Canadian Coast Guard

Levels of Service Review

Summary of Client Comments

April 2008 - DRAFT

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INTRODUCTION

Process

During the fall of 2007, the Canadian Coast Guard (CCG) conducted over 30 client engagement sessions on the subject of CCG levels of service. Engagement sessions took place in every region and in various locations across the country. Hundreds of letters were sent to CCG clients informing them of the Levels of Service (LOS) Review and inviting their participation and comments. Attendance at engagement sessions varied from a few people to over 200 participants. Even if attendance was small in number at some sessions, overall CCG was able to receive many helpful comments from a broad range of client groups. The objective of hearing from a variety of clients – recreational boaters, the shipping industry, fish harvesters, port authorities and pilot associations – was achieved. Some client engagement sessions took place in the context of an existing advisory body such as Regional Canadian Marine Advisory Council meetings. Other sessions were convened for the specific purpose of discussing CCG levels of service, including a couple of sessions which were organized at the request of CCG clients in specific locations (for example, Caraquet, NB). Federal departments and agencies who partner with CCG were invited to contribute to the LOS Review through official correspondence. Comments were received from several officials. In September 2007, a dedicated LOS Review website was launched to provide information about the LOS review and to ensure access to the document: Levels of Service and Service Standards. An on-line questionnaire was available during the client engagement period1 and several clients used this method to convey their comments. Purpose of This Document

The purpose of this draft summary report is to consolidate comments received across the country and provide CCG clients with an opportunity to validate the content. Please note that the document is not intended to provide a comprehensive report of everything clients mentioned during the Levels of Service Review. However, the summary document should provide an overview and highlights of client concerns regarding CCG services across the country. Clients, in particular those who participated in LOS client engagement sessions, are invited to read this summary and provide comments regarding any important elements that may have been missed or potential errors. The summary is presently in draft form. Following validation by clients, an updated final version will be prepared. 1 The client engagement period began in September 2007 and concluded on November 30, 2007.

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What we heard

The Levels of Service Review included the following CCG programs: Aids to Navigation, Waterways Management, Environmental Response, Icebreaking, Marine Communications and Traffic Services (MCTS) and Search and Rescue (SAR). Overall, clients are satisfied and appreciative of the services provided by CCG. In the case of each of the six programs, clients commented on the importance attached to a particular program and requested additional services. While there was a variety of concerns and requests between regions, there were also some common themes. The summary of comments that follows has been grouped according to the following themes:

1) Levels of Service Adjustments A. Requests to maintain services B. Requests for increased services

i. Improved services to meet current LOS and Service Standards

ii. Requests for additional services not included in current LOS

C. Requests to consider reducing services 2) Operational Adjustments

A. LOS not consistently applied B. Management and coordination C. Information and reporting D. Service delivery

3) Not Part of Current CCG Mandate A. Prevention – responsibility of other government departments B. Weather and Ice Information C. Outside CCG Mandate – not responsibility of other federal

department 4) Comments from Federal Partners

Each section includes a brief summary of the overall comments, followed by regionally-specific details.

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1) LEVELS OF SERVICE ADJUSTMENTS

A. Requests to maintain services

Aids to Navigation

Many clients noted the importance of maintaining the existing aids to navigation. The view was expressed that the number of aids to navigation has already been reduced and that CCG should use caution and consult with clients before any further reduction or removal of aids to navigation.

• “The fishing industry suggested that CCG remain cautious when removing visual and aural aids. These are known and used for reference and are required especially if technology fails.” (Pacific)

• “Aids to navigation services were streamlined in the last few years. All our clients are asking for current visual aids to be maintained, and for no more reductions in service.” (Quebec)

• “Clients wanted, at the very least, that the existing level of service be maintained. There should be no reduction or removal of Aids to Navigation without consultation with users.” (Newfoundland and Labrador - NL)

Some recreational boaters expressed the request that publication of Notices to Mariners in paper format be maintained.

• “Keep publishing notices in hard copy, because many boaters cannot access changes to navigational charts by email.” (Quebec)

Waterways Management

The value of CCG services in the area of waterways management was noted by many clients and waterways management was noted as a priority service to be maintained in all regions.

• “Fraser Port and the River Pilots commented on the value and importance of Waterways Management services in keeping cargo safe and moving on the Fraser River.” (Pacific)

• “Shippers on the Great Lakes recognized the importance of the CCG’s participation in the international waterways (St. Marys and St Clair-Detroit River) dredging projects.” (Central and Arctic - C&A)

• “This program is very important for the shipping industry … Shipping industry representatives made the following requests: ensure that booms and islands used to control ice in Lake Saint-Pierre remain operational” (Quebec)

• Clients “were satisfied with the current levels of service. There was a general indication that ‘more’ would be better and less would be ‘unacceptable’ ” (Maritimes)

• “Clients are generally satisfied with the level of service for Waterways Management provided in this region. ... Clients wanted the existing level of service maintained.” (NL)

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“The Miramichi river situation was also discussed in general terms, however, those present felt that [CCG’s] efforts in this area were commendable and that there were probably only a few years left before navigation by large vessels would not be possible.” This issue relates to the discontinuation of dredging operations on the river, the channel is reducing in size and it is expected that over time only fishing vessels and very small commercial vessels will be able to use it. (Maritimes) Search and Rescue

Clients in most regions specifically expressed the importance that they attach to the Search and Rescue (SAR) services of CCG. In general, clients are satisfied and appreciative of the services provided.

