BG–10.005 - March 18, 2010
In a country as vast as Canada, the search and rescue environment is complex. The men and women of the Canadian Forces who carry out these life-saving missions require modern and up-to-date equipment.
Fixed-wing search and rescue (FWSAR) is a vital component of this SAR system because it provides the response that is so important in the time period immediately following the occurrence of a distress incident. With the Canadian Forces’ current Buffalo FWSAR aircraft approaching the end of their supportable life spans, acquiring a new aircraft is essential for the Department of National Defence (DND) to perform effective SAR services across the country. It is absolutely critical that the right aircraft be selected because not only the lives of the crews that conduct these operations will depend on it for the next 30 years but also the lives of Canadians in distress.
As a part of the Canada First Defence Strategy, the replacement of Canada's Fixed Wing Search and Rescue (FWSAR) fleet is a high priority for the Government.
ACQUIRING A NEW FWSAR AIRCRAFT
Approximately every 30 years, new aircraft must be acquired to allow dedicated SAR crews to continue providing their essential service. As aircraft age, they reach a point where the cost and effort associated with maintenance increase significantly, resulting in decreased availability. The Hercules and Buffalo aircraft being used in this role today entered service in the mid-1960s. While the addition of the new C-130J Hercules for the Tactical Air Transport mission will allow the retirement of the older CC-130E models and the use of the newer CC-130H models in the interim, the recent life extension initiatives for the Buffalo fleet ends in 2015.
Efforts are underway to acquire a new FWSAR capability to allow the retirement of the Buffalo aircraft as quickly as possible. A FWSAR project office at the Department of National Defence (DND) was established; and, in 2004, a Statement of Requirements (SOR) was drafted. The SOR outlines the technical aspects that an aircraft requires to effectively carry out SAR missions in Canada’s harsh operating environment.
In June 2006 the Government announced that it planned to acquire Strategic and Tactical Airlift fleets. The CanadaFirst Defence Strategy, established in 2008, outlines that these prioritized acquisitions are building a solid foundation for the continued modernization and strengthening of the military. Based on a detailed assessment of requirements, this 20-year plan commits to renewing the Forces’ core equipment platforms, which includes FWSAR.
Canada's CC-177 Globemaster III strategic lift fleet was delivered in 2008, and the delivery of the first CC-130J Hercules tactical lift aircraft is expected to begin in summer 2010.
In July 2009, in an effort to move forward with the FWSAR procurement, the Government of Canada requested industry’s feedback on the high level considerations for FWSAR requirements, which were detailed during the FWSAR Industry Day. Industry was given 60 days to comment. The submission period concluded on September 15 and DND, Public Works and Government Services Canada (PWGSC), and Industry Canada (IC) reviewed the submissions from industry. This demonstrated the Government’s commitment to an open dialogue with industry and helped assess the Canadian industrial ability to support the procurement of a new fleet.
Following consultation with the aerospace industry, the government engaged the National Research Council (NRC) to conduct an independent review of the FWSAR SOR. The final report was received from the NRC in March 2010 and officials from DND, PWGSC, and IC are reviewing the report’s findings and recommendations. The report’s findings, as well as industry’s feedback, will complement the work already done by DND to ensure the best possible solution for Canada’s complex SAR environment.
THE ENVIRONMENT
Canada is one of the most challenging countries in the world in which to conduct Search and Rescue (SAR) operations. With the world’s second largest land mass surrounded by the longest coastline, the area to be covered is immense: approximately 18 million square kilometres. As shown in Figure 1, the Canadian SAR region far exceeds that of all Western European countries combined. The geography Canadian SAR Region ranges from the Rocky Mountain peaks, to vast territorial waters, to Arctic tundra, most of which is sparsely populated with little infrastructure. Weather can be extreme and temperatures vary from -50C to +40C and beyond. All of which place enormous demands on the people and equipment that must work in this environment. In terms of SAR, these demands are unique to Canada.
Figure 1. Comparison of Canada’s SAR Area of Responsibility to Western Europe.
In 1947, the Department of National Defence (DND) was assigned primary federal responsibility for providing aeronautical SAR services across Canada. The aeronautical SAR service provided by the Canadian Forces is an essential component of the overall National SAR Program, which includes resources contributed by the Canadian Coast Guard, Royal Canadian Mounted Police, provincial and municipal police forces, the Civil Air Search and Rescue Association (CASARA), and many others.
Canada’s vast area is divided into three Search and Rescue Regions (SRR) as shown in Figure 1, with Joint Rescue Coordination Centres (JRCC) located in Halifax, NS; Trenton, ON; and Victoria BC. The JRCCs are staffed by Canadian Coast Guard and Canadian Forces’ personnel who can call upon any SAR resources in their area to respond to incidents of distress 24 hours/day, 7 days/week, 365 days/year. Each year, JRCCs handle an average of 8,000 air and marine SAR cases. In 2008, the JRCC handled 9,097 SAR cases across Canada. On average, Canadian Forces SAR aircraft conduct over 1,000 missions per year.
Canadian Forces primary SAR crews and aircraft are based in:
- Gander, NL (Cormorant helicopters);
- Greenwood, NS (Cormorant helicopters and Hercules fixed-wing aircraft);
- Trenton, ON (Griffon helicopters and Hercules fixed-wing aircraft);
- Winnipeg, MB (Hercules fixed-wing aircraft); and
- Comox, BC (Cormorant helicopters and Buffalo fixed-wing aircraft).
