Strengthening Canada's Defence Sector Act

Bill C-40, Strengthening Canada's Defence Sector Act · Second reading · now at committee in the House Where it stands

What Bill C-40 would do

The bill would create the Canadian Corporation for Defence Investment to handle production, buying, and investment for the Canadian Armed Forces, the Department of National Defence, and partner governments. It would also expand federal buying and stockpiling powers to cover national security supplies and services. The responsible minister would gain authority to make financial investments in defence and security sectors, and new procurement rules would be set. The bill would also require a future review of these changes.

Official text (opens in a new tab)

79 statements

Rhéal Éloi Fortin, Rivière-du-Nord

Bloc Québécois
“This bill just changes the name of our defence agency. It does not seem to add real projects or help Canadians and Quebecers. It looks like a way for the government to avoid blame if things go wrong later.”
Official Hansard

Mr. Speaker, I thank my colleague for his remarks. As always, he demonstrates a thorough grasp of the file. Perhaps he can help clarify something for me. As I read this bill, I am having some difficulty following it as well, much like my colleague. We currently have the Defence Investment Agency, which would be replaced by the Canadian corporation for defence investment. Aside from a change in name, letterhead and business cards, and setting aside the possibility of creating a well-paid position for a friend of the Prime Minister, what would actually change? Does this bill actually contain any defence investment projects? For now, it appears to be largely cosmetic. The only purpose I can see for this legislation, although I may be missing something, is that it would allow the government to wash its hands of any future problems. It could then say that the matter is not under its control because it falls within the mandate of a Crown corporation. Am I mistaken, or is there genuinely some added value here for Canadians and Quebeckers?

Xavier Barsalou-Duval, Pierre-Boucher—Les Patriotes—Verchères

Bloc Québécois
“The government wanted to create a new defence agency to fix buying delays, but Parliament has not even approved that agency yet. Now the government is proposing another new plan before testing the first one. This keeps making things less open and less accountable.”
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Official Hansard

Mr. Speaker, what is most surprising about Bill C-40, which is before us today, is that the government was already pointing to problems with supply, delays and efficiency at National Defence to justify the creation of the Defence Investment Agency through Bill C-31. The problem is that this solution has not even been tested. The agency has yet to be established because Bill C-31 has not even been passed. In reality, it is an office within the department responsible for procurement, but the agency does not yet exist. This agency has not really been put to the test yet, but some have already come to the conclusion that it does not work. I find that really strange, because this is this very same government that, not so long ago, was telling us that this was a new initiative that would solve all our problems. Now, we are being presented with yet another new initiative that will solve all our problems, whereas, ultimately, all we are seeing is a continuing trend towards less transparency and less accountability.

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“We need to pass this bill to buy military equipment faster and better. Other allies like the UK and Australia are already doing this. Hitting our defense spending target is a good thing because it gets our troops the equipment they need.”
Official Hansard

Mr. Speaker, I find it unfortunate that it seems that the Conservatives and the Bloc do not support the need for a corporation. It is not like it is absolutely unique. We could take a look at other Five Eyes countries, in particular the U.K. and Australia, where there has been movement toward ensuring that there are better processes for procurements. Yes, the Prime Minister could be accused of hitting the 2% target of our GDP, but I would argue that is a positive thing. To ensure we are able to provide the support for our military personnel in equipment, if not this, then what does the member believe would be better to ensure that we are able to deliver in a more appropriate and faster fashion the military equipment our forces require?

Xavier Barsalou-Duval, Pierre-Boucher—Les Patriotes—Verchères

Bloc Québécois
“None of our allies use a state-owned corporation to buy military equipment. The government claims this new corporation is independent, but that is not true. The minister will pick its board and tell it what to do.”
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Official Hansard

Mr. Speaker, I would like my colleague across the way to give me the information he has, because we have done some research, and to my knowledge, there is no NATO or Five Eyes member or western allied country that has a Crown corporation looking after its military procurement. I can see what is going on. The government would have us believe that this is independent, that this is apolitical, even though the corporation’s statutes and rules will state that it must do everything the minister orders and that the minister is the one who appoints the board of directors. That is not unusual. Defence is such a strategic issue that it makes sense to have some political oversight. I get the impression that there is some doublespeak. The government claims that this corporation is independent when it actually is not. It is trying to make us believe things that are not true. This is only natural; defence is so strategically important that it is necessary to take an interest in it.

