Brister The focus of this work is the evolution of the Canada-United States security relationship in the post-9/11 era. The conclusions that result from the analysis of this period are that the relationship has remained fundamentally the THE SAME same in some ways yet has changed radically in others. Both the consistencies and the changes are influenced by the issue of Canadian sov- ereignty as a concern that permeates every aspect of the relationship, and the ongoing maintenance of the “Kingston Dispensation” as a central tenet of the relationship as a whole. YE FFEREN The evolution of the relationship is traced T through its history as a basis for the sub- DI sequent detailed examination of post-9/11 events and the influences that they had upon the relationship. The history and contemporary evolutions in the relationship are then used to assess and analyze possible futures for the re- lationship using the bilateral execution of the security plan for the Vancouver 2010 Winter T Olympics as a case study. THE SAME YE T DIFFERENT Continuity and Change in the Canada-United States Post-9/11 Security Relationship by Bernard James Brister THE SAME YET DIFFERENT THE SAME YET DIFFERENT Continuity and Change in the Canada-United States Post-9/11 Security Relationship by Bernard James Brister Copyright © 2012 Her Majesty the Queen, in Right of Canada, as represented by the Minister of National Defence. Canadian Defence Academy Press PO Box 17000 Stn Forces Kingston, Ontario K7K 7B4 Produced for the Canadian Defence Academy Press by 17 Wing Winnipeg Publishing Office. WPO 30759 Library and Archives Canada Cataloguing in Publication Brister, Bernard James, 1955- The same yet different : continuity and change in the Canada- United States post-9/11 security relationship / by Bernard James Brister. Produced for the Canadian Defence Academy Press by 17 Wing Winnipeg Pub- lishing Office. Includes bibliographical references and index. Available also on the Internet. Issued by: Canadian Defence Academy. ISBN 978-1-100-19743-2 (bound).--ISBN 978-1-100-19744-9 (pbk.) Cat. no.: D2-292/1-2012E (bound) Cat. no.: D2-292/2-2012E (pbk.) 1. Canada--Foreign relations--United States. 2. United States--Foreign relations- -Canada. 3. Canada--Military relations--United States. 4. United States--Military relations--Canada. 5. National security--Canada. 6. National security--United States. 7. Canada--Military policy. 8. United States--Military policy. 9. Canada- -Relations--United States. 10. United States--Relations--Canada. I. Canadian Defence Academy II. Canada. Canadian Armed Forces. Wing, 17 III. Title. IV. Title: Continuity and change in the Canada-United States post-9/11 security re- lationship. FC249 B74 2012 327.71073 C2012-980036-8 Printed in Canada. 1 3 5 7 9 10 8 6 4 2 This work is dedicated to my parents, Marion and Jim, who instilled in me a quest for excellence and a refusal to accept personal limits. ACKNOWLEDGEMENTS I am deeply indebted to a number of professionals who gave selflessly of their time and intellect to nudge, push, and sometimes carry me until I finally crossed the finish line for this book. Among those many individuals are Dr. Ronald G. Haycock, former Dean of Arts who inspired me, Dr. Paul Taillon, Adjunct Professor who motivated me, Dr. Joel J. Sokolsky, Principal of the Royal Military College who guided me, and Dr. David Haglund, Professor at Queen’s University who challenged my every thought and conclusion. I would also like to thank Colonel Bernd Horn, Editor-in-Chief of the Canadian Defence Academy Press, and the Wing Publishing Office in Winnipeg for their support in the publication of this book. Thank you all. TABle OF CONTENTS FOREWORD ............................................................................................i CHAPTER 1: INTRODUCTION ..................................................................................1 A New Type of War..............................................................................1 A Relationship in Hibernation .............................................................2 Running Both Hot and Cold ...............................................................6 Into the Sunshine? ..............................................................................10 The Central Issue ................................................................................12 CHAPTER 2: SOME RELATIONSHIP FUNDAMENTALS ..................................19 A Security Community ......................................................................19 Sovereignty .........................................................................................22 Anti-American or Legitimate Criticism? ...........................................22 Working Together: Bilateral or Bi-National? .....................................30 CHAPTER 3: THE COMMON THREADS ..............................................................43 Introduction ........................................................................................43 Establishing the Common Threads ....................................................43 The Threads Through History .............................................................50 Conclusion .........................................................................................62 CHAPTER 4: CONTEMPORARY THREADS AND FUNDAMENTAL CHANGES ............................................................75 The Policy of Accommodation – Hits and Misses ..............................75 The Balancing Act - Successes, Failures, and the Abandonment of Quiet Diplomacy ........80 Conclusion .........................................................................................90 CHAPTER 5: THE SECURITY RELATIONSHIP ...................................................97 Introduction ........................................................................................97 The Threat ........................................................................................100 Pre-9/11 Security Infrastructure ......................................................105 Post-9/11 – The Home Game ..........................................................108 Post-9/11 – The Away Game ............................................................122 The Mexican Connection .................................................................126 Conclusion .......................................................................................129 TABLE OF CONTENTS CHAPTER 6: THE DEFENCE RELATIONSHIP ..................................................141 Introduction ......................................................................................141 The Strategic Level ...........................................................................142 The Operational Level ......................................................................146 Conclusion .......................................................................................161 CHAPTER 7: THE STRATEGIC FUTURE ............................................................169 Introduction ......................................................................................169 The 2010 Olympic Games ................................................................169 An Assessment .................................................................................178 Conclusion .......................................................................................180 CHAPTER 8: CONCLUSION ...................................................................................185 BIBLIOGRAPHY ................................................................................191 APPENDIX ..........................................................................................217 AUTHOR Biography ..................................................................219 LIST OF ABBREVIATIONS AND ACRONYMS ..........................221 INDEX ..................................................................................................223 FOREWORD The Canadian Defence Academy Press, in its continued attempt to increase the amount of relevant, contemporary discussion on the new security environment, is pleased to introduce The Same Yet Different: Continuity and Change in the Canada-United States Post-9/11 Security Relationship by Bernard James Brister. The focus of this work is to provide discussion on the evolution of this relationship through an exhaustive analysis of events and factors. This analysis indicates that although the relationship has remained fundamentally the same, it is also in some ways significantly different from its historical nature and form The Canada/United States relationship has remained the same in that it has been managed, at least on the Canadian side, through the use of three common policy threads throughout its history. These threads are: a policy of accommodation that involves the use of the twin strategies of “defence against help” and “quiet diplomacy;” a continuing reliance upon a rules-based institutional relationship for the management of day-to-day issues as well the resolution of differences and conflicts; and an ongoing need for Canadian governments to walk a political tightrope involving the maintenance of a precarious balance between the satisfaction of Canadian interests in the relationship and the maintenance of domestic support for it. These policies have had a determining influence on the nature and quality of the relationship as much by their avoidance as by their employment. That is to say that the relationship changes