Bill C-44 (Historical)

Protection of Canada from Terrorists Act

An Act to amend the Canadian Security Intelligence Service Act and other Acts

This enactment amends the Canadian Security Intelligence Service Act to give greater protection to the Canadian Security Intelligence Service’s human sources. Also, so as to enable the Service to more effectively investigate threats to the security of Canada, the enactment clarifies the scope of the Service’s mandate and confirms the jurisdiction of the Federal Court to issue warrants that have effect outside Canada. In addition, it makes a consequential amendment to the Access to Information Act.
The enactment also amends the Strengthening Canadian Citizenship Act to allow for the coming into force of provisions relating to the revocation of Canadian citizenship on a different day than the day on which certain other provisions of that Act come into force.

Second Reading

[David McGuinty, Liberal, Ottawa South, ON]

Mr. Speaker, the short answer is, no. I think I posed a fair question for the member for Yukon, who, to restate what he said, stated that the events last month occurred “due to the lack of appropriate legislative tools” available.

I asked the member for Yukon and the government to describe and explain exactly how that was. What was the causal connection that he was asserting? It was a very serious assertion to make. What powers were not already in place that could perhaps have trumped or prevented this from occurring? Where have CSIS, the RCMP, or our law enforcement agencies said publicly that they need X new power or Y new power to make sure that this does not happen again? The government has not explained this.

This is precisely why we need to get this to committee and ask the tough and probative questions so that we can make sure that we achieve what Aristotle once described in French as le juste milieu, the right balance between the powers we invest in our law enforcement agencies and that human rights that make our Canadian lifestyle the best in the world.

The House resumed consideration of the motion that Bill C-44, An Act to amend the Canadian Security Intelligence Service Act and other Acts, be read the second time and referred to a committee.

Protection of Canada from Terrorists Act

[Bernard Trottier, Conservative, Parliamentary Secretary to the Minister of Public Works and Government Services]

Mr. Speaker, I am pleased to rise today to speak to Bill C-44, the protection of Canada from terrorists act. Countering terrorism is a key priority of our Conservative government. Events in the Middle East, including the ongoing conflict in Syria and Iraq, as well as the recent tragic events on Canadian soil, have raised the spectre of violent extremism.

These events have only strengthened our resolve as we have heard our law enforcement and intelligence officials speak about the threat posed by extremist travellers and indeed as we have witnessed some very disturbing attacks on our soldiers and on the House.

Our government will do anything we can to prevent Canadians from becoming either victims or perpetrators of terrorism-related activities. Make no mistake, the horrific events that happened in Canada on October 20 and 22 were most certainly terrorism. While the leader of the NDP is entitled to his own opinions, he is not entitled to his own facts.

The Criminal Code clearly states that a terrorist act is one of violence, seeking to create fear for political, religious or ideological ends. The RCMP confirms that both of these events had those elements, and our allies agree. Just yesterday, the President of France confirmed his country's position, as recently did the U.S. Secretary of State that these were terrorist acts.

We continue to be guided by the four-pronged approach laid out in our counterterrorism strategy, namely measures to prevent, detect, deny and respond to the threat of terrorism. I will take my time today to speak about some of the important work being done in support of our strategy, namely in the area of prevention and detection.

In terms of the prevent element, I would note that Public Safety Canada is the lead federal department for addressing the issue of violent extremism and it does so in close collaboration with a number of departments and agencies, in particular, the Royal Canadian Mounted Police. An important way to address violent extremism is by preventing it from happening in the first place. Our work to counter violent extremism is predicated on three complementary elements: building community capacity; building law enforcement awareness through training; and developing programs to stop radicalization to violence through early intervention.

There are a number of specific initiatives I could point to here, including in-depth dialogue with communities on radicalization to violence, but I want to emphasize the importance of the work being done under the Kanishka project contribution program.

Named in memory of the victims of Air India Flight 182, our government committed $10 million over five years in support of valuable academic research to help inform our understanding of what we could do to stop terrorism.

Research supported by the project will increase our knowledge of the recruitment methods and tactics of terrorists, which will help produce more effective policies, tools and resources for law enforcement and people on the front lines.

In terms of the detect element, I first want to note that we have had some noteworthy successes in disrupting terrorist plots in our country. Successful arrests, prosecutions and convictions in Canada are a testament to the fact that our national security agencies work effectively with partners and communities. However, to be clear, more needs to be done in the areas of surveillance, detention and arrest.

