Heavy Urban Search and Rescue Concept of Operations
July 2025

Table of Contents

Executive summary

As disasters increase in frequency and severity across Canada due to climate change and shifting demographics, so does the need for federal/provincial/territorial/municipal collaboration to ensure that threats to communities, infrastructure, personal well-being, economic security, and the environment are met with an efficient and robust response that considers all possible avenues for support. Local authorities will continue to provide first response as the impact of an incident is generally local in nature; when the capacity of these authorities is insufficient to sustain operations, a province/territory (PT) request for assistance (RFA) or an RFA through an established process for national support is necessary to leverage assets and capabilities from across the emergency management (EM) community to affect response.

Urban search and rescue (USAR) is a technical response capability involving the location (search), extrication (rescue), and stabilization of trapped victims, primarily due to structural collapse in urban environments. USAR is an all-hazards discipline that is often critical in the aftermath of various incidents including earthquakes, cyclones, tornadoes, storms, flooding, wildland fires, and critical infrastructure failures. There are currently six heavy USAR (HUSAR) task forces (TF) across Canada that deliver the most specialized and self-sufficient USAR capabilities; they are municipally or provincially owned assets, which receive joint funding from local, PT, and federal governments.

This foundational concept of operations (CONOPS) is a coordinated effort to build national readiness capacity for the effective and efficient deployment of TFs in response to an ongoing incident or in preparation for a planned event. The long-term value of this construct is contingent on its evergreen development through coordinated efforts from Public Safety Canada (PS), the provinces, territories, municipalities (PTMs), and the TFs. This first version of the CONOPS exists as a reference document for the current agreements, processes, and relationships in place and sets a course for the continuous enhancement and integration of USAR capabilities in the evolving national EM context.

The national procedures and governance frameworks described within this CONOPS provide a comprehensive overview of these capabilities at present. It is the result of research and collaboration from all levels of government with the goal of achieving an evergreen construct to inform a HUSAR response that supports whole-of-society operationsFootnote 1. Continuous improvement to deployment mechanisms – such as the coordination of air transportation, resolution of persistent regulatory challenges, and enhanced standard operating procedures (SOPs) – will form the basis of future work on the CONOPS. In addition, Canada will pursue certification of the TFs through the International Search and Rescue Advisory Group (INSARAG)-recognized national accreditation process (NAP) to further strengthen domestic deployment and national-level interoperability into the future.

1. Context

In Canada, emergency management (EM) adopts an all-hazards approach to address natural and human-induced hazards through effective prevention/mitigation, preparedness, response, and recovery. Strengthening resilience to these hazards requires contributions from all of society, coordinated through effective leadership from federal, provincial, territorial (FPT) governments in collaboration with communities, Indigenous peoples, academia, volunteers, and industry.

Urban search and rescue (USAR) refers to a group of technical skills required to locate, extricate, and stabilize individuals trapped in structural collapse incidents or respond to other all-hazards events. USAR is classified into light, medium, or heavy capabilities based on training requirements, associated equipment, and capability level – as described in the Canadian USAR Team Standard, which replaces the former USAR classification guide.

As growing cities, aging infrastructure, and climate variability increase across Canada, ensuring sufficient heavy USAR (HUSAR) capacity has become increasingly important. The national HUSAR Program, administered by Public Safety Canada (PS), provides joint funding with the provinces, territories, municipalities (PTMs) to support six task forces (TFs) across the country – including:

2. Purpose

In recognition of the evolving risks affecting communities across the country, and in order to build more robust national preparedness for future emergencies, collaboration between the TFs and federal/provincial/territorial/municipal governments forms the foundation of a HUSAR strategy and other whole-of-society initiatives to support national preparedness efforts.

The information contained within this concept of operations (CONOPS) is intended to build a foundation for the interjurisdictional deployment and interoperability of the TFs with a view towards national standardization and capacity-building to promote a safe, secure, and resilient Canada in the face of large-scale structural and all-hazards incidents.

The CONOPS serves as a reference document to codify existing agreements, mechanisms, and constructs used to deploy HUSAR capabilities between the provinces/territories (PTs). Throughout this document, challenges towards the development of a fully interoperable network of TFs are highlighted in order to identify areas for further collaboration and to lay the foundation of a national system of accredited teams within the EM community. As such, the initial focus of the CONOPS is on heavy classified USAR teams, because heavy teams are designed to be capable to deploy over jurisdictional boundaries across the country.

It is intended to facilitate the development of a national system of integrated HUSAR capabilities – including through the establishment of a national accreditation process (NAP) in alignment with International Search and Rescue Advisory Group (INSARAG) guidelines to ensure a commonality of capabilities, communications, and coordination in multi-team, domestic response operations. The constructs defined within this document will be leveraged to prepare federal/provincial/territorial/municipal partners to initiate this process and continuously streamline emergency response mechanisms within Canada.

3. Scope

The CONOPS pertains to domestic interjurisdictional HUSAR deployment and describes the mechanisms that can be employed to mobilize the TFs outside their PTM jurisdictions to support response operations for large-scale incidents across Canada. This document defines their commonalities and provides generic steps for mobilization in order to facilitate consistent capacity-building and interoperability between the TFs.

The CONOPS is initially focused on HUSAR, however, the capabilities of light USAR (LUSAR) and medium USAR (MUSAR) are recognized and will be supported in the deployment of the TFs. LUSAR and MUSAR teams typically operate under the purview of municipalities, serving as a complement to TF capabilities – within and between PTM jurisdictions – in the event of a significant incident. It is assumed that LUSAR/MUSAR teams deploy within the command structure of their respective TFs. They are acknowledged by the CONOPS and may be included in future versions.

4. Objectives

In articulating the priorities of Canada's HUSAR strategy, the objectives of the CONOPS include:

  1. Define the current conditions for the interjurisdictional deployment of TFs by leveraging existing governance frameworks, agreements, and processes used within the EM community
  2. Deliver on the HUSAR program objectives to achieve interoperability between TFs for deployment, communications, logistics, and command/control in whole-of-society response operations
  3. Describe the mechanisms that deliver effective and efficient interoperability between TFs, with a view towards future innovation and opportunities for national standardization of standard operating procedures (SOPs)
  4. Drive engagement among federal/provincial/territorial/municipal partners and stakeholders to address opportunities for USAR capacity-building and inform a NAP to formalize a network of response-ready, interoperable TFs

5. Assumptions

The continuous development and expansion of the CONOPS aligns with a number of policy and operational-level assumptions on the current state of EM governance, regulations, and priorities – as follows:

6. Legislation and agreements

The following section of the CONOPS details the legislation required to authorize HUSAR operations between PT jurisdictions, and existing agreements in place to facilitate the interjurisdictional deployment of TFs.

6.1 Provinces and territories

At present, PT legislation does not facilitate the exemptions required to mitigate all risks associated with out-of-province USAR deployment – including issues of professional licensure, occupational health and safety (OHS), and personnel/equipment insurance, among others. Additional information on these regulatory challenges can be found in Appendix D.

6.2 Federal

The Emergency Management Act (Canada) recognizes the roles that all stakeholders must play in Canada's EM system. It sets out the leadership role and responsibilities of the Minister of Emergency Preparedness, including coordinating EM activities among government institutions and in cooperation with the provinces and other entities. Responsibilities of other federal ministers are also set out in the Act.

The Federal Emergency Response Plan (FERP) outlines the processes and mechanisms to facilitate an integrated Government of Canada response to an emergency and to harmonize federal emergency response efforts with those of the PTs, non-governmental organizations, and the private sector.

The Disaster Financial Assistance Arrangements allow the Government of Canada (administered by PS) to provide financial assistance to provincial and territorial governments in the event of a large-scale natural disaster. When response and recovery costs exceed what individual provinces or territories could reasonably be expected to bear on their own, the Disaster Financial Assistance Arrangements provide the Government of Canada with a fair and equitable means of assisting provincial and territorial governments.

The federal emergency logistics plan (FELP) provides a foundation for logistics coordination and response efforts led by the Government Operations Centre (GOC) and supported by OGDs and key partners. Critical resources will be sourced through supply and procurement efforts, outlined in the FELP, then transported to required destinations. Thorough tracking of federal resources, inventory management, and sustainment of resources and capabilities is necessary for logistics response during an event and is a function carried out as part of the FELP activation.

