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Full text of "Statutory review of the DNA Identification Act : report
of the Standing Committee on Public Safety and National Security
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HOUSE OF COMMONS
CANADA
STATUTORY REVIEW OF
THE DNA IDENTIFICATION ACT
Report of the Standing Committee on
Public Safety and National Security
Garry Breitkreuz, MP
Chair
June 2009
40th PARLIAMENT, 2nd SESSION
Government
Publications
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The Speaker of the House hereby grants permission to reproduce this document, in whole or in part for use in
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Speaker of the House of Commons.
lf this document contains excerpts or the full text of briefs presented to the Committee, permission to reproduce these
briefs, in whole or in part, must be obtained from their authors.
Also available on the Parliamentary Internet Parlementaire: http://www.parl.gc.ca
Available from Communication Canada — Publishing, Ottawa, Canada K1A 0S9
STATUTORY REVIEW OF
THE DNA IDENTIFICATION ACT
Report of the Standing Committee on
Public Safety and National Security
Garry Breitkreuz, MP
Chair
JUNE 2009
40th PARLIAMENT, 2nd SESSION
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STANDING COMMITTEE ON PUBLIC SAFETY AND
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CHAIR
Garry Breitkreuz
VICE-CHAIRS
Mark Holland
Don Davies
MEMBERS
Andrew Kania Rick Norlock
Dave MacKenzie Robert Oliphant
Phil McColeman Brent Rathgeber
Serge Ménard Blake Richards
Maria Mourani
OTHER MEMBERS OF PARLIAMENT WHO PARTICIPATED
Jack Harris Hon. Bob Rae
Irene Mathyssen Gary Ralph Schellenberger
Hon. Maria Minna Robert Vincent
Real Ménard
CLERK OF THE COMMITTEE
Roger Préfontaine
LIBRARY OF PARLIAMENT
Parliamentary Information and Research Service
Lyne Casavant, Tanya Dupuis
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THE STANDING COMMITTEE ON
PUBLIC SAFETY AND NATIONAL SECURITY
has the honour to present its
SECOND REPORT
Pursuant to its mandate under Standing Order 108(2) and its Order of Reference
dated April 22, 2009, the Committee has reviewed the DNA Identification Act and has
agreed to report the following:
Digitized by the Internet Archive
in 2023 with funding from
University of Toronto
https://archive.org/details/31/61119708980
—— TABLE OF CONTENTS
INTRODUCTION se. HE htc ak ae er 1
THE COMMITTEE’S MANDATE AND APPROACH ren 1
EURPOSE AND PRINCIPLES OF THE ACI. aa... eaests: ann ee eee ane 2
STRUCTURE AND ADMINISTRATIVE FRAMEWORK SURROUNDING THE
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WHAT WE 'BEARNEDY! 053 9) 0: MARRON ae eee a eee 4
CONCERNS RAISED AND SUGGESTED REE ORMS RP PR eee eee 5
À. 1" LackK'of Resources: iit). ee SRE 5
B. Automatic DNA Samples upon Conviction ........................... r
C. Ensuring the Efficacy of the National DNA Data Bank... 8
D. Addition of a Most Persons Index and a Victims Index ..…....................... 10
E. Autonomy of the National DNA Data Bank from the RCMP. ....................... 10
CONCEUSION te anes den dec peters RME aie eee eee re 11
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RPRENDIXASEIS ROEMIMINESSES Aire. ccc cre renee 15
APPENDIX-B: LIST OF BRIEFS:.2 nee ak taees een eee eee 17
APPENDIX C: LIST OF DESIGNATED OFFENCES ............. he FE eed cave | 19
REQUEST FOR GOVERNMENT RESPONSE "tr iannntenetesseertiieies 25
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STATUTORY REVIEW OF
THE DNA IDENTIFICATION ACT
INTRODUCTION
ee The analysis of deoxyribonucleic acid (DNA) is an integral part of the Canadian
Judicial system. Because every person's genetic profile is unique’ and immutable, DNA
analysis is a very precise identification method for distinguishing one individual from
another. Thanks to DNA analysis, the boundaries of science have been pushed back
resulting in remarkable progress in the administration of justice.
The National DNA Data Bank (hereinafter the NDDB) is an extremely effective
investigation tool upon which police can rely to further their investigations or exonerate a
suspect. The information contained in the NDDB has also prompted the exoneration of
persons who have been wrongfully convicted of a crime. The NDDB not only cuts down the
length of police investigations, it also makes it possible to resolve more efficiently the many
cases that come before the courts. Certainly, the evidence provided by DNA samples
encourages “guilty” pleas. It cannot therefore be too strongly stated that evidence of this
kind simplifies the administration of justice and allows for significant cost savings.
