Recherche et sauvetage, changement climatique et expansion de la Garde côtière auxiliaire dans l'Inuit Nunangat / l'Arctique canadien
DOI :
https://doi.org/10.25071/vaa86009Mots-clés :
Recherche et sauvetage, résilience, sécurité maritime, Garde côtière auxiliaire, Inuit Nunangat, Arctique canadienRésumé
Dans les espaces maritimes du Canada, les membres de la Garde côtière auxiliaire canadienne (GCAC), entièrement bénévoles, fournissent des services essentiels de recherche et sauvetage (SAR) en mer et font la promotion de la sécurité nautique. En 2015, cependant, seules neuf communautés au nord du 55e parallèle possédaient des unités de la GCAC et trois d’entre elles avaient du mal à rester opérationnelles. En 2020, la GCAC comptait 20 unités dans la nouvelle région arctique de la Garde côtière, avec 333 membres et 31 navires – dont la majorité sont situés dans l’Inuit Nunangat (la patrie des Inuits au Canada) et composés de membres inuits – et des plans d’expansion future.
En se fondant sur la participation des intervenants, les documents gouvernementaux et l’analyse des médias, cet article évalue le Projet de recherche et de sauvetage dans l’Arctique de la Garde côtière et les programmes concomitants du Plan de protection des océans qui ont facilité l’expansion de la Garde côtière auxiliaire dans l’Arctique. Notre analyse pose deux questions primordiales : Pourquoi ce programme a-t-il permis l’expansion de la Garde côtière auxiliaire après l’échec des efforts précédents ? Comment cette expansion a-t-elle amélioré le système SAR et la sécurité maritime dans l’Arctique canadien, et y a-t-il des domaines à améliorer ?
L’article présente quatre arguments principaux :
- Le succès du projet a été alimenté par un engagement communautaire fort et des efforts d’établissement de relations, une collecte de données efficace qui a favorisé une meilleure compréhension des risques maritimes auxquels font face les communautés de l’Arctique, et un accès constant à la formation et au matériel requis pour mener des opérations de R-S en mer en toute sécurité.
- Les membres des unités auxiliaires de l’Arctique renforcent les opérations de R-S en améliorant les délais d’intervention, en servant de détectives de R-S, en contribuant à la sécurité maritime et, surtout, en intégrant leurs connaissances et leurs compétences locales et traditionnelles au système plus vaste de recherche et de sauvetage.
- Il existe des lacunes en matière de formation et d’organisation qui devraient être comblées alors que la Garde côtière continue de renforcer les unités existantes et d’en établir de nouvelles.
- Le projet de R-S dans l’Arctique a fourni plusieurs pratiques exemplaires et leçons qui devraient guider la mise en œuvre de mesures supplémentaires de renforcement de la résilience dans le Nord et dans d’autres communautés autochtones.
Références
Allen, J. (2005). Community Asset Mapping and Mobilizing Communities. Presentation to the Idaho Governor’s 6th Annual Roundtable Coeur d’Alene, Idaho.
Ampomah, G., & Devisscher, T. (2013). Adaptation Toolkit: Guidebook for Researchers and Adaptation Practitioners Working with Local Communities. Stockholm: Stockholm Environment Institute.
Benoit, L. (2018). Testimony to The Standing Senate Committee on Fisheries and Oceans, 19 April 2018. Senate Canada. https://sencanada.ca/en/Content/SEN/Committee/421/pofo/28cv-e.
Benoit, L. (2014a). Perspectives on Emergency Response in the Canadian Arctic: Sinking of the MS Arctic Sun in Cumberland Sound, Nunavut. Part A: Hypothetical Scenario. Munk-Gordon Arctic Security Program. https://gordonfoundation.ca/resource/perspectives-on-emergency-response-in-the-canadian-arctic-part-a//
Benoit, L. (2014b). Perspectives on Emergency Response in the Canadian Arctic: Sinking of the MS Arctic Sun in Cumberland Sound, Nunavut. Part B: Response to the Hypothetical Scenario. Munk-Gordon Arctic Security Program. https://gordonfoundation.ca/resource/perspectives-on-emergency-response-in-the-canadian-arctic-part-b/.
Benoit, L. (2014c). Perspectives on Emergency Response in the Canadian Arctic: Sinking of the MS Arctic Sun in Cumberland Sound, Nunavut. Part C: Findings of the Hypothetical Scenario. Munk-Gordon Arctic Security Program. https://gordonfoundation.ca/resource/perspectives-on-emergency-response-in-the-canadian-arctic/.
Benoit, L., Murphy, B., & Pierce, L. (2016). Sharing lessons learned about disaster resilience for First Nations communities: A summary report. Canadian Risks and Hazards Network. http://haznet.ca/sharing-lessons-learned-about-disaster-resilience-for-first-nations-communities-a-summary-report/
Bhatt, M., & Reynolds, T. (2012). Community-based disaster risk reduction: Realising the primacy of community. In C. Emdad Haque & D. Etkin (Eds.), Disaster risk and vulnerability: Mitigation through mobilizing communities and partnerships (pp. 71–92). McGill-Queen’s University Press.