The National Defence Act describes the requirements to authorize the Canadian Armed Forces (CAF) to provide assistance in response to domestic emergencies in the national interest and if the matter cannot be effectively dealt with except with the assistance of the CAF.

In addition, the Emergency Management Framework for Canada (EMF) describes the authorities and responsibilities of FPT governments with an aim to guide and strengthen the way whole-of-society partners assess risks and work together to address hazards that pose the greatest risk to Canadians.

The Emergency Management Strategy for Canada (EMS) builds on the foundations of the EMF in order to establish FPT priorities to strengthen the resilience of Canadian society by 2030; it informs annual action plans and supports the roles of governments, non-governmental organizations, academia, and industry in pursuing collective preparedness efforts.

The EMF, EMS, and associated action plans continue to inform the policy direction of the HUSAR Program and the capacity-building it enables for the TFs. In doing so, it facilitates the transformation of EM priorities in the face of evolving all-hazards risks across Canada.

6.3 International

The International Search and Rescue Advisory Group (INSARAG) is an inter-governmental humanitarian network, under the United Nations, responsible for coordinating the deployment of international USAR teams to large-scale incidents and facilitating the development of global guidelines for consistent and interoperable USAR operations around the world.

The INSARAG Guidelines 2020 are a series of living documents that outline the methods and mechanisms through which nations build USAR capacity and deploy teams to domestic and international emergencies; they prescribe coordination constructs required to facilitate the interoperability of USAR capabilities among member states.

The INSARAG Guidelines 2020 encourage countries to establish a NAP to formalize the standards, guidelines, and regulations that govern domestic USAR operations in alignment with an international reference framework to support and recognize capacity-building efforts through certification from INSARAG.

The Senior Officials Responsible for Emergency Management (SOREM) endorsed plans for Canada to launch the NAP in March 2021. Work is underway through the whole-of-government USAR Advisory Committee to facilitate this process in close collaboration between PS, PTMs, and the TFs.

The CONOPS will play a central role in driving the NAP as it outlines the procedures and relationships pertinent to building national HUSAR capabilities. The constructs described within are intended to facilitate the adoption of the INSARAG Guidelines 2020 and other international best practices required to prepare TFs for certification.

6.4 Mutual assistance agreements

In addition to PT legislation, a number of FPT agreements between Canada and the United States govern the cross-border deployment of resources – in both directions – during emergencies.

These agreements, where applicable, enable USAR capabilities to be more efficiently mobilized on short notice, however, they do not resolve the regulatory challenges noted above.

Pacific Northwest Emergency Management Agreement

Northern Emergency Management Assistance Compact

International Emergency Management Assistance Memorandum of Understanding

In addition, the TFs are encouraged to maintain compliance, where applicable, with the following cross-border arrangements facilitated by the federal governments of Canada and the United States to ensure the timely delivery of USAR capabilities in emergencies that may require international assistance and coordination.

The Agreement Between the Government of Canada and the Government of the United States of America on Emergency Management Cooperation (2008) established the Emergency Management Consultative Group, which facilitates collaboration on shared priorities to enhance cross-border emergency assistance and provides a platform to advance new EM initiatives. The Emergency Management Consultative Group may be leveraged to assess and expand the utility of existing assistance compacts/agreements to streamline the deployment of TFs to and/or from the United States and facilitate greater coordination between PS and the Federal Emergency Management Agency on USAR-related policy.

The Plan for the Movement of People and Goods During and Following an Emergency describes the conditions and mechanisms to ensure the timely movement of resources between Canada and the United States during emergencies. This plan sets out the process through which goods are prioritized to cross the border, and it implicates the deployment procedures of TF equipment caches, vehicles, and personnel during emergencies.

The [Canada] Immigration and Refugee Protection Act and [United States] Immigration and Nationality Act govern the movement of emergency response personnel across the border during emergencies. TFs will be required to comply with all border crossing, customs, and visa requirements set out within these Acts, and FPT authorities must be aware of their implications for the reception of HUSAR capabilities from the United States and abroad – including the INSARAG.

7. Governance structure

The governance structure of the HUSAR community in Canada outlines the processes and norms in place to ensure proper decision-making and interaction towards common development and deployment goals. The continuous improvement of the HUSAR program is dependent on sustained and active engagement with federal/provincial/territorial/municipal governments and other operational partners/stakeholders; good governance serves as the foundation for the CONOPS and the delivery of USAR capabilities across the country.

7.1 Federal/provincial/territorial

The Minister of Emergency Management and Community Resilience is responsible for coordinating EM activities between federal departments and in cooperation with PTs, among other entities. The Minister's roles and responsibilities are outlined in the Emergency Management Act (Canada).

The committee of ministers responsible for EM is an FPT body that meets annually to review national EM activities and provide direction to senior EM officials. The Emergency Management Framework for Canada (EMF) and the Emergency Management Strategy for Canada (EMS) have been approved by FPT ministers to establish a common approach for a range of collaborative EM initiatives towards a safe and resilient Canada.

In support of FPT Ministers, two national entities exist: (1) Deputy Ministers responsible for EM and (2) SOREM. Both entities are co-chaired by a representative from PS and a representative from one PT (on a rotational basis).

SOREM includes representatives from PTs and PS. It is responsible for providing guidance and advice on the enhancement of EM to the Deputy Ministers Responsible for EM. The entity is also mandated to provide direction, advice, and support to committees, working groups, and/or non-governmental organizations involved in EM at a national level.

7.1.1 USAR Advisory Committee

The USAR Advisory Committee was established to examine and articulate broad policy objectives associated with the USAR program. It is comprised of representatives from PS, Department of National Defence (DND), Global Affairs Canada (GAC), PTs, and the TFs – operating under the purview of SOREM. The USAR Advisory Committee received endorsement from SOREM to begin drafting a national CONOPS in Fall 2018.

The USAR Advisory Committee is mandated to provide advice and guidance to PS on annual funding priorities and a long-term policy vision for the HUSAR program. It also examines national priorities related to USAR more generally, including LUSAR and MUSAR capabilities in Canada. Furthermore, the committee continues to explore opportunities to strengthen USAR practitioner networks and foster the sharing of lessons learned before, during, and after disasters.

Its TF sub-working group, convening leadership from PS and the TFs, facilitates the delivery of both policy and operational projects (e.g. operational communications protocols, tabletop exercises, capabilities checklists) required to support national initiatives to enhance capacity-building through working-level collaboration and outreach. The sub-working group meets on an established basis and reports to the USAR Advisory Committee for direction and endorsement of its initiatives.

7.2 HUSAR Task Forces

HUSAR TFs are owned and operated by their respective municipal or PT host agency. All TFs strive to meet the same core capabilities, however, there are noteworthy differences in their structures, funding, and deployment methods. The following section describes each TF funded by the HUSAR program and provides examples of deployments using capabilities found within the TFs, whether they are core capabilities or regional specialties.

Canada Task Force 1 (CAN-TF1) is located in Vancouver, British Columbia. The team is operated by the Vancouver Fire Rescue Service. CAN-TF1 is composed of approximately 170 members with skills and expertise drawn from many organizations, including British Columbia Ambulance Service, the City of Vancouver Engineering Department, Vancouver Park Board, Vancouver Police Department, and the Vancouver Fire Rescue Service. It is funded by the City of Vancouver, the Province of British Columbia, and PS.

CAN-TF1 has helped communities during various disasters, both domestically and internationally. They have responded to events such as Hurricane Katrina (2005), southern Alberta floods in Calgary (2013), a structural collapse in Kelowna, British Columbia (2021), and local flooding/landslides as a result of the atmospheric river events in British Columbia (2021) in communities such as Agassiz and Abbotsford. Most recently, CAN-TF1 assisted the Province of British Columbia by conducting rapid damage assessments in communities affected by wildfires during the 2023 wildfire season.

Canada Task Force 2 (CAN-TF2) is located in Calgary, Alberta. The team is a division of the Calgary Emergency Management Agency and receives funding from the City of Calgary, the Province of Alberta, and PS. Overall, the team is composed of approximately 180 members, consisting of doctors, rescue specialists, structural engineers, paramedics, command staff, logistics specialists, canine and technical searchers, and communications specialists.

