Canada Among Nations, 2005: Splitting Images 9780773573314

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Canada Among Nations 2005

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C nada Among Nations 2*005 Split Images EDITED BY A N D R E W F. C O O P E R DANE

ROWLANDS

Published for the Norman Paterson School of International Affairs, Carleton University, in cooperation with The Centre for International Governance Innovation by McGill-Queen's University Press Montreal &c Kingston • London • Ithaca

McGill-Queen's University Press 2005 ISBN 0-7735-3026-6 (cloth) ISBN 0-7735-3027-4 (paper) Legal deposit fourth quarter 2005 Bibliotheque nationale du Quebec Printed in Canada on acid-free paper that is 100% ancient forest free (100% post-consumer recycled), processed chlorine free This book has been published with financial support from the Norman Paterson School of International Affairs, Carleton University, and The Centre for International Governance Innovation. McGill-Queen's University Press knowledges the support of the Canada Council for the Arts for our publishing program. We also acknowledge the financial support of the Government of Canada through the Book Publishing Industry Development Program (BPIDP) for our publishing activities.

Library and Archives Canada has cataloguED THIS PUBLICTTION AS FOLLOWS: Canada among nations. Annual. 1984Produced by the Norman Paterson School of International Affairs at Carleton University. Publisher varies. Each vol. also has a distinctive title. Includes bibliographical references. ISSN 0832-0683

ISBN 0-7735-3026-6 (cloth); ISBN 0-7735-3027-4 (paperback) (2005 edition) i. Canada—Foreign relations—1945- —Periodicals. 2. Canada— Politics and government—1984- —Periodicals. I. Norman Paterson School of International Affairs. FC242.C345

327-71

REV

FIO34.2.C36 Typeset in 10/12 Sabon by True to TYPE

c86-03i285-2

Contents

Foreword vii Acknowledgments Acronyms

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i A State of Disconnects - The Fracturing of Canadian Foreign Policy Andrew P. Cooper and Dane Rowlan PART ONE: THE WAY FORWARD 2, Reality and Canadian Foreign Policy Jennifer M. Welsh 2.3 3 The Perennial Challenge: Managing Canada-us Relations Derek H. Burney 47 4 A New Continental Consensus? The Bush Doctrine, the War on Terrorism and the Future of us-Canada Security Relations Joseph T. Jockel and Joel ]. Sokolsky 63 5 Looking Enviously Down Under? The Australian Experience and Canadian Foreign Policy Kim Richard Nossal 79 6 Plurilateral Multilateralism: Canada's Emerging International Policy? W. Andy Knight 93

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Contents

7 "Friends at a Distance": Reframing Canada's Strategic Priorities after the Bush Revolution in Foreign Policy Daniel Drache 115 PART T W O : G I A N T S B E Y O N D T H E C O N T I N E N T

8 A BRI Strategy for Canada? John Whalley and Agata Antkiewicz

137

9 Canada and Global China: Engagement Recalibrated Paul Evans 150 10 Re-engaging India: Upgrading the Canada-India Bazaar Relationship Ramesh C. Kumar and Nigmendra Narain 169 11 Canada-Russia Relations: A Strategic Partnership? Bogdan Buduru and Dragos, Popa 185 iz Canada and Brazil: Confrontation or Cooperation? Annette Hester 203 PART THREE: THE OTTAWA

GAME

13 Trade, Commerce, or Diplomacy? Canada and the New Politics of International Trade Louis Belanger 225 14 Split Images and Serial Affairs: Reviews, Reorganizations, and Parliamentary Roles Gerald Schmitz and James Lee 24 5 15 New Bottles for Old Wine: Implementing the International Policy Statement Thomas S. Axworthy 2.71 Contributors Index