However, any Canadian Forces aircraft can be called upon to conduct SAR operations when required. Particularly, Griffon helicopters based in Goose Bay, NL; Bagotville, QC; and Cold Lake, AB, often conduct SAR missions in addition to their primary role. The Canadian Forces Twin Otter aircraft fleet based in Yellowknife, NWT is often similarly tasked as a secondary FWSAR resource. As shown in Figure 2, the current mix of helicopter and fixed-wing SAR aircraft are strategically located to maximize the level of SAR service where it is needed most, given the resources and base locations across Canada.
Figure 2. Location of Primary Canadian Forces SAR Aircraft and Distribution of Incidents involving FWSAR Response from 1998 to 2001. (ORD Technical Report TR 2005/03)
FWSAR AIRCRAFT WITHIN THE SAR SYSTEM
The overall SAR solution for the Canadian Forces involves the ability to respond rapidly to SAR incidents near and far, and to provide both immediate assistance and rescue for all possible SAR events. The combination of helicopters and fixed-wing SAR aircraft provide a rapid and effective SAR solution, as the unique attributes of each play a critical role. The FWSAR aircraft is the first to arrive on-scene and provide immediate assistance by dispatching life-saving SAR technicians and/or equipment to persons in distress thus requiring superior speed, range and cargo capacity. In the long range scenarios, the helicopter arrives later to extract the distress victims along with the SAR technicians. Both aircraft types are essential for providing a rapid and effective SAR service to a large area.
CANADA’S INDUSTRIAL AND REGIONAL BENEFITS (IRB) POLICY
Canada’s Industrial and Regional Benefits (IRB) requirements for procurements such as FWSAR are applied in a manner that does not affect the Department of National Defence’s operational requirements.
The IRB Policy is an important element of the Government of Canada’s overall procurement process for major defence and security purchases. This policy enables the Government of Canada to leverage major investments in military equipment to encourage long-term industrial development and significant economic activity here in Canada.
Established in 1986, the Policy ensures that prime contractors undertake high quality and advanced technology business activities in Canada, typically in amounts equal to 100 percent of the contract value. Canada’s IRB Policy is firmly in line with over 150 industrialized countries around the world that implement similar industrial participation programs.
Industry Canada is responsible for the administration of the IRB Policy, and is the IRB Authority. Industry Canada works in partnership on procurement projects with Public Works and Government Services Canada, which oversees the procurement process, and with the Department of National Defence, which establishes the technical requirements. Industry Canada consults with and conducts evaluations of IRB proposals along with the Regional Development Agencies.
IRB OBJECTIVES
A key objective of Government of Canada procurement is to ensure that the right goods and services are purchased at the best possible price for the taxpayer. Sometimes, Canadian firms meet the procurement requirements and provide significant Canadian content in their goods or services. Other times, global firms provide goods and services that combine high-value Canadian content with world-class items sourced outside of Canada.
The IRB Policy does not dictate where the goods and services are purchased. Instead, it allows for the best available balance between quality and value for money, while ensuring that an equivalent amount of high-value economic stimulus is injected into the Canadian economy. IRBs help ensure that the Canadian economy in all regions benefits from procurement, regardless of the final outcome of the procurement process and which company wins the contract.
The IRB Policy requires prime contractors to select their Canadian partners based on what makes the best business sense, with the goal of generating long-term, sustainable business relationships in Canada. These strategic relationships stimulate the Canadian economy while helping to ensure a more competitive Canadian industry. The long-term focus of the IRB Policy provides Canadian companies with an opportunity to develop and apply their own strengths and competitive solutions and to take advantage of real business opportunities that will last years beyond the initial IRB commitment.
IRB REQUIREMENTS
During the bidding process for a project with IRB requirements, bidders must submit an IRB proposal as part of the overall bid. The IRB proposal is a specific plan that outlines how the bidder plans to engage with Canadian companies over the life of the contract. The IRB proposal responds to several key requirements, such as providing plans for regional and small business participation, along with specifically identifying business activities being proposed. A team, which includes representation from the Regional Development Agencies, is led by Industry Canada to evaluate each IRB proposal and determine whether it satisfies the requirements of the IRB Policy.
The IRB Policy recognizes both “direct” and “indirect” types of business activities. Direct IRBsare goods, services or investments that relate directly to the item being procured by Canada under the contract. Indirect IRBs are goods, services or investments that relate to the contractor’s other product or business lines. Each IRB activity must meet established eligibility criteria and is measured for its Canadian content value (i.e., Canadian labour and materials).
The Government of Canada does not force winning bidders to do business with specific Canadian companies. The government asks them to identify and undertake high-value business opportunities in Canada that make good business sense to all parties involved.
SUSTAINABLE, LONG-TERM BENEFITS
The IRB Policy benefits the Canadian economy by:
- securing major investments in the Canadian economy
- providing the incentive for contractors to partner with Canadian companies
- increasing Canadian industrial competitiveness, through improved market access of advanced-technology sectors
- facilitating the entry of Canadian firms in the global supply chains of major international corporations
- developing and maintaining a capacity in Canada to deliver long-term equipment support to the Canadian Forces
- promoting growth of Canada’s small and medium-sized enterprises and the development of regional industrial capacity
For more information on Canada’s IRB Policy and a description of ongoing and future federal procurements subject to the IRB Policy, please visit www.ic.gc.ca/irb.
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