CAN-TF2 has been of assistance to numerous communities for varying disasters such as the Slave Lake wildfire (2011), the High River and Calgary floods (2013), the Fort McMurray wildfire (2016), and the Chuckegg Creek wildfire (2019). In addition, they have been involved in three interjurisdictional responses: the Saint John, New Brunswick flood (2018), the Yukon, Northwest Territories flood (2021) and the Nova Scotia Spring wildfire and flooding (2023).

Canada Task Force 3 (CAN-TF3) is located in Toronto, Ontario. The team is owned and operated by the City of Toronto but is considered a provincial asset. CAN-TF3 was initiated in 2001 and is currently funded by the City of Toronto, the Province of Ontario, and PS. The Province of Ontario also manages and funds LUSAR teams in Windsor and Thunder Bay and a MUSAR team in Ottawa, providing local capacity and supporting CAN-TF3 in significant incidents.

CAN-TF3 has had large-scale deployments within the Province of Ontario on two occasions. It deployed to the Goderich, Ontario tornadoes (2011), and the Elliott Lake mall collapse (2012), as well as smaller-scale incidents in and around Toronto.

Canada Task Force 4 (CAN-TF4) is located in Manitoba, with equipment staged in Brandon. Established in 2005, TF4 is owned by the Province of Manitoba, managed by the Office of the Fire Commissioner, and funded by Manitoba and PS. It is composed of approximately 150 members from provincial government departments and agencies including the Office of the Fire Commissioner, the Manitoba Fire Service, Manitoba Shared Health, D Division Royal Canadian Mounted Police (RCMP), Manitoba Hydro, and strategic external partners. TF4 K9 Team Leader coordinates development and maintenance of national K9 USAR standards with the other TFs and coordinates validation of search dogs and handlers through the Manitoba Emergency Services College, which also provides accredited training to TF4.

CAN-TF4 has responded to incidents/events in Manitoba and other jurisdictions. Deployments include responses to the 2005 Elie tornado, structural collapse incidents, flood emergencies, ground search and rescue incidents for technical support, wildfires for value protection and logistics including establishing remote camps, Northern and remote Manitoba communities for COVID-19 community support, and PEI for Hurricane Fiona disaster recovery in 2022.

Canada Task Force 5 (CAN-TF5) is located in Halifax, Nova Scotia. It is sponsored by Halifax Regional Fire and Emergency (HRFE) and is owned and operated by the City of Halifax. CAN-TF5 is known for its expertise in remotely piloted aircraft systems (RPAS). It consists of around seventy members from various agencies including Halifax Fire, Halifax Police, Halifax Transit, Parks and Recreation and Nova Scotia Health. CAN-TF5 receives funding from the Halifax Regional Municipality and PS and is making progress towards an end goal of achieving "heavy" USAR classification.

CAN-TF5 has been deployed to a number of local incidents including a crane collapse due to Hurricane Dorian (2019), assistance to the homeless (2021, 2023) Hurricane Fiona (2022), and the Halifax and Shelburn wildfires and flooding (2023).

Canada Task Force 6 (CAN-TF6) is located in Montréal, Québec. It is a division of the Service de sécurité incendie de Montréal, and receives funding from the City of Montréal, Province of Québec, and PS.

CAN-TF6 is currently in the process of building its response capacity and membership. It is very involved with the other TFs and making progress towards an end goal of achieving "heavy" USAR classification.

8. Operations

The following section of the CONOPS details the various processes relating to (a) official requests for assistance and (b) deployment mechanisms used to mobilize HUSAR capabilities both within and between jurisdictions.

8.1 Request for assistance process

8.1.1. Within a province/ territory of jurisdiction

In an emergency event, an assessment will be conducted by local authorities to determine whether the utility of a TF is required. If deemed necessary, local authorities will then make a request for assistance (RFA) to the appropriate point of contact for the TF within its PT jurisdiction. The RFA process may be conducted at the municipal level, as prescribed by mutual aid agreements between municipalities or PTs. In the latter instance, this request may require the declaration of a state of emergency at the municipal level.

CAN-TF1 may be deployed by the Vancouver Fire Rescue Services (fire chief) under the authority of the City of Vancouver and/or Province of British Columbia (Ministry of Emergency Management and Climate Readiness). The TF director (assistant fire chief) would receive the RFA and determine the capabilities required to deploy in coordination with the Ministry of Emergency Management and Climate Readiness.

CAN-TF2 may be deployed by the City of Calgary (Calgary Emergency Management Agency) for incidents within the municipal jurisdiction. Requests for Assistance made by other municipalities or jurisdictions are managed by the Alberta Emergency Management Agency to determine the capabilities required to deploy to the emergency event.

CAN-TF3 may be deployed by the City of Toronto (Toronto Fire Services) for incidents within the municipal jurisdiction. Requests for assistance made by other municipalities or jurisdictions are managed and coordinated by the Ontario Solicitor General, Office of the Fire Marshal – Emergency Response Unit. The Emergency Response Unit receives the request and determines the capabilities required to deploy.

CAN-TF4 may be deployed by Manitoba's Fire Commissioner in response to a provincial need or a request from a local authority. Requests for assistance from other jurisdictions or the federal government are normally managed and coordinated by the Manitoba Emergency Management Organization in accordance with existing agreements, policies, and procedures.

CAN-TF5 may be deployed upon request to the fire chief of HRFE, a business unit of Halifax Regional Municipality. Within the Province of Nova Scotia, local authorities may contact the fire chief, coordinate through the HRFE assistant chief of Emergency Management, or in the case of another municipality, make a request directly to the chief administrative officer of Halifax Regional Municipality.

HRFE will coordinate with the Provincial Emergency Management office, or local emergency management organizations/authorities to establish whether local resources have been exhausted, whether a state of local emergency has been declared, and what CAN-TF5 resources are being requested. HRFE will engage on behalf of the chief administrative officer or fire chief to gain approval to reimburse the TF for costs incurred.

CAN-TF6 may be deployed by the Service de sécurité incendie de Montréal (fire chief) under the authority of the City of Montréal. The TF director (head of division 124) would receive the RFA and determine the capabilities required to deploy to the emergency event in coordination with municipal and/or provincial authorities.

At minimum, an RFA to a TF within its own PT jurisdiction should include information pertaining to:

8.1.2 Province/territory to province/territory

In the event of a significant incident, PT authorities may request the assistance of an external TF. An interjurisdictional RFA will not necessarily require a PT declaration of a state of emergency, however, a local state of emergency will likely already be declared. Furthermore, as a significant incident may exhaust local and PT resources, including those of a single TF, additional external TFs may be activated. An interjurisdictional RFA may be delivered through two mechanisms, including:

The EMMA was created to enhance the EM assistance capacity among CCEMO members through the provision of mutual aid assistance. When an impacted PT has activated its EM structure and determined that additional resources and assistance will be required to adequately support emergency response efforts, the EMMA network can be accessed. As such, the EMMA may be activated for bilateral purposes in the absence of other existing agreements, or when multiple TFs are requested for deployment to a significant incident. According to the EMMA SOPs, the following requirements comprise an interjurisdictional RFA:

To coordinate an interjurisdictional RFA, a standardized template – the EMMA RFA form – will be used (see Appendix F). Once completed and signed by the requesting and assisting authorities, the EMMA RFA form in effect constitutes a contract for services and their associated costs.

8.1.3 Request for federal assistance

According to the FERP, the federal government is poised to receive a RFA from a PT government when it has been deemed that PT resources are insufficient or otherwise unable to respond to a significant incident.

The Federal Coordination Group (FCG) within each PT is composed of emergency managers from federal government institutions in a region and provide and/or manage the flow of information and requests for federal assistance within the region. The FCG will determine if available federal resources at the regional level are sufficient, or if additional assistance is required. The FCG will advise the PT on the process for submitting a request for federal assistance to the PS GOC should it be deemed necessary.

