cgai.ca 2018 • VOLUME XVI • ISSUE II A publication of the Canadian Global Affairs Institute IN THIS ISSUE: Modernizing the Military Personnel System: Lessons from the Force of the Future by LINDSAY RODMAN 21 Strong, Secure, Engaged So Far by DAVID PERRY 43 The Train Long Departed: Canada and Ballistic Missile Defence by DAVID HIGGINS 73 Royal Canadian Air Force Image Gallery 5TH ANNUAL DEFENCE PROCUREMENT CONFERENCE OCTOBER 25, 2018 | CHATEAU LAURIER OTTAWA, ONTARIO cgai.ca Published by the Canadian Global Affairs Institute Contributing Fellows: Howard Anglin Monica Gattinger Michael Nesbitt Ken Barker Sarah Goldfeder Kevin O’Shea David Bercuson Andrew Griffith David Perry Kevin Birn Marius Grinius Vanja Petricevic Jean-Christophe Boucher Robert Hage George Petrolekas Brett Boudreau David Higgins Joël Plouffe Brian Bow Roger Hilton Andrew Rasiulis Andrew Caddell Rolf Holmboe Tom Ring David Carment Andrew House Colin Robertson Anthony Cary Rob Huebert Lindsay Rodman Andrea Charron Peter Jones Stephen Saideman Michael Cleland Thomas Juneau Hugh Segal Howard Coombs Amy Karam Elinor Sloan Lindsay Coombs Tom Keenan Sarah Smith Barry Cooper Brian Kingston Gary Soroka Daryl Copeland Adam Lajeunesse Hugh Stephens Jocelyn Coulon Eugene Lang Alan Stephenson Mike Day Gavin Liddy Kelly Sundberg Ferry de Kerckhove Julian Lindley-French Denis Thompson Douglas Dempster Matthew Lombardi James Trottier Jim Donihee Randolph Mank Heidi Tworek Peter Donolo Barbara Martin Stéfanie von Hlatky Ross Fetterly Kyle Matthews Charity Weeden Matthew Fisher Dennis McConaghy John Weekes Patricia Fortier Eric Miller Frédérick Gagnon Robert Muggah Prepared for the Canadian Global Affairs Institute 1800, 421 – 7th Avenue S.W. Calgary, Alberta T2P 4K9 www.cgai.ca ©2018 Canadian Global Affairs Institute| ISBN: 978-1-77397-015-8 Volume XVI • Issue II The Global Exchange | 3 I N S I D E 2018 | VOLUME XVI • ISSUE Il 6 39 Introduction: A Defence Policy for Use It or Lose It: SSE and DND’s Canada’s Future Chronic Underspending Problem by ADAM FROST by EUGENE LANG 7 43 The Context of Canadian Defence Strong, Secure, Engaged So Far Policy by DAVID PERRY by DAVID J. BERCUSON 51 11 People, Partisanship and Political Military Training and Co-operation: Games: The Defence File Diplomatic Instrument and Combat by ALAN STEPHENSON Force Multiplier by ANDREW RASIULIS 55 A Basic Primer on Naval 15 Shipbuilding The Importance of People in by IAN MACK Defence by ROSS FETTERLY 65 21 Unarmed Warships: What are the AOPS for? Modernizing the Military Personnel by ADAM LAJEUNESSE System: Lessons from the Force of the Future by LINDSAY RODMAN 68 Strong, Secure, Engaged in a 29 Threatened Space Domain Operationalizing Strong, Secure, by CHARITY WEEDEN Engaged: The Child Soldier Dimension 73 by LINDSAY COOMBS The Train Long Departed: Canada and Ballistic Missile Defence 35 by DAVID HIGGINS The Past, Present and Future of Academic Engagement with the Canadian Armed Forces by STEPHEN M. SAIDEMAN 4 | The Global Exchange 2018 CGAI Advisory Council Rona Ambrose Hon. Rona Ambrose is a former leader of Canada’s Official Opposition in the House of Commons, former leader of the Conservative Party of Canada and currently, a Global Fellow at the Woodrow Wilson Center’s Canada Institute in Washington D.C. Ian Brodie Former Chief of Staff to Prime Minister Stephen Harper and currently, an Associate Professor of Law & Justice at the University of Calgary. Jean Charest Hon. Jean Charest is a former Premier of Quebec and Federal Cabinet Minister and currently, a Partner at McCarthy Tétrault LLP. Laura Dawson Director of the Canada Institute at the Woodrow Wilson Center in Washington D.C. Bruce Donaldson Vice Admiral (Ret’d) Donaldson, is a 36 year veteran of the Royal Canadian Navy, a member of the Royal Roads University Board of Governors and chairs the Salvation Army Advisory Board in Greater Victoria. Richard Fadden National Security Advisor to the Prime Minister from 2015—2016, and from 2009—2013, Director of the Canadian Security Intelligence Services. Dan Hays Hon. Dan Hays is a former Senator and is currently a Senior Partner with Norton Rose Fulbright. Janice MacKinnon Executive Fellow at the University of Calgary’s School of Public Policy and a Professor of fiscal policy at the School of Public Health at the University of Saskatchewan. John Manley Hon. John Manley is President and CEO of the Business Council of Canada and former Deputy Prime Minister of Canada. Jack Mintz President’s Fellow of the School of Public Policy at the University of Calgary, and is Chair and Vice-President of the Social Sciences and Humanities Research Council of Canada. Kathleen Monk Former Director of Strategic Communications for former NDP leader Jack Layton and currently, a Principal with Earnscliffe Strategy Group. Marie-Lucie Morin National Security Advisor to the Prime Minister from 2008 to 2009 before becoming an Executive Director at the World Bank. Bob Rae Hon. Bob Rae, former Premier of Ontario and was the interim leader of the Liberal Party of