Picking our top soldier is a rather casual affair
The Afghan backdrop may concentrate the PM's mind
DOUGLAS BLAND
From Thursday's Globe and Mail
April 17, 2008 at 8:41 AM EDT
Canadians might think that the selection of the chief of the defence staff - our top soldier - would greatly occupy prime ministers. After all, the CDS is the government's military adviser, sharing responsibility for the defence of Canada, managing a budget of billions of dollars, commanding more than 80,000 members of the Canadian Forces, and holding their lives in his hands. Yet, the history of how officers are selected for this office reveals a surprisingly casual process.
In interviews with every officer who has held the office since its establishment in 1964, the usual response to the question "Why were you selected as the CDS?" is simply, "I have no idea." Officers did sometimes speak about the circumstances of the day, the "luck of the timing" in the sense that they were in an advantageous position when the incumbent stood down. But all agreed that the selection process had no set criteria and no predictable outcome.
The chief of the defence staff "serves at pleasure." He (and some day she) is formally appointed by the Governor-General on the prime minister's recommendation. There is no set period of service - officers usually serve for three or four years, though some have served longer and one has held the office twice. There is no rotation by service between naval, army and air force officers - six air force, five army and two naval officers have held the office.
The National Defence Act sets out the basic duties of the CDS, but, other than custom, there is no other significant indicator to guide the prime minister's assessment of candidates. Indeed, there is no legal requirement that the CDS be an officer of the Canadian Forces. During one changeover period in the early 1980s, a Reserve general officer wrote to the minister of national defence and "volunteered" to be the CDS. His selfless gesture was turned down promptly.
Chiefs of the defence staff are usually selected after a quiet bureaucratic hunt for advice from the serving CDS, former chiefs, other senior retired officers, and civilians and academics associated with the Canadian Forces. The serious inquiry, however, takes place mostly inside the Ottawa establishment, where former and serving clerks of the Privy Council and assorted deputy ministers are asked to weigh the qualifications of candidates.
Prime ministers have often left the final recommendation to others, notably to their defence ministers and senior members of the Prime Minister's Office. In the PMO, a candidate's "political reliability" and his understanding of the government's (usually limited) interests in matters of defence policy have carried considerable weight. Like Mackenzie King, every prime minister is keen on "silent soldiers and sailors, too."
The search for General Rick Hillier's replacement will now begin in earnest and is likely to follow this informal process. Certainly, because of Canada's commitment in Afghanistan, the Prime Minister and his staff will be more engaged in reviewing the suitability of the obvious candidates - serving three-star officers - than has been common in the past.
But what might be their criteria? They probably will look at the candidates' professional qualifications, their presence in front of the media, linguistic abilities, and public statements. But one suspects they will be most interested in the candidates' sensitivities to the government's need to manage the public's perception of the war in Afghanistan.
Sensitivity in this context means finding a CDS who would be content with a somewhat diminished public profile and who would agree to calm the rhetoric in public debates between political objectives and military doctrine. The Prime Minister probably will look for an officer who is not keen to out-Hillier Gen. Hillier - that is, someone who is less personally attached than Gen. Hillier is to the history of the Canadian Forces' strategic decisions in Afghanistan.
In return, the incoming CDS will want to retain a clear distance from partisan politics and set his own agenda for the Canadian Forces. That agenda will most likely require the government to agree in advance to help the next CDS in his major challenge - rebuilding Canada's overburdened and under-resourced armed forces after 2011.
The domestic 2011 political ceasefire on Canada's future in Afghanistan provides an ideal respite during which Gen. Hillier can depart quietly - "mission accomplished." It will also allow the new CDS a relatively quiet period to change the military's relationship with the government without diminishing Gen. Hillier's enormous successes in connecting the Canadian Forces to Canadians and reinforcing the chief of the defence staff's vital roles in assisting governments in formulating and directing Canada's defence policy.
But following the usual practice might depend on MPs not insisting that their parliamentary committees should for once have a say in, or at least an opportunity to interview, the candidates who might command the Canadian Forces in dangerous times. But who would bet on such reasonable co-operation in the House of Commons today?
Douglas Bland is the author of Chiefs of Defence.