Foreign Affairs Committee on March 23rd, 2011

[The Chair, Conservative, Dean Allison]

I'm going to call the meeting to order.

Pursuant to Standing Order 108(2), we're going to continue our study of the Canadian and international disaster response and the situation in Haiti.

I'm sorry for the confusion. There was going to be a motion passed or discussed quickly, but Mr. Reid is not here, so we'll go ahead with our witnesses. Then we'll look at trying to deal with that between this meeting and the next meeting, when we talk about Sudan.

I want to thank our witnesses for being flexible. Thank you once again for being here.

We have Mr. Mike Cabana, from the Royal Canadian Mounted Police, who is the Assistant Commissioner of Federal and International Operations. Thank you, and welcome, sir. We also have, from the Correctional Service of Canada, Marty Maltby. Welcome as well.

Do you both have statements today? Who would like to go first?

Mr. Cabana, why don't we have you up first for 10 minutes, and then we'll get to Mr. Maltby's statement after that.

Thank you, and welcome.

[Assistant Commissioner Mike Cabana, Assistant Commissioner, Federal and International Operations, Royal Canadian Mounted Police]

Thank you very much, Mr. Chair. I don't think I'll be taking the full 10 minutes.

Thank you very much, honourable committee members, for the opportunity to appear before you today to discuss Canada's policing contribution to the United Nations stabilization mission in Haiti, commonly known as MINUSTAH.

My discussion is going to focus on the events following the earthquake of January 12, 2010.

Since 2004, over 500 Canadian police officers, representing federal, provincial, and municipal police services, have been deployed to MINUSTAH as UN police officers, otherwise known as UNPOL. Under the Canadian police arrangements--the CPA--the RCMP has funding to deploy up to 100 Canadian police officers to Haiti.

UNPOL in Haiti are primarily mandated to assist the Government of Haiti with ensuring a more secure and stable environment by monitoring, restructuring and reforming the Haitian National Police.

They are also responsible for assessing and identifying current training standards and needs of the Haitian National Police, providing specialized assistance during evacuations and disasters such as earthquakes, flooding, hurricanes, as well as security during elections.

Essentially, they assist with a wide range of activities to restore and promote public safety and the rule of law.

The devastating earthquake of January 12, 2010, resulted in the deaths of more than 220,000 Haitians and 102 UN personnel, sadly including two of our own Canadian police officers from the RCMP, Chief Superintendent Doug Coates and Sergeant Mark Gallagher, who lost their lives that day as a result of the destruction caused by the earthquake.

The overall operational capacity of MINUSTAH was severely weakened in the early stages of the disaster as its personnel, including Canadian police officers, were also victims of the devastation. They lost friends and housing and suffered from food and water shortages. Despite these limitations, during the response phase of the disaster, Canadian UNPOLs responded with tremendous courage and resilience. Given the scale of losses suffered by the Haitian National Police, MINUSTAH security forces focused their effort on supporting the operational capacity of the HNP to maintain security and public order during the emergency.

Canadian police officers assisted by rescuing victims from collapsed buildings, by providing first aid, by delivering humanitarian aid, by conducting security patrols, and by escorting aid organizations as they arrived in Port-au-Prince. Outside of their duties with MINUSTAH, and under these exceptional circumstances, Canadian police officers also provided additional security at the Canadian embassy in Port-au-Prince and provided security escorts to Canadian victims being repatriated to Canada.

The ability of our police officers to respond so quickly and professionally was supported by the Canadian Forces, which provided transportation of relief supplies and personnel to Haiti, as well as logistical support on the ground within the first 48 hours of the event.

By January 19, 2010, the UN Security Council had increased the overall capacity levels of MINUSTAH to support the immediate recovery, reconstruction, and stability efforts. Since the earthquake, the police component has nearly doubled from its pre-earthquake numbers.

In support of this, Canada increased its numbers by funding the deployment of an additional 50 police officers under the Haiti reconstruction program, with funding from the international assistance envelope crisis pool.

Canadian UNPOLs continue to contribute significantly to the recovery process. With the displacement of more than 1.3 million people to internally displaced persons camps, the focus of police activity has shifted to protection of those locations, especially for the most vulnerable.

Canadian police officers are a valuable resource for MINUSTAH, as many are bilingual and some even speak Creole. During the past year they have assisted with the development of community policing programs as well as patrolling within these camps.

As my Correctional Service Canada colleague will undoubtedly confirm, following the earthquake the security situation was further complicated by the escape of over 5,000 prisoners from Haiti's prison system. Canadian police officers were instrumental in the development of the criminal intelligence unit, tasked with assisting the Haitian National Police in recapturing the escaped prisoners and creating a database of the prisoners. This information also assisted the RCMP here in Canada in identifying those wishing to immigrate to Canada fraudulently.

