Evidence of meeting #68 for Foreign Affairs and International Development in the 41st Parliament, 1st Session. (The original version is on Parliament’s site, as are the minutes.) The winning word was north.

A recording is available from Parliament.

On the agenda

MPs speaking

Also speaking

Laureen Kinney  Associate Assistant Deputy Minister, Safety and Security Group, Department of Transport
Jody Thomas  Deputy Commissioner, Operations, Canadian Coast Guard, Department of Fisheries and Oceans
Renée Sauvé  Director, Global Marine and Northern Affairs, International Affairs Directorate, Department of Fisheries and Oceans
Jacqueline Gonçalves  Director General, Maritime Services Directorate, Canadian Coast Guard, Department of Fisheries and Oceans
Kells Boland  Project Manager, PROLOG Canada Inc.

11:55 a.m.

Associate Assistant Deputy Minister, Safety and Security Group, Department of Transport

Laureen Kinney

I think we are looking at some of the options industry is putting forward, looking at probably what could be seen as rather speculative approaches. Some oil is being transshipped by train now to the east coast, but not a lot. In terms of going to the north, you're talking a lot of infrastructure and a lot of questions around that. So, yes, we are looking at it and we work with various agencies. We get information from the Transportation Safety Board, etc., as well as our own information from the coast guard, but it's probably not imminent.

11:55 a.m.

Conservative

John Williamson Conservative New Brunswick Southwest, NB

I even have that in my riding, a little boom in McAdam with the trains going through bringing in crude from the north to the Irving plant.

Are protocols being updated to deal with these oil shipments? I don't want to use the word “tanker,” because when I say tanker, I think big, I think huge. How are protocols being improved to ensure that if a spill were to happen, it would be adequately dealt with?

February 28th, 2013 / 11:55 a.m.

Associate Assistant Deputy Minister, Safety and Security Group, Department of Transport

Laureen Kinney

There are a number of areas there. Of course prevention is a key concern, and the regulatory regime is where we focus that, so I have two points.

One of the major things we're doing right now is a major risk assessment across Canadian waters to look at a better way of evaluating those risks on a more even basis and to be able to understand the comparative risks and some of the factors in terms of effective mitigation.

We've done a fair bit of work in terms of what we call “term POLE assessments”, where we look at a specific proposal for a terminal, etc. Those represent a broad consensus of work across departments to look at the whole picture. But in terms of the north and the activities up there, we get involved in supporting the Nunavut Impact Review Board, looking at particular projects up there, looking at a lot of specific details like overwintering of oil in tankers to support the development of a site. Also, in our regulatory regime our people are very active in these areas, and they work very closely with the communities and the suppliers, etc. There's a fair amount of flexibility in terms of how you can apply the regulatory regime, and wherever we see a need to increase that, we have various policy requirements we can add, or we can look at regulatory changes.

11:55 a.m.

Conservative

John Williamson Conservative New Brunswick Southwest, NB

Is bringing in oil by ship currently the best and/or the safest way to do so in the north?

11:55 a.m.

A witness

Yes.

11:55 a.m.

Conservative

John Williamson Conservative New Brunswick Southwest, NB

Thank you.

11:55 a.m.

Conservative

The Chair Conservative Dean Allison

Thank you, and to our witnesses, thank you very much for being here today. We appreciate all the input.

We're going to suspend for a couple of minutes to get set up for a video conference with our next witness, so I'd ask all the members to stay close by.

Thank you once again.

12:05 p.m.

Conservative

The Chair Conservative Dean Allison

All right. I think we have most of the members back to the table now. I want to welcome by video conference from Whitehorse, Yukon, from PROLOG Canada Inc. Kells Boland, who is the project manager.

Welcome, sir.

I know you have a presentation for us, so I will turn it over to you to start your presentation, and after you've finished we can go around the room and ask some questions. How does that sound?

12:05 p.m.

Kells Boland Project Manager, PROLOG Canada Inc.

Thank you and good morning. It's a lovely morning here in Whitehorse. I think I saw some of you shovelling slush last night on the news, but we have a nice day here.

