1JI il AUG (3 - \ EXECUTIVE OFFi"E OF THE SECRETARY-GENERAL Serving the National Interest: Canada's Decision to Enter the OAS, 1989 - 1990 by Rob Norris M.A. Research Project 2004 Department of Political Science University of Alberta Edmonton, Alberta © Rob Norris, 2004 Not to be quoted without permission of the author Acknowledgements Drawing upon academic programming at both the University of Alberta and the University of Saskatchewan, this paper has taken the better part of a decade to complete. Needless to say, there are a number of debts to acknowledge to individuals within both of these, and other, academic institutions as well as in the Departments) of Foreign Affairs and International Trade, the Canadian Mission at the Organization of American States, within the OAS itself as well as the Parliament of Canada. Most importantly, without the support of family and friends, this project would have remained incomplete. I am very grateful to the Department of Political Science at the University of Alberta for allowing me to re-start my graduate work in 2001. I was assisted and encouraged by an impressive coterie of scholars: Juris Lejnieks; Wenran Jiang; Julian Castro-Rea; and of course, Tom Keating. These professors enhanced my understanding of the post-9/11 world and the study of foreign policy. A special note of thanks also goes to Ian Urquhartfor his assistance during his tenure as Graduate Chair as well as to the administrative staff within the Department, especially Marilyn Calvert. As well. Associate Vice-President (International) at the University of Alberta, Brian Stevenson, demonstrated constant and generous friendship and support from the early days of this initiative. From the senior administration of the University of Saskatchewan, my heartfelt appreciation is extended to the Secretary of the University, Gordon L Barnhart. He kept faith throughout this enduring journey, enhancing my career, education and life along the way. Our family appreciates his friendship, just as we miss his late wife, Elaine. A sincere thank you is extended to the University President, Peter MacKinnon, for his interest in, and support of, various inter-American student initiatives. From University of Saskatchewan International, I would like to thank my colleagues Asit Sarkar (now with the College of Commerce), David O 'Brien, Kelly Kozak, and Lisa Sielski. From the Department of Political Studies at the University of Saskatchewan, where this project was conceived, I am grateful for the support provided by John Courtney and David E. Smith, as well as: Joe Garcea; Jeff Steves; Ron Wheeler; Cris de Clercy; andJene Porter, among others. Within the Native Law Centre of Canada, I am indebted to both Sakej Henderson and Wanda McCaslin. I would also like to thank the Department of History's Messier committee for providing research funding in the mid 1990s. I would be remiss if [failed to note my deep appreciation to our many friends in that Department, especially in this time of loss and sorrow. Additional credit is extended to: post-doctoral fellow, P. Whitney Lackenbauer, for his helpful comments and encouragement during the final weeks of this work; Keith Walker, of the Department of Educational Administration, for his invitations to reflect upon leadership and decision making; and C. (Red) Williams, of the College of Agriculture, for his unyielding confidence and encouragement. At the University of Lethbridge, my appreciation is extended to Akira Ichikawa (now retired), for his aid, advice and encouragement during my undergraduate work and his unwavering support during my graduate programs. At Carleton University, Jean Daudelin and Andrew Cohen offered valuable insights at different stages of this enterprise. Now at the University of Wales, William Bain offered vital conceptual help regarding values, interests and order. Other individuals who have offered instrumental assistance are, or have been, associated with the Departments) of Foreign Affairs and International Trade: most especially, retired Ambassador, Richard V. Gorham; retired Ambassador John Graham; Deputy Director Harold Hickman; and Canada's Consul and Trade Commissioner in Barcelona, Roberta Cross. Another former Ambassador, John Treleaven - now President and CEO of the Saskatchewan Trade and Export Partnership - also offered valuable insights about key players in this specific decision making cycle. As well, I appreciated the opportunity - offered by Steven Lee and the Canadian Centre for Foreign Policy Development — to participate in DFAlT's 1999 inaugural foreign policy session for Canadian graduate students. Currently the Deputy Secretary General of the United Nations, I am thankful for the helpful and patient insights offered by Louise Frechette in 1995. Minister Peter Boehm and Ambassador Paul Durand - and their Canadian colleagues in Washington - have been very generous with their time and insights, affording me opportunities to visit the Canadian Mission and the OAS. Along the way. Bob Mills, M.P. (Red Deer) helped to locate helpful information, as did Louise Kennedy. Another note