National Defence Committee on March 11th, 2009

[The Chair, Conservative, Maxime Bernier]

Greetings to everyone.

We will begin the seventh meeting of the Standing Committee on National Defence. According to the orders of the day,

pursuant to Standing Order 108(2) and the motion adopted on Monday February 23, 2009, we will commence our briefing on the effect of climate change in the mandate of the Department of National Defence in the Canadian Arctic.

Our witnesses today are: from DND, Mr. Gardam, Director General, Plans, Strategic Joint Staff, and Mr. Hébert, Director, Policy Development, Assistant Deputy Minister, Policy.

Gentlemen, go ahead.

[Philippe Hébert, Director, Policy Development, Assistant Deputy Minister - Policy, Department of National Defence]

Thank you very much, Mr. Chair, for having invited us to share our viewpoints and our knowledge on the Canadian Arctic.

My name is Philippe Hébert, and I am Director of Policy Development. As such, I am responsible for everything related to defence policy as regards the Canadian Arctic. My directorate liaises with Foreign Affairs and International Trade Canada, as well as with Indian and Northern Affairs Canada concerning strategy for the Canadian north. I therefore collaborate a great deal on a policy level with colleagues from other departments. I am very pleased to have the opportunity to discuss these topics with you.

I have a brief statement to make, touching on the security environment in the Arctic, the role and mandate of the Canadian Forces and some of our initiatives related to the north that are currently underway within the Canadian Forces. Commodore Gardam will then talk about the current military resources in the Arctic and the Canadian Forces' operations in the north.

It is certainly very timely for the committee to take a look at these issues now. As you undoubtedly know, the Department of National Defence and the Canadian Forces have been focusing more and more attention on the Arctic. This region—40% of Canada's territory, with a population of about 100,000 people—is undergoing significant changes, especially climate change. Retreating ice cover is opening the way for increased shipping, tourism, resource exploration, and new Arctic shipping routes are being considered.

From a defence perspective, we feel there is no longer a conventional military threat in the north like we had during the Cold War, but obviously sovereignty security challenges could become more pressing as the impact of climate change leads to increased activity throughout the region. While growing activity could lead to substantial economic benefits for Canada, an increasingly accessible north could also result in heightened illegal activity, such as organized crime or illegal immigration.

In addition, inappropriately designed ships could damage the fragile environment of the Arctic. There's also been a significant rise in the number of commercial flights that are passing over Canada's north, so there is greater risk of an air disaster in the region.

Finally, as economic and shipping activity increases in the north, the Canadian Forces may be called upon more often to provide support to ground and maritime-based search and rescue incidents.

The Government of Canada is responding to these changes by developing an integrated Northern Strategy, which was announced in the 2007 Speech from the Throne. This strategy is based on four pillars: exercising sovereignty in the Canadian north, promoting social and economic development; strengthening and devolving governance and protecting the environment.

National Defence contributes to the Northern Strategy by meeting the expectations of the Canada First Defence Strategy. This strategy states that the Canadian Forces will play an increasingly important role in the Arctic in coming years.

Specifically, the Canadian Forces will contribute to strengthening security and demonstrating Canada's sovereignty in the region through surveillance and control operations and a more visible presence. The military must also mount timely and effective responses to emergencies with other government departments. We are training for such eventualities.

It's important to note, however, that other departments and agencies retain the lead for dealing with most northern security issues. Despite this, they often draw upon the capabilities of the Canadian Forces to help fulfill their mandate. So basically we have a very important support role to play in the region.

I also want to emphasize as well that the role and the mandate of the Canadian Forces in the Arctic is not changing as a result of climate change. Really, what climate change means for us is that we'll need to be prepared to do more of what we've already been doing and also to improve our ability to operate in the north. So in that sense we're moving forward with a number of initiatives that would support our activities. You're probably aware of them, including the acquisition of Arctic offshore patrol ships, the establishment of the Nanisivik berthing and refueling facility at the eastern entrance of the Northwest Passage, the expansion and modernization of the Canadian Rangers, the establishment of a Canadian Forces Arctic training centre in Resolute Bay, the establishment of a primary reserve company in the Arctic to be based in Yellowknife, and the establishment of an Arctic readiness company group in each of the land forces areas in southern Canada.

