Memorandum by the Department for Transport
and the Maritime and Coastguard Agency (SAR 12)
SEARCH AND RESCUE INQUIRY
1. INTRODUCTION
The UK has a world-class Search and Rescue service
that is second to none. It covers a region that extends westwards
to the mid-Atlantic and eastwards to the median lines agreed with
other European states.
The Department for Transport (DfT) has overall
policy responsibility for maritime and civil aeronautical search
and rescue throughout the UK Search and Rescue (SAR) region, although
the organisation of search and rescue is an amalgam of civil and
military organisations and the voluntary sector. This note takes
an overview of the whole operation but primarily covers DfT and
Maritime and Coastguard Agency (MCA) responsibilities.
2. EFFECTIVENESS
OF THE
UK'S SEARCH
AND RESCUE
(SAR) CO -ORDINATION
ARRANGEMENTS
Operating context
The UK has Operating Agreements or Memoranda
of Understanding with Denmark, Germany, Netherlands, France, Spain,
United States and Canada for the purposes of SAR co-operation.
For day-to-day SAR operations, designated co-ordination centres
act as focal points for operations and communications with specified
neighbouring States.
The MCA has maritime SAR response and co-ordination
responsibility for the whole of the UK Search and Rescue Region,
as maritime safety is a reserved matter. For administrative and
management purposes, the UK is divided into three Regions: Wales
and West of England; East of England; and Scotland and Northern
Ireland. These Regions are divided into 19 districts, which are
further sub-divided into a total of 65 sectors.
The 19 24-hour co-ordination centres around
the UK coastline, answering emergency calls, are an integral part
of the SAR chain. They decide on the appropriate course of action
for each incident. Each co-ordination centre has links to other
emergency services (for example, the police) helicopter facilities
(MoD and MCA) and auxiliary coastguard teams. In terms of resources,
co-ordination centre staff have the following equipment and communication
systems at their disposal round-the-clock, which can be called
upon, depending on the nature of the incident:
(i) Integrated communications system (see
vii and ix below) and computerised command and control;
(ii) 12 SAR Helicopters (four under contract
to the MCA; eight provided by the military);
(iii) 128 RNLI All Weather Lifeboats;
(iv) 175 RNLI Inshore Lifeboats;
(v) 405 Coastguard Rescue Teams;
(vi) 4 Emergency Towing Vessels;
(vii) 1 Long Range Maritime Patrol Aircraft;
(viii) UK coverage by VHF Radio (Voice and
Digital), MF Radio (Voice and Digital), Inmarsat Satellite Communications,
Cospas-Sarsat satellite based Emergency Position Indicating Radio
Beacon detection system;
(ix) Emergency 999 telephones;
(x) Automatic Identification System for Ships
(AIS); and
(xi) Radio Medical Advice Service.
In addition, there are dedicated local SAR facilities
in particular parts of the UK. For example, there are Rescue boats
at Burgh by Sands, Arnside, Loch Ness, Tamar and Hope Cove, as
well as ten additional MCA boats, which are not dedicated SAR
assets, but are used in a range of tasks to support the MCA's
functions. In an emergency these vessels can also be called upon
to support SAR activities.
MCA's ability to respond effectively to incidents
and co-ordinate the subsequent search and rescue (SAR) operation
is underpinned by a sophisticated integrated radio and telephone
communications system which provides coverage of the UK coastline
and SAR region. This new technology means that the MCA is able
to monitor maritime activity over a wider area than was previously
the case, by listening for alerts via 999 telephone calls and
distress channels on radio and satellite communications.
The MCA can call out all UK maritime SAR response
teams via pager or telephone. These teams are also able to communicate
directly with each other which further strengthens effective co-ordination
particularly in large SAR operations.
The new computerised incident and command system
has now been fully installed in all Coastguard Rescue Co-ordination
Centres. Initial system difficulties have been rectified, the
roll out was completed in November 2004 and the system is now
operating well. Following the successful installation and operation
of the system in the UK, the Dutch SAR services have announced
their intention to mirror the UK system. The Belgium SAR services
are also in the process of replacing their Command and Control
system and are considering purchasing the UK system.
In 2000, the MCA recognised that SAR operations
(particularly those inland) could be even more effective if more
radio communications channels were made available. Working closely
with OfCom, the MCA have now provided 10 new radio channels for
inland SAR purposes. This has improved co-ordination and inter-communication
between response teams involved in inland operations.
The UK Search And Rescue (UKSAR) Strategic Committee
The MCA is a key member of both the UKSAR Strategic
Committee and the Operators Group (which is chaired by the MCA's
Operations Director). The UKSAR Strategic Group comprises representatives
of all the organisations responsible for setting the strategic
direction for UK SAR provision. It advises Ministers on policy
issues surrounding the provision of the SAR response for the UK.
