Edited by P. Whitney Lackenbauer & Heather Nicol Whole of Government through an Arctic Lens Edited by P. Whitney Lackenbauer and Heather Nicol © The authors/editors 2017 Publications Unit Mulroney Institute of Government St. Francis Xavier University 5005 Chapel Square Antigonish, Nova Scotia, Canada B2G 2W5 LIBRARY AND ARCHIVES CANADA CATALOGUING IN PUBLICATION Whole of Government through an Arctic Lens / edited by P. Whitney Lackenbauer and Heather Nicol. Issued in electronic and print formats ISBN (ebook): 978-1-7750774-3-5 ISBN (print): 978-1-7750774-2-8 1. Canada. Canadian Armed Forces—Arctic. 2. Canada--Military policy— Arctic. 3. Canada--Defenses--History—21st century. 4. Arctic Sovereignty— History. 5. Canada, Northern--Strategic aspects. 6. Arctic regions--Strategic aspects. 7. Canada—Foreign relations--Arctic. I. Lackenbauer, P. Whitney, editor II. Nicol, Heather, editor III. Mulroney Institute of Government, issuing body IV. Whole of Government through an Arctic Lens. Page design and typesetting by P. Whitney Lackenbauer Cover design by P. Whitney Lackenbauer Please consider the environment before printing this e-book This book is dedicated to Dr. Lorne William ‘Bill’ Bentley (LCol retired, 1947-2017) Table of Contents Foreword by Major General Eric Tremblay and Bill Bentley ........................ i Introduction by Heather Nicol and P. Whitney Lackenbauer ..................... iii Chapter 1: The Emerging Arctic Security Environment: Putting the Military in its (Whole of Government) Place by P. Whitney Lackenbauer and Adam Lajeunesse ......................................... 1 Chapter 2: Arctic Sovereignty and International Law by Shelagh D. Grant ........................................................................................... 37 Chapter 3: From Cold War to North Pole Alliance: Canada and the Changing Face of Defence and Foreign Relations in the Arctic by Ian Livermore .................................................................. 52 Chapter 4: The Canadian Armed Forces in the Arctic: Building Capabilities and Connections by Adam Lajeunesse and P. Whitney Lackenbauer ......................................................... 114 Chapter 5: Leveraging Air Mobility to Support Canadian Arctic Sovereignty by Lieutenant Colonel Darwin Ziprick ............. 164 Chapter 6: A Matter of Survival: Arctic Communications Infrastructure in the 21st Century by Imaituk Inc ........................................ 200 Chapter 7: Extractive Industry: The Growth Engine of Arctic Shipping? by Frédéric Lasserre and Pierre-Louis Têtu ........................... 239 Chapter 8: Emergency Management in the Arctic: The Context Explained by Meredith Kravitz and Vanessa Gastaldo .......................... 269 Chapter 9: Emerging Issues for Whole of Government Approaches to the Canadian North by Karen Everett and Emily Yamashita ..... 295 Chapter 10: Arctic Defence and Security: Transitioning to the Trudeau Government by P. Whitney Lackenbauer ............................ 308 Bibliography ......................................................................................... 341 Contributors ......................................................................................... 362 Acknowledgements The idea for this book was inspired by conversations with the Department of National Defence (DND), the Canadian Defence Academy (CDA), and Royal Military College (RMC) faculty and staff. We developed the project through a The Arctic Security Whole of Government Research Workshop held in Kingston, Ontario, in May 2014, supported by a Social Sciences and Humanities Research Council of Canada (SSHRC) Connections Grant. This gathering represented a collaborative effort between Trent University, the Borders in Globalization (BiG) Project, and DND, represented by the CDA, RMC, and Defence Research and Development Canada (DRDC). The purpose was to bring together Northern experts to discuss the role of Whole of Government in DND’s approach to Arctic security, sovereignty and leadership capacity. Contributions came from a wide variety of defence, federal government departments, and academic institutions, and covered a range of topics including the role of the military, economic development, Indigenous inclusion, and food security. (For videos of the presentations, see http://post.queensu.ca/~leuprech/Arctic/vids.html.) Because one of the key objectives of the workshop was to understand how a Whole of Government perspective could be understood with respect to DND's role in the Arctic and the CDA’s role in leadership and training, the workshop organizer’s committed to a publication which would further define and discuss these issues. This publication, like the workshop itself, represented a collaboration between CDA, RMC, DND, the