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Foreword

Split Images is the twenty-first consecutive annual instalment of the Canada Among Nations series. The series was founded by two professors in the Norman Paterson School of International Affairs, Carleton University: Brian Tomlin and Maureen Molot. The first volume in the series, which was subtitled 1984: A Time of Transition brought together some of Canada's leading international affairs experts to review international events and Canadian foreign policy in the calendar year. From the outset, however, the volume was never intended to be merely a review of recent policy initiatives. Nor was it the editors' intention to offer a comprehensive package of priorities and policies for Canada. Rather, the hope was "to provide a better understanding of important developments in Canadian policies and the environments that shape them and, in the process, to promote a more informed public debate about appropriate policies and priorities for Canada."1 This volume remains true to the spirit of the original enterprise. It contains a wide ranging series of essays written by some of Canada's leading scholars, journalists, and practitioners on the multiple and critical challenges that Canadian foreign policy decision-makers confront in an increasingly turbulent world. The volume explores key trends in the international environment, including the rise of new powers in the global economy and the opportunities and challenges they pose to Canada's trade, investment, and cultural relations abroad. It examines some of the key aspects of Canadian foreign policy including the recent International Policy Review process and the mechanics of foreign policy implementation. And, like many of the previous volumes in the

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Foreword

series, it pays close attention to Canada's evolving and complex relationship with its neighbour to the south. Unlike previous volumes in the series, which were edited by the School's faculty, this year's volume is the result of a new, collaborative partnership between the School and the Centre for International Governance and Innovation (CIGI). I am most grateful for the generous support that CIGI'S executive director, John English, has given to this new partnership and the personal enthusiasm and extraordinary good will he has brought to our new, joint venture. I also want to thank Professor Andrew F. Cooper of CIGI and the University of Waterloo who kindly agreed to join the editorial team and work with my colleague Professor Dane Rowlands in producing this year's volume. Both of them have brought their formidable talents and industry to the task. The end product is a real credit to them both. Over the years, the Canada Among Nations series has developed a loyal and dedicated readership among the growing number of Canadians who are interested in international affairs and Canada's role in the world. Our new partnership with CIGI in producing the series ensures that our readers will not be disappointed. Fen Osier Hampson Director The Norman Paterson School of International Affairs Carleton University Ottawa, Canada NOTES i Editors' Introduction, Canada Among Nations, 1984: A Time of Transition (Toronto: James Lorimer and Company, 1985).

Acknowledgments

Canada Among Nations 2005, Split Images has emerged through a perfect combination of circumstances and collaboration. As co-editors we endeavoured to put together a volume that reflected a diversity of views about Canadian Foreign Policy and that reached our audience in a punctual manner. The individual chapters capture the scope and immediacy of the contentious debate about Canadian Foreign Policy that has cascaded in and without the country throughout what has been termed the post-post Cold War years. Fortuitously, the Martin government itself underscored the immediacy and salience of the debate by the lengthy buildup and eventual release of its much-anticipated International Policy Statement (IPS) in April 2.005. Yet amidst the sharp differences in tone and prognosis the work of our contributors are bound together by a commitment to, and a sense of enthusiasm for, the ongoing work to define a realistic and inspired Canadian Foreign Policy. As a partnership between Carleton University's Norman Paterson School of International Affairs (NPSIA) and The Centre for International Governance Innovation (CIGI) we profited from the resources each of these institutions possessed. NPSIA has built up a huge pool of experience and expertise in producing the Canada Among Nations series. NPSIA Director Fen O. Hampson and Janet Doherty provided support and guidance throughout the endeavour. We would like to thank Katherine Graham, dean of the Faculty of Public Affairs and Management at Carleton University, for continuing to support the Canada Among Nations series. CIGI showcased its facilities by hosting