Marc Dalton, Pitt Meadows—Maple Ridge

Conservative
“The government has cut military budgets and hurt training for soldiers. They are weakening the military and adding more bureaucracy. I want to know if this bill will actually help, or if it is just a way to hide contracts.”
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Official Hansard

Mr. Speaker, last week I spoke with a soldier in British Columbia. He told me about the problems he saw with money for training. There have been budget cuts. We hear the Liberals say that they are doing an amazing job, but what are they actually doing? They are hollowing out the military and creating yet another layer of bureaucracy. Does the member think that this new plan will deliver any real benefits, or is it simply a way to hide contracts?

Xavier Barsalou-Duval, Pierre-Boucher—Les Patriotes—Verchères

Bloc Québécois
“The government says it wants to spend more on defence to meet NATO targets. It also inflates its defence numbers. Now it is cutting spending across departments, including the military. That makes no sense.”
Official Hansard

Mr. Speaker, that is a very good question. We have already talked about the government’s creative accounting to inflate defence figures by boosting salaries and including the Coast Guard. What we are also learning is that the government has directed all departments to make spending cuts. At a time when military spending needs to increase in order to meet NATO targets and when the government says that it intends to reinvest in defence, it would be reasonable to expect National Defence to be exempt from those cuts. Apparently, this is not the case, as DND is also affected by the cuts. I am struggling to find the logic in that. It simply does not make sense to me.

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“I want the Conservatives and the Bloc to vote for this bill. It creates a government corporation to buy military equipment. This will keep spending accountable, protect our country, support our allies, and create good Canadian jobs.”
Official Hansard

Mr. Speaker, I will be sharing my time. Allow me, first, the opportunity here in debate to express my most sincere prayers and best wishes to the families, extended families and communities affected by the disaster in Wainwright. I had the privilege of serving in the Canadian Forces. I was actually posted out in Edmonton. We would often get military personnel coming in from Wainwright through the air force base in Lancaster Park. I know there are strong connections among the military families and members of the Canadian Forces and DND officials. I would let them know that the government and all members of the House are there to support in whatever way we can. It has been interesting listening to the Conservatives and the New Democrats talk about this piece of legislation. When I posed the question to the member from the Bloc, he seemed to be surprised at some of the other Five Eyes countries. If we take a look, we will find that there is some movement toward not necessarily Crown corporations but ensuring that there is one agency that is more accountable in making those military expenditures. We can take a look at the commitment the Prime Minister made to Canadians in the last federal election to invest in and build our Canadian forces, recognizing that Canada does have, and has to have, a role in the United Nations and with our allied partners. That is the reason we are the first government in generations to actually hit the 2% of the GDP ratio that Canada has been asked to hit for generations. Under the leadership of the Prime Minister, we achieved that within six months of the last election. If we put it through that lens and that perspective, we see that it is important to not only be able to hit the target, but also make sure that we are delivering, in tangible ways, the military supports that are absolutely essential. One of the early initiatives was the recognition that our military personnel were underpaid. That is one of the things that was dealt with, again, within the first half year of the new government. We are now talking about a Crown corporation that has a very important responsibility to all Canadians. We look to the opposition to recognize that, as provincial entities and federal entities, there are all sorts of arm’s-length Crown corporations that are there to protect the public interest, whether it might be supplying water, providing hydro or providing automobile insurance. There is a litany of provincial Crown corporations along with many federal Crown corporations. For the most part, as this one will be, they are arm’s-length. There will still be a high sense of accountability, given the amount of dollars that are being spent, by the establishment of an associate minister who would have the sole responsibility of making sure that our Canadian Forces are being armed with the things that are necessary for us to protect our sovereignty as a nation and to be able to contribute, in a very real way, to the United Nations and our allied countries. That is something we have taken very seriously, first by making a substantial commitment. When we hear of a substantial commitment, we can compare this Prime Minister to Stephen Harper when the current leader of the Conservative Party sat around the cabinet table. At that time, we were at 1% and being soundly criticized by countries around the world for not investing enough in our Canadian Forces. Even politicians here in Canada, members of Parliament on all sides of the House, would say we needed to invest more. We have a Prime Minister who took the initiative and did just that, and he did not leave it at that. Through Bill C-40, he established the opportunity for Canada to not only invest in our military but also look at industries within Canada today that create middle-class, good, strong, healthy paying jobs in the military-industrial community, which is very real and substantial. This procurement process and the establishment of a Crown corporation would not only stabilize but also grow. We will see growth in our industrial community in the production of military equipment. I can talk about military vehicles. It could be light armoured vehicles. There are many military parts for vehicles. I could talk about aircraft equipment. Part of the F-35 wing was developed in Winnipeg. It was worth tens of millions of dollars. If members want to see the expertise that goes into that, they should go to Magellan, visit the site and see the sense of pride in what they are doing for the development of the F-35. Magellan is not alone. We can go to the provinces of Quebec, Ontario and Manitoba and other areas of the country to see that the aerospace industry is moving forward. Military procurement plays a critical role in the future of our military aerospace industry. We can talk about weapons and ammunition. It could be ammunition for rockets. I would go to a place like Magellan, which has developed rockets in the past in Winnipeg. I can talk about rifles. These are the types of equipment being built through technology here in Canada and exported. In fact, all the things that I have mentioned today are major exports out of Canada. We can think of drones, cameras or surveillance. These are things for which Canada is one of the leaders in the world. We can talk about naval equipment or training opportunities and the equipment that goes along with that. These are but some of the examples that Canada exports today. A Crown corporation would have the responsibility to not only equip Canada’s military but also ensure there is a clear process to advance an industry that is so very important to Canada’s sovereignty, our jobs and our economy. All of this can be wrapped up together as a way to continue to build a stronger and healthier Canada, as I have said before, that works for all Canadians. Our military is a very important aspect of that. I would ask Conservatives and Bloc members to review the position they have taken as of today on the issue. Providing more transparency and accountability through an independent, arm’s-length Crown corporation is a good thing and something I hope they will pass.

