FEDERAL SEARCH AND RESCUE PROGRAM PLAN 2004

ISSUES AND AREAS OF CONCERN FOR 2004

The following issues, grouped under three operational themes, have evolved from the ICSAR Departments' inputs to the Federal Search and Rescue Program Plan development process. These three themes (Seamless Search and Rescue, the North, and Marine SAR) represent aspects of the program that have been identified as key areas warranting program level consideration and/or action. The issues described under each theme have been proposed by one or more of the program participants (identified in parentheses following the title).

The issue is described in brief terms, followed by a statement of its implications for the program. Response(s) at the Program level are listed next, followed by the identification of the Program Strategies to be employed in addressing the issue. These responses are in addition to the activities and initiatives that may be undertaken by one or more of the participants in accordance with their Roles and Responsibilities to deal with the issue.

1. SEAMLESS SEARCH AND RESCUE

a. Interoperability
b. SAR Levels of Service
c. SAR Alerting by Cell Phones
d. SAR Data Availability/Quality
e. New SAR Helicopter Introduction

SAR operations routinely involve more than one of the ICSAR Departments' resources, along with volunteer groups, and Provincial/Territorial and Municipal organizations as well. This is especially evident in larger scale incidents. Effective coordination of, and communications between, these various service providers will continue to present challenges. To move towards the goal of Seamless SAR, it is essential that the prevention and response activities of all stakeholders be aligned in a complementary manner.

a. Interoperability (CF, RCMP, PCA, CCG)

Interoperability among SAR responders, particularly in communications, rescue equipment and procedures continues to be highlighted as a problem area in post-operations reports. Advances in communications technology have resulted in different types of systems, with incompatibility issues, in use by various agencies.

Implications
The efficiency and effectiveness of a SAR response can be seriously hampered by problems of interoperability, representing an increased risk of serious injury or loss of life.

Program Level Response
• Sponsor an interoperability process
• Negotiate with Industry Canada re: national use SAR frequencies
• Support interoperability considerations relating to training standards
• Set NIF project parameters with respect to communications, training and SAR equipment.

Strategies: Data and Information, Partnerships, Technology and Innovation, Volunteers, Interoperability

b. SAR Levels of Service (CF, CCG, RCMP, PCA, TC, MSC)

The different manner by which the various departments that provide search and rescue services articulate their respective levels of service and capabilities has been identified as an issue. The resources these departments have assigned to provide SAR services have also been changed or improved upon over time. The need exists for level of service standards that indicate to Canadians the response they can expect from the national program; provide a yardstick for measuring program performance, and guide SAR investment and resource deployment decisions. At the same time, there needs to be a way to identify clearly the impact of changes in resources, either financial or equipment, on program outputs.

Implications
The present assortment of SAR level of service statements results in fractured, mixed signals being sent to the public. This could have the effect of either creating unrealistic response expectations of the SAR system, or conversely having Canadians unaware of the services being provided to them. The lack of clearly understood levels of service may also contribute to an atmosphere inconsistent with the goal of educating the public regarding appreciation of the requirement to be prepared for emergency situations.

Program Level Response
• ICSAR Departments to articulate level of service statements that collectively provide an integrated and cohesive picture of response services provided
• Integrate LOS statements into the Roles and Responsibilities statements

Strategies: Data and Information, Partnerships

c. SAR Alerting by Cell Phones (CF, CCG, RCMP)

Cell phones are increasingly being used to alert authorities of SAR incidents (via 9-1-1). The call centres receiving these alerts are operated by a variety of police and municipal authorities in different parts of the country, with varying degrees of established links to the Federal Joint Rescue Coordination Centres (JRCCs).

Implications
Due to the proliferation of cell phones among the general public, there may be misunderstanding of the limitations of cell phones in remote areas, leading to a failure to provide for other more reliable means of alerting. As well, routing of cell phone emergency calls requiring a SAR response as opposed to the standard police, fire or ambulance may not occur without delay, which could represent an increased risk of serious injury or loss of life. Some SAR responders do not have the capability to talk directly to cell phone users. Procedures for accessing geographical location of cell phone signal sources need to be refined.

Program Level Response
• NSS to pursue efficient routing of cellular SAR alert calls with 9-1-1 call centres
• NSS to pursue discussions with cell phone providers re: expedited access to call source location for SAR responders
• Assess communications approach to education/public information re: limitations of cell phones as emergency communications devices
• Define project to assess problem of SAR responders communicating directly with cell phone users and to propose solutions.

Strategies: Data and Information, Partnerships, Technology and Innovation

d. SAR Data Availability/Quality (CF, CCG, PCA, RCMP)

Reliable SAR data of high quality is not always readily available, making comparison of information and statistics between SAR departments difficult. New, different information systems are being planned and implemented, including those at the JRCCs, PC and RCMP.

Implications
Readily available, high quality data is essential to effective program management and SAR prevention activities.

