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Canada fournira une traduction sur demande. 7 Vt ,A55 Aqb 2001 COMMISSION FOR PUBLIC COMPLAINTS AGAINST THE RCMP RCMP Act - Part VII Subsection 45.45(14) COMMISSION INTERIM REPORT Following a Public Hearing Into the complaints regarding the events that took place in connection with demonstrations during the Asia Pacific Economic Cooperation Conference in Vancouver, B.C. in November 1997 at the UBC Campus and at the UBC and Richmond detachments of the RCMP [SOLICITOR LEVAL CANADA DEC 0 62001 BlnioBIstioniouri-rw>..our,. SOLLICIMI C.Unil;'::..7 s',,! ,:, ,.. July 31, 2001 File No.: PC 6910-199801 COMMISSION FOR PUBLIC COMPLAINTS AGAINST THE RCMP RCMP Act — Part VII Subsection 45.45(14) COMMISSION INTERIM REPORT Following a Public Hearing Into the Complaints regarding the events that took place in connection with demonstrations during the Asia Pacific Economic Cooperation Conference in Vancouver, B.C. in November 1997 at the UBC Campus and at the UBC and Richmond detachments of the RCMP COMMISSIONER Ted Hughes, Q.C. COUNSEL APPEARING AT THE HEARING Counsel for the Commission for Public Complaints Against the RCMP Blake, Cassels & Graydon LLP Barbara L. Fisher PO Box 49314 Kevin Gillett 595 Burrard Street, Suite 2600 Peter Harrison Vancouver, BC V7X 1L3 Ph: (604) 631-3300 Fax: (604) 631-3309 Counsel for 44 RCMP Officers Fanis, Vaughan, Wills & Murphy George K. Macintosh, Q.C. 2600 — 700 West Georgia Street M. Kevin Woodall Vancouver, BC V7Y 1B3 Errin A. Poyner Ph: (604) 661-9349 Fax: (604) 684-9151 Counsel for S/Sgt. Hugh Stewart and Sgt. McLaren Smart & Williams James W. Williams Barristers and Solicitors 1190 — 840 Howe Street Vancouver, BC V6Z 2L2 Ph: (604) 687-6278 Fax: (604) 687-6298 Counsel for the Attorney General of Canada Department of Justice (Canada) I.G. Whitehall, Q.C. East Memorial Building Ronald M. Snyder 284 Wellington Street Simon Fothergill Ottawa, ON KlA 0H8 David Dendooven Ph: (613) 952-8713 Fax: (613) 957-4802 Counsel for 7 Complainants [Craig Jones, Jamie Doucette, Mark Brooks, Annette Muttray, Alissa Westergard-Thorpe, Dennis Porter, Deke Samcholci Arvay Finlay Joseph Arvay, Q.C. 4th Floor, 888 Fort Street Victoria, BC V8W 1H8 Ph: (250) 388-6868 Fax: (260) 388-4456 A. Cameron Ward & Company Cameron Ward 1205 — 207 West Hastings Street Vancouver, B.C. V6B 1H7 Ph: (604) 688-6871 Fax: (604) 688-6881 Gibbons Ritchie Marilyn Sandford 1300 — 355 BuiTard Street Vancouver, BC V6C 2G8 Ph: (604) 684-0799 Fax: (604) 684-0778 Counsel for the University of British Columbia Taylor Jordan Chafetz James P. Taylor, Q.C. 1010 — 777 Homby Street Rodney W. Sieg Vancouver, BC V6Z 1S4 Ph: (604) 683-2798 Fax: (604) 683-2223 Counsel for B.C. Civil Liberties Association BC Public Interest Advocacy Centre Michael P. Doherty 815 — 815 West Hastings Street Vancouver, BC V6C 1B4 Ph: (604) 682-7896 Fax: (604) 687-3034 TABLE OF CONTENTS 1. INTRODUCTION 1 2. COMMISSION FOR PUBLIC COMPLAINTS AGAINST THE RCMP 2 2.1. THIS INQUIRY 2 2.2. TERMS OF REFERENCE 2 2.3. THE HEARING 3 2.4. THIS REPORT 3 3. THE COMPLAINTS 5 4. THE APEC CONFERENCE 10 4.1. PURPOSE OF APEC 10 4.2. CANADA AS HOST 10 5. PLANNING FOR APEC 12 5.1. DEPARTMENT OF FOREIGN AFFAIRS 12 5.1.1. Overall Responsibility 12 5.1.2. Logistical Responsibility 13 5.1.3. Relationships with the Prime Minister 13 5.2. POLICE 14 5.2.1. Magnitude of the Policing Task 14 5.2.2. RCMP and VPD Roles 15 5.2.3. Police & the Planning Organization 16 5.3. RCMP PLANNING STRUCTURE FOR APEC 17 5.3.1. Federal Security Coordinator 17 5.3.2. Division Operations Commander 18 5.3.3. Deputy Division Operations Commander 18 5.3.4. Planning Secretariat 19 5.3.5. Security Steering