June 18, 2015 (41st Parliament, 2nd Session)


Sean Casey


Mr. Sean Casey (Charlottetown, Lib.)

Mr. Speaker, I rise today to speak on Bill C-53, the lock-them-up-and-throw-away-the-key act. It is the life means life act. This bill would eliminate the possibility of parole for many of the most serious crimes, including many forms of first degree murder and high treason.
The stated purpose of the bill is to reduce trauma to victims' families by avoiding unnecessary and repeated parole hearings. That is a worthy objective, and the Liberals supported legislation to further that goal just a few weeks ago with Bill C-587, the respecting families of murdered and brutalized persons act. As members will recall, that bill would extend parole ineligibility to 40 years from 25 years for a limited class of particularly brutal crimes.
However, while we agree with the objective of reducing trauma to victims and the approach taken by Bill C-587, we will not support the life means life act. Liberals are open to exploring additional ways of reducing trauma to victims. For example, we would consider extending parole ineligibility to longer than 25 years for some of the crimes covered by Bill C-53, just as we supported consecutive periods of parole ineligibility for multiple murders. As members know, that change resulted in Travis Baumgartner receiving 40 years of parole ineligibility for murdering three of his coworkers at an armoured car company. It also resulted in Justin Bourque receiving 75 years of parole ineligibility for murdering three RCMP officers in Moncton.
The crimes covered by Bill C-53 are terrible. That is why they are punished harshly under Canadian law. However, the primary reason we will not support this bill is that it would replace the Parole Board with the Minister of Public Safety and Emergency Preparedness. Ministers are inherently concerned with making political decisions. That is a step backward and an affront to the rule of law. It is also probably unconstitutional. I will explain why that is the case later on.
First let us go over the contents of the life means life act.
Bill C-53 would amend the Criminal Code to require imprisonment for life without eligibility for parole for specific types of murder convictions, as well for high treason, provided that the offender is 18 or older. The types of murder convictions that require such a sentence must be planned and deliberate murders in which the victim is a law enforcement officer, a member of correctional staff, or a person working in a prison; the accused caused the death while committing or attempting to commit aircraft hijacking, various types of sexual assault, kidnapping, forcible confinement, or hostage taking; the accused caused the death while committing or attempting to commit a terrorist act; or the accused's behaviour associated with the offence was of such a brutal nature as to compel the conclusion that the accused's behaviour in the future is unlikely to be inhibited by normal standards of behavioural constraint.
Under Bill C-53, a conviction for high treason would also require the imposition of a life sentence without eligibility for parole. High treason comprises attacking the Queen, waging war against Canada, or assisting an enemy engaged in hostilities with the Canadian Forces.
Bill C-53 would also create a discretionary judicial power to order imprisonment for life without eligibility for parole for three types of offenders.
First are persons convicted of second degree murder who have previously been convicted of murder. Second are persons convicted of second degree murder who have previously been convicted of genocide, a crime against humanity, or a war crime. Third are any persons convicted of first degree murder.
The use of this discretionary judicial power would require a prosecutorial application and consideration of the offender's age and character, the nature of the offence and its circumstances, and the jury's recommendation on parole eligibility.
In addition, Bill C-53 would amend the Corrections and Conditional Release Act to allow offenders serving life without eligibility for parole to apply to the Minister of Public Safety and Emergency Preparedness for executive release by the Governor in Council after serving 35 years of their sentence. Offenders may reapply after five years if their application is unsuccessful. Offenders granted executive release would become subject to the Parole Board's authority, including termination or revocation of the release and the imposition of conditions.
As I said, Liberals are amenable to 35 or 40 years of ineligibility for the crimes covered in this bill, as we indicated in our support for Bill C-587. That increase could make a meaningful difference for victims' families. However, we take issue with who the government proposes should be making decisions after that time period.
In addition to the changes I have already noted, Bill C-53 would amend the National Defence Act to require imprisonment for life without eligibility for parole for the following offences: traitorous misconduct by a commanding officer in the presence of an enemy; traitorous misconduct by any person in the presence of an enemy; traitorous compromise of security; high treason; and murder of the same types captured in the Criminal Code amendments.
This bill would also create military judicial discretion to impose imprisonment without eligibility for parole in the same circumstances as in the civilian domain. As well, Bill C-53 would amend the International Transfer of Offenders Act to allow imprisonment for life without eligibility for parole when, in the opinion of the Minister of Public Safety, documents supplied by a foreign entity show that the offender would have been convicted of a murder offence listed in the first paragraph, with the exception of the brutal nature provision.
I want to flag this last change as being particularly problematic, since it would allow the Minister of Public Safety to impose life sentences without parole eligibility based on evidence supplied by foreign entities. That would allow potentially tainted or fabricated evidence to produce life sentences without parole eligibility in Canada. States with some of the worst justice systems in the world could provide admissible evidence.
It is important to understand how all of the changes in Bill C-53 would alter the status quo. Currently all murder convictions carry mandatory life sentences in Canada. All of the specific types of murder that require parole ineligibility for life under Bill C-53 support convictions for first degree murder, which carry 25 years of parole ineligibility. A conviction for high treason would also carry a mandatory life sentence with 25 years of parole ineligibility.
For an offender serving a life sentence, day parole would become a possibility after 22 years and full parole would become possible after 25 years. On application, the Parole Board must review unsuccessful day parole applications every year and unsuccessful full parole applications every two years.