This report reviews the provisions in the DNA Identification Act that establish the
NDDB. It highlights the significant contributions made by the NDDB and the relevant
forensic laboratories to the efficient administration of justice. It also stresses how crucial it
is that additional resources be allocated to the NDDB and forensic laboratories to ensure
that the justice system functions as it should.
THE COMMITTEE’S MANDATE AND APPROACH
On February 10, 2009, the Committee began the statutory review of the DNA
Identification Act (hereinafter the Act), which was passed into law in 1998 and came into
force in two stages in May and June of 2000.” Section 13 of the Act states that:
Within five years after this Act comes into force, a review of the provisions and operation
of this Act shall be undertaken by any committee of the Senate, of the House of
Commons or both Houses of Parliament that is designated or established for that
purpose.
1 Only identical twins share the same DNA.
2 Sections 2, 3, and 12 came into force May 8, 2000 -- see $1/2000-37; and sections 1, 4 to 11 and 13 to 25
came into force June 30, 2000 -- see S1/2000-60.
The Committee devoted three meetings to the statutory review in order to determine
whether the legislative objectives of the DNA Identification Act were being achieved and
whether improvements were needed. Between February 24 and April 28, 2009, the
Committee heard from representatives of the RCMP, the National DNA Data Bank
Advisory Committee, the Department of Justice, the Canadian Association of Chiefs of
Police, the Criminal Lawyers’ Association, the Office of the Privacy Commissioner of
Canada, the Laboratoire de sciences judiciaires et de médecine légale in Montréal and the
Centre of Forensic Sciences in Toronto.°
This report sets out the Committee’s findings in terms of the strengths and
weaknesses of the Act and the administrative framework surrounding the NDDB. It also
highlights the exceptional work done by the scientists at the NDDB and in the forensic
laboratories. It underscores the urgency of investing additional funds in the forensic
laboratories and the NDDB without delay to ensure the proper functioning of the justice in
this regard. It proposes recommendations designed to maximize the benefits that forensic
science derives from DNA analysis. The report also expresses the Committee’s faith in
DNA science, and its considered opinion that the NDDB is an extremely useful and
important tool for the criminal justice system. The analysis of genetic loci makes possible
an almost certain distinction between two individuals. As Diane Seguin of the Laboratoire
des sciences judiciaries et de médecine légale told the Committee, when 13 genetic loci
are analyzed, the chances of finding a comparable profile are on the order of one person
out of 600 billion.“
PURPOSE AND PRINCIPLES OF THE ACT
The DNA Identification Act established the NDDB in order to help law enforcement
agencies identify persons alleged to have committed designated offences” under
section 487.04 of the Criminal Code of Canada (hereinafter the Code), including those
committed before the Act came into force. The Act establishes a framework for the NDDB’s
structure and administration, and, through provisions in the Code, grants the courts
authority to order the taking of samples of bodily substances, for DNA analysis, from
offenders convicted of those designated offences.
It is up to the Crown to request a DNA data bank order; whether such an order will
be issued lies with the court. In some cases, the Crown must apply for an order to be
granted; in other cases, the court is required to make an order. When a DNA sampling is
not mandatory, “the court is not required to make the order if it is satisfied that the person
has established that the impact of such an order on their privacy and security would be
3 See Appendixes A and B for a list of the witnesses who appeared and the briefs that were submitted to the
Committee.
4 Diane Seguin, Deputy Director, Laboratoire des sciences juridiques et de médecine légale, Evidence,
April 28, 2009.
5 See Appendix C for a list of the current primary and secondary designated offences within the Criminal Code
of Canada.
grossly disproportionate to the public interest in the protection of society and the proper
administration of justice, to be achieved though the early detection, arrest and conviction of
offenders.”” Pursuant to section 4 of the Act, it is recognized and declared that:
a) the protection of society and the administration of justice are well served by
the early detection, arrest and conviction of offenders, which can be
facilitated by the use of DNA profiles:
b) the DNA profiles, as well as samples of bodily substances from which the
profiles are derived, may be used only for law enforcement purposes in
accordance with this Act, and not for any unauthorized purpose; and
c) to protect the privacy of individuals with respect to personal information about
themselves, safeguards must be placed on
i) | the use and communication of, and access to, DNA profiles and
other information contained in the national DNA data bank, and
li) the use of, and access to, bodily substances that are
transmitted to the Commissioner for the purposes of this Act.
STRUCTURE AND ADMINISTRATIVE FRAMEWORK SURROUNDING THE NATIONAL
DNA DATA BANK
The National DNA Data Bank (NDDB) is located at RCMP Headquarters in Ottawa.
It has two main indices of DNA profiles: the Convicted Offenders Index (COI) and the
Crime Scene Index (CSI). The COI is an electronic database containing DNA profiles
developed from biological samples collected by the police from persons convicted of
designated offences. The biological samples are submitted to the NDDB in Ottawa for
processing, and the resulting profiles are uploaded and entered in the COI.’ The COI! is
maintained and updated by the RCMP at the NDDB.
