WOUNDED Canada’s Military and the Legacy of Neglect Our Disappearing Options for Defending the Nation Abroad and at Home An Interim Report by the Senate Committee on National Security and Defence September 2005 MEMBERSHIP 38th Parliament – 1st Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Vice-Chair and The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Michael A. Meighen The Honourable Jim Munson The Honourable Pierre Claude Nolin *The Honourable Jack Austin P.C. (or the Honourable William Rompkey, P.C.) *The Honourable Noël A. Kinsella (or the Honourable Terry Stratton) *Ex Officio Members Other Senators who participated during the 38th Parliament – 1st Session: The Honourable Senators: The Honourable Ione Christensen The Honourable Anne C. Cools The Honourable Percy Downe The Honourable Rose-Marie Losier-Cool The Honourable John Lynch-Staunton The Honourable Terry M. Mercer The Honourable Wilfred P. Moore The Honourable Donald H. Oliver The Honourable Gerard A. Phalen The Honourable William Rompkey The Honourable Peter A. Stollery The Honourable David Tkachuk The Honourable Marilyn Trenholme Counsell MEMBERSHIP 37th Parliament – 3rd Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Vice-Chair and The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Michael A. Meighen The Honourable Jim Munson The Honourable David P. Smith, P.C. *The Honourable Jack Austin P.C. (or the Honourable William Rompkey, P.C.) *The Honourable John Lynch-Staunton (or the Honourable Noël A. Kinsella) *Ex Officio Members MEMBERSHIP 37th Parliament – 2nd Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Vice-Chair and The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Michael A. Meighen The Honourable David P. Smith, P.C. The Honourable John (Jack) Wiebe *The Honourable Sharon Carstairs P.C. (or the Honourable Fernand Robichaud, P.C.) *The Honourable John Lynch-Staunton (or the Honourable Noël A. Kinsella) *Ex Officio Members MEMBERSHIP 37th Parliament – 1st Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Vice-Chair and The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Jane Cordy The Honourable Joseph A. Day The Honourable Laurier L. LaPierre The Honourable Michael A. Meighen The Honourable John (Jack) Wiebe *The Honourable Sharon Carstairs P.C. (or the Honourable Fernand Robichaud, P.C.) *The Honourable John Lynch-Staunton (or the Honourable Noël A. Kinsella) *Ex Officio Members TABLE OF CONTENTS PART I: OVERVIEW 1. Cutting Through the Bulls---. ................................................................................3 2. Military Readiness: A Means, Not an End ............................................................6 3. Why Canadians Need Their Armed Forces ...........................................................6 4. Too Few Dollars.....................................................................................................8 5. Too Few Personnel, Stretched Too Far ...............................................................11 6. Running On Empty ..............................................................................................13 7. How Did Defence Fall So Low in Canada’s Pecking Order? .............................14 8. New Threats at Hand............................................................................................16 9. Traditional Threats Persist ...................................................................................18 10. Off to a Slow Start .............................................................................................19 11. A Sound Enough Plan, but….............................................................................20 12. …It Lacks the Urgency Required ......................................................................21 13. The Importance of Widening Our Approach: 3D/NC .......................................22 14. The Need for a National Dialogue.....................................................................23 15. Hitting the Nail on the Head ..............................................................................24 PART II: THE STATE OF THE CANADIAN FORCES I. The Canadian Army..............................................................................................25 II. The Canadian Navy.............................................................................................45 III. The Canadian Air Force.....................................................................................57 IV. Particular Armed Forces Capabilities................................................................71 1. Special Forces: JTF-2 ....................................................................................72 2. Disaster Assistance Response Team (DART) .................................................77 3. Strategic Lift ....................................................................................................80 4. Defence Intelligence ........................................................................................85 5. Information Technology ..................................................................................89 6. Maritime Security Operations Centres ............................................................90 PART III: STRATEGIC CHALLENGES 1. Bureaucratization .............................................................................................91 2. Political Influence ............................................................................................93 3. Recruitment as Structural Challenge ...............................................................95 4. Recruitment and Retention – The Organizational Challenge........................99 5. Quality of Life.............................................................................................. 106 6. The Ponderous Pace of Procurement........................................................... 109 7. Interference of Other Government Departments .......................................... 114 8. Communicating With Canadians.................................................................. 116 APPENDIX I Order of Reference................................................................................................ 119 APPENDIX II Who the Committee Heard From.......................................................................... 121 APPENDIX III Detailed Comparison with Other Countries.......................................................... 161 APPENDIX IV Historical Manning Levels.................................................................................... 169 APPENDIX V Current Canadian Forces Force Structure............................................................. 173 APPENDIX VI Current Manning Levels ....................................................................................... 189 APPENDIX VII Department of National Defence Organization Chart .......................................... 191 Canadian Forces Organization Chart.................................................................... 192 Future Organization Chart .................................................................................... 193 Roles and Responsibilities of Senior Officials within the Department of National Defence and the Canadian Forces......................................................................... 195 APPENDIX VIII Current Canadian Forces International Operations .............................................. 207 APPENDIX IX Truth to Power ...................................................................................................... 213 APPENDIX X Précis of Defence Policy Statement...................................................................... 219 APPENDIX XI Glossary................................................................................................................. 229 APPENDIX XII Biographies of Committee Members.................................................................... 243 APPENDIX XIII Biographies of the Committee Secretariat ............................................................ 255 PART I: Overview PART I: OVERVIEW PART I: Overview This is the first of three reports the Committee will publish during the Fall of 2005. This, the initial report, will attempt to measure the current capacity of Canada’s armed forces against their role: to protect Canadians and act in Canada’s national interests at home and abroad. A second report will put forward a list of proposed solutions to the vulnerabilities the Committee identifies here. A third and final report will take a look into the future and determine how Canadians can best shape their military to pursue our nation’s interests in the decades to come. In short: Report 1: The Holes in Canada’s Armed Forces Report 2: What It Will Take to Plug Those Holes Report 3: How Best to Shape Canada’s Military to Pursue the Interests of Our Children and Grandchildren Despite the Committee’s observations on the deficiencies that under-funding have