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5. The New Wave - Marine Safety Strategic Plan, 2009-2015 - TP 13111
6. Strategic Context, Challenges and Strengths

Strategic Context, Challenges and Strengths

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While working towards its mission in an ever-changing world, the Marine Safety program faces many challenges. To capitalize on our strengths, seize opportunities and overcome challenges, we need to identify and understand them. To accomplish this, we looked at six key dimensions of our internal and external environments for challenges and opportunities in order to ascertain their potential impact.

The strategic context, challenges and strengths provide the impetus for the key results and objectives established in this plan.

Globalization and Industry Growth:

Globalization brings many international policy issues into the national arena. This requires governments to connect global and regional needs. Canada is a partner in international agreements on trade and tariffs, which have opened domestic and international markets. International issues today include trade, population health, regulatory harmonization and sustainable development. Effective responses require international cooperation amongst governments and industry.

Global harmonization provides governments with an opportunity to cooperatively raise the level of safety performance while minimizing additional costs to the marine industry by applying more consistent requirements across multiple markets.

Globalization has opened many markets to increase trade on a world scale. This in turn impacts marine transportation in terms of activity volume, vessel types, routes and working in a regime that requires international cooperation.

Growth of new markets e.g., Asia-Pacific, puts tremendous pressure on the marine transportation system's productivity, capacity, supply, demand and safety. All activity areas (compliance and enforcement, regulatory framework, education and awareness, and program management) are affected by this growth. The impacts are either due to increased volumes of marine activity that increases risks, increased complexity impacting the regulatory framework and other marine safety activities, or new areas where we have limited experience and information, and therefore require significant effort to address these new areas. The booming commodity market is also opening new areas such as increased mining activity in the North, which raises related transportation issues.

Increased energy demand has also caused an increase in offshore oil and gas extraction operations. This has introduced new large and very technically complex oil and gas extraction platforms to the marine world. It has also created increased marine traffic to support them. This support includes moving the platforms, supplying the platforms and transporting the oil and gas. This situation has a positive impact on the Canadian economy but must be carefully managed from an oversight perspective in order to minimize safety and environmental risks associated with these types of operations.

Other related highlights:

• Changes within the shipping industry - complex ownership and crew management create equally complex safety oversight operations.
• Complexity of the shipping industry - its various organizations and types of operations.
• Increased industry accountability - due to Port Sate Control, classif cation societies, industry associations, and safety management systems.
• In 2007, there was an estimated 398.3 million tonnes of marine freight traffic, up slightly 0.3 per cent from 2006. Estimated Canada-U.S. traffic in 2007 totalled 126.5 million tonnes, down 0.15 per cent, while other international (deep-sea or overseas) traffic increased by an estimated 0.6 per cent to 204.5 million tonnes.⁷
• Increased port activity - in 2007, Canadian ports handled 465.6 million tonnes in marine cargo, down slightly 0.2 per cent from previous year.⁸
• Increased maritime container service - this sector is expected to double in coming years, with increased ship size and the opening of new terminals on the East and West coasts.
• Additional marine terminals - the high number of energy projects forecast will likely result in an increased number of marine terminals in all Transport Canada regions particularly affecting petroleum products and LNG.
• Increased recreational boating - another new focus for the Marine Safety program, since this community accounts for the largest share of marine fatalities.
• Ongoing infrastructure growth and rehabilitation - will spill over in areas such as the Navigable Waters Protection program.
• The growing cruise industry - creating new issues especially in concentrated areas such as the West Coast and the Arctic.
• Replacement of old vessel fleets - will impact on the Marine Safety program workload.

The challenges for the Marine Safety Program are to:

1. Be proactive in identifying trends and potential matters affecting the marine community;
2. Continue to pursue an integrated and comprehensive approach when dealing with marine matters;
3. Influence the international safety environment to meet Canadian requirements;
4. Integrate and harmonize domestic and international practices to promote safety oversight;
5. Be effective and efficient when dealing with marine matters; and
6. Continue to involve the growing number and diversity of the marine community when forming policy and programs while balancing safety, environmental and economic interests.

