REPORT OF THE COMMITTEE

Tuesday, May 1, 2018

The Standing Senate Committee on National Security and Defence has the honour to table its
SIXTEENTH REPORT
Your committee, which was authorized to examine the subject matter of Bill C-45, An Act
respecting cannabis and to amend the Controlled Drugs and Substances Act, the Criminal Code and
other Acts, insofar as it relates to Canada’s borders, has, in obedience to the order of reference of
Thursday, February 15, 2018, examined the said subject-matter and now reports as follows:
At the Committee’s meetings of March 19, March 26 and April 16, 2018, thirteen witnesses
appeared to present their views on the subject matter of Bill C-45. Your committee presents the
following comments on the bill as it relates to Canada’s borders:
1) Your committee wishes to minimize any negative effects of Bill C-45 on the movement of travellers
and goods across the Canada-U.S. border. First, your committee wishes to prevent, as much as
possible, Canadian travellers from being further interrogated or searched by U.S. customs officers
as a result of the legalization of cannabis in Canada. Your committee also wants to prevent, as much
as possible, an increase in the number of Canadian and U.S. travellers being stopped at the border
for possession of cannabis. Your committee heard from witnesses who believe that, after Bill C-45
comes into force, Canadians could face delays and more Canadian travellers could face legal
proceedings and/or inadmissibility for life for a cannabis offence or for simply admitting previous
cannabis use to U.S. customs and border protection officers.
2) To prevent the above-mentioned problems, your committee encourages the Canadian government to
have formal discussions with the U.S. government to clarify the U.S. government’s position with
respect to Canadian travellers who admit to previous cannabis use. Specifically, your committee
encourages the Canadian government to have formal discussions at the political level in order to
clarify whether Canadians who admit to having previously used cannabis will face inadmissibility to
the United States if Bill C-45 is passed. If so, your committee encourages the Canadian government
to make it clear to U.S. authorities that, in its view, following the coming into force of Bill C-45,
Canadian travellers should not be prohibited entry into the United States for activities that are legal
in Canada, such as using cannabis or working for a company that legally produces cannabis. Your
committee encourages the government to continue its dialogue with the U.S. government and to
clearly and firmly communicate Canada’s position in order to minimize the impact of Bill C-45 on
Canadian travellers. This dialogue could also help find solutions to issues and problems that will
arise at the border following the entry into force of Bill C-45.
3) In the context of this dialogue with the United States, your committee encourages the government to
negotiate an agreement with the United States on the treatment of travellers at the border on issues
related to cannabis, notably on the types of questions that border officers of both countries ask
travellers in light of the fact that consuming cannabis will be legal in Canada following the entry into
force of Bill C-45 and that it is already legal in several American states. This bilateral agreement
could also protect workers of Canadian companies in the emerging cannabis sector in order to
ensure that the workers of these companies are not banned from entry into the U.S. because they
are “associated with drug trafficking,” as current U.S. law states.
4) In conjunction with diplomatic activities, your committee encourages the government to increase the
scope of its awareness campaign to make it clear to Canadians that crossing the Canada-U.S.
border while in possession of cannabis will remain illegal even if Bill C-45 comes into force. This
 awareness campaign should also make it clear to Canadians that they may be denied entry into the
United States if they admit to previous cannabis use. Although Canadian officials who appeared
before your committee stated that an awareness campaign would be launched soon, your committee
believes that additional efforts should be made in the coming months to ensure that Canadians
understand the seriousness of the consequences they will face if cannabis is found in their
possession at the border or if they admit to previous cannabis use. Additional awareness
campaigns, one specifically targeting youth and the other focused on those who hold or apply for
trusted traveller programs (such as NEXUS and FAST), should be put in place due to the unique
vulnerabilities of these groups.
5) Your committee encourages the Canadian government to install signs and posters at border
crossings and pre-clearance sites clearly explaining to travellers that it is illegal to cross the Canada-
U.S. border with cannabis. Witnesses from Public Safety told the committee that such signs would
be installed at the border. Your committee encourages the Canadian government to accelerate the
implementation of its awareness campaign and the installation of signs and posters before Bill C-45
comes into force so that travellers are aware of the consequences they face if they try to cross the
Canada-U.S. border with cannabis.
6) Your committee encourages the government to modernise preclearance measures in light of Bill C-
45. In accordance with An Act respecting the preclearance of persons and goods in Canada and the
United States, which received Royal Assent on December 12, 2017, travellers are obliged to
truthfully answer any question posed to them by U.S. border officers, which means that Canadians
who submit to preclearance must truthfully answer any questions about their cannabis use. At
regular border crossings, travellers who refuse to answer these types of questions can be denied
entrance into the U.S., but do not face lifetime bans or prison terms. However, travellers who refuse
to answer questions in preclearance areas could face sentences of up to two years in prison for
“resisting or wilfully obstructing a preclearance officer.” Your committee therefore encourages the
government to modernise the Act respecting the preclearance of persons and goods in Canada and
the United States in light of Bill C-45.
7) Lastly, your committee requests that the government table before Parliament a plan to protect
Canadian travellers at the border. This plan should outline the measures that the government
intends to take to minimise the impact of Bill C-45 on the movement of travellers and goods across
the Canada-U.S. border. This plan should also explain the approach that the government intends to
take in its negotiations with the United States in order to ensure that Canadian travellers are not
denied entry into the United States for previous cannabis use or for engaging in any other type of
activity that would become legal following the entry into force of Bill C-45.
Respectfully submitted,
GWEN BONIFACE
Chair