Annual report on the use of electronic surveillance - 2013

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Introduction

Part VI of the Criminal Code (C.C.) sets out the provisions for the law enforcement community to obtain judicial authorization to conduct electronic surveillance of private communications for criminal investigations. This section also sets out provisions to conduct electronic surveillance of private communications without judicial authorization when there is imminent harm, such as in the case of kidnappings or bomb threats. These procedures are to be carried out in such a way so as to ensure that the privacy of individuals is respected as much as possible during the surveillance.

As a measure of accountability, section 195 of the Criminal Code requires the Minister of Public Safety and Emergency Preparedness to prepare and present to Parliament an annual report on the use of electronic surveillance under Part VI for offences that may be prosecuted by, or on behalf of, the Attorney General of Canada.

The 2013 Annual Report covers a five-year period from 2009 to 2013. The Report includes new statistics for the period from January 1, 2013 to December 31, 2013 and updates the figures for the years 2009 to 2012.

The Annual Report must include the following information:

During the past year, new accountability measures were implemented for section 184.4 of the Criminal Code (Immediate interception – imminent harm) which resulted in changes to section 195 (Annual Report). The reporting period for the new reporting requirement is from September 27, 2013 to December 31, 2013, beginning on the date it came into force. Future reports will contain statistics for the full year and will eventually cover a five-year period to match other statistics provided in the report. Some of the required information is the same as for section 185 and section 186; however, there are also new requirements specifically for section 184.4.  

The Annual Report must now also include the following information specifically for section 184.4:

The 2013 Annual Report is organized in the following manner:

Section I – Overview of Part VI of the Criminal Code

Part VI of the Criminal Code sets out the provisions for the law enforcement community to obtain judicial authorization to conduct electronic surveillance for criminal investigations.

Only designated peace officers and agents can obtain this authorization to intercept private communications, and only for certain serious offences, which are listed in section 183 of the Criminal Code (e.g., facilitating terrorist activity, weapons trafficking, child pornography, child abductions, drug trafficking, and organized crime offences).

Part VI also sets out the requirements that must be met to apply for and obtain authorization to intercept private communications. These requirements include the following:

Generally, authorizations are not issued for a period longer than 60 days (paragraph 186(4)(e)). Designated persons may apply to a judge to have the authorization renewed, which extends the time during which they can lawfully conduct electronic surveillance. Before the judge may renew the authorization, he or she must be satisfied that the same circumstances that applied to the original application for authorization still apply (subsections 186(6) and 186(7)).

Provisions also permit designated persons to obtain judicial authorization to intercept private communications in emergency situations. Under section 188 of the Criminal Code, a peace officer designated by the Minister of Public Safety and Emergency Preparedness may apply to a judge for an authorization if the urgency of the situation requires interception of private communications, but there is not enough time to use the regular application process to obtain an authorization. An authorization considered in these circumstances may be issued for a period of up to thirty-six hours, and the judge may impose terms and conditions.

In addition to applying for an authorization to intercept private communications under Part VI, peace officers and agents may apply to a judge for a general warrant under section 487.01 of the Criminal Code. This section enables the issuance of a warrant for the use of any device or investigative technique that is not contemplated elsewhere in the Criminal Code or any other Act of Parliament. For example, this type of warrant would allow peace officers to carry out video surveillance of a person in circumstances where the person has a reasonable expectation of privacy. As with other judicial authorizations, certain requirements must be met before a warrant can be issued. In the case of warrants issued pursuant to section 487.01, these requirements include the following:

In 1993, Parliament enacted section 184.4 (Immediate interception – imminent harm) of the Criminal Code to allow the use of wiretapping without a court authorization when there is imminent harm, such as in the case of kidnappings or bomb threats. In R. v. Tse, the Supreme Court of Canada found that a wiretap authority without a court authorization in situations of imminent harm could be justified under the Canadian Charter of Human Rights and Freedoms. However, the Supreme Court declared that section 184.4 was unconstitutional because it contained no accountability measures. The Supreme Court gave Parliament until April 13, 2013, to amend the provision to make it constitutionally compliant.  On March 27, 2013, legislation responding to R v. Tse received Royal Assent, adding accountability safeguards to the existing provision for wiretaps in situations of imminent harm under the Criminal Code.

