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THE VIEWS OF CANADIAN SCHOLARS ON THE IMPACT OF THE ANTI-TERRORISM ACT The Views of Canadian Scholars on the Impact of the Anti-Terrorism Act Thomas Gabor Department of Criminology University of Ottawa rr05-1e Research and Statistics Division March 31, 2004 The views expressed in this report are those of the author and do not necessarily represent the views of the Department of Justice Canada. Table of Contents Foreword..................................................................................................................................iii Acknowledgements..................................................................................................................iv 1.0 Introduction..................................................................................................................1 2.0 Methodology................................................................................................................4 3.0 The Impact of the Anti-Terrorism Act .........................................................................6 3.1 Impediments to Assessing the Act’s Impact .............................................................6 3.2 Deterrent effects, Enhanced Intelligence, and Added Leverage in Prosecutions..........................................................................................................6 3.3 Symbolic Benefits of the Act ....................................................................................7 3.4 Issues Relating to the Definition of Terrorism and the Scope of the Act .................8 3.5 The Impact of the Act on Civil Liberties and Canadian Values ...............................9 3.6 The Impact of the Act on Specific Groups and Organizations................................10 3.7 Issues of Accountability and Oversight……………………………………. .........11 3.8 Other Comments………………………………………………………….. ...........11 4.0 Emerging Trends in Terrorism and Threats Faced by Canada………….. ................12 4.1 The Abandonment of Restraint in Terrorist Attacks………………………….......12 4.2 The Transformation of Terrorist Groups……………………………………... .....12 4.3 Level of Threat to Canada…………………………………………………….......14 4.4 Factors Contributing to Canada’s Vulnerability…………………………….........14 4.5 The Nature of Threats and Specific Targets in Canada………………………. .....15 5.0 Canada’s Response to Terrorism …………………………………… ......................16 5.1 Adopting a Multi-Faceted and Measured Response……………………….. .........16 5.2 Intelligence and Intelligence Sharing……………………………………..............17 5.3 Working with Communities at Risk and Profiling…………………………. ........18 5.4 The Role of the Criminal Law in Combating Terrorism………………………. ...18 5.5 The Role of Foreign Policy and of the Military……………………………..........18 5.6 Target Hardening and Improved Emergency Response…………………… .........20 5.7 Accountability Mechanisms and Civil Liberties…………………………….........20 5.8 Generating the Public’s Buy-in and Confidence in Counter-Terrorism Measures ................................................................................................................20 5.9 The North American Perimeter and Border Security .............................................21 5.10 Concluding Comments............................................................................................21 6.0 Conclusions………………………………………………………………................23 6.1 The Impact of the Anti-Terrorism Act …………………………………….. .........23 6.2 Emerging Trends in Terrorism and Threats Faced by Canada………………… ...24 6.3 Canada’s Response to Terrorism……………………………………………... .....24 Research and Statistics Division / Department of Justice Canada | i The Views of Canadian Scholars on the Impact of the Anti-Terrorism Act Postscript…………………....................................................................................................27 Appendices.............................................................................................................................28 1. Rex Brynen, Department of Political Science, McGill University........................29 2. David Charters, Centre for Conflict Studies, University of New Brunswick.........33 3. Stuart Farson, Institute for Governance Studies, Simon Fraser University...........39 4. Robert Martyn, Department of History, Queen’s University .................................47 5. Kent Roach, Faculty of Law, University of Toronto..............................................53 6. Martin Rudner, Paterson School of International Affairs, Carleton University ....59 7. Lorne Sossin, Faculty of Law, University of Toronto............................................69 8. James Stribopoulos, Faculty of Law, University of Alberta...................................73 9. Don Stuart. Faculty of Law, Queen’s University ...................................................81 10. Wesley K. Wark, Department of History/International Studies, University of Toronto....................................................................................................................83 11. Reg Whitaker, Department of Political Science, University of Victoria................91 ii | Research and Statistics Division / Department of Justice Canada Foreword easuring the impact of terrorism and the Anti-terrorism Act is a complicated and M challenging undertaking. Some may even argue that social scientists and legal scholars do not currently possess an instrument precise enough to measure the impact that such events have on Canadian society. Regardless of the challenges, attempts to develop an instrument or method must be made. The Research and Statistics Division (RSD) has implemented a program of qualitative and quantitative research that will inform the Parliamentary review of the Anti- terrorism Act, which is to begin within three years after the legislation received royal assent. As part of this program of research, the RSD has completed a number of quantitative and qualitative studies to gauge the impact of the Act, including monitoring national and foreign public opinion poll results and commissioning focus groups across Canada. In October 2003, during the launch of Research Week, the RSD hosted a panel on the findings of a focus group study concerning the views of minorities and the Anti-terrorism Act. At the launch, Deputy Minister Morris Rosenberg commented that research is the foundation upon which informed, evidence-based policy and legislation are developed and supported. The present report, entitled The Views of Canadian Scholars on the Impact of the Anti-Terrorism Act, is a timely example of that type of quality research. The study used an innovative approach to mine the expertise of recognized scholars on terrorism issues. Implementing this approach and completing the report would not have been possible without the timely replies from the participating scholars and the work of Professor Gabor who compiled and summarised the individual papers. This report and the individual unedited papers, which were included as an appendix, demonstrate the Research and Statistics Division’s commitment to providing policy makers and Canadians with objective and relevant information. Damir Kukec Research and Statistics Division Department of Justice Canada Research and Statistics Division / Department of Justice Canada | iii The Views of Canadian Scholars on the Impact of the Anti-Terrorism Act Acknowledgements he author is grateful for the unwavering support provided throughout this project by T Mr. Damir Kukec of the Research and Statistics Division, Department of Justice Canada. Also, this project could not have proceeded without the excellent submissions provided by the terrorism experts consulted. Despite the tight time lines, it is evident that these experts took the time to reflect on the serious matter of terrorism and have undoubtedly advanced our knowledge of the impact of Canada’s new legislation, as well as of the threats faced by this country and the optimal responses to them. iv | Research and Statistics Division / Department of Justice Canada 1.0 Introduction ollowing the events of September 11, 2001, the Government of Canada introduced Bill C-36, F the Anti-Terrorism Act, an omnibus bill