Canadian Coast Guard. (2019). 2018-2019, Maritime Search and Rescue Arctic Analysis (Area 260). Access to Information and Privacy (ATIP) Request A-2019-00025-DQ-Final.
Canadian Coast Guard. (2018). Arctic Community Engagement and Exercise Program. Access to Information and Privacy (ATIP) Request A-2019-00023-DQ-Final.
Canadian Coast Guard. (2017). Briefing Note to the Assistant Commissioner: Initial Risk-Based Analysis of Maritime Search and Rescue Delivery, Arctic Region. Access to Information and Privacy (ATIP) Request A-2019-00025-DQ-Final.
Canadian Coast Guard. (2016). CCG Arctic SAR Project – Update, 25 January 2016. Access to Information and Privacy (ATIP) Request A-2019-00023-DQ-Final.
Canadian Coast Guard. (n.d.). Draft Report: Canadian Coast Guard Arctic Search and Rescue Project. Access to Information and Privacy (ATIP) Request A-2019-00023-DQ-Final.
Canadian Coast Guard Arctic Search and Rescue (SAR) Project. (n.d.). Partnering with Coastal Communities to Enhance Arctic SAR Capacity. Access to Information and Privacy (ATIP) Request A-2019-00025-DQ-Final.
Canadian Coast Guard Auxiliary. (2017). National Guidelines. Ottawa: Canadian Coast Guard.
Caudle, S. (2005). Homeland Security Capabilities-Based Planning: Lessons from the Defense Community. Homeland Security Affairs, 1(2), 1-21.
Community Engagement and Exercise Team. (2018). Community Engagement and Exercise Team Reports. Access to Information and Privacy (ATIP) Request A-2019-00023-DQ-Final.
Community Engagement and Exercise Team. (n.d.). SARRA Coast Guard Community Engagement – Baffin Island Report.
Conference Board of Canada. (2014). Building community resilience in Whatì, Northwest Territories. https://www.conferenceboard.ca/e-library/abstract.aspx?did=6097.
Cox, R. (2007). Capacity building approaches to emergency management in rural communities: Recommendations from survivors of the British Columbia wildfires, 2003. International Journal of Emergency Management, 4(2), 250-268.
Cox, R., (2014). Disaster preparedness in Canada’s North: What’s resilience got to do with it?
Northern Public Affairs, 2(3), 43-45.
Cox, R., & Hamlen, M. (2015). Community Disaster Resilience and the Rural Resilience Index. American Behavioral Scientist, 59(2), 220-237.
Cox, R. (2015). Measuring Community Disaster Resilience: A Review of Current Theories and Practices with Recommendations. Report for Defence Research and Development Canada.
Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC). (2019a). Arctic and Northern Policy Framework, Government of Canada. Government of Canada. https://www.rcaanc-cirnac.gc.ca/eng/1560523306861/1560523330587
Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC). (2019b). Arctic and Northern Policy Framework: Safety, Security, and Defence Chapter. Government of Canada. https://www.rcaanc-cirnac.gc.ca/eng/1562939617400/1562939658000.
Dawson, J., Pizzolato, L., Howell, S.E.L., Copeland, L., & Johnston, M.E. (2018). Temporal and Spatial Patterns of Ship Traffic in the Canadian Arctic from 1990 to 2015. Arctic, 71(1), 15-26.
Dene Nahjo, Qanak, Our Voices, & the Gordon Foundation. (2018). We are One Mind: Perspectives from Emerging Indigenous Leaders on the Arctic Policy Framework. Gordon Foundation. https://gordonfoundation.ca/wp-content/uploads/2018/02/We-Are-One-Mind-FINAL-Web.pdf
Evaluation Directorate, Fisheries and Oceans Canada. (2012). Canadian Coast Guard Search and Rescue and Canadian Coast Guard Auxiliary Evaluation Report, Final Report. Fisheries and Oceans Canada. https://www.dfo-mpo.gc.ca/ae-ve/evaluations/11-12/SAR-CCGA-eng.htm#4.
Garapick, P. (Superintendent, Search and Rescue, Central and Arctic Region, Canadian Coast Guard) (2019, January 14). Email. Access to Information and Privacy (ATIP) Request A-2019-00023-DQ-Final.
Garapick, P. (Superintendent, Search and Rescue, Central and Arctic Region, Canadian Coast Guard). (2018a). Arctic RAMSARD Study Update. Access to Information and Privacy (ATIP) Request A-2019-00025-DQ-Final.
Garapick, P. (Superintendent, Search and Rescue, Central and Arctic Region). (2018b). Testimony to The Standing Senate Committee on Fisheries and Oceans, 26 April 2018. Senate Canada. https://sencanada.ca/en/Content/SEN/Committee/421/pofo/29cv-e.
Inuit Circumpolar Council Canada (ICC). (2019). Submission to the Special Senate Committee on the Arctic Regarding the Arctic Policy Framework and International Priorities. https://sencanada.ca/content/sen/committee/421/ARCT/Briefs/InuitCircumpolarCouncilCanada_e.pdf.