The GOC monitors incidents across the country on a 24/7/365 basis. Should the FCG determine that additional federal assistance is necessary, the GOC will receive a RFA from the impacted PT and coordinate the whole-of-government response. The RFA may be received verbally or by email but is always officiated with a formal letter at the ministerial level. It should be noted that there are only a few instances in which an integrated Government of Canada response is required. The FERP prescribes the following criteria:

8.2 Task Force deployment

The nature of structural collapse and emergency events demands specialized resources to be on scene as soon as possible to affect rescue, as the survivability of affected individuals decreases dramatically over time. A large-scale incident should trigger the deployment of the most readily available TFs, and when appropriate, the mobilization of additional TFs to increase the response capacity of search and rescue efforts. In some cases, LUSAR and MUSAR teams may deploy to the scene of an incident alongside – or even before – TFs. They will be integrated into command structures and should be included in planning to ensure the timely arrival of all necessary USAR resources.

In the event of a large-scale incident, TFs aim to activate and deploy in a timely manner. The following HUSAR deployment timeline depicts a standardized response procedure adhering to the INSARAG Guidelines 2020 and other best practices, denoting maximum timings for various aspects of response. This process and the timeline depicted are subject to change according to jurisdiction and the nature of an emergency:

Deployment timing is based on assessments by the TFs, as follows:

8.2.1 General ground deployment readiness

The primary mode of deployment for the TFs is by ground – leveraging their own heavy fleet vehicles capable of transporting equipment and personnel over long distances via roads/highways. A geospatial assessment (see below) demonstrates that about 97% of the population is within a twelve (12) hour driving radius of each TF, while 90% is reachable within five (5) hours. Travel times between jurisdictions may be significant if an incident demands additional resources from assisting TFs.

8.2.2 General air deployment readiness

The TFs may be organized to deploy assets by air in extraordinary circumstances – including operations in remote communities, to reduce significant travel durations in time-sensitive incidents, or in the absence of intact ground infrastructure. Airlift may be leveraged to move personnel (e.g. incident management team), assets (e.g. reconnaissance equipment), and/or entire caches (e.g. full HUSAR deployment) depending on the available aircraft and logistical support. The utility of airlift must be flexible to meet deployment needs and requires robust preparedness activities. The following section outlines the expectations, protocols, and considerations governing air deployment for the TFs.

8.2.2.1 Air deployment expectations

The TFs are expected to prepare their caches for airlift maintaining comprehensive lists of personnel, equipment, and vehicles; and adopting best practices for the transportation of dangerous goods, air cargo, and labelling to ensure compliance with relevant rules/regulations.

The utility of air deployment will increase the efficiency of TF response where issues of range or accessibility are present. As victims of structural collapse are expected to survive on average 72 hours trapped under rubble, assisting TFs must be deployed in short order to ensure the delivery of their capabilities in a timely manner. TFs outside a 12-hour driving radius of an incident site (described above) may require airlift following large-scale incidents. Additionally, any impact to the road network, which should be expected in a large-scale incident, could also require airlift.

8.2.2.2 Air deployment protocols

The TFs may be deployed via airlift, depending on the scope/scale of the incident and available options. In an incident surpassing provincial capacity, a RFA may be submitted by the PT for airlift support, if not available through TF standing agreements or if commercial contracting options are exhausted by a PT emergency operations centre (PEOC). Under circumstances where emergency logistics is required and all other transportation procurement options have been exhausted, it may be possible to utilize the FELP through the PS RO and the PT. The FELP can support emergency logistics and facilitate coordination of air movement of resources. Government institutions and contracts may already exist that can be leveraged for emergency transportation, as a separate or additional source for capacity.

Commercial carriers can be engaged during emergencies by tasking authorities and/or PEOCs to arrange airlift, however, the contracting process may be costly and may not include all logistics required (e.g. loading/unloading, moving from/ to airport). In addition, commercial airlines may not be permitted to operate in certain circumstances – such as restricted airspace, dangerous environments, or departing/arriving at damaged airports due to regulatory requirements. TFs may establish standing agreements with commercial carriers prior to deployment in order to prepare for or mitigate these challenges.

8.2.2.3 Air deployment considerations

The following checklist outlines all pre-flight considerations for TFs in their planning to ensure the efficient request, delivery, and deployment of airlift capabilities:

For additional information on the regulatory requirements governing air deployment for the TFs in emergencies, refer to the following list of applicable legislation:

The Transportation of Dangerous Goods Directorate provides a source of regulatory development, information, and guidance on dangerous goods transport for the public, industry, and first responders. TFs may engage the Transportation of Dangerous Goods Directorate for direction on how to maintain, pack, and load/unload caches to maintain compliance with applicable legislation.

The deployment of TFs via air transportation presents a significant opportunity to expedite and enhance the response readiness of HUSAR capabilities to mobilize at any time/place across Canada. It is critical that work continues, through the USAR Advisory Committee and other outreach mechanisms such as exercises and consultations, to continue to enhance the plans, strategies, and agreements required to facilitate air transportation to achieve a national network of response-ready TFs.

8.2.3 Local municipality and province/territory (host agency) deployment of resources

TFs may be deployed to any incident within their home PTM using existing arrangements and according to the authority of their respective municipality or PT.

TFs are capable of deploying with a full complement of personnel and equipment while maintaining self-sufficiency for up to ten days. TFs can deploy in a modular configuration and are prepared to quickly respond. This modular approach ensures they operate as a collection of resources, scalable to the needs and expectations of local authorities. In order to structure TFs for deployment, they may collaborate with local authorities to consider the impacts of the incident and existing on-site capabilities to support.

The "modules" of TFs can include the following independent operational capabilities (when and where they exist):

For a complete list of available capabilities by TF, see Appendix B.

Depending on the location and nature of the incident and method of deployment (ground/air), TFs are expected to deploy within four to 12 hours. In some circumstances, an advance party may be dispatched to the site within two hours of an interjurisdictional RFA. The means of transportation are typically arranged by TFs, their respective authority having jurisdiction (AHJ) or the requesting authority. Costs incurred, travel or otherwise, will be recovered from the requesting authority, as typically outlined in the terms of the interjurisdictional RFA form. National and/or international licensed and bonded carriers should be utilized when necessary, and insurance for transportation should be in place – the cost of which will be recovered from the requesting authority.

TFs deploy to support – not command – response operations, unless required and requested by local authorities. As such, responding TFs fall under the direction of requesting authorities, and are expected to incorporate their capabilities into the existing on-site EM system (e.g. ICS). It is envisioned that local authorities will have a structure in place to coordinate overall efforts and to lead response (e.g. Incident Command Post or, in Quebec, an on-site EOC).

The information shared by TFs to requesting authorities will be delivered through standard ICS (or equivalent) documentation, however, coordination between the TFs may leverage the INSARAG methodology – as described in section 8.2.4 – to facilitate the communications and joint-decision making demanded by HUSAR operations in a multi-team environment. To this end, the NAP will play a central role in formalizing the mechanisms required to efficiently coordinate TFs on-site.

Base of operations: TFs will establish facilities – including living quarters, logistics, food, and medical treatment – at a distance from the incident site.

Staging area: Local authorities will establish an area of sufficient size to accommodate TF resources near the incident site based on coordination of requirements with the TF(s). From the staging area, TFs will receive taskings for their deployment.

8.2.4 Interjurisdictional deployment of resources

The deployment of a TF from one PT to another may occur under the following circumstances:

Currently, the EMMA SOPs represent an option for interjurisdictional deployment in the absence of existing agreements between PTs. It is important to note that there may be situations in which the EMMA SOPs do not work for the situation, or the jurisdiction involved. This mechanism describes a generic mutual aid process recognized by PT authorities, however, its utility for HUSAR capabilities may be limited due to the absence of special arrangements regarding regulatory challenges (see Appendix D), constraints in the timeliness of ground/air deployment (see Section 8.2), and the complications of deploying multiple TFs in short order. These issues may be resolved through continued engagement between PS, the TFs, and CCEMO through the ongoing renewal of the EMMA SOPs. Subsequent versions of the CONOPS must explore alternative mechanisms to mobilize TFs or resolve these challenges, including by leveraging federal authorities (see Section 11, Towards Enhanced Interoperability).

According to current arrangements, the EMMA network is activated by the distribution of an interjurisdictional RFA by any member of the CCEMO. All members receive situation reports on the incident from the PT in which it occurs, with the intent of creating broad situational awareness for the purpose of pre-planning should further resources be required. Furthermore, the affected PT will also share situation reports with PS regional offices. Once approval has been granted by its home municipal and PT government, the nearest TF will deploy as soon as possible, according to its own SOPs and capabilities.