Of relevance, under a 2011 law that Liberals supported, offenders can now receive consecutive periods of parole ineligibility for multiple murders. As I mentioned, two offenders have been sentenced under that law to 40 years and 75 years of parole ineligibility respectively.
Under the current law, offenders may also be designated as dangerous offenders, meaning they may receive indeterminate sentences, subject to periodic review.
I want to focus in on the fact that this bill would grant the Minister of Public Safety, an elected politician, the discretion to release prisoners, a function currently carried out by the Parole Board. Any minister of public safety would be subject to self-interest and political pressure from constituents, the party, and especially the Prime Minister. This conflict of interest could unduly affect decisions on prisoner release and act contrary to the interests of justice.
When Canadians reflect on the matter, I do not think they would support the idea of the Prime Minister personally deciding on which prisoners to release. That is rightly the job of the Parole Board. Political considerations should not enter into these sorts of decisions. That, of course, is the reason we do not elect judges in Canada.
I am not sure why the government views the Parole Board as not being up to doing its job. When evidence was given on Bill C-587, I had a chance to ask Ms. Suzanne Brisebois of the Parole Board about its functioning. I asked her, “To whom is the Parole Board of Canada accountable?” Her response was as follows:
Our board is an independent administrative tribunal. There's a very rigorous competitive process that prospective board members have to go through...
We're responsible to the Canadian public. Again, the protection of the public is our paramount consideration. It's part of our mandate.
I also asked Ms. Brisebois:
Is the board less well-equipped to deal with the most serious cases than the rest? Could you comment on whether they're particularly poorly equipped for the most serious cases?
Her response was:
Our board members undergo rigorous training as part of their induction, both at national office and in the regions. They're trained on various aspects of the legislation, our policies, our procedures, risk assessment, and the various actuarial tools, so they undergo a very rigorous training period.
The Parole Board should be allowed to do its job. Replacing the Parole Board with political decisions from the Minister of Public Safety and Emergency Preparedness is a step backwards.
Liberals supported Bill C-587's increase to 40 years of parole ineligibility as well as the 2011 change for allowing consecutive periods of parole ineligibility. Crucially, both of these changes preserved judicial discretion in criminal sentencing under the charter. While allowing for more severe penalties, they safeguarded a judge's ability to tailor specific sentences to be proportional to specific crimes.
In contrast with Bill C-587, this bill would fetter judicial discretion in a way that would invite charter scrutiny. As I said, we are open to increasing the period of ineligibility, provided that it is the Parole Board that takes any decision once the years have passed. That approach would preserve judicial discretion, allowing sentences to pass constitutional muster.
On that note, I want to say a few words about the current government's disrespect for the Constitution, especially the charter.
This week Amy Minsky of Global News reported that the Conservatives have wasted almost $7 million of taxpayers' money in unsuccessfully trying to defend legislation and executive actions that violate Canadians' rights. That included over $1 million spent in trying to take away health care from refugees, almost $350,000 in trying to put a federal judge on Quebec's Supreme Court seat, and over $425,000 in trying to shut down a safe injection site.
Last week I learned from an order paper question that the Conservative government has spent $257,825.17 and counting in the Ishaq case, trying to ensure a woman cannot take the citizenship oath while wearing a niqab. I say “and counting” because that appeal is ongoing—not because it has a reasonable prospect for success, but because the current government wants to fearmonger and divide Canadians for political reasons. I am going to repeat the number in the Ishaq case: it spent over $257,000 to make sure a woman cannot wear a niqab in a citizenship oath. That is a stunning misuse of taxpayer money.
As Canadians know, the current government is one that has little respect for the courts and less for the charter. We all recall the disgraceful defaming of the Chief Justice of the Supreme Court by the Prime Minister and the Minister of Justice. As a lawyer, I was shocked. As a Canadian, I was deeply disappointed.
Members in this chamber will also recall the revelation that the current government disregards the constitutional advice of its own lawyers. As members are aware, Department of Justice lawyer Edgar Schmidt has revealed to Canadians that the current government proceeds with legislation even if it has a 5% or less chance of being charter-compliant.
As the Liberal justice critic, I have often criticized the current government for constantly amending the Criminal Code while failing to invest the necessary resources to prevent crimes from occurring. As a general rule, the government's approach is doomed to be ineffective because its policies are not responsive to evidence.
As I said when speaking to Bill C-587, I think in particular of the government's recent cuts to Circles of Support and Accountability, a community-based reintegration group that holds sex offenders accountable for the harm they have caused while assisting with their re-entry into society at the end of their sentences. COSA has been proven to reduce recidivism among sex offenders by 70% to 83%. That is an astonishing number.
According to the government's own study, it has saved $4.60 for society for every dollar invested. Over five years it has prevented 240 sexual crimes, yet the government cut that program, which was incredibly irresponsible. That cut poses a real and ongoing threat to public safety.
Returning to Bill C-53, the life means life act, I want to reiterate that Liberals strongly support the objective of reducing repeated and unnecessary trauma to victims' families. I recall from the Bill C-587 hearings the moving testimony of two family members of victims. That testimony was the reason we supported Bill C-587. However, the goal of reducing trauma to victims can and should be achieved with changes other than those contained in Bill C-53.
The primary reason we will not support this bill is that it would replace the Parole Board with politically driven decisions from the Minister of Public Safety. That is a step backward and an affront to the rule of law. Also, it is probably unconstitutional.
I wonder if these considerations explain why the government has brought this legislation forward so late in the calendar when it has no chance of becoming law.

Topic:   Government Orders
Subtopic:   Life Means Life Act
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