The events of late October this year offered a stark reminder that the status quo simply is unacceptable. Sadly, we had to lose two brave members of the Canadian Armed Forces to have the point hit home that while we must not overreact to the terrorist threat, we certainly must stop under reacting

That is why work to improve our capabilities in support of detection is an area in which the Government of Canada is active. That is, in fact, why we are here today to debate the first step forward.

The Prime Minister has been clear about the need to ensure our security and intelligence community have the tools they need to confront the terrorist threat.

As members may be aware, the legislation before us today contains provisions to update the governing legislation of CSIS, the Canadian Security Intelligence Service Act. There is no question the threats to Canada's security have changed dramatically since the passage of the CSIS Act in 1984. For context, this legislation has not been updated since the first Apple Macintosh was sold.

Given that the threat from terrorism is now more complex and diffuse, this legislation would go a long way toward giving CSIS the clarity it would need to investigate threats to the security of Canada wherever they may occur.

To that end, the proposed legislation contains amendments that would confirm CSIS' authority to investigate threats outside of Canada.

CSIS has always had authority to conduct investigations outside of Canada, because threats to the security of Canada do not stop at our border. However the CSIS Act needs to be clearer in stating this fact. Confirming CSIS' authority would ensure that CSIS has the ability to fully investigate the threat posed by Canadians who travel abroad to engage in terrorist activities. This would help ensure that those individuals would be tracked, investigated, and ultimately prosecuted.

Bill C-44 also contains amendments to help CSIS protect the identity of its human sources in court proceedings, as well as its employees who are likely to engage in covert operational activities in the future.

While we debate Bill C-44, I would like to draw to members' attention a few other important pieces of legislation that only further demonstrate our government's resolve to combatting terrorism.

The Combating Terrorism Act, which came into force in May 2013, makes leaving or attempting to leave Canada for terrorist purposes a criminal offence. Unfortunately, the NDP voted against this common-sense legislation.

Another important tool that we continue to use is the listing of terrorist entities under the Criminal Code. Once a terrorist group is listed as an entity, it becomes a criminal offence for any Canadian to provide financial assistance to the group or to enhance its ability to carry out terrorist activity.

In light of ongoing events in Iraq, the Government of Canada listed ISIL, for example, as a terrorist entity. The listing of terrorist entities facilitates prosecution of both the perpetrators and supporters of terrorism. Given the fact that these groups require money to function, listing is also advantageous in countering terrorist financing.

It is also important to note that Canada works closely with its international allies to confront the terrorist threat. Clearly, the challenges Canada continues to face with respect to terrorism are ones our allies also face, so collaboration with our partners will be key to our counter-terrorism efforts.

In conclusion, I want to assure all Canadians that our government is, as ever, committed to ensuring the safety and security of Canadians at home and abroad. That is what Bill C-44 is all about. I call on all members to support it.

[Wayne Marston, NDP, Hamilton East—Stoney Creek, ON]

Mr. Speaker, for my friend across the way, when the government was considering Bill C-44, did it take into consideration the recommendations of Justice O'Connor from the Maher Arar commission and Justice Iacobucci from the investigation into the torture of Abdullah Almalki?

Both of those reports were very significant and very important to Canadians, especially in the area of oversight of Canadian civil rights.

[Bernard Trottier, Conservative, Etobicoke—Lakeshore, ON]

Mr. Speaker, of course that report was considered. All of the intelligence we have gained over the years and the developments in terrorist activities we have seen in Canada and around the world have led to the formation of this bill.

One of the important conclusions that came from that report and others is the need for clarity, in terms of the role of CSIS and the role of the Federal Court in providing oversight. It is that lack of clarity that can lead to problems; hence the need for Bill C-44. It would give CSIS and other intelligence services a clearer mandate in exactly what their roles and responsibilities are, clearer protection for witnesses and informants, and also a clearer definition of the role of the Federal Court, as well as the oversight bodies, to make sure that these kinds of injustices do not occur in the future.

[Wayne Easter, Liberal, Malpeque, PE]

Mr. Speaker, the member said that part of the bill would confirm the authority of CSIS as it has been operating, and that is true. We support that.

However in response to the last question, he talked a little about oversight. There are two issues here. One is the proper financial resources for CSIS and others it is connected to under the responsibility of the government to do its job.

We now know that CSIS has lapsed $18.2 million last year. The RCMP has lapsed $158.6 million. Canada Border Services Agency has lapsed $194.2 million. These are monies that were allocated to them and not used. That is a problem, and we had better put our finger on it.

On the oversight the member mentioned, why did the government not seize this opportunity to provide proper parliamentary oversight to all our national security agencies when it brought in this bill? All our Five Eyes partners have parliamentary oversight, and that is something Justice O'Connor looked at as well. Why did the government miss that opportunity to give this House the ability to take its responsibility to provide oversight to those national security agencies?