The CSI is a separate electronic index containing DNA profiles recovered from
biological samples found at the crime scenes of designated offences.® The RCMP forensic
laboratories—in Halifax, Ottawa, Regina, Edmonton and Vancouver—and the two forensic
laboratories in Ontario and Quebec are responsible for analyzing the biological samples
gathered by police at crime scenes and for uploading them to the CSI.
6 Section 487.051(2) of the Code.
7 Ronald Fourney, Director, National Services and Research Branch, RCMP, Evidence, February 24, 2009.
8 Ibid.
Ontario and Quebec are the only provinces in Canada with forensic laboratory
facilities that perform their own DNA analysis for the NDDB. The other provinces and
territories send their DNA work to the RCMP Forensic Laboratory Services.? All resulting
DNA profiles are uploaded to the CSI for comparison with the COI and with other DNA
profiles in the CSI."
WHAT WE LEARNED
The evidence it heard enabled the Committee to review the case law on DNA. The
Committee was informed that “the courts have overwhelmingly accepted the utility of DNA
in the criminal justice system’.'' In 2006, the Supreme Court of Canada also affirmed that
the taking of a DNA sample “involves a minimal intrusion on the physical integrity of the
offender.”’* With respect to the Act's utility, the Committee echoes the comments by
Justice Charron in R. v. Rodgers as cited by Greg Yost, Department of Justice, during his
presentation:
There is no question that DNA evidence has revolutionized the way many crimes are
investigated and prosecuted [...] The importance of this forensic development to the
administration of justice can hardly be overstated.
Overall, witnesses told the Committee that the establishment of the NDDB has
improved the administration of justice by helping to focus investigations. Police officers
praised the usefulness of DNA evidence and the value of the NDDB in providing links to
serial criminals, eliminating suspects and helping to identify new crimes being committed
by convicted offenders.
It should be noted, however, that some witnesses expressed different and even
opposing positions on the need to extend the scope of the Act to other crimes or to make
the taking of DNA samples automatic, citing the possible impact of these changes on
privacy rights.
The NDDB has never been the subject of an exhaustive review in terms of cost and
time savings — for example, the extent to which consulting the NDDB cuts down on
investigation times or secures convictions. When Mr. Ronald Fourney, Director of the
RCMP’s National Services and Research Branch, was asked for statistics on the number
of exonerations in which the NDDB had played a role, he replied that the privacy protection
safeguards in place make it impossible to compile such information. The NDDB’s scientists
do not know the source of the samples on which they work, because samples are identified
9 Yves Dufour, Director General, Laboratoire de sciences judiciaires et de médecine légale, Evidence,
April 28, 2009.
10 Ibid.
11 Greg Yost, Counsel, Criminal Law Policy Section, Department of Justice, Evidence, February 24, 2009.
12 R. v. Rodgers, [2006] 1 S.C.R. 554.
only by a barcode. Investigators are simply informed that there is, or is not, a
correspondence. Only the investigators know the person’s identity. This is what Mr.
Fourney told the Committee:
Unfortunately, we can't tell you that information, from the National Data Bank
perspective, because the very safeguards in place for encoding the samples for privacy
and security prevent us from actually knowing the individual who may be involved. To be
Rue we can't tell you the number of times we’ve exonerated an individual based on
The Committee realizes that it is difficult to quantify the number of exonerations that
have taken place thanks to the many correspondences established by the NDDB.
Nevertheless it considers, like most of the witnesses who appeared before it, that the
NDDB is an important tool for exonerating the innocent and focusing police investigations,
which means a considerable saving in time and money.
According to Mr. Fourney, more than 11,000 investigations have been assisted by
consulting the convicted offender index, including more than 700 murder investigations and
more than 1,500 sexual assault investigations. "4
Finally, given the unique nature of DNA and the fact that a person’s DNA does not
change over time, the Committee wishes to underscore the importance of maintaining
proper safeguards governing the handling of the DNA samples contained in the NDDB in
order to ensure that privacy interests of the individuals are protected. Strict controls on the
handling of DNA samples and the information derived from them must be maintained and
the information within the NDDB must continue to be used in accordance with the DNA
Identification Act. All other uses should continue to be strictly prohibited and punishable by
law.
CONCERNS RAISED AND SUGGESTED REFORMS
Given that DNA is a powerful forensic science tool that allows for considerable
economies in the administration of justice, and that the resources currently allocated to it
are insufficient, the Committee, in the following sections, wishes to strongly raise its
concerns and propose recommendations for rectifying this situation.