Canada. Partner at OKT—Olthuis Kleer Townshend LLP. Jeffery Simpson Former Globe and Mail national affairs columnist, Senior Fellow at the University of Ottawa Graduate School of Public and International Affairs and an Officer of the Order of Canada. Chris Waddell Associate Professor and Director of Carleton University’s School of Journalism and Communications. Rob Wright Canada’s Ambassador to China from 2005—2009 and Ambassador to Japan from 2001—2005. Volume XVI • Issue II The Global Exchange | 5 Introduction: A Defence Policy for Canada’s Future by ADAM FROST “Canada is a fireproof house, far from successful, the government of the day must inflammable materials.” adopt and implement pragmatic defence policy, and provide the CAF with the hese were the naïve words of Canadian appropriate resources to meet expectations. Senator Raoul Dandurand during his 1924 address to the League of Nations. This issue contends with the questions of T how best Canada can enable the CAF to Ironically, his speech took place between the two most devastating global conflicts in succeed in its assigned tasks, and outlines human history, and Canada was an active what some of those tasks ought to be to belligerent in both. However misguided defend against contemporary threats in our Dandurand’s statement may have been, its era of increasing uncertainty. sentiment has been woven into Canadian Policy-makers must consider the evolving psyche by virtue of geographic reality. threat environment in order to enable the Canadians enjoy the privilege of a CAF to effectively defend Canada’s interests. tremendously productive relationship with the The proliferation of long-range ballistic United States, which remains the global missiles and offensive cyber capabilities hegemon. With geographical ties, Canadians poses significant threats to Canada and its and Americans also share a common history closest allies. Climate change is also and broad cultural kinship. The strength of exposing Canada to new challenges in our this relationship has afforded Canada a Arctic territories, creating a growing need for degree of security that would otherwise be surveillance and governance in the high unattainable, which affects Canadians’ Arctic to protect Canadian sovereignty. perception of national security. These are only a few of the emerging threats addressed in this issue. It is an exceptional privilege of circumstance that defence is not required to be frequently in For the CAF to be capable of adapting to the the forefront of public dialogue. However, multiplex of eventualities that it must be while it is unlikely Canada will be confronted prepared to confront, it requires sufficient with an existential threat in the foreseeable personnel and materiel. The mix of skills future, it would be foolhardy for Canada to required in today’s armed forces is very become complacent about preserving the different than in bygone eras. Personnel must means to defend its national interests when also be properly equipped if they are to be necessary. effective in their roles. Therefore, recruiting and retaining people with expertise in diverse The 21st century international arena is rife with trades and the efficient and timely instability and change. These conditions procurement of vital equipment are create uncertainty. Canada’s armed forces are paramount if the CAF is to be a capable, charged with the task of safeguarding and adaptable and effective force. advancing Canada’s national interests when called upon, often in the most challenging of ADAM FROST is the Associate Research and Development circumstances and environments. In order for Coordinator of the Canadian Global Affairs Institute. the Canadian Armed Forces (CAF) to be 6 | The Global Exchange 2018 Canada responded to requests from major The Context of allies – especially the United States – to deploy troops as part of a major peace Canadian Defence enforcement operation. In both Korea and Afghanistan, Canadians generally were Policy strongly in favour of the missions at the by DAVID J. BERCUSON start of operations, but public support faded as months and even years went by without indication that these missions had a he Canadian Armed Forces’ first clear and achievable objective. The mission is the defence of Canada government, responding to popular T and its second mission is to do what opinion, did not pull Canadians out of it can to defend North America. The CAF’s Korea until after the armistice of July 1953, third traditional mission is to be deployed but refused any sort of police role beyond according to government dictates to out-of- 18 months after the ceasefire. In Canada missions to aid allies – to Afghanistan, the government pulled participate in NATO missions or United Canadian troops out of active operations in Nations operations, or to engage in the summer of 2011 and assumed a coalitions in missions such as the training mission for a year before leaving Multinational Force and Observers (MFO) in Afghanistan altogether, even though the the Sinai Peninsula.