This morning I would like to go through about 10 slides or pages with you. I want to give you a sense of what is actually happening in the Arctic in terms of Canadian transportation to and within the Arctic. That's in two major areas. One is inbound resupply, and that's actually the only commercial transportation activity taking place in the Canadian north right now. Second, I want to give you a sense of the impending resource development international export traffic that will be taking place in the near to mid-future within the next 10 years or so. Finally, I want to give you a bit of a look at the transportation changes that are taking place to facilitate that resource development and the transportation it will entail.

Before I do that, I'll just give you a little bit of a background on PROLOG. PROLOG was established over 30 years ago in Calgary initially to look at logistics planning for large pipeline projects in the north. Since that time we've branched out a bit. Half our businesses is private sector projects and half is government policy and planning studies in the north. In fact, in 1985 we did our first Arctic transportation study, and we've done a similar study to update that about every 13 years, the most recent one, a northern transportations system assessment, being completed about a year and a half ago.

In 2005, I was asked, on behalf of the State of Alaska and the Government of Yukon, to manage the feasibility study for an Alaska-Canada rail link project. To do that, I was told to set up an office in Whitehorse, and that's the office I still manage today, although we completed that specific project about two years ago.

The next 10 pages I'm going to go through are based on what we're currently doing and have done recently in transportation-related projects in the north. It will give you some sense, from the practical perspective of what we've done, of what transportation is like in the north.

The next page shows you what Canadian Arctic resupply and infrastructure that supports it look like today. You'll see there are six ports. I hesitate to call them ports, because they're very rudimentary. Three of them are deepwater docks and three of them are barge terminals. You will notice two of those are actually in Alaska.

I'll start with Skagway, Alaska, which is Yukon's port for exporting Yukon minerals to a tidewater export position. It is all of 18 miles from the Canadian border, but that is the port for exporting minerals from Yukon. Next is Prudhoe Bay in Alaska. That's a former and future receiving port for barge resupply, again through Canada into Alaska. Then of course there's the Alaska Highway, which is Alaska's highway through Canada.

So that gives you a little sense of how this moves quickly, at least in a bilateral sense for international transportation. In my neck of the woods, there is a close relationship between infrastructure and transportation across the border.

I'll move down from the west here through the highway system that is in place. The Dempster Highway connects the port at Skagway all the way up to the western Arctic at Inuvik, with a winter ice road and summer barge service into Tuk on the Arctic coast.

Further south is the Mackenzie Highway, which provides a resupply link to the Hay River barge terminal for the Mackenzie River barge operations, again to Tuk and into the western Arctic. Then basically the rest of Arctic resupply in Canada is a sealift deep draft ship operation and the ports are sealift beaches. Cargo is lightered from a ship to a sealift beach in the case of dry cargo, and in the case of bulk fuel, using floater hoses from tankers.

The other dots shown on this map are docks that really aren't related to Arctic resupply. One is Churchill. In terms of resupply, it does provide a barge service into the Kivalliq region of Nunavut, but it doesn't get into the Arctic. The other one is Nanisivik, which previously was a lead-zinc mine with a deep draft dock that's now a fuelling facility for coast guard and navy ships.

It's skinny infrastructure, but we have a resupply system that works. What does it move? The sealift system itself moves about 400,000 tonnes a year. The highway system, which is relatively limited in the Northwest Territories, moves 500,000 tonnes a year. In Yukon, there's a fairly extensive highway system for a northern territory, and it moves 600,000 tonnes a year.

That's the traffic taking place in the north right now. I exclude aviation. I'm just talking about surface transportation, basically truck and marine. I want to give you a sense of how resource export development may change the scale of both the Arctic transportation and the infrastructure that is going to support it over the near future, within the next 10 years.

In the Western Arctic, it's iron ore. If you look at both the Baffinland Mary River iron mine prospect and Roche Bay, you'll see that 24 million tonnes a year would be exported from those two mines. If you look at the central Arctic, you'll see that it's base metal mines, and that totals in the range of a million tonnes of lead-zinc that would be exported from the Coronation Gulf region. Over in the far western Arctic are Beaufort Sea oil and gas and Mackenzie Delta oil and gas. Those are the sorts of resource developments that will require and will have to develop primarily port infrastructure, but also some roads, in order for the resource development exports to take place.

