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Speaking Notes
Minister Trevor Taylor
The Senate Standing Committee On National Security and Defence
February 3, 2005
Check against delivery
Opening Remarks
Good morning Senators. Thank you for this opportunity to present the
Government of Newfoundland and Labrador�s views on the important issue of
national defence in the context of your comprehensive review.
My presentation today will focus on three areas: (i) an overview of military
presence in Newfoundland and Labrador; (ii) the three military
establishments in the province and associated issues; and (iii)
recommendations for your consideration. You will note that I will pay
particular attention to the future viability of the foreign military
training program at 5-Wing Goose Bay.
II - Historical Perspective and Context
Since September 11, 2001, the world�s focus has been on threats of global
terrorism, new and emerging warfare techniques, as well as the changing
security environment. Many governments around the world have undertaken to
assess their capabilities, both at home and abroad, to respond appropriately
to this new era of security and defence requirements. Given our strategic
location globally, it is no surprise that so many international flights were
diverted to the province�s airports on that day.
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The geographic location of
Newfoundland and Labrador has been strategically important since the
16th century and there is a long-standing history of international
military presence in this province. Newfoundland and Labrador hosted the
United States Air Force for several decades, at four prominent
locations: Goose Bay, Fort Pepperrell in St. John�s, Stephenville, and
Argentia. Most recently, the British, Dutch, Italian and German Air
Forces maintained permanent detachments in support of the foreign
military training program at 5-Wing Goose Bay, a program that has
existed in Labrador for two decades.
The Canadian military has also
recognized the strategic location of this province as demonstrated through
its commitment to NORAD at Goose Bay, the DEW Line/Pine Tree radar sites
located here as well as the fact that the Department of National Defence
established 5-Wing Goose Bay as a Canadian Forces Base when the United
States Air Force no longer required Goose Bay as a location.
Newfoundlanders and Labradorians have answered the call of duty on many
occasions as witnessed by the numbers of the province�s men and women who
are veterans of both World Wars I and II, the Korean War, and who continue
to do so in the War on Terror. As of February, 2003, Newfoundlanders and
Labradorians comprised approximately 8% of the Canadian Forces Regular
Force. That is astounding given that this province is only 1.6% of the
Canadian population. Newfoundlanders and Labradorians also comprise
approximately 9.1% of the national Cadet population, approximately 20% of
the navy, and approximately 3.1% of reservists.
The Canadian Forces presence in this province is remarkably small. In fiscal
year 2003/04, Department of National Defence records indicate that there
were 600 regular force, 122 civilian, and 1,022 reservist personnel
stationed here with a net expenditure of $128M. This equates to a $250 per
capita expenditure, with only two other provinces in Canada, Saskatchewan
and Prince Edward Island, being lower. The military presence in Newfoundland
and Labrador has been dwindling for some time, with serious attrition
beginning with the negative impact of the 1996 program review conducted by
the Government of Canada. For example, in 1996/97 there were 267 Regular
Force personnel stationed at 5-Wing whereas in 2003/04 there were 94.
Similarly, in the case of 9 Wing Gander, Regular Force personnel declined
from approximately 187 to 134, while the number of civilian personnel
employed at the base has dropped dramatically from 97 to 29 over the same
period.
However, I am not here to deliver a critique of past performance, rather the
purpose of my comments and recommendations today is to focus on three key
areas where the Canadian Forces could enhance its own objectives and foster
international cooperation, all within this province.
The Department of National Defence has listed four categories of Corporate
Priorities for Defence in 2004-2005 including: (i) adapt to the evolving
security environment and enhance strategic relationships; (ii) transform and
modernize the Canadian Forces; (iii) develop and support a professional,
effective and sustainable defence team; and (iv) maximize effectiveness in
the management of resources.
I will refer to the following three specific objectives outlined by the
Department of National Defence under its priorities during the remainder of
this presentation: (i) promotion of key international defence and security
relationships; (ii) a focus on strategic planning efforts on the required
capabilities; and (iii) enhancement of the capability to operate effectively
in joint, interagency and multi-national environments.
III � The Military Establishments in Newfoundland and Labrador
Canadian Forces Station St. John�s
Following the withdrawal of the United States Air Force from Fort Pepperrell
in the 1960s, the need for a permanent Canadian Forces military presence in
St. John�s became evident. In 1968, Canadian Forces Station (CFS) St. John�s
was formally established. It is responsible for providing support services
to naval vessels and other designated units. Approximately 20-30 Canadian
naval vessels visit the port of St. John�s each year.
The Station consists of approximately 75 regular force military personnel
and 19 part time employees and operates on an overall budget (for the
operation and maintenance of the Station, not including supported
battalions) of approximately $6.6 million and an annual expenditure of
approximately $35-40M (FY 2003/04). The Station also provides support
services for 15 lodger units (squadrons//battalions/regiments, etc.), 90
cadet units, 440 regular force (full-time) members, 1,400 reservists, and
5,000 cadets.