• Fishing industry: “stressed that SAR is an essential service that should be maintained at the highest level.” (Pacific)

• “Participants feel that the search and rescue program is very important and should not be reduced.” (Quebec)

• “Overall, participants were appreciative and knowledgeable of the SAR services provided by both the CCG and Canadian Coast Guard Auxiliary (CCGA).” (Maritimes)

B. Requests for Increased Services

i. Improved services to meet current LOS and Service Standards

Aids to Navigation

Requests for additional or improved aids to navigation were focused on specific areas, in particular, to improve access to certain communities, ports and secondary channels. In addition, clients expressed a desire for improved reliability of aids.

• Shipping industry: “indicated they have a long standing request for additional [aids to navigation] to support their community resupply and other activities in the Ungava and Hudson Bay areas.” (C&A)

• Recreational boaters: “Boaters should avoid using the main channels for their safety. As a result, secondary channels should be properly buoyed, because not all pleasure craft have electronic charts and they need [aids to navigation].” Specific request : “improve buoy-tending services … in a secondary channel, downstream from Montreal Island, in order to facilitate boating activities.” (Quebec)

• Fish harvesters: “There was also concern expressed at these sessions about the lack of Aids to Navigation on the Labrador coast. There is increasing activity in the fishery and in many places there are not any Aids to Navigation.” (NL)

• Fish harvesters and recreational boaters: “The level of service on the South Coast of Newfoundland should be improved.” This comment relates to the challenge of meeting the visibility service standard on the South/ South-west coast of Newfoundland because of poor weather conditions (fog) in that area. (NL)

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Environmental Response

CCG clients across the country do not appear to have confidence that CCG is currently prepared to respond to increasing risks of environmental incidents. In particular, there is a sense that the environmental risks are increasing greatly as tanker traffic increases, specifically carriers of liquefied natural gas (LNG) and very large crude carriers (VLCC). The view was expressed that there may not be enough capacity to deal with a VLCC incident even when combining the resources of both CCG and Response Organizations (ROs).

• “With the increase in vessel traffic, specifically crude oil tankers, condensate tankers and container ships and an increase in derelict vessels, risks are rising and clients would like to see improvements in the Environmental Response program including an increase in education, preparedness and response.” (Pacific)

• “Primary concerns focused on ‘capacity’ and ‘response times’ of both the CCG and the ROs. ... The capacity issue was brought up on several occasions. There appears to be a great deal of concern in both Saint John and the Strait of Canso (3 million metric tonnes of shipping per month) given the current and expected increases in levels of tanker traffic in these areas2. …It was also pointed out that even if all the ROs and the CCG capacities were combined, there would not be enough to deal with a spill in these areas if a VLCC were involved.” (Maritimes).

• “Stakeholders from Northern Cape Breton area also pointed out that the fishing industry is the main economic driver in the area yet felt that available equipment and response times do not seem to take this important factor into account.” (Maritimes)

Similarly, in Newfoundland, many concerns regarding Placentia Bay as the area of highest risk were raised by all groups of clients. Clients noted that the 10,000 tonne capacity for ER is insufficient given the tanker traffic (VLCC) and the possible new refinery coming to the region. In addition, concern was expressed that the ER equipment is presently located in St. John’s and that there may be an unacceptable delay in responding to a possible incident in Placentia Bay.

• “Coast Guard should have more heavy weather oil spill cleanup equipment. Concern was expressed that the cleanup equipment should be stationed closer to Placentia Bay rather than be based in St. John’s. ... There should a Coast Guard towing capable vessel stationed on the south coast for oil spill prevention.” (Newfoundland)

Icebreaking

Icebreaking is a service for which clients expressed the view that current levels of service were not being met and for which priorities should be reviewed and resources increased.

• “Clients feel the LOS are not being met in Lake Ontario and the Seaway, and the shoulder seasons of the Arctic.” (C&A)

2 Along with this, the commencement of Liquefied Natural Gas (LNG) shipments in the near future in Saint John had clients asking what CCG capabilities are with respect to LNG issues.

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• “The shippers indicated that ice breaking services are of the highest priority.” (C&A)

• Shipping industry: “generally satisfied with icebreaking management in Quebec Region…. asked for the priorities to be reviewed and for resources to be increased to support regional and local commercial activities and economic development.” (Quebec)

Clients also requested additional services with respect to the accessibility and quality of ice charts:

• Clients in Quebec region requested that CCG “facilitate access to ice charts on the Marinfo Web site” (Quebec)

• “A small number [of clients] expressed concern over the quality of images on the ice charts.” (Maritimes)

Marine Communications and Traffic Services (MCTS)

Clients in every region expressed some concern regarding the current level of VHF coverage.