Keim, M. (2013). An innovative approach to capability-based emergency operations planning. Disaster Health, 1(1), 54-62.
Kikkert, P., Lackenbauer, P.W., & Pedersen, A. (2020a). Kitikmeot Roundtable on Search and Rescue: Summary Report / Qitiqmiuni Katimatjutauyuq Qiniqhiayinit Annaktinillu – Naunaitkutat. Report from a workshop hosted at the Canadian High Arctic Research Station (CHARS) in Cambridge Bay, Nunavut, 31 January – 1 February 2020. Available at Kitikmeot Search and Rescue (Kitikmeotsar.ca).
Kikkert, P., Lackenbauer, P.W., & Pedersen, A. (2020b). Kitikmeot Roundtable on SAR: General Report and Findings. Report from a workshop hosted at the Canadian High Arctic Research Station (CHARS) in Cambridge Bay, Nunavut, 31 January – 1 February 2020. Available at Kitikmeot Search and Rescue (Kitikmeotsar.ca).
Kikkert, P., Lackenbauer, P.W., & Pedersen, A. (2020c). Kitikmeot Roundtable on SAR: Mass Rescue Tabletop Exercise Report. Report from a workshop hosted at the Canadian High Arctic Research Station (CHARS) in Cambridge Bay, Nunavut, 31 January – 1 February 2020. Available at Kitikmeot Search and Rescue (Kitikmeotsar.ca).
Kikkert, P., & Lackenbauer, P.W. (2019). Bolstering Community-Based Marine Capabilities in the Canadian Arctic. Canadian Naval Review, 15(2), 11-16.
Kruger, J. (2000, February). “District 9,” Shipmate (3).
Kruger, J. (1998, January). “District 9,” Coast Guard Auxiliary Newsletter (1).
Legislative Assembly of Nunavut, 5th Session, 1st Assembly, 20 November 2001.
Lick, G. (Director General, Operations, Canadian Coast Guard). (2018). Testimony to The Standing Senate Committee on Fisheries and Oceans, 26 April 2018. Senate Canada. https://sencanada.ca/en/Content/SEN/Committee/421/pofo/29cv-e.
Mackinaw, C. (2016, Nov. 23-25). First Nations disaster risk resilience and reconciliation [Presentation]. 13th Annual Symposium, Canadian Risk and Hazards Network, Hyatt Regency, Montreal, Quebec.
McKnight, J., & Kretzmann, J. (1997). Mapping community capacity. In M. Minkler (Ed.), Community organizing and community building for health (pp. 157-171). New Brunswick: Rutgers University Press.
Murphy, B., Anderson, G.S., Bowles, R., & Cox, R.S. (2014). Planning for disaster resilience in rural, remote, and coastal communities: moving from thought to action. Journal of Emergency Management, 12(2), 105–120.
Nunatsiaq News. (2020, October 15). Feds earmark money for new search and rescue boats in three Nunavut communities. Nunatsiaq News. https://nunatsiaq.com/stories/article/feds-earmark-money-for-new-search-and-rescue-boats-in-three-nunavut-communities/
Østhagen, A. (2017). Utilising Local Capacities Maritime Emergency Response across the Arctic. University of Copenhagen: Centre for Military Studies.
Public Safety Canada. (2019). Emergency Management Strategy for Canada: Toward a Resilient 2030. Government of Canada. https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgncy-mngmnt-strtgy/index-en.aspx
Public Safety Partners Resource Centre. (n.d). “Capability-Based Planning.” PSPRC. Special Senate Committee on the Arctic. (2019). Northern Lights: A Wake-Up Call for the Future of Canada. Senate Canada. https://sencanada.ca/content/sen/committee/421/ARCT/reports/ARCTFINALREPORT_E.pdf
Risk Based Analysis of Maritime SAR Delivery (RAMSARD). (n.d.). Risk Based Analysis of Maritime SAR Delivery: Vol. 1: Strategic Overview. Access to Information and Privacy (ATIP) Request A-2019-00025-DQ-Final.
Standing Committee on Fisheries and Oceans. (2018). When Every Minute Counts: Maritime Search and Rescue. Senate Canada.
Standing Committee on Foreign Affairs and International Development. (2019). Canada’s Sovereignty in the Arctic. House of Commons Canada. https://www.ourcommons.ca/Committees/en/FAAE/StudyActivity?studyActivityId=10158962
Thompson, S. (Superintendent, Maritime Search and Rescue, Canadian Coast Guard Arctic Region). (2021, Feb. 18). Virtual presentation to the JABAS – Joint Agile Basing Airpower Seminar.
Varga, P. (2014, March 5). Nunavut Search and Rescue Calls for Added Water Support. Nunatsiaq News. https://nunatsiaq.com/stories/article/65674nunavut_search_and_rescue_calls_for_added_land_and_water_support/
Zebedee, E. (Director of Protection Services, Department of Community and Government Services, Government of Nunavut). (2018). Testimony to The Standing Senate Committee on Fisheries and Oceans, 22 May 2018. Senate Canada. https://sencanada.ca/en/Content/Sen/Committee/421/POFO/32ev-54074-e