One of the most impressive advancements for the Station is the growth of the
Naval Engineering School Detachment at the Marine Institute. Since 2000, the
detachment has more than doubled its size to approximately 200 officers
training at the Institute. Graduate naval officers from this program are
among the most highly trained in the world. Partnerships with local
educational facilities can undoubtedly prove beneficial and highly
successful. The Marine Institute estimates that the economic impact of this
particular program is in excess of $14M annually. This specific example
certainly speaks to the DND priority of developing and supporting a
professional, effective and sustainable defence team.
Recommendation
The Department of National Defence continue to pursue, develop, and enhance
partnerships with educational facilities in Newfoundland and Labrador in
accordance with the DND priority of developing and supporting a
professional, effective and sustainable defence team. Successful models,
such as the Naval Engineering School Detachment at the Marine Institute
should be reviewed for their best practices.
Canadian Forces Base Gander � 9Wing
9 Wing Gander, established by the Government of Canada, provides full time
search and rescue capabilities and is responsible for a massive area,
covering the lower Arctic, the Maritimes, Newfoundland and Labrador
and all offshore waters in the region. The Base also provides a
comprehensive Canadian Coast Guard Radar facility which delivers timely and
accurate information to the Regional/Sector Air Operations Centre based in
Nova Scotia.
The primary occupants of the Base include the 103 Search and Rescue
Squadron, the 9 Air Reserve Flight Detachment, Canadian Forces Station
Leitrim Detachment Gander, the 91 Airfield Engineering Flight, 1 Dental Unit
Detachment and the 5 Canadian Ranger and Junior Ranger Patrol Groups.
Since program review in the mid-1990s, 9 Wing Gander, like most bases across
Canada, has been forced to scale back its operations significantly. Between
the fiscal years 1996/1997 and 2003/2004, the number of regular force
members permanently posted to 9 Wing, as I have already mentioned, has
declined from approximately 187 to 134, while the number of civilian
personnel employed at the Base has dropped dramatically from 97 to 29. In
2003/04 there were 88 reservists supported by 9 Wing. In terms of budget,
the available financial resources have dropped from approximately $16.7
million to $8.1 million between 96/97 and 03/04.
The primary capability requirement for 9 Wing is the 103 Search and Rescue
Squadron. There has been much speculation over the past several years that
the Department of National Defence is considering moving the Squadron from
Gander. I understand you reviewed the issue of search and rescue capability
requirements extensively yesterday with Lieutenant Colonel MacAleese.
The Government of Newfoundland and Labrador�s view is that the 103 SAR
Squadron should remain at Gander and should be adequately resourced to meet
its vital mandate. This mandated service is undoubtedly best offered from a
central area thereby maximizing the effectiveness of managing resources. It
is also related to the DND priority to focus strategic planning efforts on
the required capabilities.
Recommendation
The 103 Search and Rescue Squadron at 9 Wing remain stationed at Gander, NL
in accordance with DND�s objectives of maximizing the effectiveness of
managing resources and focus strategic planning efforts on the required
capabilities.
5-Wing Goose Bay
The Government of Newfoundland and Labrador is concerned about the longer
term viability of 5-Wing Goose Bay.
The Foreign Military Flight Training Program at Goose Bay, which has
operated under a 10 year Memorandum of Understanding (1996 � 2006), is one
of the largest economic generators in the Labrador region. In 2002-2003, the
military training program generated approximately 1,655 person years of
employment (down from 1,880 in 2000-01), contributed $85.95M to the
provincial GDP and generated $36.55M in provincial government revenues.
This Agreement is scheduled to expire in early 2006. There are currently no
training partners scheduled to train at 5-Wing post 2005. This is a
significant issue that is of grave concern to the Government of Newfoundland
and Labrador and to the community of Happy Valley � Goose Bay. It has also
captured the attention of Premier Danny Williams, Prime Minister Paul
Martin, and the Minister of National Defence, Hon. Bill Graham. The Prime
Minister and Premier have publicly indicated their commitment to the future
viability of foreign military training at 5-Wing. The community has also
established a concerned citizen�s organization, the Goose Bay Citizen�s
Coalition, which has met with both First Ministers.
Prior to 2004, the Department of National Defence allocated approximately
$35 - 40M annually to the operation and maintenance of 5-Wing (including the
CF component). The Government of Canada, however, recoups significant
corporate and personal income tax and other economic benefits as a result,
directly and indirectly, from the economic spin-offs of this program which
return to the Consolidated Revenue Fund of Canada, not DND�s budget. For
example, Department of National Defence Estimated Expenditures by Electoral
District and Province indicate that as much as approximately $65M was
recouped as revenue from this program as recently as FY 2000/2001.