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Acknowledgments

the Author's Workshop in the spring of 2005. As with all the activities of CIGI this event could not have been held without the enormous support of Jim Balsillie, the Chairman of CIGI'S Board of Directors, together with John English, its Executive Director. We also benefited from the advice of Paul Heinbecker and Daniel Schwanen. For her skilled and confident management of both the Author's Workshop and the process of obtaining and revising the chapters we would like to express our thanks to Kelly Jackson. With a tight deadline amidst the busy schedules of the contributors she handled the process in flawless fashion. With much of this work she was ably assisted by Andrew Schrumm. The staff at CIGI has also been tremendous in their support of the project on many levels and in countless ways. Special thanks go to Andrew Thompson, a PhD student in History at the University of Waterloo, for his technical editing of this manuscript. Finally we would like to thank all the people at McGill-Queen's University Press who worked efficiently to turn the manuscript into a book. Of particular note in this regard we acknowledge with gratitude the efforts of Philip Cercone, Joan McGilvray, and Brenda Prince. Andrew F. Cooper Dane Rowlands Waterloo/Ottawa July 2005

Acronyms

ADF AIDS ALP ANZUS APEC APFC APMS ASEAN BBC BMD BRIGS BRICSAM BQ BSE CAFTA CCCE ccic ccw CEE CE CFB CFIA C-IBC CIDA

Australian Defence Force Acquired Immune Deficiency Syndrome Australian Labor Party Australia, New Zealand, United States Security Treaty Asia-Pacific Economic Cooperation Asia Pacific Foundation of Canada anti-personnel mines Association of Southeast Asian Nations British Broadcasting Corporation ballistic missile defense Brazil, Russia, India, China Brazil, Russia, India, China, South Africa, ASEAN, Mexico Bloc Quebecois Bovine Spongiform Encephalopathy Central American Free Trade Agreement Canadian Council of Chief Executives Canadian Council for International Cooperation certain conventional weapons Central and Eastern Europe Canadian Forces Canadian Forces Base Canadian Food Inspection Agency Canada-India Business Council Canadian International Development Agency

xii Acronyms

CIGI cis CME CSA csos CUSFTA DART DFAIT DFID DND EDC EU FAC FBI FIRA FTAA GJ c8 GIO G20 G2O/G2.2. GATT GDP GDP(W) GNI GNP GROS GST HIV IAEA ICAO ICBL ice iccc ICRC IDRC IFIS IGOS IHA IMF INTERFET IPR IPS

Centre for International Governance Innovation Commonwealth of Independent States Canadian Space Agency Canadian Manufacturers and Exporters civil society organizations Canada-US Free Trade Association Disaster Assistance Response Team Department of Foreign Affairs and International Trade Department for International Development (UK) Department of National Defence Export Development Canada European Union Foreign Affairs Canada Foreign Direct Investment Foreign Investment Review Agency Free Trade Agreement of the Americas Group of Seven (Industrialized Nations) Group of Eight (Industrialized Nations) Group of Ten (Industrialized Nations) Group of Twenty (Finance) Group of Twenty (WTO Alliance-Doha Round) General Agreement on Tariffs and Trade gross domestic product global domestic product gross national income gross national product grass-roots organizations Goods and Services Tax Human Immunodeficiency Virus International Atomic Energy Agency International Civil Aviation Organisation International Convention to Ban Landmines International Criminal Court Indo-Canada Chamber of Commerce International Committee of the Red Cross International Development Research Centre International Financial Institutions intergovernmental organizations international humanitarian assistance International Monetary Fund International Force for East Timor International Policy Review International Policy Statement

xiii Acronyms

I SAP IT iTcan ITU JTFZ LZO MAI MarCom MDGS Mercosur MFA MIF MINUSTAH MNCS MOD MP MSF NAFTA NAM NASA NATO NDP NEP NEPAD NCOS NORAD NORTHCOM NPSIA OAS ODA OECD OSCE PCO PMO PNG POGG PRT PSEPC PSO R&D RCMP

