in northern and Arctic air connectivity in Canada ...................................................... 16 Current level of air connectivity .................................................................................................... 16 Alternatives to air connectivity ..................................................................................................... 20 Potential developments impacting air connectivity ...................................................................... 20 Challenges to northern and Arctic air connectivity ............................................................................ 21 Current challenges affecting air connectivity ................................................................................ 21 Potential future challenges impacting air connectivity ................................................................. 22 Northern and Arctic air connectivity support going forward .............................................................. 22 Current support programmes ....................................................................................................... 23 Future federal infrastructure options............................................................................................ 24 Future air service provider options ............................................................................................... 24 Future government fees, charges and taxes ................................................................................. 25 Technological alternatives to air connectivity ............................................................................... 25 Potential recommendations for future policy .................................................................................... 26 Annex A: Evolution of northern air transport policy in Canada .......................................................... 27 Legislative changes from 1967 ...................................................................................................... 27 Key Canadian policy reviews ......................................................................................................... 28 4 © OECD/ITF 2021 NORTHERN AND ARCTIC AIR CONNECTIVITY IN CANADA | DISCUSSION PAPER | ITF ROUNDTABLE 179 Purpose of this paper Governments with remote northern and Arctic communities generally recognise the unique challenges regarding transport connectivity in these communities and generally have northern and Arctic connectivity as an explicit, or at least implicit, social policy goal. This paper examines explicit northern and Arctic connectivity policies in Canada and comments on existing legislation, regulations, policies and programmes of the federal government as well as of Canada’s three northern territories. It also comments on recommendations from various past transport policy reviews as they are indicative of the prevailing attitudes of stakeholders and industry experts over time, looking specifically at whether or not the policies were adopted. Because Canada’s north relies heavily on air transport for economic, social and national defence connectivity, the latter is the major focus of this review. There is, however, is a limited presence of road, rail and marine transport in Canada’s north, and these too are discussed. Current transport infrastructure and services in northern and Arctic communities All communities in Canada’s Yukon Territory, Northwest Territories (NWT) and Nunavut are northern and Arctic communities. According to the latest census data from 2016, the population of the three territories combined is just under 114 000, with only three communities over 7 000 in population and the rest with 3 000 or fewer. There are also some communities below the Arctic Circle in the northern parts of Manitoba, Ontario and Quebec and Labrador that are generally considered northern communities due to their remote location and the limited transport options residents face. The level of connectivity to and from these regions varies among the three territories. While there has been growth in connectivity
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