The UKSAR Operators Group is responsible for identifying and implementing
operational improvements in UK SAR arrangements and consists of
all organisations who have a national responsibility for the provision
of SAR services. The Operators Group report directly to the Strategic
Committee. A separate information note on the UKSAR framework
is being provided by the UKSAR Strategic Committee Secretariat
at the Department for Transport. However, the MCA has a particular
role in ensuring that UK maritime SAR response and coverage meet
the requirements of the UK SAR Framework, which is reviewed by
the UKSAR Strategic Committee.
Targets and Standards
Each year, Ministers set targets for all areas
of the MCA's business. In 2003-04, for Search and Rescue, the
MCA was required to decide on the appropriate search and rescue
response and initiate action within five minutes of being alerted
and to deploy the search and rescue resources appropriate to each
incident in 96% of cases. This relates to the speed with which
initial information contained in radio, satellite and 999 emergency
calls is evaluated and decisions on the action required are taken.
In fact, a manual audit of four Coastguard Co-ordination Centres
confirmed that this challenging target was achieved in 98% of
cases.
In addition, the MCA sets a specific Service
Standard for the Auxiliary Coastguard Service, which specifies
that Coastguard Rescue Teams ". . . arrive on the scene of
an incident within 30 minutes of the unit being activated."
This is a challenging objective, given that no MCA personnel have
any legal exemption to break speed limits or run red traffic lights
when responding to an emergency, and traffic conditions and distances
volunteers need to cover differ according to the area in which
they are operating. However, last year, the teams reached the
emergency scene within 30 minutes 97% of the time. Of the remaining
3%, many teams were recalled before reaching the scene.
In order to ensure that these targets and standards
remain effective measures of performance, the MCA continues to
compare its work with that of other organisations. The Agency
is also reviewing its statistical database and data collection
requirements to improve its knowledge of the factors influencing
its ability to meet the required standards/targets. The response
standards for SAR helicopters are set by the UK SAR Strategic
Committee on the advice of the UK SAR Operators Group and agreed
by Ministers. Performance is reported in the MCA's Annual Report
and Accounts.
Major incidents in 2004
During the severe flooding of Boscastle in August
2004, the strength of the MCA's coastal communications network
and its on-scene Coastguard Rescue Team meant that the Agency
was asked to take charge of the initial rescue operation for the
first two hours of the incident. The other emergency services
were unable to reach Boscastle, because of flooded and blocked
roads and the limitations of their communications systems. However,
in well-rehearsed procedures, MRCC Falmouth was able to keep the
Police Control Room at Force HQ informed of the situation and
of the assistance likely to be required. In the meantime, MRCC
Falmouth alerted and dispatched SAR helicopters from MCA Portland,
Royal Navy and Royal Air Force which, under MRCC Falmouth's co-ordination,
rescued a large number of residents from the devastation in Boscastle.
The information provided by MRCC Falmouth to Police HQ was sufficient
for the Police to declare it a Major Incident with Strategic,
Tactical and Operational Commands being established in accordance
with the standard major incident procedures. Although the Police
were able to assume primacy for co-ordination of the incident
after about two hours, they continued to rely on MCA for accurate
situation reports.
MCA's coastal communications network and coastal
presence placed MCA in the prime SAR co-ordination role in the
Morecambe Bay incident, which required an integrated SAR response.
In view of the numbers of persons reported to be at risk, together
with the likelihood of a high casualty rate, the MCA launched
a major SAR response to this incident, involving Coastguard Rescue
Teams, Coastguard Rescue Boats, RNLI Lifeboats and SAR helicopters.
Working closely with the Police, the Agency ensured that clear
communications links between MRSC Liverpool and Police HQ were
established. As the incident progressed, MCA took responsibility
for the waterborne operation, whilst the Police took charge of
the shore-based search and body recovery.
International co-operation
Regular meetings and exercises that test response
effectiveness and identify areas for improvement are a major part
of the UK SAR system. During the last year the MCA have either
held, or been a major participant in, 30 multi-agency exercises,
including exercises with France, Ireland, Belgium, and other neighbouring
states. The MCA was also asked by NATO to provide expertise to
help plan and participate in a major table top exercise in Russia.
In order to promote best practice and help improve the effectiveness
of the SAR services on both a national and international front,
the MCA publishes lessons learned from both incidents and exercises
on its website.
The number of foreign administrations who visit
the UK to find out more about SAR operations is an indication
of the international standing of the UK in regard to its SAR facilities.
During the year, the MCA has hosted visits from about 20 other
countries including Slovenia, Poland, Romania, Canada, New Zealand,
China, Australia, France and Japan. In addition to these fact
finding visits, the MCA is frequently invited abroad to give presentations
on UK SAR operating practice. In the past year, delegations have
been sent to France, Taiwan and Brazil. Because of resource constraints,
the MCA has not been able to fulfil all visit requests.