The Canadian Forces also maintain a number of assets in the north and conduct sovereignty operations through Canada Command, and these are issues that my colleague Commodore Dave Gardam will speak to.

Thank you. Merci.

[Commodore D. Gardam, Director General - Plans, Strategic Joint Staff, Department of National Defence]

Good afternoon, everyone. It's a pleasure to be here.

First, to situate the committee, my position on the Strategic Joint Staff is that I work directly for the Chief of the Defence Staff, so my portfolio deals with, among other things, the Arctic, Afghanistan, and a number of other files. So it's kind of a mile wide and an inch deep.

On the issues of the Arctic, what I'm going to talk to you about today is the roles of the Canadian Forces and missions in the Arctic, how we do that. What I want to do, instead of giving you a 30-minute diatribe on what we do, is restrict my comments to about five minutes and then allow this to be more a question and answer period than me just talking.

Without further ado, as my colleague from policy has already mentioned, one of the key roles that we do play in the defence of the Arctic is conventional defence. We do not see right now an actual conventional threat that would impact upon the Arctic.

When discussing the Arctic, there are a few points that are very important to understand. First of all, regardless of climate change, regardless of what's happening, there are certain givens in this environment. It's an austere environment. We call it a theatre of operations to support. What that means is there is no real infrastructure in place to readily support significant operations, so we have operating bases in various locations that help us do that.

It's cold for half the year, extremely cold, and it's dark. There will be some level of ice up there. Admittedly, the ice level is changing as the years go on, and if we want to discuss a little bit about the ice, we can do that later—what impact that is having on the Northwest Passage, etc.

One of the major roles we play is search and rescue in the north. Also, in a major air disaster, if there were one, we would be the key and lead responder for that. But as my colleague from policy has mentioned, I would say 90% of our responsibility in the Arctic is to work with the other government departments in a support role. This is very important to understand. We support many agencies because of the fact that it is an austere environment that we're working in and they need our assistance, and we often have the capabilities they don't have to work in that environment.

From a resources perspective, we have Joint Task Force North, which is located in Yellowknife. That is on the far west, and then there are two sub-headquarters associated with that. We have the Canadian Rangers, as has already been mentioned, as well as 440 Transport Squadron, which are the Twin Otters that support operations. There are four forward operating logistics sites. Those forward operating logistics sites are designed with runways to support air operations. In addition, we also have CFS Alert, which is the most northern station we have in the Canadian Forces, on Ellesmere Island.

Infrastructure itself, if you look from west to east, is as follows: Joint Task Force Atlantic is in Yellowknife, then you have FOLs at Inuvik, Yellowknife, Rankin Inlet, and Iqaluit, which span the Arctic.

On operations, we in the Canadian Forces conduct three key operations a year. There is Nunalivut, which is on the western approaches in March and April of each year. This is run by Joint Task Force North, which I understand will be appearing in front of this committee at some point. This is specifically to work with the 440 Squadron and the Rangers. The operation employs the unique capabilities of the Rangers to support JTF North, and it's a sovereignty and presence operation. In 2008, Operation Nunalivut occurred in March to mid-April and included approximately 100 personnel. Three patrols of Canadian Rangers and scientists operated on the northwest side of Ellesmere Island, and they were involved in the International Polar Year, permitting scientists to investigate changes in Arctic climate.

We also have Nunakput, another operation that is done in the central northern part of the Arctic. This is an integration exercise run by JTF North and it takes place in the summer, in cooperation with the Canadian Coast Guard and the RCMP. The aim of the operation is to exercise sovereignty and practice interoperability. It is key for us in the Canadian Forces command and control to be able to operate with our other government departments so that we are able to operate together in case of emergency.

We also have Operation Nanook, which is held on the eastern side on Baffin Island. It's a coastal exercise and involves the Hudson Strait area. It was run last year from August 9 to 16. It helps develop and refine that relationship between the intergovernmental departments. The purpose of this exercise is to work with the other government departments on scenarios such as disaster and humanitarian assistance.

Those are the major events in the north that we in the Canadian Forces are involved in.

Thank you.

[The Chair, Conservative, Maxime Bernier]

Thank you very much.

I will now turn the floor over to Mr. Wilfert. I believe that you will be sharing your time with Mr. Bagnell.

[Bryon Wilfert, Liberal, Richmond Hill, ON]

Thank you very much, Mr. Chairman.

