Borden's guess wasn't entirely correct.
Shire didn't include tanks and other heavy equipment for two reasons: first, he believed Canada didn't particularly need them, and second, to test Canada's hidden agenda.
Canada not particularly needing them was because Canada is on the strategic defense side. They need anti-tank artillery more than tanks.
The purpose of testing the hidden agenda was that Shire hoped to use tanks and other heavy equipment to exchange for more resources from Canada.
If Borden clearly told Shire:
"I'm sorry, Vice Admiral."
"These pieces of equipment don't satisfy us. We still need the production rights for tanks, armored vehicles, and other heavy equipment."
"Only then can we ensure our own safety and dare to sign a contract with you."
At that point, Shire would immediately add the heavy equipment without hesitation, still at half price or even give it away for free.
