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To Transform an Army To Transform An Army The Canadian Interpretation of The RMA and The Transformation of Armoured Vehicle Design, 1992-2008: The Case of the LAV-III Transformer une armee de terre L' interpretation canadienne de la RAM et la transformation de la conception des vehicules blindes, de 1992-2008: le dossier du VBL-III A Thesis Submitted To the Division of Graduate Studies of the Royal Military College of Canada By Robert Addinall, MA In Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy September 2011 © This thesis may be used within the Department of National Defence but copyright for open publication remains the property of the author. Library and Archives Bibliotheque et Canada Archives Canada Published Heritage Direction du Branch Patrimoine de I'edition 395 Wellington Street 395, rue Wellington Ottawa ON K1A 0N4 Ottawa ON K1A 0N4 Canada Canada Your file Votre reference ISBN: 978-0-494-83404-6 Our file Notre reference ISBN: 978-0-494-83404-6 NOTICE: AVIS: The author has granted a non­ L'auteur a accorde une licence non exclusive exclusive license allowing Library and permettant a la Bibliotheque et Archives Archives Canada to reproduce, Canada de reproduire, publier, archiver, publish, archive, preserve, conserve, sauvegarder, conserver, transmettre au public communicate to the public by par telecommunication ou par I'lntemet, preter, telecommunication or on the Internet, distribuer et vendre des theses partout dans le loan, distrbute and sell theses monde, a des fins commerciales ou autres, sur worldwide, for commercial or non­ support microforme, papier, electronique et/ou commercial purposes, in microform, autres formats. paper, electronic and/or any other formats. The author retains copyright L'auteur conserve la propriete du droit d'auteur ownership and moral rights in this et des droits moraux qui protege cette these. Ni thesis. Neither the thesis nor la these ni des extraits substantiels de celle-ci substantial extracts from it may be ne doivent etre imprimes ou autrement printed or otherwise reproduced reproduits sans son autorisation. without the author's permission. In compliance with the Canadian Conformement a la loi canadienne sur la Privacy Act some supporting forms protection de la vie privee, quelques may have been removed from this formulaires secondares ont ete enleves de thesis. cette these. While these forms may be included Bien que ces formulaires aient inclus dans in the document page count, their la pagination, il n'y aura aucun contenu removal does not represent any loss manquant. of content from the thesis. Canada The research involving human subjects that is reported in this thesis was conducted with the approval of the Royal Military College of Canada General Research Ethics Board. ACKNOWLEDGEMENTS My supervisors, Dr. Michael Hennessy and Dr. Abdelkerim Ousman, provided invaluable advice and assistance in structuring this dissertation. Dr. Hennessy provided valuable direction in dealing with the Canadian Access to Information system. He advised me that success could most likely be achieved by first re-requesting the release of information released under previous access to information requests. Based on information returned by that approach, I was subsequently able to write new, more focused requests, the result of which forms the core of this work. Both Dr. Hennessy and Dr. Ousman were also of great assistance in helping me to broaden my knowledge of the academic fields relevant to this work. Their help allowed me to proceed beyond a general sense of the history of military technology, to frame my ideas in terms of Canadian defence procurement and a bureaucratic politics methodology. Finally, in the difficult editing process of deciding what material to include and what to cut, their suggestions helped to produce a clearer text. More generally, a number of other War Studies graduate students and Faculty were instrumental over the last several years in helping me to better understand military history and to focus my research interests. Many of them discussed aspects of my study with me, at times in great depth and for many hours. I include amongst these my former fellow Phd candidates Dr. John Blaxland, Dr. Emily Spencer, Dr. Ray Stouffer, and Dr. Benjamin Zyla, and my fellow Phd candidate Gregory Liedtke. Amongst the faculty, Dr. Ron Haycock and Dr. Sean Maloney also provided great assistance. Dr. Haycock was the first to suggest that I combine my interests in military history and information technology and write my first paper on the RMA. Dr. Maloney encouraged me to explore the limitations of RMA related concepts such as "information superiority." War Studies graduate and capability development analyst Dr. Andrew Godefroy has provided me with general academic