A. Lack of Resources
The Committee finds that funding for the DNA forensic laboratories is currently
inadequate, which is causing significant delays in the analysis of DNA samples. Crime
solving is directly affected by this. The Committee learned that the current delays are
compromising a number of police investigations.
13 Ronald Fourney, Evidence, February 24, 2009.
14 Ibid.
More specifically, the Committee was told that, as a consequence of inadequate
funding, the Quebec and Ontario forensic laboratories are currently unable to analyze
crime scene DNA for the designated offences that were added to the list when Bills C-13
and C-18 where passed into law.’ As a result, the NDDB’s usefulness has diminished.'°
The Quebec and Ontario laboratories are in emergency mode. For urgent files, i.e., files
involving a serious crime where the suspect has not yet been arrested or has fled, analysis
can take up to two weeks. For other files, i.e., in 99% of the cases, police must wait more
than a year for the results. The Ontario laboratory has taken the initiative of refusing certain
files: Mr. Raymond Prime told the Committee that his laboratory does not accept any extra
work arising from the new offences designated since the coming into force of Bills C-13
and C-18, except in cases where public safety is at risk. With respect to the delays at the
RCMP Forensic Laboratory Services, the Auditor General of Canada stated in her 2007
report dealing with the RCMP laboratories"? that:
In the remaining 99 percent categorized as routine, the FLS is unable for the most part to
meet the 30-day target it has set for them. While average turnaround times have
improved for all other types of analysis, for DNA analysis requests they have
worsened — from 91 days in 2003-04 to 114 days in 2005-06 — despite increased
spending and additional staff. The backlog of DNA requests is a major contributor to the
long turnaround times.
The Committee believes that these alarming shortcomings must be rectified and the
urgency of the situation must be recognized. Immediate action is imperative. The lack of
resources is hampering police investigations and the overall functioning of the justice
system. This concern is all the more serious given that implementing the recommendations
in this report would lead to an expansion of the COI at the NDDB.
The Committee is also concerned about the need to provide the forensic
laboratories with adequate additional financial and human resources, so that they can meet
the demands there are currently facing. The scientists who work in these laboratories are
highly educated. They also require extensive lab training before they can testify in court as
expert witnesses in DNA analysis. The Committee was told that it takes about one-and-a-
half to two years of lab training before scientists are recognized as experts in DNA
analysis. Mr. Yves Dufour, Executive Director of the Laboratoire de sciences judiciaires et
de médecine légale, told the Committee that his laboratory needs at least 30 to 35 new
15 Amendments to the Act were made by the passing of the Act to amend the Criminal Code, the
DNA Identification Act and the National Defence Act, S.C. 2005 (former Bill C-13) and the Act to amend the
Criminal Code, the DNA Identification Act and the National Defence Act, S.C. 2007 c. 22 (former Bill C-18),
which came into full force in 2008. These amendments added for example all indictable offences under the
Criminal Code and sections 5, 6 and 7 of the Controlled Drugs and Substances Act that are punishable by
five years to the list of secondary designated offences and, for the purposes of making a DNA data bank
order, have been prosecuted by indictment, removed judicial discretion for 16 offences and expanded the
retroactive provisions.
16 Yves Dufour, Evidence, April 28, 2009.
17 Report of the Auditor General of Canada, Chapter 7 - Management of the Forensic Laboratory Services of
the Royal Canadian Mounted Police, May 2007.
18 Ibid, p. 1.
employees to meet the demand resulting from the enactment of Bills C-13 and C-18. He
also noted that investments in human resources take time to bear fruit, since about two
years of lab training is required.
. The Committee concurs with many of its witnesses that additional funding must be
provided to the forensic laboratories without delay so they are able to recruit and retain the
Staff needed to conduct DNA analysis within a reasonable timeframe.
The Committee also learned that, when the public laboratories are too busy, the
RCMP sometimes calls on the services of private sector laboratories. The Committee is
concerned that the lack of resources and the resultant delays in conducting analysis will
result in increased use of private laboratories.
In light of these observations:
RECOMMENDATION 1
The Committee recommends that the Government of Canada maintain
the National DNA Data Bank and all associated facilities as a public
service and authorize the use of private facilities solely in exceptional
overflow circumstances.
RECOMMENDATION 2
in view of the importance of DNA analysis to the administration of
justice and the considerable savings it results in, the Committee
recommends that the Government of Canada and the provincial
governments of Ontario and Quebec recognize the urgency of the
situation and immediately allocate additional funding to their forensic
laboratories which are responsible for providing DNA analysis to the
National DNA Data Bank.