[Bernard Trottier, Conservative, Etobicoke—Lakeshore, ON]

Mr. Speaker, there were two questions there. I will talk about the second question first, and then I will try to address the first question.

To the second question on oversight, there actually is very good oversight right now, and multiple levels of oversight. Very independent judges provide that oversight. I would also note that the Liberal Party did nothing to change the oversight of CSIS during its tenure of 13 years in a majority government. Having said that, it actually works quite well. The federal judge who oversees the oversight board has commented that Canadian laws are respected in all of the activities of CSIS.

With respect to the funding of CSIS and making sure Canadians are protected from acts of terrorism, we are getting into the business of appropriations and supply, and lapses of project-based spending. The Government of Canada is committed to investing in our security capabilities. This House should rest assured that we will spend the money necessary to protect Canadians from terrorist activities.

[Wayne Easter, Liberal, Malpeque, PE]

Mr. Speaker, I would hate for there to be wrong information on the record. The Liberals did, in fact, introduce a bill in 2005 for oversight.

[Andrew Cash, NDP, Davenport, ON]

Mr. Speaker, it is an honour to rise in this place on behalf of the good people of Davenport in the great city of Toronto.

The people in my community are watching this debate very carefully. I think it is fair to say that Canadians from coast to coast to coast are watching this debate carefully because we are in an era where we have a government that believes we can treat our civil liberties as a secondary thought to security. The position of New Democrats has always been that we must treat both in equal measure and be as vigilant in protecting civil liberties as we are in protecting security. It is not a question of balance; it is a question of what our values are as Canadians and who we believe we are. These values, which are the foundation of a liberal democracy, are what we are trying to protect and secure. We cannot trade them away in that pursuit.

The NDP's questions around some of the issues in this bill are around oversight, and the questions on oversight exist because we believe there is not a trade-off. This is not an either/or situation. It is not that we have to find a balance, that in order get security right, we may have to clamp down a bit on civil liberties. We do not believe that is the case, and Canadians share those concerns.

I want to focus on a couple of elements of the bill, which are concerns for the community I represent. This flows from other decisions that the government has made around the creation, in a way, of two-tiered citizenship in Canada, where people in Canada could be stripped of their citizenship. The government often says that the NDP is soft on these issues, but in fact, when people break laws in this country, they should go to jail. If they are citizens of Canada, they should go to jail.

I am proud to represent a riding in the west end of Toronto that has huge communities of immigrants. More than half of those who live in Toronto were born elsewhere. They take their belonging to Canada very seriously and are very proud of it. The notion is of grave concern that down the road their status in Canada, through no fault of their own, could be somehow diminished or lessened by legislation and the direction of the government. I hear it in my office; I hear it out on the street; I talk to people all the time who are really very concerned about the government. I am talking about immigrants in Toronto who are very concerned about the government's fixation on picking off certain communities and creating a climate of concern and fear. Quite frankly, it is our role as parliamentarians to elevate the debate, bring out the best in who we are, and bring people together.

The changes to the Canadian Citizenship Act in Bill C-44 would not really provide any major changes, other than accelerating the timelines for citizenship revocation for dual citizens involved in terrorist activities, the process for citizenship revocation that we debated in the House and I am proud that my party opposed. They remain unchanged; it is just the speed with which this can be achieved.

Our citizenship is a precious thing. We have laws in our country to deal with those in our society who break them. Our position has always been that our tinkering with citizenship is a slippery slope, and it is not what we should be doing, especially given the history of our country, the history of immigration in this country, and the successful history of our immigrant communities in Canada. We have a phenomenal story to tell. Our immigrant communities have a phenomenal story to tell.

In light of recent events, the Muslim community in particular in my riding is concerned about being targeted. It is a disturbing reflex of the Conservative government to try to place responsibility for individuals on a whole community. The concern in the Muslim community I represent is real. These are hard-working, honest, proud Canadians, and they abhor violence, just like anyone else in Canadian society. What we are talking about today connects to that concern. It is spoken about in a number of supporting documents, which I would like to underline.

I want to particularly point out comments made by former Justices O'Connor, Major, and Iacobucci at the October 29, 2014 conference called “Arar +10: National Security and Human Rights a Decade Later”:

Retired Supreme Court justice Frank Iacobucci, who investigated the overseas detentions and torture of three Muslim Canadians...warned that history has much to teach legislators....