Section II – Statistics

Applications for authorizations and renewals

Paragraphs 195(2)(a) and (b) of the Criminal Code require statistics relating to:

The table below presents the number of applications made for audio and video authorizations and renewals each year for the five‑year period from 2009 to 2013.  The data is categorized by the five types of applications for which authorizations may be granted: audio and video applications (maximum duration sixty days) and renewals thereof pursuant to subsections 185(1) and 186(6) and section 487.01 of the Criminal Code, as well as emergency applications (maximum duration 36 hours) pursuant to subsection 188(1) and section 487.01 of the Criminal Code.

Table 1
Type of Application Number of Applications
2009 2010 2011 2012 2013

Audio s. 185 C.C.

108

78

83

78

80

Video s. 487.01 C.C.

29

31

41

33

38

Renewals s. 186 C.C.

3

6

13

1

5

Emergency audio s. 188 C.C.

1

0

0

0

0

Emergency video s. 487.01 C.C.

0

0

0

0

0

Total

141

115

137

112

123

Paragraph 195(2)(c) of the Criminal Code requires information relating to:

Table 2
Terms and Conditions or Refusal Number of Applications
2009 2010 2011 2012 2013

With terms and conditions

140

114

135

108

120

Without terms and conditions

1

1

2

4

3

Refusal

0

0

0

0

0

* It should be noted that the numbers reported in this section may increase in future years to reflect updated statistics from Canadian police forces.

Period for which authorizations and renewals were granted

Paragraph 195(2)(f) of the Criminal Code requires information relating to:

The calculations below represent the “average period of time valid” for authorizations and renewals where applicable. Further, it is important to note that although authorizations originally granted or renewed may be valid for a period of up to sixty days and emergency audio and video authorizations up to 36 hours, this does not necessarily mean interceptions are made during the entire period.  For example, sufficient evidence may be obtained as a result of the authorization to prove the offence and to lay charges prior to the expiration of the authorization. It is also important to note that some authorizations investigating organized crime may be valid for up to one year, which increases the authorizations' overall average period of validity.

Table 3
Type of Authorization Average Period of Time Valid
2009 2010 2011 2012 2013

Audio s. 185 C.C. (days)

56.3

69.8

64.2

71.8

58.4

Video s. 487.01 C.C. (days)

53.1

84.1

85.7

92.5

66.3

Emergency audio s. 188 C.C. (hours)

36.0

0

0

0

0

Emergency video s. 487.01 C.C. (hours)

0

0

0

0

0

Paragraph 195(2)(g) of the Criminal Code requires information relating to:

The categories in the table below representing renewals are mutually exclusive.  For example, an authorization valid for a period of sixty days which was renewed for a further sixty days is counted in the category 61‑120 days, and an authorization of sixty days coupled with three sixty-day renewals would be counted in the 181‑240 category.

Table 4
Renewal Period (days) Number of Authorizations Renewed
2009 2010 2011 2012 2013

61-120

3

1

8

1

2

121-180

0

3

1

0

0

181-240

0

0

1

0

1

241 or more

0

0

1

0

0

Offences specified in authorizations

Paragraph 195(2)(i) of the Criminal Code requires information relating to:

Most authorizations granted to agents by the Minister of Public Safety and Emergency Preparedness provide for the use of electronic surveillance in relation to more than one offence. A typical example of such an authorization would be in relation to sections 5 (trafficking), 6 (importing and exporting), and 7 (production) of the Controlled Drugs and Substances Act and conspiracy under section 465 of the Criminal Code to commit these offences. The table below represents the number of times specific offences were identified in authorizations granted to agents by the Minister of Public Safety and Emergency Preparedness. For example, of the 123 authorizations granted in 2013, 77 of these authorizations specifically provided for the use of electronic surveillance in connection with trafficking a narcotic, 78 for possession for the purpose of trafficking and 53 for importing and exporting.