B. Automatic DNA Samples upon Conviction
As mentioned above, prosecutors are currently responsible for applying for DNA
samples and the courts for issuing DNA orders. During its study, the Committee was
informed of numerous problems with this system. One witness characterized it as “an
administratively burdensome and error-prone process.” It was brought to the Committee’s
attention that a substantial amount of police time is spent on administrative tasks, such as
returning defective orders, asking prosecutors to obtain corrected orders and sometimes
obtaining a legal interpretation on whether or not the offence involved
19 David Bird, Counsel, Department of Justice, Evidence, February 24, 2009.
qualifies for acceptance in the data bank. Witnesses also noted that applications for DNA
orders vary greatly from one region to another. Certain provinces appear to require DNA
samples more frequently than others.
To resolve these problems, which have a direct impact on the NDDB, some
witnesses urged the Committee to amend the Act to provide for DNA samples to be taken
automatically upon conviction. If DNA samples were rendered automatic upon conviction,
as is the case in most states in the United States and most European countries, DNA
orders would be applied consistently across Canada. Committee members feel that this
approach is appropriate.
Greg Yost, Department of Justice, stated that the present registration system
produces about 36,000 convicted offender profiles per year. According to departmental
estimates, taking a DNA sample automatically upon conviction in the case of all designated
offences would lead to about 113,000 profiles per year — a significant increase in the
number of profiles.
Although the Committee feels it is necessary to amend the Act to provide for DNA
samples to be taken automatically upon conviction in the case of all designated offences, it
is important first of all that the NDDB be provided with the additional resources required to
accommodate the additional workload that would result from implementing our
recommendations. Therefore,
RECOMMENDATION 3
The Committee recommends that the DNA /dentification Act and
related laws be amended to systematically require the taking of a DNA
sample upon conviction for all designated offences. However, before
proceeding with the amendment, the government must provide the
NDDB with the additional resources required to accommodate the
increased demand for DNA analysis that would result from taking DNA
samples automatically upon conviction.
C. Ensuring the Efficacy of the National DNA Data Bank
The Committee noted that the Act does not mention that the NDDB facilitates the
exoneration of the innocent. The only purpose set out in section 3 is to help law
enforcement agencies identify persons alleged to have committed designated offences.
The Committee is of the view that the goals of protecting society and the administration of
justice are well served by the prompt identification, arrest and conviction of offenders, as
well as by exonerating the innocent, since the administration of justice seeks to serve the
truth.
. A person who wants to provide a DNA sample voluntarily in order to prove his
innocence should therefore be able to do so. In such a case, law enforcement officers
should inform the person that he or she has the right to legal representation and also of the
possible implications of his or her action. The substances provided voluntarily and the
results of the analysis should be immediately destroyed once it is determined that they do
not match the substance found at the scene of the crime.
The Committee also learned that the Act does not apply to Canadians convicted in
another country of an offence that is comparable to one on the list of designated offences
in the Code. While the Committee recognizes that it may be difficult to broaden the
application of the Act to those who are shielded from the DNA sample requirements
because they were not convicted in Canada, it believes that those found guilty of an
offence that is the equivalent of one of the designated offences should be treated the same
way they would be treated if they had committed the offence in Canada.
Finally, the Committee feels that the amendments proposed in this report must
apply to all those already serving a sentence for a designated offence when the bill is
passed. The DNA sample should be taken as soon as possible to ensure that the
offender's profile is uploaded and filed in the NDDB, thereby ensuring its efficacy.
In light of these considerations:
RECOMMENDATION 4
The Committee recommends that the government of Canada:
e amend section 3 of the DNA /dentification Act to ensure the
purpose of the Act states that the National DNA Data Bank
helps law enforcement agencies to identify, arrest and convict
persons alleged to have committed designated offences, as
well as to exonerate the innocent, given that the administration
of justice seeks to serve the truth.
e amend the Criminal Code to allow a suspect of a designated
offence to voluntarily provide a DNA sample for an
exoneration test.
e broaden the application of the DNA /dentification Act to
require that a DNA sample be taken from a Canadian citizen
convicted of an offence abroad that is the equivalent of one of
the designated offences in section 487.04.
e provide for the retroactive application of the automatic
requirement for the taking of a DNA sample stemming from the
implementation of recommendation 3 of this report to all those
serving a sentence for a designated offence at any time
between the coming into force of the amendment and the
expiration of the offender’s sentence according to law or his or
her release from a correctional facility, whichever comes first.
