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The Canadian Iniernational Development Agency and the Canadian Labour Congress: a Developing Partnership

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The Canadian Iniernational Development Agency and the Canadian Labour Congress: a Developing Partnership THE CANADIAN INIERNATIONAL DEVELOPMENT AGENCY AND THE CANADIAN LABOUR CONGRESS: A DEVELOPING PARTNERSHIP A Thesis Submitted to the Faculty of Graduate Studies in Partial Fulfilment of the Requirements for the Degree of Master of Arts in the Department of Political Studies University of Saskatchewan by MURPHY, Michael Joseph Saskatoon, Saskatchewan Canada December 1986 The University of Saskatchewan claims copyright in conjunction with the author. Use shall not be made of the material contained herein without proper acknowledgement. -frua.0004 '111%13LE CE' COWIENTS Page Abstract of Thesis Acknowledgements iii List of Abbreviations iv Introduction Chapter 1: The Origins and Development of the CIDA/CLC Relationship 9 Chapter 2: Defining the CIDA/CLC Relationship 19 Chapter 3: The Role of CIDA in Canadian Foreign Policy 25 Chapter 4: The CLC, Social Democracy and International Development 50 Chapter 5: A Convergence of Interests 74 Chapter 6: CIDA, The CLC and South Africa 92 Chapter 7: Conclusions: A Developing Partnership? 114 List of Appendices and Tables 122 Appendices Al-All Bibliography Bl-B4 The thesis analyses the relationship between the Canadian Labour Congress (CLC), which is Canada's largest trade union central or federation, and the Canadian International Development Agency (CIDA), which is the government agency that administers the Canadian foreign aid programme. It traces the history of that relationship from 1969 to 1983 and documents the linkages between the two organizations, especially as regards the many projects which CIDA has funded for the CLC's International Affairs Department. The projects are compiled and analysed geographically and by sponsoring organization. An explanation is offered as to why the CIDA/CLC relationship has developed and expanded. This is done in the context of a critique of the Canadian foreign aid programme, which is virtually synonymous with CIDA. The Canadian aid programme, and CIDA, are seen as serving the foreign and domestic interests of the Canadian state, which seeks to maintain present national and international class relations. CIDA, it is argued, maintains the CLC relationship because it allows CIDA, as an instrument of the state, to contribute to legitimization of the state and in the process to exert some influence over the working class in Canada and in the developing countries. A critical examination is also offered of the international policies pursued by the leadership of the CLC. The CLC is seen as maintaining the CIDA relationship because it contributes to the advancement of the social- democratic ideology within the labour movement in Canada and overseas; it strengthens the CLC as an international actor, especially within the powerful International Confederation of Free Trade Unions; and it legitimizes the present leadership of the CLC. The thesis argues that the convergence of interests between CIDA and the CLC is based primarily on a shared interest in exerting influence on the working class in both the Third World and Canada. Given the strategic importance of South Africa and the important role played by the trade union movement in the struggle for liberation in that country, major projects that CIDA has funded for the CLC in that country are examined, in the context of the role of the international labour federations in South Africa. ii My thanks to: - my thesis advisors, Dr. Richard Nordahl and Dr. Jeffrey Steeves of the University of Saskatchewan for their teaching, advice and support. I am deeply grateful to Dr. Nordahl for his exemplary thoroughness, clarity and encouragement in my final year of work on the thesis. - the other members of my thesis committee, Professor Ron Wheeler and Dr. Don Story, for their interest and critical suggestions. - Dr. David Smith for facilitating my entry, as a mature student, to graduate studies. - Laurie Thompson for stimulating my interest in this area of study and activism. - my friends and family for their patience and encouragement. - Valerie Fink, whose word-processing skills made it all seem easy. iii LIST P ABBREVIATIONS AALC AFROAMERICAN LABOUR CENTRE AFL/CIO AMERICAN FEDERATION OF LABOUR/CONGRESS OF INDUSTRIAL ORGANIZATIONS AIFLD AMERICAN INSTITUTE OF FREE LABOUR DEVELOPMENT CIA CENTRAL INTELLIGENCE AGENCY CIDA CANADIAN INTERNATIONAL DEVELOPMENT AGENCY CTUC COMMONWEALTH TRADE UNION COUNCIL CUPE CANADIAN UNION OF PUBLIC EMPLOYEES CUPW CANADIAN UNION OF POSTAL WORKERS CUSA COUNCIL OF UNIONS OF SOUTH AFRICA CUSO CANADIAN UNIVERSITY SERVICE OVERSEAS FOSATU FEDERATION OF SOUTH AFRICAN TRADE UNIONS IBRD INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT ICDS INSTITUTIONAL