The Agency is also in demand to provide SAR
training to other states at its dedicated training centre. During
the last three years, 35 foreign delegates have attended specific
coastguard training courses at the centre.
3. RESOURCES
AND TRAINING
Resources
The Agency is committed to providing a world
class Search and Rescue capability and every effort is made to
ensure that this front-line service is properly resourced. The
major item of expenditure for the MCA, in terms of actual rescues
(as compared to co-ordination activity), is the four helicopters
operated under contract by Bristows Helicopters and the provision
of four tugs under contract from Klyne Tugs of Lowestoft. The
helicopters cost around £13.5 million in 2003-04, rising
to over £15 million in 2004, while the tugs cost around £11.5
million per annum.
The recharging arrangements between MoD and
the DfT for the helicopter facilities and MoD crew provided for
civilian rescues are complex (some of the costs are retained in
the MoD). The Royal Navy charged £1.8 million in 2004-05
for their services out of hours. For the civil aviation side,
MoD charged £115k for their services in 2004-05, although
this figure has varied in previous years (up to as much as £378k
in 2002-03).
The approximate costs of manning and operating
the co-ordination centres is £25 million per year. Additionally,
the MCA meet the expenses incurred by Auxiliary Coastguard Service
(ACS) volunteers while they are on SAR duties. As recognition
of increasing training needs within the ACS, the budget has grown
from £92,000 to almost £200,000. The MCA also invests
£3 million annually in equipment, boats and vehicles in support
of rescue teams (including clothing).
SAR Training
Co-ordination Centre staff above Coastguard
Watch Assistants (Operations) (CWA(O)) must hold an externally
assessed qualification that demonstrates and confirms technical
competence. CWA(O) staff undergo training lasting a year and although
this is currently internally accredited, the MCA are seeking external
accreditation in the future. However, there is, as yet, no independent
organisation that delivers training or qualifications in maritime
SAR in the UK.
Watch Managers wanting to become SAR Mission
Controllers are now required to undergo an intensive training
course. The training leads to the award of a certificate following
a work based assignment, which is assessed by the trainers at
Highcliffe, who are themselves experienced SAR practitioners.
In addition, the Watch Officer training and development programme
is being extended and MCA are seeking external accreditation for
these courses too.
4. VOLUNTEERS
There are 405 volunteer SAR teams across the
country, many motivated by a desire to give something back to
the community. This number has been constant for many years. The
local knowledge, commitment and enthusiasm that they bring to
the job is invaluable. There are also economic benefits in having
a strong volunteer service. Keeping full-time teams on permanent
stand-by is not a cost effective solution to providing local SAR
cover in these areas. The cost of employing full-time coastguards,
together with the level of investment needed for training and
equipment, may not be justified in view of the number of times
individual teams could expect to be called out. Although the SAR
Co-ordination Centres and the MCA do not necessarily have first
call on the time of Auxiliary Coastguard members (who may rely
on other organisations for their main employment), much effort
is directed into building and maintaining excellent relationships
with primary employers and the local communities, so that an effective
response is ensured.
In order that Auxiliary Coastguard Rescue Teams
(CRTs) have all they need to meet their responsibilities, the
agency ensures that they are given the appropriate equipment,
training and information. For example, the recent modernisation
programme included the provision of Coastguard Response Vehicles
and high quality, top of the range equipment and clothing. The
establishment of an annual Auxiliary Coastguard Conference was
also part of this process. The Conference provides an opportunity
for Auxiliary Coastguards to discuss issues amongst themselves
and to feedback any problems to the MCA management chain. It also
provides an opportunity to brief Auxiliary Coastguards about forthcoming
technical developments and health and safety matters.
Although we recognise that volunteers form an
integral and important part of the SAR service and are invaluable
in meeting local communities' needs over the years, we also recognise
that changing circumstances and society's expectations (eg ageing
populations in coastal areas, family demands and some employer
reluctance to release volunteers), have led to recruitment difficulties
in some areas. In addition changes to employment law, health and
safety and working time regulations are also affecting the use
of workers including volunteers. Consequently a Review of the
Future of The Auxiliary Coastguard Service (ACS) is currently
underway within the MCA which is considering these issues. It
is due to report in mid 2005.
5. THE UK'S
SAR ARRANGEMENTS COMPARED
TO OTHER
COUNTRIES
Direct comparisons are difficult between countries,
because of differences in geography, populations, socio/economic
factors, requirement, history and culture. However, the table
at Annex A shows the arrangements (in broad terms) practiced in
the UK and some other countries.
