The Canadian national intelligence culture: A minimalist and defensive national intelligence apparatus

Marco Munier

doi:10.1177/00207020211048430

Abstract

This paper seeks to understand the nature and characteristics of Canadian national intelligence culture post–Cold War using the analytical insights of the strategic culture and intelligence culture literature. Previous studies have focused on an organizational description or historical studies of Canadian intelligence during the Cold War or after 9/11. Yet, no studies have examined the characterization of a national intelligence culture in Canada and proposed to contextualize the Canadian intelligence system in light of its national intelligence culture. Building on a culturalist approach of national intelligence systems, this paper proposes an operationalization of the national intelligence culture concept drawn on the strategic and intelligence culture literature. The paper concludes that Canada’s national intelligence culture is mostly defensive and minimalist. However, we note that recent changes in the Canadian intelligence apparatus have led to a gradual evolution of Canadian intelligence from defensive to offensive.

Highlights

Canada is unique among its Western allies in that it does not have a dedicated foreign human intelligence agency and does not carry out or participate in violent intelligence operations like France, the United Kingdom, the United States, or Australia
In 2004, the Ottawa policy statement “Securing an Open Society: Canada’s National Security Policy,” put intelligence at the center of government policy for the first time to reinforce and better coordinate security intelligence collection activities. This new intelligence position in the Canadian government security policies was reflected in the 2015 anti-terrorism legislation, Bill C-51, which strengthened the intelligence gathering and sharing powers of Canadian intelligence agencies and the new Bill C-59
This paper offers to move beyond the universalism of existing theories stating that intelligence provides a decision-making advantage over adversaries or that intelligence can reduce risk[2] and embrace a culturalist approach in which there is a variety of national intelligence systems depending on each country’s political and cultural systems.[3]

Summary

Introduction

Canada is unique among its Western allies in that it does not have a dedicated foreign human intelligence agency and does not carry out or participate in violent intelligence operations like France, the United Kingdom, the United States, or Australia. This liberal internationalism is characterized by an aversion to the use of force and a preference for a peaceful resolution of disputes through diplomacy and international institutions.[44] Osvaldo Croci argues that Canada views the international environment through liberal internationalist lenses and believes in a peaceful international order based on rules that promote international institutions rather than deterrence and balance of power.[45] This internationalism, according to the author, is intimately linked to Canadian political values that place great importance on liberal democracy, respect for the law, the defense of human rights and civil liberties, and a deep belief in pluralism.

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