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Canada, the Freeloader, Rather Than Vested Defence Partner in Norad and the Defence of North America

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Canada, the Freeloader, Rather Than Vested Defence Partner in Norad and the Defence of North America CANADA, THE FREELOADER, RATHER THAN VESTED DEFENCE PARTNER IN NORAD AND THE DEFENCE OF NORTH AMERICA Major Andrew Wood JCSP 44 PCEMI 44 Exercise Solo Flight Exercice Solo Flight Disclaimer Avertissement Opinions expressed remain those of the author and do Les opinons exprimées n’engagent que leurs auteurs et not represent Department of National Defence or ne reflètent aucunement des politiques du Ministère de Canadian Forces policy. This paper may not be used la Défense nationale ou des Forces canadiennes. Ce without written permission. papier ne peut être reproduit sans autorisation écrite. © Her Majesty the Queen in Right of Canada, as represented by the © Sa Majesté la Reine du Chef du Canada, représentée par le Minister of National Defence, 2019. ministre de la Défense nationale, 2019. CANADIAN FORCES COLLEGE – COLLÈGE DES FORCES CANADIENNES JCSP 44 – PCEMI 44 2017 – 2019 EXERCISE SOLO FLIGHT – EXERCICE SOLO FLIGHT CANADA, THE FREELOADER, RATHER THAN VESTED DEFENCE PARTNER IN NORAD AND THE DEFENCE OF NORTH AMERICA By Major Andrew Wood “This paper was written by a candidate « La présente étude a été rédigée par un attending the Canadian Forces College stagiaire du Collège des Forces in fulfilment of one of the requirements canadiennes pour satisfaire à l'une des of the Course of Studies. The paper is a exigences du cours. L'étude est un scholastic document, and thus contains document qui se rapporte au cours et facts and opinions, which the author contient donc des faits et des opinions que alone considered appropriate and seul l'auteur considère appropriés et correct for the subject. It does not convenables au sujet. Elle ne reflète pas necessarily reflect the policy or the nécessairement la politique ou l'opinion opinion of any agency, including the d'un organisme quelconque, y compris le Government of Canada and the gouvernement du Canada et le ministère Canadian Department of National de la Défense nationale du Canada. Il est Defence. This paper may not be défendu de diffuser, de citer ou de released, quoted or copied, except with reproduire cette étude sans la permission the express permission of the Canadian expresse du ministère de la Défense Department of National Defence.” nationale. » CANADA, THE FREELOADER, RATHER THAN VESTED DEFENCE PARTNER IN NORAD AND THE DEFENCE OF NORTH AMERICA NORAD1 is often framed as the benchmark in the Canada-United States (U.S.) relationship, celebrating its 60 th anniversary in May 2018. It is charged with defending North America in the Air and Maritime domains.2 The origins of the relationship benefited both parties and traded space for capability and protection. Despite Canada’s repeated commitment to NORAD and the defence of North America,3 a lack of political willingness, a diverted focus in favour of overseas operations, and a failure to invest in the capabilities required to make NORAD a credible defence. NORAD has fallen behind in its effectiveness to carry out its assigned missions, has failed to respond to and lacks the capabilities required to respond to current, and evolving threats to North America. This paper contends that a political commitment to the Canada -US relationship, combined with the policy and capability investments required to modernise NORAD is urgently needed to restore the relevance of NORAD and render it an effective deterrence. These factors are however, unlikely to be considered due to the short-term political vision of Canadian politics, the unwillingness to commit the required funds to re-balance the capability relationship and the belief that the US will ultimately guarantee Canada’s security. Canada, whilst considering itself equal, has always been the junior partner in an unequal 1 North American Aerospace Defence Command. 2 NORAD’s three mission are Aerospace Command, Aerospace Control and since 2006, Maritime Warning. 3 Emphasised in repeated defence policies, including the Canada First Defence Strategy and the latest policy “Strong, Secure, Engaged”. 2 relationship, and as the threats and organisation have evolved, that gap has widened. This paper will briefly examine the mutually beneficial circumstances that led to the creation of NORAD, and for 30 years of its life provided an effective defence of North America. It will then examine some contributory factors in the decline of its relative value, lost opportunities and deterrent effect, resulting in a flawed Canadian assessment of its own relevance and utility to NORAD. Linked to this assertion, it will also examine the corresponding decline in its relevance to the US and offer an opinion as to whether this is in fact due to Canadian neglect or other factors. The paper will constrain itself to the extant NORAD Mission set and not venture into additional domains that are addressed through the Tri -Command sponsored Evolution of North American Defence (EvoNAD) 4 study. HISTORICAL PERSPECTIVE North America is in