From Peacekeeping to Peacemaking FOREIGN POLICY, SECURITY, AND STRATEGIC STUDIES Editors: Alex Macleod and Charles-Philippe David The Foreign Policy, Security, and Strategic Studies Series seeks to promote analysis of the transformation and adaptation of foreign and security policies in the post-Cold War era. The series welcomes manuscripts offering innovative interpretations or new theoretical approaches to these questions, whether dealing with specific strategic or policy issues or with the evolving concept of security itself. MONOGRAPHS Canada, Latin America, and the New Internationalism: A Foreign Policy Analysis, 1968-1990 Brian J.R. Stevenson Power versus Prudence Why Nations Forgo Nuclear Weapons TV. Paul Canadian Policy toward Kruschev's Soviet Union Jamie Glazov From Peacekeeping to Peacemaking Canada's Response to the Yugoslav Crisis Nicholas Gammer COLLECTIONS NATO after Fifty Enlargement, Russia, and European Security Edited by Charles-Philippe David and Jacques Levesque From Peacekeeping to Peacemaking Canada's Response to the Yugoslav Crisis NICHOLAS GAMMER The Centre for Security and Foreign Policy Studies and The Teleglobe+Raoul-Dandurand Chair of Strategic and Diplomatic Studies McGill-Queen's University Press Montreal & Kingston • London • Ithaca © McGill-Queen's University Press 2001 ISBN 0-7735-2.151-8 (cloth) ISBN 0-773 5-2.205-0 (paper) Legal deposit second quarter 2.001 Bibliotheque nationale du Quebec Printed in Canada on acid-free paper This book has been published with the help of a grant from the Humanities and Social Sciences Federation of Canada, using funds provided by the Social Sciences and Humanities Research Council of Canada. Funding has also been received from Okanagan University College. McGill-Queen's University Press acknowledges the financial support of the Government of Canada through the Book Publishing Industry Development Program (BPIDP) for its activities. It also acknowledges the support of the Canada Council for the Arts for its publishing program. Canadian Cataloguing in Publication Data Gammer, Nicholas, 1949- From peacekeeping to peacemaking : Canada's response to the Yugoslav crisis Includes bibliographical references and index. ISBN 0-7735-2151-8 (bound) - ISBN 0-7735-2205-0 (pbk.) i. Canada—Foreign relations—Yugoslavia. 2. Yugoslavia- Foreign relations—Canada. 3. Canada—Foreign relations- 1945-. I. Title. FC25I.Y8G35 2001 327.710497 000-901481-0 FI029.5-Y8G35 2001 Typeset in 10/12 Sabon by True to Type This book is dedicated to my father, Alexej Gammer, a survivor of two civil wars, two emigrations, and a Balkan concentration camp. His courage, strength, and remarkable intelligence are my inspiration. This page intentionally left blank Contents Acknowledgments ix Introduction 3 PART ONE: CANADIAN-YUGOSLAV RELATIONS i 1941-59: The Early Years 17 2. 1960-89: Shared Interests 39 PART TWO: THE NEW ETHIC OF INTERVENTION 3 Redefining Canadian Foreign Policy and the Emerging Crisis 63 4 A Prime Minister's Directive and the "New Ethic of Intervention" 80 PART THREE: THE MULRONEY AGENDA 5 The Evolution of Multilateral Intervention 95 6 Recognition: The Croatian Case Study 116 7 Canadian Foreign Policy and International Law 140 8 From Sarajevo to Srebrenica: Doing More with Less 151 9 The Role of Public Opinion and Political Leadership 166 viii Contents PART FOUR: BACKING OUT OF BOSNIA 10 There Is a Limit to Being a Boy Scout 175 11 Speaking Softly and Carrying a Small Stick 187 i z Challenging Sovereignty: Assessing the Shift in Canadian Foreign Policy 195 Notes 213 Index 2.39 Acknowledgments There were many individuals who were instrumental in helping me publish this, my first book. I am appreciative of all those in the Depart- ment of External Affairs, the Department of National Defence, and Canada's armed forces who were willing to share their invaluable insights with an aspiring academic. I am grateful to Tom Keating for inspiring me to undertake this study and for always being generous with his time. To my friend, Lynn Duncan, I am especially appreciative of her astute and tireless assistance through the revisions of my manu- script. Thank you to Roger Martin of McGill-Queen's for patiently guiding me through the intricacies of publication. It also gives me plea- sure to acknowledge Okanagan University College for its encourage- ment and support of my work. Finally, I am grateful to the Aid to Scholarly Publications Program for making this book possible. To my wife and three sons I remain indebted for enduring my many absences.