D. Addition of a Missing Persons Index and a Victims Index
Some witnesses advocated for the addition of two indexes to the NDDB, one on
victims of crime and the other on missing persons. Such indexes could allow searches of a
victim’s DNA against the CSI. The addition of a victim’s index could potentially help solve
cases of missing persons as well. Justice Cory, a member of the NDDB Advisory
Committee, pointed out that a balance between proper investigation and privacy issues
should be found. Thus, proper safeguards would need to be implemented if such indexes
were added to the data bank. The Committee also feels that the use of DNA sampling in
these cases should be limited to the function of solving missing persons and victims cases
and to searches in the COI. The Committee agrees that there is a need to set up these
new indexes. It feels, however, that the action plan must be based on agreements between
the provinces, the territories and the federal government. The Committee is aware that
certain provinces or territories may prefer to administer their own indexes. In such cases, it
will be necessary to ensure that all the indexes are fully compatible with each other. In light
of the above:
RECOMMENDATION 5
The Committee recommends that the federal, provincial and territorial
ministers responsible for Justice and Public Safety determine the best
way of proceeding with the creation of the two additional DNA
identification indexes, namely, a Missing Persons Index and a Victims
Index.
E. Autonomy of the National DNA Data Bank from the RCMP
Although the structure of the NDDB seems to be working well at the moment,
witnesses told the Committee that it may be beneficial to place the NDDB under the
authority of an independent agency in order to ensure the appearance of impartiality in
relation to the police. Justice Cory informed the Committee that “[a]t some time there
should be complete independence of the data bank from the RCMP, to take away any
10
indication or taint of undue influence”. He noted, however, that this would be difficult to
accomplish given that the NDDB is currently housed by the RCMP, which also provides
security and maintenance services: moreover, these services are not covered by the
funding currently provided to the NDDB. Therefore:
RECOMMENDATION 6
The Committee recommends that the Government of Canada explore
whether it would be preferable for the National DNA Data Bank to be
completely independent in order to eliminate any perception of
partiality.
The Committee also learned that, of the many forensic laboratories responsible for
providing DNA analysis to the NDDB across the country, only two do not belong to the
RCMP. The Laboratoire de sciences judiciaires et de médecine légale falls under the
responsibility of the Quebec Ministry of Public Safety, while the Centre of Forensic
Sciences in Ontario comes under the Ontario Ministry of Public Safety and Correctional
Services. The Committee approves of this model, where the organization responsible for
DNA analysis is separate from the police, and encourages other governments to move
towards it. Therefore:
RECOMMENDATION 7
The Committee recommends that the federal, provincial and territorial
ministers responsible for Justice and Public Safety consider the
possibility of setting up their own independent forensic laboratories.
CONCLUSION
The Committee shares the views of those who stated that DNA analysis has greatly
enhanced the administration of justice. It is one of the greatest breakthroughs of the last
century. We also believe in the value of the NDDB in providing links to criminals,
eliminating suspects and helping to associate crimes with offenders in the NDDB. For
investigators, the NDDB is an effective tool that allows them to bring criminals to justice.
20 Justice Peter Cory, Member, National DNA Data Bank Advisory Committee, Evidence, February 24, 2009.
11
It is unfortunate that no studies have been conducted to demonstrate the
considerable savings that the NDDB makes possible. The Committee believes that better
records, providing data on the number of secured convictions, confessions and suspects
eliminated on the basis of DNA evidence, need to be maintained, for the purposes of future
reviews.
The science of genetics is constantly evolving and the Committee believes that
Canada can and must be a leader in the field. It is also critical to provide the NDDB and the
relevant forensic laboratories with sufficient funding, to ensure the proper administration of
the justice system. The Committee is concerned that, as a result of a lack of funding, there
will be increased use of private laboratories. The Committee would like to underscore the
importance of ensuring that the NDDB and ail associated facilities remain public services.
Finally, the Committee has every hope that the implementation of this reports
recommendations will make it possible to correct the weaknesses that were brought to its
attention.
12
LIST OF RECOMMENDATIONS
RECOMMENDATION 1
The Committee recommends that the Government of Canada
maintain the National DNA Data Bank and all associated facilities as
a public service and authorize the use of private facilities solely in
exceptional overflow circumstances.
RECOMMENDATION 2
In view of the importance of DNA analysis to the administration of
justice and the considerable savings it results in, the Committee
recommends that the Government of Canada and the provincial
governments of Ontario and Quebec recognize the urgency of the
situation and immediately allocate additional funding to their
forensic laboratories which are responsible for providing DNA
analysis to the National DNA Data Bank.
RECOMMENDATION 3
The Committee recommends that the DNA Identification Act and
related laws be amended to systematically require the taking of a
DNA sample upon conviction for all designated offences. However,
before proceeding with the amendment, the government must
provide the NDDB with the additional resources required to
accommodate the increased demand for DNA analysis that would
result from taking DNA samples automatically upon conviction.
