MANAGING TURMOIL The Need to Upgrade Canadian Foreign Aid and Military Strength to Deal with Massive Change An Interim Report of the Standing Senate Committee on National Security and Defence October 2006 MEMBERSHIP 39th Parliament – 1st Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable Michael A. Meighen, Deputy Chair and The Honourable Norman K. Atkins The Honourable Tommy Banks The Honourable Larry Campbell The Honourable Joseph A. Day The Honourable Wilfred P. Moore The Honourable Marie-P (Charette) Poulin (*)The Honourable Gerry St. Germain (Member since September 12, 2006) *The Honourable Marjory Lebreton, P.C., (or the Honourable Gerald Comeau) *The Honourable Daniel Hays (or the Honourable Joan Fraser) *Ex Officio Members Other Senators who participated during the 39th Parliament – 1st Session: The Honourable George Baker The Honourable Janis G. Johnson The Honourable Pierre Claude Nolin The Honourable Hugh Segal (*)The Honourable David Tkachuk (Member from June 13 to September 12, 2006) The Honourable Rod A. A. Zimmer MEMBERSHIP 38th Parliament – 1st Session STANDING COMMITTEE ON NATIONAL SECURITY AND DEFENCE The Honourable Colin Kenny, Chair The Honourable J. Michael Forrestall, Deputy 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 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, Deputy 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, Deputy 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, Deputy 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 Introduction..............................................................................................................1 PART I ......................................................................................................................5 The Role of the Canadian Military in Adapting to World Change ...........................5 Inadequate Military Strength: Inadequate Foreign Aid.........................................5 A Turning Point for the Canadian Forces..............................................................8 The Consequences of Underfunding ...................................................................10 The Guessing Game: What are the Threats at Hand?..........................................11 Canada Must Respond to Changing Needs at Home...........................................12 Canada Must Respond to a Faster Spinning World.............................................16 Butter Beats Bullets: The Need to Expand Canada’s Foreign Aid Budget.........25 Riding the Elephant: Taking Advantage of Our Relationship with the U.S.A. ..34 Conclusion to Part I .............................................................................................45 PART II...................................................................................................................47 Canadian Security and Defence: The Brain, the Body ............................................47 Smarter Defence Purchasing................................................................................49 Pork Barreling Trumps National Defence ...........................................................51 When the Goose Turns Out To Be Pork, the Military Loses ..............................52 The Need for Public Engagement on Issues of National Security ......................57 Regular Defence Policy Reviews ........................................................................62 Obligation of the Government to Canadians .......................................................65 Obligation – Between the Federal Government and Its Armed Forces...............66 Deploying Canadian Forces to International Danger Zones – The Importance of a National Consensus...........................................................................................67 Defence Capability...............................................................................................69 Canada’s Defence Capabilities Plan: The Defining Moment .........................69 Weapons In Space............................................................................................72 Canada’s Involvement in the Use of Space Capabilities.................................74 Canadian Forces Joint Space Project (JSP) .....................................................75 Missile warning mission and sharing satellite Intel ........................................75 Global Surveillance .........................................................................................77 North American Surveillance and Defence.....................................................78 Creating Real Reserves....................................................................................83 Joint Task Force 2................................................................................................85 The Canadian Arctic ............................................................................................88 WANTED: A Coast Guard That Actually Guards Coasts ..................................95 Canadian Foreign Intelligence Capacity........................................................... 100 APPENDIX I ....................................................................................................... 105 Order of Reference................................................................................................ 105 APPENDIX II...................................................................................................... 107 Index of Recommendations .................................................................................. 107 APPENDIX III .................................................................................................... 113 Index of Recommendations from “The Government’s No. 1 Job” ...................... 113 APPENDIX IV..................................................................................................... 121 An Overview of the Committee’s Reports ........................................................... 121 APPENDIX V ...................................................................................................... 127 Detailed Comparison with Other Countries.......................................................... 127 APPENDIX VI..................................................................................................... 133 Committee Rationale for a Budget of $25-35 billion ........................................... 133 APPENDIX VII................................................................................................... 149 Government of Canada Description of 3-D Approach ......................................... 149 APPENDIX VIII ................................................................................................. 153 Maps...................................................................................................................... 153 APPENDIX IX..................................................................................................... 155 Canadian Forces Organization – 2005.................................................................. 155 APPENDIX X .....................................................................................................