SSHRC-sponsored Borders in Globalization Partnership Project (BiG), and Trent University. We wish to offer special thanks to Dr. Bill Bentley (CDA), Major-General Eric Tremblay (CDA), Dr. Christian Leuprecht (RMC), and Dr. Karen Davis (DND) who were key co- organizers and important contributors to this project from the onset. We also thank the Canadian Forces College and RMC for permission to publish chapters from Ian Livermore and LCol Darwin Ziprick based upon major research papers that they produced to satisfy the requirements of the Masters of Defence Studies degree programme. A final thanks to Dr. Adam Lajeunesse and the Mulroney Institute of Government at St. Francis Xavier University for offering to publish this book in an expeditious fashion in late 2017 after previous plans fell through owing to the sudden loss of Dr. Bentley in August 2017. Whitney Lackenbauer, Adjunct Professor Heather Nicol, Professor School for the Study of Canada Trent University Acronyms A5 Arctic Five AANDC Aboriginal Affairs and Northern Development Canada AC Arctic Council ACIA Arctic Communications Infrastructure Assessment ADIZ American Air Defense Identification Zone ADM Assistant Deputy Minister AEC Arctic Economic Council AIC Arctic Integrating Concept AIMP Aurora incremental modernization project AIS Automatic identification system AMSA Arctic Marine Shipping Assessment AOPS Arctic Offshore Patrol Ships APEC Asia-Pacific Economic Cooperation ARCG Arctic Response Company Group ASFR Arctic Security Forces Roundtable ASIWG Arctic Security Interdepartmental Working Group ASWG Arctic Security Working Group AWPPA Arctic Waters Pollution Prevention Act BIRP Bathurst Inlet Port and Road BLOS Beyond line of sight CAF Canadian Armed Forces CAFATC Canadian Armed Forces Arctic Training Centre CanNor Canadian Northern Economic Development Agency CANSOFCOM Canadian Special Operations Forces Command CASARA Civil Air Search and Rescue Association CBSA Canada Border Services Agency CCG Canadian Coast Guard CCGA Canadian Coast Guard Auxiliary CCGS Canadian Coast Guard Ship CDA Canadian Defence Academy CFDS Canada First Defence Strategy CHARS Canadian High Arctic Research Station CHoD Chief of Defence CIC Citizenship and Immigration Canada CSA Canadian Space Agency CSIS Canadian Security and Intelligence Service CWS Canadian Wildlife Service DART Disaster Assistance Response Team DEW Line Distant Early Warning Line DFATD Department of Foreign Affairs, Trade, and Development DFO Department of Fisheries and Ocean DMVPN dynamic multipoint virtual private network DOD Department of Defense (United States) DRDC Defence Research and Development Canada EEZ Exclusive Economic Zone EMO Emergency Management Organizations EMPS Emergency Measures and Protective Services EOC Emergency Operations Center FAAR Federal Aviation Authority of Russia FCC Federal Coordination Centre FCN Federation of Canadian Municipalities FECG Federal Emergency Coordination Group FSB Federal Security Service (Russian Federation) FSC Frontex Situation Centre GIS Geographic Information System GNWT Government of the Northwest Territories GSAR Ground-based Search and Rescue HF High Frequency HIRA Hazard Identification Risk Assessment HMCS Her Majesty's Canadian Ship HMDS Her Majesty’s Danish Ship HRSDC Human Resources and Social Development Canada IATA International Air Transport Association IMO International Maritime Organization IRS Intelligence surveillance and reconnaissance IRU Immediate Response Unit IT Information Technology JTFN Joint Task Force (North) JUSTAS Joint Unmanned Surveillance Target Acquisition System LOSV Light Over Snow Vehicle LRA Long Range Aviation M/V Motor Vessel MAJAID Major Air Disaster MAJMAR Major Maritime Disaster MMG Minmetals Resources Ltd (China) MRS Mobile Radio System MSOC Marine Security Operations Centre NavCan Nav Canada NCIS-WG Northern Communications and Information Systems Working Group NGOs Non-governmental Organizations NORAD North American Aerospace Defence Command NORDREG Northern Canada Vessel Traffic Services Zone Regulations NRCAN Northern Resources Canada NSR Northern Sea Route OGDs Other Federal Government Departments and Agencies PJBD Permanent Joint Board on Defence Plan Nord Northern Quebec Development Plan POLAR Canadian Polar Commission/Polar Knowledge Canada RCAF Royal Canadian Air Force RCMP Royal Canadian Mounted Police RCN Royal Canadian Navy SAO Senior Arctic Official SAR Search and Rescue SARS Severe acute respiratory syndrome SARTEC Search and Rescue Technician SSHRC Social Sciences and Humanities Research Council of Canada UAV Unmanned aerial vehicle UNCLOS UN Convention on the Law of the Sea US United States USGS US Geological Survey USN US Navy VHF Very High Frequency WISCO Wuhan Iron and Steel (Group) Corp.