Committee 19 5.3.6. Operational Support Planning 20 5.3.7. Appointment of Site Commanders 21 5.3.7.1. Superintendent Thompsett 22 5.4. RCMP OPERATIONAL STRUCTURE FOR APEC 23 5.4.1. Command Centre & Site Commanders 23 5.4.2. Quick Response Teams 25 5.5. PROBLEMS WITH THE ORGANIZATIONAL STRUCTURE 25 5.5.1. The Dual Role: An Innovation 25 5.5.2. The Split Between Planning & Delivery 27 5.5.2.1. Confusion over roles 29 5.5.2.2. Inadequate delivery model 29 6. THE AGREEMENT BETWEEN UBC & CANADA 32 6.1. UBC'S APEC COORDINATING COMMITTEE 32 1 6.2. THE LICENCE AGREEMENT 32 7. PRELIMINARY ISSUES 38 II 7.1. "APPROPRIATE" CONDUCT 38 7.2. CHARTER RIGHTS 39 111 7.3. FREEDOM OF EXPRESSION ON GOVERNMENT PROPERTY 40 7.3.1. The Proportionality Test 43 8. WAS THERE A "CRACKDOWN" AT UBC9 46 11 9. POLITICAL INTERVENTION 48 1 9.1. PROTESTS EXPECTED 48 9.2. CANADA ACTS TO ENSURE PRESIDENT SUHARTO'S ATTENDANCE 49 1 9.3. PROPRIETY OF CANADA'S EFFORTS 52 le 9.4. PROTECTING VISITING HEADS OF STATE 54 1 9.5. ALLEGATIONS OF GOVERNMENT INTERFERENCE 54 111 9.5.1. Security Perimeter or Event Perimeter 55 lli 9.5.1.1. August visit to UBC 56 1 9.5.1.2. A "retreat-like" setting 57 9.5.1.3. Accommodating non-security concerns 60 III 9.5.2. Demonstration Area 61 ' 9.5.2.1. The Thompsett/Pavlich line 62 I 9.5.2.2. Mr. Carle's view 63 9.5.2.3. UBC's reaction 66 9.5.2.4. Mr. Carle's response to UBC 67 1 9.5.2.5. A compromise 70 9.5.3. Noise Free Zone 73 I 9.5.4. Mr. Carle's Motivation 74 9.6. DOCUMENTS RELIED ON BY THE COMPLAINANTS 75 9.7. CONCLUSION 80 • ii I 10. POLICE INDEPENDENCE 82 10.1. THE ENGLISH APPROACH 82 10.2. THE CANADIAN APPROACH 83 10.3. INDEPENDENCE VS. ACCOUNTABILITY 83 10.4. SOME PRINCIPLES 86 11. EARLY TAKEOVER OF THE MUSEUM 87 11.1. TENTS AT THE MUSEUM 87 11.2. A LEGAL OPINION 88 11.3. THE AGREEMENT TO MOVE THE TENTERS 90 11.4. IS THE MUSEUM TAKEOVER THE SUBJECT OF A COMPLAINT9 96 11.5. UNJUSTIFIABLE INFRINGEMENT OF CHARTER RIGHTS 97 11.5.1. Constitutionally Protected Expression 98 11.5.2. Unjustifiable Infringement 98 11.6. APPROPRIATE IN THE CIRCUMSTANCES 99 11.6.1. Failure To Assert liidependence 99 11.6.2. An Honest Mistake 100 11.7. GOVERNMENT INTERFERENCE 101 12. POLICE PERFORMANCE 102 12.1. BRIEFINGS AND THE LATE BUSES 102 12.1.1. The November 24 Briefing 102 12.1.2. The November 25 Briefing 103 12.1.3. Stray Buses 103 12.1.4. Replacement Personnel 104 12.2. THE OPEN SPACE IN FRONT OF GREEN COLLEGE 106 12.2.1. Warning Signs 107 12.2.2. A Gap in Planning 108 12.3. THE NOON MARCH TO THE FENCE 109 12.3.1. Police Resources 110 12.3.2. The Protesters' Plans 111 12.3.3. Police Information about Protesters' Plans 113 12.3.4. Relationship between Police and Protesters 115 12.3.5. The Police Decision to Move Away from the Fence 116 12.3.5.1. The contingency plan 116 12.3.5.2. Deputy Site Commanders 118 12.3.5.3. The security fence 119 12.3.5.4. A change in plans 121 12.3.5.5. Who decided to allow access to the fence 123 12.3.6. An Impossible Position 125 12.3.6.1. The Crowd Control Unit 126 12.4. BLOCKAGE OF THE EXIT ROUTES 128 I 12.4.1. Exit Routes 128 12.4.2. The Students' Plan 128 12.4.3. Gate 6 129 I 12.4.4. Police Planning 130 I 12.4.5. Confusion at the Gates 135 12.4.6. A Change in Command 136 12.4.7. Clearing Gate 6 137 • 12.4.8. Misdirection to the Crowd Control Unit 138 12.4.9. Departure Time Nears 139 W 12.5. INVOLVEMENT OF THE LOCAL RCMP DETACHMENTS 142 12.5.1. UBC Detachment 142 II 12.5.2. Richmond Detachment 146 a 13. COMPLAINT CATEGORY 1: SECURITY PERIMETER, DEMONSTRATION AREA & NOISE FREE ZONE 148 13.1. ISSUES 148 13.2. SECURITY/EVENT PERIMETER 148 13.2.1. An Accommodation may be Needed 148 13.2.2. Perimeter was No Larger than Necessary 149 13.3.