Elizabeth May, Saanich—Gulf Islands

Green
“The government is rolling out this defence plan in steps, just like it did with housing. That housing agency struggled and moved slower than the old system. I think this defence agency will also end up turned into a Crown corporation later. Why does the government prefer to do it this way?”
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Official Hansard

Mr. Speaker, the stepwise implementation of what is supposed to be transformational, which we hear from the government, has become something of a sense of déjà vu. I would suggest to my hon. friend, the parliamentary secretary, that we have seen this before with Build Canada Homes. First, we got a special operating agency in 2025. Then we got the same proposal for Build Canada Homes as a Crown in 2026. As a Crown corporation in 2026, it is still struggling to set itself up. I talk to people all the time who are saying that, when we had the old Crown corporation, CMHC, we moved faster. What I am wondering about is, now that we are looking at a special operating agency for defence, I am sure at some point we will get a bill in here that says that the special operating agency for the Major Projects Office is going to become a Crown corporation. Can the hon. parliamentary secretary suggest why this route is preferred by the government?

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“Government-owned corporations work well. Because they operate at an arm's length from government, they are more efficient, accountable, and transparent.”
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Official Hansard

Mr. Speaker, I appreciate the question from the leader of the Green Party. Personally, I understand and appreciate the value of Crown corporations because through them we can build in an arm’s-length component, which I would argue allows them to be far more efficient and better able to deal with the types of projects that have been assigned to them. There are many examples at all levels of government. Whether it is municipal, provincial or federal governments, they have clearly demonstrated that, through a Crown corporation, we can ensure a higher sense of accountability and transparency while at the same time—

Eric Duncan, Stormont—Dundas—Glengarry

Conservative
“I want to know why the government is removing rules around giving contracts without competition. This bill creates about 13 ways to skip the normal bidding process. That cuts down on transparency and stops Parliament from checking how money is spent.”
Official Hansard

Mr. Speaker, my question for the hon. member focuses on accountability and transparency. What is being proposed here, the government says, is a better effort to procure defence items, which as a whole, at a far glance or an upper look at things, would be agreeable. However, the transparency is with respect to the amount of sole-sourcing. I believe, if I am correct, off the top of my head, there are about 13 exemptions where the minister or that agency would have the opportunity to sole-source without very much transparency. This leads us to the many different examples we have seen over the course of time of removing the transparency, accountability and connection to Parliament to be able to scrutinize things as thoroughly as possible. My question for the member is, why are the Liberals removing the transparency and guardrails around the sole-sourcing of contracts at a time when we need more?