Although 5-Wing serves as a NORAD CF-18 forward deployment base, military
officials have indicated that CFB Goose Bay is not an operational
requirement for the Canadian Forces. From a strictly military perspective,
the $35 - 40M annual allocation in DND�s budget for Goose Bay is therefore
an expenditure which does not advance firm Canadian Forces operational
needs.
At its peak under the current MOU, up to approximately 7,000 low-level
sorties were flown from 5-Wing. Clearly, the focus on low-level flight
training was for Cold-War era purposes and Goose Bay provided an ideal
location for such training activities. The Department of National Defence
estimates that up to 1,500 � 2,000 sorties may be flown during 2005.
This significant decrease is largely the result of current training partners
reducing training and personnel at Goose Bay due to budget restraints and/or
operational needs. They all emphasize that reductions are not related to
dissatisfaction with training at Goose Bay. Reductions include:
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Royal Air Force discontinued
its permanent detachment at Goose Bay (July, 2004), and has indicated
that it is not in a position to enter into an agreement to train at
Goose Bay during the 2005 training season;
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Italian Air Force postponed
construction of a $35M hanger. (2002);
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Royal Netherlands Air Force
withdrew from the MOU in 2003; and
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German Air Force reduced the
number of training squadrons flying in 2003, is divesting itself of
military assets in Goose Bay and will train at Goose Bay until the end
of the current MOU (2005 flying season).
Further to these reductions, the
Canadian Force presence at Goose Bay is also decreasing. This fiscal year,
for example, there was a staff reduction of approximately 20-25 percent. The
stated rationale behind the decision is to recoup costs through additional
efficiencies.
As mentioned previously, with the evolving nature of warfare and the current
security environment, low-level flight training requirements are decreasing.
Goose Bay must be positioned to meet evolving needs to remain an
international training venue of significance. There is still a role for
Goose Bay where there is unrivalled air space over vastly different terrain
than other North American training venues which is geographically closer to
Europe and our NATO partners.
The Department of National Defence has initiated several changes to the
management and governance model at 5-Wing. Firstly, and primarily in
response to expressed concern by partners over the cost and pricing
associated with training at 5-Wing, a �hotel model� has been introduced
whereby partners no longer are required to hold infrastructure or permanent
detachments at Goose Bay. The infrastructure is now held by Canada. Partners
can now train for shorter periods of time for specific exercises, reportedly
a more convenient and marketable management regime.
A new pricing methodology was reviewed by the federal Operations Committee
of Cabinet and released to the current partners for their consideration. The
intent would be that bilateral arrangements would be negotiated with Canada
for training purposes within the context of a �Standard Level of Service�
offered by the Department of National Defence as opposed to the previous
multinational arrangement of common and dedicated resources and supported by
a complicated and expensive costing regime.
Additional training opportunities are also being examined including: (i)
supersonic flight training; (ii) high altitude (surface to 60,000') flight
capability; (iii) chaff and flares; and (iv) increased night operations.
Other opportunities are also being pursued to expand the menu of options
offered at 5-Wing, such as Tactical Transport, Unmanned Aerial Vehicle (UAV)
training, survival training, Special Forces training and so on.
The Department of National Defence has also completed some international
marketing exercises to expand the level of interest in training at 5-Wing,
one of which was participation in the ILA Berlin International Aerospace and
Defence Trade Show and Conference. Premier Williams and MHA John Hickey
attended.
Despite these significant changes at 5-Wing, the fact remains that there are
currently no training plans in place for 5-Wing after the conclusion of this
upcoming 2005 season. What will be the outcome in March 2006 is a question
that concerns many people whose livelihood is dependant on the training
program.
The Goose Bay Citizen�s Coalition has been very proactive in conducting
research and reviewing how best the community can contribute to the
promoting the future viability of the foreign military flight training
program in light of the uncertainty and concerns. They have visited several
bases which have faced similar challenges to seek �lessons learned� to guide
their own way forward. They have requested financial assistance of the
Governments of Canada and Newfoundland and Labrador to conduct four specific
research studies to inform future decisions on potential diversification
initiatives.
We believe 5-Wing and the international training program can be much better
utilized by the Government of Canada to meet its own objectives in areas
such as the promotion of key international defence and security
relationships and the enhancement of the capability to operate effectively
in joint, interagency and multi-national environments.
In this context, I would like to examine, I would like to examine Canada�s
commitment to NATO. 5-Wing Goose Bay is clearly a vital component.