Table 5
Statute Type of Offence Number of Authorizations
2009 2010 2011 2012 2013

Controlled Drugs and Substances Act

Trafficking ss. 5(1)

101

67

89

57

77

Possession of a narcotic for the purpose of trafficking ss. 5(2)

87

69

95

55

78

Importing and exporting ss. 6(1)

43

46

62

30

53

Possession for the purpose
of exporting ss. 6(2)

6

1

0

0

4

Production s. 7

34

20

25

17

12

Export and Import Permits Act

Export or attempt to export s.13

0

0

0

1

0

Customs Act

False Statements s. 153

1

0

8

3

0

Smuggling /attempt to smuggle goods into Canada s. 159

1

0

14

2

0

Excise Act

Unlawful possession or sale of improperly packaged tobacco s.32

0

0

2

0

0

Unlawful production, sale, etc. of tobacco or alcohol s.214

0

0

4

0

0

Unlawful possession of tobacco product s. 216

1

0

9

4

1

Falsifying or destroying records s.219

0

0

8

0

0

Possession of property obtained by excise offenses s. 230

1

0

0

2

1

Immigration and Refugee Protection Act

Organizing entry into Canada s. 117

1

0

0

0

6

Trafficking in persons s.118

0

0

0

0

4

Offences related to documents s. 122

1

0

0

0

0

Counselling misrepresentation s. 126

1

0

0

0

0

Forgery of passport s. 57

1

0

0

0

0

Criminal Code

Providing or collecting property for certain activities s. 83.02

0

8

0

4

0

Providing, making available, etc. property or services for terrorist activities s. 83.03

0

2

0

0

0

Using or possessing property for terrorist purposes s. 83.04

0

0

1

0

0

Participation in the activity of a terrorist group s. 83.18

0

18

1

27

18

Facilitating terrorist activities s. 83.19

3

17

1

8

5

Commission of an offense for a terrorist group s. 83.2

0

20

0

28

14

Instructing to carry out activity for a terrorist group s. 83.21

0

1

0

0

0

Instructing to carry out terrorist activity s. 83.22

0

0

0

0

2

Possession of a prohibited
weapon s. 90

1

0

0

0

0

Unauthorized possession of a firearm s. 91

0

1

0

0

0

Importing or exporting of prohibited weapons s. 95

2

0

0

0

0

Possession of weapons obtained by commission of offence s. 96

2

1

1 0 0

Weapons trafficking s. 99

4

5

5 2 0

Possession for the purpose of weapons smuggling s. 100

1

4

3

1

2

Importing or exporting (knowing it is unauthorized) s. 103

0

0

2

1

0

Unauthorized importing or exporting s. 104

0

5

3

0

0

Bribery s. 120

0

4

4

2

0

Breach of trust s. 122

0

2

0

1

1

Obstructing justice s. 139

1

0

6

4

1

Keeping gaming or betting house s.201

0

2

6

3

0

Betting, pool-selling, book-making, etc. s. 202

4

5

2

7

0

Procuring s. 212

0

0

0

0

4

Murder s. 235

14

10

10

0

3

Manslaughter s. 236

0

1

0

0

0

Attempted murder s. 239

0

7

0

0

0

Accessory after the fact s. 240

2

6

6

2

1

Criminal Code

Assault with a weapon or causing bodily harm s. 267

2

2

0

0

0

Aggravated assault s. 268

4

3

1

0

0

Abduction in contravention of custody order s. 282

1

0

0

0

0

Theft s. 334

2

0

0

0

0

Theft, forgery, etc., of credit card s. 342

1

0

0

0

0

Unauthorized use of a computer s. 342.1

0

4

0

0

0

Robbery s. 344

1

1

7

0

1

Extortion s. 346

1

0

8

2

0

Criminal interest rate s. 347

1

1

0

0

0

Break and enter s. 348

1

0

0

0

1

Possession of property obtained by crime s. 354

70

45

82

40

58

Possession of property obtained by the commission of an offence s. 355

4

3

2

5

0

Fraud s. 380

9

1

0

2

3

Fraudulent manipulation of stock exchange transactions s. 382

1

0

0

0

0

Arson – damage to property s. 434

0

0

0

2

0

Laundering proceeds of counterfeit money s. 462.31

48

22

54

32

50

Attempts, accessories s. 463

37

27

45

21

27

Counselling s. 464

33

25

48

25

27

Conspiracy s. 465

112

77

120

76

83

Participating in activities of a criminal organization s. 467.11

8

25

34

15

25

Commission of an offence for a criminal organization s. 467.12

10

26

30

20

24

Instructing commission of an offence for a criminal organization s. 467.13

4

10

18

9

19

Security of Information Act

Communicating safeguarded information s. 16

0

0

2

0

0

Breach of trust with respect of safeguarded information s. 18

0

0

2

0

0

Use of trade secret for the benefit of foreign economic entity s. 19

0

0

0

1

0

Preparatory acts s. 22

0

0

2

0

0

Conspiracy, attempts, etc. s. 23

0

0

2

0

0

Corruption of Foreign Public Officials Act

Bribing a foreign public official s. 3

0

0

3

0

0

Classes of places and methods of interception

Paragraph 195(2)(j) of the Criminal Code requires information relating to:

Table 6
Class of Place Number of Authorizations
2009 2010 2011 2012 2013

Residence (permanent)

66

37

41

33

22

Residence (temporary)

9

5

5

4

2

Commercial Premises

22

15

14

14

10

Vehicles

24

21

19

16

18

Other

51

25

36

32

27

Paragraph 195(2)(k) of the Criminal Code requires information relating to:

Table 7
Method of Interception Number of Interceptions
2009 2010 2011 2012 2013

Telecommunication

933

535

845

594

394

Microphone

97

59

75

70

66

Video

33

21

35

12

34

Other

114

194

44

28

11

Legal proceedings, use of intercepted material and disposition

Paragraph 195(2)(l) of the Criminal Code requires information relating to:

Table 8
  2009 2010 2011 2012 2013

Number of Persons Arrested

414

384

208

238

149

Paragraph 195(2)(d) of the Criminal Code requires information relating to:

The table below contains information relating to the number of persons charged for all types of offences, including Criminal Code offences.  Moreover, the three categories of offences are not treated as being mutually exclusive, and persons charged with more than one category of offence are counted more than once.  Therefore, one cannot add the columns in this table to obtain the total number of persons against whom proceedings were commenced.

Table 9
Category of Offence Number of Persons Against Whom Proceedings were Commenced (identified in authorization)
2009 2010 2011 2012 2013

Offence specified in authorization

334

297

276

152

100

Offence for which an authorization may be given but not specified in the authorization

176

43

59

26

24

Offence for which no authorization may be given

98

15

13

25

46

Table 9 and 10 are interrelated. Table 9 provides information on the number of persons identified in an authorization who were charged with specific categories of offences, e.g., an offence specified in the authorization, an offence other than an offence specified in such an authorization but in respect to which an authorization may be given, or an offence other than an offence specified in such an authorization and for which no such authorization may be given.

The subsequent Table in this report provides similar information on persons not identified in an authorization, but who were charged as a result of information from the authorized interception.

Paragraph 195(2)(e) of the Criminal Code requires information relating to:

whose commission or alleged commission of the offence became known to a peace officer as a result of an interception of a private communication under an authorization.

The table below contains information relating to the number of persons charged for all types of offences, including Criminal Code offences.  Moreover, the three categories of offences are not treated as being mutually exclusive, and persons charged with more than one category of offence are counted more than once.  Therefore, one cannot add the columns in this table to obtain the total number of persons against whom proceedings were commenced.

Table 10
Category of Offence Number of Persons Against Whom Proceedings were Commenced (not identified in authorization)
2009 2010 2011 2012 2013

Offence specified in authorization

236

229

153

128

111

Offence for which an authorization may be given but not specified in the authorization

45

103

23

20

20

Offence for which no authorization may be given

89

10

3

39

19

Again, table 9 and 10 are interrelated.  The former table provides information on the number of persons identified in an authorization who were charged with specific categories of offences, e.g., an offence specified in the authorization, an offence other than an offence specified in such an authorization but in respect to which an authorization may be given, or an offence other than an offence specified in such an authorization and for which no such authorization may be given.

The latter table provides similar information on persons not identified in an authorization, but who were charged as a result of information obtained from the authorized interception.

Paragraph 195(2)(m) of the Criminal Code requires information relating to:

Table 11
  Number of Criminal Proceedings
2009 2010 2011 2012 2013

Criminal proceedings / Evidence adduced

537

339

221

217

268

Convictions

235

24

20

28

0

Paragraph 195(2)(n) of the Criminal Code requires information relating to:

Table 12
  Number of Criminal Investigations
2009 2010 2011 2012 2013

Criminal proceedings / Evidence not adduced

301

58

157

174

0

Convictions

254

56

107

55

0

Notifications

Pursuant to subsection 196(1) of the Criminal Code, the Minister of Public Safety and Emergency Preparedness is required to notify in writing the person who was the object of the interception.  Furthermore, paragraph 195(2)(h) requires that the Annual Report of the Minister of Public Safety and Emergency Preparedness provide:

Notice is served on those persons whose communications were intercepted, and who were identified in the authorization, either by name, or unnamed but known (e.g., the unidentified female living with John Doe). In cases where the person was identified but unnamed in the authorization, notification is to be served on such persons where sufficient information is acquired to effect notification. Notification may be delayed by a judge for up to three years if the investigation is continuing, is in relation to a terrorism offence or an offence associated with a criminal organization, and the judge is of the opinion that the extension would be in the interest of justice.