Program Level Response
• Lead and assist departments in the development of high quality databases and comparability of information
• Facilitate identification of analytical subsets and standard database queries.

Strategies: Data and Information, Partnerships, Interoperability, Technology and Innovation

e. New SAR Helicopter Introduction (CF)

The introduction of Canada's new SAR helicopter, the CH-149 Cormorant, (replacing the CH-113 Labrador), is complete at three of Canada's four SAR helicopter bases. The last base to undergo the conversion to the new aircraft will be CFB Trenton, expected to be complete in spring 2004. There are significant differences in the two aircraft owing to size and rotor configuration.

Implications
Given the relatively large differences between the two aircraft types, and the inherent difficulties involved in exposing the large number of SAR groups to the Cormorant, some SAR providers may find themselves working operationally with the Cormorant prior to any training on the aircraft. This represents a risk to effective response provision as well as a risk of injury to SAR providers and casualties.

Program Level Response
• NSS work with the CF to advise SAR providers of the differences between working with the Labrador and Cormorant (SARSCENE Magazine, NSS Website)
• Arrange for a presentation/demonstration by CF at the SARSCENE workshops to focus on operating with the Cormorant
• Encourage/facilitate the production of a training video or pamphlet on the subject for distribution to GSAR and other SAR Groups that could potentially be involved with the new SAR helicopter.

Strategies: Data and Information, Partnerships, Volunteers, MJ Exercises, Technology and Innovation

2. THE NORTH

a. Increasing Arctic Overflights
b. Arctic Weather Monitoring
c. Arctic Communications
d. New National Parks

Canada's north is vast, sparsely populated and characterized by extremes of environmental conditions. Increasing activity levels in the region, in the areas of tourism, resource extraction, and airspace utilization will highlight the challenges of responding to distress incidents in this part of the country.

a. Increasing Arctic Overflights (TC, CF)

The number of overflights of remote northern Canada is expected to continue to increase, particularly with the broader utilization of Polar Routes serving Asia. More and larger aircraft will spend longer periods of time in Canadian airspace, much of which is over very remote areas.

Implications
While such an increase in traffic may be perceived as an increase in risk, the improvement in reliability of aircraft and equipment mitigates this perceived risk, and additional SAR response capability is not warranted. Nevertheless, a credible rapid disaster response capability will be maintained commensurate with the assessed risk.

Program Level Response
• Complete Arctic Cache Project (NIF)
• Conduct workshop to confirm National Coordination Centre concept
• Consider MAJAID scenario for future MJX
• Identify/support industry risk mitigation measures.

Strategies: Data and Information, Partnerships, MJ Exercises, Technology and Innovation, Volunteers

b. Arctic Weather Monitoring (MSC)

There are very few weather monitoring stations in the Arctic and MSC lacks the resources to repair/replace unserviceable monitoring equipment.

Implications
Advance information for SAR responders on incident site meteorological conditions may be minimal or non-existent, potentially affecting the effectiveness of the response. The inability of MSC to maintain even the limited existing resources represents an increased risk of degradation of the information available to SAR providers.

Program Level Response
• Continue SAR/ICSAR support for MSC MC to maintain LOS
• Define project to assess Arctic weather data limitations and propose solutions.

Strategies: Data and Information, Partnerships, Technology and Innovation

c. Arctic Communications (CF)

Communications in the Arctic are inherently problematic, with significant gaps in coverage for those relying on traditional radio equipment.

Implications
Notification of incident occurrence and location may be delayed or even precluded, to the detriment of timely response. Communication between responders/ground facilities and distress victims may hamper the effectiveness of response activities and incident coordination.

Program Level Response
• Define project to assess Arctic communications problems in SAR and propose solutions.

Strategies: Data and Information, Technology and Innovation

d. New National Parks (PCA)

Under a recently announced government initiative, there will be 10 new National Parks established over a 5-year plan that will add approximately 100,000 square kilometers of federal SAR mandate land area across Canada. Establishment of new parks in the north will increase traffic to these sites.

Implications
More people, combined with higher light aircraft and surface vessel traffic levels in remote regions, may lead to increased SAR incidents and/or PLB activations.

Program Level Response
• In advance of park openings, assess Program/system ability to respond and seek adjustments from partners if required.

Strategies: Data and Information, Partnerships, Volunteers

3. MARINE SAR

a. Large Passenger Ship Activities
b. Medium Passenger Ship and Tour Boat Activities
c. Small Craft & Kayak Activities
d. New Marine Conservation Areas
e. Devolution of SAR Prevention Activities
f. Fishing Vessels Further Offshore
g. Offshore Oil and Gas Activities

Marine distress cases account for more than seventy five percent of the incidents that the Federal SAR system responds to. Given this, it is critical that the Departments contributing to SAR response monitor the evolving trends in types of marine activity.

a. Large Passenger Ship Activities (TC, CCG)

There are increasing numbers of cruise lines operating in Canadian waters, in part due to changes in Canadian laws respecting on-board casinos. Newer ships have greater passenger capacity and the average age of cruise passengers tends to be high. Cruises to Arctic waters are also increasing in frequency.