• “VHF communication is critical to the shipping industry and an annual report on VHF outages was suggested. … Fishers are frequently on the water during times of severe weather and VHF communication is of key importance. There was overall consensus that the current VHF coverage is unacceptable in Pacific Region. Fishers feel that the current coverage is less than the 95% target level…The fishing industry sees this as a safety concern and emphasized that there are far too many dead zones.” (Pacific)

• “The Port of Churchill expressed concern with the CCG proposal to consolidate the Churchill and Coral Harbour peripheral sites…the proposal included the discontinuation of VHF service at Churchill.” (C&A)

• Fish harvesters and recreational boaters in Quebec noted areas of inadequate coverage and requested better coverage in several specific areas: “Lake Saint-François and on the Richelieu River, coverage should be enhanced … in the Estuary, the coverage is poor in spots…as well as in some bays along the north shore of the Gaspé Peninsula … on the Magdalen Islands, the radio station should be relaunched because adequate VHF coverage is provided only close to the islands, creating communication problems, especially during poor weather conditions. …on the Lower North Shore, a repeater should be moved or added because current coverage is uneven in Saint-Augustin and mariners need CBs to communicate. The VHF signal emitted by the equipment in Newfoundland can be picked up only in Blanc-Sablon … in the Arctic, repeaters should be installed along the Koksoak River, because mariners, especially fish harvesters, cannot communicate with the Coast Guard and have to install CBs.” (Quebec)

• Some recreational boaters noted a concern regarding VHF coverage in and around Charlottetown because of “difficulty communicating with MCTS Sydney which would have been problematic in a distress situation.” (Maritimes)

• “Concern was expressed about the lack of VHF coverage on the Labrador coast, and gaps in the Bay of Islands, White Bay and South Coast. … the lack of VHF

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service in Labrador was identified as a major concern. … it was felt that this was a major safety issue and lives may be lost at some point because of the lack of service.” (Newfoundland)

“It was also mentioned that in the Saint John area, more or better radar coverage was required particularly in the area near the Canaport Monobuoy…There are currently blind spots in an important traffic area adjacent to the new LNG terminal.” (Maritimes) ii. Requests for additional services not included in current LOS

Aids to Navigation

Requests for additional aids to navigation related to the timing of the placement of floating aids, the availability of electronic aids to navigation (DGPS) and the reinstatement of fog horns.

• Sport fish harvesters and recreational boaters: “Some west coast Vancouver Island clients feel that fog horns at Cape Beale and Leonard Island should be reinstated. … the fog horns are very useful during the extreme weather conditions that occur on the West Coast.” (Pacific)

• In Central and Arctic region, it was reported that “Arctic users are looking for an electronic aids to navigation system that is comparable to the system in place for southern users – i.e. accurate positioning such as DGPS combined with up-to-date electronic charts.” (C&A)

• “The Port of Churchill questioned why floating aids to navigation were not being placed, lifted or maintained by the CCG. This related to a long standing issue concerning the disposition of the [aids to navigation] within the boundaries of the privately owned port, and the CCG’s ability to provide and maintain them to LOS standards. … The Port of Churchill is seeking resolution of the issue surrounding the provision of aids to navigation to the port.” (C&A)

• The shipping industry and the governments of Nunavut and the Northwest Territories (NWT) “all indicated their expectation that over the next five years the Arctic shipping season will begin earlier and end later thus needing an extended [aids to navigation] season over current practices.” (C&A)

• “Earlier placement of the buoys in the Shippigan channel was a concern raised by those directly affected.” Clients would like aids to navigation to be placed earlier in the season (Maritimes)

Waterways Management

Shippers in Central and Arctic Region noted that they “would like access to high resolution dredging survey charts so that they can integrate the latest data into their electronic navigation systems.” (C&A)

• “It has also been noted that no regular surveys are conducted of [harbour approaches].” (C&A)

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The shipping industry in Quebec Region had the following requests relating to waterways management:

• “Support implementation of equipment and technology to ensure optimal use of the water column for shipping; and include the winter season in the water level forecast service, and disseminate the information on a daily basis.” (Quebec)

• “Ensure that booms and islands used to control ice in Lake Saint-Pierre remain operational, and add booms in the downstream section of the lake are operational.” (Quebec)

In the Maritimes region, it was requested that the Canso Canal season be altered to coincide with ice conditions.

• “Although pleased with the service, clients asked if the Canso Canal operational season could be altered to coincide with ice conditions in light of recent climate conditions.” (Maritimes)

Environmental Response

Clients requested additional services relating to CCG cooperation with ports and companies in the areas of response and preparedness.

• Port Authorities: “It was suggested that ports with ER Community Packs or First Response Units should have an agreement with the CCG to access the equipment in the event of urgent need when no other timely alternate exists.” (C&A)

• “Coast Guard should meet with the major companies in Placentia Bay and develop a cost shared plan for environmental cleanup and equipment.” (NL)

Some clients noted that industry and Arctic communities could benefit from increased training provided by CCG.