RECOMMENDATION 4
The Committee recommends that the government of Canada:
e amend section 3 of the DNA Identification Act to ensure the
purpose of the Act states that the National DNA Data Bank
helps law enforcement agencies to identify, arrest and convict
persons alleged to have committed designated offences, as
well as to exonerate the innocent, given that the administration
of justice seeks to serve the truth.
e amend the Criminal Code to allow a suspect of a designated
offence to voluntarily provide a DNA sample for an
exoneration test.
broaden the application of the DNA Identification Act to
require that a DNA sample be taken from a Canadian citizen
13
convicted of an offence abroad that is the equivalent of one of
the designated offences in section 487.04.
e provide for the retroactive application of the automatic
requirement for the taking of a DNA sample stemming from the
implementation of recommendation 3 of this report to all those
serving a sentence for a designated offence at any time
between the coming into force of the amendment and the
expiration of the offender’s sentence according to law or his or
her release from a correctional facility, whichever comes first.
RECOMMENDATION 5
The Committee recommends that the federal, provincial and
territorial ministers responsible for Justice and Public Safety
determine the best way of proceeding with the creation of the two
additional DNA identification indexes, namely, a Missing Persons
Index and a Victims Index.
RECOMMENDATION 6
The Committee recommends that the Government of Canada explore
whether it would be preferable for the National DNA Data Bank to be
completely independent in order to eliminate any perception of
partiality.
RECOMMENDATION 7
The Committee recommends that the federal, provincial and
territorial ministers responsible for Justice and Public Safety
consider the possibility of setting up their own independent forensic
laboratories.
APPENDIX A
LIST OF WITNESSES
ee ee eee
Organizations and Individuals Date Meeting
Department of Justice 2009/02/24 5
David Bird, Counsel,
Legal Services, Royal Canadian Mounted Police
Greg Yost, Counsel,
Criminal Law Policy Section
National DNA Data Bank Advisory Committee
Richard Bergman, Chairperson
Peter Cory, Member
Royal Canadian Mounted Police
Ronald M. Fourney, Director
National Services and Research
Canadian Association of Chiefs of Police 2009/02/26 6
Derek Egan, Chief Constable
Criminal Lawyers Association
Vincenzo Rondinelli, Defence Lawyer
Office of the Privacy Commissioner of Canada
Chantal Bernier, Assistant Privacy Commissioner
Lisa Campbell, Acting General Counsel
Legal Services, Policy and Parliamentary Affairs Branch
: ; 2009/04/28 A7
Centre of Forensic Sciences
Jonathan Newman, Deputy Director
Raymond Prime, Director
Laboratoire de sciences judiciaires et de médecine
légale
Yves Dufour, Director General
Frédérick Laberge, Director
Biology and Administration
Diane Séguin, Deputy Director
15
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APPENDIX B
LIST OF BRIEFS
Organizations and Individuals
Canadian Association of Chiefs of Police
Department of Justice
Laboratoire de sciences judiciaires et de médecine légale
Royal Canadian Mounted Police
17
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APPENDIX C
LIST OF DESIGNATED OFFENCES
SECTION 487.04 OF THE CRIMINAL CODE
“primary designated offence” means
(a) an offence under any of the following provisions, namely,
(i) subsection 212(2.1) (aggravated offence in relation to living on the avails of prostitution of a
person under the age of eighteen years),
(ii) section 235 (murder),
(iii) section 236 (manslaughter),
(iv) section 239 (attempt to commit murder),
(v) section 244 (discharging firearm with intent),
(vi) section 244.1 (causing bodily harm with intent — air gun or pistol),
(vii) paragraph 245(a) (administering noxious thing with intent to endanger life or cause bodily
harm),
(viii) section 246 (overcoming resistance to commission of offence),
(ix) section 267 (assault with a weapon or causing bodily harm),
(x) section 268 (aggravated assault),
(xi) section 269 (unlawfully causing bodily harm),
(xii) section 272 (sexual assault with a weapon, threats to a third party or causing bodily harm),
(xiii) section 273 (aggravated sexual assault),
(xiv) section 279 (kidnapping),
(xv) section 344 (robbery), and
(xvi) section 346 (extortion),
(a. 1) an offence under any of the following provisions, namely,
(i) section 75 (piratical acts),
(i.01) section 76 (hijacking),
(i.02) section 77 (endangering safety of aircraft or airport),
(i.03) section 78.1 (seizing control of ship or fixed platform),
(i.04) subsection 81(1) (using explosives),
(i.05) section 83.18 (participation in activity of terrorist group),
(i.06) section 83.19 (facilitating terrorist activity),
(i.07) section 83.2 (commission of offence for terrorist group),
(1.08) section 83.21 (instructing to carry out activity for terrorist group),
(i.09) section 83.22 (instructing to carry out terrorist activity),
(i.1) section 83.23 (harbouring or concealing),
(1.11) section 151 (sexual interference),