For the rest of this presentation, I want to give you a sense of how those resource-development-driven changes in Arctic transportation will be taking place. This next page shows it in the broadest circumpolar context. We've all heard about the warming in the north and what that means in terms of an extended navigation system in the Arctic. The shortcut between north Asia and northern Europe, which everybody talks about, is ultimately the polar passage, but between now and when that happens, it's the Russian northern sea route or the Northeast Passage, not the Canadian Northwest Passage. The Canadian Northwest Passage between north Asia and northern Europe is about 1,000 kilometres longer, so it just isn't in play as a shortcut between north Asia and Europe.

What it is in play for, as I talked about previously, is as an origin-destination, both for the origination of large-scale mineral exports to foreign countries—international trade—and a destination port for the resupply of those very resource developments that will be generating those exports.

That gives you a context for how the Canadian Arctic transportation system fits into the circumpolar transportation system, and for what we have to be concerned with and, quite frankly, what we don't, in terms of many container ships going back and forth between north Asia and northern Europe. It's going to happen ultimately across the pole but between now and then on the northeastern sea route, the Russian sea route.

I'll get to some of the specifics of infrastructure development that should happen with respect to those projects. The 800-pound gorilla in the room, or the $700-million port, is the Baffinland Mary River mine. It's obviously a very large mine. It already has a 100-kilometre road to Milne Inlet at the north end of Baffin Island, and it envisions a 143-kilometre railway to Steensby Inlet, which will be a large $700-million port south of the mine site.

What I've tried to show is a comparison of where we were about 15 years ago with the Nanisivik mine. That's the port that's now a naval port but was a mine and a deep draft export port. It exported about 110,000 tonnes of lead-zinc every year. Then we have the Mary River mine, as shown in the graph at the bottom of the page, at 18 million tonnes a year.

You can appreciate the difference taking place there, or that will take place there, just in terms of the marine activity. The ship that's in the inset there; that's about a 50,000-tonne vessel. It will actually be a capesize vessel, which is about 100,000 to 125,000 tonnes. These icebreaking ore carriers have not been built yet, and there will about two or three a week. You can appreciate the huge change in the scale of Arctic transportation, marine transportation, activity year-round that will be taking place as a result of that project.

The next slide gives you a little sense, moving further west, of how the warming north and extending the Arctic shipping season is already changing the shipping service provided for resupply in the north and also for the export that will be taking place. I will explain how the changes are taking place in the Coronation Gulf region.

Ships coming in from Montreal that normally serve the eastern sealift are now entering the western sealift market, which is the Coronation Gulf—the exclusive realm of Mackenzie River barges out of Hay River for as long as we've been providing resupply services to the north. This is a recent phenomenon, a result of both the warming north and the extended navigation system, allowing eastern sealift ships to enter the western Arctic, but stimulated by resource development—in this case, the Newmont mining project, which is currently in abeyance. That opportunity to support that mine gave those ships the ability to come in and provide an alternative service to the Mackenzie River service. At the same time, that Mackenzie River barging operation has been supplemented by west coast sealift deep draft barges coming in from Vancouver. So all of a sudden, we've moved from a single-supply source, which is Edmonton, the Mackenzie River into the western Arctic to sealift ships from Montreal and sealift barges from Vancouver, as well as Mackenzie River barging.

That gives you a sense of fairly dramatic changes taking place in this area. So in that Coronation Gulf area—just to give you a feeling for the resource development projects—three relatively large-scaled projects are all taking place in the same general area, each with its own port and road. Roberts Bay is the port for Newmont mining projects, and Bathurst Inlet is the port for Xstrata Zinc’s Hackett River project and Grays Bay is the port and the road extension south for China Minmetals Izok Lake project, and those are lead zinc.

In turn, they're all getting into the same neighbourhood as the Northwest Territories’ diamond mines. So you can see there's a convergence of transportation capabilities, and maybe better opportunities to cooperate and not build three ports when you could probably do the same thing with one—I'll speak to that at the end here—in the area of Tuktoyaktuk, supporting oil and gas activity into the future.

I'll give you a sense of what's taking place in the Mackenzie Valley. It is in transition, with a proposal for the Mackenzie Valley Highway to replace the current two-season operation, which is summer barges and the winter ice road connection, right up to Tuktoyaktuk. That gives you a sense of the sort of transition taking place in the Mackenzie Valley corridor.