Heightened marine safety concerns:

Transport Canada's role is evolving to provide policy and regulatory oversight, which changes the nature of the relationship between the Marine Safety program and industry. The Marine Safety program is moving into an environment where safety is a shared responsibility amongst the marine community. We support safety in the marine community through a number of program initiatives such as safety management systems. How the Marine Safety program conducts its oversight programs must reflect these changes.

Enhancing marine safety is a priority for the maritime community as a whole. All stakeholders have an important role to play in implementing, maintaining and raising standards. The time has come to do more than prescribe and comply with safety requirements. The Marine Safety program and the marine community must manage risks to acceptable levels. Furthermore they must commit to developing and maintaining a safety culture that continuously improves, learns, anticipates and becomes resilient to future changes and challenges.

Access to information, programs, transparency and an integrated approach in developing measures for a consistent, effective and efficient implementation of Marine Safety's instruments are also critical success factors in enhancing marine safety.

Other related highlights:

• Industry is moving toward prevention strategies and safety management systems.
• Domestic and international marine industries have improved competency levels.
• Partnerships with organizations and other special interest groups like industry associations, labour unions, and federal and provincial governments provide for better communications, education and awareness of marine safety issues.
• Public attitudes are changing and are less tolerant of accidents and incidents on waterways.
• Administrative and financial penalties now exist to address concerns and improve compliance, however they have had an impact on workload.
• Commercial fishing is a high-risk activity, recognized in Canada and worldwide as one of the most dangerous occupations.
  • There are more than 22,000 small commercial fishing vessels operating in Canada.
  • On average more than 20 fatalities on fishing vessels occur each year in Canada with devastating effects on families and communities.
• Marine Safety program focus is shifting from a heavy focus on the low-risk vessels to an increased focus on high-risk vessels.
• Canada's recreational boaters number approximately 6 million.
• High-risk and economic impact make the Marine Safety program committed to a balanced approach of enhancing the safety of small vessels (including fishing vessels) and of recreational boating.
• The Marine Safety program will continue to work with the Transportation Safety Board in identifying areas where safety can be enhanced.

The challenges for the Marine Safety Program are to:

1. Implement safety management systems in support of the changing roles and responsibilities of both the Marine Safety program and the marine community;
2. Instil a safety culture, within the Marine Safety program and within the marine community that continuously improves, learns, anticipates and adapts to future changes and challenges; and
3. Further develop and strengthen existing strategic alliances and explore new alliances to advance the Marine Safety program's strategic outcomes and objectives.

Technology:

Technology is evolving at a rapid pace and on many fronts. The information technology revolution has and will continue to produce new products and services. They are critical components of a modern, safe and efficient transportation system. We encourage technological change to enhance safety. Changes occur in control systems, propulsion systems, navigation systems, information technology, business practices and systems. The Marine Safety program ensures that new technologies do not put safety or the environment at risk. Given the breadth and speed of technology change, it is a challenge for the Marine Safety program to ensure that regulations and oversight practices keep pace.

An example of Marine Safety program's commitment to incorporating new technology in its programs is the newly equipped Dash 8 pollution surveillance aircraft launched on December 1st, 2006. The aircraft is equipped with state-of-the art aerial surveillance equipment and increases Transport Canada's ability to detect marine polluters. Technology allows the surveillance aircraft to cover a much broader area than before, day or night, and in more challenging weather conditions, which is a perfect supplement to the existing RADARSAT satellite system.

RADARSAT is a satellite observation system that can detect anomalies on the ocean surface that may indicate a marine pollution incident on the ocean's surface. The use of the new aerial surveillance equipment, along with RADARSAT improves our ability to track those who pollute our waters and hold them accountable.

