	The Coast Guard Has Assessed Its Arctic Capabilities and Taken Actions to Mitigate Gaps but Has Not Systematically Assessed Its Progress

In our June 2016 report, we found that although the Coast Guard had  assessed its Arctic capabilities and worked with its Arctic partners—such  as other federal agencies— to carry out actions to help mitigate Arctic  capability gaps—it had not systematically assessed how its actions have  helped to mitigate these gaps. According to Coast Guard officials, through the agency’s role in  implementing the various Arctic strategies and implementation plans, the  Coast Guard has taken actions, along with its Arctic partners, that have  helped to mitigate capability gaps. For example, during Arctic Shield operations, the Coast Guard  tested communications equipment belonging to the Department of  Defense—extending communications capabilities further north than  previously possible—and conducted Arctic oil spill response exercises. However, we found in our June 2016 report that the Coast Guard had not  systematically tracked the extent to which its actions agency-wide have  helped mitigate Arctic capability gaps. Coast Guard officials attributed  this, in part, to not being able to unilaterally close the gaps. As a result, we  recommended in our June 2016 report that the Coast Guard develop  measures, as appropriate, and design and implement a process for  systematically assessing the extent to which its actions have helped  mitigate Arctic capability gaps. DHS concurred with our recommendations, and in response, the Coast  Guard reported that it planned to develop specific measures for some of  its Arctic activities and systematically assess how its actions have helped  to mitigate the capability gaps for which the Coast Guard is the lead  agency, such as icebreaking capacity. Although the Coast Guard may not be the lead for these gaps, assessing  the impact of Coast Guard actions for such capability gaps would better  enable the Coast Guard to understand the effectiveness of its actions and  the status of all capability gaps. Coast Guard Has Been Unable to Fulfill All Polar Icebreaking Operations and Is Taking Steps to Begin Icebreaker Acquisition

Our June 2016 report found the Coast Guard has been unable to fulfill  some of its polar icebreaking responsibilities with its aging polar  icebreaking fleet, and had efforts underway to acquire a heavy  icebreaker—which has greater icebreaking capability than a medium  icebreaker. Specifically, in 2011 and 2012 when its heavy icebreakers  were not active, the Coast Guard was unable to maintain assured, year- round access to the Arctic and did not meet 4 of 11 requests for polar  icebreaking services. The Coast Guard reported that increased heavy  icebreaking capacity is needed to fully meet requirements in the Arctic  and Antarctic regions. We also found that the Coast Guard initiated a program in 2013 to  acquire a new heavy icebreaker to maintain polar icebreaking capability  after the Polar Star’s projected service life ends between 2020 and 2023. Currently, the Coast Guard is working to determine the optimal acquisition  strategy. Availability. Anticipating a likely gap of 3 to 6 years in heavy icebreaker capability  between the expected end of the Polar Star’s service life between 2020  and 2023 and the deployment of a new icebreaker in 2026, we reported in  June 2016 that the Coast Guard is developing a bridging strategy, as  required by law, to determine how to address this expected gap (see fig. 2). This is a work of the U.S. government and is not subject to copyright protection in the  United States.
Why GAO Did This Study

The retreat of polar sea ice in the Arctic, as reported by the U.S. National Snow and Ice Data Center, combined with an expected increase in human activity there, has heightened U.S. and other nations' interests in the Arctic region in recent years. Growth in Arctic activity is expected to increase demand for services such as search and rescue and maritime navigation support, which can be a challenge to provide given the harsh and unpredictable weather and vast distances that responding agencies must travel to reach the Arctic. The Coast Guard plays a significant role in U.S. Arctic policy and issued its Arctic strategy in May 2013.
This statement addresses the extent to which the Coast Guard has (1) assessed its Arctic capabilities and taken actions to mitigate any identified gaps, and (2) reported being able to carry out polar icebreaking operations. This testimony is based on a June 2016 GAO report. GAO reviewed relevant laws and policies and Coast Guard documents that detail Arctic plans, among other things. Detailed information on GAO's scope and methodology can be found in the June 2016 report.

What GAO Found

GAO reported in June 2016 that the U.S. Coast Guard, within the Department of Homeland Security (DHS), had assessed its Arctic capabilities and worked with its Arctic partners—such as other federal agencies— to mitigate Arctic capability gaps, including communications and training. Although Coast Guard officials stated that the agency's actions, such as testing communication equipment in the Arctic and conducting Arctic oil spill response exercises, have helped to mitigate Arctic capability gaps, the Coast Guard has not systematically assessed the impact of its actions on these gaps. GAO recommended in June 2016 that the Coast Guard develop measures, as appropriate, and design and implement a process, for systematically assessing the extent to which its actions have helped mitigate Arctic capability gaps. DHS concurred with GAO's recommendations, and the Coast Guard reported that it planned to develop specific measures for some of its Arctic activities and systematically assess how its actions have helped to mitigate the capability gaps for which the Coast Guard is the lead agency. While officials stated they are unable to unilaterally close capability gaps for which the Coast Guard is not the lead agency, assessing the impact of Coast Guard actions for such capability gaps would better enable the Coast Guard to understand the effectiveness of its actions and the status of all capability gaps, as well as plan its Arctic operations.
GAO's June 2016 report also found that the Coast Guard has been unable to fulfill its polar icebreaking responsibilities with its aging icebreaker fleet, which currently includes two active icebreakers. In 2011 and 2012, the Coast Guard was unable to maintain year-round access to the Arctic and did not meet 4 of 11 requests for polar icebreaking services. With its one active heavy icebreaker—which has greater icebreaking capability—nearing the end of its service life, the Coast Guard initiated a program in 2013 to acquire a new one and is working to determine the optimal acquisition strategy. However, the Coast Guard's efforts to acquire an icebreaker, whether by lease or purchase, will be limited by legal and operational requirements. In addition, current projections show that the Coast Guard is likely to have a 3- to 6-year gap in its heavy icebreaking capability before a new icebreaker becomes operational, as shown below. The Coast Guard is developing a strategy to determine how to address this expected gap.
Coast Guard's Heavy Icebreaker Availability and Expected Capability Gap, Present until 2030