Thank you, gentlemen, for coming here today.

I will give most of the questions to my colleague, who's from the Yukon, but I'm particularly interested in noting, when we talk about other agencies and departments, how the coordination is done in terms of the sharing. Could you elaborate? I raised this issue with the Deputy Minister of the Environment at another committee.

I'm curious to know what aspects are shared and who ultimately has the responsibility in terms of the execution in dealing with this. The fact is that the United Nations said in 2007 that of all the requests for relief, only one was not related to climate change, so I'm curious to know how we are preparing ourselves for this.

Then I'll turn this over to Mr. Bagnell.

[Cmdre D. Gardam]

I'll respond to that.

On sharing of information, it depends on how you want to define that. We have the Arctic security working group, which is probably the principal way in which we share information and best practices. The Canadian Forces, through Joint Task Forth North, co-chairs this body with Public Safety. That is where we explore best practices on how to work in the north.

One of the key things in the north, which is not like what we have south of 66° north, is the lack of infrastructure. The ability to work together is critical to being able to operate in this type of environment. So from our perspective, the sharing at the operational level happens at the Arctic security working group.

At the tactical level, it's where it happens in the exercises themselves. The exercises are built to allow the various departments, whether that's the coast guard, the RCMP, DND, or the fisheries department, the ability to understand what the other departments do and what roles they play. This is very important. It's understanding the lane in which we all operated and then, from there, understanding how we can best support those departments. That's how we do the sharing of information.

In the last two to three years, certainly, I would say that a lot of the work being done by Public Safety and Joint Task Force North has further enhanced that sharing through the Arctic security working group.

[The Chair, Conservative, Maxime Bernier]

Mr. Bagnell.

[Larry Bagnell, Liberal, Yukon, YT]

Thank you.

Either of you can answer this.

I love the military. I've been trying to get more in the north and have been moderately successful.

Is there a paper or are there recommendations to the PMO and the government, etc., related to the security problems that global warming will cause? I'm not talking about the north; I'm talking about the security crisis around the world that global warming is predicted to cause. Has the Department of National Defence done such a paper or a study or, in your connection with Foreign Affairs, provided such information or suggestions to the government?

[Philippe Hébert]

From our side at DND, we've looked at it from an Arctic point of view, really, in terms of the changing climate in the Arctic and what it means in terms of operations and activity in the north. We have done little up to now in terms of the broader climate change impact on the rest of the world. I don't want to talk for Foreign Affairs, but I believe that they are already starting to work on that issue. I'm not sure if anything has gone all the way up to the PMO and PCO. I couldn't answer that question.

[Larry Bagnell, Liberal, Yukon, YT]

You might want to read a book, if you haven't already, called Climate Wars, by Gwynne Dyer. Basically, it outlines how the British Ministry of Defence, the Pentagon, and NASA have all done serious papers on the dramatic world security problems that are going to be caused by climate change. I would hate it if our departments were not engaged and not behind those other main countries in the world.

[Philippe Hébert]

I'll just add though, sir, that I actually met with somebody from the U.K.'s Foreign and Commonwealth Office just last week, because they are doing a tour to inform some of the other allied countries about their work. We've promised to share information, so we're going to get some of the work they've been doing. And as we ramp up on this particular issue, we'll be sharing with them and with the U.S. as well.

[Larry Bagnell, Liberal, Yukon, YT]

Regarding the Arctic offshore patrol boats for the Department of National Defence, I know that when you commission new pieces of equipment, you have an idea of what they're going to be used for and where, in general. Roughly where do you see these boats being used, in what general areas, and at what times of year? I know that sometimes in the year they'll be on the coast, and sometimes in the north. What's your general plan? I know there are different needs for these boats, but what's your general concept?

[Cmdre D. Gardam]

The general concept for the deployment of the Arctic offshore patrol ships is actually to have them based in the east. The reason for that is distance and time, to be able to transit to the north. The distance from Victoria to the north is 5,000 nautical miles. The distance from Halifax is half of that, so it's just a matter of economy of effort in space and time. So they will primarily be based on the east coast.

The plan is that during periods when the ice is opening, we will put Arctic offshore patrol vessels in the north to patrol and to provide a presence; and when the areas are closed because of the ice conditions, they will operate outside of the closed barriers of the ice and farther south.

