MIND THE GAP: THE GROUND TRUTH BEHIND AN OPTIMIZED NATIONAL SEARCH AND RESCUE SYSTEM Maj J.M. Weissenborn JCSP 42 PCEMI 42 Master of Defence Studies Maîtrise en études de la défense Disclaimer Avertissement Opinions expressed remain those of the author and Les opinons exprimées n’engagent que leurs auteurs do not represent Department of National Defence or et ne reflètent aucunement des politiques du Canadian Forces policy. This paper may not be used Ministère de la Défense nationale ou des Forces without written permission. canadiennes. Ce papier ne peut être reproduit sans autorisation écrite. © Her Majesty the Queen in Right of Canada, as © Sa Majesté la Reine du Chef du Canada, représentée par represented by the Minister of National Defence, 2016. le ministre de la Défense nationale, 2016. CANADIAN FORCES COLLEGE – COLLÈGE DES FORCES CANADIENNES JCSP 42 – PCEMI 42 2015 – 2016 MASTER OF DEFENCE STUDIES – MAÎTRISE EN ÉTUDES DE LA DÉFENSE MIND THE GAP: THE GROUND TRUTH BEHIND AN OPTIMIZED NATIONAL SEARCH AND RESCUE SYSTEM Maj J.M. Weissenborn “This paper was written by a student “La présente étude a été rédigée par un attending the Canadian Forces College stagiaire du Collège des Forces in fulfilment of one of the requirements canadiennes pour satisfaire à l'une des of the Course of Studies. The paper is a exigences du cours. L'étude est un scholastic document, and thus contains document qui se rapporte au cours et facts and opinions, which the author contient donc des faits et des opinions alone considered appropriate and que seul l'auteur considère appropriés et correct for the subject. It does not convenables au sujet. Elle ne reflète pas necessarily reflect the policy or the nécessairement la politique ou l'opinion opinion of any agency, including the d'un organisme quelconque, y compris le Government of Canada and the gouvernement du Canada et le ministère Canadian Department of National de la Défense nationale du Canada. Il est Defence. This paper may not be défendu de diffuser, de citer ou de released, quoted or copied, except with reproduire cette étude sans la permission the express permission of the Canadian expresse du ministère de la Défense Department of National Defence.” nationale.” Word Count: 19 222 Compte de mots: 19 222 i TABLE OF CONTENTS Table of Contents i List of Figures ii List of Abbreviations iii Abstract viii Acknowledgements ix CHAPTERS Introduction 1 1. International SAR Obligations and Derived Standards from Agreements 8 2. Operation and Management of Australia’s SAR System 21 3. Organizational Evolution of Canada’s SAR System 47 4. Organizational Elements of a SAR Framework 74 Conclusion 87 Bibliography 90 ii LIST OF FIGURES Figure 2.0 – Map of Australian SRR 23 Figure 2.1 – Heli-box picture 35 Figure 3.0 – Towards a Seamless SAR System 68 Figure 4.0 – Command and Control Approach Space 76 iii LIST OF ABBREBIATIONS AAD ………………………… Australian Antarctic Division ADF …………………………. Australian Defence Force AMSA ………………………. Australia. Australian Maritime Safety Authority ANU ………………………… Australian National University CAF …………………………. Canadian Armed Forces CAMSAR …………………… Canadian Aeronautical and Maritime Search and Rescue Manual CAS………………………….. Chief of Air Staff CAS …………………………. Complex Adaptive System CASA ……………………….. Civil Aviation Safety Authority (Australia) CASARA ……………………. Civil Air Search and Rescue Association CBSA ………………………... Canada Border Services Agency CCG .......................................... Canadian Coast Guard CF .............................................. Canadian Forces CFC .......................................... Canadian Forces College CMCC ...................................... Canadian Mission Control Centre CORA ...................................... Centre of Operational Research and Analysis CSA ........................................... Canadian Standards Association iv DFO .......................................... Department of Fisheries and Oceans DHS .......................................... Department Homeland Security DND ......................................... Department of National Defence DOT ......................................... Department of Transport DRDC ...................................... Defence Research and Development Canada ELT .......................................... Emergency Locator Transmitter EMS ......................................... Emergency Medical Services FERP ........................................ Federal Emergency Response Plan FLIR ......................................... Forward Looking Infra-red FPT ........................................... Federal, Provincial, Territorial FWSAR .................................... Fixed-Wing Search and Rescue GSAR ....................................... Ground Search and Rescue HQJOC ..................................... Headquarters Joint Operations Command IAMSAR .................................. International Air and Marine Search and Rescue ICAO ........................................ International Civil Aviation Organization ICMSAR .................................. International Convention on Maritime Search and Rescue ICSAR ...................................... Interdepartmental Committee on Search and Rescue v IGA .......................................... Intergovernmental Agreement IMO .......................................... International Maritime Organization JRCC ........................................ Joint Rescue Coordination Centre KMS ......................................... Knowledge Management System LMSAR .................................... Lead Minister Search and Rescue MCCRT .................................... Management Command and Control Re-engineering Team MCTS ....................................... Marine Communications and Traffic Service MOU ........................................ Memorandum of Understanding MND ........................................ Minister of National Defence MRSC ...................................... Marine Rescue Sub-Centre MSOC ...................................... Maritime Security Operations Centres NASP ....................................... National Aerial Surveillance Program NATO ...................................... North Atlantic Treaty Organization NDHQ ...................................... National Defence Headquarters NORAD ................................... North American Air Defence NSM ......................................... National SAR Manual (Canada) NSP .......................................... National Search and Rescue Program NSS .......................................... National Search and Rescue Secretariat vi NSW ......................................... New South Wales NVMSARC .............................. National Volunteer Marine Search and Rescue Committee OAG ......................................... Office of the Auditor General OIC ........................................... Officer in Charge PLB .......................................... Personal Locator Beacon PS ............................................. Public Safety RAAF ....................................... Royal Australian Air Force RAC ......................................... Royal Automobile Club RCAF ....................................... Royal Canadian Air Force RCC .......................................... Rescue Coordination Centre RCMP ...................................... Royal Canadian Mounted Police RCN ......................................... Royal Canadian Navy ROESAR .................................. Report on an Evaluation of Search and Rescue. SAR .......................................... Search and Rescue SARVAC ................................. Search and Rescue Volunteer Association of Canada SCC .......................................... Search and Rescue Coordinating Committee SCOFO ..................................... Standing Committee on Fisheries and Oceans SOA .......................................... Special Operating Agency vii SOLAS ..................................... International Convention for Safety of Life at Sea SRR .......................................... Search and Rescue Region STIP ......................................... Strategic Transition Initiative Project TC ............................................ Transport Canada UN ............................................ United Nations UNCLOS .................................. United Nations Conference on the Law of the Sea UK ............................................ United Kingdom US ............................................ United States USCG ....................................... United States Coast Guard UV/IR ....................................... Ultra-violet / Infra-red VHF .......................................... Very High Frequency WoG ......................................... Whole of Government viii ABSTRACT Canada has the resources, the enthusiasm and the intent to realize an effective and efficient national search and rescue (SAR) system. However, a plan and policy framework to bring the disparate elements together into a coherent and unfailing service has remained beyond reach. Sometimes this deficiency has resulted in well publicized national tragedies or disasters, but just as troubling are the untold stories of those who may not have been rescued in time. To determine the need for such a framework, this study researched whether there were grounds for a comprehensive and integrated SAR service. To this end, Canada’s organizational SAR history, international obligations, Australia’s