• “The Arctic Regional Advisory Council stated that more environmental response training should be provided to Arctic communities.” (C&A)

• Shipping industry: “ensure expertise transfer between the Coast Guard and the industry, for example through training sessions.” (Quebec)

Icebreaking

In Quebec and Central and Arctic Regions, various clients (shipping industry, port authorities, fish harvesters and the Government of Nunavut) are requesting increased levels of service for icebreaking, specifically, an extended season.

• “Clients feel the LOS are not being met in Lake Ontario and the Seaway, and the shoulder seasons of the Arctic.” (C&A)

• “Great Lakes and Arctic shippers indicated they are working to increase the duration of their season and there is concern that the CCG will not be able to extend its Icebreaking LOS dates to encompass an expanded season.” (C&A)

• The government of Nunavut: “indicated that it is developing its own fishery and expects its vessels will require icebreaking services to arrive/depart from Nunavut ports from July through December. ... anticipates year-round shipping associated

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with resource extracting in the arctic commencing over the next five years and believes increased ice breaking support will be required.” (C&A)

• Port of Churchill: “is actively promoting its port and anticipates that as the early November ship activity continues to increase, so does the requirement for ice breaking support.” (C&A)

• Shipping industry: “in the Seaway, ensure that an icebreaker is available as of March 20 and that the icebreaking services enable convoys to meet up.” (Quebec)

• Fish harvesters: “icebreaking needs to be performed earlier, for example 10 days before the Nordik Express, to ensure that vessels can leave on the anticipated launch of the seal hunt.” (Quebec)

Clients in all four regions where icebreaking services are provided have suggested additional vessels – both to better meet the current LOS and to increase services3.

• Great Lakes Marine Advisory Board (MAB) Icebreaking Review Subcommittee recommends a “3rd icebreaking capable vessel for Great Lakes.” (C&A)

• “The Coast Guard fleet has only four icebreakers, which is clearly insufficient to meet needs, especially during busy periods at the end of winter. Moreover, the vessels are getting older, and although they are well maintained, they are increasingly less reliable.” (Quebec)

• Clients in Quebec region asked that the following improvements be made, including “increase the level of service because there are insufficient resources at all times, but especially in the spring:” o “In the Trois-Rivières area, ensure that a T-1200 icebreaker is available and

keep Lake Saint-Pierre clear of ice jams, especially at night, because vessels will be operating in both directions in winter 2008.” (Quebec)

o “In the Saguenay region, inform the industry of the icebreaking schedule. In addition, it was remarked that using a T-1100 icebreaker increases navigation times and costs for Panamax vessels.” (Quebec)

• “It was felt that a significant reason for the Coast Guard in Newfoundland being able to maintain its service during the past winter was the use of additional icebreakers from other regions. If these vessels had been required in their own Regions, it was felt that the service in this Region would have been drastically reduced.” (NL)

• “The port of Corner Brook felt that not having an icebreaker in Corner Brook was detrimental to the port and they have been very lucky that there has not been much ice in the Gulf for the last few years. Timely icebreaking is critical to their business.” (NL)

Marine Communications and Traffic Services (MCTS)

Clients in the Central and Arctic region request that the levels of service for MCTS to be increased, allowing for a longer season in the north. This request is part of the general request that all CCG services be available for a longer season, given the expectation of a

3 In Maritimes region, the comment related to the decision to relocate two ice breakers from the port of Halifax to the Newfoundland region.

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longer shipping season and the introduction of a new fishery development by the Government of Nunavut. • “The Government of Nunavut expressed the need for the MCTS operational season to

coincide with the conduct of economic activities...as opposed to pre-determined dates. ... Past and current practice has been to close the MCTS centres on pre-determined dates which has frequently resulted in Centre closure with marine traffic and fishing still operating within the Centres’ area of responsibility.” (C&A)

Clients from the shipping industry would like to see the Automatic Identification System (AIS) available in all Canadian waters. In addition, clients have requested that the Integrated Information System on Marine Navigation (INNAV) be more widely available.

• Shipping industry: “sees e-navigation as important future ‘technology’ that should be considered by CCG.” (Pacific)

• “Shippers on the Great Lakes expressed the desire to see the introduction of AIS that would communicate navigation safety information; and the linkage of CCG, St. Lawrence Seaway and [United States Coast Guard] vessel traffic management information systems to provide integrated and ‘seamless’ service. The industry has invested in electronic navigation technology to increase the efficiency of their operations, and would like to be able to take full advantage of their investment.” (C&A)

• Shipping industry: “ensure that vessel AIS position is available along Canadian waters; ensure access to the INNAV, because users are very dissatisfied with the usage restrictions. Access to INNAV outside the office (from home or elsewhere while on a business trip) is crucial to be able to monitor ship positions in Canadian waters. Moreover, add ice charts, as well as tidal, current and weather observations to the system so that all information is available on one page.” (Quebec)

Search and Rescue

Clients in many regions requested that SAR services be available for a longer season to better coincide with the schedules of recreational boaters, ferries and the shipping industry.