[Larry Bagnell, Liberal, Yukon, YT]

So would that be for maybe three months of the year?

[Cmdre D. Gardam]

It depends, because what's happening in the Arctic is a journey. We're seeing the beginning of what's happening. Right now we're talking of the Northwest Passage, but quite frankly, its a trans-polar issue; it is not the Northwest Passage, which as Canadians is something we need to be considering. It's north of Ellesmere Island, because that's the area that will be open as the ice starts to melt. So at some point, we see ourselves moving farther and farther north as the areas become open.

So I would say it will be a document in transition as to how we employ these ships, and each year we will look at how we will do it, based on ice conditions, etc. Obviously marine safety and security would be our number one issue.

[The Chair, Conservative, Maxime Bernier]

Your time is up, Mr. Bagnell. Thank you very much.

Mr. Bachand.

[Claude Bachand, Bloc, Saint-Jean, QC]

Thank you, Mr. Chair.

I would like to thank our guests for their presentation.

There are many ways to exercise sovereignty on a territory. The Russians used a rather odd way, by dropping a Russian flag into the bottom of the Arctic ocean in a titanium capsule. I'm not sure that that's the best way to ensure sovereignty over a territory.

Mr. Hébert, this question is more for you: what is Canada's strategy regarding its commitment to ensuring full sovereignty? For example, concerning the extension of the continental shelf, is that how Canada wants to show that the north belongs to it? For example, are there scientific expeditions being conducted to justify this extension?

It seems to me that we have solid arguments on our side. This also raises the aspect of mapping the seabed. Does DND participate in that? Are there scientific expeditions to map the seabed? Is that the strategy? There are other strategies. The idea is not just to drop a flag into the ocean; there are also maritime military patrols. Personally, I have never believed that we could win militarily against the American or Russian navies or against the American army. It seems to me that we need scientific and logical arguments.

Could you explain whether the continental shelf extension and seabed mapping are part of the strategy to assume full Canadian sovereignty in the Arctic at the present time?

[Philippe Hébert]

Thank you very much, Mr. Bachand.

Many of the points you raised concern the representatives of DFAIT. They are the ones who are responsible for answering questions concerning international law.

However, generally speaking, it is clear that Canada's strategy is to continue to work within the United Nations Convention on the Law of the Sea, and that seabed mapping and the continental shelf are also part of the strategy aimed at establishing the exact boundaries of our territory. A great deal of work is being done in this regard.

The Canadian Forces assist Environment Canada and others. They participate in a certain number of scientific operations, whether by supplying aircraft or other equipment. We have supported these missions in the past, and this is very important.

There is little media coverage of potential conflicts in the north or anything like that. No one at DND or DFAIT foresees a war or anything like that with the Russians or the Americans.

We must recall that Canada's sovereignty concerning our Arctic islands and territory is not challenged, except for the small Hans Island. With Denmark, there are certain conflicts concerning maritime borders, but they are properly managed at the diplomatic level. There is a strong international legal framework concerning the Arctic, which is based on UNCLOS.

Thanks to these instruments, it is possible to manage international relations concerning the north. It is certainly not a question of conventional defence; it is more a question of diplomacy.

[Claude Bachand, Bloc, Saint-Jean, QC]

But there is a bone of contention with the Americans. We consider that the Northwest Passage lies in Canadian territorial waters, whereas the Americans consider that it lies in international waters.

[Philippe Hébert]

There's a distinction to be made.

Once again, I believe that you will be hearing from representatives of DFAIT.

We in Canada consider that these are internal waters. The United States do not challenge the fact that they are Canadian territorial waters but they claim that there is an international strait that passes through these waters. That's where the conflict between the two countries arises. Both our countries have agreed to disagree.

[Claude Bachand, Bloc, Saint-Jean, QC]

Yes.

[Philippe Hébert]

We even have a treaty with the United States, which was signed in 1988 concerning the passage of icebreakers. Under this treaty, the United States must ask our permission, regardless of their position, each time an American icebreaker wants to pass through our waters.

[Claude Bachand, Bloc, Saint-Jean, QC]

Yes, but the Polar Class Icebreaker, an American vessel, passed through our waters on one occasion and did not ask our permission until afterward. That was the case.

[Philippe Hébert]

In the 1960s—

[Claude Bachand, Bloc, Saint-Jean, QC]

In 1970, 1975, 1980.