COOPERATION AND DEVELOPMENT SERVICES DIVISION INTERNATIONAL CONFEDERATION OF FREE TRADE UNIONS ILO INTERNATIONAL LABOUR ORGANIZATION ITS INTERNATIONAL TRADES SECRETARIAT LCC LABOUR COLLEGE OF CANADA NDP NEW DEMOCRATIC PARTY NCO NON-GOVERNMENTAL ORGANIZATION OATUU ORGANIZATION OF AFRICAN TRADE UNION UNITY ODA OVERSEAS DEVELOPMENT AGENCY OECD ORGANIZATION OF ECONOMIC COOPERATION AND DEVELOPMENT ORIT INTERAMERICAN REGIONAL ORGANIZATION OF WORKERS SACTU SOUTH AFRICAN CONGRESS OF TRADE UNIONS SADOC SOUTHERN AFRICA DEVELOPMENT COORDINATING COMMMTEE TUC TRADES UNION CONGRESS (BRITAIN) TUCSA TRADE UNION COUNCIL OF SOUTH AFRICA UNCTAD UNITED NATIONS COUNCIL ON TRADE AND DEVELOPMENT WCL WORLD CONFEDERATION OF LABOUR WFTU WORLD FEDERATION OF TRADE UNIONS ZCTU ZIMBABWE CONGRESS OF TRADE UNIONS iv INTROGUCTICH This thesis documents and analyses, for the first time, the series of development projects funded by the Canadian International Develop- ment Agency (CIDA) with the Canadian Labour Congress (CLC). it covers the period 1969 to 1983. Drawing on primary information obtained from CIDA and the CLC, it demonstrates the growth in the diversity and quantity of the projects funded in that period and looks in some detail at four of them to illustrate the activities undertaken in South Africa by the CLC with CIDA funds. The thesis also examines the relationship that has developed between CIDA and the CLC since 1969 and within which the donor/client relationship of the projects is conducted. Drawing on CIDA and CLC literature, as well as secondary material in the areas of international aid, social democracy and the politics of international trade unionism, the thesis offers an explanation for the initiation and growth of the CIDA-CLC relationship. This explanation is offered within a Marxian framework as utilized by, inter alia, Ralph Miliband, James O'Connor, James Petras, John Saul, Leo Panitch and Harry Magdoff.1 The essential characteristics of this framework are the use of class analysis as a means of under- standing contemporary society; a critical perspective on social democracy as a reformist ideology that seeks to mediate the essentially antagonistic relationship between capital and the working class; and a perception of the state as an instrument of the ruling class. The objective of the thesis is not to validate the theses underlying the Marxian framework. The data dealt with in this thesis fit well into the Marxian framework, however, and in this sense lend support to it. 2 CIDA is the official aid arm of the Canadian government. It has grown from modest beginnings in the 1950's to a two billion dollar a year undertaking in the early 1980's. It is largely the creation of successive Liberal administrations, who have accepted and attempted to implement the targets and objectives determined by the United Nations regarding aid to the developing countries. Through CIDA, the Canadian government has sought also to achieve political objectives, both in relation to the developing nations and within Canada. As regards the former, the disbursement, amount, timing and withholding of aid is subordinated to the government's foreign policy objectives. The neglect of Nicaragua as an aid recipient, in relation to the other states of Central America, in the past few years is a graphic illustration of the policial use of aid. As regards the Canadian political process, the practice of tying Canadian aid to pur- chases from this country of goods and services allows the government, through CIDA, to determine the allocation of contracts on a regional and corporate basis, in accordance with its political wishes. In its allocation of aid funds, the government also responds politically to the pressures of the wide range of non-governmental organizations (NGOs) involved in international development assistance programmes. Among these NGOs is the Canadian Labour Congress (CLC). The CLC is Canada's largest trade union central, with a 1983 membership of 2.3 million workers. Through its organic relationship with the New Democratic Party, the CLC is linked with the international social- democratic movement and the Socialist International. Through its affiliation with the International Confederation of Free Trade Unions 3 (ICFTU), the CLC is part of the social-democratic labour movement throughout the world, and in fact plays a very important role in that movement. The CLC has been involved, since its inception in 1956, in international affairs. Through the ICFTU, the CLC has developed links with trade unions in many of the developing countries. It has provided moral, organizational and other material support for workers' struggles throughout the world. Through its own International Activities Fund and through the ICFTU's International Solidarity Fund, the CLC has provided funds for trade union education and organizing in the developing countries, together with the provision in Canada
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