the advantageous position of facing potential threats at stand-off distances. Separated by the Atlantic, Pacific and Arctic Oceans. Canada and the U.S. share an unparalleled defence relationship forged by a shared geography, common values/ interests, deep historical connections, and our highly integrated economies. These factors inevitably elevate defending North America to the strategic level. Equally important has been the commitment to work together to defend North America, initially through the joint commitment of the Ogdensburg 4 EvoNAD is an all domain study being conducted by the Tri-Command (CJOC, NORAD and USNORTHCOM) into all domain threats to North America. It reports its findings to the PJBD. 3 Declaration in 1940,5 and since 1957/8,6 a key aspect of this commitment has been the Bi-National NORAD command. The Cold-War Soviet nuclear threat, initially through manned bombers, led to the combined military conclusion that defence would be most effectively and efficiently met through a shared command and control structure. Based upon this, NORAD was founded in 1957, centred on the shared interests and threats faced by Canada and the U.S. Its missions expanded in the 1960s to ballistic missile early warning with the emergence of intercontinental (ICBM) and submarine launched (SLBM) ballistic missiles. Subsequently, post 9/11 it assumed an asymmetric mission set, consisting of Operation NOBLE EAGLE (ONE) to intercept and interdict civil aircraft with potentially nefarious intentions, and to the war on drugs with its Aerospace Control Mission and a Maritime Warning Mission. 7 The evolution of NORAD manifested itself in the US not wanting Canada to be a liability in the defence against Soviet aggression, and the recognition that Canada was incapable of defending itself.8 The US therefore identified the need for cooperation with Canada to acquire territory and airspace in order to provide strategic depth against Soviet potential US targets.9 This led initially to the construction of the Pine Line Radar warning installations, followed shortly afterwards by the DEW line radar warning system.10 Concerns over Canadian 5 Which led to the establishment of the Permanent Joint Board on defence (PJBD), followed by the CAN-US Military Cooperation Committee (MCC). 6 Militarily established in 1957, but not politically ratified until 1958. 7 It assumed the Maritime Warning Mission in 2006 with the re-signing of the NORAD Agreement in perpetuity. 8 J Jockel, Canada in NORAD, 1957 – 2007: A History. McGill-Queens University Press, 2007. P9 - 11. 9 Ibid. P1 – 3. 10 At US expense. 4 sovereignty were addressed in terms of Canadian inclusion in site selection and the application of Canadian legal status and title.11 Cooperation at the military level led to the development of protocols for the cross border interception and control of aircraft.12 These protocols were subsequently accepted at the political levels of both governments, resulting in the NORAD agreement with its corresponding checks and balances,13 to become responsible to both nations for the shared defence of North America. The NORAD Agreement, most recently renewed in 2006, 14 deliberately highlighted the enduring nature of the bi-national relationship. However, the 40 years since the last significant series of investments, highlights the neglect both governments have placed on continental defence, despite the rhetoric 15 in subsequent defence policies and national military strategies. Other factors have contributed to this neglect, namely the end of the cold-war and a subsequent shift from continental defence, to expeditionary operations, and the historical belief that the defence of North America is best achieved far away from national territory.16 NORAD is often described as the benchmark of the Can-US relationship, and yet it largely exists beneath the political radar, successfully operating in the 11 J Jockel, No Boundaries Upstairs: Canada, the United States and the origins of North American Air Defence. Vancouver: University of British Columbia Press, 1987, P83. 12 Recognising sovereign rules of engagement. Ibid. P54-55. 13 Namely that the commander and deputy commander would be approved by, and from both nations. Ibid. P58. 14 At which time it was signed in perpetuity by the Canadian and U.S. Governments. 15 K, Nossal, New Wineskin, Old Wine: The Future of Canadian Contributions to North American Security, North American Strategic Defense in the 21st Century, Springer Publishing, 2018. P97 – 107. https://link.springer.com/chapter/10.1007/978-3-319-90978-3_8 16 A Charron and J Fergusson, Beyond NORAD and Modernization to North American Defence Evolution. Canadian Global Affairs Institute, May 2017. P1-3. 5 military domain, out of sight and out of mind. As such, there are few motivating factors for either government to concentrate efforts on North American Defence. “NORAD today is largely out of sight and out of mind, best known as the organization that “tracks Santa”17 These initiatives and shared perspective set the scene for the bi -national relationship and provide the reference point as to how NORAD has diverged from its founding intent.
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