Iacobucci cautioned about “the spillover effects” that any rush to expand police powers could have on freedom of religion, association and expression; the possible “tainting” of Canada's Muslim community, and the risk of “overreaching” by security intelligence agencies when sharing information in a global fight against terrorism.

It is important for us to bring the issue of what Justice Iacobucci refers to as tainting Canada's Muslim community close to home.

A couple of days after the shooting that took place here, I visited the mosque in my riding. As members may remember, Torontonians were in the middle of a municipal election in Toronto, and Muslim candidates in that election had signs vandalized that day. Muslim candidates were facing threats at public meetings.

It is incumbent upon us as legislators here in the Parliament of Canada to ensure that all Canadians, all people living in Canada, feel safe and feel that their civil liberties are protected and are as important as every other consideration in security.

[Wayne Marston, NDP, Hamilton East—Stoney Creek, ON]

Mr. Speaker, I appreciate that this is my second time rising. In regard to my question for the government a few minutes ago about Justice O'Connor and the recommendations from the Maher Arar inquiry and the recommendations by Justice Iacobucci relative to the Abdullah Almalki case, I would like to ask my friend if, when he reviewed Bill C-44, he saw in the information we have before us any indication that the government followed any of those recommendations. I do not see it.

[Andrew Cash, NDP, Davenport, ON]

Mr. Speaker, I would like to thank my colleague for his very important work on issues of human rights and civil liberties.

Indeed, I have not heard the government speak once about the importance, if we expand the scope of CSIS, of expanding its oversight. This is a very clear gap in this legislation. It is one we will need to close. I believe that we will be advocating quite strongly for that if this bill goes to committee.

[Wayne Easter, Liberal, Malpeque, PE]

Mr. Speaker, I do not think there is any question that this bill should go to committee. In fact, I am on that committee.

The member said he would like to see some amendments. We are not very successful in this Parliament, with government legislation, in having the government actually listen to sensible positions from opposition parties of any stripe. I would give the member the opportunity to talk a little bit about what needs to done and to maybe explain why it is necessary that the government see this as an opportunity to accept an amendment or two and actually improve the legislation.

[Andrew Cash, NDP, Davenport, ON]

Mr. Speaker, the issue of civilian oversight of CSIS and our security apparatus is crucial here. Again, it is fundamental to the protection of civil liberties and to the foundation of a liberal democracy to have that civilian oversight. This is not just the opposition speaking. Privacy commissioners across Canada and senior members of the Canadian legal establishment have said the same thing.

We have seen this government steamroll through legislation and in a very determined way not listen to any advice from the opposition. I really hope, especially in light of the tragic events of the last month, that the government does not use those events and the feelings and concern they have created among Canadians to make some serious mistakes with this bill. We will all be working very hard in committee to ensure that this does not happen.

I hope the government proceeds in the spirit of doing what we need to do to preserve, nurture, and enrich civil liberties while maintaining a rigorous security understanding of what we need here in Canada.

[Blake Richards, Conservative, Wild Rose, AB]

Mr. Speaker, it is pleasure to rise today to speak to this important legislation. Bill C-44 is a bill I am proud to support, because it introduces much-needed amendments that will help keep Canadians safe and secure from terrorists. Before highlighting the proposed changes, I would like to have a few moments to situate the bill in a larger context.

Earlier this year, the Minister of Public Safety and Emergency Preparedness released the “2014 Public Report on the Terrorist Threat to Canada”. The report updates Canadians on the terrorist threat in, unfortunately, a sobering way.

In 2013, Canada listed six groups as terrorist entities. There have been four more added so far in 2014, which means that there are currently 53 groups on Canada's terrorist entity list. If I may, I would like to give members one example of a group that was listed in December 2013 and explain why it is a dangerous group.

The Nigerian-based Boko Haram is a group that believes that western education is sinful. Six months ago, it kidnapped some 200 girls from a remote school. Earlier this month, in what can only be described as a toxic and hate-filled video, the leader of Boko Haram put the release of these girls in serious doubt. Horrifically, the leadership of this despicable terrorist organization has talked openly about how these kidnapped girls have been sold off as chattel and given away as sexual objects.

Whether terrorist acts are carried out by entities or individuals, the number of incidents is staggering. In 2013, more than 9,700 terrorist incidents were reported in 93 countries. Some 33,000 people were injured, and nearly 3,000 were abducted or held hostage.

Canadians are at risk. When al Shabaab attacked the Westgate mall in Nairobi last year, they killed 68 people. Among the dead were a Canadian businessman and an employee of the Government of Canada. Through no fault of their own, those two Canadians were simply in the wrong place at the wrong time. Unfortunately, in our globalized world, where Canadians travel frequently for pleasure and business, it is easier than ever for this to occur.