The oil and gas industry is increasingly turning to floating solutions such as Floating Production Storage and Offloading (FPSO), Floating Storage Offsite (FSO) and Floating Production Unit (FPU) vessels for hydrocarbon production, particularly in deep waters, for marginal fields and in remote locations.

Technical innovations in design and installation of floating production systems have been characterized by new design concepts and advanced engineering. Several new concepts of floating systems are proposed every year and the Marine Safety program must study the mechanics theory that support these technical advances, review and approve the new design concepts and then adapt our regulatory regime.

The Marine Safety program currently manages over 30 in-house information technology systems that support its responsibilities for the safety of vessels, seafarers, navigable waters, pleasure craft and the Canadian marine environment. Providing and supporting these systems will enhance the Marine Safety program's ability to carry out business in a consistent, effective and efficient manner and provide the marine community with user-friendly interfaces to:

• Access current Marine Acts, regulations, standards and policies
• Carry out E-commerce e.g., online registration and licensing
• Provide an effective avenue for submitting feedback and queries
• Enhance stakeholder awareness
• Provide automated support of risk management and trend analysis

Other related highlights:

• Security measures may accelerate the development of safer navigation procedures and safety systems such as the Automated Identification System and the Global Marine Distress and Safety System.
• New technologies affecting control systems, materials, navigation systems, communications systems and infrastructures are impacting the regulatory regimes.
• Speed of technological advancements and changes is accelerating.
• Pressure to keep regulations in pace with rapid technological changes is growing.

The challenges for the Marine Safety Program are to:

1. Verify that adopted technological developments enhance marine safety and protect the environment;
2. Optimize the use of information technology within the Marine Safety program and provide the shipping industry and other stakeholders with enhanced access to that information;
3. Verify that new equipment for use on board vessels is designed and manufactured with the needs, skills and abilities of all users in mind;
4. Verify that seafarers receive adequate training;
5. Ensure that Marine Safety program employees keep abreast of rapidly advancing technologies;
6. Modernize the legislation, regulations, processes, practices and tools of the Marine Safety program to take advantage of new technologies; and
7. Optimize potential streamlining of in-house information technology systems within the Marine Safety program and within Transport Canada.

Environment:

Changes in public and political attitudes on environmental issues have led the Government to enhance existing programs as well as introduce new legislation and programs. The Marine Safety program is responsible for a number of environmental laws that protect Canada's waterways.

The oceans are an integral part of Canada's economy, social, cultural and recreational sectors, and their protection is of great importance. One quarter of our population lives in coastal areas. At approximately 244,000 km long, Canada's coastline is the longest in the world. The vastness of the oceans dictates an international approach to their governance. A major step in this regard was taken in 1982, when the United Nations Convention on the Law of the Sea (UNCLOS) was adopted. Canada played a significant role in the negotiation of this Convention and ratified the Convention in December 2003.

Termed the “Constitution of the Oceans”, UNCLOS sets out the framework for areas in which states (countries) have jurisdiction and sovereign rights, which diminish as one moves away from its coast. This Convention has a direct impact on the Marine Safety program since it controls administrative, technical and social matters over Canadian and foreign vessels through the flag, port and coastal state control programs.⁹

Canada now has consolidated zero tolerance national regulations for the Prevention of Pollution from Ships and for Dangerous Chemicals. These regulations apply to all vessels in all waters in Canada and to Canada's exclusive economic zone and will help eliminate the deliberate, negligent, or accidental discharge of pollutants from ships into the marine environment. The regulations compile existing requirements under the Canada Shipping Act 2001, and international marine standards. They also contain new requirements necessary for Canada to conclude its adoption of all the optional provisions of the International Convention for the Prevention of Pollution from Ships and to adopt the Anti-Fouling Systems Convention.

The Marine Safety program works to ensure that its policies, programs and operations reflect sustainable development criteria and to make a difference in sustainable development terms in the international arena.