International Security Assistance Force Information Technology International Trade Canada International Telecommunications Union Joint Task Forces Two Leaders' Twenty (Summit) Multilateral Agreement on Investment maritime command Millennium Development Goals Mercado Comun del Sur (Southern Common Market) Multi Fibre Arrangement Multinational Interim Force (Haiti) United Nations Stabilization Mission in Haiti Multinational Corporations Ministry of Defence (UK) Member of Parliament Medecins Sans Frontieres North American Free Trade Agreement Non-Aligned Movement National Aeronautics and Space Administration North Atlantic Treaty Organization New Democratic Party National Energy Policy New Partnership for Africa's Development non-governmental organizations North American Aerospace Defence Command Northern Command Norman Paterson School of International Affairs Organization of American States Official Development Assistance Organisation of Economic Co-operation and Development Organization for Security and Cooperation in Europe Privy Council Office Prime Minister's Office Papua New Guinea peace, order and good government provincial reconstruction teams (Afghanistan) Department of Public Safety and Emergency Preparedness Canada Peace Support Operations Research and Development Royal Canadian Mounted Police

xiv Acronyms

RHOMA S&T SARS SCFAIT SITC SMES SOES SOUTHCOM TIC AS TNOS TRIPS u of T UNAMA UNDP UNICEF UNHCR USCG WMD WHO WHO WSSD WTO

Retired Heads of Missions Association Science and Technology Severe Acute Respiratory Syndrome Standing Committee on Foreign Affairs and International Trade Standard International Trade Classification small and medium enterprises state-owned enterprises (China) Southern Command Trade and Investment Cooperation Agreements transnational organizations trade-related aspects of intellectual property rights University of Toronto United Nations Assistance Mission in Afghanistan United Nations Development Programme United Nations International Children's Emergency Fund /United Nations Children's Fund United Nations High Commission for Refugees United States Coast Guard weapons of mass destruction World Meteorological Society World Health Organization World Summit on Sustainable Development World Trade Organization

Canada Among Nations 2005

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i A State of Disconnects The Fracturing of Canadian Foreign Policy A N D R E W F. C O O P E R and DANE ROWLANDS

Canadian foreign policy is going through a period of profound anxiety, critique, and reconsideration. All of the accepted images of why and how Canada should play an international role have been eroded if not completely shattered. Having been built up as one of the major sources of national unity and collective pride there is now a pervasive sense of disconnect as well as fragility about Canada's role in the world. To capture the essence of this dissonance we have chosen the title Split Images, an allusion both to the glaring divide between different visions of foreign policy, and to photography. In his chapter, Paul Evans presents the camera metaphor: "Users of Single Lens Reflex cameras are familiar with a focusing device that contains a small circle separated by a median bar. The object to be photographed is in focus when the images on both sides of the bar are clear" (Evans, this volume). At this time of foreign policy fracturing, both sides of the bar remain decidedly unclear. For many observers, the lack of focus is the result of a long-term slippage of will, capacity and status in the location of Canada among nations (Cohen, 2,004). Canada has rested on its myths and sense of comfort while actors, rules and events around it have been transformed. For others, the essential debate that must be engaged in is deciding between the main game that lies at the core of Canadian foreign policy and the alternative choices of activity that can be pursued on a voluntary and potentially a re-invigorated basis. Embracing this main game is grounded on an explicit recognition of the United States as the central pivot of Canadian foreign policy. All else beyond

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Cooper and Rowlands

this US-centric approach is simply embellishment. Allowing space for alternative options points in the direction of a discretionary approach in which Canada puts an onus on selective issue-areas to differentiate it on the international stage. This first image is geographically limited but deep in terms of its salience for Canada's economic and strategic interests. It focuses on what is deemed necessary to ensure the prosperity for Canadians and the security of North America (Stairs, 2.005). The second image encompasses a wider range of visions and voices but is often only loosely attached to Canada's core priorities. There is a strong normative dimension concerning what is judged to be right with respect to policy options. The underlying structural conditions shaping the image of disconnect between the established self-image of Canada and a sense of anxiety about what Canada should and can be doing today relates to the split between the order established under the post-1945 system (however problematic) or even the post-1989 world, and the unsettled state of the post-post-Cold War or post-9/i i era. The post-