Although not part of our contribution to MINUSTAH, I would also like to take this opportunity to highlight another RCMP-led initiative during the disaster. For the first time in a disaster response, a multi-agency disaster victim identification team was deployed to Haiti to help identify Canadian victims of the earthquake for repatriation back to Canada or for burial in Haiti. The disaster victim identification team's response in Haiti demonstrated the success that can be achieved with a whole-of-government approach. This can be improved through continued disaster victim identification training and coordinated policies and procedures, with the goal of developing an integrated national and international response capability.

At the time of the earthquake there were 90 Canadian police officers deployed to MINUSTAH. Today there are 137, and they continue to mentor and guide their Haitian National Police counterparts through one of the most challenging periods in their country's history.

I would like to take this opportunity to note the recent appointment of Chief Superintendent Marc Tardif as Police Commissioner for MINUSTAH. This is a significant achievement for both Marc and Canadian police.

In closing, while the RCMP and other Canadian police officers faced numerous challenges after the earthquake, the experience underscored our ability to rapidly and effectively respond to the disaster. It also demonstrated the resilience, courage, and leadership of our police officers in the face of such overwhelming situations.

Thank you very much.

[The Chair, Conservative, Dean Allison]

Thank you, Mr. Cabana.

We'll move to Mr. Maltby. The floor is yours, sir.

[Marty Maltby, Acting Director, Intergovernmental Relations, Correctional Service of Canada]

Good afternoon, Mr. Chair and honourable committee members. Thank you for the opportunity to appear before you to discuss the Correctional Service of Canada's contributions and efforts in Haiti.

Every day across Canada, over 17,000 CSC employees work around the clock at 57 correctional institutions, 16 community correctional centres, and 84 parole offices, to help our citizens feel safe. On an average day, CSC is responsible for approximately 13,800 federally incarcerated inmates and 8,700 offenders in the community.

The correctional expertise of CSC staff members is well recognized internationally. As such, the service continues to participate in international humanitarian and capacity-building efforts to regions where there is a need for our employees' knowledge and skill set. As you well know, one of these areas is Haiti.

CSC has been active in the country since the mid-1990s, when CSC experts were deployed through the United Nations and Haitian correctional officers were trained in CSC facilities here in Canada. In 2004, we participated in a UN Department of Peacekeeping Operations assessment mission in Haiti. In 2007, the service entered into a memorandum of understanding with the Department of Foreign Affairs and International Trade that facilitated the deployment of CSC officials to the United Nations stabilization mission in Haiti, or MINUSTAH.

Since 2007, CSC's contributions to MINUSTAH have involved improving local prison conditions by recommending and supervising infrastructure projects and promoting international human rights standards. CSC experts also mentor, train, and provide advice to prison staff at all levels, from front-line correctional officers to wardens and national authorities. They've also contributed to the development and delivery of a correctional training program for new Haitian recruits.

Sadly, as we are all well aware, in January 2010 the country suffered a devastating earthquake that inflicted major damage and resulted in innumerable casualties to local citizens, as well as our MINUSTAH colleagues. The seven CSC staff members who were in Haiti at the time were fortunate enough to escape serious harm. Of the 17 prisons in Haiti, eight were damaged directly as a consequence of the earthquake or by riots and fires post-quake. Of these eight, four were partially emptied, while the other four were totally vacated. About half of the total prison population escaped.

Following the earthquake, CSC staff in Haiti drew upon their expertise to assist in the development of an identification process of prisoners that could be utilized across the Haitian prison correctional system. This became very important following the earthquake to identify the recaptured prisoners. This process included collaboration with the UNPOL, the United Nations police, which also includes our colleagues from the RCMP.

Furthermore, during this period, CSC officials provided crucial front-line staffing relief to prison guards, as many of those Haitian staff did not report for work, primarily because they had lost their families, their homes, or both. Our staff also advocated for prisoners to have fresh air on a daily basis, and ensured that food and water were made available, which, as you can well imagine, was no small task considering that the need everywhere was great.

In February 2010, a post-disaster needs assessment was launched in Port-au-Prince, and the service was asked to participate and provide technical expertise. As a result, the CSC Ontario regional deputy commissioner was responsible for the corrections component of this assessment. Following this, CSC drafted a report that highlighted challenges and constraints both pre- and post-earthquake, and provided short-, medium-, and long-term recommendations.