According to the EMMA SOPs, the following key steps are recommended for the deployment of TFs:

According to the EMMA SOPs, the following responsibilities must be borne by the requesting authority:

According to the EMMA SOPs, the deploying TF will be responsible for arranging the transportation of any equipment/supplies to an agreed upon staging location. The requesting and assisting PT authorities will identify the base of operations and the staging area location in advance of deployment. In turn, the deploying TF will provide the requesting authority with copies of shipping manifests and is responsible for tracking the equipment and indicating arrival dates/times. Personnel required to accompany the equipment must be identified and approved on the interjurisdictional RFA form(s).

The EMMA SOPs also refer to considerations for special deployment conditions, which should be identified and mutually agreed upon in the interjurisdictional RFA, including:

Changes to personnel, or the length of deployment, must be clearly documented in an amended interjurisdictional RFA.

Any accident involving deployed TF personnel must be immediately reported to the assisting PT authority.

The EMMA SOPs lay out the process for financial reimbursement for services provided by a TF, for personnel and equipment (see Appendix F). Information on financial reimbursement is provided in section 9.1 of the CONOPS.

8.2.5 Deployment of multiple task forces

In the event that a significant incident causes widespread damages or overwhelms the response capacity of any TF within its home jurisdiction, it may be necessary to engage multiple TFs in response.

In addition, multiple TFs may be deployed when the threshold for response meets the criteria required to activate an integrated Government of Canada response.

The deployment of multiple TFs can follow the EMMA SOPs and its associated templates, both between PTs and from the direction of the GOC. While TFs are responsible to follow the direction of local authorities on site, they should also employ practices prescribed by the INSARAG Guidelines 2020 outside their home jurisdiction, or when congregating multiple TFs at one location. Furthermore, LUSAR/MUSAR teams may participate in response operations, contributing resources, personnel, and other capabilities. In these cases, they should be incorporated into the existing ICS (or equivalent) command structure already present on site.

According to the INSARAG Guidelines 2020, the first arriving TF will establish a reception and departure centre (RDC) to coordinate the arrival and eventual departure of other TFs and/or international USAR teams. The RDC will be set up to accommodate equipment and personnel in collaboration with local authorities. The RDC is responsible for providing situational updates, operational information, logistical support and for facilitating entry procedures for staff and equipment. The duties comprising the RDC include:

The INSARAG Guidelines 2020 recommends that two (2) personnel from the first arriving TF staff the RDC. Additional personnel may be requested from other incoming TFs to ensure 24/7 operational capacity. All TFs should possess the appropriate technical equipment to assist in supporting an RDC, including:

The INSARAG Guidelines 2020 further recommends the first arriving TF also establishes a USAR coordination cell (UCC) to coordinate the operational activities of all TFs on site. The UCC will be embedded within the operations section of the ICS structure, or comparable structure under the local EM system. Staff in the UCC should have specialized knowledge and expertise with respect to the coordination of multiple TFs, as well as relevant information management skills. The UCC will assist the operations chief and incident commander, in an ICS structure, or comparable authorities within the local EM system, by highlighting and tracking geographic areas most in need of USAR capabilities. The UCC can also be used to transition TFs to other areas of operation, and eventually, assist in supporting TFs to return home.

The first arriving TF may also establish a virtual on-site operations coordination centre (OSOCC). The virtual OSOCC is a tool, utilizing templated information fields, to perform the following: register teams, provide and update planning and deployment details and team capacity, track criteria and critical information on operations, and exchange information with the operations section of the ICS structure.

These INSARAG constructs will play a pivotal role in streamlining communication and decision-making between TFs on-site, and situating HUSAR capabilities within existing EM systems (e.g. ICS). The NAP is therefore a significant initiative to adopt the INSARAG Guidelines 2020 in Canada and implement these constructs in standard operating procedures to enhance USAR coordination for future incidents.

8.2.6 Cross-border mutual aid

In recognition that the consequences of natural and human-caused disasters occur across international borders, Canada and the United States share a long history of cooperation on EM initiatives. The 2008 Agreement between the Government of Canada and the Government of the United States on EM cooperation provides the authority for the FPT community to engage in the creation of treaties/agreements to enhance emergency response capacities on both sides of the border. In addition, provisions have been made in the Emergency Management Act to allow the Minister of Emergency Preparedness to coordinate emergency assistance to the United States, in consultation with the Minister of Foreign Affairs. Pertinent legislation, policies, and plans are consolidated to include mutual assistance agreements between PTs and states.

In the event that a significant incident reduces the emergency response capabilities of either Canada or the United States, an international RFA will be made through GAC and the Department of State, respectively.

In the event that TF resources are overwhelmed or become depleted due to the length or scale of a significant incident, an international RFA can be made to the United States or the INSARAG community, to augment existing HUSAR capacity. In such a scenario, the formal request is made through GAC to the United States or, for international USAR teams, to the INSARAG secretariat. Canada will remain the lead authority for response. Incoming teams from either the United States or the INSARAG community will report to the RDC and the UCC. In accordance with INSARAG Guidelines, incoming teams will provide only those services deemed necessary by Canada and for which permission has been granted. Questions of licensure, indemnification, and others will be addressed through Canada-United States agreements or through a Canada-INSARAG agreement. GAC will be the primary federal department overseeing the agreement process, with the GOC providing support. Financial reimbursement will be managed at the federal level.

Should the United States of America request assistance, it will remain the lead authority for response. The international RFA will be made through the Department of State, and in turn, received and processed by GAC. In this scenario, consideration may be given to the deployment of one or more TFs for assistance to the United States of America – coordinated by GAC. Financial reimbursement will be managed at the federal level.

The processes for the cross-border movement of emergency response personnel and equipment for PTs are outlined in the operations manuals of the Pacific Northwest Emergency Management Agreement, Northern Emergency Management Assistance Compact and the International Emergency Management Assistance Memorandum of Understanding. Across several sectors, these agreements are activated on a regular basis (e.g. deployment of hydro crews, snow removal equipment, paramedic services, etc.). In addition, these agreements allow for the exercising/training of emergency plans to include cross-border coordination if desired.

As TFs are considered municipal and/or PT assets, their deployment across international borders will be coordinated in accordance with the terms and conditions of existing agreements with respect to licensure, indemnification, financial reimbursement, and others. The deployment of TFs to the United States should include notification to the National Search and Rescue Secretariat (NSS), GAC, and the GOC.

8.2.7 Major planned event deployment

According to British Columbia's Major Planned Event Guidelines

"A major planned event is any planned event whose nature, expected attendee level, duration, or location challenges the normal response capability of a community (local first responders and/or local authorities) and requires special planning by one or more agencies to mitigate impact to public health and safety."

A major planned event in Canada, such as a diplomatic meeting (e.g. 2025 G7 Summit in Kananaskis, Alberta) or international sporting event (e.g. 2026 FIFA World Cup in Vancouver, British Columbia and Toronto, Ontario), for example, often requires substantive planning and the pre-positioning of USAR resources.

The requirement to engage and pre-position a TF is determined by the risk posture of the event, as assessed by the lead department (e.g. Global Affairs Canada, Heritage Canada, PTMs, etc.) in consultation with EM leaders from the municipality and PT in which the event is taking place. Planning factors may include the size of the event, its location, local/regional emergency response capabilities, and even geography. In addition, depending on the event, the associated security risk may necessitate ensuring specialized resources are readily available and pre-positioned.

The terms and conditions associated with the pre-positioning of TFs should be arranged between the lead FPT department and the municipal government or PT hosting the major planned event. As such, it is envisioned that existing agreements for deployment – both within a host jurisdiction or to another PT – will apply.

9. Demobilization

Demobilization of TF resources should be a central component of planning and coordination before, during, and after a large-scale incident. Local authorities will determine in consultation with the assisting jurisdiction, when resources are to be demobilized. Under normal circumstances, demobilization occurs when an incident de-escalates, and the specialized skills and equipment of TFs are no longer required.

Demobilization of TFs may occur in stages, depending on the nature and conditions of the incident. For example, while USAR equipment may no longer be required, the knowledge and expertise of TF members may continue to benefit response operations.

Upon a decision to demobilize, departing TFs will ensure all documentation required by local authorities is completed, to include input for any after-action report/hot wash. If only a portion of a TF is demobilizing or rotating out, a proper hand-over should be made, according to TF procedures. When possible, a rest period should be provided to the departing team once hand over is completed and before departure.

