THE CANADIAN FORCES AND ARCTIC SOVEREIGNTY: DEBATING ROLES, INTERESTS, AND REQUIREMENTS, 1968-1974

The role of the Canadian Forces in asserting sovereignty is often tied to the old maxim that possession is 9/10th of the law.  Surveillance capability and “boots on the ground” are often tightly bound to Canada’s credibility in “defending its sovereignty.” As talk of a polar race intensifies and new concerns arise over the continental shelf, boundaries, pollution, melting ice and that tiny piece of rock called Hans Island, a more robust Canadian Forces presence is perceived as essential to “using or losing” the Canadian Arctic.  Where is the justification to validate this accepted wisdom?  How does a military presence play into demonstrating effective occupation?  A country must be able to control activities in its territory, but does a military presence really strengthen Canada’s sovereignty in the Arctic?

The Canadian Forces and Arctic Sovereignty: Debating Roles, Interests, and Requirements, 1968-1974 introduces the debate about the Canadian Forces’ role, mission, and contributions to Arctic sovereignty during these pivotal years.  Policy analysts grappled with many of the issues facing decision-makers today, and recently declassified documents (published here for the first time) yield insights into what Canadians should reasonably expect from their military as the country develops and implements an Arctic strategy in the twenty-first century.

P. Whitney Lackenbauer and Peter Kikkert (eds.), The Canadian Forces and Arctic Sovereignty: Debating Roles, Interests, and Requirements, 1968-1974 (Waterloo: Laurier Centre for Military Strategic and Disarmament Studies / WLU Press, 2010), x, 378 pp.

If, like me, the title of this work makes you wonder why Lackenbauer and Kikkert focus their attentions on Arctic sovereignty between the years 1968–74, their introduction leaves you in no doubt. While the issue of Canadian Arctic Sovereignty can be addressed across multiple time frames and regarding multiple issues (from the DEW Line, to the policies of Inuit resettlement, to nineteenth-century whaling), Lackenbauer and Kikkert outline clearly why we should pay attention to this relatively narrow period and the military’s role in particular. In short, they argue that it provides a window onto contemporary events, specifically regarding the policies and rhetoric of the Harper administration.

Philip Hatfield, British Journal of Canadian Studies

With so much vital material still classified and with so little publicly available, the authors have essentially provided students, and even established academics, with an invaluable source of material. For anyone working on an academic paper on Arctic sovereignty, and who would prefer to avoid a month-long trip to the National Archives in Ottawa, Lackenbauer and Kikkert have provided a viable and very valuable alternative.

Adam Lajeuenesse, Journal of Military and Strategic Studies

Arctic sovereignty issues are much in the news today as the looming specter of global warming enhances the likelihood that Arctic nations will clash with each other over national boundaries, newly accessible resources, and transportation routes. Like other nations discussing Arctic sovereignty rights, Canadian political leaders often bring their military forces into the picture, arguing that these forces should participate in asserting sovereign rights in the Arctic. But what specific role do Canadians expect the Canadian Forces to play in the Arctic? This volume … makes accessible to the ordinary reader and scholar a trove of recently declassified Canadian Government historical documents discussing the role that the Canadian Forces should play in asserting and maintaining Canadian Arctic sovereignty. These documents—created during the last great Canadian Arctic sovereignty debate of the late 1960s and early 1970s—provide important insights for those who wonder how the Canadian Government might respond to the same issues today.

Margaret Stock, American Review of Canadian Studies

Contents

Acronyms

Introduction

1. A New Focus for the Canadian Armed Forces

1-1. Arthur Kroeger, DND, “The Canadian Forces and the Maintenance of Canadian Sovereignty,” 6 August 1968

1-2. DEXAF, W.M. Weynerowski to C.J. Marshall, re: DND Paper: “The Canadian Forces and the Maintenance of Sovereignty,” 9 August 1968

1-3. A Paper on DND Policy in the Canadian North, 27 November 1968 (updated 14 March 1969)

1-4. E.B. Wang, “Role of Canadian Armed Forces in Defending Sovereignty,” 30 April 1969

2. The Manhattan, Discussions on Sovereignty and the Canadian Response

2-1. Canadian Embassy in Washington to External Affairs Headquarters, re: Northwest Passage 3 June 1969

2-2. Canadian Forces Headquarters (Canforcehed) to Maritime Command (Canmarcom), re: Manhattan Project Air Surveillance, 12 June 1969

2-3. Commodore P.F.X. Russell to Vice Chief of the Defence Staff, re: S.S. Manhattan Northwest Passage Project, 12 June 1969

2-4. House of Commons Debates, 15 July 1969

 2-5. Cabinet Conclusions, “Arctic Sovereignty and The Manhattan,” 11 September 1969

2-6. Memorandum to the Cabinet, “Canadian Sovereignty over the Waters of the Arctic Archipelago,” 15 September 1969

2-7. Cabinet Conclusions, “Canadian Sovereignty Over the Waters of the Arctic Archipelago,” 15 October 1969=

2-8. Colonel K.W. Macdonald, “Arctic Policy,” 18 November 1969 

2-9. Extract from Prime Minister’s statement in the Throne Speech, House of Commons Debates, 24 October 1969

2-10. DEXAF, Notes for Discussion: “What is Necessary to Maintain National Sovereignty? What is the Role of the Canadian Armed Forces?” 29 January 1970

2-11. House of Commons Debates, 16 February 1970

2-12. House of Commons Debates, 25 February 1970

2-13. House of Commons Debates, 19 March 1970

2-14. Cabinet Conclusions, “Legislation to Prevent Pollution of the Arctic Seas,” 5 February 1970