• “Concern was expressed that the lengthening of the Arctic shipping season and the potential for year-round shipping associated with resource extraction will result in increased demands for the SAR program over the next five years.” (C&A)

• “Ferry operators from New Brunswick were interested in more SAR services being available to support their year round ferry operations on the Saint John River, particularly in the winter.” (Maritimes)

• “The Canadian Power and Sail Squadron were interested in seeing a longer season and more capable vessels for the CCG Inshore Rescue Boat (IRB) service in order to serve their sector in the fall.” (Maritimes)

• Recreational Boaters: “suggested that the Inshore Rescue Boat (IRB) season should be extended [until late October].” (NL))

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Clients in four of the five regions suggested the acquisition of additional SAR equipment and resources.

• Shipping industry: “is dissatisfied with the SAR services provided on the North Coast and stressed the need for a rescue helicopter in the area.” (Pacific)

• Fish harvesters: “on the north coast were also dissatisfied with the SAR service provided. Northern clients feel that the remote location and extreme weather conditions warrant a rescue helicopter dedicated to the north coast. In addition, clients noted that the increase in tanker traffic emphasizes the requirement in the north for improved vessels, provided by either CCG or industry, that can provide emergency assistance as well as escort and towing capabilities.” (Pacific)

• Recreational boaters: “recognizes that the SAR staff are phenomenal but claimed that the staff need modern rescue vessels, helicopters and equipment. The lack of a dedicated SAR vessel in Victoria was also a significant concern.” (Pacific)

• On the Lower North Shore, clients requested: “add a primary response unit… On the Magdalen Islands, the SAR unit … is too slow and too small to ensure efficient response on the northern side of the Islands during poor weather conditions.” (Quebec)

• “CCGA should be provided with more SAR equipment such as tow lines, person-in-water retrieval apparatus (horse-collars or Jason’s Cradles) and SAR pumps.” (Maritimes)

• Fish harvesters: “...the high level of fishing activity north of PEI was not being adequately served by SAR and that a new fall experimental Tuna fishery would keep fishers at sea into December. They expressed concern that the CCG would not have the resources available to respond to an emergency at this time of year.” (Maritimes)

• “There should be a Coast Guard resource based on the Labrador Coast. ...the lack of Coast Guard SAR presence in Labrador is unacceptable.” (NL)

• Shipping industry: “Newfoundland and Labrador Region has the largest area of responsibility, the most fishing activity (both inshore and offshore), an increasing amount of offshore exploration/exploitation activity, the harshest weather and ice conditions and yet, it seems we do not have the resources to cover the area properly.” (NL)

C. Requests to consider reducing services

Aids to Navigation

The usefulness and cost of LORAN-C was questioned in four of the five regions. Many CCG clients – including the shipping industry, pilots, recreational boaters and fish harvesters indicated that LORAN-C is not being used or is being used less and less. The message from participants in the Pacific and Newfoundland regions was that LORAN-C is no longer being used for navigation safety. In the regions of Quebec and the Maritimes, it was indicated that LORAN-C is still being used, however, by only a limited

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number of clients4. Clients in Pacific, Maritimes and Newfoundland regions indicated their view that the Canadian Coast Guard should discontinue providing LORAN-C.

• “Industry is not a user of LORAN-C and questioned the continued support by CCG. ... The fishing industry does not use LORAN-C for navigation and [commented] that CCG should not be investing any money in LORAN-C if it is not being used. Clients indicated that LORAN-C is not used as a backup navigation system. … Recreational boaters do not use LORAN-C and recommend that CCG does not invest any more money in LORAN-C.” (Pacific)

• “In the St. Lawrence Estuary and Gulf, the GPS system is used by all commercial vessels, and the DGPS and the Loran-C system are not used often. Only ships that have fixed routes still use the Loran-C system. All fishers have a GPS system, with a Loran-C system or a DGPS. The Loran-C is apparently used less and less, except in Newfoundland and in Chaleur Bay.” (Quebec)

• “[CCG] should no longer provide this service and re-direct the LORAN-C portion of our budget to other aids to navigation requirements.” (Maritimes)

• “The usefulness and cost of Loran C was questioned. It is a system that is not used by the mariners in this region.” (NL)

There are some client groups in some regions that do not use DGPS. Client groups noted as specific users of DGPS are pilots in commercial channels and some fish harvesters in Quebec. Fish harvesters and recreational boaters in Pacific region and recreational boaters in Quebec noted that DGPS is not a tool that they use. In Central and Arctic region, it was reported that “Arctic users are looking for an electronic aids to navigation system that is comparable to the system in place for southern users – i.e. accurate positioning such as DGPS combined with up-to-date electronic charts.” (C&A) Environmental Response

Some representatives from the shipping industry in Quebec region suggested reviewing environmental response equipment available to determine if there may be duplication with other organizations. However, clients in Quebec also asked that CCG ensure that the necessary equipment is available for major incidents.

