Library and Archives Canada/Duncan Cameron/PA-117109 Left to Right, Prime Minister Lester B. Pearson, Minister of National Defence Paul Hellyer, and Air Chief Marshal Frank Miller, June 1965. HELLYER’S GHOSTS: UNIFICATION OFTHECANADIANFORCES IS 40 YEARS OLD – PART ONE by Major-General Daniel Gosselin, CMM, CD 1 Following the most careful and thoughtful the Canadian Forces (CF) as an institution, but none consideration, the government has decided that of those has had a more dramatic impact and long-lasting there is only one adequate solution. It is the effect than the ideas that the Liberal Government of integration of the Armed Forces of Canada under Lester B. Pearson and his strong-minded and ambitious a single Chief of the Defence Staff. This will Minister of National Defence, Paul T. Hellyer, brought be the first step toward a single unified defence into defence in the spring of 1963. force for Canada. The integrated control of all aspects of planning and operations should not The Canadian Forces Reorganization Act (Bill C-243, only produce a more effective and co-ordinated informally referred to as the “unification act”) was posture for Canada, but should also result in the government’s legislation that amended the National considerable savings.2 Defence Act to eliminate the three services and create one unified military force. But it was the fundamental – and White Paper on Defence, March 1964 innovative – ideas that Hellyer championed during his three-and-a-half years as minister, and the contentious Introduction reforms that he pushed through the defence establishment, that radically changed Canada’s military, generating in n 1 February 1968, one of the most important events their wake much discord and controversy. Hellyer’s Oof Canada’s military history took place when the ideas were influential in many respects, and planted law that eliminated the Royal Canadian Navy, the Royal the seeds for more reforms in the 1970s and 1980s. As Canadian Air Force and the Canadian Army went into defence analyst Douglas Bland, author of two important effect, and the three proud military services ceased to studies that touched on unification and its consequences, exist. Unification of the three services into one, the stated, “[t]he policy ... caused an immediate and prolonged Canadian Armed Forces, turned 40 years old this year. public argument and great dissatisfaction within the Since then, various dominant and, at times, competing armed forces.”3 It was also the genesis for one of the most concepts have influenced and shaped the evolution of divisive crises of civil-military relations in Canada.4 6 Canadian Military Journal G Vol. 9, No. 2 This article, presented in two consecutive parts, are: (1) the need for a single coherent defence policy explores the fundamental ideas that led Minister Hellyer for Canada; (2) the creation of the office of the Chief to unify the CF and that underlined the integration of the Defence Staff (CDS) to centralize and strengthen and unification efforts of the 1960s,5 and it assesses the administration and control of defence policy and the legacy of those core concepts in 2008.6 Hellyer’s of the CF; (3) the creation of a unified system of ideas first came to light with the Liberal Government’s command complete with the reorganization of the field 1964 White Paper on Defence, which commands; (4) the introduction of contained several original concepts, modern management methods and the and set out the basic philosophy and “As events proved elimination of triplicate functions rationale for the unification of the armed out, wholesale to achieve efficiencies; and, (5) the forces. Bill C-243 and Bill C-90, an unification for the achievement of a single higher loyalty act that created the office of the Chief to the CF. While Hellyer likely never of the Defence Staff (CDS) and that CF was too one considered those major unification resulted in the formation of a single dimensional as an themes as distinct, but rather as a integrated defence staff at a renamed organization model complete and integrated set of reforms Canadian Forces Headquarters (CFHQ), necessary to radically transform Canadian were both aimed at legally implementing to impose on the defence, examining them individually the policy decision of the White Paper institution...” allows for a better assessment of those of 1964. Hellyer’s addresses to Parliament principal ideas of the 1960s and of in May 1964 on Bill C-90, and in their legacy in 2008, and provides an December 1966 on the Canadian Forces Reorganization understanding of the evolution and the basis for Act, expanded considerably on the ideas elaborated organization and decision-making within the CF. in the White Paper, especially in articulating the benefits for Canada of a unified CF command structure.7 Taken Hellyer brought in several progressive and innovative together, these policy statements enunciated Hellyer’s ideas at Defence in 1963, but with unification he also ideas and provided the intellectual foundation for a tried to impose a dogmatic and idealistic vision of what CANADIANFORCESTRANSITION deep-seated restructuring of Canadian defence – one the CF should look like and how it should be organized. that has exerted pressure on the institution for 40 years. As events proved out, wholesale unification for the CF was too one-dimensional as an organization model to Five major unification themes, capturing the core impose on the institution, and not viable in the long ideas of Hellyer’s integration and unification strategy, are term. During the past three-and-a-half years, under the reviewed and assessed in turn in this article. The first leadership of General Rick Hillier as CDS, the CF has two themes will be presented in this first part, while undergone an important renewal, unseen in decades. the next three and a concluding segment will appear Fuelled in large part by Hillier’s bold vision of a new role in part two in the next edition. These major themes for the CF as part of Canada’s international policy, a serious commitment by two successive governments to re-invest in defence and rebuild the CF, along with a demanding combat engagement in southern Afghanistan, Canada’s military has transformed significantly in recent years. Still, as this article will demonstrate, some of the ideas that inspired Hellyer in the 1960s have endured after over 40 years, and even flourished in recent years, while others have finally been buried – perhaps for good. For sure, if there were any of Hellyer’s “unification ghosts” left in 2005 when Hillier arrived as CDS, it is DND photo 698-IMG0076 fair to state that those have since been exorcised. Canadian Forces Headquarters, Cartier Square, Ottawa, March 1964. Vol. 9, No. 2 G Canadian Military Journal 7 One Unified Defence Policy for Canada resolve problems and develop policies from a service perspective. Only a single unified command structure uch has been made over the years of Hellyer’s supported by a more robust integrated joint staff to M reforms to reorganize the Canadian military, and control all aspects of planning and operations, topped thus it is easy to forget that, in the controversy that by a new Defence Council chaired by the minister, could unification generated, the central idea of the 1964 think and act from a national perspective, and formulate White Paper on Defence was to develop a defence unified national solutions to Canadian defence problems, policy based on Canadian needs and national interests. Hellyer reasoned.16 The second part of the White Paper By the time Hellyer arrived at Defence in 1963, the therefore addressed his ideas for the reorganization of the three services were the dominant players in the defence structure to meet this objective. development of defence policy,8 a reality strongly reinforced by the Canadian military “growing up allied,” Unfortunately, the establishment in 1968 of a single and Canada’s continental and international commitments unified service in Canada, even when bolstered by the to the North American Air creation of a single national defence headquarters Defence Command (NORAD) four years later, did not eliminate the conflicting loyalties. “Hillier’s powerful and to the North Atlantic Treaty It did not achieve the effect Hellyer sought with his Organization (NATO).9 The restructuring, and it has not prevented the traditional influence over service-oriented commitments “strong-service idea,” focused on the preservation the development tended to steer Defence away of the army, navy and air force as separate institutions, of Canada’s defence from further integration, and to continue to exert strong dissenting pressure on the encouraged the development institution.17 The absence of political and military policy in 2005 of individual service capability, leadership, and the lack of policy direction in the 1970s has been unseen force structure and war and 1980s, combined with the continuation of service- in Canada.” planning, to the detriment oriented alliance commitments and participation to of a true national defence United Nations peacekeeping operations, only further strategy.10 As the three reinforced service planning and force development, and services continued to focus and specialize on their perpetuated the conditions for the three services to distinct missions, they remained isolated from each continue to think and operate independently and to compete other, contributing even more to a segmented and inflexible over roles and missions.18 defence policy.11 Without a coherent national