of gratitude is offered to former M.P., Chris Axworthy (Saskatoon-Clark's Crossing), for providing important background material. My appreciation goes as well to Gerald Schmitz, a remarkable researcher in Parliament (and sometimes, Foreign Affairs) and to the Honourable Bill Graham. Within the OAS. this work has been assisted by numerous officials, including Lindell Veitch, but especially by one person offering rare insights into Canada's decision to enter this forum. As part of our initial agreement, his identity remains confidential. To friends who have endured almost a decade of Canada and the OAS, this has "been a slow train coming. " Thanks to: Mark Bevan; Tim Chander; Trevor Gray (with special appreciation for an inspiring afternoon spent with his late grandfather, Jim); Martin Hering; Tony Rideout; Gerett Rusnak; Wade Sarasin; Paul Stevens; as well as to both the Bootle and Drury families. The warm welcome offered to me during the early days of this project by the Drury family is still appreciated. Since 1988, Ted fsenor, philosopher and friend, has helped to encourage a course of inquiry that has yet to stop, but is at least beginning to take shape. As well, Jorge Noreiga was instrumental in fostering my nascent awareness of Aboriginal Peoples in Canada, the U.S. and throughout the Americas - and well beyond. A very deep debt of gratitude is owed to David Gamache Hutchison for his kind encouragement and assistance in this initiative and several other projects! As well, a sincere thank you goes to tested 'political' friends: Mike Gariepy; Nikki Hipkin; Curtis Kimpton; Tracy Muggli; Chika Onwuekwe; and Niki Pogue, among others from Saskatoon Eastview. Finally, the focus turns to family. It is with great sadness that this work cannot be shared with Paul Henri Cote; my maternal grandfather passed away within days of receiving a 2001 Citation from the City of Edmonton and of learning of my acceptance at the University of Alberta. As promised, this project has been completed. Despite her grief, my grandmother, Blanche, always kept an open door and warm smile during my several unexpected stays in Edmonton. To my paternal grandparents, Bill and Sheila Morris, a profound debt is owed to both; their faith, generosity, and support made all the difference. A thank you is extended to Leah, Sherwood and Scott Patrick for their warm hospitality. Importantly, Pat and Ann Smith, provided encouragement and a relaxing retreat close to Ottawa. The generous and unyielding support of Bud and Elaine Norris made the conclusion of this project possible. Though in the end, it was the tireless efforts of my wonderful wife - mother, scholar, partner - Martha Smith-Morris, which allowed this goal to be achieved: "If not for you, winter would have no spring. " Finally, to our delightful daughter, Jacqueline: tu ne cede mails sed contra audentior ito. it On October 27-8, 1989, Canadian Prime Minister Brian Mulroney, attended a meeting of hemispheric leaders in San Jose, Costa Rica. This multilateral summit celebrated a century of democratic rule in Costa Rica and, more substantively, focused upon the "six Ds" of contemporary hemispheric affairs: debt; drug trafficking; democracy; deforestation; disarmament; and development. In the opening hours of the meeting, Mulroney announced that Canada's presence at the conference signaled a new departure in Canadian-Latin American relations. After decades of uneven attention, Ottawa recognized that Canada was increasingly engaged in the Americas. Emphasizing the importance of hemispheric interdependence in various functional fields, he added that promoting regional cooperation was integral to Canadian goals and that the Organization of American States (OAS) - despite its imperfections - was vital to the success of such cooperation.2 The time had arrived for Canada "to occupy the vacant chair at the OAS that has been reserved ... all these years."3 Upon returning to Ottawa, the Prime Minister was questioned in the House of Commons about Canadian membership in the OAS, especially considering apparent 1 Jonathan Fuerbringer, "Costa Rica Gains Loan Agreement," The New York Times, 28 October 1989, 5; Globe and Mail, "Costa Rican Summit Celebrates Democracy," The (Toronto) Globe and Mail, 27 October 1989, A4; Hilary Mackenzie, Marc Clark and Mary Nemeth, "A Crash Course for Mulroney," Maclean's, 6 November 1989, 32-3, 36. 2 Emerging from the Pan American Union, the Organization of American States was established in 1948. Peter McKenna suggests that it is "the principal political institution of the Inter-American system.'1 James John Guy adds that the OAS is the "leading formal decision-making institution" in the inter-American system. McKenna, "How is Canada Doing in the OAS?" Canadian Foreign Policy 1:2 (Spring 1993), 81; Guy, People, Politics & Government - Political Science: A Canadian Perspective, 3rd ed. (Scarborough: Prentice Hall Canada, 1995), 471. 3 Office of the Prime Minister, "Notes for An Address By the Right Honourable Brian Mulroney, Meeting of Hemispheric Leaders," San Jose, Costa Rica, 27 October 1989,4-5.