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“This bill keeps the government accountable. It creates a new Crown corporation and makes an associate minister permanently responsible for it, so Parliament and the public have someone to answer to.”
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Official Hansard

Mr. Speaker, within the legislation is the idea of having an associate minister become permanent. Through that associate minister, we would receive that accountability. Therefore, not only is there a Crown corporation that in a very tangible way ensures transparency and accountability, but we also have, through the legislation, a government that is saying that it is not going to surrender all aspects of accountability. By having an associate minister tied to it, that means that members of Parliament in the House, and through them the public as a whole, would still have a minister, a go-to political individual, who ultimately has to be accountable.

Marilène Gill, Côte-Nord—Kawawachikamach—Nitassinan

Bloc Québécois
“The government is winging it. One bill creates an agency to solve a problem, but another bill cancels that same agency before we even finish debating it. The government should have prepared a finished plan. Why did it give up on its first idea so quickly?”
Official Hansard

Mr. Speaker, I would like to talk to the Parliamentary Secretary to the Leader of the Government in the House of Commons about winging things. My colleague from Pierre-Boucher—Les Patriotes—Verchères spoke to this earlier. It was one of the concerns he had about the bill. As we saw in Bill C-31, the government is trying to create an entity to address the problem currently under debate. At the same time, Bill C-40 scraps the idea the government proposed in Bill C‑31. If that is not winging it, what is? Either the government is not ready to propose an idea, or it is proposing an idea that is still being debated. This morning, Bill C‑31 was discussed in committee, yet here we are in the House debating a different bill, Bill C‑40, that discards what is set out in Bill C‑31. Seeing both ideas up for debate at once, without either of them having been tried and critiqued, makes me wonder why the government did not simply prepare something that was finished, rather than something that requires corrections along the way. Can my colleague tell me why the government no longer wants to go through with what it had previously proposed in Bill C‑31?

Kevin Lamoureux, Parliamentary Secretary to the Leader of the Government in the House of Commons

Liberal
“Creating this government-owned corporation quickly is the best way forward. Our military deserves it, and it protects our economy and our national defence.”
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Official Hansard

Mr. Speaker, I believe the government, through the Prime Minister, recognizes the value of moving forward with a Crown corporation, and this is the best way to do it. We do not need to wait six months to a year to do so. We are moving quickly. The members of our Canadian Forces deserve it. In terms of Canadian sovereignty, both economical and military, this is the type of direction that I believe is good for the—

Tim Watchorn, Les Pays-d'en-Haut

Liberal
“I support this bill. It creates a new Crown corporation and updates our defence laws so the military and security agencies can buy equipment and services faster. This will help our armed forces face new threats and keep pace with our allies.”
Official Hansard

