UNIVERSITY OF CALGARY Human Secwity and Canadian Foreign Policy: Canada's intemationaI Security Dilemma in the New Milleniun BY Mollie Royds A THESIS SUBMiTTED TO THE FACüLTY OF GRADUATE STUDIES IN PARTIPJ, FULFiLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS DEPARTMENT OF POLITICAL SCIENCE CALGARY,ALBERTA NOVEMBER, 2000 O Mollie Royds 2000 Natianal Lii Bibiiothéque nationaie ofCanada du Canada uisitions and Acquisitions et 9Bib iographic Services services ôiiiiographiques The author has granted a non- L'auteur a accordé une licence non exclusive licence aiiowing the excIusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distriiute or seil reproduire, prêter, distribuer ou copies of this thesis in microfom, vendre des copies de cette thèse sous paper or electronic formats. h forme de microfiche/film, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substautieIs may be printed or otherwise de ceiie-ci ne doivent êke imprimés reproduced without the author's ou autrement reproduits sans son permission. antorisation. ABSTRACT Human security, or safety of people hmviolent threats, has been designated by Lloyd Axworthy, Minister of Foriegn Affairs, as a Canadian secirrity prionty. This prioritization of Canadian foreign policy represents a transition in Canadian security discourse. This thesis argues that the human security agenda is reflective of both international and national security debates about how to define security policy in the complexity of the post-Cold War environment. It outlines how the agenda is pursued and traces its effects on the Canada-US rdationship by evaluating the international campaign to ban landmines, the campaign to create the International Criminal Court and the campaign to create an optional protocol on child soIdiers. Finally, this thesis assesses the implications of the agenda for Canadian foreign policy, Canada-US relations, and international diplomacy. It concludes that within Iimits the hurnan security agenda is an important way of considering Canadian foreign policy. 1am indebted to many peop!: for theu support during the writing of my thesis. h partïcular, thank you to Dr Donaid Barry for his patience and help. Thank you to EUa Wensel for ail of her assistance and th& you to faculty members who were very helpful during the writing process. 1would also like to th& Kari Jobin for allowing me to speak endlessly about human security. Also, 1 am very gratefid to my Morn and Ken (my printers!), and to rny Dad, Nancy, Tim and other members of rny fimily for their patience and moral support. Finally, thank you to Rob, without whom 1 would never have finished this project. TABLE OF CONTENTS .. Approvai page...................................................................................................... ...u Abstract................................................................................................................ 111 Acknowledgements.............................................................................................. iv Table of Contents.................................................................................................. v.. List of Acronyrns................................................................................................. WI Chapter 1: The Changing international Security Environment .............................1 Introduction................................................................................................ 1 Traditional versus Broadened Conceptions of Security............................. 3 The Development and Policy Roots of Hurnan Security....................... 10 Values vs . interests in international Security........................................... 13 Canada and the Broadened Secinity Agenda ...........................................16 Chapter II: The Etymology of Human Security in Canadian Foreign Policy....... 18 Introduction ............................................................................................... 18 Broadened Conceptions of Cauadian Security......................................... 19 The 1994 Foreign Policy Review.............................................................. 26 Canada's Human Security Agenda: Ouellet to Axworthy .........................31 Axworthy's Humm Security Agenda. ....................................................... 33 Canada's Tools of Human Security........................................................... 38 Conclusion................................................................................................. 42 Chapter III: Human Security Applied .................................................................... 44 1) The International Campaign to Ban Anti-Personnel Landmines........... 45 Introduction................................................................................. 45 Bac kground: The International Setting......................................... .46 The Canadian Campaign: Axworthy to the Rescue....................... 49 The United States and the Ottawa Process ....................................53 2) The Creation of the international Criminal Court................................. 57 introduction .................................................................................. -57 Background: The International Setting......................................... 58 Canada and the Creation of the Rome Stature............................... 60 American Resistance to the ICC .................................................... 64 Conclusion...................................................................................... 66 3) The Optional Protocot on Child Soldiers............................................... 68 Introduction..................................................................................... 68 Background: The hternahonal Setting........................................... 70 The US and the Optional Protocol.................................................. 74 Assesment: A "New MultilateraIism"?......................................... 76 Chapter IV: Summary and Observations................................................................ 81 introduction................................................................................................. 81 Canada and the Human Security Agenda .................................................. 82 v Human Security and Canada-US ReIations .............................................. 91 Htunan Security and international Diplomacy ......................................... 96 ConcIusio n. ............................................................................................... 99 List of Acronyms AP Mines Anti-Pe?So~elLandmines CBC Canadian Broadcasting Corporation CCW Convention on Certain Conventional Weapons CD UN Conferace on Dismament CICC Coalition for an International Criminal Court CRC Convention on the Rights of the Child DFAIT Department of Foreign Mairs and International T'rade DND Department of National Defence G-8 Group of Eight HRW Human Rights Watch ICBL international Campaign to Ban Landmines ICC International Criminal Court ICRC International Committee of Red Cross EC International Law Commission (UN) NATO North Atlantic Treaty Organization NGO Non-Governmental ûrganization NORAD North American Aerospace Defence Agreement OAS Organization of American States PrepCom Prepatory Comrnittee UN United Nations UNDP United Nations Development Program Chapter 1: The Changing Internationai Secnrity Environment: Broadeoing Security in the Post-Cotd War Era Introduction: In the past decade states have been chalIenged by the changing nature of the international system in which the compIexities of gkobalization and transnational issues such as environmental catastrophes, intemational terrorism, and the flow of refugees are no longer overshadowed by Cold War realities. [n order to meet these challenges Canadian security policy has gone beyond traditional state security concems to focus on the security of the individual, or human securiiy. Hurnan security is a component of Canadian security policy, alongside other security concerns such as territorial integrity and national sovereignty. It is defined as "safety for people fiom both violent and non- violent threats."' The focus on people and not the state as the object of security (Le. that which is being secured) has caused extensive debate both within Canada and the international community. Some applaud this focus on people since issues that would not traditionally be prominent are now finding their way ont0 the international agenda However, Foreign Minister Axworthy's personal cornmitment to the human security agenda and the subsequent priotitization of issues in the Department of Foreign Affairs are criticizzd as potentiaily being counter to Canadian interests and the cause of the over- stretch of Canada's limited resources. The agenda also occasionally contradicts the 1 Department of Foreign Affairs and International Trade, "Human Security: Safety For People in A Changing WorId," (Ottawa: Gavernment of Canada, A@ 1999), p. 5. stated interests of the United States, much to the concern of botb the academic and policy community in canadaZ This thesis wilI outline the transition in the focus of Canadian security policy and assess the human