Table 13
  2009 2010 2011 2012 2013

Number of Notifications

1086

1013

1164

956

685

Prosecutions for unlawful interceptions and unlawful disclosure

Paragraph 195(3)(a) of the Criminal Code requires that the Annual Report provide information relating to:

No such prosecutions have been initiated for the period of 2009 to 2013.

Subsection 184(1) of the Criminal Code, with a number of specific exceptions, makes it an offence for a person to wilfully intercept a private communication by means of an electromagnetic, acoustic, mechanical or other device. Subsection 193(1), with similar specific exceptions, makes it an offence to disclose a private communication that was lawfully intercepted, or to disclose the existence of such intercepted communications.

Section III – Statistics for Section 184.4 (Immediate Interception – Imminent Harm)

Paragraph 195(1)(c) of the Criminal Code requires that the Annual Report provide information relating to interceptions under section 184.4.

New accountability measures were implemented for section 184.4 (Immediate interception – imminent harm) which resulted in changes to section 195 (Annual Report). The reporting period for the new reporting requirement is from September 27, 2013 to December 31, 2013, beginning on the date it came into force. Future reports will contain statistics for the full year and will eventually cover a five-year period to match other requirements in the report. The list of reporting requirements for section 184.4 can be found in the beginning of the Report under Introduction.   

No such interceptions were initiated for the period of September 27, 2013 to December 31, 2013; therefore, there are no statistics to report under this section.

Section IV – General assessment

Paragraph 195(3)(b) of the Criminal Code requires that the Annual Report provide:

Investigation

The lawful interception of private communications is a vital tool used by law enforcement agencies.  It is of great assistance to complex criminal investigations involving threats to national security and serious crimes.  The statistics presented in Section III of this report indicate that the majority of authorizations issued are in relation to the offence of trafficking in a controlled substance.

Detection

The illegal activities of organized criminal groups and terrorist activity, just to name a few, would remain largely undetected were it not for the active investigation of the police.  Offences such as money laundering, smuggling, drug trafficking or participation in the activity of a terrorist group, present serious threats to the safety and stability of Canadian communities, and the lawful interception of private communications provides a means for the police to investigate the commission of such offences.

Prevention

The use of electronic surveillance in investigations has led to numerous drug seizures, leading to a reduction in the amount of illicit drugs and crime associated with their abuse.  Without this crucial tool, the ability of the law enforcement community to prevent crimes and ensuing social harm would be seriously hindered.

Prosecution

Investigations of the activities of organized crime groups are increasingly complex and sometimes criminal charges are difficult to prove in a court of law.  The use of electronic surveillance often provides strong evidence against those accused of being involved in illegal activities, increasing the likelihood of conviction.  The prosecution of such offenders increases public confidence in the criminal justice system and contributes to public safety by holding such persons responsible for their actions.

Appendix A

Paragraph 195(1)(a) of the Criminal Code requires information relating to “authorizations for which he and agents to be named in the report who were specially designated in writing by him for the purposes of section 185 made application”.

Designated agents who made applications in accordance with subsections 185(1) and 487.01(1) of the Criminal Code in 2013 were:

C. Alarie
T. Andreopoulos
R. Benoit
C. R. Bond
S. Bond
B. Boyd
M. Cullen
E. Froess
B. Gluckman
P. Lapointe
M. Marcotte
L. Mathews
M. McQueen
M.-M. Meloche
C. Neely
L. Proulx
A. Ratsoy
B. Reitz
R. Roy
D. Schermbrucker
F. Simon
G. Villeneuve
R. Visca
J. Wakely

Appendix B

Paragraph 195(1)(b) of the Criminal Code requires information relating to “authorizations given under section 188 for which peace officers to be named in the report who were specially designated by him for the purposes of that section made application”.

No designated Peace Officers made applications in accordance with subsections 188(1) and 487.01(1) of the Criminal Code in 2013.

Footnotes

  1. 1

    A “peace officer” is defined in section 2 of the Criminal Code and includes police officers.

  2. 2

    A “police officer” is defined in section 2 of the Criminal Code.

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