On the Yukon, I mentioned the Alaska port of Skagway, the Yukon port to tidewater export position for Yukon mines. That is expanding now, as we speak, from about less than 100,000 tonnes a year to, probably within the next three years, up to half a million tonnes a year. The Ore dock at Skagway, that’s being built out, about a $75 million expansion of that is going to take place courtesy of the State of Alaska to support Canadian exports through that Alaskan port.

Moving into an entirely different area that is equally important in terms of northern resource development, the two problems in the north are the lack of infrastructure in terms of resource development and the lack of transportation infrastructure and energy. We're currently working with a number of clients on the introduction of LNG as a low-cost substitute for diesel-fired generation in the north. The trade-off is it costs a lot more because it takes a lot more trucks to move LNG. It's about 60% of the density of diesel. Even though it costs a lot less to get the natural gas than it does to get the diesel, it's a trick to figure out how to move it. The length of time you can store it is somewhat limited.

This is a picture of the trucking operation; basically two large thermos bottles. It'll be moving LNG for Yukon Energy hopefully within a year from right now. That'll be about five trucks a day for the Casino mine in the next 10 years. They're off the grid, so they need their own source of energy. They can't afford diesel, so LNG is a solution. Inuvik is out of gas at the Ikhil gas field there; the two wells are out of production right now. They would have to go to diesel if they cannot get LNG.

That gives you a sense of some of the changes that are taking place. Some final wild cards may still come into play. These are things we've been working on from time to time: oil sands modules to the Athabasca oil sands, literally over the top of Alaska and the western Arctic and then north, up the Mackenzie River ultimately to the Athabasca oil sands. The Mackenzie Valley pipeline and the Alaska gas pipeline—in abeyance—may well come back into play.

In airships, we're doing some work for Northrop Grumman looking at what the airship market may be for resource development projects in the Canadian north. As I mentioned, the Alaska-Canada rail link seems to be regaining some political traction now in Alberta as a way to move Athabasca oil sands bitumen to a Pacific port.

Finally, building Arctic transportation infrastructure is often prohibitively expensive. Some of the suggestions that came out of our last northern transportation systems assessment with respect to how you can afford infrastructure in the north: Consider all options for cost-sharing partnerships, for multiple private and public sector needs can be met with a single multi-use facility. You may have gotten the sense in my presentation that there are several places where we've got multiple facilities that could all be providing the same service without being replicated expensively over and over.

Resource development projects increase the prospects for Arctic infrastructure investment. Private sector infrastructure investment viability increases with shared use solutions that lower costs. Piggybacking public sector needs onto private sector solutions may warrant public-private partnerships.

That's my presentation to you.

Thank you.

12:25 p.m.

Conservative

The Chair Conservative Dean Allison

Thank you, Mr. Boland.

We're going to start with the opposition. Mr. Bevington has the floor for seven minutes.

12:25 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

Thank you, Mr. Chair. I want to thank you, Mr. Boland, for your presentation.

We both come from areas of the country where these subjects are being talked about. I appreciate your presentation.

A few months ago, I went through a northern development report at Natural Resources. Much of this information would have been very valuable there. This is a foreign affairs committee, and the subject is our Arctic policy. It gets a little more difficult because it's foreign affairs. We need to focus on what that means, and that means the relationship with other countries.

I was interested in your very good slide on Arctic transportation in transition. That really does speak to something that we've had to put a rest to, the Northwest Passage as a likely shipping route. You've laid that out pretty clearly for us. We've only had one other witness go into that much detail. Could you expand on that idea here? We saw the Chinese icebreaker go through the polar passage this summer or last. How would you anticipate this moving ahead, this particular multinational route through the Arctic?

12:25 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

First off, I deal in commercial cargo transportation, so that's what I'm speaking of when I say that our Northwest Passage will not come into play for commercial cargo transportation or serving the market between north Asia and northern Europe. From that perspective, I'm suggesting we won't see a lot of activity in the Canadian Northwest Passage.

There will be other things that take place, and I'm not the one to speak to that, but I can tell you what they are. They're recreational vessels, cruise ships, a lot of research and development vessels. That sort of activity will take place, as well as the major thing I mentioned, which is that from the resource and development point of view we are an origin and destination market.

12:25 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

Those would be ships that would be licensed in Canada. They mostly would be in Canadian waters, so we would be dealing with them mostly domestically, wouldn't you say? Or would we need some kind of international agreement about ships that are moving through our waters, say, to take iron ore from Mary River?