Last April, CSC also sent a structural engineer to Haiti for two weeks to evaluate the structure of the prisons that were damaged in the earthquake and to help establish a priority list for infrastructure review and repair.

CSC staff in Haiti have also assisted local prison officials in dealing with prison riots, which Haitian authorities for the most part were not accustomed to. Specifically, two CSC staff members were able to use their expertise in crisis management to diffuse a riot at Cap-Haïtien prison before it escalated beyond control.

Following this, our locally deployed staff helped to develop a manual of contingency plans to establish directives on such crises as hostage-takings, escapes, riots, natural disasters, and external attacks. Furthermore, last month CSC also welcomed five Haitian correctional officials to our staff college here in Laval, Quebec, to participate in a week-long crisis management training course.

CSC currently has an expanded MOU with the Department of Foreign Affairs, which allows the service to deploy up to 25 employees to Haiti. At this time we have 16 correctional staff deployed as part of our contingent.

On this note, I'd like to inform the honourable committee members that when our commissioner sent out an internal message to all of our staff immediately following the earthquake, asking for assistance to increase the support being provided to Haiti's prison sector, more than 1,400 responses were submitted. This is a testament that speaks to the commitment and dedication of CSC employees across Canada and their desire to use their expertise to help others in need.

In Haiti and in Canada our staff continue to give personally and professionally to the Government of Canada's overall efforts to help rebuild the country, post-earthquake.

Mr. Chair, I'd like to restate how proud CSC is of the work that staff members have been undertaking in Haiti and their ability to rise to the many challenges of dealing with this devastating situation.

Thank you again for the opportunity to share with you the contributions CSC has made to the humanitarian and capacity-building efforts in Haiti. I'd be happy to welcome any questions you have.

[The Chair, Conservative, Dean Allison]

Thank you, Mr. Maltby.

We'll start with Dr. Patry for seven minutes.

[Bernard Patry, Liberal, Pierrefonds—Dollard, QC]

Thank you very much, Mr. Allison. Messrs. Cabana and Maltby, thank you very much for being here this afternoon. I am really glad you're with us.

My first question is for Mr. Cabana.

In 2006, the Haitian National Police Reform Plan pointed out that the country's serious safety issues had been made worse by the problematic relations between the Haitian National Police and the public. It was also stated that the lone institution responsible for the country's safety was reputed to be corrupt and to endanger human rights.

That is what the plan stated in 2006. How would you describe the progress made by the Haitian National Police today? Is the police force currently effective? Is the training provided within the national police force effective? How long does the training last? After their training, how many Haitian police officers will work for the Haitian police rather than for foreign companies in the private sector?

Afterwards, I will have some questions for Mr. Maltby.

[A/Commr Mike Cabana]

Thank you very much for your questions.

I might ask you to repeat some parts of your question because it has several components.

Regarding your remarks about the report, that is in fact what the report stated. A public opinion analysis published in 2009, some time before the earthquake, showed that 70% of Haitians found that there had been positive changes within the police force.

At that time, the police force recruitment efforts had resulted in, on average, 20,000 job applications. So, there was a lot of interest. Being a police officer was obviously seen as a solid job.

Since the earthquake, there have not been many changes in terms of public safety. That was an issue before the earthquake and it still is an issue. However, the situation has not worsened, which can probably be attributed to the fact that there has been a significant increase in MINUSTAH staff.

Before the earthquake, I believe that there were about 2,200 foreign police officers in the country. Following the earthquake, the United Nations' involvement increased, and over 4,300 police officers were on site. This helped maintain a certain stability in terms of public safety.

I realize now that there are certain parts of your question I have not answered. Do you—

[Bernard Patry, Liberal, Pierrefonds—Dollard, QC]

Yes. I wanted to know whether the police officers' training is effective and how long it lasts.

[A/Commr Mike Cabana]

I cannot tell you how long the training lasts because I know nothing about that. Regarding effectiveness, the training is as effective as we could hope for, given the circumstances. Of course, the criteria used for training Haitian police officers does not compare to what is used currently for our police officers here, in Canada.

All the training components have been revised. Canadian police officers are participating in this and are responsible for the training. National police candidates will go through a selection process to ensure that they possess high ethical standards. Some people will be weeded out through this process.

Following the training, a team that had existed prior to the earthquake will be reinserted as soon as stability has been achieved to monitor the graduate cadets from the national police academy in order to ensure that the standards are maintained.

[Bernard Patry, Liberal, Pierrefonds—Dollard, QC]

Thank you.

