f T. /111HllUt./ f,./fC/f/61/MI/£Y\ [ lI f CANADA and NATO Uneasy Past, Uncertain Future edited by Margaret 0. MacMillan Ryerson Polytechnical Institute and DavidS. Sorenson Denison University in association with The Lyman L. Lemnitzer Center for NAIO Studies Kent State University and Centre on Foreign Policy and Federalism University ofWaterloo University of Waterloo Press Table of Contents Canada and Nato Acknowledgements Copyright © 1990 iii Introduction Copyright for each paper in Canada and NATO is held by its respective author(s). All rights reserved. No part of any paper or of any other portion of this publication may be reproduced or xi Glossary used in any form by any means - graphic, electronic or mechanical, including photocopying, recording, taping or information storage and retrieval systems - without written permission. I. The Historical Background Inquiries should be addressed to University of Waterloo Press. Mary Halloran ISBN 0-88898-101-5 1 Canada and the Origins of the Post-War Commitment University of Waterloo Press David Bercuson Poner Library, University of Waterloo 15 The Return of the Canadians to Europe: Britannia Rules the Rhine Waterloo, Ontario, Canada N2L 3G 1 Phone: 519-885-1211, ext. 3369 Joseph P. Sinasac Fax: 519-747-4606 27 The Three Wise Men: The Effects of the 1956 Committee of Three on Nato Design: Graphic Services, University of Waterloo Printed and bound in Ontario John English 47 Problems in Middle Life Canadian Cataloguing in Publication Data IT. NATO in a Changing World: the Canadian Perspective Main entry under title: Canada and NATO: uneasy past, uncertain future David S. Sorenson 67 Canadian Military Forces in the Federal Republi~of Germany Includes bibliographical references and index ISBN 0-88898-101-5 Geoffrey Till I. North Atlantic Treaty Organization- Canada­ 85 The Soviet Navy, the North Atlantic, and Canada History. 2. Canada- Military policy. I. MacMillan, Margaret Olwen. II. Sorenson, DavidS., 1943- Joseph Jockel Ill. Lyman L. Lemnitzer Center for NATO Studies. 101 U.S. Interests and Canadian Defence Policy in the 1990's: IV. Centre on Foreign Policy and Federalism New Epoch, New Era; Old Agenda (Waterloo, Ont.) Geoffrey Pearson UA646.5.C3C36 1990 355'.033571 C90-095498-l 123 Canada, NATO, and the Public Mood Charles F. Doran 129 NATO and its Peripheries John Halstead 143 Canada and NATO: Looking to the 90's 153 Notes on contributors Printed on ucid-frce paper. 157 Index Acknowledgements The editors would like to thank the following organizations for their contribu­ tions to the successful conference from which this book grew. That conference "Canada, the United States, and the Atlantic Alliance", which was held at Ryerson Polytechnical Institute in Toronto in April1987, was sponsored by the Canadian Committee on the Second World War, the Centre on Foreign Policy and Federalism at the Universities of Waterloo and Wilfrid Laurier, the Atlantic Council of Canada, the Canadian Institute of International Affairs, and the Lyman L. Lemnitzer Center for NATO Studies at Kent State University. From conference papers, however, to a published volume is a consider­ able step and we would like to thank first of all the authors who willingly and promptly revised and up-dated their papers. We would also like to give particu­ lar thanks to the Centre on Foreign Policy and Federalism and to the Lyman Lemnitzer Center for their encouragement and assistance throughout this project. In addition we would like to single out the following individuals who made our work as editors a pleasure rather than a burden: John English of the University of Waterloo and Lawrence Kaplan of Kent State whose valuable advice and help brought this book to completion; Neeta J&ogsetty, the editorial assistant; and Gloria Smith, Janice Weber and Dave Bartholomew of the University of Waterloo Press; and Irene Knell, Irene Majer, and Don Greening who compiled the index. Finally we would like to thank NATO itself for its generous support of this project. Mr. William Young, the former Director of Information, and Mr. Nicholas Sherwen, Head of Publications, deserve particular mention for their advice and help. Any mistakes or omissions that remain are of course entirely our responsibility. Introduction Margaret MacMillan Ryerson Polytechnical Institute David S. Sorenson Denison University, and The Lyman L. Lemnitzer Center for NATO Studies Kent State University The past several years have brought about some of the most important and unexpected changes since World War II - changes that surely rank as among the most important of this century. The "Cold War" arrangements in Europe have suddenly become unhinged, and the East-West alignments that have typi­ fied much of how Europe was organized have been replaced with a whole new set of arrangements, the shape of which remains largely unknown in 