US-CANADA PERMANENT JOINT BOARD ON DEFENSE (PJBD)

C O N F I D E N T I A L SECTION 01 OF 05 OTTAWA 001508

SIPDIS

E.O. 12958: DECL: 12/02/2018
TAGS: PREL MARR MOPS CA
SUBJECT: US-CANADA PERMANENT JOINT BOARD ON DEFENSE (PJBD)

REF: OTTAWA 1068

Classified By: PolMinCouns Scott Bellard, reasons 1.4 (b) and (d)


1. (SBU) Summary: Canada hosted the 222nd bi-national
Permanent Joint Board on Defense (PJBD) meeting in Quebec
City, November 12-14, 2008, with U.S. Chairman George
Nethercutt and Canadian Chairman Rick Casson leading the
discussions. The PJBD's Record of Decision (ROD) recognized
the merit of a measured response to Russian long-range
aviation and maritime activity in the Arctic and the Western
Hemisphere, took note of the successful first use of the
Canada-U.S. (CANUS) Civil Assistance Plan (CAP) in the
aftermath of Hurricane Gustav in August 2008, and encouraged
the signing of the CANUS Emergency Management Agreement at
the earliest opportunity. The ROD endorsed the further
development of the CANUS Maritime Defense Plan within the
framework emerging from the ongoing Tri-Command Study. The
PJBD further expressed support for the collaboration among
Defence Research and Development Canada (DRDC) and its U.S.
and other allied counterparts. The ROD also encouraged the
CANUS Military Cooperation Committee (MCC) to inventory
relevant bi-national and bilateral agreements and
arrangements that concern CANUS defense and security
cooperation. The PJBD members received briefings on Canada's
defense engagement strategy for the Americas, its hosting of
the Banff Conference of Defense Ministers of the Americas
(CDMA),Canada's political-military engagement with Mexico,
and the USG's "Merida Initiative," leading the ROD to urge
the two sides to continue their deep collaboration in the
hemisphere. End Summary.

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Relations with Russia in a Continental Context
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2. (SBU) ROD Text: The Board discussed Canadian and U.S.
relations with Russia in a global and continental context,
focusing on the increased tempo of Russian long-range
aviation and maritime activity in the Arctic and the Western
Hemisphere. The Board recognized the merit of a measured
allied response to this activity and recommended increased
consultation with allies to foster a common approach. The
Board saw the need for ongoing attention to North American
aerospace defense and warning. While there cannot yet be
"business as usual" with Russia, the Board saw utility for
the U.S. and Canada to pursue with Russia common approaches
to issues of global concern.


3. (C) Discussion: Department of Foreign Affairs and
International Trade (DFAIT) Director General for
International Security Donald Sinclair launched the
discussion on Russia with the observation that Canada and its
partners had over time seen Russia's negative resurgence in
Moscow's effective withdrawal from the Conventional Forces in
Europe (CFE) process, its "unreasonable" response to
transparent U.S. efforts to expand missile defense into
Poland and the Czech Republic, and its insistence on a sphere
of privileged influence including Georgia and Ukraine.
Russian long-range aviation (LRA) and maritime activity in
the Arctic and the hemisphere ought to be seen in this light,
Qthe Arctic and the hemisphere ought to be seen in this light,
he said. Sinclair attributed current Russian "petulance" to
a combination of a deep-seated grievance at not being
respected by the West and of self-confidence due to high oil
and gas revenues. Russia unfortunately has been fairly
effective in using its newfound wealth to drive wedges
between the transatlantic and European NATO members, and
between European states that do and do not depend on Russian
energy, Sinclair observed.


4. (C) State WHA/CAN Director Ned Nolan commented that
provocative Russian missions and the risk of unscheduled
flights affecting civil aviation were causing concern in the
U.S. interagency community. He also noted the upswing in
Russian naval activity in the Caribbean and its broadening
collaboration with Venezuela. However, Nolan stressed, it
has been U.S. practice to avoid aggressive intercepts or to
overreact to Russian naval activity so as to deny oxygen to
Russian and Venezuelan propaganda campaigns. Canadian
Commodore Calvin Mofford noted that NORAD earlier had made
progress in its effort to get the Russians to file flight
plans in advance of long-range flights in the region, but

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that such cooperation had ended with the invasion of Georgia.


5. (C) Looking ahead, Board members agreed that it was up to
Canada, the U.S., and other like-minded allies to press NATO
members to unify behind some "hard messages" that need to be
sent to Russia with one voice, including: NATO is unified in
the face of Russian provocations; Russia does not have a veto
over which countries join NATO; and, the world rejects
Russia's claim to a "sphere of privileged influence" along or
near its borders.