Comparisons with SAR Systems in other countries
In general, SAR services are developed to respond
to the perceived need for the service, based on a combination
of risk analysis and practical experience. Benchmarking in UK
SAR is a continuous, systematic process for measuring and comparing
the UK arrangements with those in other countries. It is important
for identifying best practice, and improvements in technology,
procedures, practices, equipment and training. For SAR purposes,
the MCA undertakes benchmarking with:
(i) maritime SAR Services in US, Canada,
France, Norway, Sweden, Japan, and Hong Kong as part of the official
annual ICAO/International Maritime Organization Joint Working
Group meetings; and
(ii) more specific benchmarking through formal
annual meeting with US Coastguard and Canadian Coastguard in accordance
with a Tri-Lateral Agreement between UK and the two North American
partners.
6. OTHER POSSIBLE
IMPROVEMENTS TO
BE MADE
TO THE
UK'S SAR ARRANGEMENTS
After each SAR incident, or exercise, the MCA
carries out a full debriefing process and implements improvements,
where appropriate. Several areas where further possible long-term
improvements have been identified, are:
(a) SAR harmonisation between the MCA
and MoD
The commonality of function between the MCA
and Ministry of Defence (MoD) SAR helicopters and similar timeframes
for the potential introduction of new helicopters led Ministers
to decide that MoD and the MCA should undertake a joint acquisition
of new UK SAR Helicopters. To align the MCA and MoD transition
to a new harmonised service in 2012, it has been decided that
the MCA will complete a further five-year contract (with one-year
option) commencing in June 2007 for the same MCA SAR Helicopter
capability as that currently in operation. The future UKSAR Helicopter
Force will be deployable UK-wide for maritime, aeronautical and
inland SAR and it makes sense for these powerful assets to be
controlled from one centre. As a result the MCA and MoD are presently
engaged in a trial, which will consider the possibility of combining
the ARCC and a Maritime Rescue Coordination Centre (MRCC) into
a Joint Rescue Co-ordination Centre (JRCC) which also recognises
the commonality of function between the ARCC and the MCA's MRCCs.
(b) Firefighting at Sea
Following an incident on 2 September 2002 to
the North Sea ferry NORSEA where the aft engine room caught fire,
the MCA became aware of the fact that the Suffolk offshore fire
fighting team would be withdrawing its fire fighting capability
at sea in mid September 2002. This had followed earlier withdrawals
by other fire brigades due to resource constraints so that at
the end of September 2002 there were only 11 brigades in the UK
who were able to offer this facility. DfT Ministers instructed
the MCA, in conjunction with the Office of the Deputy Prime Minister,
to initiate a project to provide dedicated local fire teams for
an at sea fire fighting response to strengthen the UK SAR capabilities.
This project, which is due for completion in April 2006, should
ensure that 15 fire brigades (strategically located around the
UK coast) will be fully trained and equipped to be transported
to an offshore fire either by SAR helicopter or response vessel.
Each of these brigades will have a pool of 50 fire-fighters, on
which to draw in the event of such an incident.
(c) Prevention Activity
Since 2003, the MCA has been putting greater
emphasis and more resource into prevention, on the basis that
prevention is better than cure. Although the total number of incidents,
accidents and deaths reported to the Agency has risen in absolute
terms, there are several possible reasons for this. Many of these
are beyond the control of the Maritime and Coastguard Agency.
For example, in 2004, the overall figure of 316 deaths included
118 suicides and 115 recovered bodies (cause of death unknown).
However, the Agency is determined to do all it can to reduce the
overall figures and, carefully targeted prevention work is an
important part of that strategy.
In order to be able to measure the impact of
this prevention work more accurately, the Agency has already recognised
the need for a more robust statistical database. To ensure that
this work continues to be given the highest priority, it was made
one of the Agency's Ministerial Targets for 2004-05. Work on setting
up the database is progressing well. Data from 1997-2003 has already
been validated and the data for 2004 should be ready shortly.
The next step is to establish a method for making comparable measurements
(Equivalent Fatality Rates) across all these (and subsequent)
data sets, in order to prioritise, drive and measure the effectiveness
of, prevention initiatives.
This is a long term, forward looking initiative,
which demands significant resource in the early stages. However,
the Agency believes that the eventual rewards in terms of a reduced
number of accidents, incidents and deaths, will completely justify
this new approach.
(d) High Risk Inland Waters
Recognising the MCA's maritime SAR response,
co-ordination and communications skills, Police forces have delegated
responsibility for SAR co-ordination on high risk inland waters
to the MCA. RNLI have provided rescue assets on those waters where
none exist. The MCA now co-ordinates SAR on Loughs Erne and Neagh,
Lochs Ness, Oich and Lochy, Norfolk and Suffolk Broads, tidal
River Thames, River Severn up to Gloucester and as from 1 April
2005, Lakes Windermere, Coniston, Ullswater and Derwentwater.
(e) Volunteer Forum
The UKSAR Operators Group is exploring the options
for establishing a volunteer forum to discuss all the current
issues affecting volunteers within the UK.
January 2005
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