1990. All of this change makes it difficult for both policy makers and policy analysts to have much confidence in their analyses and predictions. (And if we may strike a selfish note, it makes it difficult for editors of books on the North Atlantic Treaty Organization (NATO) even to choose ~title that does not suggest either an epitaph or absurd optimism.) The comfortable old shoe of NATO - Warsaw Pact rivalry and danger in Europe, which sustained analysts for forty years, is worn out, and things written about the defence of Europe as little as a year ago are mostly obsolete. What the new political map of Europe might look like in a few years is anyone's guess, though some things appear almost certain. The Warsaw Pact is, for example, probably a dead letter now, and many of those Eastern European nations that once belonged to it (and still do, if only in theory) are now asking Soviet troops to leave their nations, which in tum are taking on the cast of sovereignty for the first time in more than forty years. Second, Gennan unification, which even in 1989 seemed impossible in even the distant future, is now an emerging reality that no nation seems willing or able to stop. NATO's unacknowledged second role, that of guarding against the re-emergence of a Gennan threat, is now being discussed more openly. Will it come to pass that this role will be what sustains what is left of NATO? In Canada, on the other hand, the emerging reality may well be dismem­ bennent of the Confederation or at the very least a loosening of its bonds. The failure of the Meech Lake constitutional accord has brought into question the very structure of the country. Will Quebec secede? Wlll it remain in a relation- iv v ship of "sovereignty-association" with the rest of Canada? What does envisaged precisely that but the exigencies of the Cold War meant that NATO's sovereignty-association mean? From the perspective of this book, what does it military role remained paramount. If the events of the summer of 1990 in the mean for Canada's treaty obligations? The Parti Quebecois, so far the most Middle East have demonstrated anything, it is surely that of the desirability of vociferous of the forces for independence, has stated that an independent international consultation and cooperation. The United Nations has played a Quebec would remain in both NATO and NORAD (North American Air role that many of us thought it could no longer play - that is providing both a Defence Command) - but policies formed in opposition have, as we all know, forum and a centre for international action. It is not surely beyond the realm of a tendency to change in power. possibility that NATO might evolve into a forum for similar consultation and The contributors and co-editors of this volume have hardly escaped the action for democracies on both sides of the Atlantic. dilemma that political change in Europe and in Canada has produced. We first In her chapter Mary Halloran looks at the origin of Canada's commitment came together for a conference on "Canada, the United States and the Atlantic to NATO in the war years. The talented and influential generation of Canadian Alliance," held in Toronto in May of 1987, when both the Cold War and policy makers in the Department of External Affairs was also working in an Canada seemed more permanent than they have since proved. The conference atmosphere of crisis, at a time when the prewar certainties seemed dead or at was the result of a recognition by both Canadian and foreign experts that least dying. She demonstrates clearly that Canadians were thinking in terms of Canada's role in the Atlantic Alliance had not been seriously studied for some shaping a new world in which Europe - and that included a new Germany - years. It brought together academics, diplomats and politicians to examine the and North America shared democratic values. She concludes that Canadians­ history of Canadian participation in the Alliance, the nature of the relationship and here she goes beyond the political elites - were prepared to contribute to in the late 1980's and its future directions. The conference sponsors indicate building the postwar world but on Canadian and not European terms. the wide scope of the program: The Atlantic Council of Canada, the Canadian David Bercuson comes to a similar conclusion in his study of an episode Committee on the History of the Second World War, the Canadian Institute of in Canadian policy in the early 1950's-and that is the debate among Canada's International Affairs, the Centre on Foreign Policy and Federalism at the senior military and government officials over where to station Canadian troops Universities of Waterloo and Wilfrid Laurier University, and the Lyman L. in Europe. He argues that the Canadian government accepted the need to con­ Lemnitzer Center for NATO Studies at Kent State University.