6. (C) At the same time, Board members agreed, the West must
make it clear that it is not seeking to isolate Russia.
NORAD, NATO, and other allies and friends can send this
message by engaging the Russians where interests are shared,
such as Afghanistan, non-proliferation, and search-and-rescue
missions in the Arctic. To this end, US NORTHCOM Major
General Chris Miller underscored NORAD's willingness to
engage Russia in this way, while making it clear that NORAD
will not overreact -- or under-react -- to potential threats
at or near the approaches to its area of responsibility.
NORAD will continue to identify and intercept potential
threats, he said.

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Tri-Command Study: Synchronization of Battle Rhythm
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7. (SBU) ROD Text: The Board was briefed on efforts to
coordinate among Canada Command, NORAD, and NORTHCOM. The
Board noted the lessons learned from the successful first use
of the Canada-U.S. Civil Assistance Plan (CAP) in Hurricane
Gustav and other recent events. The Board supported the
efforts by the commands in building on existing agreements to
focus on priority areas, such as information sharing, to
enhance the cooperation among the commands and with mission
partners in other government departments/agencies. The Board
encouraged the signing of the Canada-U.S. Emergency
Management Agreement at the earliest opportunity.


8. (C) Discussion: Representing Canada Command, Colonel Jack
Backstrom opened the discussion of the Tri-Command Study
(TCS),noting that the TCS working group had broken the
effort into two parts. The first part comprised some sixteen
"quick hits" that could be put into effect within the current
policy framework over the winter of 2008-09. The second set
of issues was more complex, and would require political-level
engagement, he said. To illustrate the nature of the TCS'
work, Backstrom briefed one of the sixteen quick hits, the
Synchronization of Routine and Contingency Activities (Battle
Rhythm).


9. (C) The briefing underscored the importance of
synchronizing battle rhythms among Canada Command,
USNORTHCOM, NORAD, and other government departments and
agencies (OGDs) when preparing for defense and security
operations in the face of man-made and natural disasters.
Backstrom described challenges to synchronization emanating
from various causes, to include sovereignty issues, political
realities, and incongruous command authorities among partners
with complementary missions, despite differing organizational
structures (Canada Command is organized regionally, while
Qstructures (Canada Command is organized regionally, while
NORTHCOM is organized functionally),as well as classified
connectivity, intelligence and information sharing among
partners. U.S. Department of Homeland Security Military
Advisor RADM Dan Lloyd observed that incidents with the
highest probability of occurring include floods, fires,
tornadoes, and hurricanes, all of which would require
military support of civil authorities. This fact, he said,
further exacerbates challenges to synchronization.


10. (C) To illustrate the issue, Backstrom briefed the
Tri-Command response in support of civil authorities for the
first time under the CANUS Civil Assistance Plan (CAP) when
Hurricane Gustav struck the U.S. Gulf Coast on August 30,

2008. Having the CAP in place facilitated the initiation,
planning, and conduct of operations, he observed, and it
pointed to a particular policy lead for activation of the
CAP, thereby reinforcing the need for synchronization of
military and OGD entities. Backstrom pointed to important
areas for improvement, however, including the need for
clearer, more unambiguous requests for support, especially

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given that the CAP does not cover all potential support
constructs (for example, bilateral search and rescue
agreements are already in place),as well as the need to
clarify policies related to the arming of supporting forces
for the purpose of self defense. Synchronization of routine
and contingency activities will be a major item for
discussion at the December 2-3, 2008, Tri-Command staff talks
in Colorado Springs, according to Backstrom.

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Canada-U.S. Combined Maritime Defense
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11. (SBU) ROD Text: The Board discussed the value of
coordinating the maritime defense efforts of both nations as
well as the relationship between the Combined Defence Plan
and the proposed CANUS Maritime Defence Plan. Recognizing
the unique requirements of the maritime domain, the Board
endorsed the further development of a CANUS Maritime Defense
Plan that is in concert with the Combined Defense Plan, the
NORAD Maritime Warning Mission, and the framework emerging
from the Tri-Command Study.


12. (C) Discussion: Canadian Commander Richard Dowker said
that Canada Command and NORTHCOM were developing an
operational to strategic level CANUS Maritime Defense and
Security Plan (MDP),in part leveraging existing plans,
agreements, arrangements, and initiatives. The MDP will be
deployed alongside the CANUS bilateral Terrorism Combined
Defense Plan, NORAD Maritime Warning, and the Civil
Assistance Plan to close the gaps in current CANUS planning
across the spectrum from defense to security to safety.
Dowker requested, and the Board agreed, to recognize the gap
in CANUS maritime planning, and to endorse, in principle, the
development of a CANUS MDP.

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Canada Science and Technology Overview
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13. (SBU) ROD Text: The Board was briefed on defense and
security science and technology in Canada and the work of
Defence Research and Development Canada (DRDC) and its
cooperation with the U.S., the Technical Cooperation Program,
and NATO. The Board was also briefed on a number of
high-impact projects of relevance to both countries in the
plenary session and during a visit to the DRDC's Valcartier
facility. The Board supported cooperation and collaboration
by DRDC and its counterparts in the U.S. on security,
defense, and public safety research and development, and
suggested a similar discussion and demonstration be organized
by the U.S side at a future PJBD.