12:30 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

Definitely when we're talking about bulk carriers, they're going to offshore markets. There's no legal requirement for them to be registered in Canada. They're in international trade. It's not a coastal Canadian operation that requires Canadian-crewed vessels, so you could very well be dealing with foreign vessels.

I didn't get down into the weeds about the difference between the Northwest Passage and the Northeast Passage, the northern sea route, but I see a lot of people suggesting that the northern sea route is shorter and therefore it would logically seem more attractive. But it's much more expensive because it's run like the Panama Canal. There's a tariff for using it. And with that tariff come navigation aids, and potential icebreaker support when you require it. On the Canadian side, we don't have that kind of a cost of using a sea route like that. I'd suggest that at some point we'd better have a user fee of some sort or everybody will maybe try to come and use the Northwest Passage for free.

There's an aspect there that I don't think has been played out completely in terms of addressing the trade-off. The fact that there's a tariff on the Russian side and we don't have one here plays to potential issues you're talking about that could happen with a number of vessels, especially recreational vessels and vessels that could slip under the radar in terms of search and rescue and potential spills and that sort of thing.

At some point I would think we would have to have the same sort of user pay, or some approach towards the users helping to finance a system that is just now coming into play in the Arctic. The Russians are way ahead of us in terms of figuring out how to manage that and how to pay for it.

12:30 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

The Chinese are building a very large icebreaker fleet. They put their icebreaker through the polar ice cap last year.

Now, we know the polar ice cap is rapidly depleting, especially in thickness, so if they're building these icebreakers, what are they building them for? Are they going to build them for commercial use to establish this polar passage that basically stays out of anyone else's water?

12:30 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

I'm really not the expert. That gets into the UN Convention on the Law of the Sea and right of innocent passage, and a lot of things that I'm not an expert on, so I had better not touch that. Sorry.

12:30 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

Well, you put it in here as a potential route. It is something that could change both those perspectives, of the Northeast Passage, and potentially in the future, the Northwest Passage.

If you go straight over the pole, it's the shortest route.

12:30 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

No question.

I don't think the Chinese icebreakers were built to open up that passage for commercial cargo or transportation. I would guess it's more for resource development and maybe some scientific work, but in international waters, as opposed to either the Northeast Passage or the Northwest Passage.

12:30 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

Wouldn't you think it would be a very good idea for us to watch very closely the condition of this ice moving forward so we know when this whole thing is going to open up? We've had projections that could be even as quickly as 2020.

12:30 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

Well, to your point with those icebreakers, the Chinese will be in a very good position to do exactly that, and we should be figuring out how to do it ourselves. Yes.

12:30 p.m.

NDP

Dennis Bevington NDP Western Arctic, NT

Thank you.

12:30 p.m.

Conservative

The Chair Conservative Dean Allison

Thank you very much. That's all the time we have.

We're going to move to the government side, and Ms. Grewal.

12:30 p.m.

Conservative

Nina Grewal Conservative Fleetwood—Port Kells, BC

Thank you, Chair.

Thank you, Mr. Boland, for your presentation.

Mr. Boland, in the future it is expected that the far north will be more open to shipping and transport through the Northwest Passage.

Where these challenges are presented by the expansion of travel in the north, could you tell us how well Canada's coast guard is equipped to address the possible influx of the ships?

12:30 p.m.

Project Manager, PROLOG Canada Inc.

Kells Boland

NORDREG certainly has a marine tracking service right now. It will certainly have to be expanded with the level of activity that's going to be seen in the Arctic, even with just the origin and destination traffic I talked about. You can see, for example, when the Mary River mine project gets going, there will be two to three ships a week year-round operating in and out of the western Arctic. It's just an order of magnitude beyond what the coast guard has been handling with just a summer sealift, basically, until right now. There's going to have to be a large magnitude of change to be able to regulate, monitor, and control the marine traffic in the Canadian Northwest Passage.

12:35 p.m.

Conservative

Nina Grewal Conservative Fleetwood—Port Kells, BC

With the north being an important part of our government's defence and development strategy, how well equipped is land transportation infrastructure to handle a higher volume of transport on northern highways and roadways? How is the transport situation improving to remote communities in that area? Could you tell us?