Implications
Increased traffic/passenger capacity represents a larger at-risk population and a higher probability of a major incident, potentially in remote locations such as the Arctic or the northern British Columbia coast. The greater passenger capacity represents an increase in scale of any potential MAJMAR incident and therefore the amount of resources required to deal with such an incident. The advanced average age of cruise passengers represents an increased risk of requests for medevacs from such vessels.

Program Level Response
• Assess current and projected trends
• Sponsor workshop(s) to share info/discuss MAJMAR response plans
• Consider MJX activities to address MAJMAR response.

Strategies: Data and Information, Partnerships, MJ Exercises, Volunteers

b. Medium Passenger Ship and Tour Boat Activities (TC, CCG)

There are growing numbers of whale-watching and marine eco-tours being conducted, utilizing smaller cruise vessels of varying passenger capacity with high passenger to crew ratios. Such tours are of short duration, generally lasting only 2-4 hours.

Implications
The short duration of these tours means that passengers are less likely to become fully familiar with the vessel and its emergency equipment and procedures. This, coupled with the high passenger to crew ratios, represents an increased risk of loss of life in the event of an incident.

Program Level Response
• Assess current and projected trends
• Sponsor workshops to share info/discuss MAJMAR response plans
• Consider MJX activities to address MAJMAR response
• Assess need for regulatory change.

Strategies: Data and Information, Partnerships, MJ Exercises, Volunteers

c. Small Craft & Kayak Activities (PCA, CCG)

The use of small, individual watercraft categories of vessel has increased dramatically. Kayaking, as an example, is attracting participants from a broad range of ages, knowledge and skill levels, practicing the sport in a variety of locations, including the oceans and remote areas. For example, group kayak excursions to the isolated British Columbia mid-coast have increased significantly in number.

Implications
The increase in kayaking activity levels, particularly in more remote or oceanic areas, coupled with the range of age and skill levels, represents an increased risk of SAR incidents.

Program Level Response
• Obtain and integrate departmental trend analyses
• Assess education/regulation response to deal with analytical findings.

Strategy: Data and Information

d. New Marine Conservation Areas (PCA)

Under a recently announced government initiative, there will be 5 new Marine Conservation Areas established over a 5-year period. Establishment of Marine Conservation Areas will increase traffic to these sites, many of which are in remote coastal areas.

Implications
More people, combined with easier access to remote regions may lead to increased SAR incidents.

Program Level Response
• In advance of Marine Conservation area openings, assess Program/system ability to respond and seek adjustments from partners if required.

Strategies: Data and Information, Partnerships, Volunteers

e. Devolution of SAR Prevention Activities (TC)

Some departments are devolving their SAR prevention activities to associated volunteer organizations such as CCGA and the Canadian Safe Boating Council.

Implications
Although such devolution may result in a broader reach of prevention initiatives, there is a risk of lack of control of the activities as well as a possibility of inadequate funding and resources applied to them. There is also concern that the effectiveness of the program will suffer.

Program Level Response
• Establish benchmarks against which to measure prevention programs
• Monitor changes in program delivery against benchmarks
• Involve volunteer groups in prevention enhancement activities (e.g. BPIC).

Strategies: Data and Information, Partnerships, Volunteers

f. Fishing Vessels Further Offshore (TC, CCG)

Data indicates that over half of all TSB reported marine accidents involve fishing boats. Within the Atlantic Region, these boats are now fishing further offshore.

Implications
Longer response times for SAR resources combined with longer transit times back to port for vessels to avoid bad weather represent an increased risk of loss of life. The greater distances SAR resources must travel to respond results in a decrease in their availability to the SAR system and a corresponding increased risk in the event of concurrent SAR incidents.

Program Level Response
• Obtain and integrate departmental trend analyses and assess education/regulation response to deal with analytical findings.

Strategy: Data and Information

g. Offshore Oil and Gas Activities (CF, CCG)

East coast offshore oil and gas exploration and production activities are increasing and there is a strong possibility that the moratorium on west coast exploration in this sector may be eased or lifted. The industry association on the east coast has lobbied to have 103 Rescue Squadron re-located from Gander to St. John's in order to relieve the association of the government-imposed obligation to provide its own first-response SAR helicopter capability.

Implications
Increased activity levels represent an increase in vessel/helicopter traffic servicing rigs and support facilities as well as additional drilling rigs themselves. This is therefore an increase to the at-risk population in those areas. A change in status on the west coast would represent a significant shift in the regional risk dynamic where no such exploration/production activities currently exist.

Program Level Response
• Review the policy basis of the requirement for an industry provided SAR resource
• Liaise with Departments or Agencies with collateral interest
• Monitor

Strategies: Data and Information, Partnership

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