The Function of the Fleet: Reconciling Incongruences in Canadian Policy Visions
By Michael Cabral, 16 May 2026
In Some Principles of Maritime Strategy, Sir Julian S. Corbett wrote, “military action must … be regarded only as a manifestation of policy … it must never supersede it.”[i] With this view in mind, this piece seeks to reconcile policy inconsistencies that would undermine the Royal Canadian Navy’s (RCN) ongoing strategic review. In particular, my aim is to reconcile incongruences between the continental policy visions expressed in Our North, Strong and Free (ONSF) and the Government of Canada’s recent economic diversification vision, with the objective of clarifying ‘the function of the fleet’ – the navy’s purpose within Canada’s national strategy.[ii]
Foremost theorists and practitioners of naval strategy, from Mahan and Corbett to Nimitz, Brodie, and Gorshkov, remind us that a fleet’s purpose extends far beyond fighting and winning wars.[iii] Navies are instruments of national strategy, and their effective use determines the degree to which a state will profit from the sea. As the sea remains the most economical mode of communication between states, its function as the world’s highway of commerce inextricably links naval and economic strategies. This relationship imparts to naval warfare its most determinative feature: influencing what happens along sea lines of communication (SLOC) in peacetime and controlling communications during war.[iv]
For much of modern Canadian history, ties to the United States have enabled Canada to underdiscuss the link between the navy and trade. That is, consistent with a significant land border with the world’s richest country, most of Canada’s trade differs from the rest of the world in that it is predominantly conducted by land rather than by sea.[v] However, as disruptions in the United States continue, the government has made it clear that economic reliance on the United States is a weakness that must be corrected.[vi] For this purpose, Canada sits as an island, connected to new partners only by way of the sea. Thus, the sea, and by extension, the navy, will have key roles in shaping Canada’s future.
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Preview Next Issue: Vol. 22 No. 1 (2026)
It’s that time again! Soon there’ll be a new issue of CNR hitting the streets. To whet your appetite, here is a preview of what’s in the issue.
As usual, the issue contains a smorgasbord of material, with something for everyone. Our first article takes us to China and outlines how it has become a shipbuilding powerhouse. The second article discusses Canada’s participation in the Gulf War, as we reach the 35th anniversary of the conflict. The third article argues that RCN veterans should be seen as strategic assets and treated and trained as such. The final essay outlines some of the defence capabilities that are being ordered/built, particularly relating to the Arctic, even in the absence of a new defence policy to provide strategic direction.
And, of course, we have our usual Making Waves commentaries. In response to enthusiastic discussion on Broadsides (our online discussion forum), we have a commentary about whether geography is destiny for Canada – i.e., as a small (in terms of population) country next door to the United States, does Canada have options for defence? There’s a commentary asking if naval art is dead, a commentary about naval capabilities for the Arctic, and a commentary about how the RCN can make the navy more visible to Canadians.
And, of course, we have our regular columns. “A View from the West” looks at whether China is indeed capable of/intending to invade Taiwan in 2027. “Dollars and Sense” examines the Defence Industrial Strategy, and “Warship Developments” updates us on recent naval developments.
Naturally, we have our usual amazing photos!
Stay tuned. In a few weeks, the issue will be in the mailbox of people who are lucky enough to be subscribers! It’s not too late for you to subscribe. See here for the Table of Contents.
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Looking for Books about Maritime Matters?
Over the last 20 years, Canadian Naval Review has published over 180 book reviews. These books cover a variety of topics but they all relate to maritime matters, history, or security and defence at sea. This is an amazing resource. Go through the list of reviews, pick out a few books that look interesting, read the reviews, and then order the books from your nearest bookstore or from the publisher. See the list of book reviews at https://www.navalreview.ca/book-reviews/