More disturbing still, the impact of terror on Canadians is not always a matter of coincidence. As the report makes clear, Canadians are not only the victims of terrorism. Unfortunately, in some cases, there are those in Canada who are also the perpetrators.

Members may recall that in the spring of 2013, two men living in Toronto and Montreal were charged with plotting to attack a VIA Rail passenger train. Through the diligence of our security agencies, the attack was thwarted before any damage was done. However, the incident could easily have been a tragedy. A few months later, in Victoria, two other individuals were arrested in connection with a separate plot to bomb the provincial legislature on Canada Day. Thanks to collaboration between intelligence and law enforcement officers, the attack was foiled. Again, this incident could easily have turned out much worse.

I hope these two incidents were a wake-up call to the sceptics. They reaffirmed that the threat of terrorism is not limited to far-flung lands across the ocean. No, these despicable acts could also take place right here on our own soil.

I spoke a moment ago about globalization and how the terrorist threat to Canada continues to evolve, but as the report makes clear, there is also a group of Canadians who travel for the sole purpose of engaging in terrorist activities. They are known by various names: extremist travellers, foreign fighters, or terror tourists. It is a complex phenomenon, but there is one thing that is clear: these extremists pose a threat to innocent people, both here at home and abroad.

Let us look more closely at this emerging trend, because it is closely related to the proposed amendments contained in Bill C-44.

The government knows of approximately 145 individuals with Canadian connections who were abroad and who were suspected of supporting terrorism-related activities of various groups. These activities range from serving in combat to learning how to support terrorism through fundraising, propaganda, and training. Some of these recruits may return home with new skills to spread hatred and, unfortunately, with the resolve to plan and carry out terrorist attacks here in Canada.

What sends a person down the dark road to terrorism? What happens to make someone adopt such extremist views? How can we manage the risks of radicalization more effectively?

These are difficult questions, and they have no simple answers. Nevertheless, our government is taking action to answer these and other difficult questions. In this way, we continue to build resilience to the threat of terrorism in our country, and I will give members several examples.

At the community level, we work through the Cross-Cultural Roundtable on Security to better understand how to combat the appeal of extremist ideologies.

On the policy level, the government released its counterterrorism strategy in 2012. This is a comprehensive road map to help us better prevent, detect, deny, and respond to terrorist threats. On the legislative side, Parliament enacted legislation in 2013 that created four new offences to deter so-called extremist travellers. These are all necessary and positive steps, but we must do more.

This brings me, of course, to Bill C-44, the protection of Canada from terrorists act.

There are two components of the proposed legislation.

First, the bill before us would amend the CSIS Act to address court decisions that are having an impact on CSIS's mandate and operations. In light of these decisions, our government is acting to ensure that CSIS has the tools it needs to investigate threats to the security of Canada. It is doing this by confirming the authorities granted to CSIS outside of Canada and creating stronger protection for the identities of CSIS's human sources. The amendments proposed in Bill C-44 would ensure that CSIS is able to fully investigate threats in a manner that is consistent with the rule of law and with Canadian law and Canadian values.

The second element of the bill would amend the Strengthening Canadian Citizenship Act, which received royal assent this past summer. Specifically, it would expand grounds for revocation of Canadian citizenship and streamline the process for making these difficult decisions. These provisions are aimed at dual citizens who have served as members of an armed force or an organized armed group engaged in armed conflict with Canada. They also target dual citizens who have been convicted of terrorism, high treason, treason, or spying offences, depending, of course, on the sentence imposed.

The events of recent weeks have certainly brought into sharp focus the fact that Canada is not immune to acts of violence. In fact, we have learned it is far from that. Canadians have been victims of terrorism, and a small but unfortunately notable number are also suspected of supporting terrorism-related activities. We must ensure that our security and intelligence agencies can take reasonable measures at home and abroad to protect the safety and security of Canadians.

The bill before the House today would move us closer toward these goals, and I urge all hon. members to join me in supporting it.

[Tyrone Benskin, NDP, Jeanne-Le Ber, QC]

Mr. Speaker, my colleague across the way talked about the need to deflect radicalization. As my colleague, the member for Davenport, mentioned earlier, one of the biggest issues for all immigrants is a sense of inclusion in their adopted land. These individuals are vulnerable because they feel a lack of inclusion.

How can the changes to passports or citizenship make individuals feel as if they belong when there will be this perpetual cloud hanging over them because they are “not from here”? I wonder how that would help create a sense of inclusion and how that would help with the non-radicalization of new arrivals in Canada.