Other related highlights:

• Shipping carries the world's trade, including most of Canada's.
• Global warming is extending the length of the seasonal shipping season.
• Ships' ballast water may contain thousands of aquatic species, including bacteria and other microbes, micro-algae and various life stages of aquatic plant and animal species. Ships travelling in Canadian waters carry thousands of tonnes of ballast water annually, making Canada vulnerable to the introduction of alien species from the ballast water discharged.
• Applications received through the Navigable Waters Protection Program (NWPP) are a significant workload driver for Environmental Assessments. The NWPP protects the public right to navigation and the environment according to the Navigable Waters Protection Act (NWPA).
• International Maritime Organization estimates emissions from ships account for between 2 and 4.5 percent of all Green House Gas emissions.
• Air pollutants from ships are increasing relative to other transportation modes, given the vast trade they carry, the use of residual heavy fuels by ships while other modes use refined distilled fuels.
• The Government of Canada has introduced tough, mandatory regulations for industry to reduce emission by 20 percent by 2020 and 60 to 70 percent by 2050.
• Changed public attitudes demand environmentally responsible performance from the marine community.
• Protecting the environment is a high priority of the Government of Canada and International Governments and organizations.
• New issues are associated with Arctic Waters.

The challenges for the Marine Safety Program are to:

1. Proactively identify and address activities that could harm the marine environment;
2. Develop and implement effective and efficient responses to shipping incidents in order to mitigate their impact on the environment;
3. Facilitate ship recycling;
4. Communicate our commitment to sustainable development as well as our successes and our challenges through as many different means as possible;
5. Continue to innovate in the area of sustainable development and draw upon sources of sustainable development information and expertise, tools and best practices shared by other countries, international organizations and the corporate sector;
6. Coordinate with other government departments and agencies on marine environmental issues that touch the marine community;
7. Provide a modernized legislative and regulatory regime that supports the Government of Canada's directions on environmental issues; and
8. Design and implement an efficient national accident prevention and response regime to cope with spills of hazardous and noxious substances, which meet Canada's obligations under the international Protocol on Preparedness, Response and Co-operation to Pollution Incidents by Hazardous and Noxious Substances (OPRC-HNS Protocol).

Labour Market Factors:

Demographic trends indicate that Marine Safety program staff at many critical levels will soon be leaving the workforce. In fact, this trend affects the entire marine industry at a time when it is experiencing a growing need for crews and officers to meet increased global demand for marine capacity. This combination of growth in marine activity and attrition rate has placed both the Marine Safety program and marine industries in a difficult and highly competitive environment for highly trained and experienced mariners.

This trend and the associated labour shortages are expected to grow over the coming years and create many pressures on safety. This is true at all levels of both government and industry. Highly skilled and experienced mariners are key to maintaining and improving marine safety. Unskilled or inadequately skilled mariners create safety issues for themselves, crewmates and other mariners.

Companies will be under growing pressure to find less labour intensive ways to meeting demand. While this can have positive benefits, there are risks if this is not done properly, with safety and risk management in mind.

The Marine Safety program hires experienced mariners to meet job competency requirements. Should the current trend continue, it is estimated that the number of mariners will not be sufficient to meet both industry and government needs.

Other related highlights:

• Ongoing recruitment challenges due to technical and competency requirements exist. The aging workforce will contribute to a world shortage of experienced mariners.
• The required skill sets for Marine Safety program workforce will be reviewed to meet shift towards safety management systems, which will in turn place a different emphasis on the recruitment of staff.
• By 2011, all labour force growth is expected to result from immigration.
• The majority of recent immigrants are of working age, have university education, and know at least one official language.

The challenges for the Marine Safety Program are to:

1. Enhance its recruitment/retention strategies, training requirements and succession planning;
2. Promote education and training in the marine community;
3. Review qualification and skill set requirements for specific or generic positions;
4. Create an organizational structure that meets recruitment needs and facilitates mentoring and development;
5. Achieve program objectives and develop new program systems/tools with limited resources; and
6. Promote a cultural change within its inspection workforce by moving from a prescriptive inspection to a monitoring performance-based regime.