Mr. Speaker, I would like to begin by offering my deepest condolences to the families of the soldiers who lost their lives at CFB Wainwright this past weekend. Our thoughts are with their families and the families of the injured. Transforming the Defence Investment Agency into a Crown corporation would ensure that Canada is better prepared to meet defence and security challenges now and in the future. The agency will have the tools, flexibility and expertise to make strategic investments and respond more quickly to the needs of our armed forces and Coast Guard. This transformation is central to Bill C‑40, the strengthening Canada’s defence sector act. However, I would also like to draw the attention of the House to the significant amendments this bill would make to the Defence Production Act. These changes will better prepare Canada for an increasingly complex security environment. They are essential to strengthening our industrial base and ensuring that our defence procurement system can provide the armed forces and our national security partners with the capabilities that they need when they need them. The Defence Production Act has been a cornerstone of Canada’s defence procurement framework since the Korean War. Over time, as the security environment and the nature of national defence have evolved, the act has been amended a number of times. As the world continues to change rapidly, the legislation needs to adapt as well. In recent years, we have witnessed growing instability and unpredictability around the world. New threats have emerged, supply chains have become more vulnerable, and the importance of economic security has become impossible to ignore. At the same time, our allies have invested heavily in their defence industrial capacity so they can produce critical equipment and technologies quickly and at scale. Canada must keep pace with its allies. For many years, this act has guided our defence procurement and industrial strategy policies. However, it was designed for a very different era. Bill C‑40 modernizes this legislative framework to reflect today’s security realities and the increasingly close ties between defence, security, technology and economic resilience. Historically, the act focused primarily on defence equipment and infrastructure exclusively for national defence purposes. Bill C‑40 expands its scope to include national security and services related to both national defence and national security. This broader scope recognizes that contemporary threats rarely fit neatly within traditional categories. Protecting critical infrastructure, advanced technology, intelligence capabilities and supply chain security all play a role in protecting Canadians. Another important amendment seeks to clarify and expand procurement authorities. Under the Canadian corporation for defence investment act, the Minister of Government Transformation, Public Works and Procurement and Quebec Lieutenant would have exclusive authority to acquire supplies and services related to defence and security, not only for the Canadian Armed Forces and the Department of National Defence, but also for other federal departments, boards and agencies in the area of national security. After all, national security is a government-wide responsibility. Whether supporting border security, the protection of critical infrastructure, emergency preparedness or intelligence operations, federal departments and agencies are increasingly dependent on specialized equipment and services that contribute to our security objectives. It is important to recognize that maintaining national security is not limited to the procurement of goods and services. That is why Bill C‑40 allows the new associate minister of national defence for procurement to perform financial assistance operations related to production or investment in respect of defence or national security. These new powers will allow the government to play a more active role in strengthening Canada’s defence and national security industrial base. We are fostering innovation that supports strategic capabilities and ensuring that critical technologies and manufacturing capabilities remain available to Canada and our allies. This represents a real shift in perspective. Rather than viewing defence procurement as merely a purchasing exercise, this measure recognizes that it is part of a broader industrial and economic strategy. Investing in our industrial capabilities helps strengthen our sovereignty, reduces our vulnerabilities and supports good jobs across Canada. The proposed amendments to the Defence Production Act are only one part of a broader, comprehensive package of reforms set out in Bill C-40. These reforms include the creation of a Crown corporation responsible for carrying out production, procurement and investment activities in respect of national defence for the benefit of the Canadian Armed Forces and the Department of National Defence. It should be mentioned that the minister of public works and procurement would remain responsible for the Defence Production Act. As we modernize Canada’s defence production and procurement framework, accountability remains key. Bill C-40 strikes a balance between agility and accountability. It seeks to remove unnecessary barriers that can delay the delivery of essential capabilities to the armed forces, while maintaining government oversight of important decisions. Bill C-40 delivers on both. At the end of the day, our goal is not just to spend more or move faster. These changes are meant to create an efficient, transparent and accountable defence procurement and production system that delivers results for our armed forces while maintaining the trust of Canadians. At its core, this bill is about preparedness. It is about ensuring that Canada has the legislative tools it needs to build key capabilities, strengthen its domestic industrial capacity, support innovation, secure its supply chains and respond decisively to emerging threats. This bill reflects the reality that national defence and national security are increasingly closely tied to economic resilience, advanced technologies and industrial policy. Our government is proposing substantial yet necessary amendments to the Defence Production Act. These amendments broaden the scope of the act, strengthen procurement authorities, introduce new investment tools and establish updated procurement rules that are appropriate for the current security environment. Taken together, these measures aim to create a framework that is more agile and responsive and focused on Canada’s strategic defence and security priorities. This bill represents one of the most significant updates to Canada’s defence production and procurement framework in decades. It reflects a clear recognition that security challenges are evolving and that Canadian institutions must evolve with them. That is what Bill C‑40 is all about. That is how our government is making sure Canada remains safe, secure and sovereign. I look forward to taking questions from my colleagues about my speech.