High population densities and congested airspace in Europe limit
opportunities to conduct mechanized battle group or low-level flying
training, in addition to Canada�s specified peacetime commitments. Canada
therefore offers Allied forces the opportunity to train at various
facilities in Canada. Canada hosts bilateral programs for the armed forces
of Germany and the United Kingdom that take advantage of the open spaces of
Canadian Forces Base (CFB) Suffield, the Land Force Western Area Training
Centre in Wainwright and CFB Goose Bay. Providing these facilities is an
important contribution to the military effectiveness of Canada�s Allies and
the Alliance.
The NATO Flight Training Program in Canada (NFTC) is another initiative
being offered by Canada, in co-operation with industry, to provide NATO
nations with military pilot training. Two Canadian Forces bases provide
training facilities: Moose Jaw, Saskatchewan, and Cold Lake, Alberta. The
first NFTC instructors completed their training in 1999, with the first
students following in 2000. Denmark, the United Kingdom and Italy have
already joined the program, and other nations are expected to participate.
During the March, 2003, meeting of NATO Heads of State and Government in
Prague, members agreed to the �Prague Capabilities Commitment�. They made
specific, individual commitments to improve capabilities as quickly as
possible, in four key areas: (i) defending against chemical, biological,
radiological and nuclear (CBRN) attacks; (ii) ensuring command,
communications and information superiority; (iii) improving interoperability
of deployed forces and key aspects of combat effectiveness; and (iv) to
ensure rapid deployment and sustainment of combat forces.
The concept for the NATO Response Force (NRF) was also endorsed which
increases NATO�s ability to respond to threats quickly and decisively,
wherever they come from. The NRF will be drawn from the land, sea and air
forces of NATO Allies, with pre-identified units training and exercising
together to meet common standards and enhance operational capability.
The 5-Wing training facility has been used by international forces to
achieve these individual and NATO objectives of joint inter-operability
between nations as well as inter-operability and integration of their
components: land, air, and sea. The infrastructure at Goose Bay is available
and within a short distance from western Europe and the northeast United
States. There is currently an opportunity to further enhance the use of
5-Wing toward meeting these objectives, as well as the objectives of the
Canadian Forces, in an efficient and effective manner.
The training program at 5-Wing could also be linked to Canada�s other NATO
commitments at Cold Lake and Moose Jaw. For example, Goose Bay�s location
and program is well positioned to become a �work-up� venue whereby Forces
begin their North American training at 5-Wing with a view to ready their
personnel for more technical exercises and training at Cold Lake, Moose Jaw
or within the U.S. It could also act as a pre-staging ground for Maple Flag
exercises and the objective of continued fostering of international
relationships.
To ensure that 5-Wing is one of the primary locations for such training in
Canada, the Department of National Defence must be provided with adequate
financial assistance to �grow the business� of Goose Bay. New training
opportunities must be added to the menu of offerings and a dedicated
marketing effort must be undertaken. While much has already been
accomplished, much work remains ahead of us collectively.
Recommendation
5-Wing Goose Bay be further used in achieving CF and NATO objectives of
interoperability and integration through the following:
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The Department of National
Defence be provided with adequate financial resources to ensure the
future viability of a foreign military flight training program over a
period of time, for example 3 years, to allow DND to �grow the
business�;
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The Department of National
Defence implement additional training activities at 5-Wing to meet the
evolving training needs of the Canadian Forces and international forces;
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The Department of National
Defence conduct a dedicated marketing effort for 5-Wing Goose Bay; and
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Where appropriate, the
Canadian Forces conduct training activities in conjunction with the
training partners present at 5-Wing.
III - Recommendations
In conclusion, I would like to take a moment to quickly review the
recommendations I have put forth for your consideration.
The Department of National Defence continue to pursue, develop, and enhance
partnerships with educational facilities in Newfoundland and Labrador in
accordance with the DND priority of developing and supporting a
professional, effective and sustainable defence team. Successful models,
such as the Naval Engineering School Detachment at the Marine Institute
should be reviewed for their best practices.
The 103 Search and Rescue Squadron at 9 Wing remain stationed at Gander, NL
in accordance with DND�s objectives of maximizing the effectiveness of
managing resources and focus strategic planning efforts on the required
capabilities.
5-Wing Goose Bay be further used in achieving CF and NATO objectives of
interoperability and integration through the following:
-
The Department of National
Defence be provided with adequate financial resources to ensure the
future viability of a foreign military flight training program over a
period of time, for example 3 years, to allow DND to �grow the
business�;
-
The Department of National
Defence implement additional training activities at 5-Wing to meet the
evolving training needs of the Canadian Forces and international forces;
-
The Department of National
Defence conduct a dedicated marketing effort for 5-Wing Goose Bay; and
-
Where appropriate, the
Canadian Forces conduct training activities in conjunction with the
training partners present at 5-Wing.
Thank you very much for your
time. I look forward to your questions and discussion. |