• Shipping industry: “consider streamlining some services and equipment, which may already be provided by the petroleum industry.” (Quebec)

2) OPERATIONAL ADJUSTMENTS

Operational adjustments in this report are considered to be service requests received from clients that that relate to how the levels of service are applied regionally, management and coordination, information and reporting and regional service delivery.

4 In the Maritimes Region, for example, “There are some fishermen that convert their GPS coordinates to LORAN C coordinates because they are more familiar with the numbering system as it relates to traditional fishing ground locations.” (Maritimes). In Quebec, LORAN-C is used by ships with fixed routes and some fish harvesters (Quebec).

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A. LOS not consistently applied

Clients in several regions requested that CCG review the application of LOS priorities for icebreaking services across the regions. In particular, fish harvesters expressed the view that differences between regions may result in “unfair advantage” for certain fish harvesters.

• Great Lakes MAB Icebreaking Review Subcommittee: “Recommend Coast Guard implements an operational process for addressing Levels of Service for icebreaking in Eastern Canada including the Great Lakes and St. Lawrence Seaway. This process should address regional differences and priorities, prescribe co-operative resource management from existing Operations Centres, and provide a mechanism for decision-making should issues or conflicts arise.” (C&A)

• “The priorities for icebreaking services seem to differ from one region to another across the country, and there is concern about the lack of flexibility in icebreaker deployment to respond to unforeseen events. (Quebec)

• Fish harvesters noted: “the Coast Guard, in Newfoundland Region, seems to give higher priority to icebreaker services for fishing ports than Quebec Region. This situation is negatively affecting Lower North Shore residents, particularly during the opening of the seal hunt.” Therefore request: “ensure that the same level of service is provided across Canada; ensure better coordination between Coast Guard icebreaking activities and Fisheries and Oceans Canada fishing monitoring activities.” (Quebec)

• “Both crab and seal harvesters in the Gulf expressed concern that fishing ports in Quebec, such as the Magdelan Islands and Gaspe Peninsula were broken-out before similar ports in New Brunswick and Cape Breton. They felt that this was creating an unfair advantage for one particular fleet in these spring fisheries and indicated a variance of LOS between CCG regions.” (Maritimes)

B. Management and coordination

Environmental Response

Clients in several regions noted the importance of improving the management of environmental response and improving coordination with provincial governments and industry. Clients also noted the importance of establishing response plans and procedures and agreements between agencies.

• “Industry suggested that CCG’s response plans and systems should be compared to and aligned with the response plans of the Province and Environment Canada. For example, Incident Command System (ICS) is an internationally known management system standard that should be used by CCG as opposed to CCG’s [Response Management System].” (Pacific)

• “The [Western Canada Marine Response Corporation] would like there to be a standing response contract agreement between CCG and RO’s. Finally, industry recommended that CCG should provide better stewardship of the provision of debrief results back to industry.” (Pacific)

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• Shipping industry: “Sign an agreement between the Coast Guard, Transport Canada, Environment Canada and the Quebec government in order to reduce response times and costs, in particular for the Sept-Îles port authority in cases of land spills or spills of unknown origin” (Quebec)

Search and Rescue

Clients suggested that better protocols and communications be established between CCG, Sûreté du Quebec, and municipal emergency response services.

• “Establish effective communications protocols between the Coast Guard, the Sûreté du Québec and the municipal public security and fire protection services. Shoreline residents calling 911 instead of the Coast Guard’s 1-800-rescue number is a serious problem.” (Quebec)

Marine Communications and Traffic Services (MCTS)

Shipping industry representatives in Quebec expressed concerns regarding the Alerting Network.

• “Communications problems are noted between MCTS centres and [Transport Canada (TC)], mainly in advising seaway inspectors on evenings and weekends. A meeting is recommended between CCG, TC and the [St. Lawrence] Seaway to review marine communications agreements, as required.” (Quebec)

“The Transportation Safety Board (TSB) asks for the [Alerting Network] to be activated immediately, even if not all the relevant information is available, and for all communications to be recorded when an alert is triggered.” (Quebec)

C. Information and Reporting

Aids to Navigation

In Pacific region, clients requested that information be made available to clients regarding “the annual budget required to staff lighthouses … A few members in the fishing industry questioned the return on investment for this service.” (Pacific)

Environmental Response

Clients in two regions expressed a desire for more information regarding environmental response capacity and incidents.

• “Clients would like to see details of the marine environmental response plan for the north coast ...Overall, all users would like more information about the locations and number of spills and equipment by category in the Pacific Region. This should be reported on an annual basis.” (Pacific)

• Recreational boaters: “provide access to statistics on marine pollution incidents involving pleasure boaters” (Quebec)

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D. Service Delivery

Aids to Navigation

In Quebec region, clients from the shipping industry noted that the CCG fleet is not adequate to ensure the quickest seasonal placement and removal of aids to navigation. In this regard, they recommend expanding the use of four-season buoys and commend the use of hovercraft.