Mr. Maltby, MINUSTAH head, Mr. Edmond Mulet, said on the American television program Frontline that the situation in prisons and detention centres was beyond horrifying and that people were forced to live in conditions that blatantly violate human rights. I think that he said that each prisoner had 58 centimetres of space, that they could not even sit or lie down and had to stand, packed like sardines in the cells.

Realistically speaking, what can be done to resolve the prison overcrowding issue in Haiti?

[Marty Maltby]

There are a couple of challenges in Haiti in terms of the population. Current statistics, basically, are saying that approximately 5,700 to 5,800 inmates currently reside in the prisons, which have a capacity of about, I would say, 3,000. The challenge right now, as it has always been in the Haiti prisons, is the issue of the remand population. Haiti has always remained at around 80%. There were times, I would say probably about two years ago, when we were almost at 90% or 95%.

Again, the challenges, I would say, are very systemic. One is partly access to courts, to judges, to investigations, and to evidence. The other would be just an inability, like in any other impoverished and underdeveloped country, to have good records and good maintenance in terms of databases and information. A question we posed at one point to the Haitian prison administration, in terms of the incarceration rate and the number of individuals, was whether they should remain incarcerated. I don't think there's an assumption that those individuals should not be incarcerated. The challenge is that they haven't had a chance to have their day before court.

[The Chair, Conservative, Dean Allison]

You have thirty seconds.

[Bernard Patry, Liberal, Pierrefonds—Dollard, QC]

I have a short one.

Thank you, Mr. Chair.

You talked about justice. What do you think about the independence of the justice system in Haiti?

[Marty Maltby]

About the justice system in Haiti?

[Bernard Patry, Liberal, Pierrefonds—Dollard, QC]

It is a broad one.

[Marty Maltby]

I can't speak as an expert on justice in Haiti. It wouldn't be the area of focus for us. I do know that we've tried to make significant efforts, Canada has, in investing in justice reform. The challenge, like in any other country, I think, is that justice and access to justice is something that is an extremely long-term effort that requires long-term investment. I think the challenge in creating a culture that provides access, for those individuals incarcerated, to appropriate justice is something that I think is a rock that's very difficult to move.

[The Chair, Conservative, Dean Allison]

Thank you, Dr. Patry.

We'll go to Mr. Dorion.

[Jean Dorion, Bloc, Longueuil—Pierre-Boucher, QC]

Thank you, Mr. Chair.

Mr. Cabana, Mr. Maltby, thank you for being here and clarifying things for us.

I would like to continue along the lines of what my Liberal colleague was saying.

I visited Haiti last April and had an opportunity to see the Canadian-built prison. If I remember correctly, the prison is located in Léogâne or not too far from it. This isn't a place I would want to visit for more than an hour. Beds and all furniture are made out of concrete. We know that these facilities will be grossly overcrowded. I assume that this is already the case in the prison I just mentioned. Is it already being used? When I visited, the construction seemed to be far along.

[Marty Maltby]

Are you talking about the prison in Léogâne?

[Jean Dorion, Bloc, Longueuil—Pierre-Boucher, QC]

Yes. I am talking about the prison built by Canada.

[Marty Maltby]

Are you talking about Croix-des-Bouquets? That one is not yet open. We are hoping to be able to open it and start taking in prisoners as of next fall. We are currently assessing the situation together with the Department of Foreign Affairs.

[Jean Dorion, Bloc, Longueuil—Pierre-Boucher, QC]

I can tell you that it is no Club Med.

[Marty Maltby]

No, not at all.

[Jean Dorion, Bloc, Longueuil—Pierre-Boucher, QC]

Mr. Maltby, you said that about half the prison population escapes. When we were in Haiti as part of the mission organized by the Minister of Foreign Affairs, some NGOs on site told us that, in Haiti, arbitrariness was completely prevalent in imprisonment cases and a good number of prisoners are forgotten in prison. Even if they have already served their sentence, they remain in prison because their file is missing or because the government is not interested in releasing them for whatever reason.

There were riots and fires in the earthquake's aftermath, and files disappeared. Were you sure that the people you were arresting were supposed to be in prison? What did you base your arrests on?

[Marty Maltby]

I'll respond in English, if you don't mind. It's a bit of a complicated question.

That has been an extremely incredible challenge in terms of rebuilding those case files. As for the case files, while we do have databases, or the corrections department in Haiti has electronic databases, much of this is held in paper form. It is true there were a number of disturbances and escapes that resulted in the destruction of a wide variety of case files. To be honest with you, I don't think it can be ascertained at this point as to how many of those individuals who were originally released or escaped have been recaptured.

I don't know if you have other information at this point.