2-15. Director General Policy Control and Review, DND, Memorandum Exclusive to the Office of the Chief of the Defence Staff, 13 April 1970

2-16. House of Commons Debates, 16 April 1970

2-17. House of Commons Debates, 17 April 1970

2-18. House of Commons Debates, 10 June 1970

3. Preparing a Plan for the Canadian Forces

3-1. Colonel R.M. Withers for CDS to Director Continental Plans (DC Plans), DND, 16 April 1969, re: Canadian Forces Plan for the Arctic

3-2. Report of the Steering Committee on the Canadian North, “Canadian Forces Policies Objectives and Activities in the Canadian North,” 5 December 1969

3-3. Summary Record, CDS Advisory Committee Meeting 4/70, 18 February 1970

3-4. Defence Council, Minute of the 287th Meeting, and Briefing by BGen H. Tellier, Director General Plans, 23 March 1970

3-5. DND Press Release, Announcement by the Hon. Leo Cadieux, Minister of National Defence, 17 April 1970

3-6. Concept of Operations – Canadian Forces Northern Region, 14 July 1970

3-7. DEXAF, North American Defence and NATO Division (OMD) to Legal Division (FLE), re: Department of National Defence – Paper on Sovereignty, 24 March 1970

3-8. DEXAF, OMD to FLE, subject: Role of Canadian Armed Forces in the Protection of Sovereignty, 20 April 1970

3-9. Parliamentary Standing Committee on External Affairs and National Defence, Proceedings: Tenth Report to the House, 26 June 1970. Excerpts related to the Arctic.

3-10. DEXAF, Michael Shenstone, OMD, to PSI – Security and Intelligence Division, re: Joint Intelligence Committee 1970-71 Work Programme, the Canadian Arctic, 10 June 1970

3-11. Concept of Operations – Canadian Forces Northern Region, 14 July 1970

3-12. DEXAF, FLE to OMD, subject: DND Paper On “Canadian Defence Policy in the 1970’s,” 5 August 1970

3-13. DEXAF, FLE to OMD, subject: DND Paper on Role of Canadian Armed Forces in the Protection of Sovereignty, 5 August 1970

3-14. DEXAF, E.B. Wang to Mr. [R.P.] Cameron, re: Canadian Forces Activities in the North: Sovereignty, 25 November 1970

4. The Canadian Armed Forces, Government Departments and the Functional Requirements of Sovereignty

4-1. DEXAF, M. Shenstone to E.B. Wang, re: “Report of the Working Group to clarify The Role of the Canadian Forces in Relation to Sovereignty,” 23 September 1970

4-2. “Role of the Canadian Armed Forces in Relation to Sovereignty: Report on Consultations with Other Government Departments and Agencies,” 26 January 1971 (Revised 11 May 1971)

4-3. Donald S. Macdonald, Minister of National Defence, to Hon. Mitchell Sharp, Secretary of State for External Affairs, 2 March 1971

4-4. Interdepartmental Committee on the Law of the Sea, Report of the Meeting of the Working Group on the Enforcement of Fisheries, Anti-Pollution, and Territorial Seas Legislation, 6 April 1971

4-5. House of Commons Debates, 21 May 1971

5. The White Paper on Defence

5-1. DEXAF, Michael Shenstone, OMD to FLE, 28 January 1971

5-2. DEXAF, L.H.J. Legault (FLO) to J.A. Beesley (FLP), re: Draft White Paper on Defence Policy – Sovereignty Aspects, 2 February 1971

5-3. DEXAF, J.A. Beesley, Director General, Legal and Consular Affairs, to Director-General, Office of Politico-Military Affairs, 5 February 1971

5-4. DEXAF, Draft Paper on Defence Policy – Comments on draft dated January 18, 1971, 11 February 1971

5-5. DEXAF, J.A Beesley, Director General, Bureau of Legal and Consular Affairs (FLP), to Defence Foreign Relations [DFP], re: White Paper on Defence Policy, 8 April 1971

5-6. Privy Council Office, Record of Cabinet Decision, meetings of 8, 15, 22 July 1971

5-7. Donald S. Macdonald, Defence in the 70s, August 1971. Excerpts.

6. Deploying the Forces

6-1. BGen R.M. Withers, “Northern Region Concept for Force Development,” 15 June 1971

6-2. Department of National Defence. Submission for Inclusion in the Advisory Committee on Northern Development Annual Report, “Government Activities in the North – FY 1971/72.” Excerpts

6-3. Department of National Defence. Defence 1971. Excerpts

6-4. House of Commons Debates, 12 June 1972

6-5. Department of National Defence. Submission for Inclusion in the Advisory Committee on Northern Development Annual Report, “Government Activities in the North – FY 1972/73.” Excerpts

6-6. Department of National Defence. Defence 1972. Excerpts

6-7. House of Commons Debates, 15 October 1973

6-8. Department of National Defence. Submission for Inclusion in the Advisory Committee on Northern Development Annual Report, “Government Activities in the North – FY 1973/74.” Excerpts

6-9. Department of National Defence. Defence 1973. Excerpts

6-10. House of Commons Debates, 24 October 1974

6-11. House of Commons Debates, 15 November 1974

6-12. House of Commons Debates, 19 November 1974

6-13. House of Commons Debates, 20 November 1974

6-14. House of Commons Debates, 25 November 1974

6-15. Department of National Defence, Defence 1974. Excerpts

6-16. House of Commons Debates, 5 June 1975

Afterword: What can and cannot be said about Canadian Arctic Security  by Rob Huebert