• “The shipping industry is satisfied with buoy laying and removal services. However, a buoyed and lighted channel should be made available as soon as possible in the spring and for as long as possible in the fall. In this respect, the Coast Guard fleet is too small to ensure timely buoy-tending services, and the project to replace seasonal aids with lighted all-season buoys should move ahead. Using air cushion vehicles to provide buoy-tending services, control ice jams and perform icebreaking in shallow water is an excellent initiative.” (Quebec)

In addition, clients in Quebec region commented on the lack of consistency in terms of standards of buoying – both in the case of private buoys and channels for which the responsibility has been transferred to a third party.

• “More information is needed about buoy standards, because the number of private buoys that may not meet current standards has increased significantly in inland waters and at marina approaches. Using a different approach for channel buoying—the management of which the Coast Guard transferred to a third party—can create confusion among boaters, as is the case in the Trent Severn Canal.” (Quebec)

Waterways Management

Representatives from the shipping industry requested that waterways be developed, in addition to being managed.

• “This program is very important for the shipping industry, which is of the opinion that the Coast Guard should not only manage, but also develop waterways to ensure efficiency, competitiveness and environmental protection.” (Quebec)

• Request from the shipping industry: “develop waterways so that larger ships can be used in the commercial channel and the St. Lawrence Seaway … ensure that anchorage zones outside the commercial channel, especially between Bécancour and Grondines are operational.” (Quebec)

Icebreaking

In the Maritimes region: “On more than one occasion stakeholders expressed their displeasure with CCG in the decision to relocate the two major icebreakers from the port of Halifax to the Newfoundland and Labrador region. They expressed their frustration in terms of the justification for this decision and felt it will ultimately have a negative impact on icebreaking services for their areas of operations.” (Maritimes)

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Marine Communications and Traffic Services (MCTS)

Clients in many regions made comments about various aspects of Marine Communications and Traffic Services:

• “The shipping industry also asked if the current number of calling in points is required.” (Pacific)

• Fish harvesters: “Overall, they would like to see communication over the radio focused on the necessary radio traffic. This is a safety concern since many turn down or turn off their radios due to excess chatter. …There were reports of significant background noise during weather reports in Prince Rupert.” (Pacific)

• Quebec clients noted: “the excellent route planning service for small vessel users,” request: “better inform pleasure boaters of VHF communications procedures, and of the importance of reporting their route plans to MCTS centres.” (Quebec)

• “There was some concern raised about the level of actual traffic control directives currently offered by MCTS Saint John in the port of Saint John. The level of control in the Bay of Fundy was deemed to be adequate. It was felt that in the Port of Saint John the provision of traffic information was adequate but the actual control of traffic had diminished from what it had been in the past. From these discussions, it was apparent that the clients wanted MCTS to have more control in directing traffic in the actual harbour.” (Maritimes)

Environmental Response

In Pacific Region, clients felt that the Levels of Service should reflect the actual response capability in northern waters of British Columbia.

• “Clients question the current means of reporting response capability and standards for recovery, given the distances and weather conditions in the north. Clients feel the published standards for oil recovery are misleading and reflect best case scenarios.” (Pacific)

Some clients expressed concern regarding the location of environmental response equipment.

• “Ensure that the necessary equipment is available to respond to a major incident in all regions across Canada, including the Arctic.” (Quebec)

• “Coast Guard should have more heavy weather oil spill cleanup equipment. Concern was expressed that the cleanup equipment should be stationed closer to Placentia Bay rather than be based in St. John’s. ... There should a Coast Guard towing capable vessel stationed on the south coast for oil spill prevention.” (NL)

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3) NOT PART OF CURRENT CCG MANDATE

A. Prevention – responsibility of other government departments

Pollution Prevention

Clients noted the importance of pollution prevention. • “In all sessions, clients focused on the increased need for preparedness and

prevention. Issue of derelict vessels and the role of Environmental Response when there is a potential threat of pollution was of high importance to clients5.” (Pacific)

• Recreational boaters requested: “conduct environmental audits of pleasure craft, like in the United States.” (Quebec)

• Fish harvesters: “ensure quality control of ballast water and dredging management to prevent environmental contamination by invasive species.” (Quebec)

• “It was pointed out to the group that any offshore oil spills are the responsibility of the Canada/Newfoundland and Labrador Offshore Petroleum Board (CNLOPB). There is a MOU in place should the CNLOPB request assistance from the Coast Guard in the event of an oil spill.” (NL)

Boating Safety – Prevention of Search and Rescue

Clients in several regions noted that prevention of search and rescue incidents should be a priority for the CCG.