(ii) section 152 (invitation to sexual touching),
19
(iii) section 153 (sexual exploitation),
(iii.1) section 153.1 (sexual exploitation of person with disability),
(iv) section 155 (incest),
(iv.1) subsection 163.1(2) (making child pornography),
(iv.2) subsection 163.1(3) (distribution, etc., of child pornography),
(iv.3) subsection 163.1(4) (possession of child pornography),
(iv.4) subsection 163.1(4.1) (accessing child pornography),
(iv.5) section 172.1 (luring a child),
(v) subsection 212(1) (procuring),
(v.1) subsection 212(2) (procuring),
(v.2) subsection 212(4) (offence — prostitution of person under eighteen),
(vi) section 233 (infanticide),
(vii) section 271 (sexual assault),
(vii.1) section 279.01 (trafficking in persons),
(viii) section 279.1 (hostage taking),
(ix) paragraph 348(1)(d) (breaking and entering a dwelling-house),
(x) section 423.1 (intimidation of a justice system participant or journalist),
(xi) section 431 (attack on premises, residence or transport of internationally protected person),
(xii) section 431.1 (attack on premises, accommodation or transport of United Nations or
associated personnel),
(xiii) subsection 431.2(2) (explosive or other lethal device),
(xiv) section 467.11 (participation in activities of criminal organization),
(xv) section 467.12 (commission of offence for criminal organization), and
(xvi) section 467.13 (instructing commission of offence for criminal organization),
(xvi.1) to (xx) [Repealed, 2005, c. 25, s. 1]
(b) an offence under any of the following provisions of the Criminal Code, chapter C-34 of the Revised
Statutes of Canada, 1970, as they read from time to time before January 4, 1983, namely,
(i) section 144 (rape),
(ii) section 146 (sexual intercourse with female under fourteen and between fourteen and sixteen),
(ii) section 148 (sexual intercourse with feeble-minded, etc.),
(iv) section 149 (indecent assault on female),
(v) section 156 (indecent assault on male), and
(vi) section 157 (acts of gross indecency),
(c) an offence under paragraph 153(1)(a) (sexual intercourse with step-daughter, etc.) of the Criminal
Code, chapter C-34 of the Revised Statutes of Canada, 1970, as it read from time to time before
January 1, 1988,
(c.1) an offence under any of the following provisions of the Security of Information Act, namely,
(i) section 6 (approaching, entering, etc., a prohibited place),
(ii) subsection 20(1) (threats or violence), and
20
(iii) subsection 21(1) (harbouring or concealing), and
(d) an attempt to commit or, other than for the i i
| ; purposes of subsection 487.05(1), a conspiracy to
commit an offence referred to in any of paragraphs (a) to (c); à M
“secondary designated offence” means an offence, other than a primary designated offence, that is
(a) an offence under this Act that may be prosecuted by indictment — or, for section 487.051 to apply,
is prosecuted by indictment — for which the maximum punishment is imprisonment for five years or
more,
(b) an offence under any of the following provisions of the Controlled Drugs and Substances Act that
may be prosecuted by indictment — or, for section 487.051 to apply, is prosecuted by indictment — for
which the maximum punishment is imprisonment for five years or more:
(i) section 5 (trafficking in substance and possession for purpose of trafficking),
(ii) section 6 (importing and exporting), and
(ii) section 7 (production of substance),
(c) an offence under any of the following provisions of this Act:
(i) section 145 (escape and being at large without excuse),
(i.1) section 146 (permitting or assisting escape),
(i.2) section 147 (rescue or permitting escape),
(i.3) section 148 (assisting prisoner of war to escape),
(i.4) subsection 160(3) (bestiality in presence of or by child),
(ii) section 170 (parent or guardian procuring sexual activity),
(iii) section 173 (indecent acts),
(iv) section 252 (failure to stop at scene of accident),
(v) section 264 (criminal harassment),
(vi) section 264.1 (uttering threats),
(vii) section 266 (assault),
(viii) section 270 (assaulting a peace officer),
(ix) paragraph 348(1)(e) (breaking and entering a place other than a dwelling-house),
(x) section 349 (being unlawfully in dwelling-house), and
(xi) section 423 (intimidation),
(d) an offence under any of the following provisions of the Criminal Code, as they read from time to
time before July 1, 1990:
(i) section 433 (arson), and
(ii) section 434 (setting fire to other substance), and
(e) an attempt to commit or, other than for the purposes of subsection 487.05(1), a conspiracy to
commit
(i) an offence referred to in paragraph (a) or (5)
prosecuted by indictment, or
(ii) an offence referred to in paragraph (c) or (d).
— which, for section 487.051 to apply, is
21
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REQUEST FOR GOVERNMENT RESPONSE
Pursuant to Standing Order 109, the Committee requests that the government table a
comprehensive response to this Report.
A copy of the relevant Minutes of Proceedings (Meetings Nos. 5, 6, 17, 25, 26, 28) is
tabled.
Respectfully submitted,
Garry Breitkreuz, MP
Chair
23
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