14. (C) Discussion: DRDC's Dr. Robert Walker briefed the
Board on Canadian R&D cooperation with Allies. Walker cited
the impressive number of 450 cooperative projects undertaken
by DRDC, nearly all including the U.S. either bilaterally, as
part of NATO, or within the "ABCA" Technical Cooperation
Group (U.S., Great Britain, Canada, Australia, and New
Zealand). Projects that Walker touched on included improved
protective gear for combatants, "green" munitions,
next-generation communications capabilities, and battlefield
medical devices. During the tour of the DRDC's Valcartier
Qmedical devices. During the tour of the DRDC's Valcartier
facilities, Board members witnessed efforts to upgrade the
protection of military vehicles against improvised explosive
devises (IEDs),including efforts to use high-energy pulses
for detection and disruption.

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Military Cooperation Commission
--------------


15. (SBU) ROD Text: The Board was briefed on the latest
meeting of the MCC. The MCC agenda was broad and addressed
such issues as engagement in Afghanistan, the Canada-U.S.
Threat Assessment, and NORAD's Maritime Warning operations.
The Board noted that the MCC will take forward the
Canada-U.S. dialogue on arctic cooperation, cooperation in
the Americas, and the inventory of relevant military to
military agreements and other substantial issues where
opportunities for cooperation exist.


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16. (C) Discussion: In his briefing of MCC activities,
Canadian Commodore Gardam outlined the challenge of
inventorying relevant bi-national and bilateral agreements
and arrangements that concern CANUS defense and security
cooperation. The Board expressed interest in this project
and asked to be apprised of the MCC's resulting product.

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Engagement in the Western Hemisphere
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17. (SBU) ROD Text: The Board received a briefing on the
Department of National Defence's engagement strategy with the
Americas, as well as a report on the 8th Conference of
Defense Ministers of the Americas (CDMA) held in Banff in
September 2008. The Board noted the success to date and
encouraged the continuing cooperation between Canada and the
U.S. to promote democratic principles in civil-military
institutions within the hemisphere. The Board received an
update on the Merida initiative and welcomed Congress' recent
appropriation of funds to governments in Mexico as well as
central America and the Caribbean, in order to confront
transnational crime and gangs, which pose security threats to
the hemisphere. Canada provided a report on its third annual
political-military talks with Mexico. Canada intends
actively to pursue this engagement with Mexico across a wide
range of policy issues of mutual interest, including peace
support operations and regional and global issues. The Board
noted the defense and security opportunities for
collaboration in specific countries and on specific issues,
and agreed that the Canada-U.S. dialogue on the Americas,
specifically on Mexico, remains of great importance. The
Board agreed to be seized with and engaged in the hemispheric
strategies of both countries.


18. (C) Discussion: Canada's Department of National Defence
Director for Western Hemisphere Affairs, Colonel Al
Stephenson, briefed Canada's strategy for the Americas. The
strategy is meant to refocus a greater share of Canadian
military-to-military engagement with the Americas. It fits
into Prime Minister Harper's call for whole-of-government
engagement in the hemisphere, with the goals of increasing
prosperity, consolidating democracy, and protecting the
hemisphere from security threats. DFAIT DG Sinclair
interjected that PM Harper had just appointed a Minister of
State for the Americas and raised the rank of the senior
bureaucrat at DFAIT responsible for Canada's relations in the
hemisphere. Col. Stephenson noted that the defense element
of the national plan features four levels of engagement
(reftel):

-- partnership countries such as Chile, Argentina, and Brazil
are to benefit from a broad range of staff and
political-military relations, high-level visits, combined
training and exercises, and exchanges of personnel and
information. Canada will pursue interoperability with these
forces, viewing them as potentially capable, like-minded
partners that share common interests with Canada (and the
U.S.);

-- cooperation countries such as Colombia, Bolivia, Jamaica,
and Trinidad and Tobago will benefit from defense relations
Qand Trinidad and Tobago will benefit from defense relations
through courses, opportune high-level visits, and training
activities. Canada will pursue partial interoperability and
common tactics and procedures with these countries;

-- contact countries such as Barbados and Cuba will be
engaged in an effort to develop defense relations through
basic defense activities and confidence-building efforts;

-- interest countries include small island-states of the
Caribbean not mentioned above. Canada will maintain minimal
contact with these militaries.


19. (C) DFAIT DG Sinclair noted that, apart from the
Caribbean, the prospect of concerted relations throughout
Latin America was "new" to Canada, and that his government
would welcome even more opportunities to gather lessons
learned by the U.S. in the region. In response to a question
posed by Chairman Nethercutt, Sinclair said that Latin
America seemed to lack the "glue of regional architecture."
This presented challenges to the U.S. and Canada, as well as


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