Government:

Safety and security continue to be government priorities. The government is working towards funding the Budget commitments, which causes shifts in departments' structures and resources. Finding a balance between the level of enforcement and the level of oversight will present a challenge to both the Marine Safety program and the government in terms of resources and powers.

Competition in the transportation sector is intense and creates pressure to reduce costs. Governments can encourage domestic and international competitiveness by reducing the regulatory burdens and increasing regulatory harmony.

Regulatory modernization continues to be a government priority. Regulatory modernization has brought about improvements, over the years. But in the rapidly changing industry, we must continually adapt our actions and interventions. This is why the current Government is introducing a new performance-based regulatory system with a commitment to efficient, timely and cost-effective regulation, underpinned by clear service standards and accountability for federal performance. In today's world, regulation can - and must - become a competitive advantage and a key instrument for achieving our social, environmental and economic objectives. The Marine Safety program is adapting its prescriptive regulations to performance- based regulations. Performance-based regulations will change how we regulate, establish priorities, coordinate across jurisdictions and measure performance.

Having to manage increased responsibilities with limited resources, the government must enhance performance by integrating modern comptrollership into the heart of its management practices. It must develop a professional, skilled workforce able to serve the public interest and provide cost-effective and responsive services for Canadian citizens.

Other related highlights:

A number of central agency initiatives that have and will continue to have an impact on the Marine Safety program, such as:

• Federal Accountability Act: New legislation, which includes a specific section on strengthening audit and accountability in departments.

• The Paperwork Burden Reduction Initiative (PBRI): A public-private sector partnership aimed at reducing the costs of paperwork and regulatory compliance for small businesses, making it easier for them to do business in Canada and around the world.

• “Results for Canadians”: A management framework for the Government of Canada”, which focuses on due diligence and value for money in the use of public funds.

• Management Accountability Framework (MAF): A call for well-managed departments to monitor results, report what was found and make adjustments.

• Official Languages: New policy instruments as of April 2004, and the Public Service Exclusion Approval Order and Public Service Official Languages Appointment Regulations that came into force in December 2005 have had a major influence on recruitment and training practices in departments.

• Public Service Modernization Act (PSMA): Legislation containing four acts: Canadian Centre for Management Development Act (creating the new School of the Public Service), amendments to the Financial Administration Act (moved responsibility for certain aspects of human resources management to deputy heads), Public Service Labour Relations Act, and the Public Service Employment Act (giving departments more flexibility in staffing; while also increasing their accountability). This has had major effects on human resource management in all departments.

The challenges for the Marine Safety Program are to:

1. Continue to update and develop a relevant policy and legislative framework;
2. Ensure a successful culture change through the development of management strategies to ensure success;
3. Respond to Central Agency needs and priorities in a timely and efficient manner; and
4. Build an internal Integrated Management System to meet the demands of Central Agencies and to ensure sound business practices.

In meeting these challenges, the Marine Safety Program will capitalize on its strengths and opportunities:

• Clear vision and consensus of direction
• Professional, dedicated, experienced employees with specialized knowledge
• Robust consultation process
• Improved Canada Shipping Act, 2001
• An evolving national technical training program
• Well-developed databases and electronic infrastructure
• A strong domestic and international reputation
• A cohesive management team
• Effective communications within the program and strengthened relationships between Headquarters and regional staff
• Empowered managers and employees
• Collaboration with the entire marine community in forming policy and programs
• Strategic alliances, both existing and new that help achieve the Marine Safety program's key results
• Communication of our commitment to sustainable development as well as our successes and our challenges through as many different means as possible
• Continuous innovation in the area of sustainable development and access to sources of sustainable development information and expertise, tools and best practices shared by other countries, international organizations and the corporate sector.

7. Source: Transport Canada - Transportation in Canada 2008
8. Ibid
9. For more information on flag, port and coastal state control responsibilities, visit http://www.tc.gc.ca/marinesafety/oep/menu.htm

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Date modified:

2010-01-14

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