In the event of interjurisdictional operations, according to the EMMA SOPs, the requesting PT will ensure that all deployed personnel have been debriefed, checked out, and safely returned to their home jurisdiction. In addition, the requesting PT will ensure all official mission-related records and documents are inventoried, listed, and available in hard/soft copy, and that any issued equipment is returned. An immediate after-action "hot wash" may be conducted with departing resources.

The requesting PT must also ensure all equipment is returned to the departing TFs, or that an accounting of any damaged or used equipment – for the purpose of refurbishment and/or replacement – is completed. The EMMA SOPs contain a demobilization schedule and checklist to assist with this process. When utilizing the OSOCC, TFs should complete and submit documentation directly to it. The UCC and RDC will be stood down accordingly.

Note: If not applicable to a particular jurisdiction or situation, references to the EMMA SOPs should be taken as guidance for the processes that could be utilized in the movement and demobilization of TFs.

9.1 Financial reimbursement

Reimbursement procedures will be predicated on agreements existing at the municipal, PT, or federal level.

According to the EMMA SOPs guidance, the requesting jurisdiction is expected to reimburse the actual costs incurred by TFs during response operations, as described in the interjurisdictional RFA form.

Examples of reimbursable costs through the EMMA SOPs may include:

TFs should be prepared to provide detailed documentation to the requesting PT in order to facilitate reimbursement for used or damaged equipment.

Examples of non-reimbursable costs through the EMMA SOPs may include:

TFs will ensure that information submitted to the requested PTM pertaining to reimbursement costs is detailed, accurate, and complete, and that it is accompanied with supporting documentation (e.g. timesheets, receipts, payroll documents, travel expenses, etc.)

10. Training and exercises

PTs regularly conduct emergency response training and exercises – as required under existing EM legislation. TFs are therefore encouraged to engage their respective emergency management organizations and seek opportunities to participate in relevant events in collaboration with PTM authorities.

All TFs are also expected, under the terms and conditions of the HUSAR program, to organize and participate in interjurisdictional exercises with at least one other TF to foster cohesive and interoperable operations. These exercises should be conducted on a periodic basis and include other USAR stakeholders (e.g. LUSAR/MUSAR teams), as appropriate. The costs associated with these activities are typically assumed by the individual team. TFs may reserve annual funding – in accordance with their respective priorities – to ensure their capacity to participate.

Continuous training and exercises present a meaningful opportunity to support the delivery of the HUSAR Program – both in building capacity for the TFs and for validating the mechanisms used to facilitate interjurisdictional deployment and interoperability. These activities will not only strengthen the development of USAR capabilities in Canada but also build important networks between TFs and the EM community. To that end, training and exercise mandates will be pursued with a greater focus on integrating TFs within emergency response operations at the local, regional, PT, national, and, where appropriate, international levels.

10.1 Observers

Observers can be dispatched from non-participatory TFs in exercises to leverage learning opportunities for system-wide growth, standardization, and interoperability. These observers can also serve to audit and/or assess the performance of TFs, adding further value to lessons learned.

The involvement of observers in exercises may only proceed with the express permission of local authorities and senior EM officials of the jurisdiction in which they occur.

There are a number of conditions that may apply to observers, including:

10.2 Government Operations Centre (GOC) exercise program

The GOC exercise program will help lead and coordinate exercises that are validated through the federal exercise working group and approved with the priorities of DG EMC. The GOC exercise program strengthens EM capabilities and capacity across all jurisdictions and functions.

A comprehensive program of training and exercises is an important component of EM and ensures preparedness for the challenges of incidents of all types.

All levels of government, first responders, non-government organizations and military officials work together to develop and deliver exercises that simulate emergency scenarios such as natural disasters, health threats and terrorist attacks in order to validate response plans and training; and to identify areas for improvement.

The GOC exercise program is responsible for:

The national priority exercise focuses on a specific hazard and is delivered over a two-year period. It brings together FPT government and non-governmental organizations and authorities to design and deliver inter-related activities, ending with a final cross-jurisdictional exercise. It improves EM preparedness through integrated all-hazards activities supporting the national interest.

Through the NSS, TFs may leverage the GOC exercise program to contribute to and participate in national-level exercises while pursuing operational and policy priorities relating to their development and the HUSAR program at large.

11. Enhancing interoperability

The national procedures and governance frameworks described within this CONOPS provide a comprehensive overview of these capabilities at present. It is the result of research and collaboration from all levels of government with the goal of achieving an evergreen construct to inform a USAR response that supports whole-of-society operations. Current USAR resources exist and are managed at the municipal and provincial level. They are well coordinated within their specific jurisdictions and while processes exist for interjurisdictional deployment there is considerable space to enhance interoperability and develop strategies that support and leverage USAR capabilities for all Canadians.

Continuous improvement to deployment mechanisms in alignment with the goals of national interoperable capabilities and enhanced response – such as the coordination of air transportation, resolution of persistent regulatory challenges, and enhanced SOPs – will form the basis of future work on a national USAR strategy. This work will be reflected in the future versions of this CONOPS.

In addition, Canada will pursue certification of the TFs through the INSARAG-recognized NAP to further strengthen domestic deployment and interoperability initiatives. Opportunities to expand the scope, funding, and recipients of the USAR Program may also be pursued as the capabilities of the TFs continue to be leveraged by the EM community – both in the domestic context, and potentially, to support future international deployments.

Appendix A: Task Force and provincial points of contact

Canada Task Force 1

Vancouver Fire and Rescue Services
Urban Search and Rescue
1330 Chess Street
Vancouver, BC (V6A 4K6)
Email: husar@vancouver.ca

Provincial contact for deployment, EMCR, emergency coordination center:
Tel.: 1-888-344-5888
Eric Barron
Task Force Director
Tel.: 604-603-4271
Email: Eric.barron@vancouver.ca

Canada Task Force 2

Calgary Emergency Management Agency
800 McLeod Trail SE
Calgary, AB (T2P 2M5)
Tel.: 403-268-2489
Fax: 403-538-6111
Email: cema@gov.ab.ca

Provincial emergency coordination centre
Tel.: 1-866-618-2362

Scott Long
Executive Director Provincial Operations
Tel.: 780-405-9549
Email: Scott.long@gov.ab.ca

Susan Henry
Commander
Tel.: 403-806-6874
Email: Susan.henry@calgary.ca

Coby Duerr
Commander
Tel.: 403-268-8802
Email: Coby.duerr@calgary.ca

Spencer Cutten
Team Manager
Tel.: 403-371-5916
Email: Spencer.Cutten@calgary.ca

Canada Task Force 3

Toronto Fire Services
Office of the Fire Chief/General Manager
4330 Dufferin Street
Toronto, Ontario (M3H 5R9)
Tel.: 416-338-9051

Provincial contacts for deployment:
OFM-ERU Operations Manager
Tel.: 807-627-8936

OFM ERU HUSAR Duty Officer
Tel.: 705-333-4895
Email: OFM.Emergency.Response.Unit@ontario.ca

Provincial emergency operations center
Tel.: 1-866-314-0472

Jon Pegg
Ontario Fire Marshal
Tel.: 647-329-1239
Email: jon.pegg@ontario.ca

Donald J. Kembel
Manager Emergency Response Unit
Tel.: 807-627-8936
Email: Donald.kembel@ontario.ca

John Davidson
Division Chief of Technical Operations
Tel.: 416-427-4932
Email: John.I.Davidson@toronto.ca

Canada Task Force 4

Office of the Fire Commissioner
508-401 York Avenue
Winnipeg, MB (R3C 0P8)
Tel.: 204-945-3322
Tel.: 1-800-282-8069
Email: firecomm@gov.mb.ca
Email: CANTF4@gov.mb.ca

Provincial contacts for deployment:
Manitoba OFC Duty Officer
Tel.: 1-888-389-3473
Email: ofcdutyofficer@gov.mb.ca

Ryan Schenk
Fire Commissioner
Tel.: 204-945-2553
Email: ryan.schenk@gov.mb.ca

Mike Gagne
Deputy Fire Commissioner – Response Programs Branch and Task Force Lead
Tel.: 204-770-2097
Email: mike.gagne@gov.mb.ca