Cheryl Gallant, Algonquin—Renfrew—Pembroke

Conservative
“The government is using borrowed tax dollars to invest in defence companies it buys equipment from. How do we know taxpayers are getting the best value? This is a conflict of interest because the people buying the equipment have money in the companies selling it.”
Official Hansard

Mr. Speaker, with the federal government investing, using borrowed taxpayer dollars, in the very companies that will be tendering bids and offering their models of equipment for purchase by the Canadian government, how do we know that we will get the best value for our dollar? How is it not a conflict of interest that the very people making the decisions on what equipment the government is going to buy have money invested in these defence companies?

Tim Watchorn, Les Pays-d'en-Haut

Liberal
“We want to make sure Canadian companies build as much of our defence equipment as possible. We are committed to raising Canadian content in our defence spending from 30% to 70%.”
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Official Hansard

Mr. Speaker, in our defence industrial strategy, we have three pillars: build, partner and buy. We have to make sure that Canadian companies are involved in the building of the maximum possible quantity of defence equipment and defence supplies. That is the reason we have to make sure that Canadian companies are always at the head of the line when it comes to defence procurement. We have made the commitment to go from 30% to 70% Canadian content in our defence spending. That is something we will definitely adhere to.

Marianne Dandurand, Compton—Stanstead

Liberal

Linked statement

“This defence plan could bring economic benefits to regions like mine. I want my colleague to explain what kind of benefits our communities can expect.”
Official Hansard

Mr. Speaker, I thank my colleague from Les Pays-d’en-Haut, who has been very active on the procurement and defence file, including for the benefit of the regions. We know that regions like his or mine, Compton—Stanstead, could benefit from the economic spinoffs associated with the defence procurement strategy. I would like my colleague to elaborate on the type of spinoffs we might expect to see in regions like his or mine.

Tim Watchorn, Les Pays-d'en-Haut

Liberal
“Defence spending is already helping our economy. A company in Mirabel got a $1.5-billion plane maintenance contract, and a new defence innovation centre is opening there. These projects give good jobs to local aerospace workers.”
Official Hansard

Mr. Speaker, we do not need to wait for the spinoffs, because they are already here. A $1.5-billion maintenance contract was awarded to L3Harris in Mirabel, in the Laurentians, for the CC-330 Husky refuelling aircraft. It has already been determined that the DISH, the defence innovation secure hub, will be established near Mirabel. Every person who lives in the Laurentians and has a good job in the aerospace sector will be able to benefit from these contracts and many more in the future, including Bombardier’s contract for the Global 6500 jets.

Marilène Gill, Côte-Nord—Kawawachikamach—Nitassinan

Bloc Québécois
“I want to know why the government dropped its first defence bill to replace it with this new one. Switching bills so quickly makes it look like the Liberals are just making things up as they go.”
Official Hansard

Mr. Speaker, I did not get an answer earlier from the parliamentary secretary to the government House leader, so I will ask my colleague opposite the same question about Bill C-31 and Bill C-40. The Liberals were trying to create something with Bill C‑31, which we are still debating, but it will likely end up being scrapped because they are replacing it with Bill C‑40. Why did the government change its mind about something that was supposed to be such a good idea? With the Liberals switching so quickly from Bill C‑31 to Bill C‑40, does it not seem like they are just winging it?

Tim Watchorn, Les Pays-d'en-Haut

Liberal
“We always planned to turn our temporary defence agency into a Crown corporation. Countries like the United Kingdom, Australia, Turkey, and Sweden already do this successfully. Our military needs modern tools quickly because technology changes fast. A Crown corporation will get our troops what they need.”
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Official Hansard

Mr. Speaker, the Defence Investment Agency was always intended to be a temporary measure. The goal was always to create a Crown corporation. That is what we are doing now. The benefits have been clearly demonstrated in other countries, such as the United Kingdom, Australia, Turkey and Sweden. They have models very similar to what our government is proposing today. The rationale has always been this: It is absolutely essential to provide our military personnel with the capabilities they need as soon as possible, given the technological changes we are seeing on a daily basis. A Crown corporation will do exactly that.

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