A Seat at the Table by Lt.-Gen. E.L.M. Burns (review)

REVIEWS 207 The bookis verymuchpolicy-oriented and explicitlyindicates policypreferences ,notwithstanding the author'scontentionthat he offersno solutionsbut only 'one ... structurefor enquiryand one guide to,reflection.'Although the essay is that- it couldbe a modelfor an examinationof the defencepolicies of othermiddle-sized countries-it is alsomore.His keyguidelineis that, in a field troubledb.yinherentdifficulties of evaluatingpolicies,'only thosetasks shouldbeperformedthat are,in themselves, justifiable.'This leadshim to question theneedfor a Canadianmilitarypresence in Europeaswellasthewisdom of basingparticipationin NoR^r• on the ill-foundedpremisethat a Canadian contributionto defenceagainstmannedbombersis important. It alsomakes him wary of the make-workelementin plansfor weightierrolesfor Canada's armed forcesin national development, national unification,territorial and coastsurveillance, pollutionprevention, fisheries policing,and aidingthe civil authoritiesto maintain internal order. Nonetheless, despitethe wariness,he doesthink it probableand suitablethat suchfunctionswill becomemore prominentin the operations of the Canadiandefenceestablishment, and findsthat if military men are unsympathetic to this trend they shouldbe re-educated. Usefullyinformedand generous attentionis alsogivento the questionof what kind of naval capabilityis appropriateto maintain Canadianauthorityin the offshoreareas,at a time when the law of the seais rapidly changingand when resource-rich areasare increasingly coveted. JoN MCLIN American Universities Field Staff, Geneva A Seat at the Table. Lt.-Gen. EJ,.M.BURNS. Toronto/Vancouver,Clarke, Irwin , i97a. Pp.viii, a68.$6.75. The qualitiesrequiredof the Canadianrepresentative at disarmament conferencesfrom I96O to I968 were qualitieswhich GeneralBurnspossessed to a remarkabledegree:a graspof military problemsand a dedicationto the limitationof armaments whicha general, if hecanseethings thatway,feelsmore stronglythan a civilian. Experienceof the realitiesof international relations General Burns acquired aschiefof staffof theuN TruceSupervision organization and commander of the United NationsEmergency Forcein the Middle East.His isan exceedingly modest book,packedwith information,wisdom, and somerevelationaboutCanadiandisarmament policythroughthe sixties. He considerably underestimates hisaccomplishments, but not out of falsemodesty. It is part of the cool visionwith which, to the benefit of the reader, the authorregards theactivities of himself andhisfellowmortals in thisgamewith suchhighstakes. The detachment is not that of a man who cares little about the outcome or who flattershis own egowith a fashionable cynicism. GeneralBurnstellsus more than most writers about the real problemsof disarmamentbecausehe doesnotmakethe mistake of regarding theplayers ascallous performers hiding the defence of national interests in rhetoric. tie knows that the basic reason we 208 THE CANADIAN HISTORICAL REVIEW havenot reachedagreement on generalandcomplete disarmament isthat such an agreement is not easy.He hasno illusions aboutthe security provided by mutualdeterrence, butherecognizes theterribleresponsibility of majorpowers in abandoning conventional waysof security withoutassurance that theirpeoplewill not facedestruction throughinternational agreements whichcannotbe foolproof.He seeks to understand, however, why Sovietaswell asAmerican disarmament proposals are aslimited,hesitant, andself-regarding astheyare. The endless flightsof noblespeech at disarmament meetings, concealing good intentions but no generous offers, wouldtry thepatience of thesturdiest diplomat . GeneralBurnssattherestolidlyall thoseyearskeepinghisearsopenfor somenew formula which might offer progress. He recognizes that there are hawksand dovesin both camps.The justificationof theselong debatesin Genevaover a decademay be that an internationalfront of doveshasbeen consolidated. The bookis primarilyaboutthe disarmament negotiations themselves. It includesshrewdestimates of the variousproposals and of the StrategicArms LimitationTalksbetween the SovietUnion andthe United States. Its principal interestfor Canadians, however,maybe theindicationof what Canadians have andhavenotbeenableto accomplish. Canadians lookingfor evidence of a decisiverole will not be assured. He had the greatestrespectfor Howard Green's dedication tothecause ofdisarmament buthethoughtMr Greenoverestimated the influence Canadacouldhavewhenit tried to drivethe greatpowers to do something theydid not want to do. He illustrates Canadianusefulness in tactical situations and supposes that thisis 'evidence that our representatives can dobetterin a kindof brokerage job ... thanif we try to takea leadourselves.' He himself favoured Canada's nothavingnuclear weapons evenundertwo-key arrangements and includedin the bookis a trenchantmemorandumof his in •96o to the Diefenbaker government beforethe crisisovernuclearweapons, arguingagainsta Canadiannuclearrole in •^TO. 'But in the disarmament negotiations in whichI haveparticipated, it hasneverseemed to me that, had we beenneutral,our influence wouldhavebeengreaterthanit wasasa memberof theN^TO alliance. How caninfluence beweighed anyway? Hasnotsomebodysaidthat influence iswhatyouthinkyouhave,solongasyoudonot try to use it?' Where GeneralBurnsunderestimates his personal influenceis in not mentioningthe respectin which he washeld by his colleagues. One would, of course, havebeenastonished if he had doneso.He wasalwaysa truebeliever in disarmament and wasregarded assuch,but hissense of proportion andhis understanding of what waspossible, aswell ashispersistent effortto recognize the dilemmasof others,meant that he was listenedto. There is no one less influentialthan the shrill Canadian demandingin internationalconferences that other countries makesacrifices which Canada,beinga...