Canada Task Force 5

Halifax Regional Fire and Emergency
Urban Search and Rescue
PO Box 1749
Halifax, NS (B3J 3A5)
Email: HRMFire@halifax.ca
Chief Administrative Officer of Halifax

Regional municipality
Tel.: 902-490-4026

Peter Andrews
Task Force Director
Tel.: 902-430-8640
Email: andrewp@halifax.ca

Kevin Dean
Assistant Chief of Operations
Tel.: 902-240-7522
Email: deank@halifax.ca

Dennis Pitts
District Chief of Operations
Tel.: 902-497-9180
Email: pittsd@halifax.ca

Erica Fleck
Director of Emergency Management, HRM Community Safety
Tel: 902-266-7362
Email: flecke@halifax.ca

Canada Task Force 6

Chef aux opérations 162
Division des opérations spécialisés et du RSMUEL
Responsable du RSMUEL/HUSAR
Service de sécurité incendie de Montréal
200, rue Bellechasse
Montréal QC
Tel. : 514-872-0046

Ministère de la Sécurité publique du Québec :
Tel.: Urgence 24/7: 1-866-650-1666
Email: cog@msp.gouv.qc.ca

Stéphanie Forest-Lanthier
Regional Director
Direction de la sécurité civile et de la sécurité incendie de Montréal-Laval
Tel.: 514-873-1300, ext. 42607
Email: stephanie.forest-lanthier@msp.gouv.qc.ca

Olivier Turcotte
Civil Security Advisor
Direction de la sécurité civile et de la sécurité incendie de Montréal-Laval
Tel.: 514-873-1300, ext. 42604
Email: olivier.turcotte@msp.gouv.qc.ca

Public Safety Canada
269 Laurier Avenue W
Ottawa, ON (K1A 0P8)
Tel.: 1-800-727-9414
Fax: 613-996-3746
Email: ps.questions-questions.sp@canada.ca

National Search and Rescue Secretariat (NSS)
sarsecretariat-secretariatrs@ps-sp.gc.ca

Government Operations Centre (GOC)
Tel.: 613-991-7000
Email: GOC-COG@ps-sp.gc.ca

Regional Office – Atlantic
Email: atlantic.region@ps-sp.gc.ca

Regional Office – Ontario
ps.boxon-boiteon.sp@ps-sp.gc.ca

Regional Office – Pacific
Email: pacificregionregiondupacifique@ps-sp.gc.ca

Regional Office – Quebec and Nunavut
Email: qcops@ps-sp.gc.ca

Regional Office – Prairies and Northwest Territories
Email: prairieregion-regiondesprairies@ps-sp.gc.ca

Appendix B: Task Force capabilities checklist

The purpose of the Task Force Capabilities Checklist is to articulate (a) the USAR/all-hazards capabilities of each TF, (b) up to which level they are delivered, and (c) whether they fall under the classifications of any Canadian core capabilities used by emergency managers across the country. This checklist will be used to share capabilities and readiness information between the teams, and moreover, to bridge HUSAR into the EM community by linking to its existing terminology and strategic planning processes.

An evergreen checklist will be stored on the National Emergency Management System for ease of access and continuous updates. This checklist is a self-assessment completed by the TFs. It is a goal of the HUSAR Program that capabilities will be assessed and verified by a national accreditation body when such a body is operational.

Please contact sarsecretariat-secretariatrs@ps-sp.gc.ca.

Appendix C: Operations communications

In an emergency, consistent and standardized communication between all TFs is required to (a) maintain collective situational awareness and (b) prepare for potential deployment in assistance. When additional HUSAR and/or all-hazards capabilities are deemed necessary to support response operations, the local TF will be responsible for identifying and relaying to the local AHJ which equipment, personnel, and other assets may comprise an RFA between PTs. The RFA will be informed by the needs of the incident and the availability of resources among any assisting TFs, to be determined through the protocols outlined below.

Note: These protocols are not intended to replace or supersede existing channels of authority, they exist solely to facilitate operational-level communication between the TFs in order to enhance interoperability.

Communication protocols

The following protocols outline the expected steps to be taken by the local and assisting TFs in order to support communications before, during, and after large-scale emergencies.

  1. Incident occurs: Local TF deploys under the direction of the local AHJ
  2. Operations commence: Local TF delivers a notification of deployment to all teams
  3. Operations underway: Local TF supports the local AHJ in preparing interjurisdictional RFA for additional resources
  4. Operations underway: Local TF delivers a daily situational report to all teams, including for assisting TFs
  5. Operations complete: The TF sub-working group is convened for an after-action debrief with all teams

Notification of deployment

The notification of deployment will be prepared by the local TF following its mobilization to any incident within its jurisdiction. It will be delivered via email to all teams and the NSS, and other relevant partners/stakeholders (e.g. USAR Advisory Committee, Government Operations Centre, Global Affairs Canada), as appropriate. This notification will use the template prepared below, and will be comprised of the following information:

Daily situational report

The daily situational report will be distributed by the local TF to all other teams and NSS on a daily basis, as deemed appropriate/necessary, during deployment. It will be delivered via email, and using the template prepared below, include the following information, at minimum:

This daily report will only be used for large-scale emergencies that demand collective situational awareness and/or present operational, strategic, or political consequences of national significance. Any incidents that can be resolved in short order (e.g. small-scale construction site collapse) may not require reporting after the Notification of Deployment.

After-action debrief

The after-action debrief is intended for significant large-scale emergencies. Following these events, the TF sub-Working Group will be convened, at the earliest opportunity, for the local/assisting TFs to deliver a presentation on their preparedness and response to the emergency – including any relevant lessons learned to inform the amendment and/or development of protocols, procedures, or other policy within the CONOPS.

These meetings will be facilitated by the NSS, in consultation with the TFs, at a convenient date/time for all parties. A summary report of the after-action debrief will be prepared for the USAR Advisory Committee and other stakeholders.

Distribution List (subject to change)

Appendix D: Interjurisdictional deployment regulatory challenges

The following section outlines key challenges that must be addressed to mitigate outstanding risks associated with the interjurisdictional deployment of HUSAR capabilities – including personnel, vehicles, and equipment.

Occupational health and safety

The first major regulatory challenge surrounds OHS. As OHS is legislated on the PT level, the rules, benefits, and exceptions that relate to HUSAR activities vary across the country. Furthermore, coverage for Workers Compensation and other programs supporting personnel who have sustained workplace injuries and/or illnesses under OHS legislation may not always extend outside the PT that provides it.

Professional licensure

A variety of licensed professionals comprise the TFs, including doctors, nurses, paramedics, and engineers, among others. Licenses for these professions are provided by PT colleges, which are typically affiliated with their respective national colleges, according to their individual standards and tests. Under normal circumstances, PT legislation and college bylaws appear to restrict licensed professionals from working in another PT unless they attain a new licence.

Firefighting

Several TFs are integrated with municipal fire services; therefore, interjurisdictional firefighting regulations may present a challenge in achieving interoperability. Fire services are legislated on the PT level; therefore, certifications and training curricula differ from one PT to another – likely restricting the ability for firefighters to respond out of their jurisdictions.

Police services

In Canada, police services are delivered by all levels of government. While some TFs house municipal officers, others are integrated with their PT police forces – often contracted to the RCMP. Each PT governs its police services under specific legislation, potentially creating discrepancies across jurisdictions.

Heavy fleet vehicles

In order to transport equipment and personnel to an incident, TFs own and operate heavy fleet ground vehicles. Rules relating to truck weights, dimensions, maintenance, and interjurisdictional transit are governed by PT transportation authorities. As such, conditions regarding transit permissions and permits may apply differently across the PTs.

Remote-piloted aircraft systems

TFs may use RPAS for site reconnaissance and information sharing purposes. RPAS are federally regulated by Transport Canada (TC) and air traffic control is managed by NAV CANADA. Piloting rules appear to be universal across the country, though each PT has legislation that may have implications for the use of RPAS in HUSAR response (e.g. privacy and trespassing laws).

Radio rules

Given the large array of radio frequencies, service providers, and communication systems on the market, TFs face the potential obstacle of incompatible communications preventing fluent interoperability. Radio spectrum allocation and regulation is a federal responsibility, managed by Innovation, Science and Economic Development Canada. As such, interjurisdictional regulatory challenges may be minimal compared to logistical challenges.