advice together with clarification regarding many details of the Canadian capability development system. He also guided me towards, and on some occasions provided access to copies of, relevant public documents which are difficult to locate. Lieutenant-Colonel Ian Hope has likewise shared his knowledge with me, both in terms of this dissertation and, more generally, in the study of military affairs. Finally, my father, Michael Addinall, has provided support and encouragement, together with his insightful perspectives as a former soldier, and researcher, writer and editor for business and government. iii Abstract Addinall, Robert, PhD Candidate Supervisors: Michael Hennessy, Abdelkerim Ousman Royal Military College of Canada, August, 2011 To Transform An Army The Canadian Interpretation of The RMA and The Transformation of Armoured Vehicle Design, 1992-2008: The Case of the LAV-III Between 2003 and 2006, the Canadian land force pursued a program to create a Direct Fire Unit (DFU) vehicle family based on the Light Armoured Vehicle (LAV)-III as part of military Transformation. This program grew out of 1990s discourse on the concept of a Revolution in Military Affairs (RMA). RMA proponents argued that the emergence of information technology would allow the creation of completely new weapons systems and military capabilities. As opposed to this intention, the criticism that Western military forces pursue procurements which are characterized by "trend innovation" has emerged in some studies. Trend innovation describes a tendency for military forces and industries to make modifications to existing categories of weapons platforms rather than developing fundamentally new systems, usually driving up costs while failing to achieve concomitant gains in military effectiveness. The LAV was not a new platform, but had originally been developed in the 1970s. In 2006, the Canadian land force cancelled the DFU, which had been intended to replace its Leopard-1 main battle tanks, and instead acquired Leopard-2 tanks. The Leopard 2 had also been developed during the 1970s. Why, then, were these two platforms pursued as part of Transformation, and why did the reversal happen? The overall thesis of this work is that governmental politics refocused what were intended to be far-reaching initiatives into addressing near-term concerns, reinforcing trend innovation. More specifically, the case study of the DFU shows that bargaining for limited funds between subsidiary organizations within the Canadian land force, as well as between it and the Canadian federal government, spawned first the creation of the DFU program, and then its termination. This bargaining also has specific implications for the history of Canadian defence procurement. A small number of studies of Canadian military procurements have used variants of the governmental politics methodology. However, they generally focus on aspects of organizational bargaining between a given service and other services or government departments. These works have also found that tracking Canadian military procurements through publicly available information is very difficult, with one describing the Canadian acquisition process as "opaque." This dissertation shows that it is possible to examine the details of governmental politics within a Canadian military acquisition program, and that such politics reach deeper than the interactions between federal departments and between those departments and elected officials. In the case of the Direct Fire Unit (DFU), disagreement and organizational bargaining within the land force itself had a greater effect than difficulties in coordination between the land force and other government departments. IV RESUME Transformer une armee de terre L'interpretation canadienne de la RAM et la transformation de la conception des vehicules blindes, de 1992-2008: le dossier du VBL-III De 2003 a 2006, la Force terrestre canadienne a cherche a mettre en oeuvre un programme de creation d'une famille de vehicules d'unite de tir direct (UTD) basee sur le vehicule blinde leger (VBL)-III dans le cadre de la Transformation de farmee. Ce programme a vu le jour dans la foulee du concept de revolution dans les affaires militaires (RAM) des annees 1990. Les adeptes de la RAM soutenaient que l'avenement des technologies de rinformation ouvrirait la voie a des systemes d'armes et des capacites militaires completement differents. Dans le camp oppose, des etudes jetaient une lumiere peu fiatteuse sur cette proposition, affirmant que les forces militaires occidentales cherchaient a faire de l'« innovation conjoncturelle », soit une tendance, pour les forces militaires et les industries, de vouloir apporter des modifications aux categories de plates-formes d'armement existantes plutot
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