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2002 December Report of the Auditor General of Canada

December 2002 Report—Chapter 2

Case Study 2.2—Lack of national co-ordination for pilot projects

Background

The international marine community has been conducting ongoing research into integrating modern technologies such as global positioning, satellite communication, and advanced Very High Frequency radio communication. The term Automatic Identification System is now used to represent a new system that will provide mariners with real time, ship-to-ship and ship-to-shore digital navigation information.

Canada, largely through the Canadian Coast Guard, has conducted its own research into this system.

In 1994, Coast Guard headquarters, in consultation with industry, began its first study of it, including a 1996 pilot project on the St. Lawrence River.

The project final report, issued in August 1997, supported implementation of the system in Canadian waters. It also recommended that the Coast Guard and industry assess, on a national basis, the benefits and feasibility of its implementation. It concluded that there was a need to optimize the use of the existing marine communications equipment.

In addition, this project assessed the strengths and weaknesses of two competing radio technologies being considered internationally as a key part of the Automatic Identification System infrastructure. The study supported the use of the technology that was the strongest candidate for an international standard. Subsequently, this technology has been adopted as the international standard.

Pacific Region pilot project

In 1997, the Pacific Region, in collaboration with the local industry advisory group, began testing a system that was similar to the Automatic Identification System. However, it used radio technology different from the eventual international standard.

The pilot project built on technology that was being used to monitor tug activity on the West Coast. The Pacific Region and the local industry advisory group have been trying to broaden the applications that the system could support. However, despite the 1997 recommendations from the national study, the Pacific Region continued to provide support to this pilot project for a further two years.

Starting in 2000, the Pacific Region attempted to integrate the pilot project technology into its existing information and control system (case study, "Two information systems serving the same purpose"). However, this effort was abandoned because the data could not be transmitted in a way that met the international standard. During the same period, the region has also been investing in technology that is compatible with the international standard.

National role in monitoring pilot projects

As with many areas, the national role in Automatic Identification System research and pilot projects has not been strong. Since the 1997 report, Coast Guard headquarters has not played a strong co-ordinating role in the area as it has had limited knowledge of regional initiatives. Even though Coast Guard headquarters has a staff member who is an internationally recognized expert, the regions, for the most part, failed to include him in their projects.

In June 2002, the Coast Guard established a formal national project team for the implementation of the Automatic Identification System and other related technologies. The need for national co-ordination of Coast Guard activities followed the International Maritime Organization's decision to accelerate the implementation of this internationally.

Our concern

This case study illustrates the problems associated with pilot projects conducted on a regional basis without consideration of national policy or international standards. It also shows the need for national leadership in the evaluation of emerging technologies.