• “The number of search and rescue cases has not dropped since the Competency Program was set up and the Office of Boating Safety was transferred to Transport Canada.” CCGA “mentioned that awareness and prevention activities for pleasure boaters have a direct impact on the number of SAR cases. … consider the option of the Coast Guard taking back responsibility for boating safety prevention.” (Quebec)

• Quebec clients noted: “the excellent route planning service for small vessel users,” request: “better inform pleasure boaters of VHF communications procedures, and of the importance of reporting their route plans to MCTS centres.” (Quebec)

• Representatives of St. Lawrence pilots: “a system should be set up to address and follow up on pilots’ complaints regarding pleasure boating in the commercial channel.” (Quebec)

• “The representative from the Port of Saint John was interested in seeing the CCG or the Federal Government conduct not just a SAR risk analysis in his area, but a more comprehensive security risk analysis covering the southern Bay of Fundy to identify the risks of various types of accidents or potential terrorism threats and the effects of such.” (Maritimes)

5 Note: CCG Environmental Response has a responsibility when becoming aware of a potential pollution threat caused by a derelict vessel. It seems that clients are advocating a more proactive role for CCG which would not be part of the CCG mandate.

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• “Coast Guard should be playing a pro active role in educating fishers about [Emergency Position Indicating Radio Beacons (EPIRB)] and other technology for alerting SAR resources.” (NL)

B. Weather and Ice Information

Clients expressed some dissatisfaction with the type of weather information provided and its frequency. • “The fishing industry is dissatisfied with the provision of weather information and

requested an overall review of weather reporting. In areas adjacent to the U.S. border in British Columbia, clients listen to American weather reports and feel that the information provided is far superior.” (Pacific)

• Clients in Quebec region (Chevery) noted that weather reports from Environment Canada were not updated frequently enough. (Quebec)

Clients in all regions expressed a desire for greater access to ice information. It was noted that ice charts should be available for a longer season – beyond the icebreaking season itself. • “Shippers in the Arctic noted that their need for ice information and charts continues

even after the CCG icebreakers leave the North.” (C&A) • “There was concern expressed by the operators of vessels fishing in Davis Strait that

they are unable to obtain ice information (charts and forecasts) or weather forecasts since they are working outside the traditional period for activity in the Arctic and these products are not being disseminated by Environment Canada.” (NL)

C. Outside CCG Mandate – not responsibility of other federal department

Clients expressed concern regarding the divestiture of dredging services and reduced channel depths:

• “The commercial fishing industry expressed concern of reduced channel depths in the smaller side channels of the Fraser River. Local fishers feel there are fewer places for moorage, and their larger vessels are touching bottom and grounding. The fishers stated that the expectation that users can pay for divestiture of specific services such as dredging are unrealistic as it places too much of a financial burden that can not be supported or sustained by the fishing industry.” (Pacific)

• “The Shipping industry noted that without overarching standards and project funding management, dredging is ‘all over the map’ and varies port to port, and between ports and federally dredged waterways. This along with inconsistent dredging survey data (i.e. the quality of the data varies according to the port and contractor) adds to voyage planning workload and safety concerns.” (C&A)

• Port Authorities: “There is an expectation that “someone” within the federal government is, or should be, responsible for dredging in areas not already covered by the CCG or the port authorities. Specific reference was made to the approaches to harbours (i.e. areas outside of the port boundaries) and to public access wharves, such as government wharves” (C&A)

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Recreational boaters in the Okanagan and Shuswap areas of the interior of British Columbia were concerned with the lack of a CCG presence on the lakes and the significant increase in recreational boaters and SAR incidents. There was an overall feeling that CCG is highly respected and that the presence of CCG on the interior lakes of BC would do a lot for prevention. Clients felt the Responsible Recreational Boating (RRB) Program should be reinstated (Pacific). 4) COMMENTS FROM FEDERAL PARTNERS

As part of the Levels of Service Review, federal partners were informed of the Review and invited to provide comments. Officials from several federal government departments and agencies6 noted in their comments their appreciation of the services provided by the Canadian Coast Guard and the importance of continuing to work together. The correspondence from the Deputy Minister of Transport, Infrastructure and Communities (TC) highlighted the importance of the “cooperative relationship” that exists between that department and the Canadian Coast Guard. The letter made note of several specific areas where it is important that CCG and TC work together, sharing expertise and information. In particular, the letter conveyed the concerns from an advisory group to the Minister of Transport with respect to CCG’s environmental response capacity in the Arctic given the perceived increased potential for pollution as a result of increased marine activities in the North. In addition, the involvement of CCG in the “promotion of a safety culture” was noted as a specific area in which Transport Canada and CCG could work together. Other federal partners made note of the essential role that CCG fulfils in providing support for science activities (science platforms and marine weather programs) and marine security. It was suggested that the document Levels of Service and Service Standards should include a description of these important roles and other services provided by CCG to other federal government departments and agencies. Federal partners echoed the view expressed by clients that the need for icebreaking services and ice information will increase in the future with the increase in shipping and research activities in the arctic.

6 Comments were received from various federal partners, including the following: the Department of National Defence, the Department of Transport, Infrastructure and Communities, the Royal Canadian Mounted Police, the Canada Border Services Agency, Environment Canada and the Canadian Hydraulics Centre (National Research Council of Canada).