Collective bargaining agents

TFs (and their personnel) may have membership in one or more labour unions. Restrictions may therefore apply to members attempting to operate beyond the scope of their union's collective agreement (e.g. out of PT boundaries, outside of defined professional responsibilities, etc.).

Insurance provisions

A TFs' physical property (vehicles, heavy equipment, etc.) and personnel are often covered by mandatory or voluntary insurance provisions. In the case of out-of-province response, certain assets and people may exit the physical or legal boundaries defined in their insurance agreements. These scenarios would generate legal risks that would have to be addressed to achieve safe and efficient operations.

Appendix E: Federal roles and responsibilities

Canada Border Services Agency (CBSA)

CBSA ensures continued border functions to facilitate the movement of legitimate travellers and trade and the trans-border movement of emergency relief personnel and goods/support material.

As outlined under the FERP, the CBSA is the primary department for Emergency Support Function (ESF) #13 – Border Services. The scope of this ESF applies to federal government institutions, provincial and territorial departments and agencies, non-governmental organizations, and private/public law enforcement, security, and search and rescue resources in Canada and internationally, which may be required to respond to a request for local, provincial/ territorial, federal and/or international assistance at or near an international border crossing within Canada, or affecting cross-border movement of people and goods during and following an emergency.

Department of National Defence (DND)/Canadian Armed Forces (CAF)

The DND/ CAF is a supporting department to the Emergency Support Functions (ESFs) outlined under the FERP. DND/CAF will be prepared to support other government departments as required through federal RFAs.

Global Affairs Canada (GAC)

Under the FERP, GAC is responsible for ESF #9 – International Coordination. This ESF encompasses the conduct of foreign relations, the application of international law, and the coordination of international assistance.

When triggered by an emergency event abroad that impacts Canadians or Canadian interests, GAC convenes the Interdepartmental TF, bringing together key departments and agencies to facilitate a timely and coordinated response. In the event of an emergency in the United States, GAC would coordinate the government's response, including any provision of assistance, jointly with Public Safety Canada. In the event of an emergency in Canada, GAC is responsible for all official communications with foreign states and international organizations, provision of information to foreign missions in Canada, managing offers of and requests for international assistance, and analysis and advice on any international dimensions and implications.

GAC is considered the policy focal point for the United Nations' INSARAG, as it pertains to international discussions on USAR.

Health portfolio (Health Canada and Public Health Agency of Canada)

The Federal Health Portfolio (Health Canada and Public Health Agency of Canada), share the role of primary department for ESF #5 – Public Health and Essential Human Services. This ESF applies to all Government of Canada institutions that may be required to respond to a request from a province/territory for assistance during an emergency that could impact the health of their populations; or from other government departments, particularly those with a duty of care for specific populations such as those departments that make up the Federal Healthcare Partnership. It recognizes that, during an emergency, the federal Government works with provincial and territorial governments, First Nations and Inuit health authorities, non-governmental organizations, and private health resources in Canada and internationally as required, depending on the nature of the emergency and the request for assistance.

Emergency health includes: public health, medical care, environmental health, medical equipment, pharmaceuticals, and health care personnel.

Emergency social services include: clothing, lodging, food, registration and inquiry, personal services, reception centre management and social services personnel.

Public Safety Canada (PS)/Government Operations Centre (GOC)

PS is responsible for the coordination and management of national SAR policy and programs in collaboration with other federal partners (e.g., Canadian Armed Forces and Canadian Coast Guard), PTs, and other partners.

PS provides federal funding and policy support, through the NSS, to Canada's HUSAR teams. The NSS is responsible for coordinating, amongst government departments and in cooperation with the PTs and other SAR partners, the development and maintenance of national, strategic policy and programs in an effort to achieve highly effective and economically responsible search and rescue services throughout Canada.

PS houses the GOC where subject matter experts and federal liaison officers from federal government institutions, non-governmental organizations, and the private sector come together to coordinate the Government of Canada response to an event of national significance.

Under the FERP, PS is responsible for ESF #11 – logistics and operations management. This support function is one that demonstrates proactive leadership in assessing problems and scoping potential solutions to coordinate the mobilization and deployment of resources from their points of origin to the intended staging areas. Federal government institutions, provinces/territories, municipal governments, non-governmental organizations, and the private sector, are all considered as viable sources for asset contribution.

Royal Canadian Mounted Police (RCMP)

The RCMP is responsible for ESF #8 – law enforcement – under the FERP. The scope of this ESF encompasses the coordinated provision of the full range of law enforcement services by the RCMP, and the police services of other jurisdictions, during all-hazard emergency operations. In addition, this ESF coordinates federal actions to support the provision of law enforcement services within impacted regions. This ESF applies to the RCMP, its subordinate regions, divisions, and districts/detachments.

Transport Canada (TC)

Under the FERP, TC is responsible for ESF #1. TC's responsibilities under ESF #1 include:

Appendix F: Emergency Management Mutual Aid Arrangement

The CCEMO Emergency Management Mutual Aid Arrangement SOP.

The CCEMO Memorandum of Understanding (MOU) on Interjurisdictional Emergency Management Assistance provides the ability for all provinces and territories access to support including mutual aid assistance in managing an emergency or disaster. This MOU has become recognized as the national EMMA.

This document defines the procedures for initiating an EMMA RFA, implementing an EMMA RFA and closing an EMMA RFA. Financial reimbursement processes and after-action reporting requirements are also addressed.

It is important to recognize that each PT jurisdiction is responsible for developing adequate capacity and undertaking appropriate internal preparedness activities to provide any available support when the EMMA Network is activated

Purpose

The prompt, full and effective utilization of resources of all national jurisdictions, including any resources on hand or available from any other source that are essential to the safety, care and welfare of the people in the event of any emergency or disaster, will be the underlying principle on which all portions of these procedures are understood.

The EMMA serves to enhance EM assistance capacity among CCEMO members through the provision of mutual aid assistance. When an impacted province or territory has activated their EM structure and has determined that additional resources and assistance will be required to adequately support emergency response efforts, the EMMA Network can be accessed.

The EMMA does not dictate nor prescribe the EM procedures and activities internal to an individual jurisdiction.

The EMMA does prescribe the procedures used when accessing resources from other CCEMO members based on the signed CCEMO MOU on Interjurisdictional Emergency Management Assistance.

Please contact sarsecretariat-secretariatrs@ps-sp.gc.ca for details.

Appendix G: Acronyms

AHJ
Authority having jurisdiction
CAF
Canadian Armed Forces
CBSA
Canada Border Services Agency
CCEMO
Canadian Council of Emergency Management Organizations
CONOPS
Concept of operations
DND
Department of National Defence
EM
Emergency management
EMF
Emergency Management Framework
EMMA
Emergency Management Mutual-Aid Arrangement
EMS
Emergency Management Strategy for Canada
EOC
Emergency operations centre
ESF
Emergency Support Function
FCG
Federal Coordination Group
FERP
Federal Emergency Response Plan
FPT
Federal/provincial/territorial
GAC
Global Affairs Canada
GOC
Government Operations Centre
HRFE
Halifax Regional Fire and Emergency
ICS
Incident command system
INSARAG
International Search and Rescue Advisory Group
LUSAR
Light urban search and rescue
MOU
Memorandum of understanding
MUSAR
Medium urban search and rescue
NSS
National Search and Rescue Secretariat
OHS
Occupational Health and Safety
OSOCC
On-site operations coordination centre
PEOC
Provincial/territorial emergency operations centre
PS
Public Safety Canada
PT
Provincial/territorial
PTM
Provincial/territorial/municipal
RCMP
Royal Canadian Mounted Police
RDC
Reception and departure centre
RFA
Request for assistance
RPAS
Remotely piloted aircraft system
SOP
Standard operating procedure
SOREM
Senior Officials Responsible for Emergency Management
TC
Transport Canada
TF
Task force
UCC
USAR coordination cell
USAR
Urban search and rescue

Footnotes

Footnote 1

A whole-of-society approach includes roles for federal, provincial, territorial, Indigenous, and local governments, as well as the private sector, communities, and individuals (where appropriate).

Return to footnote 1

Footnote 2

"Initial deployment" is used here to denote the full deployment of the first TF attending the scene.

Return to footnote 2

Date modified: